Case Name: CITY OF HACKENSACK, RESPONDENT, v. RICHARD WINNER, AND NICHOLAS SARAPUCHIELLO, WILLIAM KREJSA, APPELLANTS, AND THE PUBLIC EMPLOYMENT RELATIONS COMMISSION, APPELLANT
Court: Supreme Court of New Jersey
Jurisdiction: New Jersey
Decision Date: 1980-01-22
Citations: 82 N.J. 1
Docket Number: 
Parties: CITY OF HACKENSACK, RESPONDENT, v. RICHARD WINNER, AND NICHOLAS SARAPUCHIELLO, WILLIAM KREJSA, APPELLANTS, AND THE PUBLIC EMPLOYMENT RELATIONS COMMISSION, APPELLANT.
Judges: 
Reporter: New Jersey Reports
Volume: 82
Pages: 1–56

Head Matter:
CITY OF HACKENSACK, RESPONDENT, v. RICHARD WINNER, AND NICHOLAS SARAPUCHIELLO, WILLIAM KREJSA, APPELLANTS, AND THE PUBLIC EMPLOYMENT RELATIONS COMMISSION, APPELLANT.
Argued March 6, 1979 —
Decided January 22, 1980.
David Solomon argued the cause for appellants Sarapuchiello and Krejsa (Schneider, Cohen and Solomon, attorneys).
Sidney H. Lehmann, General Counsel, argued the cause for appellant Public Employment Relations Commission (Don Horowitz, Deputy General Counsel, on the briefs).
Erminie L. Conley, Assistant Attorney General, argued the cause on behalf of amicus curiae Civil Service Commission (John J. Degnan, Attorney General of New Jersey, attorney; Stephen Skillman, Assistant Attorney General, of counsel).
James P. Granello argued the cause for respondent (Murray, Granello and Kenney, attorneys; John Paul Dizzia, on the brief).

Opinion:
The opinion of the Court was delivered by
HANDLER, J.
This appeal comes to us as a result of conflicting decisions by two State administrative agencies arising from their separate handling of a single controversy over which each had apparent jurisdiction. The case originated with a dispute between a municipality, the City of Hackensack, and several of its civil service employees, firefighters claiming that they had been improperly denied promotions to the rank of lieutenant in the fire department. The employees' complaints related to their merit and fitness for promotion and were thus governed largely by the civil service laws and the Civil Service Commission under Title 11. N.J.S.A. 11:1-1 et seq. The employees also asserted, however, that their promotions had been withheld because of their union activity. In this respect, the claims were covered by the Public Employer-Employee Relations Act, N.J.S.A. 34:13A-1 et seq., and subject to the jurisdiction of the Public Employment Relations Commission under that act. Separate actions were brought before each administrative agency by the firefighters with respect to their employment claims. The two agencies, independent of one another, proceeded to adjudicate the matters in dispute and ultimately reached different findings of fact, arrived at dissimilar legal conclusions and imposed inconsistent administrative remedies. This unstable and unsettling disposition of the controversy, which was appealed to the Appellate Division, its decision reported at 162 N.J.Super. 1 (1978), impelled our grant of certification. 78 N.J. 404 (1978).
To place the issues in proper perspective, a rather methodical trailing of the case through each administrative agency to its present posture is needed. In January 1974 the Department of Civil Service held a promotional examination for the position of fire lieutenant in the City of Hackensack ("the City" of "Hackensack"). As a result of that examination a promotion eligibility list was promulgated by the Department in April 1974. Petitioner William Krejsa ranked fourth on that list and petitioner Nicholas Sarapuchiello ranked sixth. Another petitioner, Richard Winner, who placed third on the list, did not pursue his claims and is no longer involved in the case. In December 1974, in response to a request from the City, the Department of Civil Service issued a certification of individuals eligible for appointment to the position of fire lieutenant. In accordance with civil service rules, N.J.A.C. 4:l-12.4(a)(2), eight names were certified for six openings. Numbers one, two, five, seven and eight on that list were all promoted to the position of fire lieutenant effective February 12,1975. It was stipulated that this marked the first time that Hackensack had not made promotions in its fire department strictly according to rank order on the eligibility list without any skipping or bypassing.
On February 13, 1975, petitioners Sarapuchiello and Krejsa challenged the denial of their promotions before the Acting Director of Local Government Services in the Department of Civil Service who, on April 20, 1975, issued a preliminary determination that Hackensack had not violated civil service laws or regulations in bypassing the charging parties. Following a reaffirmation of this determination upon a review requested by the charging parties, an appeal was taken to the Civil Service Commission on June 12,1975. Hearings were held before a civil service hearing officer on October 29 and November 12, 1975, and January 6, 1976. The hearing officer issued a report and recommendation on February 19, 1976, in which he concluded that the charging parties had failed to show by a preponderance of the evidence that they had been denied promotions for unlawful reasons. In particular, he found that "[t]he Fire Chief [had] promoted two active union officers which indicatefd] to this Hearing Officer that [the Fire Chief had] not discriminate[d] against the Appellants because of their union activities." The hearing officer recommended on the basis of his conclusions that the appeals be dismissed. The charging parties filed exceptions to the hearing officer's report and Hackensack filed an answering brief. At its meeting on April 30, 1976, the Civil Service Commission accepted the hearing officer's findings of fact and conclusions. The Commission's decision dismissing the appeals was issued on May 20, 1976. The charging parties requested reconsideration, but the Commission denied their request on July 20, 1976, as communicated by letter dated August 13, 1976. This decision was not appealed to the Appellate Division. .
The proceedings before the Public Employment Relations Commission (PERC) began with the submission of unfair practice charges by the same three employees on February 18, 1975, five days after the initial filing of their request for review by the Department of Civil Service. Amended charges were filed on May 16, 1975, and PERC issued a complaint and notice of hearing on June 18, 1975. On June 24 Hackensack filed its answer to the unfair practice charges and a motion to dismiss the complaint. This motion was denied by the PERC hearing examiner on August 25,1975. On August 26 Hackensack filed a request with PERC for permission to appeal, pursuant to N.J.A. C. 19:14-4.6, but this request was denied on September 11,1975. Hearings were held before the PERC hearing examiner on October 21 and November 21, 1975, and January 8, 1976. On March 2, 1976, after the release of the civil service hearing officer's report and recommendation, Hackensack requested the PERC hearing examiner to dismiss the PERC complaint. Counsel for the charging parties submitted a letter in response on March 9, and on March 16 the PERC hearing examiner advised the parties that he would rule on the dismissal request when he issued his full report and recommended decision. On May 27, 1976, after the release of the Civil Service Commission's decision adopting the findings and recommendations of its hearing officer, Hackensack again requested the PERC hearing examiner to dismiss the complaint. Counsel for the charging parties filed a response on June 1, and on June 3 the PERC hearing examiner affirmed his intention to defer his decision on the dismissal request until his overall determination. On or about July 12, 1976, the PERC hearing examiner issued a report and recommended decision in which he found that Hackensack had committed unfair practices in contravention of N.J.S.A. 34:13A-5.4 a(l) and 34:13A-5.4 a(3) in that the City's decision not to promote the charging parties had been motivated in part by a desire to discourage employees from participating in union activities. Included in his recommended decision was a cease and desist order as well as a requirement that Hackensack promote the two charging parties with full back pay. Hackensack filed exceptions to the hearing examiner's report. PERC issued a decision, dated March 16, 1977, in which it adopted, with minor modifications not here relevant, its hearing examiner's findings and recommendations.
