Leading appellate attorneys review the ten Illinois Supreme Court opinions handed down Thursday, November 21.

People v. Smollett, 2024 IL 130431

By Kerry J. Bryson, Office of the State Appellate Defender

In 2019, Jussie Smollett was charged with felony disorderly conduct for allegedly making a false police report claiming to have been the victim of a hate crime. Within a month of that charge being filed, an assistant state’s attorney appeared at a hearing in the case and represented to the judge that the State was moving to nol-pros the charges, “[a]fter reviewing the facts and circumstances of the case, including Mr. Smollett’s volunteer service in the community and agreement to forfeit his bond.” The prosecutor went on to state, “We believe this outcome is a just disposition and appropriate resolution to this case.” The State’s motion to nol-pros was granted, and Smollett’s $10,000 bond was ordered released to the City of Chicago.

Subsequently, a special prosecutor was appointed when questions were raised about the resolution of the charges and State’s Attorney Kim Foxx’s appointment of her first assistant upon her own recusal from the case. The special prosecutor conducted an independent investigation, and a special grand jury re-indicted Smollett on six counts of disorderly conduct based on the same conduct as the original, nol-prossed counts. The special prosecutor’s report had concluded that further prosecution of Smollett was in the interests of justice because he made numerous false statements to the police leading to the expenditure of significant resources by the Chicago Police Department, that Smollett had received more favorable treatment than similar defendants, and that the originally-filed charges were strong yet Smollett had obtained a dismissal with minimal consequences and without having to admit guilt.

Smollett sought dismissal of the new indictment on the basis of double jeopardy, the unauthorized appointment of the special prosecutor, and the fact that he previously had reached a nonprosecution agreement with the State’s Attorney’s Office which had been fully performed when he forfeited his monetary bond and performed community service and the State nol-prossed the original charges in open court. The trial court denied the motion to dismiss, and Smollett was tried and convicted.

In the appellate court, Smollett raised a variety of challenges, but the appellate court rejected all of them and affirmed. Today, the Supreme Court reversed outright, finding that Smollett had entered into a nonprosecution agreement and had fully performed his part of that agreement, thereby precluding further prosecution. In reaching this conclusion, the Court acknowledged that this case had “generated significant public interest and that many people were dissatisfied with the resolution of the original case and believed it to be unjust.” The fact that the original disposition was unpopular and the subject of public outcry, however, did not relieve the State of its obligation to honor the deal it made.

The Court rejected out of hand the notion that Smollett had simply voluntarily forfeited his bond without anticipation of any benefit in exchange. There was no evidence to support such a finding, and by all accounts everyone involved contemplated that the initial proceedings involved an agreement between Smollett and the State. The terms of that agreement were a complete dismissal of the original felony indictment in exchange for the bond forfeiture and community service and with no requirement that Smollett plead guilty or admit wrongdoing. And, the fact that the dismissal was accomplished via a nolle prosequi rather than a dismissal with prejudice was of no consequence. While there is a body of law holding that a pre-trial nolle prosequi is not a final disposition and generally will not bar a subsequent prosecution for the same offense, that doctrine is not absolute. The State may still be barred from re-prosecution where there is a showing of bad faith, harassment, or fundamental unfairness. And it would be fundamentally unfair to allow the State to renege on the deal with Smollett simply because it now regretted the deal it made. The Supreme Court reversed the decisions of the lower courts and remanded the matter with directions for the circuit court to enter a judgment of dismissal.

Glorioso v. Sun-Times Media Holdings, 2024 IL 130137

By Amelia Buragas, Illinois State University

On February 7, 2020, the Chicago Sun-Times published an article headlined “President’s Chicago tax appeal on Trump Tower is under investigation.” The article was the first in a series of articles, written by reporter Tim Novak, that reported on the activities of the Property Tax Appeal Board’s review of an appeal relating to the Chicago property. The articles reported that the Pritzker administration was investigating allegations that the executive director and general counsel of PTAB, Mauro Glorioso, pressured the agency’s staff to improperly grant a real estate reduction based on “political loyalty.”

