Mandamus, Quo Warranto and the Original Jurisdiction of the Supreme Court of Arkansas
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University of Arkansas at Little Rock Law Review Volume 20 Issue 4 Honoring the 100th Anniversary of the Article 3 Arkansas Bar Association 1998 Judicial Coup D'état: Mandamus, Quo Warranto and the Original Jurisdiction of the Supreme Court of Arkansas Logan Scott Stafford University of Arkansas at Little Rock William H. Bowen School of Law Follow this and additional works at: https://lawrepository.ualr.edu/lawreview Part of the Courts Commons, Jurisdiction Commons, and the Legal History Commons Recommended Citation Logan Scott Stafford, Judicial Coup D'état: Mandamus, Quo Warranto and the Original Jurisdiction of the Supreme Court of Arkansas, 20 U. ARK. LITTLE ROCK L. REV. 891 (1998). Available at: https://lawrepository.ualr.edu/lawreview/vol20/iss4/3 This Article is brought to you for free and open access by Bowen Law Repository: Scholarship & Archives. It has been accepted for inclusion in University of Arkansas at Little Rock Law Review by an authorized editor of Bowen Law Repository: Scholarship & Archives. For more information, please contact [email protected]. JUDICIAL COUP D'ETAT: MANDAMUS, QUO WARRANTO AND THE ORIGINAL JURISDICTION OF THE SUPREME COURT OF ARKANSAS Logan Scott Stafford" On May 7, 1874, four of the five justices of the Supreme Court of Arkansas assembled in the state capitol on West Markham Street to deliver the court's decision in Brooks v. Page. The issue in the case seemed relatively simple. The state auditor had issued a warrant for $1,000, and the state treasurer was reluctant to pay the warrant until the court settled certain legal questions. Shortly after convening, the court handed down a one page, three paragraph opinion declaring that it was appropriate for the treasurer to pay the warrant. The court's decision was, however, anything but routine. The case had been contrived by the court's chief justice, and its purpose was to confirm an attempted coup d'etat by disgruntled members of the chief justice's political party. The grounds outside the state capitol were ringed with breastworks manned by the state militia. The troops were there to protect the capitol-and the court-from the masses of armed men who had poured into Little Rock to support a governor ousted from office by judicial decree. Three days earlier, supporters of the ousted governor had kidnapped two of the supreme court justices and held them at gunpoint to prevent the court from meeting to decide Brooks v. Page. Only hours before the court met, the two judges had escaped their captors thanks to the timely arrival of United States mounted infantry. After the court issued its opinion, a certified copy was immediately telegraphed to the president of the United States. It soon became apparent that the chief justice, popularly called "Poker Jack," had overplayed his hand. After reviewing the court's opinion, the attorney general of the United States advised the president to disregard it. Less than a week after issuing the opinion, the four justices were escorted out of town, protected from enraged citizens by United States soldiers. By the end of the month, one of the justices had resigned, and the other three had been impeached by the Arkansas House of Representatives. The decision in Brooks v. Page culminated a tumultuous five year period during which the supreme court greatly expanded its own original jurisdiction to issue writs of mandamus and writs of quo warranto. This enlargement of the court's original jurisdiction occurred during the tenure of a chief justice who displayed an unprecedented willingness to use the court's powers to advance the interests of a particular political faction. It is possible that the * B.S.B.A., University of Arkansas, Fayetteville (1969); J.D., Harvard Law School (1971); Professor of Law, University of Arkansas at Little Rock School of Law. UALR LAW JOURNAL [Vol. 20 institutions of the state could have survived a supreme court that assumed extraordinary powers, or a chief justice who actively participated in partisan politics, but when these two trends coincided, as they did during the period leading up to the issuance of Brooks v. Page, the resulting chaos toppled the government of which the court was a part and the constitution under which the court was organized. The Arkansas Supreme Court has, since its creation in 1836, exercised the power to issue writs of mandamus and quo warranto. A writ of mandamus is an order issued to -a public officer directing the officer to perform an act required by law or refrain from performing an act enjoined by law.' A writ of quo warrantois the traditional way of testing the right of a person to hold an office, although it can also been used to determine the right