Hackensack filed its notice of appeal on March 18, 1977. On April 14, 1977, PERC filed a notice of cross-appeal in which it sought an order for enforcement of its decision of March 16 pursuant to N.J.S.A. 34:13A-5.4 f. The Appellate Division, in its decision of July 31, 1978, ruled that the issue of anti-union animus had in fact been raised in both the civil service and the PERC proceedings. 162 N.J.Super. at 16-18. It then held that, in the context of a civil service proceeding, the Civil Service Commission had jurisdiction to hear claims of anti-union discrimination or bias. Id. at 21. The court determined that both agencies in fact had concurrent jurisdiction to consider the charges of anti-union discrimination. Id. at 23-24. In terms of the current dispute, the court was of the opinion that Civil Service had properly exercised its jurisdiction, id. at 24, and that, the issue of prejudice or lack of good faith due to union activities having been fully and fairly litigated before Civil Service, the parties were precluded from seeking in another forum further relief based on those same claims, id. at 29. The court also determined that even though a portion of PERC's remedy, the "ancillary" cease and desist order, was not inconsistent with the Civil Service order, that mode of * MESSAGE(S) *MORE SECTIONS FOLLOWrelief was "inappropriate"; thus the entire PERC order was reversed and set aside. PERC's cross-application for enforcement was accordingly denied. Id. at 33.
Both PERC and the charging parties filed petitions for certification. In granting certification, 78 N.J. 404 (1978), the Court constricted the focus of the appeal "solely to the issue of which agency should exercise jurisdiction over the subject matter of the within appeal, assuming that the unfair labor practice charge has been considered by both agencies" (Certification Order).
I
In a case like this one, where a public employee seeks to pursue his rights before the Civil Service Commission under the civil service laws, but also alleges the existence of an unfair employment practice cognizable under the Public Employer-Employee Relations Act and looks for redress before the Public Employment Relations Commission, the question of dual administrative jurisdiction is raised and a determination of agency priority cannot be avoided. The approach for resolving the jurisdictional and procedural imbroglio created by these circumstances may appropriately commence with our recent decision in Hinfey v. Matawan Reg. Bd. of Ed., 77 N.J. 514 (1978).
The Court in Hinfey faced a jurisdictional dispute between the Division on Civil Rights and the Commissioner of Education regarding claims of sex discrimination in educational curricula in various public schools. 77 N.J. at 521. The Court concluded that, under the circumstances presented, it was proper for the Commissioner of Education to decide the controversy and that the Division of Civil Rights should transfer that aspect of the case to the Commissioner for adjudication. The path followed by the Court in resolving the jurisdictional dilemma engendered first an examination of the statutory authority of both agencies with respect to the disputed matters and a determination of whether both agencies had jurisdiction over the claims. Second, upon a determination that each of the two agencies had jurisdiction, the Court sought to ascertain whether that jurisdiction was paramount or primary in one of the two agencies in the sense that one of the agencies would be statutorily required to entertain the case prior to a hearing by the other agency. This inquiry called for a determination of whether either agency would be required or compelled by virtue of its statutory jurisdiction to proceed in the matter before it regardless of the jurisdictional claim of its sibling agency or the status of the same case before that other agency. If it were found that one or both agencies had discretionary jurisdiction, i. e., that there was no statutory mandate for one agency to proceed first to adjudicate the controversy, at least in view of the pendency of the same dispute before the other agency, the final task for the Court was to explore the standards for the exercise of that administrative discretion. The Court, in addressing how agencies were to be guided in the situations where each was found to have parallel but discretionary jurisdiction over the same controversy, emphasized that the exercise of agency discretion should be governed by "[principles of administrative comity." 77 N.J. at 532. A similar approach is called for in this case. The inquiry here therefore should start with an examination of the nature of the jurisdiction of the two administrative agencies.
The bedrock difficulty in analyzing the jurisdiction of each of the two agencies in this case inheres in the fact that the underlying dispute does not present a single-issue or single-remedy controversy. As noted, the dispute includes claims that public employment promotions were wrongfully withheld under the civil service criteria relating to merit and fitness. These claims also charge that this wrongful action was prompted by improper motives and bad faith based upon anti-union prejudice, allegedly an unfair practice contrary to the provisions of the Public Employer-Employee Relations Act. In addition to this admixture of factual and legal issues, agency jurisdiction is complicated by the prospect of overlapping and conflicting administrative remedies. Each of the administrative agencies here involved is empowered to grant similar broad remedial relief to rectify the asserted employment injuries. Compare, e. g., Mastrobattista v. Essex Cty. Park Comm'n, 46 N.J. 138 (1965) (Civil Service Commission has authority to order back pay and restoration to civil service duty in cases of wrongful suspension and dismissal), with Galloway Tp. Bd. of Ed. v. Galloway Tp. Ass'n of Ed. Sec., 78 N.J. 1 (1978) (PERC has authority to order restoration of working hours, award back pay, and direct the public employer to cease and desist in its interference with the employees' rights). See generally Tener, "The Public Employment Relations Commission: The First Decade," 9 Rut.-Cam.L. Rev. 609 (1978) [hereinafter referred to as Tener, "The First Decade"]. Thus the jurisdictional dilemma is not readily resolv able by the emergence of one distinct form of administrative relief which is uniquely the province of one of the competing agencies.
Courts with growing frequency have been confronted with the intricate puzzles involved in solving threshold jurisdictional questions raised by the increasing incidence of conflicts between administrative agencies. See Sewall, "Administrative Jurisdiction and Authority," 6 Ind.L.Rev. 446, 454-459 (1973); Note, "The Preclusive Effect of State Agency Findings in Federal Agency Proceedings," 64 Iowa L.Rev. 339, 340 (1979) [hereinafter cited as Note, "Preclusive Effect"]. This phenomenon of increasing agency conflicts is due, no doubt, to the continuing expansion of the administrative law field and the concomitant proliferation of administrative tribunals with common or similar regulatory responsibilities over the same subject matter. See, e. g., Hinfey v. Matawan Reg. Bd. of Ed., supra; F.T.C. v. Ruberoid Co., 343 U.S. 470, 487, 72 S.Ct. 800, 810, 96 L.Ed. 1081, 1094 (1952) (dissent by Jackson, J.) ("The rise of administrative bodies probably has been the most significant legal trend of the last century . . . . They have become a veritable fourth branch of the Government, which has deranged our three-branch legal theories much as the concept of a fourth dimension unsettles our three-dimensional thinking."). See also Vanderbilt, Foreword to Federal Administrative Procedure Act and the Administrative Agencies at iii (1947) ("The outstanding development in the law in the present century has, beyond any doubt, been the growth of innumerable administrative agencies."); J. Jacobs, "Administrative Agencies, Their Status and Powers" (Monograph), II Proceedings of Const. Conv. of 1947 1431, 1431 (1951) ("[State government operation through the 'ninety-odd' agencies has been a matter of gradual growth without any set plan or program. The absence of any relationship between the functioning of one agency and that of another has marked this development.") [hereinafter referred to as J. Jacobs, "Administrative Agencies, Their Status and Powers"].
