Illinois Official Reports 

Appellate Court

Tolliver v. Housing Authority, 2017 IL App (1st) 153615

Appellate Court 

Caption

CHERRISH TOLLIVER, Petitioner-Appellant, v. THE HOUSING 

AUTHORITY OF THE COUNTY OF COOK, Respondent-Appellee.

District & No. First District, Fifth Division

Docket No. 1-15-3615

Rule 23 order filed

Motion to publish

granted

Opinion filed

March 31, 2017

May 17, 2017

May 19, 2017

Decision Under 

Review

Appeal from the Circuit Court of Cook County, No. 13-CH-8364; the 

Hon. Sophia H. Hall, Judge, presiding.

Judgment Circuit court reversed; hearing officer’s decision reversed; and cause 

remanded with directions.

Counsel on

Appeal

Erin Solomon, Eric Shinabarger, and Delilah Flaum, of Winston & 

Strawn LLP, and Patricia Nelson and Ian Turnipseed, of Chicago 

Volunteer Legal Services, both of Chicago, for appellant.

Michael E. Kujawa and Deborah A. Ostvig, of Schain, Banks, Kenny 

& Schwartz, Ltd., of Chicago, for appellee.
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Panel JUSTICE HALL delivered the judgment of the court, with opinion.

Presiding Justice Gordon and Justice Reyes concurred in the judgment 

and opinion.

 OPINION 

¶ 1 Petitioner Cherrish Tolliver appeals from a judgment of the circuit court affirming a 

decision of the respondent the Housing Authority of the County of Cook (HACC) terminating 

her federally subsidized housing voucher she was receiving pursuant to the Section 8 Housing 

Choice Voucher Program (HCV Program). For the reasons that follow, we reverse and remand 

with directions. 

¶ 2 BACKGROUND 

¶ 3 Petitioner became a participant in the HCV Program in 2007. The program is a 

federally-funded one in which the United States Department of Housing and Urban 

Development (HUD) provides rent subsidies to eligible families to assist them in renting 

privately-owned housing. See 42 U.S.C. § 1437f(o) (2006); 24 C.F.R. § 982.1(a)(1) (2006); 

Khan v. Bland, 630 F.3d 519, 523-25 (7th Cir. 2010). The program is governed by the Code of 

Federal Regulations (Federal Code) (24 C.F.R. § 982.1 et seq. (2006)) and is administered on 

the local level by governmental entities referred to as public housing agencies or PHA’s (24 

C.F.R. § 982.1(a) (2006)), such as the Chicago Housing Authority (CHA).1

 Under the HCV 

Program, petitioner’s landlord received a voucher from the HACC to subsidize a portion of her 

rent for a house located at 13841 Kanawha Avenue, Dolton, Illinois. See 24 C.F.R. § 982.451 

(2006). As one of the conditions for participating in the HCV Program, petitioner agreed to 

report in writing within 30 days when there was an increase in her household income. 

¶ 4 In October 2012, the HACC alleged that the petitioner violated this condition. In a letter 

dated October 16, 2012, the HACC notified petitioner that it intended to terminate her from the 

HCV Program, effective November 30, 2012, on the ground that she had failed to timely report 

an increase in household income from her employment with the Diamond Detective Agency. 

¶ 5 Petitioner appeared pro se and challenged the termination at an informal administrative 

hearing held before a hearing panel. At the hearing, the HACC maintained that the petitioner 

had failed to report income she received from the detective agency in 2011 and 2012. 

Petitioner responded that she regularly informed her caseworker via telephone and fax about 

her sporadic employment situation with the detective agency and that the caseworker routinely 

accepted such notification. Petitioner explained that due to intermittent layoffs, her 

employment with the detective agency was sporadic during the years at issue. 

¶ 6 On February 19, 2013, a hearing officer with the HACC concluded that the HACC had 

proven its case by a preponderance of the evidence. The hearing officer issued an order and 

decision upholding the HACC’s decision to terminate petitioner from the HCV Program.

 

 1The CHA is a municipal corporation operating under the Housing Authorities Act (310 ILCS 10/1 

et seq. (West 2012)) for the purpose of providing safe and decent housing for low income persons. 

