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"text": "APPELLATE COURT OF ILLINOIS", "paragraph_id": "para_6" }, { "text": "FIRST DISTRICT", "paragraph_id": "para_7" }, { "text": "DANIEL SOLANO, on Behalf of", "paragraph_id": "para_8" }, { "text": "Plaintiff and a Class,", "paragraph_id": "para_9" }, { "text": "Plaintiff-Appellant,", "paragraph_id": "para_10" }, { "text": "v.", "paragraph_id": "para_11" }, { "text": "THE CITY OF CHICAGO,", "paragraph_id": "para_12" }, { "text": "Defendant-Appellee.", "paragraph_id": "para_13" }, { "text": ")", "paragraph_id": "para_14" }, { "text": ")", "paragraph_id": "para_15" }, { "text": ")", "paragraph_id": "para_16" }, { "text": ")", "paragraph_id": "para_17" }, { "text": ")", "paragraph_id": "para_18" }, { "text": ")", "paragraph_id": "para_19" }, { "text": ")", "paragraph_id": "para_20" }, { "text": ")", "paragraph_id": "para_21" }, { "text": ")", "paragraph_id": "para_22" }, { "text": "Appeal from the", "paragraph_id": "para_23" }, { "text": "Circuit Court of", "paragraph_id": "para_24" }, { "text": "Cook County.", "paragraph_id": "para_25" }, { "text": "No. 2023CH02916", "paragraph_id": "para_26" }, { "text": "The Honorable", "paragraph_id": "para_27" }, { "text": "Michael T. Mullen,", "paragraph_id": "para_28" }, { "text": "Judge Presiding.", "paragraph_id": "para_29" }, { "text": "JUSTICE WILSON delivered the judgment of the court, with opinion.", "paragraph_id": "para_30" }, { "text": "Presiding Justice Mitchell and Justice Oden Johnson concurred in the judgment and", "paragraph_id": "para_31" }, { "text": "opinion.", "paragraph_id": "para_32" }, { "text": "______________________________________________________________________________", "paragraph_id": "para_33" }, { "text": "OPINION", "paragraph_id": "para_34" }, { "text": "¶ 1 I. BACKGROUND", "paragraph_id": "para_35" }, { "text": "¶ 2 Plaintiff Daniel Solano is a commercial truck driver. On March 20, 2023, the City of", "paragraph_id": "para_36" }, { "text": "Chicago (City) issued a citation to Solano alleging that he was operating an overweight tractor-", "paragraph_id": "para_37" }, { "text": "trailer. Specifically, the citation stated Solano’s tractor-trailer weighed 26,000 pounds, 16,000", "paragraph_id": "para_38" }, { "text": "pounds over the applicable limit, in violation of section 9-72-080 of the Chicago Municipal Code", "paragraph_id": "para_39" }, { "text": "(Municipal Code). Chicago Municipal Code § 9-72-080 (amended Dec. 20, 2025). The citation", "paragraph_id": "para_40" }, { "text": "fined Solano $2,655 and informed him that he could request a hearing at the Chicago Department", "paragraph_id": "para_41" }, { "text": "No. 1-24-2135", "paragraph_id": "para_42" }, { "text": "2", "paragraph_id": "para_43" }, { "text": "of Administrative Hearings (DOAH).", "paragraph_id": "para_44", "court_paragraph": 2 }, { "text": "¶ 3 On March 27, 2023, Solano filed this lawsuit in the Circuit Court of Cook County,", "paragraph_id": "para_45" }, { "text": "challenging DOAH’s authority to adjudicate his weight violation. Solano contends that Chicago", "paragraph_id": "para_46" }, { "text": "may not administratively adjudicate weight violations carrying fines over $250. In counts I and II", "paragraph_id": "para_47" }, { "text": "of Solano’s original complaint, he asserted that the Illinois Municipal Code barred the City from", "paragraph_id": "para_48" }, { "text": "administratively adjudicating weight violations. In counts III and IV, Solano asserted that certain", "paragraph_id": "para_49" }, { "text": "provisions of the Illinois Vehicle Code (625 ILCS 5/11-208.2, 11-208.3 (West 2024)) barred the", "paragraph_id": "para_50" }, { "text": "City from imposing fines exceeding $250 for administratively adjudicated overweight vehicle", "paragraph_id": "para_51" }, { "text": "offenses. Solano also filed a hearing request before DOAH (Docket No. 23CS000884). On May", "paragraph_id": "para_52" }, { "text": "10, 2023, the DOAH matter was continued by agreement of the parties.", "paragraph_id": "para_53" }, { "text": "¶ 4 While this case was pending in the circuit court, the supreme court decided Cammacho v.", "paragraph_id": "para_54" }, { "text": "City of Joliet, 2024 IL 129263, holding that section 1-2.1-2 of the Illinois Municipal Code (65", "paragraph_id": "para_55" }, { "text": "ILCS 5/1-2.1-2 (West 2020)) does not preempt a municipality’s home rule authority to", "paragraph_id": "para_56" }, { "text": "administratively adjudicate violations of its ordinances. Cammacho, 2024 IL 129263, ¶ 31. Solano", "paragraph_id": "para_57" }, { "text": "then amended his complaint to remove counts I and II which were based on the Illinois Municipal", "paragraph_id": "para_58" }, { "text": "Code.", "paragraph_id": "para_59" }, { "text": "¶ 5 Solano’s amended complaint, which is the operative pleading before us, contains two", "paragraph_id": "para_60" }, { "text": "counts: count I for declaratory relief and count II for unjust enrichment. Count I seeks a", "paragraph_id": "para_61" }, { "text": "“declaration that all provisions of the Municipal Code of the City of Chicago that enabled the", "paragraph_id": "para_62" }, { "text": "collection of fines, penalties and other amounts in excess of $250 for violation of ordinances", "paragraph_id": "para_63" }, { "text": "governing operation of vehicles through administrative adjudication are void for exceeding what", "paragraph_id": "para_64" }, { "text": "is permissible under the Vehicle Code[.]” Count II asserts that the City has been unjustly enriched", "paragraph_id": "para_65" }, { "text": "because it collected fines exceeding the statutory limits set forth in the Vehicle Code. Solano brings", "paragraph_id": "para_66" }, { "text": "No. 1-24-2135", "paragraph_id": "para_67" }, { "text": "3", "paragraph_id": "para_68" }, { "text": "the claims individually and on behalf of a putative class of individuals fined more than $250 for", "paragraph_id": "para_69", "court_paragraph": 3 }, { "text": "weight violations through DOAH hearings.1", "paragraph_id": "para_70" }, { "text": "¶ 6 On June 10, 2024, the City moved to dismiss both of Solano’s remaining claims. First, the", "paragraph_id": "para_71" }, { "text": "City argued under section 2-619 of the Code of Civil Procedure (735 ILCS 5/2-619 (West 2024))", "paragraph_id": "para_72" }, { "text": "that the claims were not ripe because no hearing has occurred and no fine has been imposed.", "paragraph_id": "para_73" }, { "text": "Second, the City argued under section 2-615 of the Code of Civil Procedure (id. § 2-615) that the", "paragraph_id": "para_74" }, { "text": "claims fail on the merits because the City has home rule authority to conduct administrative", "paragraph_id": "para_75" }, { "text": "hearings for weight violations carrying fines over $250.", "paragraph_id": "para_76" }, { "text": "¶ 7 On September 26, 2024, following a hearing, Judge Michael T. Mullen granted the