Freudenthal v. County of Nassau

283 A.D.2d 6, 726 N.Y.S.2d 116, 2001 N.Y. App. Div. LEXIS 5645, 86 Fair Empl. Prac. Cas. (BNA) 22
CourtAppellate Division of the Supreme Court of the State of New York
DecidedJune 4, 2001
StatusPublished
Cited by7 cases

This text of 283 A.D.2d 6 (Freudenthal v. County of Nassau) is published on Counsel Stack Legal Research, covering Appellate Division of the Supreme Court of the State of New York primary law. Counsel Stack provides free access to over 12 million legal documents including statutes, case law, regulations, and constitutions.

Bluebook
Freudenthal v. County of Nassau, 283 A.D.2d 6, 726 N.Y.S.2d 116, 2001 N.Y. App. Div. LEXIS 5645, 86 Fair Empl. Prac. Cas. (BNA) 22 (N.Y. Ct. App. 2001).

Opinion

OPINION OF THE COURT

Luciano, J.

We are asked to determine whether a claimant who has filed a complaint alleging unlawful discriminatory practices with the New York State Division of Human Rights is required to file a notice of claim with the municipality against which the claim is asserted as a condition precedent to maintaining an administrative proceeding. We hold that it is unnecessary for a claimant to file a notice of claim with a municipality in connection with a claim pursuant to Executive Law § 296 alleging unlawful discriminatory practices where the claimant has elected to pursue redress with the administrative agency, the New York State Division of Human Rights, rather than through an action in a court of law.

FACTS

In 1970, the petitioner, Dr. Anita Freudenthal, was hired by the appellant Nassau County Department of Health as a marine biologist, and thereafter became the chief of the Office of Marine Ecology in the Bureau of Water Pollution Control of the Nassau County Department of Health. In early 1992, purportedly as a result of a budget crisis in the appellant County of Nassau (hereinafter the County), the Nassau County Department of Health abolished three offices of the Bureau of Water Pollution Control, including the Office of Marine Ecology. Thus, the petitioner, at the age of 60 and the only female among several chiefs supervising the offices in the Bureau of Water Pollution Control, was terminated from her employment.

In April 1992, the petitioner filed a complaint with the New York State Division of Human Rights against the County and [8]*8the Nassau County Department of Health, alleging, inter alia, that she had been subjected to disparate treatment while employed with the Office of Marine Ecology due to her sex and age, and that she had been terminated from her employment on those bases, while male employees with fewer credentials and less experience or seniority were not terminated from their employment despite the similar abolition of their offices. She did not, however, file a notice of claim with the County prior to filing the complaint with the New York State Division of Human Rights.

The New York State Division of Human Rights investigated the allegations of the petitioner’s complaint and provided the Nassau County Department of Health with a full opportunity to respond to its investigation and questions. In January 19.93, the New York State Division of Human Rights concluded that there was probable cause to believe that the Nassau County Department of Health had engaged in the unlawful discriminatory practice of which the petitioner complained and recommended a public hearing. No further action was taken by any party to the proceeding until the New York State Division of Human Rights notified the petitioner by letter dated July 15, 1999, that because she had failed to file a notice of claim in connection with her case, the complaint was in danger of being dismissed. She was advised to seek legal counsel.

The petitioner brought this hybrid proceeding pursuant to General Municipal Law § 50-e for leave to serve a late notice of claim and action for a judgment declaring that she was not required to file a notice of claim. She argued, inter alia, that her claim that the appellants had committed an unlawful discriminatory practice pursuant to Executive Law § 296 was not a tort claim, and, therefore, she was not required to comply with General Municipal Law § 50-i, which mandates the filing of a notice of claim as a condition precedent to the maintenance of an unlawful discriminatory practice claim. The County argued in opposition that the language of County Law § 52 and Nassau County Administrative Code § 11-4.2, also concerning notice of claim requirements in tort actions, was broad enough to encompass a claim to recover for unlawful discriminatory practice pursuant to Executive Law § 296. In its order and judgment in favor of the petitioner, the Supreme Court, inter alia, declared that she was not required to file a notice of claim as a condition precedent to the maintenance of her complaint with the New York State Division of Human Rights.

[9]*9ANALYSIS

In. general, a party may not make a claim in law or equity against a municipality without first notifying the municipality of its intention to make the claim (see, General Municipal Law § 50-i [1]; § 50-e). The appellants correctly argue that the notice requirements of both County Law § 52 and Nassau County Administrative Code § 11-4.1 are applicable to private unlawful discriminatory practice claims pursuant to Executive Law § 296 which are commenced in a court of law (see, Mills v County of Monroe, 59 NY2d 307, cert denied 464 US 1018; see also, Pustilnik v Hynes, 2000 US Dist LEXIS 8718, 2000 WL 914629 [ED NY, June 27, 2000]; Hibbert v Suffolk County Dept. of Probation, 267 AD2d 205). This case is distinguishable because the petitioner did not commence an action in a court of law. Instead, she sought redress through an administrative agency investigation and proceeding. In choosing this form of redress, she was expressly precluded from commencing an action in a court of law for damages or other remedies, unless the administrative agency dismissed the administrative proceeding on the ground of “administrative convenience” (see, Executive Law § 297 [9]; Matter of Pan Am. World Airways v New York State Human Rights Appeal Bd., 61 NY2d 542).

The issue is not, therefore, as the appellants contend, whether the petitioner’s allegations of discrimination constitute the type of claim for which a notice of claim must be filed. The issue is, instead, whether the type of forum in which a party elects to pursue a claim against a municipality determines the applicability of the notice of claim requirements.

The plain meaning of the language which the New York State Legislature has chosen to employ in the notice of claim statutes is instructive. General Municipal Law § 50-i (1) provides, in relevant part:

“No action or special proceeding shall be prosecuted or maintained against a city, county, town, village, fire district or school district for personal injury, wrongful death or damage to real or personal property * * * unless, (a) a notice of claim shall have been made and served upon the city, county, town, village, fire district or school district in compliance with section fifty-e of this chapter, (b) it shall appear by and as an allegation in the complaint or moving papers that at least thirty days have elapsed since the service of such notice and that [10]*10adjustment or payment thereof has been neglected or refused, and (c) the action or special proceeding shall be commenced within one year and ninety days after the happening of the event upon which the claim is based” (emphasis added).

Notably, the statute refers to an “action or special proceeding.” An action is the plenary prosecution of a right in a court of law, seeking the vindication of that right in a final judgment (see, Siegel, NY Prac § 4, at 5 [2d ed]; Black’s Law Dictionary 29 [7th ed 1999]). The word “action” includes a special proceeding (see, CPLR 105 [b]), and actions and special proceedings are “civil judicial proceedings” (see, CPLR 103 [a], [b]). Subdivision (b) of General Municipal Law § 50-i (1), moreover, refers specifically to the allegations of a complaint or moving papers, documents usually associated with an action in a court of law.

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Bluebook (online)
283 A.D.2d 6, 726 N.Y.S.2d 116, 2001 N.Y. App. Div. LEXIS 5645, 86 Fair Empl. Prac. Cas. (BNA) 22, Counsel Stack Legal Research, https://law.counselstack.com/opinion/freudenthal-v-county-of-nassau-nyappdiv-2001.