Castro v. Chicago Housing Authority, 360 F.3d 721, 724 (7th Cir. 2004). HACC is a private company 

operating under contract with the CHA. 
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¶ 7 On March 27, 2013, petitioner, acting pro se, filed a petition for judicial review by writ of 

certiorari in the circuit court. In her petition, petitioner claimed that the decision to terminate 

her from the HCV Program was contrary to the law. 

¶ 8 On August 23, 2013, counsel from the law firm of Kirkland and Ellis and from Chicago 

Volunteer Legal Services filed a brief in support of the petitioner’s petition. The brief 

concluded in part that the HACC had “misapplied the statute in using a mandatory standard 

and not affording the Petitioner the statutorily required discretionary basis for decision. 

Finally, with the myriad of ways in which [the HACC] could have dealt with any alleged 

failure of Petitioner to timely report continued income, such as affording Petitioner the 

opportunity to repay any alleged overpayments, or consideration that Petitioner had never 

before failed to report any income, or that Petitioner’s three children would be adversely 

affected, the decision to terminate Petitioner was unusually harsh by being contrary to the 

HACC’s and HUD’s own Administrative Plan and guidebook.”

¶ 9 The circuit court agreed with the petitioner’s arguments, and on November 15, 2013, 

remanded the matter to the HACC, directing the housing agency to hold another informal 

hearing to consider mitigating circumstances. The court determined that the HACC had 

violated the petitioner’s due process rights by terminating her from the HCV Program without 

considering any mitigating circumstances. The court also held the HACC failed to provide 

petitioner with notice of termination regarding her unemployment benefits. 

¶ 10 Upon remand, instead of holding an informal hearing in accordance with the circuit court’s 

order, the HACC sent petitioner another notice of termination, this time notifying her that she 

was being terminated from the HCV Program for allegedly failing to report that she had 

returned to work at the detective agency following layoff periods from 2009 through 2012. 

¶ 11 On August 14, 2014, the HACC held a second informal hearing at which petitioner again 

challenged her termination from the program. On November 5, 2014, the HACC issued an 

order and decision upholding the termination. 

¶ 12 On January 16, 2015, petitioner, through her attorneys, filed a second petition and 

supporting brief in the circuit court, contesting the HACC’s latest decision to terminate her 

from the HCV Program. Petitioner argued that the HACC failed to exercise discretion or 

consider mitigating circumstances prior to terminating her from the program. She maintained 

that these failures not only violated applicable federal law, but also violated the circuit court’s 

remand order. Petitioner claimed that the latest reasons the HACC gave for terminating her 

from the program were outside the scope of the circuit court’s remand order.

¶ 13 The circuit court again agreed with the petitioner and on April 3, 2015, reversed the 

HACC’s decision, and issued an order remanding the matter to the HACC, again directing the 

housing agency to properly consider mitigating circumstances. In response to the circuit 

court’s order, the HACC issued a third order and decision, this time offering a repayment plan 

in lieu of termination. The HACC stated that the petitioner could avoid termination and retain 

her housing voucher if she agreed to repay the HACC $13,586. Under the agreement, 

petitioner would have to enter into a repayment plan within 60 days and pay an up-front lump 

sum payment of $10,586. 

¶ 14 On April 29, 2015, petitioner, again through her attorneys, filed a third petition and 

supporting brief in the circuit court, challenging the HACC’s decision. Counsel argued that the 

repayment plan was unreasonable and in violation of federal law, as well as the HACC’s own 

repayment policy. Counsel contended it was unreasonable to expect a voucher recipient 
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making $15,000 per year to make a $10,000 down payment within 60 days. Counsel further 

contended that the HACC’s failure to follow its own guidelines in holding interim 

reexaminations of the petitioner’s income status allowed the housing agency’s alleged 

overpayments to petitioner to unreasonably accumulate over several years, without any notice 

to petitioner. Counsel claimed that the petitioner did not intentionally misreport her income, 

and that it would be unreasonable to require her to pay over $10,000 up front, when she had 

accurately, and in good faith, reported her income. 