City’s", "paragraph_id": "para_77" }, { "text": "motion to dismiss with prejudice. The circuit court ruled that the City “adjudicates overweight", "paragraph_id": "para_78" }, { "text": "vehicle violations pursuant to its home rule authority consistent with its constitutional", "paragraph_id": "para_79" }, { "text": "authorization to do just that.” The court further ruled that the City’s home rule “authority to enter", "paragraph_id": "para_80" }, { "text": "administrative determinations of liability for overweight vehicle violations was not preempted by", "paragraph_id": "para_81" }, { "text": "section 11-208.2” of the Vehicle Code (625 ILCS 5/11-208.2 (West 2024)). According to the", "paragraph_id": "para_82" }, { "text": "circuit court, “the City’s [home rule] authority to set fines and penalties for administratively", "paragraph_id": "para_83" }, { "text": "adjudicated overweight vehicle violations is not capped at $250[.]” As a result, Judge Mullen", "paragraph_id": "para_84" }, { "text": "granted the City’s 2-615 motion and dismissed Solano’s claim for declaratory judgment. The", "paragraph_id": "para_85" }, { "text": "circuit court also dismissed the claim for unjust enrichment because it was dependent on the", "paragraph_id": "para_86" }, { "text": "conclusion that the City lacked authority to hold hearings for weight violations carrying fines over", "paragraph_id": "para_87" }, { "text": "$250. Having dismissed all claims on the merits, the court denied the City’s section 2-619 motion", "paragraph_id": "para_88" }, { "text": "1Section 208.3 contains two separate caps on fines and penalties: a $250 cap and a $500", "paragraph_id": "para_89" }, { "text": "cap. See 625 ILCS 5/11-208.3(a), (b)(10) (West 2024). Plaintiff assumes that the $250 cap would", "paragraph_id": "para_90" }, { "text": "apply here. The City states it is currently litigating which of these caps applies to certain", "paragraph_id": "para_91" }, { "text": "ordinance violations in Blaha v. City of Chicago, No. 2018-CH-08945 (Cir. Ct. Cook County).", "paragraph_id": "para_92" }, { "text": "We do not resolve the issue, as the fine here is well above either cap.", "paragraph_id": "para_93" }, { "text": "No. 1-24-2135", "paragraph_id": "para_94" }, { "text": "4", "paragraph_id": "para_95" }, { "text": "to dismiss—based on the argument that the claims were not ripe—as moot. Solano timely appealed", "paragraph_id": "para_96", "court_paragraph": 4 }, { "text": "the final dismissal pursuant to Illinois Supreme Court Rule 301 (eff. Feb. 1, 1994).", "paragraph_id": "para_97" }, { "text": "¶ 8 II. ANALYSIS", "paragraph_id": "para_98" }, { "text": "¶ 9 A motion to dismiss filed under section 2-615 (735 ILCS 5/2-615 (West 2024)) “attacks", "paragraph_id": "para_99" }, { "text": "the legal sufficiency of the complaint based upon defects appearing on the face of the complaint.”", "paragraph_id": "para_100" }, { "text": "Compton v. Country Mutual Insurance Co., 382 Ill. App. 3d 323, 325-26 (2008). The question on", "paragraph_id": "para_101" }, { "text": "appeal is “whether the allegations in the complaint, when viewed in a light most favorable to the", "paragraph_id": "para_102" }, { "text": "plaintiff, are sufficient to state a cause of action upon which relief can be granted.” (Internal", "paragraph_id": "para_103" }, { "text": "quotation marks omitted.) Vogt v. Round Robin Enterprises, Inc., 2020 IL App (4th) 190294, ¶ 14.", "paragraph_id": "para_104" }, { "text": "This court will affirm dismissal if “no set of facts can be proven which would entitle the plaintiff", "paragraph_id": "para_105" }, { "text": "to the relief sought.” (Internal quotation marks omitted.) Id.", "paragraph_id": "para_106" }, { "text": "¶ 10 We review the dismissal of a complaint de novo. Maddux v. Blagojevich, 233 Ill. 2d 508,", "paragraph_id": "para_107" }, { "text": "513 (2009). We “may affirm the dismissal if the record supports a proper ground for dismissal,”", "paragraph_id": "para_108" }, { "text": "regardless of whether the trial court relied on that ground. Station Place Townhouse Condominium", "paragraph_id": "para_109" }, { "text": "Ass’n v. Village of Glenview, 2022 IL App (1st) 211131, ¶ 26.", "paragraph_id": "para_110" }, { "text": "¶ 11 We address two issues under the de novo standard of review: (1) justiciability of Solano’s", "paragraph_id": "para_111" }, { "text": "claims and (2) DOAH’s ability to adjudicate pursuant to home rule authority. First, we consider", "paragraph_id": "para_112" }, { "text": "justiciability, although the circuit court did not address it. We analyze justiciability using the", "paragraph_id": "para_113" }, { "text": "doctrines of ripeness and exhaustion of administrative remedies and hold that Solano’s challenge", "paragraph_id": "para_114" }, { "text": "to DOAH’s jurisdiction is fit for our review. We note that, because no administrative decision or", "paragraph_id": "para_115" }, { "text": "fine has been issued, the question of enforcement is premature, and we take no position on the", "paragraph_id": "para_116" }, { "text": "enforcement mechanisms available to the City in the event that they attempt to enforce a fine", "paragraph_id": "para_117" }, { "text": "against Solano in the future.", "paragraph_id": "para_118" }, { "text": "No. 1-24-2135", "paragraph_id": "para_119" }, { "text": "5", "paragraph_id": "para_120" }, { "text": "¶ 12 Second, having found that the question of whether or not DOAH has jurisdiction is properly", "paragraph_id": "para_121", "court_paragraph": 5 }, { "text": "before us, we conclude that DOAH’s authority to adjudicate weight violations arises from", "paragraph_id": "para_122" }, { "text": "Chicago’s home rule powers and is not expressly limited by the Vehicle Code. As a result, the", "paragraph_id": "para_123" }, { "text": "circuit court properly dismissed count I (declaratory judgment). Further, because DOAH’s", "paragraph_id": "para_124" }, { "text": "authority is not expressly limited by the Vehicle Code, count II (unjust enrichment) also fails.", "paragraph_id": "para_125" }, { "text": "Thus, we affirm the judgment of the circuit court dismissing both remaining counts of Solano’s", "paragraph_id": "para_126" }, { "text": "complaint with prejudice.", "paragraph_id": "para_127" }, { "text": "¶ 13 A. Justiciability", "paragraph_id": "para_128" }, { "text": "¶ 14 Courts have developed the concept of justiciability to identify appropriate occasions for", "paragraph_id": "para_129" }, { "text": "court action. Alternate Fuels, Inc. v. Director of the Illinois Environmental Protection Agency, 215", "paragraph_id": "para_130" }, { "text": "Ill. 2d 219, 230 (2004). Section 2-701 of the Code of Civil Procedure (735 ILCS 5/2-701 (West", "paragraph_id": "para_131" }, { "text": "2024)) sets forth the general requirements of a justiciable declaratory action under Illinois law.", "paragraph_id": "para_132" }, { "text": "This section provides that a court may,", "paragraph_id": "para_133" }, { "text": "“in