COURT OF APPEALS

DECISION

DATED AND FILED

February 24, 2022

Sheila T. Reiff

Clerk of Court of Appeals

NOTICE

This opinion is subject to further editing. If 

published, the official version will appear in 

the bound volume of the Official Reports. 

A party may file with the Supreme Court a 

petition to review an adverse decision by the 

Court of Appeals. See WIS. STAT. § 808.10 

and RULE 809.62. 

Appeal No. 2021AP563 Cir. Ct. No. 2020CV837

STATE OF WISCONSIN IN COURT OF APPEALS

DISTRICT IV

SANDRA SANDOVAL,

 PLAINTIFF-APPELLANT,

 V.

MADISON EQUAL OPPORTUNITIES COMMISSION AND

CAPITOLAND CHRISTIAN CENTER CHURCH,INC.,

 DEFENDANTS-RESPONDENTS.

APPEAL from an order of the circuit court for Dane County: 

VALERIE BAILEY-RIHN, Judge. Affirmed.

Before Kloppenburg, Graham, and Nashold, JJ.

Per curiam opinions may not be cited in any court of this state as precedent 

or authority, except for the limited purposes specified in WIS. STAT. RULE 809.23(3).
No. 2021AP563

2

¶1 PER CURIAM. Sandra Sandoval appeals a circuit court order that 

affirmed a decision of the Madison Equal Opportunities Commission. Sandoval 

asserts that the Commission erroneously denied her employment discrimination 

claims against Capitoland Christian Center Church, Inc. We disagree and affirm.

BACKGROUND

¶2 Sandoval was employed as a cook by Capitoland, a 

nondenominational church that operates a daycare and an early elementary school.

At the time she applied for the position, Sandoval was required to sign a 

“Statement of Affirmation and Agreement,” which we refer to as “the 

Agreement.” The Agreement provided that, among other things, Sandoval would

refrain from “co-habitation with members of the opposite gender outside of 

marriage” as a condition of her employment.

¶3 Several months later, the director of the daycare learned that 

Sandoval was in fact cohabitating with her male partner, to whom she was not 

married. Following a discussion between Sandoval and the director, Sandoval 

ceased to be employed by Capitoland. The parties dispute whether Sandoval 

voluntarily resigned, or whether Capitoland terminated her employment.

¶4 Sandoval filed a complaint with the Commission, which is charged 

with enforcing the City of Madison Equal Opportunities Ordinance (hereinafter, 

the “Equal Opportunities Ordinance”). MADISON, WIS., CODE OF ORDINANCES

§ 39.03(10)(b)4. (through January 2022).

1

 She alleged that Capitoland terminated 

 

1

 All references to the MADISON, WIS., CODE OF ORDINANCES are to the online version

(last updated January 12, 2022), available at https://library.municode.com/wi/

madison/codes/code_of_ordinances.
No. 2021AP563

3

her employment based on her marital status, among other things, and that the 

termination and the terms and conditions of employment violated the Equal 

Opportunities Ordinance.

2

 As discussed below, marital status is a protected class 

under § 39.03 of the Equal Opportunities Ordinance.

¶5 The Commission investigated the complaint and issued an initial 

determination. In its initial determination, the Commission found probable cause 

to believe that Capitoland unlawfully terminated Sandoval’s employment due to 

her membership in a protected class and that the terms and conditions of 

Sandoval’s employment violate the Equal Opportunities Ordinance.

¶6 A hearing examiner for the Commission held an evidentiary hearing 

on Sandoval’s claims in January 2017. Sandoval, Brenda Van Rossum (the 

daycare’s director), and Samuel Jake Stauffacher (the pastor who oversees the 

daycare’s operations) testified at the hearing. The following facts are taken from 

the hearing transcript and exhibits and are undisputed unless otherwise noted.

¶7 Sandoval originally applied for the open position as a cook at 

Capitoland’s daycare in August 2014. Capitoland offered Sandoval the position, 

which she accepted. As with all of Capitoland’s employees and volunteers, she 

was required to and did sign the Agreement during the application process.