¶ 15 The circuit court again agreed with the petitioner’s arguments, and on July 24, 2015, issued 

an order remanding the matter to the HACC for a third time, ruling that the repayment plan was 

not reasonable as required by HUD guidelines. 

¶ 16 Upon remand, the HACC issued an amended order and decision on August 18, 2015. In 

this latest decision, the HACC stated that it would allow the petitioner to enter into a 

repayment agreement without requiring her to pay an up-front lump sum payment. The HACC 

stated that as a condition of her reinstatement, petitioner would be required to enter into a 

repayment agreement by September 30, 2015, to pay $13,586 in installments over 36 months. 

On September 15, 2015, the HACC revised the amount of overpayment petitioner was required 

to pay to $13,488 over 36 months. 

¶ 17 On October 2, 2015, the petitioner filed a fourth petition and supporting brief in the circuit 

court, challenging the HACC’s decision for the same reasons given in her previous petition. 

On November 16, 2015, the circuit court affirmed the HACC’s decision to terminate the 

petitioner from the HCV Program and dismissed the case. This timely appeal followed. 

¶ 18 ANALYSIS 

¶ 19 This case is before us on appeal from a common-law writ of certiorari. The common-law 

writ of certiorari is used to obtain circuit court review of an administrative decision when the 

administrative agency’s enabling statute does not expressly adopt the Administrative Review 

Law (Review Law) (735 ILCS 5/3-101 et seq. (West 2010)) and provides no other method for 

reviewing the agency’s decisions. Outcom, Inc. v. Illinois Department of Transportation, 233 

Ill. 2d 324, 332-33 (2009). The CHA operates under the Housing Authorities Act (310 ILCS 

10/1 et seq. (West 2008)). See Landers v. Chicago Housing Authority, 404 Ill. App. 3d 568, 

571 (2010). The Housing Authorities Act did not adopt the Review Law and therefore the 

appropriate vehicle for review is a common-law writ of certiorari as was done in this case. 

¶ 20 Following a circuit court ruling on a writ of certiorari seeking review of an administrative 

decision, we “ ‘treat th[e] appeal as we would any other appeal for administrative review.’ ” 

Lipscomb v. Housing Authority, 2015 IL App (1st) 142793, ¶ 11 (quoting Landers, 404 Ill. 

App. 3d at 571). In administrative review cases, we review the decision of the administrative 

agency, not the decision of the circuit court. Id.

¶ 21 Petitioner contends the HACC violated her due process rights by failing to provide her with 

proper notice required under federal law before terminating her participation in the HCV 

Program. We agree. 

¶ 22 Participants in programs such as the HCV Program enjoy a property interest in continued 

occupancy of subsidized housing, which constitutes a statutory entitlement subject to 

procedural due process protections. See Robinson v. District of Columbia Housing Authority, 

660 F. Supp. 2d 6, 20 (D.D.C. 2009). “The essence of procedural due process is meaningful 
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notice and a meaningful opportunity to be heard.” Trettenero v. Police Pension Fund, 333 Ill. 

App. 3d 792, 799 (2002). In Goldberg v. Kelly, 397 U.S. 254, 266-71 (1970), the United States 

Supreme Court outlined procedural due process requirements of a pretermination hearing 

involving welfare benefits: (1) timely and adequate notice detailing the reasons for 

termination; (2) an opportunity to appear at the hearing, present evidence and oral argument, 

and confront and cross-examine adverse witnesses; (3) the right to be represented by counsel; 

(4) a right to a decision rendered by an impartial decisionmaker; (5) a right to have that 

decision based solely on rules of law and evidence presented at the hearing; and (6) a right to a 

statement by the decisionmaker, setting forth the reasons for the decision and the evidence 

upon which it was based. 

