2023 IL App (5th) 220658-U NOTICE NOTICE Decision filed 10/26/23. The This order was filed under text of this decision may be NO. 5-22-0658 Supreme Court Rule 23 and is changed or corrected prior to the filing of a Petition for not precedent except in the
Rehearing or the disposition of IN THE limited circumstances allowed the same. under Rule 23(e)(1). APPELLATE COURT OF ILLINOIS
FIFTH DISTRICT ______________________________________________________________________________
JEFFREY S. VOGELPOHL, ) Appeal from the ) Circuit Court of Plaintiff-Appellant, ) Madison County. ) v. ) No. 21-CH-204 ) GREGORY HACKER, ) Honorable ) A. Ryan Jumper, Defendant-Appellee. ) Judge, presiding. ______________________________________________________________________________
JUSTICE McHANEY delivered the judgment of the court. Presiding Justice Boie and Justice Cates concurred in the judgment.
ORDER
¶1 Held: Where the plaintiff, Jeffrey S. Vogelpohl, was not required to exhaust state administrative remedies before bringing his United States and Illinois constitutional claims, the trial court did not lack subject matter jurisdiction and the trial court’s dismissal of the complaint with prejudice was improper. We reverse and remand for further proceedings.
¶2 The plaintiff, Jeffrey S. Vogelpohl (Vogelpohl), appeals from the trial court’s dismissal of
his complaint for lack of subject matter jurisdiction. Vogelpohl sued the Captain Bureau Chief of
the Firearms Services Bureau, Gregory Hacker, in his official capacity, seeking injunctive relief
from the revocation of his firearm owners identification (FOID) card. The trial court dismissed
Vogelpohl’s complaint with prejudice on the basis that the court lacked subject matter jurisdiction.
We reverse and remand.
1 ¶3 I. Background
¶4 The core issue on appeal in this case is whether Vogelpohl was required to exhaust his
Illinois administrative remedies before he could file this suit in chancery court. We include only
the relevant facts to the narrow issue before this court on appeal.
¶5 In his amended complaint, Vogelpohl alleged that in 2021 he applied for and received a
FOID card. In October 2021, Vogelpohl unsuccessfully attempted to complete a transfer of two
firearms from a licensed firearm dealer. The transaction was disapproved because his FOID card
had been revoked due to an alleged felony cannabis possession conviction in 1980. He was
officially notified of the FOID card revocation one week later.
¶6 In August 1980, the State charged Vogelpohl with possession of more than 500 grams of a
substance containing cannabis in Pike County, Illinois. In September 1980, Vogelpohl entered a
guilty plea for which he was sentenced to two years of probation. Vogelpohl was successfully
discharged from probation in September 1982. The probation to which Vogelpohl was sentenced
qualified as a “second chance” form of probation pursuant to section 10 of the Cannabis Control
Act (720 ILCS 550/10 (West 2020)). The candidates for this type of probation are first-time felony
offenders. Id. § 10(a). Upon fulfillment of the term of probation, the court must discharge the
person and dismiss the proceedings against him. Id. § 10(f). “[D]ischarge and dismissal under this
Section is not a conviction for purposes of disqualification or disabilities imposed by law upon
conviction of a crime ***.” Id. § 10(g).
¶7 Vogelpohl specifically alleged that he had a constitutional right to keep and bear arms
pursuant to the second amendment of the United States Constitution applicable to the states
pursuant to the fourteenth amendment. U.S. Const., amends. II, XIV.
2 ¶8 The State asked the trial court to dismiss Vogelpohl’s first amended complaint because he
only sought relief pursuant to the United States and Illinois Constitutions, and not under the Illinois
Firearm Owners Identification Act (FOID Act). Although Vogelpohl framed his claims in
constitutional terms, the State argued that the FOID Act was the appropriate vehicle for
Vogelpohl’s relief as what he ultimately sought was the return of his FOID card. Pursuant to the
FOID Act, the State argued that his claim or appeal should not have been filed in state court but
should have been filed directly with the Illinois State Police Director. Thus, the State contended
that Vogelpohl must exhaust administrative remedies before he seeks constitutional relief.
¶9 The trial court agreed with the State’s analysis and dismissed Vogelpohl’s complaint on
the basis that he had yet to exhaust administrative remedies, and thus, the court lacked subject
matter jurisdiction to reach the constitutional claims. Vogelpohl timely appealed this order.
¶ 10 II. Analysis
¶ 11 We review the question of the trial court’s subject matter jurisdiction on a de novo basis.
Miller v. Department of State Police, 2014 IL App (5th) 130144, ¶ 8; Harper Square Housing
Corp. v. Hayes, 305 Ill. App. 3d 955, 959 (1999).
