Lead Opinion
— A writ of certiorari was issued from this court to respondent, as judge of the circuit court of the city of St. Louis, requiring him to send up the records and proceedings in the case of State ex rel. Reid v. Walbridge then pending before him. In obedience to said writ the records have been filed in this court.
It appears from the records that charges had been preferred before Walbridge, as mayor, against Greorge B. Reid, as commissioner of public buildings of the city of St. Louis, which had been heard and determined by him on the thirty-first day of January, 1894. That proceeding resulted in an order removing the said Reid from office.
On the first day of February, 1894, upon the application of the said Reid a writ of certiorari was issued by
To the writ the mayor made return and on the twelfth day of February, 1894, the relator Reid filed a motion, in said eircuit court to quash the proceedings had before the mayor.
Pending the motion, this writ was issued by two of the judges of this court in vacation on the twentieth day of February, 1894.
Amotion was filed to quash and dismiss the writ, on the ground, among others, that the cause was still pending and undetermined in said circuit court, and no final judgment had been rendered therein. This motion, and the ease on its merits, were argued orally together, and briefs have also been furnished on both. The view we take of the law renders it necessary to consider only the motion.
It is said by relator, that the order of the circuit court, in the nature of a supersedeas, was beyond its power and jurisdiction, and, though merely interlocutory in its character, afforded sufficient authority for the issuance of the writ; that the writ can properly issue at any stage of the proceedings, if necessary, in order to keep the court within its jurisdiction. On the other hand respondent argues -that the writ only operates as a means of securing a review of the proceedings of an inferior court or tribunal and can only issue after a' final determination of the case.
The writ was thus issued, not only for the purpose of reviewing the proceedings of the lower court, as a writ of review after final judgment, but as a means for removing the entire cause for hearing and determination in another court. But it is said by Judge Napton in Railroad v. Morton,
The writ, at common law, was not one of right, but was allowed or refused in the discretion of the judge or chancellor. Harris on Certiorari, sec. 4.
Unless the use of the writ is regulated by statute, which is the case in some of the states when directed to an inferior court or tribunal, it is only used as a writ of review. In such case its use is that of a remedy and not of an action. The application is still addressed to the sound discretion of the judge authorized to issue the writ. It does not issue as a matter of right, unless under some mandatory statute. The courts of each jurisdiction can, and do, adopt their own rules of practice in respect to such discretionary matters, and are not bound by the rules of the common law or courts of other states.
While, according to the ancient common law, now much modified by statute in England, the writ
It has been the uniform practice in this state, and generally in other states of the Union, in the absence of statutory regulation, only to issue the writ for the purpose of reviewing the final determination and adjudications of inferior courts and other tribunals when acting judicially. Harris on Certiorari, sec. 194; 2 Spelling’s Extraordinary Relief, sec. 1894; State ex rel. v. Edwards,
Whatever may be the power of the superior court, according to the rules of the common law, to keep its hand upon those over which it has supervisory control, and guide them in each of their rulings in the progress of the cause, this court has ever refused, by writs of mandamus, prohibition or certiorari to exercise it; but, when the court or tribunal has jurisdiction to proceed correctly, the right to commit errors, and the opportunity to make corrections themselves has never been denied. State ex rel. v. Court of Appeals,
The circuit courts of the state are, under the constitution and laws of the state, possessed of original common law jurisdiction, and have inherent authority, in all proper cases, to issue the writ of certiorari. This
The circuit court having jurisdiction to hear and determine the matter before it, this court will not undertake to direct what rulings it shall make or what judgment it shall render.
We think the writ prematurely issued and order the same quashed and the records returned to said circuit court for the hearing and disposition of the cause.
Dissenting Opinion
— The writ of certiorari is available in this court, in my opinion, to quash action by a trial court in excess of the jurisdiction of the latter, where the remedy by appeal or error is wholly inadequate (as to an order during the pendency of a cause).
In this case, the order in the nature of a supersedeas, in the circuit court, had the effect to put Mr. Reid again into the office, notwithstanding the judgment of removal by the mayor and the notice thereof to Mr. Reid. That order of supersedeas can not be gotten rid of during the proceedings in the circuit court, for the latter has refused to vacate it on motion.
If the order is in excess of the power of that court, in the case there, the order should be quashed.
