Commission on Human Rights & Opportunities v. Human Rights Referee

66 Conn. App. 196

783 A.2d 1214

COMMISSION ON HUMAN RIGHTS AND OPPORTUNITIES v. HUMAN RIGHTS REFEREE OF THE COMMISSION ON HUMAN RIGHTS AND OPPORTUNITIES ET AL.

(AC 20352)

Appellate Court of Connecticut.

Argued July 11, 2001.¹

Officially released October 9, 2001.

Landau, Mihalakos and Dupont, JS. Charles Krich, with whom, on the brief, was Philip A. Murphy, Jr., commission counsel, for the appellant (plaintiff).

Natasha M. Lipcan, with whom, on the brief, was Daniel L. Schwartz, for the appellee (defendant Olsten Services, Inc.).

Opinion

LANDAU, J.

The plaintiff, the commission on human rights and opportunities (commission), appeals from the judgment of the trial court rendered following the granting of the motion of the defendant Olsten Services, Inc. (Olsten),² to dismiss the commission's administrative appeal for lack of subject matter jurisdiction due to the commission's failure to exhaust administrative remedies. On appeal, the commission claims that (1) the court improperly concluded that it was required to exhaust administrative remedies and (2) its appeal was taken from a final decision of the hearing referee. We agree with the commission's first claim and, therefore, do not address its second claim.³ We reverse the judgment of the trial court. The following facts and procedural history are relevant to the issues raised on appeal. Olsten, a temporary employment agency, employed the defendant Kim Brown and assigned her to work at the defendant Lacey Manufacturing Company (Lacey). Brown was on assignment at Lacey for thirty-six weeks until she was terminated by Olsten.⁴ On August 4, 1998, Brown filed an employment discrimination complaint with the commission, alleging that Lacey had discriminated against her on the basis of her race, color, sex and age. On September 9, 1998, Brown amended her complaint to add Olsten as a respondent.

Olsten did not respond to Brown's complaint and, on, December 29, 1998, the acting executive director of the commission entered an order of default against Olsten and scheduled a hearing in damages. At the hearing in damages, the commission's presiding human rights referee, the named defendant (referee), granted Olsten's motion to open the order of default and remanded the complaint to the investigative unit of the commission for further proceedings.

In its administrative appeal to the Superior Court, the commission claimed that the referee exceeded her authority by opening the default order of its acting executive director.⁵ Olsten filed a motion to dismiss the appeal for lack of subject matter jurisdiction on the grounds that the commission did not exhaust its administrative remedies and the exceptions to the exhaustion requirement did not apply. The court agreed with Olsten and granted the motion to dismiss. The commission filed a motion to reargue, which the court denied. This appeal followed.

We first set forth our standard of review. "The standard of review of a motion to dismiss is ... well established. In ruling upon whether a complaint survives a motion to dismiss, a court must take the facts to be those alleged in the complaint, including those facts necessarily implied from the allegations, construing them in a manner most favorable to the pleader.... A motion to dismiss tests, inter alia, whether, on the face of the record, the court is without jurisdiction.... Because the exhaustion [of administrative remedies] doctrine implicates subject matter jurisdiction, [the court] must decide as a threshold matter whether that doctrine requires dismissal of the [plaintiffs] claim.... [B]ecause [a] determination regarding a trial court's subject matter jurisdiction is a question of law, our review is plenary." (Internal quotation marks omitted.) Lucas v. Riordan, 62 Conn. App. 566, 568-69, 771 A.2d 270 (2001).

The commission initially claims that the court improperly concluded that it was required to exhaust its administrative remedies. More specifically, the commission claims that it need not exhaust its administrative remedies because pursuit of an administrative remedy would be useless. We agree.

"`It is well established that the right to appeal an administrative action is created only by statute and a party must exercise that right in accordance with the statute in order for the court to have jurisdiction.'" Johnson v. Dept. of Public Health, 48 Conn. App. 102, 110, 710 A.2d 176 (1998). General Statutes § 4-183 (b) provides that "[a] person may appeal a preliminary, procedural or intermediate agency action or ruling to the Superior Court if (1) it appears likely that the person will otherwise qualify under this chapter to appeal from the final agency action or ruling and (2) postponement of the appeal would result in an inadequate remedy." General Statutes § 4-183 (b) reflects the principle that the exhaustion of administrative remedies is a prerequisite to the Superior Court's jurisdiction absent exceptional circumstances. Doe v. Dept. of Public Health, 52 Conn. App. 513, 519, 727 A.2d 260, cert. denied, 249 Conn. 908, 733 A.2d 225 (1999); Johnson v. Dept. of Public Health, supra, 112. "An adequate remedy at law is one which is specific and adapted to securing the relief sought conveniently, effectively and completely.... Moreover, the doctrine of exhaustion of remedies does not apply in situations where pursuit of the administrative remedy would be useless. Maresca v. Ridgefield, 35 Conn. App. 769, 773, 647 A.2d 751 (1994)." (Citation omitted; internal quotation marks omitted.) O'Halloran v. Charlotte Hungerford Hospital, 63 Conn. App. 460, 464-65, 776 A.2d 514 (2001). For the reasons detailed in this opinion, the exhaustion doctrine does not apply because the commission will be aggrieved by the final decision of the agency and the pursuit of an administrative remedy would be useless.

On remand, the investigator would be required to "make a finding of reasonable cause or no reasonable cause ... that a violation of section 46a-64c has occurred...." General Statutes § 46a-83 (d). If the investigator makes "a determination that there is reasonable cause to believe that a discriminatory practice has been or is being committed as alleged in the complaint, an investigator shall attempt to eliminate the practice complained of...." General Statutes § 46a-83 (f). Where "the investigator fails to eliminate the discriminatory practice complained of ... he shall, within ten days, certify the complaint and the results of the investigation to the executive director of the commission and to the Attorney General." General Statutes § 46a-84 (a). "[T]he executive director of the commission... shall appoint a hearing officer, hearing...