181 N.E. 437 | Ill. | 1932
On April 15, 1932, at the April term, a petition for a writ of mandamus in the name of the People was presented by the Chicago Bar Association, as relator, with a motion *550 for leave to file it, and leave being granted it was filed. Michael Feinberg, who was named as respondent, appeared forthwith and demurred to the petition. Briefs were filed, and on April 16 the cause was argued by counsel for the respective parties and was submitted for decision upon such argument and the briefs filed. The prayer of the petition was that a writ ofmandamus be issued directed to the respondent, commanding him without delay to expunge from the records of the criminal court of Cook county certain orders which he had assumed to enter as a judge of the criminal court of Cook county in the matter of the application for a special grand jury and the appointment of a special State's attorney, and particularly the order for the drawing of a special grand jury and the issue of a venire for their attendance before the court on April 8 to constitute an additional grand jury for the term for the special purpose of investigating and considering all of the matters, conditions and things set forth in the petition, which was included at length in the order, as well as the other matters not stated in the petition which the court in its order found require immediate investigation, and for no other purpose. In the same order Louis E. Hart was appointed special State's attorney to conduct, prosecute and control the investigation before the special grand jury, to prosecute all indictments and informations returned by it, with all the power, authority and duty of a State's attorney. In addition to this order the petition prayed that the order of April 8 impaneling the special grand jury, and all other orders which Feinberg had attempted to enter as a judge of the criminal court in the matter of the application for a special grand jury and the appointment of a special State's attorney, be expunged.
Michael Feinberg is a judge of the circuit court of Cook county and has been such judge for several years.
The organization and jurisdiction of the courts of the State are provided for by article 6 of the constitution. Section *551 1 vests all the judicial power of the State, except as otherwise provided in article 6, in one Supreme Court, circuit courts, county courts, justices of the peace, police magistrates, and in such courts as may be provided by law in and for cities and incorporated towns. Section 11 authorizes the creation of Appellate Courts after 1874. Section 12 declares the original jurisdiction of the circuit courts of all causes in law and equity, and section 13 requires the division of the State, exclusive of Cook county and other counties having a population of 100,000, into judicial circuits. At that time no county except Cook had a population of 100,000. The provisions in regard to the courts of Cook county were contained in other sections of article 6 numbered from 23 to 28, inclusive. Section 23 provided that Cook county should be one judicial circuit, and the circuit court should consist of five judges until their number should be increased as provided in the section. The then present judge of the circuit court and the then present judge of the recorder's court of the city of Chicago were to be two of the judges of the circuit court, and the superior court of Chicago was continued and called the superior court of Cook county. By section 26 the recorder's court of Chicago was also continued and called the criminal court of Cook county, and it was provided that it should have the jurisdiction of a circuit court in all cases of criminal and quasi-criminal nature arising in Cook county or that might be brought before the court pursuant to law, and all recognizances and appeals taken in the county in criminal and quasi-criminal cases were required to be returnable and taken to the court. The court was given no jurisdiction in civil cases, except those on behalf of the people and incident to such criminal or quasi-criminal matters, and to dispose of unfinished business. It was directed that "the terms of said criminal court of Cook county shall be held by one or more of the judges of the circuit or superior court of Cook county, as nearly as may be in alternation, *552 as may be determined by said judges, or provided by law. Said judges shall be ex-officio judges of said court."
The circuit court of Cook county has adopted rules for the organization and government of that court which are now in effect and had been for more than a year prior to the filing of the petition. Rule 1 provides that the court shall be organized to sit in two divisions — the chancery division and the law division; rule 2, that each division shall have one representative on the executive committee of said court, such representatives to be elected by the judges of the court: rule 8, that the executive committee shall consist of the chief justice of the court, selected as provided by law, and the representatives from the two divisions. Rule 3 provides that the assignments to the two divisions of the court shall be made annually by a vote of a majority of the judges of the court. Rule 5a is as follows: "A majority of all the judges of the court, if in their judgment an emergency requires or the due administration of the business of the court makes it advisable, shall have power to transfer any case to any other judge of the court, and it shall be the duty of such judge to hear and decide the case so transferred to him as expeditiously as possible." Rule 6 is: "The judges who are to sit in the criminal court of Cook county shall be assigned by the executive committee of the court from among the judges of the law and chancery divisions of the court, as nearly as may be in rotation." Rule 7 is: "All causes and matters shall be distributed among the two divisions of the court and the judges thereof in such manner as may from time to time be determined by any orders of the executive committee."
