MURRAY, J.
Two seats were up for election in 2010 on the Highland Park School District Board of Education, one of which was held by plaintiff, Robert Davis. Plaintiff, with Debra J. Humphrey and defendant, Clifford Chatman, was one of seven candidates vying for the school board positions. When plaintiff finished in third place behind defendant, he sought and obtained a judgment granting a writ of quo warranto. As a consequence, defendant's election victory was invalidated and plaintiff was placed into office. Defendant appeals as of right both the order granting plaintiff leave to file the complaint of quo warranto
On January 20, 2010, defendant signed an affidavit of identity with the Highland Park clerk in order to run for one of two school board positions in the upcoming election.
Plaintiff, believing that defendant did not reside at 56 Louise and therefore did not meet the residency requirements to be on the ballot for election as a school board member, took steps to initiate quo warranto proceedings against defendant and sought a temporary restraining order to prevent defendant from tampering with his residency records. The court granted plaintiff's application for leave to file a complaint for quo warranto and held an evidentiary hearing on the application.
An evidentiary hearing was held over three days where both parties presented witnesses and submitted exhibits. The crux of the matter was whether defendant resided at 56 Louise for 30 days prior to the February 9, 2010, filing deadline. Plaintiff's proofs, which intended to show that the house was unoccupied during the relevant times, primarily involved witnesses' observations of the property, the status of the utilities for the property, and defendant's own address filings with the state.
Plaintiff's eyewitnesses who testified about the condition of the house were John Holloway, Ralph Kinney, and plaintiff himself. Holloway, a retired police chief for the city of Highland Park who lived four houses away from 56 Louise, stated that he saw snow accumulate throughout the winter and first saw signs of occupancy in April 2010. Plaintiff also traveled by the premises over a hundred times (many of which were between January 20 and February 9, 2010) and never saw any lights or other signs of occupancy. For his part, Kinney testified that over the course of a three-week period in May, he never saw any people but did note that televisions or lights were on at nighttime and that the same two vehicles would be present in front of the house regardless of when he visited. Both plaintiff and Kinney testified that they never saw garbage taken to the curb on the neighborhood's garbage pickup day. Furthermore, plaintiff testified that, after a May 11, 2010, school board meeting, he followed defendant to a residence located at 17315 Lincoln Drive in Southfield.
Plaintiff also presented evidence that the house lacked the necessary and usual utilities that a home would need in order to be habitable. Pashko Memcevic, a DTE Energy employee, testified that the last known customer for 56 Louise was Bianca Heard and that the service was terminated on October 13, 2008. Thus, DTE was not actively supplying electricity or gas to 56 Louise.
Furthermore, plaintiff presented the testimony of Khalaila Hines, an employee in the Highland Park Water Department. According to Hines, the water to 56 Louise was turned off on November 25, 2008, and her records showed no water activity any time after the shutoff. Hines indicated, however, that even though there should have been no water being supplied to 56 Louise, it would have been possible for water to be supplied illegally if someone had the proper tools and turned the water on at the street.
Plaintiff also relied on the addresses that defendant used in some state records to show that defendant did not reside at 56 Louise. Although defendant changed his voting registration to reflect the 56 Louise address on January 20, 2010, defendant's concealed weapons permit and vehicle registration still reflected, as of the evidentiary hearing, an address of 17315 Lincoln Drive in Southfield.
Defendant, on the other hand, claimed that he, indeed, started residing at 56 Louise in late October 2009. Regarding his prior residential history, defendant testified that he had lived at 17315 Lincoln Drive in Southfield from June 2008 through November 2008, 231 Ferris in Highland Park from November 2008 through April 2009, 11745 Ten Mile Road #202 in Warren from April 2009 through October 2009, and finally at 56 Louise in Highland Park in October 2009.
While defendant indicated that he started living at 56 Louise in late October 2009, he was not evicted from his Warren apartment until December 28, 2009. Defendant explained that although he had already moved out two months earlier, the Warren apartment complex had to procure this judgment in order for their records to reflect that defendant had vacated the premises.
