Opinion ID: 1699565
Heading Depth: 1
Heading Rank: 1

Heading: procedure in circuit court.

Text: At the hearing on the Board's motion to quash the writ, Ruthenberg's lawyer contended that the question of the sufficiency of the evidence to support the Board's decision was not then an issue. He contended that the hearing should be limited to the merits of the motion to quash and therefore should consider only the sufficiency of the petition. The circuit judge responded stating that the procedure used in Milwaukee county was somewhat different in that the practice was to issue the writ immediately, rather than wait for a motion to quash to be filed, before having a hearing on the motion to determine whether the writ should issue. He said the only question presented was whether there was reasonable ground to believe the Board's decision was the result of honest judgment and was not arbitrary or capricious. The circuit judge then held that on the basis of his reading of the transcript and exhibits he found that the Board did not act arbitrarily and that its judgment was reasonable under the circumstances. The motion to quash was thereupon granted and an order issued. The Board contends that its was permissible for the court to consider the merits of the action because Ruthenberg had raised that issue by alleging in the petition that the evidence was insufficient. Ruthenberg's argument is derived from statements by this court that a motion to quash a writ of certiorari is in the nature of a demurrer. See, e.g., State ex rel. Casper v. Board of Trustees, 30 Wis.2d 170, 176, 140 N.W.2d 301 (1966). That statement is usually made in connection with the conclusion that there is a right to appeal from an order granting or denying such a motion. In Casper, supra, this court also said that the return did not fulfill the function of an answer and that the issues on review, such as the merits, jurisdiction or procedure, would be raised by motion. In State ex rel. Czapiewski v. Milwaukee City Service Commission, 54 Wis.2d 535, 196 N.W.2d 742 (1972), the court stated that even though the motion to quash was analogous to a demurrer it was not a demurrer and could be used to raise an issue of laches and could rely on facts contained in the return. In Lakeshore Development Corp. v. Plan. Comm., 12 Wis.2d 560, 107 N.W.2d 590 (1961), the court held a motion to quash could be used to raise an issue of jurisdiction, either before or after the return, but did not challenge the sufficiency of the petition. However, in State ex rel. South Range v. Tax Comm., 168 Wis. 253, 169 N.W. 555 (1918), the court held a motion to quash challenged the sufficiency of the petition and presented the same question as a demurrer  is there a ground for relief? The choice whether to affirm the underlying decision or quash the writ was discussed in State ex rel. Gray v. Common Council of Oconomowoc, 104 Wis. 622, 80 N.W. 942 (1899). The court there held that after the return it would be proper to quash the writ if the proceedings below were with full jurisdiction and regularity such that even if the writ were continued to further hearing a judgment could only result in affirmance. The court also stated that in such a situation it was immaterial whether the writ was quashed or the proceedings affirmed. In Wilusz v. Witek, 258 Wis. 397, 46 N.W.2d 337 (1951), where the trial court quashed the writ after a hearing on the motions and merits, this court held that because the trial court found that if the writ were continued to a further hearing the decision would be affirmed, the judgment quashing the writ was intended to have the effect of affirming the action. Finally, in State ex rel. Park Plaza Shop. Ctr. v. O'Malley, 59 Wis. 2d 217, 207 N.W.2d 622 (1973), the court held that where a statutory writ was involved its issuance was not discretionary and the proper procedure, in the absence of a motion to quash, would be to affirm the Board's decision. [1] Here, on the day of the hearing, the circuit court had both the motion to quash and the return before it. The petition raised an issue as to sufficiency of the evidence. The circuit judge has read and considered the return and the record and had concluded that the decision of the Board should be affirmed. This has been recognized by this court as a permissible procedure under these facts. The court appropriately granted the motion to quash and this order had the effect of affirming the Board's decision. [2] The other arguments advanced on this issue concern the scope of review in a certiorari proceeding before the circuit court. Most recently in State ex rel. Harris v. Annuity & Pension Board, 87 Wis.2d 646, 275 N.W.2d 668 (1979), this court held that where the petitioner challenged the Board's decision as arbitrary and unreasonable, representing its will and unsupported by the evidence, the test was whether the evidence reasonably supports the decision. This test is one of four questions frequently held to be presented on a common-law writ of certiorari: (1) Whether the Board kept within its jurisdiction; (2) whether it acted according to law; (3) whether its action was arbitrary, oppressive or unreasonable and represented its will and not its judgment; and (4) whether the evidence was such that it might reasonably make the order or determination in question. [3] [3-8] The first question requires the trial court to determine whether the Board acted within the scope of its powers. The second requires the trial court to review the Board's procedure in light of the applicable statutes and due process requirements. State v. Goulette, 65 Wis.2d 207, 215, 222 N.W.2d 622 (1974). As to the third question, it is established that a Board decision is arbitrary and represents its will if it has acted without a rational basis or the exercise of discretion. Van Ermen, supra, at 64. The fourth question has been compared to the substantial evidence test under Chapter 227, Stats. State ex rel. Beierle v. Civil Service Comm., 41 Wis.2d 213, 218, 163 N.W.2d 606 (1969). In a review of a decision on a writ of certiorari there is a presumption that the Board acted according to law and the official decision is correct and the weight and credibility of the evidence cannot be assessed. Harris, supra, at 652; State ex rel. Richey v. Neenah Police & Fire Comm., 48 Wis.2d 575, 585, 180 N.W.2d 743 (1970); State ex rel. Bluemound Amusement Park v. Mayor, 207 Wis. 199, 204, 205, 240 N.W. 847 (1932). [9] Both parties here conclude that this is a statutory writ of certiorari because the writ is expressly provided for in Milwaukee Charter Ordinance section 36.05(5)(m). In several cases this court has discussed the changes a statutory writ can make in the common law scope of review. A statutory writ or other statutory review procedure may limit the scope of review on the common-law writ or may enlarge the scope of review and permit the court to look beyond the record. [4] [10] However, this court has held that where the statutory provision for the writ does not enlarge the scope of review the review is co-extensive with the common-law writ. Berschens v. Town of Prairie due Sac, 76 Wis.2d 115, 119, 250 N.W.2d 369 (1977). The Milwaukee Charter Ordinance section 36.05(4)(m) provides only that the petitioner . . . may seek a review of such determination by filing a writ of certiorari, . . . therefore the scope of review is that set out above for common-law writs.