People ex rel. Lower v. Donovan

29 Abb. N. Cas. 172
Procedural entryThis page is a short order in People ex rel. Lower v. Donovan. Read the opinion of the Court — 135 N.Y. 76
New York Court of Appeals·Decided October 15, 1892·Published

Opinion

ANDREWS, J.

On November 3, 1891, the day of the general election in this State, the Honorable A. R. LAWRENCE, one of the justices of the Supreme Court, upon application made to him at his chambers in the City of New York, in behalf of the relator, a duly qualified elector of the 7th election district of the 2nd assembly district of that city, made an order requiring the inspectors in that election district to show cause before him at the court house in said city at 3 o’clock P. M. of that day, why a writ of peremptory mandamus should not be issued commanding and requiring them to permit the relator to take the disability oath provided in the election law, and upon taking the oath to permit him to retire with a person of his selection to one of the booths and compartments provided in said election district, for the purpose of preparing his ballot, and to accept, receive, and deposit the ballot when prepared, etc. The affidavit upon which the application was made set out certain facts which, in the opinion of the learned justice, entitled the relator to this relief. The order to show cause was served on Donovan and the other inspectors within the time limited by the order, but they did not appear on its return, and thereupon, due proof of the service of the order having been made, and of other facts, the justice issued a peremptory writ following the order to show cause and commanding the inspectors to do and permit the things therein stated.

The peremptory writ was served on the inspectors before the closing of the polls and there is evidence tending to show that they refused to obey it. Subsequently application was made to the court at Special Term to punish the inspector for contempt in disobeying the writ and the proceedings resulted in an order adjudging the defendant Donovan guilty of contempt and imposing upon him a fine [175]*175of $250 and ten days imprisonment, as a punishment for his misconduct. The order was affirmed on appeal to the General Term and the present appeal is from the order of affirmance.

The order made by the Special Term is challenged on the ground that Mr. Justice LAWRENCE sitting at chambers, and not as a court, had no jurisdiction to issue the mandamus for the disobedience of which the order, punishing the defendant forcontempt was made. If this point is well taken it disposes of the case, and the orders of the .Special and General Terms must be reversed ; for it is a clear proposition that an order made by a court or judge in a proceeding of which the tribunal or officer had no jurisdiction and which is not merely irregular or erroneous, is not a lawful mandate, and disobedience thereto cannot be punished as a contempt (Code Civ. Pro. § 8 ; Eng. & Am. Ency. of Law, Vol. 3, p. 788, and cases cited).

The power to issue the writ of mandamus was at common law lodged exclusively in the court of King’s Bench because of the general superintendence it exercised over all inferior jurisdictions, and unless conferred by statute, could be exercised by no other court in the realm. It was one of the prerogative writs, and if any trace is to be found of an attempt by any other court to exercise the jurisdiction in the absence of a special statute conferring the authority, it was in the nature of a usurpation (Audley v. May, Poph. 176 ; 2 Blk. Com. 110; Moses on Mand. 16; People ex rel. Ryan v. Green, 58 N. Y. 296). The jurisdiction resided in the court and not in the individual judges, and the writ was issued in term and not in vacation.

In colonial times the supreme court of the Colony of New York, by the ordinances of 1699 and 1704, was invested with • all the powers of the courts of King’s Bench, common pleas and exchequer in England, and by the Revised Statutes (2 R. S. [3d. ed.] p. 259, § 1) the supreme court of the State was declared to be vested [176]*176with all the powers and jurisdiction which belonged to the supreme court of the Colony of New York, with certain exceptions not now material to be noticed. The same statutes regulated proceedings by mandamus, and while they do not expressly limit the power to issue the writ to the supreme court, or prohibit its being issued by a judge out of court, they assume that the power' inheres alone in this supreme jurisdiction is to be exercised by the court as such (2 Rev. St. 608, tit. Writs of Mandamus and Prohibition).

The statute of 1873, chapter 239, has been construed as conferring upon certain other courts the power to issue the writ (People ex. rel. Ryan v. Green, supra), and it may be conceded that the Legislature could authorize the writ to be issued by a judge in vacation, although it is difficult to see how such a jurisdiction could be conveniently exercised in view of the fact that the proceeding by mandamus is substantially an action which may involve pleadings, issues, trial and final judgment upon the right, unless the power of the judge acting in chambers and not .as a court should be restricted to issuing the writ returnable before the court, as is the procedure in some of the States.

The power of the judge to issue the writ involved in the present appeal is placed on section 770 of the Code of Civil Procedure, which declares that “ in the first judicial district a motion which elsewhere must be made in court may be made to a judge out of court, except for a new trial on the merits.” The argument is that an application for a writ of mandamus is under the Code a motion, and that the writ when issued is an order, and that although elsewhere it can only be issued on application to the court, and not by a judge out of court, nevertheless in the first district, under the section quoted, the motion may be made before, and the writ may be issued by, a judge at chambers. It is to be observed that section 770 of the Code .of Civil Procedure, is substantially a re-enactment [177]*177of section 401 of the Code of Procedure. But the former code expressly excepted mandamus proceedings from its operation (§ 471), and under that code a judge out of court in the first district had no power in mandamus proceedings other or greater than was possessed by any other judge in any other part of the State. It seems to be clear that under the former code a judge out of court could not have issued a mandamus, as that power by practice and the general understanding could be exercised only by a court, and could not be exercised by a judge out of court.

It remains to consider whether the Code of Civil Procedure has enlarged the power of a judge in the first district so as to enable him to issue a mandamus out of term or when not sitting as a court. Prior to the enactment of the Code of Civil Procedure, the writs of habeas corpus, mandamus, prohibition, etc., were regulated by statutes and the practice of the courts. In the Code of Civil Procedure these statutes and the practice thereunder were brought together and codified under the title “ Special proceedings instituted by State writ,” and the writs above enumerated were denominated State writs. The several writs are treated of in separate articles and the procedure .is regulated with great detail. The respective articles define how and when and by what authority writs to which they severally relate may be issued. The power to issue writs of habeas corpus was for obvious reasons conferred upon both the supreme court at Special or General Term, and upon judges out of court, and judicial officers authorized to perform the duties of a judge (§2017).

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People ex rel. Lower v. Donovan, 29 Abb. N. Cas. 172 (N.Y. 1892).

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