The criminal court of Cook county has adopted rules governing the organization and the management of the business of that court, and those rules are now in force and have been for more than one year last past. Rule 11 provides for the division of the court into branches and the designation of such branches. Rule 12 provides for the *553 election by the judges of a chief justice and that he shall preside over branch 1. Rule 13 is as follows: "The chief justice shall exercise the general administrative powers of the court, and to that end shall order and impanel all grand juries, have charge of general arraignments, calls of the docket, assignment of the cases to the several branches and preparation of trial calendars or lists of cases, and hear allex parte applications and all motions except those in cases assigned to the other branches. In his absence such power shall be exercised by one of the associate judges present, in the numerical order of his branch." Rule 14 provides that the clerk shall prepare trial calendars under the direction of the chief justice. Rule 15 provides that the chief justice shall each term assign the cases for trial to the several branches. Rule 18 provides that the clerk of said court shall at the end of each term report to the chief justice the number of cases pending and other facts relating to the business of the court. Rule 19 provides: "If in the judgment of the chief justice additional judges shall at any time be required, he shall present a written request therefor to the chief justice of the circuit and superior courts, stating his reasons therefor."
The criminal court of Cook county consists of seven judges, namely, Harry M. Fisher, George Fred Rush and Philip L. Sullivan, judges of the circuit court of Cook county regularly assigned to service in the criminal court by the judges of the circuit court for the court year 1931-32, and John Prystalski, James J. Kelly, Rudolph Desort and Walter T. Stanton, judges of the superior court of Cook county regularly assigned to the criminal court by the judges of the superior court for the court year 1931-32, and all of the judges so assigned to service in the criminal court have accepted such assignment and are now, and have been since the opening of the September, 1931, term thereof, regularly holding the several branches of the criminal court. They have elected Harry M. Fisher chief justice of the court, *554 and he is now acting as chief justice and is holding branch 1 of the criminal court. The criminal court is now, and for several years last past has been, held in the criminal court building of Cook county, which is a building providing facilities for that court and its officers and is devoted exclusively to the business of that court and is located in the city of Chicago more than three miles from the court house of Cook county.
A petition addressed to the judges of the circuit court of Cook county asking for the impaneling of a special grand jury and the appointment of a special State's attorney for Cook county was presented to the Hon. Michael Feinberg in the court room in the court house of Cook county, Illinois, regularly occupied by him as a chancellor of the circuit court. Judge Feinberg thereupon undertook to convene a branch of the criminal court of Cook county, with himself as presiding judge, M.P. Delano, chief deputy clerk of the criminal court, being then in attendance and acting as such clerk, and the sheriff of Cook county being in attendance. He also directed the clerk of the criminal court of Cook county to file the petition, and entered an order directing that a special venire issue for an additional grand jury for the April, 1932, term of the criminal court, that the clerk of the criminal court proceed to draw from the jury box the names of one hundred persons and certify them to the sheriff, and that the sheriff summon such persons to appear in the court room of Judge Feinberg on April 8, 1932. In obedience to such order the clerk filed the petition, spread the order upon the records of the court, drew and certified the names of one hundred persons to the sheriff of said county, and the sheriff thereupon summoned those persons and they appeared in the court room of Judge Feinberg in the court house in said county. Judge Feinberg thereupon caused twenty-three of such persons to be impaneled as a special grand jury, to serve as an additional grand jury for the criminal court for the April, 1932, *555 term, and appointed Louis E. Hart a special State's attorney to assist the grand jury in its investigation and to prosecute all indictments returned by it. Hart accepted the appointment as such special State's attorney, qualified as such, and has been since the date of his appointment acting as such. The special grand jury immediately went into session in a room set aside for it in the court house and has been since the date of its impaneling assuming to act as a grand jury of the criminal court, has used the process of that court in commanding witnesses to appear before it, and has by its foreman administered an oath to such witnesses and has examined such witnesses touching their knowledge of crimes alleged to have been committed in Cook county. George Seif is the clerk of the criminal court and was directed by the chief justice of that court to refuse to appear before Judge Feinberg and refuse to recognize him as judge of the criminal court, and thereupon Judge Feinberg entered an order appointing Daniel Buckley deputy clerk of the criminal court, and also entered a rule upon Seif to show cause why he should not be punished for contempt of court.