 

2

 During the proceedings before the Commission, Sandoval also alleged that Capitoland 

discriminated against her based on her sex, ethnicity, and national origin. She further alleged that 

Capitoland unlawfully retaliated against her when it asserted in her personnel file that she had 

resigned, and “through [its] unwillingness to settle” and make her “whole.” Sandoval does not 

make any arguments on appeal regarding the Commission’s decision to deny these claims, and 

we address them no further.
No. 2021AP563

4

¶8 At the time Sandoval was hired, Capitoland knew that Sandoval was 

unmarried and had a daughter. Sandoval did not tell Capitoland about the details 

of her living situation, and Capitoland did not ask her any questions about it. At

all times pertinent to this matter, Sandoval lived with her longtime male partner, as 

well as her daughter, her uncle, and her brother.

¶9 Sandoval worked for Capitoland for the following months without 

any performance or disciplinary issues. Capitoland had “no complaints at all” 

about Sandoval, and “only good things were always said about her.”

¶10 Capitoland holds a Christmas party each winter for the benefit of its 

employees and their families. On January 15, 2015, the day before the party, 

Sandoval spoke with Van Rossum about bringing her partner. Van Rossum stated

that employees could only bring their spouses and children. According to 

Van Rossum, Sandoval responded to the effect that she and her partner had been

living together long enough that they were “pretty much married.” Sandoval 

ultimately attended the party without her partner.

¶11 On the day of the Christmas party, January 16, 2015, Van Rossum 

informed Stauffacher of her discussion with Sandoval. Stauffacher said that the 

situation would have to be addressed, and he instructed Van Rossum to look into 

the situation and report back to him. Van Rossum testified that, during this

discussion with Stauffacher, the possibility of terminating Sandoval “wasn’t even 

discussed.”

¶12 On Monday, February 16, 2015, Van Rossum had a follow-up 

conversation with Sandoval about her living situation. Van Rossum’s and 

Sandoval’s accounts of the February 16 conversation largely align, although 

Van Rossum’s account was more detailed than Sandoval’s account and, as we 
No. 2021AP563

5

recount in the following paragraphs, they disagreed about whether Capitoland 

terminated Sandoval’s employment on that date.

¶13 Van Rossum provided the following testimony about the 

February 16 conversation. She met with Sandoval at the end of her shift and said

that Capitoland could not have its “employees living with each other outside of 

marriage.” According to Van Rossum, the first thing Sandoval said was, “it’s 

okay, I’ll be done then.” Van Rossum told Sandoval that she did not want 

Sandoval to make a decision at that time, and that she would “touch base” with 

Stauffacher and they would “go from there.” Van Rossum “encouraged 

[Sandoval] to come back the next day and to not just resign on the spot like that.” 

Van Rossum testified that, because Sandoval was a good employee, she “was 

hopeful for answers” about “exactly what [Sandoval’s] arrangement was” and 

whether it conflicted with the Agreement. However, they “didn’t get around to 

discussing that” because Sandoval “kept saying” something to the effect of “‘no, 

that’s okay, I’ll be done.’ And it didn’t seem like she wanted to discuss it.” 

Van Rossum did not tell Sandoval that she was fired. Sandoval said she would 

come back the next day, which would be her last day. However, the following 

morning, Sandoval called and said that she would not be coming in to work.

¶14 Sandoval provided the following testimony about the February 16 

conversation. Van Rossum informed Sandoval that she was in violation of the 

Agreement and that Van Rossum would have to talk to Stauffacher further about 

the situation. Sandoval acknowledged that Van Rossum asked her to return to 

Capitoland the following day. Sandoval testified: “[Van Rossum] told me that I 

was needed to help her, but how was I going to go back to work? I was already 

fired.”
No. 2021AP563

6

¶15 It is undisputed that Sandoval called Capitoland the morning of 

Tuesday, February 17, 2015, indicating that she would not be coming in to work. 

Sandoval was also scheduled to work on February 18, 19, and 20, but she did not 

come to work those mornings, either, nor did she call in to say that she would not 

be coming in. According to Van Rossum, if Sandoval had not resigned, her 

employment would have been terminated for being a “no show” at work on 

February 18, 19, and 20.3

¶16 On Friday, February 20, 2015, Sandoval returned to Capitoland to 

hand in her key card and other items to Van Rossum. As discussed below, the 

parties generally agree on the contents of the conversation that took place that 

day.