These developments have greatly enhanced the probability that disputes calling for administrative adjudication will implicate more than one agency. As a result, both courts and administrative agencies have been called upon repeatedly to make the hard and sensitive decisions required to identify mixed controversies for jurisdictional purposes. E. g., Bernards Tp. Bd. of Ed. v. Bernards Tp. Ed. Ass'n, 79 N.J. 311, 315-317 (1979); Ridgefield Park Ed. Ass'n v. Ridgefield Park Bd. of Ed., 78 N.J. 144, 153-155 (1978); State v. State Supervisory Employees Ass'n, 78 N.J. 54, 83-84, 86 (1978); Galloway Tp. Bd. of Ed. v. Galloway Tp. Ed. Ass'n, 78 N.J. 25, 38-39, 47 (1978); Dunellen Bd. of Ed. v. Dunellen Ed. Ass'n, 64 N.J. 17, 28-29, 31-32 (1973); Burlington Cty. Col. Fac. Ass'n v. Bd. of Trustees, 64 N.J. 10, 16 (1973); Englewood Bd. of Ed. v. Englewood Teachers Ass'n, 64 N.J. 1, 6-9 (1973). See Note, "Public Sector Labor Relations: The New Jersey Supreme Court Interprets the 1974 Amendments to the Employer-Employee Relations Act," 32 Rutgers L.Rev. 62 (1979) [hereinafter cited as Note, "Public Sector Labor Relations"]; Tener, "The First Decade," supra, 9 Rut.-Cam.L. Rev. at 615, 637. These decisional difficulties are exemplified by the particular complexity presented in this very case. Courts and agencies, albeit in somewhat different settings, have dealt with mixed disputes as here, involving claims based upon conventional civil service rights as well as upon those rights given public employees with respect to self-organization, representation and conditions of employment. E. g., State v. State Supervisory Employees Ass'n, supra, 78 N.J. at 63, 86-87. See also Patrolmen's Benevolent Ass'n v. Elizabeth, 146 N.J.Super. 257, 262-263 (App.Div.1976); Essex Cty. Pros. Det. & Inves. Ass'n v. Hudson Cty. Bd. of Freeholders, 130 N.J.Super. 30, 45-47 (App.Div.1974), certif. den. 66 N.J. 330 (1974). In analyzing the present controversy, the Appellate Division ruled, correctly in our view, that each agency had a legitimate jurisdictional claim to entertain the case.
There appears here to be no real dispute as to the Civil Service Commission's right to resolve the claims that were before it. The parties do not deny that the Civil Service Commission has the jurisdiction to consider allegations of improper employment activities when these are asserted in the context of a civil service proceeding directed primarily to compliance with civil service requirements and with the granting of civil service relief. 162 N.J.Super. at 21. The Civil Service Commission has broad powers to determine merit and fitness in connection with appointments and promotions. Malone v. Fender, 80 N.J. 129 (1979); State Troopers Fraternal Ass'n, Inc. v. State, 115 N.J.Super. 503 (Ch.Div.1971), aff'd per curiam 119 N.J.Super. 375 (App.Div.1972), aff'd per curiam 62 N.J. 302 (1973). It has full authority to inquire into the basis for appointments and promotions in the civil service of the State and of local jurisdictions. Malone v. Fender, supra. The merit and fitness principle necessarily engenders a responsibility to ascertain whether the appointing authority acted improperly or exercised discretion arbitrarily. See Mason v. Civil Service Comm'n, 51 N.J. 115, 125-128 (1968). See also Walsh v. Civil Service Dep't, 32 N.J.Super. 39, 43-44 (App.Div.1954), certif. granted 17 N.J. 182 (1955) (subsequently dismissed). This broad authority includes the right to inquire into the good faith of governmental conduct directly affecting civil service employees. See, e. g., Cunningham v. Civil Service Dep't, 69 N.J. 13, 18 (1975) (alleged malicious plan to demote employee); Burlington Cty. Evergreen Park Mental Hosp. v. Cooper, 56 N.J. 579, 583-584 (1970) (asserted unfair labor practices in dismissal of employee for organizational work for public employees union); Weaver v. Civil Service Dep't, 6 N.J. 553, 558-559 (1951) (dismissal because of the employee's political opinions and affiliations); Newark v. Civil Service Comm'n, 112 N.J.L. 571, 574-575 (Sup.Ct.1934), aff'd per curiam 114 N.J.L. 185 (E. & A. 1935) (a breach of good faith to circumvent statutory procedure when removing an employee); see also McGarrity v. Civil Service Dep't, 140 N.J.Super. 536, 540-541 (App.Div.1975), certif. den. 70 N.J. 152, 153 (1976) (alleged discriminatory grading of civil service examination); Essex Cty. Pros., Det. & Inves. Ass'n v. Hudson Bd. of Freeholders, supra, 130 N.J.Super. at 46-47 (alleged political discrimination, personal favoritism and arbitrary infringement of rights are proper foci for Civil Service Commission examination); Sogliuzzo v. Hoboken, 62 N.J.Super. 243, 250 (App.Div.1960) (not an abuse of discretion to select for promotion an eligible individual just because that person is related to the appointing authority); East Paterson v. Civil Service Dep't, 47 N.J.Super. 55, 68 (App.Div.1957) ("[the] consideration of bona fide action on the part of the municipality is an essential part of the Civil Service Commission's reviewing function"); Schnipper v. North Bergen Tp., 13 N.J.Super. 11, 14-15 (App.Div.1951); Note, "Public Sector Labor Relations," supra, 32 Rutgers L.Rev. at 81-83. The concepts of bad faith or arbitrariness include improper motives on the part of a government employer reflecting bias against public employee organizations. See Burlington Cty. Evergreen Park Mental Hosp. v. Cooper, supra. Hence, charges before the Civil Service Commission of failure to promote because of labor union activity would necessarily implicate merit and fitness standards and thus be cognizable by the Commission in a case properly before it.