The respondent contends that the circuit court of Cook county is vested with jurisdiction in all cases of a criminal nature, and that any judge of that court is authorized by the act concerning jurors (Rev. Stat. 1874, chap. 78, sec. 19,) to cause a special venire to be issued at any time when he shall be of the opinion that public justice requires it. InBerkowitz v. Lester,
The rules of the circuit court which have been set out, providing for the practical and effective administration of the business of the court, are within the power of the court. Rules must, of course, be consistent with the law. The executive committee established by the rules has supervision of the work of the court, and it is the committee's duty to see to the due administration of its business. If the arrangement of the disposition of business embodied in the rules can be disregarded, any individual judge might proceed independently, to the destruction of any system in the administration of business. The rules are the rules of the court and are binding on each of the judges, unless in a particular case, for good cause, they may be disregarded. (People v. Smith,
The jurisdiction of the criminal court is declared by the section of the constitution which provides for the continuance of the recorder's court under the changed name in this language: "It shall have the jurisdiction of a circuit court, in all cases of a criminal and quasi-criminal nature, arising in the county of Cook, or that may be brought before said court pursuant to law." The conclusion to be drawn in regard to the question of jurisdiction is not, however, to be reached merely by a consideration of these words, but, as in the case of all written instruments, the intention of the makers of the constitution must be ascertained from a consideration of all the provisions of the instrument and all the language of the makers. Among these provisions is that which declares that "all recognizances and appeals taken in said county, in criminal and quasi-criminal cases, shall be returnable and taken to said court." How can this requirement of the constitution be given effect if the circuit and criminal courts of Cook county were intended to continue in the exercise of the jurisdiction in criminal and quasi-criminal cases which the circuit court and the recorder's court of the city of Chicago exercised before the adoption of the constitution? Recognizances are important, if not essential, incidents in the exercise of jurisdiction in criminal and quasi-criminal cases, and what could have been the reason of their abolition in the case of the circuit and superior courts, and the consequent hampering of the efficiency of such courts, if it was intended that they should continue to exercise the criminal jurisdiction which they had theretofore exercised? A court into which the constitution prohibited the return of any recognizance could hardly exercise a general criminal jurisdiction, and the difficulty, if not impossibility, of its doing so would seem conclusive against an intention of the makers of the *558 constitution that the circuit court should continue in the exercise of its criminal jurisdiction but that no recognizance should be taken returnable to that court. Appeals were also allowed before 1870, by statute, in criminal cases from the judgments of justices of the peace to the circuit court, and have been, and are now, allowed, except in the county of Cook, to the circuit and county courts. Thus the constitution provides that the jurisdiction of the circuit court of Cook county is not necessarily the same in all respects as that of circuit courts in other counties, for, while section 12 of article 6 provides that the circuit court shall have such appellate jurisdiction as is or may be provided by law, section 26 expressly provides that all appeals in criminal or quasi-criminal cases shall be taken to the criminal court of Cook county.
From the debates of the constitutional convention it appears that the first proposal to continue the recorder's court was a resolution that it be continued and should be called the court of common pleas, and should have concurrent jurisdiction with the circuit court of Cook county in all criminal cases arising in said county except treason and murder and in all cases upon recognizances and against bail, but should have no other jurisdiction in civil cases except to dispose of unfinished business unless otherwise provided by the General Assembly. This resolution, with others, was referred to the committee on judiciary, which reported the present section 26 of article 6 of the constitution, omitting any reference to concurrent jurisdiction with the circuit court. The convention having before it the first resolution providing that the recorder's court should have concurrent jurisdiction with the circuit court in Cook county in all criminal cases, afterward adopted without any change section 26 as reported by the committee, omitting all reference to the question of concurrent jurisdiction with the circuit court, and at the same time containing the provision that all recognizances and appeals taken in said county in *559 criminal and quasi-criminal cases should be returnable and taken to the criminal court. From all this it would seem to appear with reasonable certainty that it was not intended that the circuit court should after the adoption of the constitution exercise any criminal jurisdiction. The recorder's court before that time also had civil jurisdiction, but there was included in section 26 the provision that the criminal court should have no jurisdiction in civil cases except in those on behalf of the people and incident to such criminal or quasi-criminal matters and to dispose of unfinished business, the "unfinished business," of course, referring to the unfinished civil business on the docket of the court at the date of the adoption of the constitution.