Whether or not the circuit court, in such circumstances, had authority or jurisdiction to supersede the mayor’s judgment, or rather to reverse it, by reinstating Mr. Reed in office, pending the proceedings (and, perchance, during the subsequent appeal), is a question
In my view, that question should be considered and determined on its merits; and hence this respectful dissent to the summary dismissal of the writ here, on motion.
Dissenting Opinion
— Unable to concur in the majority opinion, I will give a resume of the pertinent facts relating to the rise, progress and ultimate demise of this case, and then set forth some reasons which occur to me why the action of the majority in quashing the writ of certiorari should be held unwarranted on the facts and on the law.
At the outset it may be remarked that no return has been made to the writ herein. This case had its origin in charges preferred by Robert E. 'McMath, president of the board of public improvements, against George B. Reid, commissioner of public buildings, which charges showed upon their face that Reid had been guilty of certain flagrant derelictions from official duty. Of these charges, Walbridge, the mayor, had duly notified Reid on August 14, 1893, and was about to proceed to try him in a summary way, as pointed out by, and provided for in, the charter of the city, and would have done so, but for the interposition of original proceedings on behalf of Reid, instituted in division number two of this court, in which a rule was granted on the mayor to show cause why a writ of prohibition should not issue to prevent him from trying Reid on the charges preferred. Upon the hearing we held that the mayor was in the right, and within the bounds of his duty, in proceeding to try Reid. See State ex rel. v. Walbridge,
Thereupon Reid moved for a rehearing, and to transfer the cause to the court in banc, whereby the final determination of the cause was delayed until the nest term thereafter, when the motions were denied. After a delay of some five months from the time Reid was notified, produced by prohibitory proceedings instituted by Reid, the mayor was allowed to proceed to bring the delinquent official to trial, which resulted in the conviction of Reid on ample evidence of most flagrant official delinquencies, as specified in the charge preferred by McMath. Indeed, the answer of Reed to those charges substantially admits their truth, and then undertakes to justify his action on the ground that, though he violated plainly worded ordinances of the city, yet that he hacl the right to do so in the exercise of “his discretion as an architectNot only does the answer of Reid make these virtual admissions of his guilt, but the evidence shows in the clearest possible light that in defiance of the plainest prohibitions of the city charter and ordinances, he altered contracts made with the city and substituted clauses and specifications of his own therefor, and, after doing this, he certified that the work contracted for, and which had not been done, had been done, and drew a voucher for the whole contract price. The trial of Reid on the charges preferred ended on January 31, 1894, and resulted, of' course, in a richly deserved judgment of removal, and the mayor thereupon issued his notice of the order of removal to Reid, which was served on the same day, and then complying with section 7 of article 4 of the city charter, the mayor, on the same day, notified the city council that he had removed Reid, stating the causes therefor. Under the section mentioned it was the duty of the council, upon being thus notified,
On the second day of February, 1894, the circuit court issued its writ of certiorari to the mayor, and entered an interlocutory order or judgment prohibiting the mayor from taking any further steps in the matter of the removal of Reid until the judgment of the court should be had in the premises, and required the relator Reid, in that proceeding, “to give bond” “conditioned according to the provisions of section 2249, Revised Statutes, 1889, in relation to-bonds in case of appeals.” Bond was accordingly given, approved and filed. The section in question relates solely to bonds being given when appeals are taken from a final judgment of a circuit court to some appellate court; it has no other application or meaning.