There is also little question that PERC has jurisdiction in a case such as this where individual public employees allege that they wrongfully have been denied promotions because of their organizational activities within the public work force. Government employees have a constitutional right to secure organizational representation in employment. N.J.Const. (1947), Art. I, par. 19. See Red Bank Regional Ed. Ass'n v. Red Bank Regional High School Bd. of Ed., 78 N.J. 122, 136-137 (1978); West Windsor Tp. v. Public Employment Relations Comm'n, 78 N.J. 98, 109 (1978); Passaic Cty. Probation Officers' Ass'n v. Passaic Cty., 73 N.J. 247, 251 (1977); Union Beach Bd. of Ed. v. New Jersey Ed. Ass'n, 53 N.J. 29, 44-45 (1968). See generally Coleman, "A Perspective on Public Employee Unionism in New Jersey," 4 Rut.-Cam.L.J. 289 (1973). N.J.S.A. 34:13A-5.3 vindicates this constitutional right and also guarantees employees protection in its exercise. N.J.S.A. 34:13A-4.5 a(l) and 34:13A-5.4 a(3) prohibit and punish unfair practices in public employment. Such unfair practices include "[interfering with, restraining or coercing employees in the exercise of the rights guaranteed to them by this act" and "[discriminating in regard to hire or tenure of employment or any term or condition of employment to encourage or discourage employees in the exercise of the rights guaranteed to them by this act." Id. PERC's jurisdiction over unfair practices is sufficiently broad to accommodate claims of wrongful treatment relating to the organizational rights of employees as well as to their working conditions. Cf. Galloway Tp. Bd. of Ed. v. Galloway Tp. Ed. Ass'n, supra; Kaczmarek v. New Jersey Turnpike Auth., 77 N.J. 329, 342-343 (1978). And PERC's statutory remedial powers to redress economic injury and to prevent wrongs of this kind are fully commensurate with its broad jurisdictional grant. Galloway Tp. Bd. of Ed. v. Galloway Tp. Ass'n of Ed. Sec., supra. It would certainly constitute an unfair practice if public employees, having engaged in lawful organizational activities, were to be penalized or denied promotions because of that protected participation. For present purposes, we would content ourselves on this point with the analogy furnished by the National Labor Relations Act, 29 U.S.C.A. § 151 et seq., see Lullo v. International Ass'n of Fire Fighters, 55 N.J. 409, 422-425 (1970), and note simply that the denial or threatened withholding of a promotion because of union activities has been recognized as a violation of that act. E. g., N.L.R.B. v. Marmon Transmotive, 551 F.2d 732 (6 Cir. 1977); Steves Sash & Door Co. v. N.L.R.B., 401 F.2d 676 (5 Cir. 1968). See Tener, "The First Decade," supra, 9 Rut. Cam.L.Rev. at 613; Note, "Public Sector Labor Relations," supra, 32 Rutgers L.Rev. at 81-91.
We conclude from this analysis that each agency, both the Civil Service Commission and the Public Employment Relations Commission, had a definitive statutory basis for dealing with the case before it. In terms of the dispute as here presented, each administrative body can be said to have had parallel or concurrent jurisdiction over the controversy between the parties.
II
The question of whether the concurrent or parallel jurisdiction residing in each agency to handle this mixed controversy was mandatory or discretionary must next be addressed. In treating this question, the inquiry is directed first to the nature of PERC's jurisdiction in terms of the degree of flexibility which that agency possesses in dealing with cases before it. We focus upon PERC since, as a practical matter, there has been no challenge to the power of the Civil Service Commission to decide the case, no appeal from the Civil Service Commission's finding, and no contention that the Civil Service Commission should have stayed its proceedings as an exercise of sound discretion. In any event, PERC now vigorously contends that its own jurisdiction over the unfair practice issue was compulsory and thus had to be exercised without regard to the pendency or the outcome of the Civil Service Commission proceedings.
In Hinfey v. Matawan Reg. Bd. of Ed., supra, this Court dealt with a similar question, there in terms of whether an "occlusive statutory bar" existed which would prevent the exercise of agency discretion in staying a proceeding and in transferring the matter to another agency with cognate jurisdiction. 77 N.J. at 531. We there held that the Division on Civil Rights had discretionary jurisdiction to abstain from handling a dispute involving sex discrimination in academic curricula and could transfer that issue to the Commission of Education for adjudication. PERC, joined by the individual petitioners, while not couching its contentions in terms of an "occlusive statutory bar," here asserts that its jurisdiction over the unfair practice charge is "exclusive" under N.J.S.A. 34:13A-5.4 c and that this jurisdiction is mandatory.
This argument by PERC for compulsory, preemptive jurisdiction is based primarily upon one of the 1974 amendments to the Public Employer-Employee Relations Act. Prior to the passage of those amendments, L.1974, e. 123, this Court had held that the Civil Service Commission had jurisdiction to hear public employee complaints based upon a wrongful dismissal for organizational activities. Burlington Cty. Evergreen Pk. Mental Hosp. v. Cooper, supra, 56 N.J. at 583-584. The Court also held in that case that PERC had no similar statutory jurisdiction to hear charges such as unfair labor practices. This latter holding was subsequently overruled legislatively by the enactment of L.1974, c. 123; § 1; N.J.S.A. 34:13A-5.4. See Galloway Tp. Bd. of Ed. v. Galloway Tp. Ed. Ass'n, supra, 78 N.J. at 33; Patrolman's Benev. Ass'n v. Montclair, 70 N.J. 130, 136 (1976); Note, "Public Sector Labor Relations," supra, 32 Rutgers L.Rev. at 82-83. That amendment granted PERC "exclusive power" to hear unfair practice charges, N.J.S.A. 34:13A-5.4 c, and, according to PERC, manifested a legislative intent to divest the Civil Service Commission of parallel jurisdiction to hear such claims.
PERC has duly noted that the Public Employer-Employee Relations Act provides that "[njothing [tjherein shall be construed to deny any individual employee his rights under Civil Service laws or regulations." N.J.S.A. 34:13A-5.3. See Seliger & Crangle, "A New Direction for Public Safety Employees," 9 Rut.-Cam.L.J. 685, 686-687 (1978). This potential conflict within the same statute, occasioned by the purported grant of exclusive jurisdiction to PERC and the continued preservation of jurisdiction in the Civil Service Commission, generates an ambiguity that invites recourse to the legislative history of the provision as an aid in unraveling the true legislative intent. See Malone v. Fender, supra, 80 N.J. at 136-139, for a similar treatment of N.J.S.A. 11:22-32 (a civil service provision).
The relevant legislative history is not strongly supportive of PERC's position that its jurisdiction over any unfair practice is totally preemptive. In 1972 Assembly Bill 520 was introduced, according to the statement of its sponsor, for the purpose of "[gjranting PERC the power to receive, hear and act upon charges of unfair labor practices and to enforce its decisions." Section 1(c) of that bill empowered PERC to prevent anyone from engaging in any enumerated unfair practices; it also provided that "[t]his power shall be exclusive and shall not be affected by any other statute." The bill was passed by the Legislature, but Governor Cahill returned it with his objections and recommendations for reconsideration, among which was the deletion of the provision regarding the exclusivity of PERC's power. The bill was not subsequently reenacted. In 1974 Senate Bill 1087 was introduced. Although it went through a number of changes before ultimately being enacted as L.1974, c. 123, the provision regarding PERC's jurisdiction, as that provision now appears in N.J.S.A. 34:13A-5.4 c, deleted the conjunctive qualification that its power "shall not be affected by any other statute." The sponsors, in their statement, said simply that the bill would give PERC "unfair labor practice jurisdiction." Given Governor Cahill's objection, it would appear that the subsequently-enacted 1974 version was intended as a less obtrusive expression of the nature of PERC's jurisdiction and as a recognition that statutes in other areas might also have some proper role in the sphere of public employment. See generally Note, "Public Sector Labor Relations," supra.