¶ 12 The Illinois State Police maintains the authority to revoke a previously issued FOID card
if it determines that the person to whom the card was issued no longer meets the eligibility criteria
or did not meet the eligibility criteria when the card was issued. 430 ILCS 65/8(c) (West 2020). In
Illinois, a party may not seek judicial review of a FOID card revocation if administrative remedies
are available. Sedlock v. Board of Trustees of the Police Pension Fund of the City of Ottawa, 367
Ill. App. 3d 526, 527-28 (2006). Stated another way, administrative remedies must be exhausted
before a party may seek judicial review. Id. The exhaustion doctrine allows full development of
the facts before the administrative agency which has expertise on the subject matter.
3 ¶ 13 The version of section 10(a) of the FOID Act in effect at the time the defendant’s FOID
card was revoked plainly set forth two procedural paths for challenging the denial or revocation of
a FOID card. 430 ILCS 65/10(a) (West 2020). The first path required the rejected or revoked
applicant to appeal within the agency to the Director of the Illinois State Police. Id. However, if
the revocation was based upon specific crimes, including violations of the Illinois Cannabis
Control Act classified as a Class 2 felony or greater, then “the aggrieved party may petition the
circuit court in writing in the county of his or her residence for a hearing.” Id.
¶ 14 While we understand the foundation of the trial court’s order concluding that Vogelpohl
must first exhaust his administrative remedies, we conclude that the trial court’s order was in error.
Having reviewed Vogelpohl’s amended complaint, there is no question that his claim factually
began with his state efforts to administratively obtain his FOID card. However, after his FOID
card was revoked, Vogelpohl legally raised constitutional claims, stating: “At all times relevant,
Plaintiff has a constitutional right to keep and bear arms, including handguns, at least, in his private
home, for private self defense, under the Second Amendment, said Amendment being incorporated
against the states under the 14th Amendment.” As Vogelpohl correctly stated, the government
“bears the burden of establishing that laws that infringe on Second Amendment rights are
constitutional.”
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2023 IL App (5th) 220658-U NOTICE NOTICE Decision filed 10/26/23. The This order was filed under text of this decision may be NO. 5-22-0658 Supreme Court Rule 23 and is changed or corrected prior to the filing of a Petition for not precedent except in the
Rehearing or the disposition of IN THE limited circumstances allowed the same. under Rule 23(e)(1). APPELLATE COURT OF ILLINOIS
FIFTH DISTRICT ______________________________________________________________________________
JEFFREY S. VOGELPOHL, ) Appeal from the ) Circuit Court of Plaintiff-Appellant, ) Madison County. ) v. ) No. 21-CH-204 ) GREGORY HACKER, ) Honorable ) A. Ryan Jumper, Defendant-Appellee. ) Judge, presiding. ______________________________________________________________________________
JUSTICE McHANEY delivered the judgment of the court. Presiding Justice Boie and Justice Cates concurred in the judgment.
ORDER
¶1 Held: Where the plaintiff, Jeffrey S. Vogelpohl, was not required to exhaust state administrative remedies before bringing his United States and Illinois constitutional claims, the trial court did not lack subject matter jurisdiction and the trial court’s dismissal of the complaint with prejudice was improper. We reverse and remand for further proceedings.
¶2 The plaintiff, Jeffrey S. Vogelpohl (Vogelpohl), appeals from the trial court’s dismissal of
his complaint for lack of subject matter jurisdiction. Vogelpohl sued the Captain Bureau Chief of
the Firearms Services Bureau, Gregory Hacker, in his official capacity, seeking injunctive relief
from the revocation of his firearm owners identification (FOID) card. The trial court dismissed
Vogelpohl’s complaint with prejudice on the basis that the court lacked subject matter jurisdiction.
We reverse and remand.
1 ¶3 I. Background
¶4 The core issue on appeal in this case is whether Vogelpohl was required to exhaust his
Illinois administrative remedies before he could file this suit in chancery court. We include only
the relevant facts to the narrow issue before this court on appeal.
¶5 In his amended complaint, Vogelpohl alleged that in 2021 he applied for and received a
FOID card. In October 2021, Vogelpohl unsuccessfully attempted to complete a transfer of two
firearms from a licensed firearm dealer. The transaction was disapproved because his FOID card
had been revoked due to an alleged felony cannabis possession conviction in 1980. He was
officially notified of the FOID card revocation one week later.
¶6 In August 1980, the State charged Vogelpohl with possession of more than 500 grams of a
substance containing cannabis in Pike County, Illinois. In September 1980, Vogelpohl entered a
guilty plea for which he was sentenced to two years of probation. Vogelpohl was successfully
discharged from probation in September 1982. The probation to which Vogelpohl was sentenced
qualified as a “second chance” form of probation pursuant to section 10 of the Cannabis Control
Act (720 ILCS 550/10 (West 2020)). The candidates for this type of probation are first-time felony
offenders. Id. § 10(a). Upon fulfillment of the term of probation, the court must discharge the
person and dismiss the proceedings against him. Id. § 10(f). “[D]ischarge and dismissal under this
Section is not a conviction for purposes of disqualification or disabilities imposed by law upon
conviction of a crime ***.” Id. § 10(g).