4

 Sandoval testified that Van Rossum “told me that I could not return to work 

unless I got married, and if I didn’t, I could not return to work.” Sandoval testified

that, although Van Rossum did not specifically tell Sandoval on February 20 that 

changing her “living situation” would also “address Capitoland’s concerns,”

Sandoval understood that to be the case.

¶17 Following the January 2017 evidentiary hearing, the parties filed 

post-trial briefing and proposed findings of fact, and the hearing examiner issued a 

written decision in May 2019.

 

3

 The hearing examiner found that Sandoval was also a “no show” on February 17, 2015, 

but this finding is contradicted by the record. Specifically, Van Rossum testified that, under 

Capitoland’s policy, Sandoval would not be considered a “no call, no show” on February 17 

because she called in to work that morning. The parties do not mention this discrepancy in their 

briefing, and it does not affect our analysis.

4

 Sandoval recorded her February 20, 2015 interaction with Van Rossum on her cell 

phone but, as discussed below, the examiner did not admit the recording or a transcript of the 

recording into evidence.
No. 2021AP563

7

¶18 In his decision, the hearing examiner determined that Sandoval

voluntarily resigned her employment “by not returning to work after February 16, 

2015.” As the hearing examiner explained, “[Sandoval’s] employment was not 

terminated by [Capitoland] on or after February 16, 2015, though it might have 

been in the future.” We discuss the basis of this finding, and its significance to the 

issues on appeal, at greater length in the discussion section below.

¶19 Additionally, the hearing examiner concluded that the no 

cohabitation clause in the Agreement is not a discriminatory term or condition of 

employment and does not violate the Equal Opportunities Ordinance. We recount 

the reasons the hearing examiner provided as needed below.

¶20 Finally, the hearing examiner declined to address several additional 

claims that Sandoval advanced in her post-trial briefing, having concluded that 

Capitoland lacked notice of these additional claims.

¶21 Sandoval appealed to the Commission, which affirmed the hearing 

examiner’s decision and adopted it as its own. Sandoval then sought certiorari

review in the circuit court pursuant to WIS. STAT. § 68.13 (2019-20).

5

 The circuit 

court affirmed the Commission’s decision, and Sandoval appeals.

 

5

 See MADISON, WIS., ORDINANCES § 39.03(10)(c)4 (providing that final orders of the 

Commission are subject to certiorari review pursuant to WIS. STAT. § 68.13). All references to 

the Wisconsin Statutes are to the 2019-20 version unless otherwise noted.
No. 2021AP563

8

DISCUSSION

¶22 On certiorari review, we review the decision made by the 

Commission, not the decision of the circuit court.6 State ex rel. Bruskewitz v. City

of Madison, 2001 WI App 233, ¶11, 248 Wis. 2d 297, 635 N.W.2d 797. Our 

review is limited to: (1) whether the Commission was within its jurisdiction; 

(2) whether the Commission acted according to law; (3) whether the 

Commission’s actions were arbitrary, oppressive, or unreasonable; and 

(4) whether the evidence was such that the Commission might reasonably make 

the order or determination in question. Ottman v. Town of Primrose, 2011 WI 18, 

¶35, 332 Wis. 2d 3, 796 N.W.2d 411.

¶23 We will sustain the Commission’s findings of fact if they are 

supported by any reasonable view of the evidence. Id., ¶53; see also Koenig v. 

Pierce Cnty. Dep’t of Human Services, 2016 WI App 23, ¶13 n.5, 367 Wis. 2d 

633, 877 N.W.2d 632 (referring to this test as the “substantial evidence test”). 

Whether the facts in a particular case fulfill a particular legal standard is a question 

of law, which we review de novo. Ottman, 332 Wis. 2d 3, ¶54.