Before the end of January 2010 or early February 2010, there was no regular mail delivery to 56 Louise. Mark Harvey, the postal carrier for that area, testified that he would hold on to mail addressed to that house because he thought the home was vacant. However, in late January or early February, Harvey was informed by his supervisor to resume delivery because the homeowner had requested it. Harvey explained that, in addition to the home looking like it was vacant, there was no mailbox present to deliver to until after the request to resume delivery occurred. Also of note, Harvey only met defendant for the first time a month before the hearing, which would correlate approximately to the first week of May 2010.
Nine days later, on June 18, 2010, defendant moved to disqualify the trial court on the basis that he impermissibly acquired personal knowledge when he drove past 56 Louise. At a hearing on June 28, 2010, the court denied the motion, stating that "[t]he fact that I drove by wasn't the basis of my decision." Afterward, defendant moved for Wayne Circuit Court Chief Judge Virgil Smith to disqualify the trial court, but Chief Judge Smith denied the motion because defendant failed to show that the trial judge exhibited any bias.
On June 30, 2010, the trial court entered a judgment granting a writ of quo warranto, ordering that defendant was not entitled to hold the school board position and that all votes cast for him were null and void. Furthermore, the judgment declared that plaintiff, having the next highest vote total, was the duly elected winner of the election. The trial court also denied defendant's request for a jury trial, concluding that a determination on the matter had already been made and, in any event, the court did not believe that defendant had a right to a jury trial for this equitable action.
Two weeks into plaintiff's new term, this court entered an order that (1) stayed that portion of the judgment recognizing plaintiff as one of the election winners and (2) ordered that the board seat was to remain empty pending the appeal. Davis v. Chatman, unpublished order of the Court of Appeals, entered July 15, 2010 (Docket No. 299021). The Supreme Court later denied plaintiff's application for leave to appeal this order. Davis v. Chatman, 487 Mich. 859, 784 N.W.2d 823 (2010). The instant appeal ensued.
Defendant first argues that the trial court erred when it granted plaintiff's application for leave to proceed by quo warranto. "A court's decision whether to grant or deny an application for leave to proceed by quo warranto is reviewed for an abuse of discretion." Barrow v. Detroit Mayor, 290 Mich.App. 530, 539, 802 N.W.2d 658 (2010). A trial court abuses its discretion when its decision falls outside the range of reasonable and principled outcomes. Maldonado v. Ford Motor Co., 476 Mich. 372, 388, 719 N.W.2d 809 (2006).
"Quo warranto" is a "common-law writ used to inquire into the authority by which a public office is held or a franchise is claimed." Black's Law Dictionary (9th ed.). Quo warranto is the only appropriate remedy for determining the proper holder of a public office, see People v. Tisdale, 1 Doug 59 (Mich., 1843), overruled in part on other grounds, Petrie v. Curtis, 387 Mich. 436, 438-441, 196 N.W.2d 761 (1972), and
Initially, we reject defendant's argument that plaintiff was required to provide notice before seeking leave to file for quo warranto. Neither the relevant court rule (MCR 3.306) nor the statute (MCL 600.4501) contains a notice requirement, and our Supreme Court has found that fact dispositive of this issue:
While defendant counters that the subsequent enactment of MCR 3.306 abrogated Ferzacca, conspicuously absent from that court rule is any mention of notice. Thus, the rationale of Ferzacca is still controlling. The notice to which defendant was entitled—and did receive—was service of the application after the court granted plaintiff permission to file the pleading.
Alternatively, defendant urges this Court to find the order granting leave to file for quo warranto deficient on public policy grounds since the application was "unverified" and did not contain supporting affidavits. We decline this invitation, however, since once again neither the relevant statute nor court rule imposes such requirements. If these or other requirements are to be placed into the rules, it would be either by legislation or through the Supreme Court's rule-making authority. See People v. Jackson, 487 Mich. 783, 797 n. 31, 790 N.W.2d 340 (2010). It would not be through this Court's decision-making.
