Paxson v. City of Dayton

915 N.E.2d 733, 183 Ohio App. 3d 89
CourtOhio Court of Appeals
DecidedJune 30, 2009
DocketNo. 22888
StatusPublished

This text of 915 N.E.2d 733 (Paxson v. City of Dayton) is published on Counsel Stack Legal Research, covering Ohio Court of Appeals primary law. Counsel Stack provides free access to over 12 million legal documents including statutes, case law, regulations, and constitutions.

Bluebook
Paxson v. City of Dayton, 915 N.E.2d 733, 183 Ohio App. 3d 89 (Ohio Ct. App. 2009).

Opinions

Brogan, Judge.

{¶ 1} Mark S. Paxson appeals from the trial court’s final order affirming a decision of the Dayton Civil Service Board, which upheld the termination of his employment for violating a city residence requirement.

{¶ 2} Paxson advances three assignments of error on appeal. First, he contends that the trial court erred in not holding that R.C. 9.481 prohibited his discharge for violating the residence requirement. Second, he claims that the trial court erred in not declaring the city’s residence requirement unconstitution[91]*91al, as applied, for infringing on his fundamental right to raise his daughter. Third, he asserts that the trial court erred in not finding that he was an actual resident of, and physically lived in, the city of Dayton.

{¶ 3} The record reflects that Paxson was employed by the city as a community-development analyst. In 2005, the city received an anonymous tip that he was not residing within the city limits, as required by the Dayton City Charter. As a result, the city hired a private company, Cal Crim, to conduct surveillance and to investigate his residence. At that time, Paxson maintained an efficiency apartment on Brown Street in Dayton. Based on the results of the Cal Crim investigation, however, the city believed that Paxson actually was residing in Springfield Township in Clark County with his teenaged daughter and her mother, Charlene Yoakum. On August 29, 2005, the city charged Paxson with violating its residence requirement. Following a departmental hearing, supervisor William Saluke found him guilty. A discharge order was entered terminating Paxson’s employment effective September 23, 2005.

{¶ 4} Paxson appealed his discharge to the Dayton Civil Service Board, which held its own hearing on May 9, 2006. The board upheld his termination on June 8, 2006. Paxson then filed an administrative appeal in Montgomery County Common Pleas Court under R.C. Chapter 2506. On July 18, 2008, the trial court affirmed the board’s decision. This timely appeal followed.

{¶ 5} In his first assignment of error, Paxson contends that the trial court erred in not finding that his discharge was prohibited by R.C. 9.481, which provides that “no political subdivision shall require any of its employees, as a condition of employment, to reside in any specific area of the state.”

{¶ 6} The trial court held that R.C. 9.481 had no applicability, because it applied only prospectively and did not take effect until May 1, 2006, well after the September 23, 2005 effective date of Paxson’s termination. Paxson argues, however, that the relevant date was not September 23, 2005. Instead, he claims the relevant date was June 8, 2006, when the Dayton Civil Service Board affirmed his dismissal. Because R.C. 9.481 took effect before the board’s decision, he contends, the statute prohibited his termination.

{¶ 7} Upon review, we find Paxson’s argument to be unpersuasive. The city manager terminated Paxson’s employment effective September 23, 2005, after supervisor William Saluke found him guilty of violating the residence requirement. Section 48 of the Dayton City Charter vests the city manager with authority to remove an employee. Section 101 of the charter provides that any employee in the classified service who is dismissed by the city manager may appeal that decision to the civil service board. Dayton Civil Service Rule 14 grants an employee in the classified service ten days from the effective date of his [92]*92dismissal to appeal to the civil service board. Under Rule 14, the board’s decision on the matter is a final order that may be appealed further as provided by law.

{¶ 8} Although Paxson’s discharge was subject to review by the civil service board and later subject to an administrative appeal in the trial court, the fact remains that his employment was terminated effective September 23, 2005. On that date, an authorized representative of the city of Dayton discharged him for violating the residence requirement. Nothing in the record suggests that Paxson’s dismissal was stayed pending appeal, and he makes no such argument. Because R.C. 9.481 was not made retroactive and did not take effect until May 1, 2006, we agree with the trial court’s determination that the statute had no applicability to Paxson’s termination.1

{¶ 9} In opposition to the foregoing conclusion, Paxson stresses that the Dayton Civil Service Board is part of the city of Dayton, which is a political subdivision. Therefore, he reasons that the board is itself a political subdivision and that the board violated R.C. 9.481, which was in effect when it terminated him for not residing in the city limits. The problem with this argument is that the civil service board did not terminate Paxson’s employment. Rather, the Dayton city manager terminated his employment effective September 23, 2005. The board merely upheld this decision.

{¶ 10} In essence, the city of Dayton, acting through its city manager, terminated Paxson’s employment before the effective date of R.C. 9.481. The city of Dayton, acting through its civil service board, then rejected his appeal and reaffirmed its earlier decision after the statute’s effective date. Under these circumstances, we find no merit in Paxson’s argument that the city discharged him in contravention of R.C. 9.481. The trial court properly held that the statute had no effect because he was dismissed before its effective date.

{¶ 11} Paxson’s citation of Mealing v. Ridgefield, Washington (W.D.Wash., Mar. 19, 2007), W.D.Wash. No. C05-5578FDB, fails to persuade us otherwise. Mealing bears no similarity to the case before us. It involved a race-discrimination claim brought under Section 1983, Title 42, U.S.Code. The Ridgefield city manager and police chief discharged Carl Mealing from his position as a police officer after receiving harassment complaints. Mealing appealed to the civil service board, which placed him on paid administrative leave with full retroactive pay from the date of his termination. Mealing subsequently withdrew his appeal, [93]*93and his salary and benefits stopped. He separately filed a lawsuit under Section 1983, seeking to hold the city of Ridgefield liable for race discrimination. Citing Monell v. Dept. of Social Servs. (1978), 436 U.S. 658, 98 S.Ct. 2018, 56 L.Ed.2d 611, the trial court noted that liability would not attach to the city under respondeat superior. Instead, Mealing was required to show that someone with final policymaking authority had committed a constitutional tort against him. Even though the city manager and police chief had fired Mealing, the trial court noted that the civil service commission was the official policymaker for the city. The trial court also observed that the civil service commission had taken steps to prevent and rectify any unlawful discrimination. Finally, the trial court noted Mealing’s failure to “demonstrate that an official with ‘final policy-making authority’ [had] terminated [him] and that the action was an act of official government policy.”

{¶ 12} Having examined Mealing, we see nothing that would assist Paxson or undermine our conclusion herein. We do not dispute his assertion that the city manager’s authority to fire him was subject to Dayton’s civil service rules and to review by the Dayton Civil Service Board.

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Bluebook (online)
915 N.E.2d 733, 183 Ohio App. 3d 89, Counsel Stack Legal Research, https://law.counselstack.com/opinion/paxson-v-city-of-dayton-ohioctapp-2009.