People v. Davis

• Decision Date: 28 August 1990
• Docket Number: No. 5-88-0618,5-88-0618
• Parties: , 148 Ill.Dec. 859 PEOPLE of the State of Illinois, Plaintiff-Appellant, v. Joseph DAVIS and Kelvin Ellis, Defendants-Appellees.
• Court: United States Appellate Court of Illinois

Page 165

561 N.E.2d 165

203 Ill.App.3d 838, 148 Ill.Dec. 859

PEOPLE of the State of Illinois, Plaintiff-Appellant, v. Joseph DAVIS and Kelvin Ellis, Defendants-Appellees.

No. 5-88-0618.

Appellate Court of Illinois Fifth District.

Aug. 28, 1990.

John Baricevic, State's Atty., Belleville, Kenneth R. Boyle, Director, Stephen E. Norris, Deputy Director, Ellen Eder Irish, Staff Atty., Office of the States' Attys. Appellate Prosecutor, Mt. Vernon, for the People.

Law Offices of Norman S. London, Norman S. London, Thomas F. Flynn, St. Louis, Mo., for Kelvin Ellis.

Justice WELCH delivered the opinion of the court:

This interlocutory appeal is taken by the People of the State of Illinois from dismissal by the St. Clair County Circuit Court of grand jury indictments for official misconduct and theft of property against defendant Kelvin Ellis and indictments for theft of property against defendant Joseph Davis. On appeal we address an issue of apparent first impression in Illinois: whether the labor of an employee is the "property" of his employer, such that diversion by a third party of the employee from his duty for his employer constitutes theft under section 16-1(a)(1) of the Criminal Code of 1961 (Ill.Rev.Stat.1987, ch. 38, par. 16-1(a)(1)). According to the representations of defense counsel and the state's attorney at the hearing on the motion to dismiss, the transcript of which was made part of this record, we set forth the following statement of facts:

Ben D. Brown, Inc. (hereinafter, "Brown") contracted with the City of East St. Louis to perform certain services connected with the East St. Louis Riverfront Project, a public works project, among which was to conduct a survey of city residents concerning the project. Brown was to be reimbursed for the services provided to the city by the trustee of a bond issue financing the Riverfront Project. Brown's employees were hired through the East St. Louis First program, an employment program providing job training to economically disadvantaged persons. The twelve individuals named in the indictments whose labor was allegedly stolen by defendants were hourly-wage employees of Brown who worked a regular schedule.

Defendant Kelvin Ellis was an appointed official in the City of East St. Louis and assistant to the mayor. The 12 employees came to city hall each day and received instructions on their daily assignments from Ellis and Davis. Instead of instructing the 12 employees to perform the survey work for Brown as the contract with the city required, Davis and Ellis asked the employees to participate in political activities such as campaigning and collecting absentee ballots to benefit the mayor of East St. Louis and Davis, both of whom were candidates in an upcoming election.

After testimony before the St. Clair County grand jury, Davis was indicted for 12 counts of theft and Ellis was indicted for 12 counts of theft, 12 counts of official misconduct under section 33-3(b) of the Criminal Code of 1961 (Ill.Rev.Stat.1987, ch. 38, par 33-3(b)), and 12 counts of official misconduct under section 33-3(c) of the Criminal Code of 1961 (Ill.Rev.Stat.1987, ch. 38, par. 33-3(c)). After discovery was completed, each defendant filed a motion to dismiss claiming that the indictments did not charge an offense of theft because the labor of a person cannot be the property of his employer. The State argued that under the statute property is defined as anything of value and Brown lost the value of the employees' services when he was paying them for certain work but they were working for someone else. Ellis and Davis were guilty of theft, the State argued, because they caused Brown to lose the value of the employees' services.

The court found in its orders of dismissal that the State's factual allegations against each of the defendants were basically as follows 1) that Ben D. Brown, Inc., contracted with the City of East St. Louis to perform certain services and to that end hired the individuals named in the indictment;

2) that those individuals would gather at East St. Louis City Hall each morning to be instructed as to what tasks they should perform that day;

3) that defendant, as assistant to the mayor, would instruct the individuals as to what tasks he wished them to perform;

4) that defendant knew that the aforesaid individuals were employed by Ben D. Brown, Inc., to perform certain services for the city;

5) that despite this knowledge, defendant instructed or requested that these individuals perform tasks other than that for which they were hired by enticing them with promises of jobs or other rewards;

6) that the defendant did so with the intention of depriving Ben D. Brown, Inc., of the services and/or labor of the individuals in its employ; and

7) that the defendant is charged with the offense of theft in violation of subsection 16-1(a)(1) and based thereon, official misconduct.