to exercise a public franchise. When a court issues a writ of quo warranto,the party to whom it is issued must appear before the court and show by what right (literally, "by what warrant") the party purports to hold a particular office or to exercise a particular public franchise.2 The power to order a public officer to perform an act and the power to determine whether a public officer is entitled to hold office are formidable powers to confer on a court. Throughout most of its history the Arkansas Supreme Court's issuance of writs of mandamus or quo warranto has been limited to cases involving the court's jurisdiction to hear appeals from or exercise supervisory control over the. inferior courts of the state. During the five year period ending with Brooks v. Page, the supreme court exercised original jurisdiction to issue these two extraordinary writs. Between 1869 and 1874 a party could apply directly to the supreme court for a writ of mandamus ordering a public official, whether or not that official was a member of the judicial department, to take or refrain from taking a particular action. During the same period it was possible to test any public official's right to hold office by invoking the supreme court's original jurisdiction to issue a writ of quo warranto. The court's expansion of its original jurisdiction during that period illustrates the delicacy with which the checks and balances of the constitution are calibrated. In 1870 the court used its original mandamus jurisdiction to decree the seating of certain members of the General Assembly. Several months later the court ordered the lieutenant governor to appear before it and show cause why he should not be removed from office. In 1873 the attorney general attempted to remove the governor from office by invoking the court's original jurisdiction to issue writs of quo warranto. Brooks v. Page involved 1. See ARK. CODEANN. § 16-115-101 (Michie 1987). 2. See ARK. CODE ANN. § 16-118-105 (Michie 1987). 1998] COUP D'ETAT the exercise of the court's original jurisdiction to issue a writ of mandamus to a state officer. It was also the last official act of the four justices who signed the opinion. I. THE SUPREME COURT'S ORIGINAL JURISDICTION UNDER PRE-1868 CONSTITUTIONS A. Original Jurisdiction under the Constitution of 1836 Arkansas was admitted to the union in 1836 with a constitution that was somewhat vague regarding the supreme court's original jurisdiction to issue writs of mandamus and quo warranto: The Supreme Court, except in cases otherwise directed by this constitution, shall have appellate jurisdiction only, which shall be coextensive with the State, under such restrictions and regulations as may from time to time be prescribed by law. It shall have general superintending control over all inferior and other courts of law and equity. It shall have power to issue writs of error and supersedeas, certiorari and habeas corpus, mandamus and quo warrantoand other remedial writs, and to hear and 3 determine the same. Whether this language vested the supreme court with original jurisdiction to issue writs of quo warrantoarose in an 1839 case styled State v. Ashley et al.4 The attorney for the state filed a motion in the supreme court asking that certain individuals be required to appear and show cause why a writ of quo warranto should not issue against them for usurping the office of directors of the state Real Estate Bank. The individual directors countered that the supreme court lacked original jurisdiction to issue a writ of quo warranto. The court denied the state's motion after first determining that it lacked jurisdiction because the proceeding was criminal rather than civil in nature. In dictum, however, the court interpreted the constitution as conferring on it original jurisdiction to issue writs of quo warranto provided the proceeding was civil rather than criminal in character.5 Twelve years later, however, the court reversed its position and ruled that it lacked original jurisdiction to issue writs of mandamus or quo warranto. In 3. ARK. CONST. OF 1836, art. VI, § 2. 4. 1 Ark. 279 (1839). Two years earlier the court had ruled in Taylor v. Governor, I Ark. 21 (1837), that it had the "power" to issue a mandamus to the governor, but the issue of the court's original jurisdiction was not argued in that case. A subsequent case, Hawkins v. Governor, I Ark. 570, 584 (1839), concluded that the court lacked "jurisdiction" to issue a mandamus to the head of a coordinate department of government. 5. See 1 Ark. at 310-11. UALR LAW JOURNAL [Vol. 20 Ex parte Allis6 a building contractor asked the supreme court to issue a mandamus requiring the secretary of state, the state auditor, and the state treasurer to certify the amount of compensation due the contractor for construction performed at the state penitentiary.