In response to these articles, Glorioso filed a multi-count complaint alleging defamation per quod, defamation per se, false light invasion of privacy, and intentional infliction of emotional distress. After an initial motion to dismiss that is not related to this appeal, defendants sought dismissal of the lawsuit under the Citizen Participation Act, 735 ILCS 110/15, which is also known as the anti-SLAPP (Strategic Lawsuit Against Public Participation) statute. Generally, SLAPPs are lawsuits intended to prevent citizens from exercising their political rights or to punish those who have done so by using the “threat of money damages or the prospect of defending against the suits to silence citizen participation.”

The trial court denied the motion to dismiss, and the appellate court granted the defendants’ petition to appeal under SCR 306(a)(9). The First District, with one justice dissenting, affirmed, finding that the circuit court properly applied the test established by the Illinois Supreme Court in Sandholm v. Kuecker, 2012 IL 111443, when it determined that the plaintiff’s lawsuit was not a SLAPP and was not subject to dismissal under the Act. Defendants then filed a petition for leave to appeal, which the Illinois Supreme Court allowed. The court also allowed the Reporters Committee for Freedom of the Press and various other media organizations to file a joint amicus brief in support of the defendants.

In a unanimous opinion written by Justice Overstreet, the supreme court explained that following Sandholm, the appellate courts have consistently employed a three-part test to determine whether a lawsuit is subject to dismissal pursuant to the Act. Under this test, the moving party has the burden to show that 1) the movant’s acts were in furtherance of its rights to petition, speak, associate, or otherwise participate in government to obtain favorable government action, and 2) that plaintiff’s claims area solely based on, related to, or in response to the movant’s exercise of these rights.  If the defendant fails to meet their burden on either of the first two elements of the Sandholm test, then the lawsuit is not subject to dismissal as a SLAPP under the Act. If the movant meets its burden under the first two prongs, then the burden shifts to the plaintiff who must prove by clear and convincing evidence that the movant’s acts were not genuinely aimed at procuring favorable government action.

The supreme court explained that under the principles of stare decisis it was bound to follow Sandholm absent “special justification, good cause, or compelling reasons” and the court found no such reasons here. The court also noted that the legislature did not amend the Act in response to Sandholmand so “it will be presumed that it has acquiesced in the court’s statement of legislative intent.” With the Sandholm test left undisturbed, the supreme court moved on to analyze the defendant’s motion to dismiss, observing that few cases interpreting the Act have involved motions to dismiss brought by media defendants and that the Act itself does not contain any mention of the news media or the freedom of the press.

The court started its analysis by clarifying the legal standard used for the first prong. The court explained that uses an objective standard that asks whether an objective person would find the acts were reasonably calculated to elicit a favorable government action or outcome. Applying this analytical framework to the facts of the case, the supreme court concluded that the defendants could not meet their burden under the first prong of the Sandholm test. The court explained that while the articles published by the defendants were investigatory reports that uncovered “questionable activity by government acts,” they contained a flaw that was fatal to defendants’ motion. The articles contained “no language specifically requesting a response or reaction from a government entity or employee,” nor did they request that the public take any action. Thus, the court explained that an “objective reader” would conclude that the purpose of the articles was to report the news and not to elicit a particular action on the part of the government or the electorate. Thus, because the defendants’ articles were not in furtherance of government participation, the defendant failed to meet its burden under the first prong of the Sandholm test and the plaintiff’s claims were not barred by the Act. Because it resolved the issue at the first stage of the analysis, the court left for another day a question of whether the second prong of the Sandholm test requires defendants to show that the lawsuit is “meritless, retaliatory, or both.”

The supreme court concluded by cautioning that the outcome of this case should not be read to “minimize or understate the importance of the press and other news media in our democracy.” Rather, the court explained that it was simply holding that the Act specifically protects government participation and, as a result, “does not encompass all media reports on matters of public concern.” The court noted that the law is “replete with privileges and other protections” intended to safeguard the freedom of the press and that the outcome of this case does not minimize those protections.

Justice Rochford took no part in the decision.

Marathon Petroleum Co. v. Cook County Dep't of Revenue, 2024 IL 129562

By Amanda J. Hamilton, Konicek & Dillon P.C.

In a unanimous opinion written by Justice O’Brien, the Illinois Supreme Court in Marathon Petroleum Co. LP v. Cook County Department of Revenue addressed “whether monetary settlements of contracts for the sale of motor fuel (that do not involve the movement of fuel or connection to a retail sale) fall within the definition of ‘sale’ as set forth in [Cook County’s] Fuel Tax Ordinance.” By way of background, Cook County’s Fuel Tax Ordinance imposes a sales tax on the retail sale of gasoline and diesel fuel. However, the collection of the tax is not done at the point of the retail sale; rather, the obligation to collect the tax falls upon the distributors of the gasoline and fuel products.