The court ruled in separate criminal actions against the defendants, which are consolidated for purposes of this appeal, that the indictments failed to state an offense for theft of property under section 16-1(a)(1) of the Criminal Code of 1961 (Ill.Rev.Stat.1987, ch. 38, par. 16-1(a)(1)), because the anticipated labor of an employee is not the property of his employer as the term "property" is defined within said section of the Code. The court further found in the orders of dismissal that section 16-3 of the Criminal Code of 1961 (Ill.Rev.Stat.1987, ch. 38, par. 16-3) covers theft of labor or services and that the conduct of defendants described in the indictments would more aptly be addressed by the commercial bribery section of the Criminal Code of 1961 (Ill.Rev.Stat.1987, ch. 38, par. 29A-1).

We initially note that defendant Kelvin Ellis was indicted on 24 counts of official misconduct under sections 33-3(b) and 33-3(c) of the Criminal Code of 1961 which provide as follows:

"A public officer or employee commits misconduct when, in his official capacity, he commits any of the following acts:

* * * * * *

(b) Knowingly performs an act which he knows he is forbidden by law to perform; or

(c) With intent to obtain a personal advantage for himself or another, he performs an act in excess of his lawful authority * * *." (Ill.Rev.Stat.1987, ch. 38, par. 33-3(b) & (c).)

These sections of the official misconduct statute have been interpreted as requiring an allegation that in the performance of the official's duty the defendant violated an identifiable civil or criminal statute, rule, regulation, tenet or any other duty imposed by law. (People v. Weber (1985), 133 Ill.App.3d 686, 88 Ill.Dec. 769, 479 N.E.2d 382; People v. Adams (1978), 64 Ill.App.3d 547, 21 Ill.Dec. 411, 381 N.E.2d 738.) Therefore sufficiency of the counts of official misconduct against Ellis are dependant on sufficiency of the predicate offenses, the theft of property counts, and the State has so stipulated.

Section 16-1(a)(1) of the Criminal Code of 1961 provides that a person commits theft when he knowingly obtains or exerts unauthorized control over property of the owner. (Ill.Rev.Stat.1987, ch. 38, par. 16-1(a)(1).) Theft of property from a person exceeding $300 and not exceeding $10,000 in value, is a class 3 felony. (Ill.Rev.Stat.1987, ch. 38, par. 16-1(b)(4).) "Property" for purposes of section 16-1(a)(1) is defined generally in section 15-1 of the Criminal Code of 1961 as meaning "anything of value." The definition then goes on to list specific items that property includes:

"real estate, money, commercial instruments, admission or transportation tickets, written instruments representing or embodying rights concerning anything of value, labor, or services, or otherwise of value to the owner; things growing on, affixed to, or found on land, or part of or affixed to any building; electricity, gas and water; birds, animals and fish, which ordinarily are kept in a state of confinement; food and drink; samples, cultures, microorganisms, specimens, records, recordings, documents, blueprints, drawings, maps, and whole or partial copies, descriptions, photographs, computer programs or data, prototypes or models thereof, or any other articles, materials, devices, substances and whole or partial copies, descriptions, photographs, prototypes, or models thereof which constitute, represent, evidence, reflect or record a secret scientific, technical, merchandising, production or management information, design, process, procedure, formulae, invention, design, process, procedure, formula, invention, or improvement." (Ill.Rev.Stat.1987, ch. 38, par. 15-1.)

An "owner" is defined for purposes of section 16-1(a)(1) in section 15-2 to mean a person other than the offender, who has possession of or any other interest in the property involved, even though such interest or possession is unlawful, and without whose consent the offender has no authority to exert control over the property. (Ill.Rev.Stat.1987, ch. 38, par. 15-2.) Although the court noted that section 16-3 of the Criminal Code of 1961 concerns theft of labor or services, this section clearly does not apply to defendants' conduct. Section 16-3(a) provides that a person commits theft when he obtains the temporary use of property, use or services of another which are available only for hire, by means of threat or deception or knowing that such use is without the consent of the person providing the property, labor or services. (Ill.Rev.Stat.1987, ch. 38, par. 16-3(a).) By enactment of section 16-3 the legislature intended to protect businesses from the unscrupulous practices of prospective customers. People v. Dillon (1968), 93 Ill.App.2d 151, 158, 236 N.E.2d 411, 415.

Defendants pose a constitutional argument to the State's construction of section 16-1(a)(1): that the labor of one person may be the property of another is anathema to the prohibition of slavery contained in the thirteenth amendment to the Constitution. The State argues on appeal, however, that the...