¶7 Vogelpohl specifically alleged that he had a constitutional right to keep and bear arms
pursuant to the second amendment of the United States Constitution applicable to the states
pursuant to the fourteenth amendment. U.S. Const., amends. II, XIV.
2 ¶8 The State asked the trial court to dismiss Vogelpohl’s first amended complaint because he
only sought relief pursuant to the United States and Illinois Constitutions, and not under the Illinois
Firearm Owners Identification Act (FOID Act). Although Vogelpohl framed his claims in
constitutional terms, the State argued that the FOID Act was the appropriate vehicle for
Vogelpohl’s relief as what he ultimately sought was the return of his FOID card. Pursuant to the
FOID Act, the State argued that his claim or appeal should not have been filed in state court but
should have been filed directly with the Illinois State Police Director. Thus, the State contended
that Vogelpohl must exhaust administrative remedies before he seeks constitutional relief.
¶9 The trial court agreed with the State’s analysis and dismissed Vogelpohl’s complaint on
the basis that he had yet to exhaust administrative remedies, and thus, the court lacked subject
matter jurisdiction to reach the constitutional claims. Vogelpohl timely appealed this order.
¶ 10 II. Analysis
¶ 11 We review the question of the trial court’s subject matter jurisdiction on a de novo basis.
Miller v. Department of State Police, 2014 IL App (5th) 130144, ¶ 8; Harper Square Housing
Corp. v. Hayes, 305 Ill. App. 3d 955, 959 (1999).
¶ 12 The Illinois State Police maintains the authority to revoke a previously issued FOID card
if it determines that the person to whom the card was issued no longer meets the eligibility criteria
or did not meet the eligibility criteria when the card was issued. 430 ILCS 65/8(c) (West 2020). In
Illinois, a party may not seek judicial review of a FOID card revocation if administrative remedies
are available. Sedlock v. Board of Trustees of the Police Pension Fund of the City of Ottawa, 367
Ill. App. 3d 526, 527-28 (2006). Stated another way, administrative remedies must be exhausted
before a party may seek judicial review. Id. The exhaustion doctrine allows full development of
the facts before the administrative agency which has expertise on the subject matter.
3 ¶ 13 The version of section 10(a) of the FOID Act in effect at the time the defendant’s FOID
card was revoked plainly set forth two procedural paths for challenging the denial or revocation of
a FOID card. 430 ILCS 65/10(a) (West 2020). The first path required the rejected or revoked
applicant to appeal within the agency to the Director of the Illinois State Police. Id. However, if
the revocation was based upon specific crimes, including violations of the Illinois Cannabis
Control Act classified as a Class 2 felony or greater, then “the aggrieved party may petition the
circuit court in writing in the county of his or her residence for a hearing.” Id.
¶ 14 While we understand the foundation of the trial court’s order concluding that Vogelpohl
must first exhaust his administrative remedies, we conclude that the trial court’s order was in error.
Having reviewed Vogelpohl’s amended complaint, there is no question that his claim factually
began with his state efforts to administratively obtain his FOID card. However, after his FOID
card was revoked, Vogelpohl legally raised constitutional claims, stating: “At all times relevant,
Plaintiff has a constitutional right to keep and bear arms, including handguns, at least, in his private
home, for private self defense, under the Second Amendment, said Amendment being incorporated
against the states under the 14th Amendment.” As Vogelpohl correctly stated, the government
“bears the burden of establishing that laws that infringe on Second Amendment rights are
constitutional.”
¶ 15 The United States Supreme Court has held that an individual need not exhaust state
administrative remedies before seeking relief pursuant to the Civil Rights Act. Patsy v. Board of
Regents of the State of Florida, 457 U.S. 496, 501-12 (1982) (citing 42 U.S.C. § 1983 (1976 ed.,
Supp. IV)). The Supreme Court found that the United States government was established “as a
guarantor of the basic federal rights of individuals against incursions by state power.” Id. at 503.
The Court quoted its own decision in Mitchum v. Foster stating that the purpose of § 1983 of the
4 Civil Rights Act was “to interpose the federal courts between the States and the people, as
guardians of the people’s federal rights—to protect the people from unconstitutional action under
color of state law, ‘whether that action be executive, legislative, or judicial.’ ” Mitchum v. Foster,
407 U.S. 225, 242 (1972) (quoting Ex parte Virginia, 100 U.S. 339, 346 (1880)). The Supreme
Court also found that congressional intent provided strong evidence that exhaustion of state
administrative remedies is not a prerequisite to a civil rights action. Patsy, 457 U.S. at 507-12.
¶ 16 In accordance with United States Supreme Court precedent, we conclude that given the
structure of Vogelpohl’s constitutional claims, he was not required to exhaust administrative
remedies—to the extent that any existed in this case—before raising his constitutional claims in
court.
¶ 17 III. Conclusion
¶ 18 For the foregoing reasons, the judgment of the circuit court of Madison County is hereby
reversed and the cause is remanded.
¶ 19 Reversed and remanded.