It seems evident that the Legislature thus hoped to harmonize or meld the overlapping rights of public employees, to discourage internecine struggles between concerned agencies, and to avoid as well haphazard or random conflicts between agencies. That overriding multipartite purpose is consistent with the spirit which, under our modern constitution, animated the structuring of the executive branch of government and brought about a centralization of and limitation upon the number of major executive departments. See N.J.Const. (1947), Art. V, § IV; J. Jacobs, "Administrative Agencies, Their Status and Powers," supra. As brought to bear upon the agencies in this case, these considerations impel us to conclude that the Legislature fully intended to foster a constructive coexistence between the Public Employer-Employee Relations Act and the civil service laws and, further, that the relevant statutory' schemes should be construed and applied so as to reconcile these distinct, yet complementary and interrelated, areas of governmental concern. See State v. State Supervisory Employees Ass'n, supra, 78 N.J. at 73-83.
As previously mentioned, the Legislature by its 1974 amendment corrected a defect in administrative coverage which this Court noted in Burlington Cty. Evergreen Park Mental Hosp. v. Cooper, supra, where no statutory power to deal with unfair labor practices was found to reside in PERC. Patrolman's Benev. Ass'n v. Montclair, supra, 70 N.J. at 136. Cf. Galloway Tp. Bd. of Ed. v. Galloway Tp. Ed. Ass'n, supra. The Legislature obviously believed that the existence or occurrence of unlawful practices called for the expert handling of a specialized administrative agency such as PERC and that in these matters that agency's jurisdiction was indeed to be preferred even to that of the courts. Cf. Kaczmarek v. New Jersey Turnpike Authority, supra. The 1974 amendment vested in PERC full authority to deal remedially with all aspects of the public employment environment when tainted by unfair labor conduct and to provide broad remedial relief to compensate victimized employees for economic injury; to eliminate, correct, and prevent unfair practices; and to improve the overall working climate for public employees. Cf. Galloway Tp. Bd. of Ed. v. Galloway Tp. Ass'n of Ed. Sec., supra. Hence, the Public Employer-Employee Relations Act, as amended, should be understood as granting to PERC the exclusive administrative power to deal fully and completely with complaints of unlawful practices relating to employee rights not directly covered by other laws. It is also clear, however, that'the Legislature did not intend by this important amendment to the Public Employer-Employee Relations Act to diminish the rights of employees under the existing civil service laws. N.J.S.A. 34:13A-5.3. See State v. State Supervisory Employees Ass'n, supra, 78 N.J. at 86-87, 96; Note, "Public Sector Labor Relations," supra, 32 Rutgers L.Rev. at 73-79.
It is not easy to square these dialectical legislative objectives. In terms of the issues raised by this case, the most reasonable conclusion as to the intended application of the statute appears to be that the Civil Service Commission still retains jurisdiction over claims involving factual allegations of improper employment activity when these allegations are integral aspects of valid civil service complaints, even though, if standing alone, the factual circumstances might constitute an unfair practice. Indeed, PERC has conceded that where an unfair practice is not the sole, major or dominant issue in an employer-employee controversy, it would not be improper for the Civil Service Commission to consider that issue if it were otherwise relevant in a civil service proceeding addressing the employer-employee controversy. On the other hand, PERC would have exclusive power over claims involving unfair practice allegations when these allegations do constitute the sole or major complaint of the aggrieved employees. Similarly, wrongful conduct equated with unfair practice, though not the primary issue, may in the context of a particular controversy so dominate or color the entire case that its determination, as a practical matter, might substantially influence or render moot the resolution of other issues. In that situation it would be appropriate to consider PERC's jurisdiction to be "exclusive." It is also possible that an unfair practice charge may raise issues of wide public significance affecting important interests extending beyond those of the immediate parties; in such a case, it may be appropriate to invoke PERC's jurisdiction even though the matter is otherwise cognizable before another administrative agency. Additionally, there may be cases in which the unfair practice issue is itself obviously severable from other issues and would thus permit separate, non-duplicative factual findings as well as special remedial relief, e. g., Hinfey v. Matawan Reg. Bd. of Ed., supra (the sex discrimination charges relating to educational curricula were severed from the discrimination charges with respect to employment; the Commission of Education was authorized to determine the former issue and the Division on Civil Rights, the latter); in such instances the exclusive exercise of jurisdiction by PERC limited to the severed unfair practice issue would be fitting. PERC's jurisdiction, moreover, would be exclusive with respect to unfair practices by employees as enumerated in N.J.S.A. 34:13A-5.4 b since public employers do not have the same right of appeal to the Civil Service Commission as do public employees. Further, PERC would also retain exclusive jurisdiction over those unfair employer practices, such as a refusal to negotiate in good faith, which do not in fact involve an individual employee's civil service or other agency-protected rights. N.J.S.A. 34:13A-5.4 a(5). Compare Essex Cty. Pros., Det. & Inves. Ass'n v. Hudson Bd. of Freeholders, supra (union's complaint regarding change in working hours should be heard by PERC and not by Civil Service Commission), with Patrolmen's Benev. Ass'n v. Elizabeth, supra (layoffs and demotions as part of reorganization should be heard by Civil Service Commission and not by PERC). Cf. State v. State Supervisory Employees Ass'n, supra.
We conclude that under the circumstances of this case the concurrent jurisdiction of PERC over the particular claims of the firefighters was not "exclusive" or preemptive under the Public Employer-Employee Relations Act and was not therefore mandatory in the sense that PERC had no choice but to proceed in the matter even though it was properly pending before the Civil Service Commission. The claims raised mixed and multiple factual and legal issues; they directly projected civil service grievances and were not limited to allegations of employer misconduct solely, primarily or predominantly involving unfair practices under the Public Employer-Employee Relations Act. Nor was it suggested that the unfair practice allegations in the case were in any sense severable from the issues before the Civil Service Commission or that the complaints called only for a form of relief fundamentally different from that generally contemplated by the Civil Service Commission. Further, there was no adequate indication that the complaints projected issues of fundamental importance which clearly transcended the interests of the immediate participants. PERC, therefore, under the circumstances presented, had the statutory power to abstain initially from proceeding in the matter and to defer provisionally to the exercise of jurisdiction over the controversy by the Civil Service Commission. For reasons which we now explain, that discretion should have been exercised in favor of deference to the Civil Service Commission.
Ill
Since PERC did not in fact abstain, the crux of this appeal has been presented in terms of whether PERC, by virtue of the existence of its discretionary jurisdiction over the instant controversy, should have considered itself bound by the final decision of the Civil Service Commission even though PERC itself also conducted a full hearing of the case. And, if so, whether such deference would apply to the complete determination of the Civil Service Commission, that is, not only to its factual findings and legal conclusions but also to the administrative relief accorded. Implicated in the resolution of this ultimate issue is the preliminary or subsidiary question of whether PERC, having the statutory power or discretion to abstain vel non from proceeding initially in the matter, should have stayed or delayed its own assertion of jurisdiction until the Civil Service Commission had concluded its resolution of the case. The two questions are necessarily interrelated.