cases of actual controversy, make binding declarations of rights, having the", "paragraph_id": "para_134" }, { "text": "force of final judgments, whether or not any consequential relief is or could be", "paragraph_id": "para_135" }, { "text": "claimed, including the determination, *** of the construction of any statute,", "paragraph_id": "para_136" }, { "text": "municipal ordinance, or other governmental regulation, *** and a declaration of the", "paragraph_id": "para_137" }, { "text": "rights of the parties interested. *** The court shall refuse to enter a declaratory", "paragraph_id": "para_138" }, { "text": "judgment or order, if it appears that the judgment or order, would not terminate the", "paragraph_id": "para_139" }, { "text": "controversy or some part thereof, giving rise to the proceeding.” Id. § 2-701(a).", "paragraph_id": "para_140" }, { "text": "¶ 15 We are required to construe the declaratory judgment statute liberally and avoid unduly", "paragraph_id": "para_141" }, { "text": "technical interpretations. Alternate Fuels, Inc., 215 Ill. 2d at 230. The mere existence of a claim or", "paragraph_id": "para_142" }, { "text": "challenge to plaintiff’s legal interests that creates uncertainty about plaintiff’s rights establishes a", "paragraph_id": "para_143" }, { "text": "No. 1-24-2135", "paragraph_id": "para_144" }, { "text": "6", "paragraph_id": "para_145" }, { "text": "condition of justiciability. Id. at 231. Justiciability includes several sub-categories, including", "paragraph_id": "para_146", "court_paragraph": 6 }, { "text": "advisory opinions, standing, ripeness, mootness, and administrative questions. Id. at 230. Here the", "paragraph_id": "para_147" }, { "text": "relevant sub-categories of justiciability are ripeness and administrative questions. We will discuss", "paragraph_id": "para_148" }, { "text": "each in turn.", "paragraph_id": "para_149" }, { "text": "¶ 16 1. Ripeness", "paragraph_id": "para_150" }, { "text": "¶ 17 We begin with ripeness because the City sought dismissal under section 2-619 (735 ILCS", "paragraph_id": "para_151" }, { "text": "5/2-619 (West 2024)) on the ground that Solano’s claims are not ripe. The City argues we must", "paragraph_id": "para_152" }, { "text": "dismiss for lack of ripeness because DOAH has not yet held a hearing and the City has not yet", "paragraph_id": "para_153" }, { "text": "imposed any fines against Solano. “[I]n the context of a challenge to an administrative action, we", "paragraph_id": "para_154" }, { "text": "specifically consider ripeness, a component of justiciability.” Alternate Fuels, Inc., 215 Ill. 2d at", "paragraph_id": "para_155" }, { "text": "231. The ripeness doctrine prevents courts from “entangling themselves in abstract disagreements”", "paragraph_id": "para_156" }, { "text": "and protects agencies from court interference “until an administrative decision has been", "paragraph_id": "para_157" }, { "text": "formalized” and its effects felt by the parties. (Internal quotation marks omitted.) Bartlow v.", "paragraph_id": "para_158" }, { "text": "Shannon, 399 Ill. App. 3d 560, 568 (2010).", "paragraph_id": "para_159" }, { "text": "¶ 18 To determine ripeness, we apply the two-part Morr-Fitz test. Morr-Fitz, Inc. v.", "paragraph_id": "para_160" }, { "text": "Blagojevich, 231 Ill. 2d 474, 490 (2008). Under the first prong, we consider whether the issue is", "paragraph_id": "para_161" }, { "text": "fit for judicial decision, which generally means that the issue is legal rather than factual. Bartlow,", "paragraph_id": "para_162" }, { "text": "399 Ill. App. 3d at 569. Under the second prong, we consider any hardship that would result from", "paragraph_id": "para_163" }, { "text": "withholding judicial consideration. Morr-Fitz, 231 Ill. 2d at 490.", "paragraph_id": "para_164" }, { "text": "¶ 19 Here, the Morr-Fitz factors favor ripeness. Turning to the first prong, the question of", "paragraph_id": "para_165" }, { "text": "DOAH’s authority to adjudicate weight violations is fit for judicial decision because it is a legal,", "paragraph_id": "para_166" }, { "text": "rather than a factual, question. Bartlow, 399 Ill. App. 3d at 569. At issue here is whether Municipal", "paragraph_id": "para_167" }, { "text": "Code section 9-72-080(a) constitutes a standing or parking violation that is subject to a $250 cap", "paragraph_id": "para_168" }, { "text": "No. 1-24-2135", "paragraph_id": "para_169" }, { "text": "7", "paragraph_id": "para_170" }, { "text": "on fines for administrative hearings. Chicago Municipal Code § 9-72-080(a) (amended Dec. 20,", "paragraph_id": "para_171", "court_paragraph": 7 }, { "text": "2025). Both sides have approached this matter in terms of statutory construction, and there is no", "paragraph_id": "para_172" }, { "text": "dispute over the facts leading up to the $2,665 citation. Thus, Solano has satisfied the first Morr-", "paragraph_id": "para_173" }, { "text": "Fitz prong with respect to DOAH’s authority, as this is a legal question fit for judicial decision.", "paragraph_id": "para_174" }, { "text": "¶ 20 Turning to the second Morr-Fitz prong, we consider any hardship to the parties that would", "paragraph_id": "para_175" }, { "text": "result from withholding judicial consideration. Morr-Fitz, 231 Ill. 2d at 490. “[I]f the harm that a", "paragraph_id": "para_176" }, { "text": "plaintiff claims is merely speculative or contingent, the claim is unripe and a court should not", "paragraph_id": "para_177" }, { "text": "decide it.” Smart Growth Sugar Grove, LLC v. Village of Sugar Grove, 375 Ill. App. 3d 780, 789", "paragraph_id": "para_178" }, { "text": "(2007). Here, the hardship Solano faces is sufficient to render judicial review appropriate at this", "paragraph_id": "para_179" }, { "text": "stage. The City argues that because Solano has not yet been assessed a fine, he has not suffered", "paragraph_id": "para_180" }, { "text": "harm. The City ignores the fact that Solano received a citation making him liable for a $2,655 fine", "paragraph_id": "para_181" }, { "text": "if he takes no further action. The $2,665 fine is neither speculative nor contingent. Moreover, the", "paragraph_id": "para_182" }, { "text": "City fails to address the significant difference between a $250 fine and a $2,655 fine. Solano", "paragraph_id": "para_183" }, { "text": "contends that the large size of the fine caused him to retain counsel to support his defense, which", "paragraph_id": "para_184" }, { "text": "he would not have done if only $250 was at stake. Given the amount of the fine, Solano made a", "paragraph_id": "para_185" }, { "text": "rational choice to expend additional resources (as we suspect others in a similar situation would", "paragraph_id": "para_186" }, { "text": "do) to hire counsel and file a challenge before DOAH. If we withhold consideration, many other", "paragraph_id": "para_187" }, { "text": "commercial truck drivers will face the same alleged hardship