Dworning v. City of Euclid

892 N.E.2d 420, 119 Ohio St. 3d 83
CourtOhio Supreme Court
DecidedJuly 8, 2008
DocketNo. 2007-0307
StatusPublished
Cited by25 cases

This text of 892 N.E.2d 420 (Dworning v. City of Euclid) is published on Counsel Stack Legal Research, covering Ohio Supreme Court primary law. Counsel Stack provides free access to over 12 million legal documents including statutes, case law, regulations, and constitutions.

Bluebook
Dworning v. City of Euclid, 892 N.E.2d 420, 119 Ohio St. 3d 83 (Ohio 2008).

Opinion

Lanzinger, J.

{¶ 1} In this discretionary appeal, we are asked to determine whether a public employee who alleges discriminatory practices must first exhaust the public employer’s administrative remedies before pursuing the civil action allowed by R.C. Chapter 4112. We hold that the employee need not do so.

Case Background

{¶ 2} Appellee Michael Dworning was employed by appellant city of Euclid for almost 30 years as a firefighter and was serving as fire chief at the time of his separation from employment. Under Section 7, Article V, Charter of the City of Euclid, the fire chief is a member of the classified service. On March 4, 2004, the mayor of Euclid sent a letter to the Euclid Civil Service Commission, stating that Dworning was terminated from his position effective February 20, 2004. A few days later, the mayor sent another letter to the commission, indicating that Dworning had submitted a retirement notice on March 8, 2004, effective as of February 20, 2004.

{¶ 3} Dworning did not file an appeal with the commission to contest his employment termination. Instead, he instituted this action on October 26, 2004, against appellants, the city of Euclid, Thomas Cosgriff, Jim Slivers, and two John Does. The complaint alleged claims of discrimination based on disability, aiding unlawful discriminatory practices, invasion of privacy through disclosure of privileged medical information, defamation, breach of employment contract, and civil conspiracy.

{¶ 4} Appellants filed a motion for summary judgment, arguing that Dworning’s complaint should be dismissed in its entirety because he failed to exhaust his administrative remedies when he did not appeal his alleged constructive discharge to the commission. The trial court granted appellants’ motion for summary judgment on this ground.

[85]*85{¶ 5} The Eighth District Court of Appeals reversed. The appellate court concluded:

{¶ 6} “In the end, we are left with choosing between a judge-made rule of convenience over a clearly defined statutory right. We continue to adhere to the fundamental principles supporting the exhaustion doctrine. In the main, they have the salutary effect of promoting judicial economy and efficiency. We cannot however, apply a doctrine of ‘judicial convenience’ when the General Assembly has so very clearly provided for a right of private action with the intent that it has priority over other laws. The remedial purposes of the discrimination laws are not served by requiring exhaustion of administrative remedies. We therefore hold that a separated civil service employee who has administrative remedies available to him by way of a civil service appeal is not required to exhaust those remedies as a predicate to filing a private disability discrimination action under R.C. * * * 4112.99.” Dworning v. Euclid, 8th Dist. No. 87757, 2006-Ohio-6772, 2006 WL 3743822, ¶ 65.

{¶ 7} We accepted this case as a discretionary appeal. Appellants contend that to sustain the utility of civil service procedures to redress alleged employment wrongs in the public employment setting, this court should require public employees to exhaust internal administrative remedies before launching premature, expansive, and potentially unnecessary employment lawsuits against public employers. Dworning responds that because the statutory language of R.C. Chapter 4112 is clear and unambiguous, we should not allow a municipality to defeat the chapter’s purpose by requiring a public employee to exhaust internal administrative remedies before filing a civil action against the employer. We agree with Dworning.

Legal Analysis

{¶ 8} As the Eighth District correctly noted, this case involves the interaction between two public policies: the policy requiring the exhaustion of administrative remedies and the policy against discrimination in an employment setting, which is codified in R.C. Chapter 4112. Each policy will be analyzed before we determine their relationship to each other.

Exhaustion of Administrative Remedies

{¶ 9} It is a well-established principle of Ohio law that a party seeking relief from an administrative decision must pursue available administrative remedies before pursuing action in a court. Noernberg v. Brook Park (1980), 63 Ohio St.2d 26, 29, 17 O.O.3d 16, 406 N.E.2d 1095, citing State ex rel. Lieux v. Westlake (1951), 154 Ohio St. 412, 43 O.O. 343, 96 N.E.2d 414. We have stated, “ ‘Exhaustion is generally required as a matter of preventing premature interference with agency processes, so that the agency may function efficiently and so that it may [86]*86have an opportunity to correct its own errors, to afford the parties and the courts the benefit of its experience and expertise, and to compile a record which is adequate for judicial review.’ Weinberger v. Salfi (1975), 422 U.S. 749, 765, 95 S.Ct. 2457, 2466, 45 L.Ed.2d 522. The purpose of the doctrine ‘ * * * is to permit an administrative agency to apply its special expertise * * * in developing a factual record without premature judicial intervention.’ Southern Ohio Coal Co. v. Donovan (C.A.6, 1985), 774 F.2d 693, 702. The judicial deference afforded administrative agencies is to ‘ * * * “prepare the way, if the litigation should take its ultimate course, for a more informed and precise determination by the Court * * *_» > Ricci v. Chicago Mercantile Exchange (1973), 409 U.S. 289, 306, 93 S.Ct. 573, 582, 34 L.Ed.2d 525.” Nemazee v. Mt. Sinai Med. Ctr. (1990), 56 Ohio St.3d 109, 111-112, 564 N.E.2d 477.

{¶ 10} The exhaustion doctrine is not without exception. For instance, when there is a judicial remedy that is intended to be separate from the administrative remedy, the requirement of exhaustion of administrative remedies does not apply. Basic Distrib. Corp. v. Ohio Dept. of Taxation (2002), 94 Ohio St.3d 287, 290, 762 N.E.2d 979.

{¶ 11} The failure to exhaust administrative remedies is not a jurisdictional defect but is rather an affirmative defense, if timely asserted and maintained. Jones v. Chagrin Falls (1997), 77 Ohio St.3d 456, 674 N.E.2d 1388, syllabus. In this case, appellants asserted the defense of failure to exhaust administrative remedies in their answer and then sought summary judgment based on the defense.

{¶ 12} Pursuant to the home rule powers granted to municipalities by Section 3, Article XVIII of the Ohio Constitution, the city of Euclid has adopted a charter that gives the mayor the power to remove any officer or employee of the city. Section 2(D), Article IV, Euclid Charter. That power is subject to the commission’s duty under Section 7, Article V, Euclid Charter, to hear appeals from a decision by the mayor to remove an employee.

{¶ 13} Pursuant to R.C. 124.40, the commission has the authority to promulgate rules not inconsistent with R.C. Chapter 124. The Local Rules of the Civil Service Commission provide:

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Cite This Page — Counsel Stack

Bluebook (online)
892 N.E.2d 420, 119 Ohio St. 3d 83, Counsel Stack Legal Research, https://law.counselstack.com/opinion/dworning-v-city-of-euclid-ohio-2008.