Winona School of Professional Photography v. Department of Revenue

570 N.E.2d 523, 211 Ill. App. 3d 565, 156 Ill. Dec. 47, 1991 Ill. App. LEXIS 386
CourtAppellate Court of Illinois
DecidedMarch 18, 1991
Docket1-88-3385
StatusPublished
Cited by5 cases

This text of 570 N.E.2d 523 (Winona School of Professional Photography v. Department of Revenue) is published on Counsel Stack Legal Research, covering Appellate Court of Illinois primary law. Counsel Stack provides free access to over 12 million legal documents including statutes, case law, regulations, and constitutions.

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Winona School of Professional Photography v. Department of Revenue, 570 N.E.2d 523, 211 Ill. App. 3d 565, 156 Ill. Dec. 47, 1991 Ill. App. LEXIS 386 (Ill. Ct. App. 1991).

Opinion

PRESIDING JUSTICE MANNING

delivered the opinion of the court:

The appellant, Winona School of Professional Photography (hereinafter Winona), is an Illinois not-for-profit corporation wholly owned by the Professional Photographers of America, a trade association. Since 1984, Winona has operated as a private photography school out of a facility in Mt. Prospect, Illinois. In March 1985 Winona applied for a real estate tax exemption that was denied by the Illinois Department of Revenue (hereinafter Department) on October 31, 1985.

Thereafter, Winona filed a request for a formal hearing for review of the Department’s denial, and an administrative hearing was held in May 1986. Winona presented several witnesses at the hearing: Robert Evans, a private consultant and professor of education at University of Illinois at Champaign-Urbana; William Hazard, a professor at Northwestern University; Ed Delmastro, an instructor in the photography technical program within the School of Technical Careers at Southern Illinois University (Southern) and instructor at Winona; Robert Becker, chief executive officer at Winona; Elisabeth Landis, an employee at Lexecon; and Philip Kummerer, director of finance at Winona. Mr. Evans and Mr. Hazard, who were recognized as expert witnesses, testified that although technical and vocational education in Illinois effectively began in 1917 during World War I, it has only recently become a part of the scheme of post-secondary public education in the State and that Winona offers a course of study which currently fits in that scheme. Evans testified that there are about 47 community colleges, each offering a substantial vocational and technical program. Additionally, since 1965, which marks the commencement of the development of community colleges, technical institutes have been established at Southern Illinois University and at the University of Illinois. Evans further testified that technical education within certificate programs at public institutions is .designed exclusively to provide technical skills and that Winona duplicates the best of Illinois’ public technical programs.

Professor Hazard testified that the photography programs at several colleges parallel the program at Winona and that there is no difference in the educational objectives of the schools. Hazard prepared a chart that compared Winona’s offerings with various State-supported- photography programs, defined as a “sequence of courses” that build one upon the other.

Becker testified that Winona offers courses in management, marketing and sales as well as photography courses and that the course of instruction is .sequential. The average length of a class at Winona is one week; however, a one-week course at Winona provides as many hours of instruction as semester courses offered by public institutions because the courses begin at 8 in the morning and last into the night, each day. Becker stated that the teaching technique at Winona is a combination of lectures and hands-on instruction, and the school offers recognition in the form of a certificate of completion, rather than a degree.

Delmastro testified that the course content of the Winona program is essentially the same as the skills and training that would be required to complete the Photographic Production Technology (hereinafter PPT) program at Southern. A student who has completed a course at Winona may obtain credit or a waiver from taking a required course from Southern.

Following the hearing, the administrative law judge found that Winona’s witnesses’ testimony was of “dubious value,” yet she concluded that Winona qualified as a school and recommended tax exemption. The Department declined to follow the law judge’s recommendation, finding that Winona failed to prove it was a school and denied Winona’s claim for a property tax exemption.

Winona then filed a complaint for administrative review in the circuit court of Cook County on May 8, 1987. Thereafter, Winona’s claim for an exemption for 1985 was consolidated into the 1984 case. The circuit court affirmed the decisions of the Department denying Winona’s applications for exemptions for 1984 and 1985.

On appeal, Winona asserts that its property is exempt from taxation because it operates a school within the meaning of section 19.1 of the Revenue Act of 1939 (hereinafter Act) (Ill. Rev. Stat. 1985, ch. 120, par. 500.1). The Department contends that the issue is properly phrased as whether the trial court properly affirmed the Department’s denial of Winona’s request for exemption on the ground that such denial was not against the manifest weight of the evidence.

We initially preface our discussion with the observation that no disputed testimony or documentary evidence was presented at the hearing. Winona’s witnesses testified as to how they believed Winona fit into the definition of a school, and although their testimony was characterized as “dubious,” it was not challenged for truthfulness or accuracy.

Because the relevant facts are uncontradicted, “[t]he issue before us is not whether the Department’s decision was against the manifest weight of the evidence. When the facts upon which a decision of tax exempt status rests are undisputed, whether property is exempt is a question of law.” (Cook County Masonic Temple Association v. Department of Revenue (1982), 104 Ill. App. 3d 658, 660, 432 N.E.2d 1240.) Thus, the decision as to whether the property is exempt “depends solely upon an application of the appropriate legal standard to the undisputed facts.” Illinois Central Gulf R.R. Co. v. Department of Local Government Affairs (1983), 95 Ill. 2d 111, 129, 447 N.E.2d 315.

Article IX, section 6, of the 1970 Illinois Constitution provides in relevant part:

“The General Assembly by law may exempt from taxation only *** property used exclusively for *** school, religious, cemetery and charitable purposes.” (Ill. Const. 1970, art. IX, §6.)

Accordingly, pursuant to section 19.1 of the Act, the legislature has exempted “all property of schools, *** including the real estate on which the schools are located and any other real property used by such schools exclusively for school purposes.” Ill. Rev. Stat. 1985, ch. 120, par. 500.1.

As a result, the courts have strictly construed statutes granting tax exemptions (Telco Leasing, Inc. v. AUphin (1976), 63 Ill. 2d 305, 347 N.E.2d 729), and all questions regarding the tax exempt status of property are resolved in favor of taxation. (Board of Certified Safety Professionals of the Americas, Inc. v. Johnson (1986), 112 Ill. 2d 542, 494 N.E.2d 485; Highland Park Hospital v. Department of Revenue (1987), 155 Ill. App. 3d 272, 507 N.E.2d 1331; Illinois Cereal Mills, Inc. v. Department of Revenue (1976), 37 Ill. App.

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570 N.E.2d 523, 211 Ill. App. 3d 565, 156 Ill. Dec. 47, 1991 Ill. App. LEXIS 386, Counsel Stack Legal Research, https://law.counselstack.com/opinion/winona-school-of-professional-photography-v-department-of-revenue-illappct-1991.