that Solano claims he now faces.", "paragraph_id": "para_188" }, { "text": "Thus, Solano has satisfied the second Morr-Fitz prong where he claims that he was forced to", "paragraph_id": "para_189" }, { "text": "expend his resources to defend against a citation over which he argues DOAH lacks authority.", "paragraph_id": "para_190" }, { "text": "¶ 21 2. Exhaustion of Administrative Remedies", "paragraph_id": "para_191" }, { "text": "¶ 22 Our inquiry does not end with ripeness; we next consider whether Solano is nevertheless", "paragraph_id": "para_192" }, { "text": "required to exhaust the administrative remedies available to him before the courts are permitted to", "paragraph_id": "para_193" }, { "text": "No. 1-24-2135", "paragraph_id": "para_194" }, { "text": "8", "paragraph_id": "para_195" }, { "text": "intervene. Our supreme court has recognized that the “principles of ripeness and exhaustion of", "paragraph_id": "para_196", "court_paragraph": 8 }, { "text": "remedies are closely related” because both involve whether an action is premature. Beahringer v.", "paragraph_id": "para_197" }, { "text": "Page, 204 Ill. 2d 363, 375 (2003). Though ripeness and exhaustion are related, they are distinct", "paragraph_id": "para_198" }, { "text": "doctrines with separate analysis required. See Morr-Fitz, 231 Ill. 2d at 490-504 (analyzing ripeness", "paragraph_id": "para_199" }, { "text": "and exhaustion doctrines separately and holding that the cause of action is ripe but must be", "paragraph_id": "para_200" }, { "text": "dismissed for failure to exhaust administrative remedies).", "paragraph_id": "para_201" }, { "text": "¶ 23 “The doctrine of exhaustion of remedies is a judicially created doctrine that precludes a", "paragraph_id": "para_202" }, { "text": "party from seeking review in the courts without first pursuing all administrative remedies", "paragraph_id": "para_203" }, { "text": "available.” (Internal quotation marks omitted.) Board of Education of Park Forest-Chicago", "paragraph_id": "para_204" }, { "text": "Heights School District No. 163 v. Houlihan, 382 Ill. App. 3d 604, 611 (2008). The exhaustion", "paragraph_id": "para_205" }, { "text": "doctrine applies where an agency is vested with authority to administer a statute. Beahringer, 204", "paragraph_id": "para_206" }, { "text": "Ill. 2d at 375. The purposes of the exhaustion doctrine are, among other things, to allow the agency", "paragraph_id": "para_207" }, { "text": "to fully develop and consider the facts, to give the affected party the opportunity to succeed before", "paragraph_id": "para_208" }, { "text": "the agency, and to “allow[ ] the agency to correct its own errors, thus conserving valuable judicial", "paragraph_id": "para_209" }, { "text": "resources.” Id. This court “generally requires strict compliance” with the exhaustion doctrine.", "paragraph_id": "para_210" }, { "text": "Castaneda v. Illinois Human Rights Comm’n, 132 Ill. 2d 304, 308 (1989).", "paragraph_id": "para_211" }, { "text": "¶ 24 There are several recognized exceptions to the exhaustion doctrine, including where (1) a", "paragraph_id": "para_212" }, { "text": "statute or ordinance is attacked as unconstitutional on its face, (2) multiple administrative remedies", "paragraph_id": "para_213" }, { "text": "exist and at least one is exhausted, (3) the agency cannot provide an adequate remedy, (3) no issues", "paragraph_id": "para_214" }, { "text": "of fact are presented or agency expertise is not involved, (4) irreparable harm will result, or (5) an", "paragraph_id": "para_215" }, { "text": "agency’s jurisdiction is attacked because it is not authorized by statute. Id. at 308-09. Here, the", "paragraph_id": "para_216" }, { "text": "relevant exception is jurisdiction because Solano asserts DOAH does not have jurisdiction to hear", "paragraph_id": "para_217" }, { "text": "weight violations carrying fines over $250. An agency’s jurisdiction is a legal issue for which a", "paragraph_id": "para_218" }, { "text": "No. 1-24-2135", "paragraph_id": "para_219" }, { "text": "9", "paragraph_id": "para_220" }, { "text": "party is not required to exhaust administrative remedies. Hawthorne v. Village of Olympia Fields,", "paragraph_id": "para_221", "court_paragraph": 9 }, { "text": "204 Ill. 2d 243, 254 (2003) (challenges to a municipality’s jurisdiction are not subject to the", "paragraph_id": "para_222" }, { "text": "exhaustion doctrine); County of Kane v. Carlson, 116 Ill. 2d 186, 199 (1987) (same). Thus, to the", "paragraph_id": "para_223" }, { "text": "extent that Solano is challenging DOAH’s jurisdiction, he is not required to exhaust his", "paragraph_id": "para_224" }, { "text": "administrative remedies before a court may intervene.", "paragraph_id": "para_225" }, { "text": "¶ 25 However, Solano’s arguments are not limited to DOAH’s jurisdiction. In addition to the", "paragraph_id": "para_226" }, { "text": "jurisdictional challenge, Solano also asserts that DOAH’s enforcement mechanisms are limited.", "paragraph_id": "para_227" }, { "text": "At oral argument, Solano took the position that unless there is a statute granting the City authority", "paragraph_id": "para_228" }, { "text": "to turn a DOAH decision into an enforceable judgment, the City must adjudicate the weight", "paragraph_id": "para_229" }, { "text": "violation in circuit court. We acknowledge that DOAH’s jurisdiction and the City’s ability to", "paragraph_id": "para_230" }, { "text": "enforce DOAH decisions are closely related. However, jurisdiction and enforcement are not one", "paragraph_id": "para_231" }, { "text": "and the same. It is “important to distinguish the issue of enforceability from the issue of jurisdiction", "paragraph_id": "para_232" }, { "text": "due to the constitutional protections on home rule unit authority.” Cammacho, 2024 IL 129263,", "paragraph_id": "para_233" }, { "text": "¶ 43 n.10. Put another way, the availability of a particular enforcement mechanism is not", "paragraph_id": "para_234" }, { "text": "determinative of an agency’s jurisdiction. Id. ¶ 38.", "paragraph_id": "para_235" }, { "text": "¶ 26 Having separated the issues of jurisdiction and enforcement, we next consider whether a", "paragraph_id": "para_236" }, { "text": "challenge to a particular enforcement mechanism nevertheless falls under one of the exceptions to", "paragraph_id": "para_237" }, { "text": "the exhaustion doctrine. Considering the recognized exceptions to the exhaustion doctrine outlined", "paragraph_id": "para_238" }, { "text": "in Castaneda, the closest exception that might apply is “where no issues of fact are presented or", "paragraph_id": "para_239" }, { "text": "agency expertise is not involved.” Castaneda, 132 Ill. 2d at 309.", "paragraph_id": "para_240" }, { "text": "¶ 27 Solano argues that because the City uses the adjudicatory pathway set forth in Vehicle", "paragraph_id": "para_241" }, { "text": "Code section 11-208.3 to convert administrative orders into circuit