The PEOPLE of the State of Illinois, Appellant,
v.
Joseph E. McCLURE, Appellee.
Supreme Court of Illinois.
*309 Lisa Madigan, Attorney General, Springfield, and Stewart J. Umholtz, State's Attorney, Pekin (Gary Feinerman, Solicitor General, Linda D. Woloshin, Christina M. Schlect and Leah C. Myers, Assistant Attorneys General, Chicago, and Norbert J. Goetten, Lawrence M. Bauer and Joe Mikula, of the Office of the State's Attorneys Appellate Prosecutor, Ottawa, of counsel), for the People.
Kevin F. Sullivan, Peoria, for appellee.
*310 OPINION
Justice FITZGERALD delivered the judgment of the court, with opinion:
The central issue before us is whether the savings provision set forth in section 13-217 of the Code of Civil Procedure (Civil Code) (735 ILCS 5/13-217 (West 2002)) serves to toll the limitations period set forth in section 2-118.1(b) of the Illinois Vehicle Code (625 ILCS 5/2-118.1(b) (West 2002)), such that a driver who voluntarily withdraws a petition to rescind a statutory summary suspension of a driver's license may refile the petition within one year. We allowed the State's petition for leave to appeal after the appellate court reversed the circuit court of Tazewell County's judgment and determined that section 13-217 of the Code of Civil Procedure tolled the limitations period of section 2-118.1(b) of the Vehicle Code.
BACKGROUND
On April 25, 2003, defendant was arrested for driving under the influence (DUI) under section 11-501(a)(2) of the Vehicle Code (625 ILCS 5/11-501(a)(2) (West 2002)). As mandated by statute, defendant's driver's license was summarily suspended due to his failure to submit to chemical testing. See 625 ILCS 5/11-501.1 (West 2002). On June 19, 2003, defendant filed a "Request for Hearing," under section 2-118.1(b) of the Vehicle Code. See 625 ILCS 5/2-118.1(b) (West 2002). The matter was set for hearing, and continued twice by agreement of the parties. A hearing did not commence, however, because defendant withdrew his petition to rescind on August 26, 2003.
The charge of DUI was ultimately amended to reckless driving, and defendant pleaded guilty to that offense on February 24, 2004. He was sentenced to two days in the county jail, one year of probation, and ordered to pay a $1,000 fine.
Defendant thereafter filed a second petition to rescind his statutory summary suspension on April 1, 2004, nearly one year after his arrest and more than seven months since withdrawing his first petition. In his second petition, defendant asserted that the withdrawal of his initial petition was tantamount to a voluntary dismissal contemplated by section 13-217 of the Code of Civil Procedure and, therefore, under that statute, he had one year to refile his petition. The State moved to strike defendant's petition as untimely. In its motion to strike, the State relied on the appellate court's decision in People v. Rodriguez,
Defendant appealed, and the appellate court reversed the trial court's judgment, declining to follow the Second District's opinion in Rodriguez. The appellate court disagreed with the Rodriguez court's determination that section 2-118.1(b) was ambiguous, and held that the plain language of the statute, when construed as a whole, requires an initial petition to rescind to be filed within the 90-day time limit, and likewise allows refiling of a voluntarily dismissed petition within one year.