In any event, this Court has previously stated that the most important considerations in granting leave to file quo warranto are (1) whether an appropriate application was made to the Attorney General and (2) whether the application disclosed sufficient apparent merit to justify further inquiry by quo warranto proceedings. Grand Rapids v. Harper, 32 Mich.App. 324, 329, 188 N.W.2d 668 (1971). It is undisputed that plaintiff made the appropriate application to the Attorney General, who in turn declined to pursue the matter, MCR 3.306(B)(3)(b), which granted plaintiff the ability to file this action. See also MCL 600.4501. Additionally, plaintiff's application disclosed sufficient facts concerning defendant's putative residence justifying further inquiry into defendant's residency status. Accordingly, the trial court's granting leave to file the application was well within the range of principled
Defendant next argues a new hearing is in order because the trial court viewed the premises at 56 Louise without notice to any party. Although our review of a trial court's decision to view a scene is for an abuse of discretion, Gorelick v. Dep't of State Hwys., 127 Mich.App. 324, 335, 339 N.W.2d 635 (1983), defendant did not raise this issue until subsequently requesting the trial court's disqualification. Mindful that review of this unpreserved issue may nonetheless be appropriate in the interests of justice, Travis v. Preston (On Rehearing), 249 Mich.App. 338, 348, 643 N.W.2d 235 (2002), we conclude that reversal is not warranted since it is abundantly clear that the court's viewing of the premises played no role in its decision. MCR 1.105.
MCR 2.513(B) specifically allows for a trial court sitting as a trier of fact to "view property or a place where a material event occurred."
Before moving on, we note that defendant failed to submit an affidavit as required by MCR 2.003(D) when requesting the court's disqualification under MCR 2.003(C)(1)(c).
We likewise find meritless defendant's argument that the trial court erred in denying his request for a jury trial. As this claim involves the interpretation
While a trial court may hear a quo warranto proceeding or permit the matter to proceed to a jury trial, a party has the right to demand a jury trial of this issue. MCR 2.508(B)(1); MCR 3.306(E); see, also, St Joseph Twp. v. City of St. Joseph, 373 Mich. 1, 5-6, 127 N.W.2d 858 (1964). The right to a jury trial in a civil action is permissive and not absolute. Const. 1963, art. 1, § 14; Marshall Lasser, PC v. George, 252 Mich.App. 104, 107-108, 651 N.W.2d 158 (2002). Further, a party may waive a jury trial demand by agreement "in writing or on the record. . . ." MCR 2.509(A)(1).
Instructive to our inquiry is Marshall Lasser. There, this Court rejected the plaintiff's argument that the trial court erred in proceeding with a bench trial on the issue of damages in the absence of an express withdrawal of the jury demand. Id. at 106, 651 N.W.2d 158. Noting that the parties' conduct at five evidentiary hearings on this issue was active and vigorous, we explained that the plaintiff's argument ran contrary to its behavior during the proceedings below:
Similar to the plaintiff in Marshall Lasser, we conclude that defendant's conduct clearly implied acquiescence to a bench trial and amounted to a waiver of defendant's jury demand.
Thereafter, the parties participated in a three-day hearing in which both presented evidence, and plaintiff continued to make clear that he was seeking not only a TRO, but also a writ of quo warranto. At no time did defendant object that the matter was proceeding without a jury. On the contrary, defendant requested that the court resolve the matter and dismiss the petition. Thus, we conclude that defendant's failure to object to the evidentiary hearing combined with his voluntary participation in the procedure, during which he requested that the court resolve the issues at hand, amounted to a waiver of his demand for a jury trial.
This brings us to defendant's argument that the trial court erred when it granted a writ of quo warranto. We review for an abuse of discretion a trial court's decision in a quo warranto proceeding. Attorney General ex rel. Selby v. Macdonald, 164 Mich. 590, 594, 129 N.W.
As noted earlier in this opinion, actions for quo warranto inquire into the authority by which a public office is held. Barrow, 290 Mich.App. at 540, 802 N.W.2d 658. If such actions are brought against a person for usurpation of office, then the trial court's judgment may determine the right of the defendant to hold the office. MCL 600.4505.