¶24 In this case, Sandoval argues that: (1) the Commission’s 

determination that Sandoval voluntarily resigned her employment with Capitoland

was erroneous; (2) the hearing examiner should have admitted into evidence an 

audio recording of the February 20, 2015 conversation; (3) the Commission 

 

6

 Certiorari is a mechanism by which a court may test the validity of a decision rendered 

by a municipality (among other tribunals). Acevedo v. City of Kenosha, 2011 WI App 10, 331 

Wis. 2d 218, ¶8, 793 N.W.2d 500 (Ct. App. 2010). Here, because the Commission adopted the 

hearing examiner’s written decision as its own, we refer to that written decision as the 

Commission’s decision.
No. 2021AP563

9

erroneously determined that the no cohabitation provision of the Agreement does

not violate the Equal Opportunities Ordinance; and (4) the Commission should not 

have dismissed her claim about Capitoland’s Christmas attendance policy. We 

address each argument in turn.

I. The Discriminatory Termination Claim

¶25 The parties agree that, to establish her employment discrimination 

claim, Sandoval must prove that: (1) she is a member of a protected class; (2) her 

job performance was satisfactory; (3) she suffered an adverse employment action; 

and (4) the adverse action was causally related to her membership in the protected 

class. See, e.g., Puetz Motor Sales, Inc. v. LIRC, 126 Wis. 2d 168, 172-73, 376 

N.W.2d 372 (Ct. App. 1985); McDonnell Douglas Corp. v. Green, 411 U.S. 792, 

802-03 (1973).

¶26 In this case, there is no dispute that the first two elements are met. 

As the Commission explained, marital status is a protected class pursuant to 

§ 39.03 of the Equal Opportunities Ordinance, and Sandoval is a member of a 

protected class by virtue of being unmarried. It is also undisputed that Sandoval’s 

job performance was satisfactory. The disputed issue is whether Sandoval has 

established that she was subject to an “adverse employment action.”

¶27 Termination of employment is an adverse employment action. By 

contrast, if an employee was not terminated and instead resigned, there is no

adverse employment action unless the circumstances are such that the resignation 

amounts to a constructive discharge. See Strozinsky v. School Dist. of Brown 

Deer, 2000 WI 97, ¶¶66, 68, 237 Wis. 2d 19, 614 N.W.2d 443. Whether an 

employee resigned, was terminated, or was constructively discharged is a question 

of fact for the factfinder—here, the Commission. Id., ¶78. The issue we must 
No. 2021AP563

10

determine is whether there is substantial evidence to support the Commission’s 

findings that Sandoval voluntarily resigned and that her employment was not 

terminated or constructively discharged.

¶28 We first conclude that substantial evidence supports the

Commission’s finding that Capitoland did not terminate Sandoval’s employment

on February 16, 2015. Indeed, there is no support in the record for a contrary 

conclusion. Sandoval did not testify that Van Rossum explicitly told her she was 

fired. On the other hand, Van Rossum specifically testified that she did not tell 

Sandoval that she was fired, and Van Rossum and Sandoval both testified that 

Van Rossum specifically asked Sandoval to come back the following day.

Van Rossum testified that she did not want to terminate Sandoval’s employment 

because she liked Sandoval and believed that she was a good employee, and 

Van Rossum hoped that after learning more about Sandoval’s living arrangement, 

they could work something out. Consistent with this evidence, Pastor Stauffacher

testified that Van Rossum did not have authority to fire anyone without his prior 

approval, and that he did not give Van Rossum authority to fire Sandoval.

¶29 Sandoval disputes the Commission’s finding, and she argues that, 

consistent with her testimony at the hearing, the result of the February 16 

conversation with Van Rossum was clear to her—she “was already fired” and 

“couldn’t go back to work” because she was living with someone of the opposite 

sex. The Commission reasonably concluded that Sandoval’s “beliefs and 

perceptions” about the effect of “the conversation that occurred on February 16, 

2015, are not evidence” about what actually transpired during that conversation. 

Substantial evidence, including the testimony of Van Rossum, Stauffacher, and 

Sandoval herself support the Commission’s finding that Capitoland did not 

terminate Sandoval’s employment on February 16, 2015.
No. 2021AP563

11

¶30 We next conclude that substantial evidence supports the 

Commission’s finding that Sandoval resigned from her position. Van Rossum 

testified (and Sandoval does not dispute) that, on February 16, after Van Rossum 

informed Sandoval of the violation and indicated she wanted to talk about it, 

Sandoval responded to the effect of, “That’s okay, I’ll be done.” Van Rossum 

further testified that Sandoval stated that the next day would be her last day at 

Capitoland. And, although the parties agreed that Sandoval would return to work 

on February 17, she called in that morning to say she would not be coming to 

work; she did not call in or come to work on February 18, 19, and 20; and she only 

returned to the building on February 20 to drop off her key card. The Commission 

reasonably credited Van Rossum’s assessment of these undisputed facts and her

conclusion that Sandoval had resigned.