Section 26, in providing that the criminal court shall have the jurisdiction of a circuit court in all cases of criminal and quasi-criminal nature, refers not to the circuit court of Cook county but to the general jurisdiction of a circuit court as established by the constitution, which provides in section 12 of article 6 that the circuit courts shall have original jurisdiction in all causes in law and equity. These words mean, merely, that the criminal court shall have the same jurisdiction in all cases of criminal and quasi-criminal nature as a circuit court — not the circuit court of Cook county — and of themselves do not tend to show that such jurisdiction was exclusive, but, taken in connection with the other provisions of the section, prohibiting the return of recognizances and the taking of appeals in criminal and quasi-criminal cases to the circuit court, taking away the civil jurisdiction of the criminal court and making the jurisdiction exclusively criminal — all these, in the light of the action of the constitution in omitting the provision for concurrent jurisdiction with the circuit court, clearly show that it was not the intention that the circuit court of Cook county should continue to exercise any criminal jurisdiction but that the jurisdiction of the criminal court was intended to be exclusive. *560
There are no elected judges of the criminal court of Cook county. They are all selected from the judges of the circuit or superior court by their associates, and become, by virtue of their selection and by virtue of their offices,ex-officio judges of the criminal court. A judge of the circuit court is not a judge of the criminal court, ex-officio or otherwise, until he has been assigned to that service by the judges of the circuit court in accordance with the rules of the court regulating such assignment. No judge of the circuit court, unless so assigned, has the right to hold a term of the criminal court. In United States Life Ins. Co. v. Shattuck,
The above discussion is hardly adequate to the decision of the question in view of the case of Berkowitz v. Lester, supra, where two of the judges dissented in an opinion in which, as well as in the opinion of the majority of the court, the construction of the section of the constitution under consideration was discussed at some length. Counsel's failure to deny in argument that Judge Payne was one of the judges who by the terms of the constitution were authorized to hold the terms of the criminal court, or that he was one of the judges who by its language were ex-officio judges of that court, seems to have been regarded as justifying *563 the conclusion stated in the opinion that it is too clear for argument that his powers and jurisdiction in that court did not depend upon whether or not the several judges of the circuit and superior courts had designated him for that duty. The opinion also ignores United States Life Ins. Co. v. Shattuck,supra, and its statement that when a judge of the superior court holds a term of the criminal court he does so not in his official capacity of a judge of the superior court but in his capacity of ex-officio judge of the criminal court, the latter part of section 26 of article 6 of the constitution providing that when he is holding a term of the criminal court he "shall be ex-officio judge of said court." The question was therefore at least worthy of consideration and not to be disposed of as too clear for argument. The last clause of the next to the last sentence of section 26, "as may be determined by said judges, or provided by law," controls the whole sentence and not merely the preceding clause, "as nearly as may be in alternation." It was not merely the alternation of service which was to be "determined by said judges, or provided by law," but also the number and names of the judges. "Said judges," in this phrase, refers back to "the judges of the circuit or superior court of Cook county," all of whom participate in the determination of the number and names of the particular judges designated to hold the terms of court. The section then closes with the sentence, "Said judges shall be ex-officio judges of said court." The court is, of course, the criminal court. "Said judges" must refer to the judges so designated and not to the judges who made the designation. The subject matter of the preceding sentence is the designation of judges to hold the terms of the criminal court. That sentence authorizes the designation of the individual judges who shall hold those terms. The closing sentence says, "said judges shall beex-officio judges of said court" — that is, of the criminal court. The object of the construction of this section is to determine the intention expressed by the words *564 of the constitution, and we cannot attribute to the words of section 26 a meaning fraught with such possibilities of confusion and disorder as would exist if each of the judges of the circuit and superior courts of Cook county, who now number forty-eight, were authorized, whenever in his opinion public justice required it, to order a special venire to issue for a grand jury and proceed on his own initiative to administer the criminal law on his own responsibility, regardless of the rules which have been adopted by the whole body of the judges of those courts. No such construction is necessary or is in our judgment reasonable. The rules of court, where not in violation of the constitution or a statute, have the force of law and are binding on judges, officers of court and litigants.
In our judgment, based upon the principles announced inUnited States Life Ins. Co. v. Shattuck, supra, and the construction of section 26 of article 6 of the constitution, the only judges of the criminal court of Cook county are those judges of the circuit and superior courts of Cook county designated for that service from time to time in the manner prescribed by the rules of court to hold the terms of the criminal court. The case of Berkowitz v. Lester, supra, is out of harmony with that case and the conclusions reached in this opinion and is overruled. Greene v. People, supra, so far as inconsistent with this opinion, is also overruled. There are other cases in which the jurisdiction in criminal cases of the criminal court, of the circuit courts in counties other than Cook and in the municipal court of Chicago have been considered, but we have found no adjudication which in our judgment affects the conclusion we have reached. In Ferguson v.People,
The orders which the relator seeks by its petition to have expunged purport to be judicial orders of the criminal court, which could be performed only by a judge of the court while presiding in the court and exercising the judicial functions of the court. (Hake v. Strubel,
Accordingly, the demurrer to the petition is sustained, the petition is dismissed and the writ of mandamus is denied.
Writ denied.