The office in question is a position on the Highland Park School District Board of Education. MCL 168.302, part of the Revised School Code, provides the requirements to run for a position on a school board: "An individual is eligible for election as a school board member if the individual is a citizen of the United States and is a qualified and registered elector of the school district the individual seeks to represent by the filing deadline." MCL 168.10 defines "qualified elector" as "a person who possesses the qualifications of an elector . . . and who has resided in the city or township 30 days." "Residence" is defined by MCL 168.11 as the "place at which a person habitually sleeps, keeps his or her personal effects, and has a regular place of lodging." Thus, in order to be eligible to seek election for the Highland Park School District Board of Education, at a minimum, defendant had to have been habitually sleeping and lodging in Highland Park as of January 10, 2010, i.e., 30 days before the February 9, 2010, filing deadline.
After reviewing the evidence, the trial court explained the basis for its finding that defendant failed to satisfy the residency requirement:
Considering the trial court's superior ability to judge credibility, we cannot conclude that the court erred in holding that defendant had failed to satisfy the statutory residency requirements in light of the evidence. MCR 2.613(C); Glen Lake-Crystal River Watershed Riparians v. Glen Lake Ass'n, 264 Mich.App. 523, 531, 695 N.W.2d 508 (2004).
Although defendant claims he satisfied the residency requirements based on his testimony and that of his witnesses, the testimony of his witnesses was inconsistent on the question of when he began residing at 56 Louise. For example, one neighbor claimed, consistently with the testimony of
Besides the inconsistent testimony on the issue of when defendant began his residency, conflicting evidence was also presented on the home's utility usage during the period in question. Specifically, while defendant and the owner of the premises asserted their use of electric space heaters during this time frame, utility company representatives testified that the residence had been without electricity, water, and gas since October 2008.
Finally, we arrive at the most difficult question raised in this case— whether the trial court erred by declaring plaintiff a duly elected member of the school board. This issue involves a question of statutory interpretation, which we review de novo. Univ. of Mich. Regents v. Titan Ins. Co., 487 Mich. 289, 297, 791 N.W.2d 897 (2010).
Defendant and amicus curiae, the Wayne County Board of Canvassers, argue that the remaining members of the Highland Park School District Board of Education should appoint a replacement. It is generally true that when a school board member's seat becomes vacant, MCL 168.311(1) empowers the remaining school board members to fill the vacant office by appointment. Specifically, that section provides: "If less than a majority of the offices of school board member of a school district become vacant, the remaining school board members shall fill each vacant office by appointment." MCL 168.311(1). A vacancy triggering the procedure in MCL 168.311(1) occurs when, inter alia, a court declares a school board member's election or appointment void. MCL 168.310(2)(f). Relying on these provisions, defendant claims that the trial court lacked authority to declare plaintiff the election winner when defendant had already filed his acceptance and taken his oath of office on May 10, 2010—nearly two months before the court entered its judgment.
This is a sound argument, but is complicated by MCL 168.302(b), which expressly provides that the term of office for
Instead, governing the case are the remedy provisions of the quo warranto statute, MCL 600.4505. Specifically, MCL 600.4505 provides:
Notably, the fact that a person has yet to assume office is not a bar to this statute's application. In re Servaas, 484 Mich. 634, 643 n. 15, 774 N.W.2d 46 (2009) (opinion by WEAVER, J.) (rejecting the notion that a quo warranto action "may only be brought for `claims that an officer is currently exercising an invalid title to office'") (citation omitted).
The action brought and decided in this case is precisely the scenario MCL 600.4505(1) contemplates.
For the foregoing reasons, we hold that the trial court properly granted plaintiff's petition for leave to file for quo warranto and likewise did not err in granting a writ of quo warranto, determining defendant's election void and finding plaintiff entitled to the office of Highland Park school board member.
Affirmed.
No costs, a public question having been involved. MCR 7.219.
FORT HOOD, P.J., and GLEICHER, J., concurred with MURRAY, J.