¶ 23 Following Goldberg, the federal government promulgated rules in accordance with the 

Court’s decision. See 55 Fed. Reg. 28538, 28541 (July 11, 1990) (“PHAs must adopt written 

informal pretermination hearing procedures for participants, which fully meet the 

requirements of Goldberg v. Kelly.”). The Federal Code provides in relevant part that a PHA 

may terminate a participant’s Section 8 benefits if the family violates any family obligations 

under the program (24 C.F.R. § 982.552(c)(1)(i) (2006)). However, prior to any hearing for 

termination, the PHA must provide the family with “prompt written notice,” containing a 

“brief statement of reasons for the decision.” 24 C.F.R. § 982.555(c)(2)(i) (2008). Although 

the Federal Code does not discuss the amount of information that must be contained in the 

“brief statement,” courts have found that “the notice must, at the very least, inform the resident 

of the situation so that she can make an intelligent response.” Jones v. Lansing Housing 

Comm’n, No. 5:03-CV-123, 2003 WL 26118817, at *6 (W.D. Mich. Sept. 19, 2003). 

¶ 24 The purpose of the written notice is “ ‘to inform the tenant of the allegations so that he can 

prepare a defense.’ ” Driver v. Housing Authority, 713 N.W.2d 670, 676 (Wis. Ct. App. 2006) 

(quoting Edgecomb v. Housing Authority, 824 F. Supp. 312, 314 (D. Conn. 1993)). The notice 

must be “ ‘sufficiently specific ... to enable [the tenant] to prepare rebuttal evidence to 

introduce at his hearing appearance.’ ” Edgecomb, 824 F. Supp. at 315 (quoting Billington v. 

Underwood, 613 F.2d 91, 94 (5th Cir. 1980)). In order to effectively rebut adverse evidence at 

the hearing, the notice must alert the tenant of the nature of this evidence. Driver, 713 N.W.2d 

at 676. “A notice that does not indicate the nature of the proscribed acts or when the acts were 

committed is insufficient.” Jones, 2003 WL 26118817, at *6 (citing Edgecomb, 824 F. Supp. at 

315). 

¶ 25 A review of the HACC’s two termination letters clearly reveal that they failed to comply 

with the notice requirements of the Federal Code regulations or the Supreme Court’s mandate 

in Goldberg. The first letter merely alleged that the petitioner “failed to report income from the 

Diamond Detective Agency.” The letter is devoid of the dates on which the alleged unreported 

income was earned or any dollar amounts, much less any calculations or underlying data. 

Similarly, the second termination letter alleged, “You failed to report your return to work at 

Diamond Detective Agency following your layoff periods in 2009 through 2012.” Again, this 

letter is devoid of any specific dates on which the alleged unreported income was earned or any 

dollar amounts. 

¶ 26 With such little information, it was virtually impossible for the petitioner to adequately 

prepare a defense, particularly since the second termination letter raised issues spanning a 

four-year time period and first put the petitioner on notice of issues concerning years 2009 and 

2010. In addition, the hearing conducted on August 14, 2014, was the first time the HACC 
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notified petitioner that she had allegedly been overpaid the amount of $13,586. Prior to that 

hearing, the petitioner was not provided with this figure, and she was never given any 

information or data on how this figure was arrived at. 

¶ 27 The HACC suggests that the petitioner’s procedural due process rights were not violated 

by the lack of notice because she came prepared at the hearings and was able to present her 

case to the hearing officer. We strongly disagree. First, the HACC, beyond its own opinion, 

provides no evidence establishing that the petitioner was “prepared” at the hearings. And 

second, and more importantly, the HACC’s alleged perception that the petitioner was so-called 

“prepared” at the hearings is both legally irrelevant and not a trustworthy guidepost as to 

whether she received sufficient notice. 

¶ 28 It was the responsibility of the HACC to put petitioner on notice as to the precise conduct 

she allegedly engaged in that warranted terminating her participation in the HCV Program. 

Due process imposes the burden of providing adequate notice on the government, not on the 

individual. Driver, 713 N.W.2d at 678. Without any information such as the dates on which the 

alleged unreported income was earned or any calculations or underlying data, petitioner could 

not have known how to prepare rebuttal evidence to introduce at her hearings or to adequately 

defend against the claims and allegations asserted against her by the HACC. Due process 

“requires such information in order for the tenant to adequately prepare for the hearing and to 

understand what factors motivated the final decision, particularly where more than one 

potential ground for termination exists.” Id. at 680. In sum, the HACC violated the petitioner’s 

due process rights by failing to provide her with proper notice required under federal law 

before terminating her participation in the HCV Program. 