The Appellate Division was of the view that PERC's discretion in this case as to whether to defer to the Civil Service Commission's determination ought to have been guided by the precepts which govern judicial courts in similar situations. It mentioned illustratively the collateral estoppel and single-controversy doctrines. 162 N.J.Super. at 25. It is to be emphasized, however, that administrative agencies cannot be equated with judicial courts. An administrative agency is not simply a neutral forum whose function is solely to decide the controversy presented to it. Administrative agencies belong to a different branch of government. They are separately created and exercise executive power in administering legislative authority selectively delegated to them by statute. 1 K. Davis, Administrative Law Treatise § 1:2 at 9 (2d ed. 1978); Sewall, supra, 6 Ind.L. Rev. at 449-450; J. Jacobs, "Administrative Agencies, Their Status and Powers," supra at 1433. This is not to say that there are not strong similarities between administrative and judicial tribunals. The power exercised by administrative agencies, having legislative and executive as well as judicial characteristics, has been termed "quasi-judicial" when it takes the form of adjudication in contested cases. See, e. g., Morgan v. United States (Morgan II), 304 U.S. 1, 22, 58 S.Ct. 773, 778, 82 L.Ed. 1129, 1134 (1937); Mazza v. Cavicchia, 15 N.J. 498, 524 (1954); Jamesburg v. Hubbs, 6 N.J. 578, 585 (1951); Pennsylvania R. R. Co. v. New Jersey Aviation Comm'n, 2 N.J. 64, 68-70 (1949); McFeely v. Board of Pension Comm'rs, 1 N.J. 212, 215-216 (1948); Adolph v. Elastic Stop Nut Corp., 18 N.J.Super. 543, 546-547 (App.Div.1952); Morton v. Clark, 102 N.J.Super. 84, 92-93 (Law Div.1968); 2 K. Davis, Administrative Law Treatise, supra, § 10:5 at 322-323 (2d ed. 1979); see also 1 K. Davis, Administrative Law Treatise, supra, § 2:4 at 70-72, § 2:5 at 72-75 (2d ed. 1978). However, the adjudicative functions of administrative agencies are actually an aspect of their regulatory powers and, in essence, do not embrace or constitute the exercise of judicial authority. Rather, administrative adjudication constitutes a form of judicial mimicry, hence its characterization as quasi -judicial rather than judicial.
Courts, by contrast, are constitutionally-founded, independent and impartial adjudicative tribunals constituted to hold and exercise the judicial power which emanates directly from the Constitution. U.S.Const., Art. Ill, § 1; N.J.Const. (1947), Art. VI, § 1. See, e. g., Muskrat v. United States, 219 U.S. 346, 354-356, 31 S.Ct. 250, 253-255, 55 L.Ed. 246, 249-250 (1911); Gordon v. United States, 117 U.S. 697, 699-704, 76 L.Ed. 1347, 1349-1353 (1865) (per Taney, C. J.). See also Committee on the Judiciary's Report to the Convention (August 26, 1947), II Proceedings of Const. Conv. of 1947, 1180, 1181, 1190 (1951); W.B. Graves, "What Should a Constitution Contain?" (monograph), II Proceedings of Const. Conv. of 1947, 1328, 1332 (1951). Consequently, procedures and techniques developed to handle the operation and business of the courts may not be transported in toto or imported wholesale into administrative agencies. Nevertheless, in practice, since there are pronounced similarities in the exercise of judicial and quasi-judicial powers, it has been recognized that court-fashioned doctrines for the handling of litigation do in fact have some genuine utility and relevance in administrative proceedings. But, in applying such court-based precepts to administrative agencies, their potential for achieving sound results must be tempered by a full appreciation of an administrative agency's statutory foundations, its executive nature, and its special jurisdictional and regulatory concerns. Gordon Cty. Broadcasting Co. v. F. C. C., 144 U.S.App.D.C. 334, 337, 446 F.2d 1335, 1338 (D.C.Cir.1971) (res judicata); Grose v. Cohen, 406 F.2d 823, 824-825 (4 Cir. 1969) (res judicata).
The utilization of court-made procedural tools in administrative proceedings must depend in the final analysis upon the nature of the agency's regulatory responsibilities toward the subject matter of the controversy as well as toward the particular parties appearing before it. Moreover, because administrative agencies serve in part to effectuate the constitutional obligation of the executive branch to see that laws are faithfully executed, N.J.Const. (1947), Art. V, § I, par. 11, the public interest is an added dimension in every administrative proceeding. That interest is necessarily implicated in agency adjudications, and, in a sense, the public is an omnipresent party in all administrative actions. See, e. g., N.J.S.A. 34:13A-2. Cf. Galloway Tp. Bd. of Ed. v. Galloway Tp. Ass'n of Ed. Sec., supra, 78 N.J. at 33-37.
Such considerations support the general principle that administrative agencies are entitled to and, indeed (as stressed by Justices Pashman and Schreiber in their separate opinions, post at 1166-1167 and 1170-1171), may in fact be required to exercise their statutory powers over controversies properly before them regardless of whether other administrative or judicial avenues for relief are also open to the complainants. This may be so regardless of the fact that aggrieved parties thereby proverbially gain two strings to the bow or two bites of the apple. There are pertinent examples in the field of federal labor law, e. g., Alexander v. Gardner-Denver Co., 415 U.S. 36, 47-50, 94 S.Ct. 1011, 1018-1020, 39 L.Ed.2d 147, 158-159 (1974); Carey v. Westinghouse Electric Corp., 375 U.S. 261, 270-272, 84 S.Ct. 401, 408-409, 11 L.Ed.2d 320, 327-328 (1964), as well as in the field of state and local public employment, e. g., Albany v. Public Employment Rel. Bd., 57 A.D.2d 374, 375-376, 395 N.Y.S.2d 502, 504 (App.Div.1977), aff'd mem. o. b. 43 N.Y.2d 954, 404 N.Y.S.2d 343, 375 N.E.2d 409 (Ct.App.1978); Dedham v. Labor Relations Comm'n, 365 Mass. 392, 400-406, 312 N.E.2d 548, 555-557 (Sup.Jud.Ct.1974). Cf. Rucker v. Wilson, 475 F.Supp. 1164, 1166 (E.D.Mich.1979). The exercise of independent juris diction by an agency has been approved as a matter of imputed legislative intent when that agency possesses its own distinctive functional characteristics. United States v. Radio Corp. of America, 358 U.S. 334, 79 S.Ct. 457, 3 L.Ed.2d 354 (1959); F. T. C. v. Cement Institute, 333 U.S. 683, 68 S.Ct. 793, 92 L.Ed. 1010 (1948); F. T. C. v. Texaco, Inc., 170 U.S.App.D.C. 323, 332-333, 517 F.2d 137, 146-147 (D.C.Cir.1975), cert. den. 431 U.S. 974, 97 S.Ct. 2939, 2940, 53 L.Ed.2d 1072 (1977) (F.T.C. and Federal Power Commission); S. E. C. v. Jos. Schlitz Brewing Co., 452 F.Supp. 824, 828 (E.D.Wis.1978) (S.E.C. and Bureau of Alcohol, Tobacco and Firearms); Warner-Lambert Co. v. F. T. C., 361 F.Supp. 948, 952-953 (D.D.C.1973) (F.T.C. and F.D.A.). Some courts have stressed that independent jurisdiction should be found in an agency where unique or special remedies are available. See, e. g., So. Burlington v. Vermont Electric Power Co., 133 Vt. 438, 443, 344 A.2d 19, 21-22 (Sup.Ct.1974); Umberfield v. Archuleta & La Plata Cty. School District No. 11, 185 Colo. 165, 171-172, 522 P.2d 730, 734 (Sup.Ct.1974); Oregon City Teachers Fed'n v. Oregon City Ed. Ass'n, 36 Or.App. 27, 36-37, 584 P.2d 303, 309 (Ct.App.1978); see also Seitz v. Duval Cty. School Bd., 346 So.2d 644, 646 (Fla.Dist.Ct.App.1977), cert. den. 354 So.2d 985 (Fla.1978) (Florida PERC); Comment, "Application of Res Judicata to Agencies with Parallel Jurisdiction," 52 Den.L.J. 595 (1975) (analyzing Umberfield, supra). As for our own state, this principle is here claimed by the Attorney General to be illustrated by such cases as In re Tenure Hearing of Grossman, 127 N.J.Super. 13 (App.Div.), certif. den. 65 N.J. 292 (1974).