¶31 We further conclude that substantial evidence supports the 

Commission’s finding that Sandoval’s resignation did not amount to a constructive 

discharge. The doctrine of constructive discharge recognizes that “some 

resignations are, in fact, involuntary,” and as such they are “tantamount to a 

termination.” Strozinsky, 237 Wis. 2d 19, ¶¶6, 68. A constructive discharge 

occurs when an employer “‘purposefully creates working conditions that are so 

intolerable that the employee has no option but to resign.’” Id., ¶70 (quoted 

source omitted). To prove a constructive discharge, the employee must satisfy a 

“stringent” burden to prove that, under an “objective standard,” working 

conditions were “so intolerable that a reasonable person confronted with the same 

circumstances would have been compelled to resign.” Id., ¶83.

¶32 We agree with the Commission that Sandoval did not satisfy her 

burden with regard to any of her working conditions prior to February 16, 2015. 
No. 2021AP563

12

The parties agree that by all accounts, Sandoval enjoyed working at Capitoland 

and Capitoland enjoyed having her as an employee.

¶33 Sandoval’s theory of constructive discharge focuses exclusively on 

the events of February 16, 2015. She characterizes her conversation with 

Van Rossum as being presented with an “intolerable ultimatum”—that is, “marry 

your partner, dissolve your household, or lose your job.” Essentially, Sandoval’s 

argument is that, because she believed the ultimate consequence of her living 

condition would lead to termination from Capitoland, she was constructively

discharged.

¶34 To be sure, there are circumstances in which an ultimatum might 

result in a constructive discharge. In Stewart v. Gates, 786 F. Supp. 2d 155, 168

(D.D.C. 2011), for example, a discriminatory ultimatum requiring a civilian

employee to either resign or be transferred into an active war zone could constitute

a constructive discharge. To provide another example, “[a] person who is told 

repeatedly that he is not wanted, has no future, and can’t count on ever getting 

another raise would not be acting unreasonably if he decided that to remain with 

this employer would necessarily be inconsistent with even a minimal sense of selfrespect, and therefore intolerable.” Hunt v. City of Markham, Ill., 219 F.3d 649, 

655 (7th Cir. 2000). See also Marten Transport, Ltd. v. DILHR, 176 Wis. 2d 

1012, 501 N.W.2d 391 (1993).

¶35 Here, however, the Commission found that the discussion about 

Sandoval’s noncompliance with the Agreement was ongoing, that Capitoland had 

not yet imposed any ultimatum on Sandoval, and that the “conversation that 

occurred between [Sandoval] and Van Rossum [on February 16] does not equate 

to a constructive discharge.” As mentioned above, Van Rossum testified that she 
No. 2021AP563

13

told Sandoval, “I don’t want you to just make a decision now. It’s something I’d 

like to talk about, and then I can touch base with Pastor Jake [Stauffacher], and we 

can go from there.” And Stauffacher testified that an employee is not immediately 

terminated when found to be in violation of the Agreement, but rather, Capitoland 

attempts to work with the employee to find a solution.

7

 As the Commission

explained, it was “not at all clear ... that the parties would have been able to find a 

mutually acceptable resolution to the conflict between [the Agreement] and 

[Sandoval’s] belief that her living arrangement was not a matter of concern to 

[Capitoland].” However, “[Sandoval’s] action in not returning to work in the days 

after the [February 16] meeting with Van Rossum truncated any opportunity for 

compromise.”

¶36 Under our standard of review, we will sustain the Commission’s 

findings if they are supported by substantial evidence in the record. For the 

reasons stated above, we affirm the Commission’s finding that Sandoval 

voluntarily resigned her employment with Capitoland.