Two writs of certiorari were known at common law. The former took up the record or proceedings at any stage of the case to the court from whence the writ issued, the latter after final judgment, and was therefore,in the nature of a writ of review. We have in this state no statutory regulation of such writs, save in the case of forcible entry and detainer, and of consequence we are left to the rules of the common law as to the manner of the issuance of the writ and all of its incidents and consequences. “It was a distinguishing feature of this remedy at common law [certiorari] that it was the appropriate writ for the removal of a cause before judgment, while the writ of error removed it afterwards.” 2 Spelling’s Extr. Relief, secs. 1894, 1914, 1917. “A certiorari lies, in general, for the removal of all causes from inferior courts, whether the defendant has been proceeded against therein by capias or other process, and it will lie to remove an ejectment from an inferior court. This writ may be sued out before, or, in some cases, after, judgment; and lies in civil actions
In Hannibal & St. J. R’y Co. v. State Board, 64 Mo. loc. cit. 308, it is said: “We have no statute in this state regulating the practice in proceedings by certiorari, and are to look to the common law for a guide in such cases.” To the same effect see In re Saline County Subscription, 45 Mo. loc. cit. 53. Adopting this undoubtedly correct view that the common law rule must prevail where none is provided by statute, the right of relator to sue out the present writ before any final action of the circuit court, can not be doubted. This was the course pursued in Rector v. Price,
Thus, in certiorari: Railroad v. Morton,
Thus in prohibition: Where the circuit court attempted to exercise judicial authority over which it had no jurisdiction, this court restrained it by a writ of prohibition. Vitt v. Owens,
Thus in mandamus: State ex rel. v. Rodman,
The recent case of State ex rel. v. Slover,
These cases abundantly show that this court has jurisdiction, and that it has not hesitated to exercise it in cases like the present. The case of Britton v. Steber,
The next point for determination is, what was the force and effect of the interlocutory order or judgment entered by respondent. It is claimed for it that it operated as a supersedeas. This, however, is a mistake. The rule, as I understand the authorities to announce it, is this: Where the judgment rendered has “been begunto be exemted,,} acertiorari subsequently issued will not operate to stay the judgment or its enforcement.. Patchin v. Mayor, etc.,
But it is said that this court has a discretion in issuing a writ of certiorari. This is true, but it seems that this discretion ends after the writ has been 11 duly and legally issued.” 2 Spell. Extr. Relief, section 1907. But, granting that the issuance of the writ is discretionary, what is the nature of that discretion1? Touching this point, it is elsewhere said: “Writs of certiorari, it has been held, are grantable only at the discretion of the court, and are not allowed 1 exdebito justifies.’ Discretion, however, when exercised by a court, does not mean precisely what the word in common parlance may seem to import. A legal discretion is implied; a discretion to be exercised according to the rules of law. If the rights of a party have been infringed to his detriment, by the erroneous doings of an inferior tribunal, he may justly claim redress; and it will be the duty of a court to afford it to him.” Inhabitants of Cushing v. Gay,
In other words, the same rule prevails on applications for certiorari as does in petitions for specific performance, concerning which a similar view is taken and similar language used. “By this is meant, not the exercise of an arbitrary and capricious will governed by the mere pleasure of the court. * * * When a contract concerning real estate is valid, unobjectionable in its nature and in the circumstances connected with it, and capable of being enforced, and it is just and proper that it should be fulfilled, it is as much a matter of course for a court of equity to decree a specific per
But it is urged that, as the right of appeal exists from any judgment which the circuit court might render, this amounts to a bar to relief through the medium of certiorari. Generally this is true, but not always. “This rule is subject to the qualification that such other means of redress, in order to constitute a bar, should be adequate to meet the necessities of the case. Thus the right of appeal, while it is generally hold an adequate means of redressing mere errors committed in the exercise of jurisdiction, may be inadequate to redress or prevent a wrong committed in the absence or excess of jurisdiction.” 2 Spell. Extr. Relief, secs. 1918, 1963; Railroad v. Brannum, 11 S. Rep. (Ala.) 468; Vaughn v. City, 37 N. W. Rep. (Wis.) 809; King v. Inhabitants, 4 Maule & S. 378.
In this instance the remedy by appeal would be grossly inadequate, seeing that the summary proceedings instituted by the mayor were instituted for the express purpose of a speedy trial and removal of Reid, if found guilty of the charges'preferred, which proceedings were held valid by us, and that the mayor was proceeding within the strict bounds of his legitimate authority. State ex rel. v. Walbridge, 24 S. W. Rep. (Mo.) 457. .Those proceedings, as before stated, were begun on the fourteenth of August, 1893. They were arrested, however, by a writ of prohibition of this court, and thus suspended until January 8,1894, when the writ of prohibition was finally denied, and the trial of Reid before the mayor was allowed by us to begin, and terminated on the thirty-first day of that month by the removal of Reid. Now it must be obvious that these proceedings-instituted by the mayor over a year ago, and which were completed over eight months ago at the present
In giving reasons for quashing the writ of certiorari herein, allusion has been made to State ex rel. v. Cooper County Court,