ANALYSIS
Section 11-501 of the Vehicle Code (625 ILCS 5/11-501 (West 2002)) prohibits motorists *311 in this state from driving under the influence of alcohol or drugs. In addition to criminal sanctions, motorists arrested for DUI are subject to suspension of their driving privileges. 625 ILCS 5/11-501.1 (West 2002). Any person driving on a public roadway in Illinois who is arrested for DUI is deemed to have given implied consent to blood, breath or urine testing to determine whether the motorist is under the influence of an intoxicant. 625 ILCS 5/11-501.1(a) (West 2002). Section 11-501.1 of the Vehicle Code authorizes the Secretary of State to summarily suspend the driver's license of any motorist arrested for DUI who refuses to submit to chemical testing, tests above the legal alcohol concentration limit, or tests positive for an intoxicating substance. 625 ILCS 5/11-501.1(d) (West 2002). The statutory summary suspension takes effect on the forty-sixth day after the motorist receives notice of the suspension. 625 ILCS 5/11-501.1(g) (West 2002). We have previously stated that the issuance of a statutory summary suspension protects the public from impaired drivers and swiftly removes them from our roadways. People v. Moore,
Although motorists arrested for DUI are immediately subject to the statutory summary suspension of their drivers' licenses, they are not left without recourse. Indeed, section 2-118.1(b) of the Vehicle Code allows motorists to contest their suspensions. 625 ILCS 5/2-118.1(b) (West 2002). Section 2-118.1(b) provides:
"Within 90 days after the notice of a statutory summary suspension served under Section 11-501.1 [625 ILCS 5/11-501.1], the person may make a written request for a judicial hearing in the circuit court of venue. The request to the circuit court shall state the grounds upon which the person seeks to have the statutory summary suspension rescinded. Within 30 days after receipt of a written request or the first appearance date on the Uniform Traffic Ticket issued pursuant to a violation of Section 11-501 [625 ILCS 5/11-501], or a similar provision of a local ordinance, the hearing shall be conducted by the circuit court having jurisdiction. This judicial hearing, request, or process shall not stay or delay the statutory summary suspension. The hearings shall proceed in the court in the same manner as in other civil proceedings." 625 ILCS 5/2-118.1(b) (West 2002).
The petition filed by the motorist must state grounds upon which the summary suspension should be lifted. Schaefer,
It is within this framework that we now consider whether a petition to rescind *312 a statutory summary suspension refiled after the 90-day period set forth in section 2-118.1(b), in reliance on the one-year savings clause set forth in section 13-217 of the Code of Civil Procedure, is untimely and subject to dismissal. As this issue is purely a question of law, we review it de novo. People v. Ramirez,
The State asserts that the appellate court erred in ruling that defendant's rescission petition was improperly dismissed as untimely. The State argues that an ambiguity exists in section 2-118.1(b) of the Vehicle Code such that the statute can be construed to preclude the refiling of a rescission petition beyond the 90-day limitations period and can simultaneously be construed to authorize the refiling of a rescission petition after the 90 days have lapsed. The State urges that this ambiguity compels us to look outside the plain language of the statute and consider legislative history. In that regard, the State contends that the legislature did not intend for the Code of Civil Procedure's savings clause to be applied to section 2-118.1(b) of the Vehicle Code.
Defendant counters that the plain language of section 2-118.1(b) is clear and unambiguous. Defendant maintains that this court is bound by the statutory language and need not resort to further aids of statutory construction. Relying on this premise, along with the appellate court's holding in the instant case, defendant posits that the plain language of the statute states that rescission hearings are civil in nature and, consequently, are subject to the provisions of the Code of Civil Procedure, including the one-year savings clause set forth in section 13-217. Thus, defendant contends that his rescission petition was timely filed and improperly dismissed.
The cardinal rule of statutory construction is to ascertain and give effect to the intent of the legislature. People v. Donoho,
In light of these rules of statutory construction, we find that defendant's petition to rescind his statutory summary suspension was timely filed under section 13-217 of the Code of Civil Procedure and, therefore, should not have been stricken and dismissed by the trial court. As the State posits, the plain language of section 2-118.1(b) requires that an individual contesting a statutory summary suspension file a written request to obtain a hearing within 90 days of receiving notice of the summary suspension. The plain language, however, also dictates that summary suspension proceedings "shall proceed in the court in the same manner as in other civil proceedings." The use of the word "shall" evinces the legislature's intent to impose a mandatory obligation. See People v. Robinson, *313
Our holding is consistent with previous holdings of this court and the courts below. In People v. Orth,
"The statutory language very clearly indicates the civil nature of the summary suspension/implied consent hearing * * *. * * *
Additionally, the appellate court has consistently recognized this statutory intent by holding that the summary suspension hearing is a civil proceeding separate and apart from the criminal action of driving under the influence of alcohol. [Citations.] We agree with these decisions * * *."