court judgments, the section", "paragraph_id": "para_242" }, { "text": "11-208.3 fee cap of $250 must apply. At oral argument, the City denied that it uses the section 11-", "paragraph_id": "para_243" }, { "text": "No. 1-24-2135", "paragraph_id": "para_244" }, { "text": "10", "paragraph_id": "para_245" }, { "text": "208.3 pathway and maintained that it regulates weight violations pursuant only to its constitutional", "paragraph_id": "para_246", "court_paragraph": 10 }, { "text": "home rule authority. The adjudicatory pathway the City uses for enforcement is an issue of fact", "paragraph_id": "para_247" }, { "text": "that is not currently resolved (at least on the record before us).", "paragraph_id": "para_248" }, { "text": "¶ 28 Because DOAH has not held a hearing yet on Solano’s citation, we do not know the", "paragraph_id": "para_249" }, { "text": "outcome of the hearing. We do not know whether a fine over $250 will ever be imposed against", "paragraph_id": "para_250" }, { "text": "Solano. We do not know whether the City will attempt to convert any fine that it does impose into", "paragraph_id": "para_251" }, { "text": "a circuit court judgment. In other words, there is an issue of fact as to whether the City will be", "paragraph_id": "para_252" }, { "text": "relying on the adjudicatory pathway set forth in Vehicle Code section 11-208.3 to convert", "paragraph_id": "para_253" }, { "text": "administrative orders into circuit court judgments. “This court cannot pass judgment on mere", "paragraph_id": "para_254" }, { "text": "abstract propositions of law, render an advisory opinion, or give legal advice as to future events.”", "paragraph_id": "para_255" }, { "text": "Stokes v. Pekin Insurance Co., 298 Ill. App. 3d 278, 281 (1998). A determination on the issue of", "paragraph_id": "para_256" }, { "text": "enforcement for a fine that may never be assessed is exactly the kind of “legal advice as to future", "paragraph_id": "para_257" }, { "text": "events” that we are prohibited from issuing. Id.", "paragraph_id": "para_258" }, { "text": "¶ 29 We note that our supreme court has recognized that “[a] request for modifications to an", "paragraph_id": "para_259" }, { "text": "administrative decision by a home rule municipality *** may be proper if such modifications are", "paragraph_id": "para_260" }, { "text": "necessary to clarify that the decision does not have the force and effect of a court judgment.”", "paragraph_id": "para_261" }, { "text": "Cammacho, 2024 IL 129263, ¶ 38 n.9. We take no position on whether any such request would be", "paragraph_id": "para_262" }, { "text": "appropriate here.", "paragraph_id": "para_263" }, { "text": "¶ 30 Finally, we acknowledge that this is a putative class action including people upon whom", "paragraph_id": "para_264" }, { "text": "DOAH has already imposed fines exceeding $250 for weight violations within the past five years.", "paragraph_id": "para_265" }, { "text": "However, in the context of a putative class action, we consider only whether the named plaintiff’s", "paragraph_id": "para_266" }, { "text": "claims are justiciable, not those of the putative class. See Petta v. Christie Business Holdings Co.,", "paragraph_id": "para_267" }, { "text": "P.C., 2025 IL 130337, ¶¶ 23-25. Here, Solano is the only named plaintiff in this putative class.", "paragraph_id": "para_268" }, { "text": "No. 1-24-2135", "paragraph_id": "para_269" }, { "text": "11", "paragraph_id": "para_270" }, { "text": "Although members of the putative class have purportedly had fines levied against them, we do not", "paragraph_id": "para_271", "court_paragraph": 11 }, { "text": "know whether those fines were converted into circuit court judgments. Thus, the existence of the", "paragraph_id": "para_272" }, { "text": "putative class members does not serve to make the enforcement question appropriate for our", "paragraph_id": "para_273" }, { "text": "review.", "paragraph_id": "para_274" }, { "text": "¶ 31 Having found Solano’s challenge to DOAH’s jurisdiction is ripe for judicial review and", "paragraph_id": "para_275" }, { "text": "not subject to the exhaustion requirement, we next consider whether DOAH has home rule", "paragraph_id": "para_276" }, { "text": "authority to hear Solano’s challenge to the weight violation citation.", "paragraph_id": "para_277" }, { "text": "¶ 32 B. DOAH’s Authority Pursuant to Chicago’s Home Rule Powers", "paragraph_id": "para_278" }, { "text": "¶ 33 DOAH’s jurisdiction flows from Chicago’s home rule authority. Home rule powers are", "paragraph_id": "para_279" }, { "text": "construed liberally and may be limited only by express statutory language. Lintzeris v. City of", "paragraph_id": "para_280" }, { "text": "Chicago, 2023 IL 127547, ¶ 22. Chicago has broad authority under its home rule powers to", "paragraph_id": "para_281" }, { "text": "establish administrative agencies. Austin Gardens, LLC v. City of Chicago Department of", "paragraph_id": "para_282" }, { "text": "Administrative Hearings, 2018 IL App (1st) 163120, ¶ 19. Pursuant to Chicago’s home rule power", "paragraph_id": "para_283" }, { "text": "provided by the Illinois Constitution (Ill. Const. 1970, art. VII, § 6(a)), the city created DOAH to", "paragraph_id": "para_284" }, { "text": "conduct administrative adjudication proceedings. Austin Gardens, 2018 IL App (1st) 163120, ¶ 19.", "paragraph_id": "para_285" }, { "text": "The City gave DOAH express authority to adjudicate weight violations. Chicago Municipal Code", "paragraph_id": "para_286" }, { "text": "§ 9-72-100(a) (added Dec. 7, 2005) (“[A]fter the issuance of any citation for a violation of any", "paragraph_id": "para_287" }, { "text": "weight limitations imposed by this chapter, *** the owner or operator may file a written request", "paragraph_id": "para_288" }, { "text": "for a hearing before [DOAH] ***.”). Thus, we begin with the presumption that DOAH has", "paragraph_id": "para_289" }, { "text": "jurisdiction to issue decisions about weight violations found in the Municipal Code of Chicago.", "paragraph_id": "para_290" }, { "text": "¶ 34 Although we presume DOAH has jurisdiction, the presumption may be overcome if the", "paragraph_id": "para_291" }, { "text": "state legislature has preempted the powers of a home rule unit. Lintzeris, 2023 IL 127547, ¶ 22.", "paragraph_id": "para_292" }, { "text": "To preempt the exercise of a home rule unit’s powers, the state legislature must use language that", "paragraph_id": "para_293" }, { "text": "No. 1-24-2135", "paragraph_id": "para_294" }, { "text": "12", "paragraph_id": "para_295" }, { "text": "“expressly” limits the home rule authority. Id.; Cammacho, 2024 IL 129263, ¶ 22 (“[T]he City’s", "paragraph_id": "para_296", "court_paragraph": 12 }, { "text": "home rule authority to administratively adjudicate its city ordinance violations must be construed", "paragraph_id": "para_297" }, { "text": "liberally but can be limited by the General Assembly by