¶ 29 Moreover, even if we found that the termination notices were not constitutionally deficient, 

we would still find the HACC violated the petitioner’s due process rights and its own 

administrative plan by failing to conduct interim reexaminations of the petitioner’s income 

after she notified the housing agency of changes in her employment status. HUD regulations 

and the HCV Program’s administrative plan require the HACC to conduct interim 

reexaminations every 90 days for families reporting zero income. See 24 C.F.R. 

§ 982.516(b)(2) (2006); Housing Authority of the County of Cook, Housing Choice Voucher 

Program Administrative Plan 205 (2014) (“The HACC will schedule an interim reexamination 

every ninety (90) days for families reporting zero ($0) income.”).

¶ 30 A review of the petitioner’s recertification appointments shows the following. In 2009, 

petitioner reported that her income consisted solely of unemployment benefits. There was no 

follow-up by the HACC. In 2010, petitioner again reported that her income consisted solely of 

unemployment benefits. Petitioner checked boxes stating that she expected to work within the 

next year, expected to receive unemployment benefits, and expected to receive public aid. 

Once again, there was no follow-up by the HACC. In 2011, petitioner reported that she was 

employed by the Diamond Detective Agency, but expected to be relieved of her employment 

by the end of that month. She also checked boxes stating that she expected to receive 

unemployment benefits and public aid in the future. The HACC conducted no follow-up. In 

2012, petitioner reported zero income and checked boxes stating that she expected to receive 

unemployment benefits and public aid in the future. The HACC did not conduct an interim 

reexamination following this report of zero income. 

¶ 31 The above shows that from 2010 to 2012, the petitioner reported zero income, had income 

consisting solely of unemployment benefits, or expected to lose her sporadic employment with 
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the detective agency. Petitioner reported zero income in 2012. Between 2009 and 2012, she 

repeatedly reported changes in her income based on her fluctuating employment status. Thus, 

under the HCV Program’s administrative plan, the housing agency was required to conduct 

interim reexaminations with petitioner every 90 days. However, the HACC did not pursue any 

follow-up or conduct a single reexamination in this time frame. 

¶ 32 The HACC’s failure to provide this oversight allowed the housing agency’s alleged 

overpayments to petitioner to unreasonably accumulate over several years, without any notice 

to the petitioner. The HACC failed to comply with HUD regulations and its own policies 

designed to catch and prevent such alleged overpayments for individuals reporting zero 

income and whose financial circumstances substantially change. Such interim reexaminations 

would have alerted the HACC of the alleged overpayments to petitioner. The HACC’s failure 

to conduct these interim reexaminations allowed the alleged overpayments to accrue to a point 

where requiring petitioner to repay $13,488 in overpayments over 36 months, effectively 

equates to a de facto termination of her housing voucher. 

¶ 33 “ ‘[R]ules promulgated by a federal agency, which regulate the rights and interests of 

others, are controlling upon the agency.’ ” Samirah v. Holder, 627 F.3d 652, 664 (7th Cir. 

2010) (quoting Montilla v. Immigration & Naturalization Service, 926 F.2d 162, 166 (2d Cir. 

1991)). In addition, administrative agencies must generally follow their own rules as written, 

without making ad hoc exceptions or departures from these rules when adjudicating. Mattoon 

Community Unit School District No. 2 v. Illinois Educational Labor Relations Board, 193 Ill. 

App. 3d 875, 881 (1990). “When an administrative agency has adopted rules and regulations 

under its statutory authority for carrying out its duties, the agency is bound by those rules and 

regulations and cannot arbitrarily disregard them.” Springwood Associates v. Health Facilities 

Planning Board, 269 Ill. App. 3d 944, 948 (1995). In sum, the HACC’s failure to comply with 

its own administrative plan removed a procedural safeguard relied upon by tenants like the 

petitioner and resulted in a deprivation of her of due process. 