Notably, the Gerke court cited approvingly to the appellate court case of People v. Kaegebein,
Notwithstanding the plain language of section 2-118.1(b), and the decisions of this court and the courts below, the State asserts that statutory summary suspension hearings are not necessarily subject to the rules and procedures of the Code of Civil Procedure. Specifically, the State maintains that the language referring to "civil proceedings" in section 2-118.1(b) could reasonably be interpreted to refer to the conduct of the hearing, in terms of burden of proof and evidentiary issues, but not address time limitations. The State, however, points to no basis for this limitation in the language of the statute. We reject the State's interpretation. To do otherwise would require us to read exceptions, limitations, or conditions into the statute which depart from its plain meaning. Martinez,
The State nevertheless maintains that their position in this regard is supported by the appellate court's decision in People v. Farrell,
The State further posits that the legislature could not have intended for the rules of civil procedure to apply with respect to section 2-118.1(b), because this interpretation would eradicate the need for procedural requirements in the Vehicle Code and would require that all cases falling under the Vehicle Code be conducted according to the procedures mandated under the Code of Civil Procedure. We once again reject the State's assertion, as it construes the statute far beyond the reaches of its language. The plain language of section 2-118.1(b) refers to rescission hearings alone, as civil proceedings necessarily subject to the Code of Civil Procedure. The statute cannot reasonably be construed to extend to all matters proceeding under the Vehicle Code. The State's claim in this regard is meritless.
The State next asserts that rescission proceedings are not civil actions but, instead, are administrative proceedings and, therefore, are not entirely subject to the provisions of the Code of Civil Procedure. In support of its position, the State points to this court's decision in People v. Moore,
In Moore, we unequivocally stated that summary suspension hearings are "civil in nature." Moore,
We note that the legislature amended section 2-118.1 of the Vehicle Code after the appellate court's decision in People v. Holmes,
As the appellate court pointed out in the instant case, upon adding the 90-day limitations period, the legislature had the opportunity to delete the portion of section 2-118.1 which stated that actions brought under the statute "shall proceed in the court in the same manner as in other civil proceedings." The legislature, however, left this portion of the statute intact. We cannot conclude that the legislature left this language in the statute, but did not intend its plain meaning.
The State asserts that the plain language of the statute does not support this finding, as the statute is ambiguous. In support, the State relies on People v. Rodriguez,
We do not find that an ambiguity exists in section 2-118.1(b), and thus overrule Rodriguez. The fact that the statute contemplates both a limitations period and a savings clause does not render it ambiguous. Indeed, these provisions are not mutually exclusive: a limitations period and a savings clause can exist simultaneously without creating a contradiction. We nevertheless recognize, as we have in the past, that "[t]he legislature has specifically directed that the license suspension proceedings are to be swift and of limited scope." Moore,
We now turn to the State's alternative argument. The State maintains that we should reverse the appellate court's decision, as defendant's petition to rescind his summary suspension should have been barred by the doctrine of laches. In support of this position, the State cites to the dissent in People v. Holmes,
The laches doctrine bars claims by those who neglect their rights to the detriment of others. People v. Wells,
CONCLUSION
For the foregoing reasons, we conclude that defendant's petition to rescind his statutory summary suspension was improperly dismissed as untimely. We therefore affirm the judgment of the appellate court reversing the trial court's judgment and remanding the matter for further proceedings.
Affirmed.
Chief Justice THOMAS and Justices FREEMAN, McMORROW, KILBRIDE, GARMAN, and KARMEIER concurred in the judgment and opinion.