statute. [Citations.] However, such", "paragraph_id": "para_298" }, { "text": "statutory limitations must be expressly stated.”). DOAH’s jurisdiction turns on whether the state", "paragraph_id": "para_299" }, { "text": "legislature has expressly limited Chicago’s home rule authority to conduct administrative hearings", "paragraph_id": "para_300" }, { "text": "about violations of Chicago’s weight limitation ordinance.", "paragraph_id": "para_301" }, { "text": "¶ 35 Whether the legislature has expressly limited Chicago’s home rule authority is a question", "paragraph_id": "para_302" }, { "text": "of statutory interpretation. Our primary goal when interpreting the language of a statute is to", "paragraph_id": "para_303" }, { "text": "ascertain and give effect to the intent of the legislature. Devoney v. Retirement Board of the", "paragraph_id": "para_304" }, { "text": "Policemen’s Annuity & Benefit Fund, 199 Ill. 2d 414, 424-25 (2002) (Freeman, J., dissenting).", "paragraph_id": "para_305" }, { "text": "Legislative intent is best derived from the language of the statute itself, which, if unambiguous,", "paragraph_id": "para_306" }, { "text": "should be enforced as written. Id. at 425. The plain language of a statute is the most reliable", "paragraph_id": "para_307" }, { "text": "indication of legislative intent. DeLuna v. Burciaga, 223 Ill. 2d 49, 59 (2006). When the language", "paragraph_id": "para_308" }, { "text": "of the statute is clear, it must be applied as written without resort to aids or tools of interpretation.", "paragraph_id": "para_309" }, { "text": "Id.", "paragraph_id": "para_310" }, { "text": "¶ 36 Solano argues that, through Vehicle Code sections 11-208.2 and 11-208.3 (625 ILCS 5/11-", "paragraph_id": "para_311" }, { "text": "208.2, 11-208.3 (West 2024)), the Illinois legislature has expressly limited Chicago’s home rule", "paragraph_id": "para_312" }, { "text": "authority to have administrative hearings for weight violations. We disagree. Solano’s argument", "paragraph_id": "para_313" }, { "text": "is premised on the assumption that Municipal Code section 9-72-080(a) fits into one of the five", "paragraph_id": "para_314" }, { "text": "violation categories outlined in Vehicle Code section 11-208.3: standing, parking, compliance,", "paragraph_id": "para_315" }, { "text": "redlight camera, or speed enforcement camera violations. We do not share this assumption.", "paragraph_id": "para_316" }, { "text": "¶ 37 Instead, we consider whether Vehicle Code section 11-208.3 (id. § 11-208.3) applies to the", "paragraph_id": "para_317" }, { "text": "limitations found in Municipal Code section 9-72-080. We begin with the language of section 9-", "paragraph_id": "para_318" }, { "text": "No. 1-24-2135", "paragraph_id": "para_319" }, { "text": "13", "paragraph_id": "para_320" }, { "text": "72-080(a). We must determine the type of violation described in section 9-72-080(a) in order to", "paragraph_id": "para_321", "court_paragraph": 13 }, { "text": "know if it falls within one of the five types covered by Vehicle Code section 11-208.3. Municipal", "paragraph_id": "para_322" }, { "text": "Code section 9-72-080(a) provides:", "paragraph_id": "para_323" }, { "text": "“Except as specifically allowed by statute or other ordinance, no operator shall", "paragraph_id": "para_324" }, { "text": "permit to remain on any public way within the city any motor vehicle whose gross", "paragraph_id": "para_325" }, { "text": "weight exceeds the limits described in Section 15-111 of the Illinois Vehicle Code,", "paragraph_id": "para_326" }, { "text": "[625] ILCS 5/15-111. The weight limitations and formulae contained in Section 15-", "paragraph_id": "para_327" }, { "text": "111 of the Illinois Vehicle Code, [625] ILCS 5/15-111, are hereby incorporated by", "paragraph_id": "para_328" }, { "text": "reference for purposes of calculating permissible weights under this section.”", "paragraph_id": "para_329" }, { "text": "Chicago Municipal Code § 9-72-080(a) (amended Dec. 20, 2025).", "paragraph_id": "para_330" }, { "text": "¶ 38 Vehicle Code section 15-111, which is incorporated by reference into Municipal Code", "paragraph_id": "para_331" }, { "text": "section 9-72-080(a), governs wheel loads, axle loads, and “gross weights” of vehicles. 625 ILCS", "paragraph_id": "para_332" }, { "text": "5/15-111(a) (West 2024). Chapter 15 of the Vehicle Code as a whole contains provisions related", "paragraph_id": "para_333" }, { "text": "to “Size, Weight, and Load Permits.” Id. §§ 15–100 to 15–319. Thus, on its face, the plain language", "paragraph_id": "para_334" }, { "text": "of Municipal Code section 9-72-080(a) is describing a weight violation. See DeLuna, 223 Ill. 2d", "paragraph_id": "para_335" }, { "text": "at 59. The language of the regulation clearly refers to a weight violation because Municipal Code", "paragraph_id": "para_336" }, { "text": "section 9-72-080(a) (Chicago Municipal Code § 9-72-080(a) (amended Dec. 20, 2025)) regulates", "paragraph_id": "para_337" }, { "text": "“gross weight,” and Vehicle Code section 15-111 (625 ILCS 5/15-111(a) (West 2024)) governs", "paragraph_id": "para_338" }, { "text": "loads and “gross weights” of vehicles. Chicago Municipal Code section 9-72-080(a) makes no", "paragraph_id": "para_339" }, { "text": "reference to “standing,” “parking,” or any provision within Vehicle Code Chapter 11.", "paragraph_id": "para_340" }, { "text": "¶ 39 Having determined that Municipal Code section 9-72-080(a) is a weight violation, we next", "paragraph_id": "para_341" }, { "text": "consider whether Vehicle Code section 11-208.3(a) expressly applies to limit weight violations.", "paragraph_id": "para_342" }, { "text": "Vehicle Code section 11-208.3(a) states:", "paragraph_id": "para_343" }, { "text": "No. 1-24-2135", "paragraph_id": "para_344" }, { "text": "14", "paragraph_id": "para_345" }, { "text": "“Any municipality or county may provide by ordinance for a system of", "paragraph_id": "para_346", "court_paragraph": 14 }, { "text": "administrative adjudication of vehicular standing and parking violations and", "paragraph_id": "para_347" }, { "text": "vehicle compliance violations as described in this subsection, automated traffic law", "paragraph_id": "para_348" }, { "text": "violations as defined in Section 11-208.6, 11-208.9, or 11-1201.1, and automated", "paragraph_id": "para_349" }, { "text": "speed enforcement system violations as defined in Section 11-208.8.” Id. § 11-", "paragraph_id": "para_350" }, { "text": "208.3(a).", "paragraph_id": "para_351" }, { "text": "¶ 40 Section 11-208.3(a) recognizes the following five categories: (1) standing, (2) parking,", "paragraph_id": "para_352" }, { "text": "(3) compliance, (4) automated traffic law (red light camera), and (5) automated speed enforcement", "paragraph_id": "para_353" }, { "text": "system (speed camera) violations. Id. Solano’s argument presumes that the weight violations", "paragraph_id": "para_354" }, { "text": "outlined in Municipal Code