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09/30/88 Anastasia Lambesis, D/B/A v. the Town of Cicero Et Al.

September 30, 1988





529 N.E.2d 1081, 175 Ill. App. 3d 555, 125 Ill. Dec. 5 1988.IL.1487

Appeal from the Circuit Court of Cook County; the Hon. George Marovich, Judge, presiding.


JUSTICE JOHNSON delivered the opinion of the court. McMORROW and LINN, JJ., concur.


Plaintiff, Anastasia Lambesis, appeals from the decision of the circuit court of Cook County confirming the order of the Illinois Liquor Control Commission, defendant (hereinafter Commission), that refused to renew her liquor license. Plaintiff raises the following issues on appeal: (1) whether the trial court properly determined that the constitutional questions proffered by her were beyond the scope of its review; and (2) whether the Commission's order was against the manifest weight of the evidence.

We affirm.

On June 15, 1987, plaintiff filed an application to renew her Class F liquor license with the Town of Cicero (defendant) to operate her place of business, known as the Cypress Lounge, until 6 a.m. On June 29, 1987, a hearing was held relating to plaintiff's application. Plaintiff's husband, who was also the manager of the Cypress Lounge, two police officers, and a patron testified that the lounge did not provide entertainment. On July 1, 1987, Betty Loren, the local liquor control commissioner (hereinafter local commissioner), issued an order denying plaintiff's application. The order stated that plaintiff's application was denied due to the license's failure to comply with section 4 -- 28(7)(f) of the Cicero Code of Ordinances. (Cicero, Ill., Code of Ordinances ch. 4, par. 4 -- 28(7)(f) (1987).) Section 4 -- 28(7)(f) provides as follows:

"In the event any place of business issued a Class 'F' license ceases to have entertainment, the Class 'F' license shall be revoked along with all additional privileges given thereunder, and the place of business shall revert back to its original classification of Class 'A' or Class 'A-B' as the case may be."

On August 5, 1987, plaintiff appealed to the Commission, which upheld the local commissioner's order. Subsequently, plaintiff sought administrative review in the circuit court of Cook County. On October 8, 1987, the trial court confirmed the Commission's order. This appeal followed.

Plaintiff's first contention is that the trial court erred in determining that it was without authority to consider her constitutional arguments based on due process and equal protection guarantees. She argues that the Cicero ordinance is vague and ambiguous and therefore unconstitutional. She further claims that she made the above constitutional arguments during her hearing and petition to the Commission; therefore, the issues are a part of the record and reviewable by the trial court.

Under the Administrative Review Law (Ill. Rev. Stat. 1985, ch. 110, par. 3-110), the trial and appellate courts are limited to the record in determining "(1) whether the findings and orders of the commissioner are against the manifest weight of the evidence, and (2) whether the commissioner acted arbitrarily and without cause or in clear abuse of his discretion." Spiros Lounge, Inc. v. Illinois Liquor Control Comm'n (1981), 98 Ill. App. 3d 280, 283-84.

The trial court properly confirmed the Commission's decision. Neither the Commission nor the local commissioner made any findings of fact or Conclusions of law on any constitutional issues. Plaintiff's complaint for administrative review does not include allegations concerning violations of her constitutional rights. Furthermore, no issues relative to the validity or constitutionality of the ordinance in question were raised in plaintiff's pleadings. Plaintiff cannot interject constitutional arguments before the court when they have not been properly pleaded in her complaint or ruled on by the Commission.

"It is an elementary rule of law that the issues in a case are formed by the pleadings and the allegations and the proof must correspond. A party may not prevail where the proof does not follow the allegations, and conversely where the allegations are not substantiated by any proof." ...

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