Following an audit of Marathon Petroleum Company LP, the Cook County Department of Revenue determined that Marathon failed to collect tax on certain transactions and assessed tax, interest, and penalties against it. Marathon denied that it failed to properly collect and pay taxes, arguing that certain “book transfers” were not taxable distributor-to-distributor sales for purposes of the Tax Ordinance. The Department disagreed, instead finding that any “book transfers” to unregistered distributors where the “ship from” and “ship to” fields stated Chicago were taxable. The Department assessed more than $10 million in tax, interest, and penalties against Marathon. In response, Marathon stated that the alleged “sales” to unregistered distributors were in fact cash settlements of forward contracts which did not result in a change of ownership or movement of fuel and further, that the “Chicago” reference in the books referred to a region and not necessarily to a location within the City of Chicago.

The matter proceeded before an Administrative Law Judge who conducted a hearing and issued a decision upholding the Department’s assessments in their entirety. Marathon sought judicial review, and the circuit court reversed and vacated the ALJ’s decision. The Department then appealed, and the First District Appellate Court reversed the circuit court’s decision and affirmed in part and reversed in part the ALJ’s decision. Marathon filed a petition for leave to appeal to the Illinois Supreme Court, which was then granted. Multiple amicus curiae briefs were filed in support of Marathon’s position.

In determining the appropriate standard of review, the Illinois Supreme Court noted that an ALJ’s findings and conclusions as to questions of fact  are reviewed on a “manifest weight of the evidence” standard, while interpretations as to the meaning of a statute are reviewed de novo. When an agency’s decision on the legal effect of  a given set of facts is a mixed question of law and fact, it is reviewed under the clearly erroneous standard. In this case, the Illinois Supreme Court stated: “The issue here revolves around the ALJ’s findings regarding Marathon’s evidence and whether the ALJ properly found that Marathon presented insufficient evidence to rebut the Department’s prima facie case of taxability. Thus, we begin by addressing the Department’s prima facie case and the ALJ’s conclusion that Marathon failed to rebut the Department’s prima facie case due to some evidentiary shortcomings. Under the standards as stated above, factual findings will be reviewed under the manifest weight of the evidence standard, while the ALJ’s ultimate conclusion will only be reversed if clearly erroneous.”

In its analysis, the Illinois Supreme Court held that Marathon had waived any argument that the Department had failed to establish a prima facie case of taxability and further, that the ALJ’s implicit conclusion regarding this prima facie case was not clearly erroneous. Marathon’s documentation, where contracts listed a purchaser not registered as a distributor in Cook County, and invoice number, a fuel amount, and a destination of “Chicago,” were sufficient to establish the Department’s prima facie case.

However, the Illinois Supreme Court disagreed with the ALJ once the burden shifted to Marathon to overcome the prima facie case and show that the transactions were not subject to the Fuel Tax Ordinance. The Illinois Supreme Court discussed the evidence Marathon presented to the ALJ in detail and held that Marathon had, in fact, presented sufficient evidence that the cash settlements were financial exercises and did not transfer any ownership of fuel, such that rebutted the Department’s prima facie presumption of taxability. Specifically, Marathon had presented evidence and testimony from its motor fuel tax specialist who testified regarding their records and business practices, who explained that the “book transfers” on the documents were book out transactions, where a contract was financially settled without any product being physically moved or transferred. Further, when a product was moved, a meter ticket is generated and a different notation was listed on Marathon’s records, noting a carrier name, volume of fuel, and specific location. Marathon had also presented evidence from a commercial analyst manager who further explained Marathon’s logistical processes, the forward contract process, and how book outs are used in the fuel industry. Last, Marathon presented evidence from a finance and economics expert, who explained book out transactions as settling forward contracts, which do not involve the actual delivery of the product. 