¶ 34 The HACC presents a number of arguments regarding its conduct in relation to the interim 

reexaminations, none of which are persuasive. The HACC argues that HUD regulations gave it 

the discretion to hold interim reexaminations when it determined they were necessary. It is true 

that under both HUD regulations and the HCV Program’s administrative plan, the HACC has 

the discretion to conduct interim reexaminations. But this discretion is not absolute. HUD 

regulations provide for discretionary interim reexaminations in some circumstances (24 C.F.R. 

§ 982.516(c)(1) (2006)) and mandatory interim reexaminations in others (24 C.F.R. 

§ 982.516(b)(2) (2006)). Therefore, the fact that the HACC may voluntarily conduct interim 

reexaminations on a discretionary basis does not lead to the logical conclusion that such 

reexaminations are discretionary in every instance. 

¶ 35 The HACC next argues there is no evidence in the record showing that a 90-day interim 

reexamination of the petitioner’s income did not occur in the fall of 2012. Here, the HACC 

improperly attempts to place the burden on petitioner to prove a negative—that a 

reexamination did not occur. We do not believe that HUD intended to place such a burden on 

recipients of housing vouchers, and we decline the HACC’s invitation to do so under the 

factual circumstances in this case. 

¶ 36 The HACC maintains that even if it had opted to conduct an interim reexamination of the 

petitioner’s income for the years 2009 to 2011, there is no guarantee she would have properly 

reported her income, and therefore, we should not disturb its decision to terminate her 
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participation in the HCV Program. We strongly reject such an argument. Under the HACC’s 

logic, recipients of federal housing vouchers could be removed from the housing program 

without being afforded any procedural due process protections, simply because there was no 

guarantee the recipients would honestly report their income. Such a rule would render 

procedural due process protections meaningless for recipients of housing vouchers issued 

under the HCV Program. 

¶ 37 Finally, we find that under the factual circumstances in this case, the latest repayment plan 

the HACC presented to the petitioner was unreasonable as a matter of law. A sanction imposed 

by an administrative agency may be reversed if it amounts to an abuse of discretion. Sonntag v. 

Stewart, 2015 IL App (2d) 140445, ¶ 19. “A sanction will be found to be an abuse of discretion 

if it is arbitrary and capricious, or if the sanction is overly harsh in view of the mitigating 

circumstances.” Kazmi v. Department of Financial & Professional Regulation, 2014 IL App 

(1st) 130959, ¶ 21. 

¶ 38 After having reviewed the facts in this case, we believe the HACC abused its discretion by 

imposing a sanction that was overly harsh in view of the mitigating circumstances. The 

repayment plan requires the petitioner to pay $13,488 or $374.67 per month, over the short 

period of 36 months. This repayment contribution would be in addition to the petitioner’s 

mandated share of the rent, which is 30 percent of income, or $378.68 per month under the 

administrative plan. 

¶ 39 According to the HACC, the petitioner made at most $15,147 in 2012, the last year noted in 

the record. This results in a gross income of $1262.25 per month. Thus, the HACC’s 

repayment plan would require the petitioner to pay $753.35 per month in rent or nearly 60 

percent of her total income, which is prohibitive and unreasonable on its face given the 

petitioner’s family needs and financial position.

¶ 40 Moreover, the current repayment plan is especially unreasonable in light of the fact that the 

HACC’s failure to follow HUD guidelines or comply with its own administrative plan allowed 

the housing agency’s alleged overpayments to petitioner to unreasonably accumulate over 

several years, without any notice to the petitioner. Added to this is the failure of the HACC to 

properly document the steps or record the data it utilized in calculating the alleged 

overpayments. The HACC also improperly considered reported income in its overpayment 

calculation. On her May 20, 2011 recertification, the petitioner reported that she was employed 

with the detective agency. Yet, the HACC improperly counted all subsequent income as an 

overpayment. 

¶ 41 Accordingly, for the reasons set forth above, we reverse the order of termination and the 

judgment of the circuit court. We order the HACC to reinstate the petitioner’s housing voucher 

instanter. We remand the matter to the hearing officer to determine what, if any, overpayments 

were made to the petitioner. If a repayment agreement is required, the hearing officer shall 

consider the petitioner’s ability to pay and create a reasonable repayment plan.

¶ 42 Circuit court judgment reversed; hearing officer’s decision reversed; and cause remanded 

with directions.