This court has nevertheless recognized that there are important goals to be achieved from the prudent and selective application in administrative proceedings of such doctrines as res judicata, collateral estoppel, and the single controversy rule. Hinfey v. Matawan Reg. Bd. of Ed., supra, 77 N.J. at 532. See Lubliner v. Paterson Alcoholic Beverage Control Bd., 33 N.J. 428, 442 (1960) (res judicata and collateral estoppel); Russell v. Tenafly Bd. of Adjustment, 31 N.J. 58, 65-66 (1959) (res judicata ); Trap Rock Industries, Inc. v. Sagner, 133 N.J.Super. 99, 109 (App.Div.1975), aff'd by a divided court 69 N.J. 599 (1976) (res judicata, collateral estoppel and kindred doctrines). See also Skulski v. Nolan, 68 N.J. 179, 198-199 (1975). In Hinfey v. Matawan Reg. Bd. of Ed., supra, we spoke of achieving these goals in terms of "administrative comity," viz:
[The] principles of comity and deference to sibling agencies are part of the fundamental responsibility of administrative tribunals charged with overseeing complex and manifold activities that are also the appropriate statutory concern of other governmental bodies. [Citations omitted.] This is a corollary application of the broader principle that where a court has concurrent, discretionary jurisdiction with another court or an administrative agency, the decision to exercise jurisdiction vel non should be fully responsive to the competence, expertise and status of the other tribunal. [Citations omitted.] Comity and deference to cognate tribunals are designed to assure that a controversy, or its most critical facets, will be resolved by the forum or body which, on a comparative scale, is in the best position by virtue of its statutory status, administrative competence and regulatory expertise to adjudicate the matter. [77 N.J. at 531-532.]
We previously alluded to the underlying principles of our modern constitutional structure of government that have resulted in a strong and centralized executive. As a matter of generality, legislative enactments in the administrative area presumably reflect this organic theory of our state government. Hence it is consistent with this constitutional philosophy to apply to administrative agencies, in appropriate situations, judicial rules conducive to the ends of intergovernmental compatibility and harmony, such as res judicata, collateral estoppel, the single-controversy doctrine and the like. Decisions have stressed that the policy considerations which support these judicial doctrines — namely, finality and repose; prevention of needless litigation; avoidance of duplication; reduction of unnecessary burdens of time and expenses; elimination of conflicts, confusion and uncertainty; and basic fairness — have an important place in the administrative field. See, e. g., Hinfey v. Matawan Reg. Bd. of Ed., id. at 532. See also United States v. Utah Construction & Mining Co., 384 U.S. 394, 421—422, 86 S.Ct. 1545, 1559-1560, 16 L.Ed.2d 642, 660-661 (1966); Pettus v. American Airlines, Inc., 587 F.2d 627, 628-629 (4 Cir. 1978); Bowen v. United States, 570 F.2d 1311, 1322-1323 (7 Cir. 1978); Paramount Transport Sys. v. Chauffeurs, Teamsters & Helpers, Local 150, 436 F.2d 1064, 1065-1066 (9 Cir. 1971); Safir v. Gibson, 432 F.2d 137, 143-144 (2 Cir. 1970), cert. den. 400 U.S. 850, 91 S.Ct. 57, 27 L.Ed.2d 88 (1970); Painters Dist. Coun. No. 38, Etc. v. Edgewood Contracting Co., 416 F.2d 1081, 1084 (5 Cir. 1969); Gale v. State Board of Equalization, 264 Cal.App.2d 689, 692, 70 Cal.Rptr. 469, 470 (Ct.App.1968); K. Davis, Administrative Law Treatise § 18.02 at 427 (1976 Supp.); Note, "Administrative Collateral Estoppel: The Case of Subpoenas," 87 Yale L.J. 1247, 1250-1253 (1978); Comment, "Application of Res Judicata to Agencies with Parallel Jurisdiction," 52 Den.L.J. 595 (1975) (analyzing Umberfield, supra). Cf. Sewall, supra, 6 Ind.L.Rev. at 472 — 474 (discussing the permissibility of overlapping agency jurisdiction); Note, "Preclusive Effect," supra, 64 Iowa L.Rev. 339. It seems evident that such principles, while basically judicial in origin, have especial relevance for administrative adjudications.
Focusing upon the appeal at hand, these principles should have been invoked in this case at the earliest stages of the dispute, as well as in its terminal phases; they should have been applied not only to resolve the controversy between the parties but also to avoid the collision between the two tribunals. PERC, in exercising its discretion whether to proceed or not in the matter, should have been governed by these considerations. Its first concern should have been whether or not the common issue before both agencies, here the unfair practice, was either the sole or major issue in dispute or a dominating issue in the sense that its determination would have served either to moot the remaining questions in dispute or to have affected substantially their resolution. Another important factor which PERC should have weighed was whether the allegations clearly involved important issues and interests which extended beyond the immediate parties. A further consideration for PERC was whether the common issue was clearly severable from the balance of the controversy and would thus have permitted non-duplicative factual and legal determinations. A related inquiry should have been whether the claims, if ultimately vindicated, would obviously have required specialized or particularized remedial relief not generally available in the other agency. The single-controversy doctrine constituted a further key consideration, i. e., whether the common issue could have been fairly, competently and fully tried and adjudicated together with and as a constituent part of all other issues in the case before one agency so that fragmented and repetitious actions would be avoided, all relevant concerns addressed and the entire controversy concluded in a single proceeding. Cf. Tevis v. Tevis, 79 N.J. 422, 434 (1979).
We are satisfied that, applying these broad standards, PERC should have stayed its hand at the threshold stages of the case as presented to it. The controversy here presented multiple and mixed issues involving the statutory concerns of both agencies. Nevertheless, the basic dispute involved primarily civil service law. The firefighters here claimed to be entitled to promotion under civil service by virtue of merit and fitness, demonstrated in part by their performance on the promotional examinations conducted under civil service. Cf. Pringle v. N.J. Civil Service Dep't, 45 N.J. 329 (1965). The anti-union bias charge was not the sole, major, or dominating issue. The factual circumstances relating to this issue, moreover, were the same as those raised in the civil service proceedings and the facts pertaining to these charges were inseparable. Additionally, it was not shown or suggested at the outset of the case that any important interests other than those of the immediate parties were implicated. Nor, in terms of the broad remedial powers of the Civil Service Commission, did it appear that redress as sought by the claimants would have been inadequate. Finally, there was a substantial likelihood that the entire controversy could have been heard fairly and fully by the Civil Service Commission in a single proceeding with sufficient expertise and competence to account for all genuine concerns including those occasioned by the unfair labor practice charge. In short, we conclude that it would have been the proper and politic course at the outset of these proceedings for PERC to have stayed its own hearings until after the Civil Service Commission had reached a determination in the matter.