II. Exclusion of the Recording

¶37 Sandoval next argues that the hearing examiner erred when it did not 

allow her to admit the audio recording of the conversation between Van Rossum 

and Sandoval that occurred on February 20, 2015, when Sandoval returned to 

Capitoland to turn in her key card. Sandoval frames this issue as a question of 

whether her due process rights were violated; however, the underlying question is 

 

7

 Indeed, there was evidence introduced at the hearing that Capitoland had been able to 

come to a mutually agreeable solution with another employee who shared living quarters with his 

significant other (to whom he was not married) and other family members.
No. 2021AP563

14

whether the hearing examiner properly excluded evidence from the hearing. The 

decision to admit or exclude evidence is typically a matter within the 

administrative agency’s discretion. Board of Regents of the Univ. of Wis. Sys. v. 

State of Wis. Pers. Comm’n, 2002 WI 79, ¶26, 254 Wis. 2d 148, 646 N.W.2d 759. 

We conclude that the hearing examiner did not erroneously exercise his discretion.

¶38 We begin with some additional background on this issue. As stated

above, Sandoval testified that, during the February 20, 2015 conversation, 

Van Rossum “told me that I could not return to work unless I got married, and if I 

didn’t, I could not return to work.” Van Rossum did not dispute Sandoval’s

account of the conversation in any meaningful way. Sandoval testified that she 

recorded her conversation with Van Rossum so that she could get a “sound bite” 

that would support a claim that she had been terminated based on her marital 

status, and that she “intentionally focused [the conversation] on the issue of 

marriage” when she spoke with Van Rossum on that date.

¶39 Sandoval’s attorney asked to play the recording at two different 

points during the hearing. He first asked to play the recording right before 

Sandoval was about to testify about the February 20 conversation on the grounds 

that the recording would “jog” Sandoval’s memory. After the hearing examiner

sustained an objection and Sandoval testified about her memory of the event in her 

“own words,” her attorney again sought to admit the recording as “proof” of the 

accuracy of Sandoval’s testimony. The hearing examiner did not specifically 

weigh in on that request, and the parties moved on.

¶40 We are not persuaded that the hearing examiner erroneously 

exercised his discretion when he did not allow Sandoval’s attorney to play the 

recording during the hearing. See WIS. STAT. § 227.45(1) (providing that a
No. 2021AP563

15

hearing examiner shall admit all testimony having reasonable probative value, but 

shall exclude immaterial, irrelevant or unduly repetitious testimony).8 Sandoval’s 

attorney suggested that he wanted to refresh Sandoval’s memory, but there was no 

need to do so because Sandoval did not appear to have any trouble recalling the 

contents of her conversation with Van Rossum. Nor was the recording needed as 

“proof” of the contents of the conversation—as stated above, Van Rossum did not 

dispute Sandoval’s testimony about what she said that day.

¶41 Sandoval’s attorney did not ask to play the recording for any purpose 

other than to refresh Sandoval’s memory or as proof of the accuracy of her 

testimony. If Sandoval now contends that it would have been admissible for some 

other purpose, Sandoval has forfeited that argument. We generally do not address 

issues that an appellant raises for the first time on appeal. Greene v. Hahn, 2004 

WI App 214, ¶21, 277 Wis. 2d 473, 689 N.W.2d 657.9

 

8

 See Rules of the Equal Opportunities Commission § 9.221 (dated September 9, 2021), 

available at https://www.cityofmadison.com/civil-rights/documents/RulesoftheEOC.pdf

(providing that “[t]he rules of evidence governing hearings under this subsection shall be the 

same as those prescribed for hearings in contested cases under Chapter 227 of the Wisconsin 

Statutes”).

