Miller County Board of Education v. Robert McIntosh

Court of Appeals of Georgia·Decided March 20, 2014·No. A13A2480·Published

Opinion

THIRD DIVISION

ANDREWS, P. J.,

DILLARD and MCMILLIAN, JJ.

NOTICE: Motions for reconsideration must be physically received in our clerk’s office within ten days of the date of decision to be deemed timely filed.

http://www.gaappeals.us/rules/

March 20, 2014

In the Court of Appeals of Georgia A13A2480. MILLER COUNTY BOARD OF EDUCATION v.

MCINTOSH

DILLARD, Judge.

This dispute arises from the Miller County Board of Education’s (the “Board”)

termination of Robert McIntosh’s employment as superintendent of the Miller County Schools. McIntosh sued the Board for breach of contract, and the trial court denied the Board’s motion for summary judgment. The Board then filed an application for interlocutory appeal, which we granted. On appeal, the Board claims that the trial court erred in denying its motion for summary judgment because (1) McIntosh failed to exhaust his administrative remedies before filing suit, and (2) the contract McIntosh claims was breached is void. For the reasons noted infra, we affirm.

The record shows that McIntosh and the Board entered into an employment agreement (the “2010 Employment Agreement”), whereby McIntosh would serve as the superintendent of Miller County Schools, effective December 30, 2010, and terminating on December 30, 2013. On April 16, 2012, the Board and McIntosh entered into a second employment agreement (the “2012 Employment Agreement”) for a term commencing on April 16, 2012, and terminating on April 15, 2015. There do not appear to be, and the parties do not contend, that there are any material differences between the 2010 Employment Agreement and the 2012 Employment Agreement (referred to collectively herein as the “Employment Agreements”), other than McIntosh’s respective terms of employment under those agreements. And under either contract, McIntosh was subject to dismissal or suspension for the same reasons, such as incompetency and insubordination. But prior to any such dismissal or suspension, the Employment Agreements provided that

[b]efore dismissal or termination of contract or suspension, for any period of time, McIntosh shall be given a written statement of charges in sufficient detail to enable McIntosh to determine the nature of the grounds for dismissal or suspension action. McIntosh shall be required to file written response thereto within seven (7) days, setting forth the contentions of McIntosh, and stating distinctly any special defenses.

Either party may request a pre-hearing conference for the purpose of

simplifying issues and making arrangements for an exchange of witness names and documents and other determinative evidence. Hearing will be held before a disinterested, impartial tribune of three (3) educators selected by the Board. The tribunal or State Bar member, as the case may be, shall be required to respond to written questions at least five (5)

days before the hearing touching on his, her or their impartiality, and relationships to the Board or its attorney.

And by letter dated November 13, 2012, the Board terminated McIntosh’s employment for cause, effective November 15, 2012,1 informing him that “a Hearing with respect to the termination of your employment will be held before a Board- appointed Tribunal after November 15, 2012 provided that you request a hearing.” This correspondence further provided that “[i]f a hearing is not requested on or before December 7, 2012 by 4:00 p.m., then your right to a hearing shall be deemed waived.”

In a reply dated November 21, 2012, McIntosh responded to the termination letter, maintaining, inter alia, that its allegations were insufficient factually and legally to constitute cause for his termination, asserting his right to a pre-hearing

1 The reasons cited were: “(1) Incompetency; (2) Insubordination, (3) Willful neglect of duties, (4) Failure to comply fully with warranty provisions; and (5) other good and sufficient cause.”

conference, and advising that “we will have to work together to obtain a mutually agreeable tribunal date.” Nevertheless, no tribunal was ever appointed by the Board, and no hearing was ever held. And thereafter, on January 28, 2013, McIntosh sued the Board in superior court for damages arising out of the Board’s alleged breach of the 2012 Employment Agreement. The Board answered McIntosh’s complaint, and, inter alia, moved that the complaint be dismissed for failure to exhaust administrative remedies. In addition, the Board asserted a counterclaim against McIntosh, seeking a declaratory judgment that the 2012 Employment Agreement is void and unenforceable.

The trial court denied the Board’s subsequent motion for summary judgment, but certified its order for immediate review. The Board then filed an application for interlocutory appeal, which this Court granted. This appeal follows.

1. Because the exhaustion of administrative remedies is a threshold requirement for McIntosh to pursue his action in superior court, we will first address that claim. Specifically, the Board maintains that McIntosh failed to exhaust his administrative remedies because his response to the Board’s termination letter was both too late and substantively insufficient. We disagree.

At the outset, we note that the “the terms and conditions of employment of a school superintendent by a local school system shall be determined exclusively by the contract between those parties.”2 This includes, without limitation, “the conditions under and procedures by which that contract may be terminated prior to the end of the term of that contract.”3And if a school superintendent is terminated by the local school system, then that superintendent “must exhaust the administrative remedies made available to him under the contract before pursuing a claim in superior court.”4 And while the Board asserts that the 2012 Employment Agreement is void, it represented to the trial court (and to this Court during oral argument) that, in such a case, the relationship between the parties is to be governed by the 2010 Employment Agreement. McIntosh agrees with that assessment, so there is no dispute between the parties on this particular point. Thus, for purposes of this appeal, it is ultimately of no consequence that the 2012 Employment Agreement is void, because, as previously

2 OCGA § 20-2-101 (f); see also Grady County Bd. of Educ. v. Hickerson, 275 Ga. 580, 580 (571 SE2d 391) (2002) (noting “the directive of OCGA § 20–2–101(f) that the terms and conditions of a superintendent’s employment by a school system are governed by the parties’ contract.”).

3 OCGA § 20-2-101 (f).

4 Hickerson, 275 Ga. at 581.

noted, the termination provisions of the 2012 Employment Agreement and the 2010 Employment Agreement are identical. It follows, then, that whatever the parties’ position may be as to the viability of the 2012 Employment Agreement, both agree that McIntosh was, nevertheless, employed under a contract (i.e., the 2010 Employment Agreement) that afforded him a termination hearing “before a disinterested, impartial tribunal of three (3) educators selected by the Board.” Additionally, because the Board’s motion for summary judgment was, in substance, a motion to dismiss for McIntosh’s alleged failure to exhaust administrative remedies,5 we review that ruling “under the de novo standard of review.”6

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