Such abstention by PERC, however, did not in fact occur. There was a full hearing upon the complaints before PERC, which now argues that neither it nor the parties should have been bound by the Civil Service Commission's determination. PERC contends that the Civil Service Commission hearing did not address squarely the issue of anti-union prejudice as an unfair practice and, further, that the parties did not fully litigate this issue. We reject this argument for the same reasons as expressed by the Appellate Division, which determined, on the record of the proceedings before the Civil Service Commission, that "the issue of prejudice or lack of good faith due to union activities was fully and fairly litigated by the parties in a formal, adversarial proceeding." 162 N.J.Super. at 29-30. That court, id. at 30, 392 A.2d 187, found these reasons sufficient to apply collateral estoppel to bind the parties to the factual determinations reached by the Civil Services Commission, citing as supporting authority Texaco, Inc. v. Operative Plasterers and Cement Masons Int'l Union, Local 685, AFL-CIO, 472 F.2d 594 (5 Cir. 1973), cert. den. 414 U.S. 1091, 94 S.Ct. 721, 38 L.Ed.2d 548 (1973); International Wire v. Local 38, Int'l Brotherhood of Elec. Workers, 475 F.2d 1078 (6 Cir. 1973), cert. den. 414 U.S. 867, 94 S.Ct. 63, 38 L.Ed.2d 86 (1973); Paramount Transport Systems v. Chauffeurs, Teamsters & Helpers, Local 150, 436 F.2d 1064 (9 Cir. 1971); and F.T.C. v. Texaco, Inc., 170 U.S.App.D.C. 323, 333, 517 F.2d 137, 147 (D.C.Cir.1975), cert. den. 431 U.S. 974, 97 S.Ct. 2939, 2940, 53 L.Ed.2d 1072 (1977).
In a similar vein may be noted PERC's contentions that the decision of the Civil Service Commission was wrong both factually and legally. PERC asserts that anti-union bias constituted a sufficient causative factor in the denial of the promotions to constitute an unfair practice and to justify corrective administrative relief. We are not, however, called upon in this appeal to ascertain in what degree of causation anti-union bias as an unfair practice would serve to vitiate otherwise valid governmental actions involving public employees. Cf. Mt. Healthy Bd. of Ed. v. Doyle, 429 U.S. 274, 287, 97 S.Ct. 568, 575-576, 50 L.Ed.2d 471, 484 (1977). We acknowledge that PERC makes the argument that its adjudication of the unfair practice issue was qualitatively superior to that of the Civil Service Commission. Nevertheless, we concur with the Appellate Division that the civil service determination was supportable in every respect. 162 N.J.Super. at 29-30, 392 A.2d 187. There was moreover, no appeal from the final determination of the Civil Service Commission; thus the adequacy of its factual and legal conclusions is not here genuinely or directly challenged.
On this facet of the appeal, dealing with the comparative quality of each agency's adjudication, it is of significance that recent legislation, L. 1978, c. 67; N.J.S.A. 52:14F-1 et seq., may go far to remove this concern as a substantial consideration in sorting out conflicting jurisdictional claims. The act creates an independent Office of Administrative Law and provides for the assignment of independent hearing officers, denominated "administrative law judges" to hear and make recommended determinations in contested administrative agency cases. N.J.S.A. 52:14F-5, -6, -8. The salutary purpose of the statute "is to improve the quality of justice with respect to administrative hearings .[,] to eliminate conflict of interests for hearing officers, promote due process, expedite the just conclu sion of contested cases and generally improve the quality of administrative justice." Statement of Purpose, L. 1978, c. 67. The administrative law judges will be independent of the administrative agency whose jurisdiction is involved. The judge assigned to a contested case presumably will have the expertise, knowledge, training and background to qualify him or her to preside over the particular case. N.J.S.A. 52:14F-6. When, as in the present case, there are involved multiple issues implicating different administrative disciplines or domains, the statute contemplates the designation of an individual administrative law judge, or another "who may be specially appointed," with the special qualifications commensurate with the demands of the case itself. N.J.S.A. 52:14F-5 m, -6. It is anticipated that the findings and recommended dispositions of the administrative law judges will carry substantial weight in the final determination to be made by administrative agencies. See, e. g., N.J.A.C. 19:65-16.5 (proposed) at 11 N.J.R. 487 (1979). While PERC is not one of the agencies expressly included for coverage under the new Office of Administrative Law Act, it is obvious that PERC's jurisdictional concerns would be given careful and appropriate attention by an administrative law judge in any contested proceeding before another administrative agency when such concerns are raised; and, indeed, PERC itself has the express power under the statute to request the assignment of an administrative law judge to hear and resolve any of its cases. N.J.S.A. 52:14F-8.
There is thus every reason to expect that the real or imagined qualitative gaps in the decisional process between different administrative agencies will in the immediate future become narrower and that cross-agency controversies will become more amenable to handling in a single agency proceeding by judges with a breadth of expertise, range of experience, and adjudicatory deftness sufficient to deal with all of the ramifications of the matter and to accommodate the genuine interests of any and all governmental bodies whose jurisdictional nerves are touched.
IV
The outcome in the instant case under all circumstances would require PERC to accord binding effect to the determination of the Civil Service Commission that anti-union bias was not a substantial factor in the decision of the appointing authority to deny promotions to the petitioners. The Appellate Division saw fit to set aside PERC's subsequent determination on the ground that that agency was bound to follow the earlier determination by the Civil Service Commission under principles of collateral estoppel, or "issue preclusion," as well as under the single controversy doctrine. 162 N.J.Super, at 31. Accordingly, the court reversed and set aside the subsequent PERC order. We agree with that result, but would modify the judgment of the court in one respect. The court stated that, in the future, controversies such as that involved in this appeal as a matter of course should proceed initially before PERC rather than before the Civil Service Commission. 162 N.J.Super. at 32. We have, however, pointed out by this opinion that such controversies invoke the discretionary jurisdiction of each administrative agency involved and that the appropriate exercise of that discretion should be in accordance with the relevant and important considerations here expounded. In this respect the ruling of the Appellate Division is not approved.
Accordingly, for the reasons set forth, the judgment of the court below is modified and, as modified, is affirmed. No costs.
it is apparently recognized that cross-disciplinary controversies involving overlapping administrative jurisdiction may have to be dealt with from time to time on a consolidated basis in one proceeding presided over by a single administrative law judge. See N.J.A.C. 19:65-1.1 et seq. (proposed) at 11 N.J.R. 479-488 (1979); N.J.S.A. 52:14F-5, -6.