9

 Despite our conclusion on forfeiture, we observe that Sandoval has not shown that the 

result of the proceeding would have been any different had the hearing examiner allowed 

Sandoval’s counsel to play the recording. This is the case for two reasons. First, it appears that 

the Commission credited Sandoval’s undisputed testimony about what was said on February 20, 

2015. Sandoval does not contend that Van Rossum said that Capitoland terminated Sandoval’s 

employment, and Sandoval’s account of the contents of the conversation on February 20 was not 

otherwise material to the Commission’s ultimate determination that Sandoval resigned her 

employment several days prior to that date. Second, there is no basis in the record to conclude 

that the recording would have undermined that ultimate determination. Sandoval’s attorney did 

not ask to make an offer of proof about what the recording would have shown. Although the 

recording was not admitted during the hearing, we have reviewed a transcript of the recording 

that was submitted as a potential exhibit prior to the hearing and see nothing that would have 

altered the Commission’s determination about Sandoval’s resignation.
No. 2021AP563

16

III. Alleged Illegality of the Agreement’s No Cohabitation Clause

¶42 Sandoval argues that, whether or not Capitoland terminated her 

employment, the Agreement’s no cohabitation clause violates two subsections of 

the Equal Opportunities Ordinance. Specifically, she argues that the no 

cohabitation clause is a “term or condition” of employment that violates 

§ 39.03(8)(a)10 and a “statement of preference” that violates § 39.03(8)(e).

11

 For

reasons we now explain, Sandoval does not persuade us that it was legally 

erroneous for the Commission to reject these arguments.

¶43 First, as to the argument that the provision violates WIS. STAT.

§ 39.03(8)(e) of the Equal Opportunities Ordinance, we agree with the 

Commission that Capitoland did not receive pre-hearing notice that Sandoval was 

making an argument under that subsection. Prior to the hearing, the hearing 

examiner held a pre-hearing conference and issued a notice of hearing. As the 

Commission explained, “[o]ne of the purposes” of that process “is for the parties 

to come to an agreement and understanding of the issues to be tried.” The notice

of hearing indicated that Sandoval was challenging the Agreement’s no 

cohabitation clause as an illegal term and condition of employment, but it did not 

 

10

 Section 39.03(8)(a) of the Equal Opportunities Ordinance provides that it is unlawful 

for “any person or employer individually or in concert with others to fail or refuse to hire or to 

discharge any individual, or otherwise to discriminate against any individual with respect to 

her/his compensation, terms, conditions, or privileges of employment, because of such 

individual’s protected class membership [or other enumerated reasons].” MADISON, WIS.,

ORDINANCES § 39.03(8)(a).

11

 Section 39.03(8)(e) of the Equal Opportunities Ordinance provides that, subject to an 

exception not applicable here, it is unlawful for “any person or employer ... to print or publish or 

cause to be printed or published any notice or advertisement relating to employment by such an 

employer ..., or relating to any classification ..., indicating any preference, limitation, 

specification, or discrimination, based on any protected class membership [or other enumerated 

reasons].” MADISON, WIS., ORDINANCES § 39.03(8)(e).
No. 2021AP563

17

mention that Sandoval was challenging the clause as an illegal statement of 

preference. As the Commission explained, “[a] claim of ‘terms and conditions’ 

discrimination is substantially different from the type of per se prohibition found 

in” § 39.03(8)(e).

¶44 Second, regardless of the merits of Sandoval’s argument that the 

Agreement’s cohabitation clause violates the Equal Opportunities Ordinance, 

Sandoval does not argue that she is entitled to relief if she voluntarily resigned her 

employment. During the proceedings before the Commission, Sandoval sought 

back pay, front pay, and an unspecified amount of damages for emotional distress, 

but it appears that some if not all of the damages sought by Sandoval may be

dependent on proof that she was subjected to an adverse employment action. See,

e.g., Marten Transport, Ltd., 176 Wis. 2d at 1018-20, 1025-26 (providing that an 

employee who had been subjected to illegal discrimination but who resigned his 

employment without being constructively discharged was not entitled to back pay 

and reinstatement). Regardless, Sandoval does not develop any argument 

explaining why she would be entitled to any of the damages she seeks if, as we 

have concluded, Capitoland did not terminate or constructively discharge her 

employment.12

 

12

 We observe that, even if Sandoval could overcome these barriers, she would face an 

additional significant barrier based on our supreme court’s interpretation of an earlier version of 

the Equal Opportunities Ordinance. See Federated Rural Elec. Ins. Co. v. Kessler, 131 Wis. 2d 

189, 388 N.W.2d 553 (1986). In Kessler, an employee challenged a work policy prohibiting 

employees from “fooling around” with any coworkers who were married. Id. at 195. Our 

supreme court determined that the policy regulated conduct not status, and that it was not 

discriminatory because it applied to married and unmarried employees alike. Id. at 208-09. 