Based on this finding, the Illinois Supreme Court explained that the burden then shifts back to the Department to prove its case of taxability by a preponderance of competent evidence. However, because the ALJ’s analysis stopped after finding that Marathon had failed to rebut the prima facie case, the Illinois Supreme Court remanded the matter to the ALJ to make findings of fact and reach the determination of whether the Department has proven its case of taxability. The Illinois Supreme Court noted, however that: “We are specifically finding that the ALJ’s determination, based upon the evidence submitted at the evidentiary hearing, was incomplete and are remanding solely for a completion of that process. There is no basis for the ALJ to begin the hearing process anew or to accept additional evidence.”

Habdab, LLC v. County of Lake, 2024 IL 130323

By Amanda J. Hamilton, Konicek & Dillon P.C.

Justice Theis delivered a unanimous opinion from the Court regarding a developer’s challenge to fees imposed on it pursuant to an intergovernmental agreement, finding that the intergovernmental agreement did not violate the Road Impact Fee Law and likewise did not violate the unconstitutional conditions doctrine.

On December 1, 2009, Lake County and three municipalities (the villages of Mundelein, Grayslake, and Libertyville) entered into an intergovernmental agreement called the “Central Lake County Transportation Improvement Intergovernmental Agreement” (“IGA”) to establish construction funding for future highway improvements in the central Lake County Area. Specifically, the agreement provided that the County would agree to design and construct road improvements in exchange for a portion of the construction costs being reimbursed by fees collected from developers within the area upon the occurrence of a “triggering factor.” Under the IGA, annexation was one of the “triggering factors.” The parties all agreed that the developers of any future commercial or residential developments would be collectively assessed 50% of the construction costs of the road improvements while the County would bear the costs of the remaining 50%. The parties established six “Highway Improvement Areas” and created a schedule of fees for each subarea. The IGA further provided that, upon annexation of any unincorporated territory within a Highway Improvement Area, the responsible village would require an annexation agreement which would include the payment of fees in accordance with the IGA before any “final development approval” would be granted.

Subsequently, Plaintiff Habdab, LLC and the Village of Mundelein entered into three annexation agreements located within a Highway Improvement Area. Plaintiff filed a declaratory judgment action against the County and against the Village, arguing that the IGA fees did not meet the requirements set forth in the Impact Fee Law and therefore it was not required to pay any IGA fees relating to its annexation agreements. The plaintiff also argued that the IGA fees were unenforceable under the unconstitutional conditions doctrine, as it coerced landowners to pay the fees as a condition of receiving certain land use benefits from the Village.

The circuit court granted summary judgment in favor of the County, and the Second District Appellate Court affirmed, holding that the IGA fees did not constitute “road improvement impact fees” under the Impact Fee Law and further holding that the doctrine of unconstitutional conditions did not apply because there was an “essential nexus between the condition burdening rights and a legitimate state interest” and that there was “rough proportionality between the burden on the individual and harm the government seeks to remedy through the condition.”

In affirming the Appellate Court’s decision, the Illinois Supreme Court stated: “The IGA fees do not constitute ‘road improvement impact fees’ under the plain language of the Impact Fee Law. The IGA provides that payment of the highway improvement fees is a condition of annexation into the Village, while as noted above the Impact Fee Law defines ‘road improvement impact fees’ as fees imposed ‘as a condition to the issuance of a building permit or a certificate of occupancy in connection with a new development.’” The Court further noted that the Municipal Code specifically allows municipalities to enter into annexation agreements with owners of land in unincorporated territory and further permits those municipalities to have agreements providing for contributions of either land or monies to that municipality or government entity having jurisdiction over that land. The Supreme Court held that the Impact Fee Law’s specific statutory language was limited to “only fees levied as a condition to the issuance of either a building permit or certificate of occupancy,” such that the fees imposed on the plaintiff vis-à-vis the annexation agreements did not violate the Impact Fee Law. 

The Illinois Supreme Court likewise rejected the plaintiff’s argument that the fees violated the unconstitutional conditions doctrine, agreeing that there was an “essential nexus” between the condition burdening rights and a legitimate state interest, with the need to minimize traffic congestion being a legitimate state interest. Likewise, the Illinois Supreme Court held that “no precise mathematical calculation is required under the rough proportionality standard,” and that the schedule of fees for each subarea of the six Highway Improvement Areas was sufficiently individualized such that the second factor was met and the unconstitutional conditions doctrine was inapplicable.

Editor's Note: The remaining opinion summaries will be added to this post as they are received.