section 9-72-080 must fit into one of the five violation categories.", "paragraph_id": "para_355" }, { "text": "Solano concedes that the weight violations are not compliance, automated traffic law, or automated", "paragraph_id": "para_356" }, { "text": "speed enforcement violations. The crux of Solano’s argument is that the Municipal Code section", "paragraph_id": "para_357" }, { "text": "9-72-080 weight violations fall under the umbrella of Vehicle Code section 11-208.3 standing or", "paragraph_id": "para_358" }, { "text": "parking violations, and, therefore, Chicago’s home rule authority has been expressly limited by", "paragraph_id": "para_359" }, { "text": "the state legislature.", "paragraph_id": "para_360" }, { "text": "¶ 41 Solano’s theory would reclassify weight violations as “standing” or “parking” violations", "paragraph_id": "para_361" }, { "text": "under Chapter 11. Solano argues the 2011 amendment to Municipal Code section 9-72-080", "paragraph_id": "para_362" }, { "text": "(Chicago Municipal Code § 9-72-080(a) (amended July 6, 2011) (changing the language from", "paragraph_id": "para_363" }, { "text": "“operate” to “permit to remain”)) transformed the weight violation into a standing or parking", "paragraph_id": "para_364" }, { "text": "violation for purposes of Vehicle Code Chapter 11, thus triggering the home rule limitation on the", "paragraph_id": "para_365" }, { "text": "fee amount. Solano’s argument ignores the fact that the Illinois Vehicle Code explicitly recognizes", "paragraph_id": "para_366" }, { "text": "weight violations as a type of violation separate from standing or parking violations. In section 6-", "paragraph_id": "para_367" }, { "text": "204 of the Vehicle Code the legislature clearly distinguishes between the categories of standing,", "paragraph_id": "para_368" }, { "text": "No. 1-24-2135", "paragraph_id": "para_369" }, { "text": "15", "paragraph_id": "para_370" }, { "text": "parking, and weight violations:", "paragraph_id": "para_371", "court_paragraph": 15 }, { "text": "“Whenever any person is convicted of any offense under this Code or similar", "paragraph_id": "para_372" }, { "text": "offenses under a municipal ordinance, other than regulations governing standing,", "paragraph_id": "para_373" }, { "text": "parking or weights of vehicles *** it shall be the duty of the clerk of the court in", "paragraph_id": "para_374" }, { "text": "which such conviction is had within 5 days thereafter to forward to the Secretary of", "paragraph_id": "para_375" }, { "text": "State a report of the conviction and the court may recommend the suspension of the", "paragraph_id": "para_376" }, { "text": "driver’s license or permit of the person so convicted.” (Emphasis added.) 625 ILCS", "paragraph_id": "para_377" }, { "text": "5/6-204(a)(2) (West 2024).", "paragraph_id": "para_378" }, { "text": "¶ 42 The legislature thus has recognized standing, parking, and weights of vehicles as three", "paragraph_id": "para_379" }, { "text": "unique categories of violations under the Vehicle Code. “[T]his court should give independent", "paragraph_id": "para_380" }, { "text": "meaning to all words in the statute.” In re Kelan W., 2021 IL App (5th) 210029, ¶ 12, aff’d, 2022", "paragraph_id": "para_381" }, { "text": "IL 128031. We must construe a statute so as not to render any term superfluous. People v.", "paragraph_id": "para_382" }, { "text": "O’Malley, 2021 IL App (5th) 190127, ¶ 39. If we were to interpret a weight violation to be merely", "paragraph_id": "para_383" }, { "text": "a subset of standing or parking violations, it would make the phrase “weights of vehicles” in", "paragraph_id": "para_384" }, { "text": "section 6-204(a)(2) superfluous. We decline to adopt such an interpretation.", "paragraph_id": "para_385" }, { "text": "¶ 43 Moreover, the legislature distinguishes between standing, parking, and weight violations", "paragraph_id": "para_386" }, { "text": "in the very structure of the Vehicle Code itself. Vehicle Code Chapter 15 is dedicated to weight,", "paragraph_id": "para_387" }, { "text": "size, and permit violations, while Chapter 11 does not discuss vehicle weight and instead governs", "paragraph_id": "para_388" }, { "text": "the “Rules of the Road,” including standing and parking. 625 ILCS 5/ch. 11 (West 2024) (“Chapter", "paragraph_id": "para_389" }, { "text": "11. Rules of the Road”). Vehicle Code section 11-208.3 makes no reference to the term “weight”", "paragraph_id": "para_390" }, { "text": "or the provision of Chapter 15. Id. § 11-208.3 (containing 32 instances of the term “standing,” 33", "paragraph_id": "para_391" }, { "text": "of “parking,” and zero of “weight” or “Chapter 15”). Thus, the plain language of section 11-208.3", "paragraph_id": "para_392" }, { "text": "contains no express limit on the adjudication of weight violations.", "paragraph_id": "para_393" }, { "text": "No. 1-24-2135", "paragraph_id": "para_394" }, { "text": "16", "paragraph_id": "para_395" }, { "text": "¶ 44 Having determined that Vehicle Code section 11-208.3 does not contain an express", "paragraph_id": "para_396", "court_paragraph": 16 }, { "text": "limitation related to weight violations, we next consider whether Vehicle Code section 11-208.2", "paragraph_id": "para_397" }, { "text": "contains such a limitation. Vehicle Code section 11-208.2 states: “Limitation on home rule units.", "paragraph_id": "para_398" }, { "text": "The provisions of this Chapter of this Act limit the authority of home rule units to adopt local", "paragraph_id": "para_399" }, { "text": "police regulations inconsistent herewith except pursuant to Sections 11-208, 11-209, 11-1005.1,", "paragraph_id": "para_400" }, { "text": "11-1412.1, and 11-1412.2 of this Chapter of this Act.” Id. § 11-208.2.", "paragraph_id": "para_401" }, { "text": "¶ 45 Notably, Vehicle Code section 11-208.2 makes no reference to any subsections outside of", "paragraph_id": "para_402" }, { "text": "those found in Chapter 11 (“Rules of the Road”). Nor does it contain the term “weight” or refer to", "paragraph_id": "para_403" }, { "text": "any provision of Vehicle Code Chapter 15. If the legislature had wanted to expressly limit home", "paragraph_id": "para_404" }, { "text": "rule authority to administratively adjudicate weight violations, it could have done so in Chapter", "paragraph_id": "para_405" }, { "text": "15, or Vehicle Code section 11-208.3 could have referenced Chapter 15 or used the word “weight”", "paragraph_id": "para_406" }, { "text": "violations. It has done none of those things. Because the legislature recognizes weight violations", "paragraph_id": "para_407" }, { "text": "as a separate type of violation, unrelated to standing or parking, and the Chapter 11 sections have", "paragraph_id": "para_408" }, { "text": "no express, specific application to weight violations, those sections fail to limit Chicago’s home", "paragraph_id": "para_409" }, { "text": "rule unit’s authority regarding weight violations. See