Likewise, here, the Commission determined that the Capitoland policy prohibits all employees 

from engaging in the conduct of living with an individual of the opposite sex outside of marriage, 

and that the policy applies to married and unmarried individuals alike. Sandoval cites Kessler as 

if that case supports her position, but on its face, Kessler appears to support the Commission’s 

decision.
No. 2021AP563

18

IV. The Christmas Party Claim

¶45 Finally, Sandoval argues that Capitoland unlawfully discriminated 

against her on the basis of marital status when it prevented her partner from 

attending the Christmas party. As with Sandoval’s argument that the Agreement 

is an illegal statement of preference, the Commission found that Sandoval did not 

provide pre-hearing notice that she was challenging the legality of its Christmas 

party attendance policy. The Commission acknowledged that the statement of 

issues in the notice of hearing was “broad,” but it noted that there was a “total 

absence of a claim regarding attendance at the Christmas party in January of 

2015.” Therefore, it determined that Capitoland had no notice of “any potential 

liability connected to that claim.”

¶46 Sandoval asserts that the Commission violated her due process rights 

when it declined to address the merits of this claim. However, Sandoval cites no 

authority for the proposition that the Commission’s decision implicates her due 

process rights. As the Commission explained, “[o]ne of the fundamental 

underpinnings of due process is notice,” and it is “imperative that a Respondent 

have notice of the claims against which it will be expected to defend itself.” We 

agree with the Commission that the due process issue here is whether Capitoland 

had sufficient notice of the claim.13

 

13

 Neither party clearly informs us about the applicable standard of review for this issue. 

Through our own independent research, we have identified cases that address the concepts of 

actual notice and prejudice in other contexts. In E-Z Roll Off, LLC v. County of Oneida, 2011 

WI 71, ¶52, 335 Wis. 2d 720, 800 N.W.2d 421, for example, our supreme court has stated that 

actual notice and lack of prejudice are “intensive factual inquiries.” Therefore, we proceed by 

giving deference to the Commission’s factual findings regarding notice and review de novo its 

determination of whether there is any due process violation.
No. 2021AP563

19

¶47 Sandoval argues that the answer to this question is yes. She 

contends that Capitoland had actual notice of the claim, that Capitoland suffered 

no prejudice, and that the issue was fully briefed and there was a full hearing on 

the merits. Therefore, according to Sandoval, the Commission did not act 

according to law when it declined to issue a ruling on claims for which Capitoland 

had actual notice and that were “fully litigated.”

¶48 We conclude that the Commission did not err when it determined 

that Capitoland did not have pre-hearing notice of any claim regarding its 

Christmas party attendance policy. Neither the complaint nor the amended 

complaint challenged this policy and, as stated above, the claim was not included 

in the notice of hearing. Although there was evidence introduced about the 

Christmas party during the hearing, this evidence appeared to have been 

introduced to provide background facts for how Capitoland learned that Sandoval 

was living with her partner in violation of its no cohabitation policy. Capitoland 

may have been able to hypothesize that Sandoval might challenge the legality of 

the Christmas party attendance policy, but she did not expressly do so until her 

post-hearing brief, at a time when evidence was closed. We agree with the 

Commission that, under the circumstances, Capitoland did not have a full and fair 

opportunity to develop the record to defend against that claim.
No. 2021AP563

20

CONCLUSION

¶49 For the reasons stated above, we conclude that the Commission did 

not erroneously deny Sandoval’s employment discrimination claims.14

By the Court.—Order affirmed.

This opinion will not be published. See WIS. STAT.

RULE 809.23(1)(b)5.

 

14

 Capitoland and Sandoval both make arguments about a potential conflict between 

Sandoval’s right to be free from discrimination in her employment and Capitoland’s First 

Amendment rights. Based on our analysis above, we need not address these issues. See Barland 

v. Eau Claire Cnty., 216 Wis. 2d 560, 566 n. 2, 575 N.W.2d 691 (1998) (providing the general 

rule that the court of appeals decides cases on the narrowest grounds available).