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Zbinden v. Bond Co. School Dist.





APPEAL from the County Court of Bond County; the Hon. JOE DEES, Judge, presiding.


Rehearing denied March 15, 1954.

This cause arose out of a school election whereat four propositions were submitted to the electors. L.B. Zbinden and five other residents of the defendant school district filed their petition to contest in the county court of Bond County. Upon a recount of the ballots the trial court entered an order finding that each of the propositions had carried by approximately the same majorities as the board of education had found by its canvass. The court dismissed the petition and petitioners appeal directly to this court.

A special election was called by the board of education of Unit District No. 2 and held March 14, 1953, under the provisions of article 5A of the School Code (Ill. Rev. Stat. 1951, chap. 122, par. 5A-1 et seq.) Briefly, the propositions submitted to the electors were: (1) to select a site; (2) to purchase a site; (3) to build, and (4) to issue bonds in the amount of $975,000. For the purpose of the election the district was divided into seven precincts, a polling place was fixed in each and two judges and one clerk appointed for each polling place. The returns were canvassed by the board of education and it declared that all propositions had carried by a majority of the votes cast on each proposition.

Petitioners contend (1) that the judges and clerk in precinct No. 6 exchanged duties, (2) that the board of education failed to provide a sufficient number of voting booths, and (3) that the board neglected to provide a sufficient enclosure within which to conduct the election. It is further contended that, by virtue of the irregularities complained of, all of the votes in precinct No. 6 should have been excluded from the count. Other irregularities were alleged in the petition and amendments thereto but have been waived and consequently will not be here considered.

Precinct No. 6 was large and carried for all four propositions by margins so substantial that if the vote of that precinct be excluded, then all propositions failed. Our factual comments, therefore, will be confined to that precinct.

Mrs. Ellen Snowden and Lucille Jett were appointed judges and P.K. Harris was appointed clerk, and each took oath and qualified for the respective offices for which she or he was appointed. All appeared just prior to the opening of the polls and stayed at the polling place until after the polls closed and the votes were counted. It appears that Harris could not write fast nor legibly and it was decided by the election officials that the judges should alternate in entering the electors' names in the poll book, and they did so. The ballots were all initialed by the judges with their respective initials. While there was some dispute as to whether all of the ballots had been handed to the voters by the judges, the weight of the evidence was clearly that the judges handed out all or substantially all of the ballots.

Harris received most of the voted ballots and placed them in the ballot box. The judges and clerk joined in counting the ballots. One of the judges tallied the votes on the tally sheet but it was signed and certified by Harris in his official capacity as clerk and by Mrs. Snowden and Miss Jett each in her official capacity as judge.

Article 5A of the School Code was adopted and became effective June 9, 1951. Section 5A-8 provides for the appointment of two judges and one clerk for each voting precinct. Section 5A-14 states that the ballot box shall be publicly opened and exhibited and the election officials shall see that there are no ballots in the box; that the clerk shall enter the name of each elector in a poll book; that the official ballots shall remain in charge of the judges; that one of the judges shall give the voter one each of the ballots to be voted and that one of the judges shall endorse his initials upon each ballot. Section 4A-15 provides that after closing the polls the judges of election shall canvass the votes polled and the clerk shall enter upon a tally list kept by him the votes cast for or against each proposition.

It is apparent from an examination of the facts, briefly set out above, that the statute was not literally followed in several respects. The clerk failed to enter the names in the poll book and did not tally the votes upon the tally list. The judges did not have the ballots in their exclusive possession by permitting the clerk to fold them and to receive voted ballots to be placed in the ballot box. The judges also had the assistance of the clerk in counting and canvassing the votes.

The question involved is whether the provisions of the sections which were not literally complied with were mandatory or directory. If they be mandatory as contended by petitioners, then none of the votes cast in precinct No. 6 could be counted, with the result that the propositions failed.

No universal rule can be fixed between directory and mandatory provisions of the statutes. Whether it is one or the other depends upon the legislative intention, to be ascertained from the nature and object of the act and the consequences which would result from construing it one way or another. (Siedschlag v. May, 363 Ill. 538.) We have said that it would be a dangerous rule to establish that election officials may disregard the plain provisions of the statute, and thereby defeat the intention of the law to prevent frauds from being committed and detected. (Sibley v. Staiger, 347 Ill. 288; Tuthill v. Rendelman, 387 Ill. 321.) On the other hand, the courts must consider the primary purpose of laws such as those under consideration, i.e., the obtaining of fair elections and honest returns, as paramount in importance to the formal steps prescribed to reach that end. People ex rel. Agnew v. Graham, 267 Ill. 426.

There is no proof of fraud or improper conduct upon the part of the election officials arising from a wrongful intent. Furthermore, there is no evidence that the deviations complained of deprived any legal voter of his vote or in any way changed the result of the election. The irregularities occurred in a division of the work between the judges and clerk, in order to facilitate the carrying out of their election duties and to preserve a legible and correct record of the election.

Petitioners cite Harvey v. Sullivan, 406 Ill. 472, in support of their position. That case followed Tuthill v. Rendelman, 387 Ill. 321, and others which held mandatory the provisions that each election judge must place his own initials upon the ballot and that failure to do so voided any ballot not so initialed. The Harvey case turned primarily upon the proposition that the person who qualified as a clerk was neither a de jure nor a de facto judge, and, ...

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