Lintzeris, 2023 IL 127547, ¶ 22 (requiring", "paragraph_id": "para_410" }, { "text": "an “express statement” from the legislature to limit or deny the exercise of a home rule unit’s", "paragraph_id": "para_411" }, { "text": "powers). Solano has pointed to no other statute that limits Chicago’s authority to hold", "paragraph_id": "para_412" }, { "text": "administrative hearings for weight violations, nor are we aware of any.", "paragraph_id": "para_413" }, { "text": "¶ 46 We determine that the Illinois legislature has not adopted an express statement anywhere", "paragraph_id": "para_414" }, { "text": "in Vehicle Code Chapter 11 that would apply to weight violations. Because Municipal Code", "paragraph_id": "para_415" }, { "text": "section 9-72-080 describes a weight violation, we determine that the legislature has not limited", "paragraph_id": "para_416" }, { "text": "DOAH’s jurisdiction to hold hearings about weight violations brought under section 9-72-080.", "paragraph_id": "para_417" }, { "text": "Cammacho, 2024 IL 129263, ¶ 23 (“if a statute does not expressly state that there is a limitation", "paragraph_id": "para_418" }, { "text": "No. 1-24-2135", "paragraph_id": "para_419" }, { "text": "17", "paragraph_id": "para_420" }, { "text": "on home rule units specifically, the concurrent exercise of governmental power by a home rule", "paragraph_id": "para_421", "court_paragraph": 17 }, { "text": "unit will not be read to be restricted”). Thus, DOAH retains jurisdiction to hear weight violations", "paragraph_id": "para_422" }, { "text": "under section 9-72-080. On this basis, we affirm the judgment of the circuit court dismissing count", "paragraph_id": "para_423" }, { "text": "I (declaratory judgment).", "paragraph_id": "para_424" }, { "text": "¶ 47 As pled, Solano’s claim of unjust enrichment is solely premised on the argument that", "paragraph_id": "para_425" }, { "text": "DOAH lacks authority to administratively adjudicate the citation he received. Count II (unjust", "paragraph_id": "para_426" }, { "text": "enrichment) rises and falls with count I (declaratory judgment). On this basis, we affirm the", "paragraph_id": "para_427" }, { "text": "judgment of the circuit court dismissing count II (unjust enrichment).", "paragraph_id": "para_428" }, { "text": "¶ 48 III. CONCLUSION", "paragraph_id": "para_429" }, { "text": "¶ 49 We affirm the dismissal of count I (declaratory judgment) because the Vehicle Code", "paragraph_id": "para_430" }, { "text": "contains no express limitation that would preempt DOAH’s authority to hear weight violations", "paragraph_id": "para_431" }, { "text": "enumerated in Municipal Code section 9-72-080. We affirm the dismissal of count II (unjust", "paragraph_id": "para_432" }, { "text": "enrichment) because it is dependent on a finding in count I that DOAH lacks jurisdiction. We", "paragraph_id": "para_433" }, { "text": "express no judgment on the issue of the enforcement mechanisms available to the City because the", "paragraph_id": "para_434" }, { "text": "issue is not properly before us.", "paragraph_id": "para_435" }, { "text": "¶ 50 Affirmed.", "paragraph_id": "para_436" }, { "text": "No. 1-24-2135", "paragraph_id": "para_437" }, { "text": "18", "paragraph_id": "para_438" }, { "text": "Solano v. City of Chicago, 2026 IL App (1st) 242135", "paragraph_id": "para_439", "court_paragraph": 18 }, { "text": "Decision Under Review: Appeal from the Circuit Court of Cook County, No. 2023-CH-", "paragraph_id": "para_440" }, { "text": "02916; the Hon. Michael T. Mullen, Judge, presiding.", "paragraph_id": "para_441" }, { "text": "Attorneys", "paragraph_id": "para_442" }, { "text": "for", "paragraph_id": "para_443" }, { "text": "Appellant:", "paragraph_id": "para_444" }, { "text": "Daniel A. Edelman, Tara L. Goodwin, Heather Kolbus, and", "paragraph_id": "para_445" }, { "text": "Caileen M. Crecco, of Edelman, Combs, Latturner & Goodwin,", "paragraph_id": "para_446" }, { "text": "LLC, of Chicago, for appellant.", "paragraph_id": "para_447" }, { "text": "Attorneys", "paragraph_id": "para_448" }, { "text": "for", "paragraph_id": "para_449" }, { "text": "Appellee:", "paragraph_id": "para_450" }, { "text": "Mary B. Richardson-Lowry, Corporation Counsel, of Chicago", "paragraph_id": "para_451" }, { "text": "(Myriam Zreczny Kasper, Suzanne M. Loose, and Alexandra", "paragraph_id": "para_452" }, { "text": "Weiss, Assistant Corporation Counsel, of counsel), for appellee.", "paragraph_id": "para_453" } ], "word_count": 5362, "cites": [], "cited_by": [], "sha256": "b86f71814538a8251a398750e1421f8fb7665e28e8937165b838292956a6343a", "source_url": "https://www.illinoiscourts.gov/resources/4fb3b551-f448-43c0-8a62-7121a73bc71d/file", "fetched_at": "2026-10-08T00:10:21.548+00:00", "canonical": "https://legal.exploreworldai.com/ai/judgments/us/illappct-1-24-2135-2026-06-18", "risk_graph": "https://legal.exploreworldai.com/api/public/v1/risk?id=us:illappct-1-24-2135-2026-06-18", "relations_graph": "https://legal.exploreworldai.com/api/public/v1/relations?id=us:illappct-1-24-2135-2026-06-18", "changes": "https://legal.exploreworldai.com/api/public/v1/us-praxis/changes", "agent": "https://legal.exploreworldai.com/api/public/v1/us-praxis/agent?id=us:illappct-1-24-2135-2026-06-18", "verification": { "stored_sha256": "b86f71814538a8251a398750e1421f8fb7665e28e8937165b838292956a6343a", "recomputed_sha256": "b86f71814538a8251a398750e1421f8fb7665e28e8937165b838292956a6343a", "intact": true, "checked_at": "2026-10-10T23:21:29.167Z" } }, "hash": "sha256:93f05f13b1fdaa935653ab2d736d8ea44c78b653fd974b52b294138e62b24486", "version": "legal-2026-10-10", "expires": "2026-10-11T00:00:00.000Z", "dependency": { "index_version": "legal-2026-10-10+legal-2026-10-10+2026-10-10T17:32:53", "content_hash": "sha256:93f05f13b1fdaa935653ab2d736d8ea44c78b653fd974b52b294138e62b24486", "revalidate_after": "2026-10-11T00:21:29.742Z", "max_copy_age_seconds": 3600, "policy": "revalidate-required; attribution-preferred", "changelog": "https://legal.exploreworldai.com/api/public/v1/dependency", "verify": "https://legal.exploreworldai.com/api/public/v1/verify", "stale_copy_invalid": true }, "canonical": "https://legal.exploreworldai.com/api/public/v1/judgment-text?id=us:illappct-1-24-2135-2026-06-18", "follow": [ { "rel": "risk", "href": "https://legal.exploreworldai.com/api/public/v1/risk?id=us:illappct-1-24-2135-2026-06-18" }, { "rel": "relations", "href": "https://legal.exploreworldai.com/api/public/v1/relations?id=us:illappct-1-24-2135-2026-06-18" }, { "rel": "agent", "href": "https://legal.exploreworldai.com/api/public/v1/us-praxis/agent?id=us:illappct-1-24-2135-2026-06-18" }, { "rel": "obligations", "href": "https://legal.exploreworldai.com/api/public/v1/obligation-chain" }, { "rel": "changes", "href": "https://legal.exploreworldai.com/api/public/v1/whats-new?jurisdiction=us" } ], "disclaimer": "Source reference with official identifier. 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