Opinion ID: 1787114
Heading Depth: 3
Heading Rank: 1

Heading: Whether the statutory method for seeking review is University employment decisions is the exclusive remedy.

Text: ¶ 9. The statutory method for seeking review of University employment decisions is by writ of certiorari. The two statutes applicable to the University's employment decision are Miss.Code Ann. §§ 11-51-93 & -95 (1972 & Supp.2000). Section 11-51-93 provides in pertinent part: All cases decided by a justice of the peace, whether exercising general or special jurisdiction, may, within six months thereafter, on good cause shown by petition, supported by affidavit, be removed to the circuit court of the county, by writ of certiorari, which shall operate as a supersedeas, the party, in all cases, giving bond, with security, to be approved by the judge or clerk of the circuit court, as in cases of appeal from justices of the peace; and in any cause so removed by certiorari, the court shall be confined to the examination of questions of law arising or appearing on the face of the record and proceedings.... Miss.Code Ann. § 11-51-93 (1972). Further, § 11-51-95 provides that [l]ike proceedings as provided in section § 11-51-93 may be had to review the judgments of all tribunals inferior to the circuit court, whether an appeal be provided by law from the judgment sought to be reviewed or not. In Hall v. Board of Trs. of State Insts. of Higher Learning, 712 So.2d 312 (Miss.1998), this Court held that hearing panels at state universities are such tribunals inferior, whose employment decisions may be reviewed by writ of certiorari pursuant to § 11-51-95. ¶ 10. In reviewing an administrative agency's findings of fact, the circuit court and this Court afford great deference to an administrative agency's construction of its own rules and regulations and the statutes under which it operates. Board of Supervisors v. Waste Mgmt. of Miss., Inc., 759 So.2d 397, 400 (Miss.2000) (citing McDerment v. Mississippi Real Estate Comm'n, 748 So.2d 114, 118 (Miss. 1999)). When appeal is taken to the circuit court through writ of certiorari, § 11-51-93 provides that [t]he court shall be confined to the examination of questions of law arising or appearing on the face of the record and proceedings.... Smith argues that because of the inadequate record before the Personnel Action Review Board, his sole meaningful remedy was to seek de novo review by filing an original lawsuit. Smith's claim raises the issue of whether the statutory appeal method is the exclusive method for seeking relief. ¶ 11. In analyzing whether the statutory appeal method was Smith's exclusive remedy, the University points out that judicial deference to administrative decision-making is firmly rooted in this State's constitutional jurisprudence. The State's public universities are considered a part of the executive branch of State government. Van Slyke v. Board of Trs. of State Insts. of Higher Learning, 613 So.2d 872, 879 (Miss.1983). State universities, like other executive branch agencies, have adopted appellate procedures for employees who wish to contest an adverse employment decision and have formed administrative, quasi-judicial tribunals to hear and rule upon employee appeals. The University's Personnel Action Review Board is one such tribunal. ¶ 12. This Court has repeatedly recognized the availability of the writ of certiorari under § 11-51-95 for the review of decisions of inferior state administrative tribunals. In Hall, this Court held that hearing panels at state universities are such tribunals inferior, whose employment decisions may be reviewed by writ of certiorari pursuant to § 11-51-95. Hall, 712 So.2d at 324. Hall also held that: Where a decision of an administrative agency is appealed to the circuit court pursuant to a writ of certiorari as provided by Miss.Code Ann. § 11-51-93, the circuit court's review of the decision of state agencies is to be confined to the examination of questions of law arising or appearing on the face of the record and proceedings. Hall, 712 So.2d at 324 (citing Miss.Code Ann. § 11-51-93 (1972)). Moreover, Smith contests neither the wording nor the applicability of § 11-51-95. Smith argues, rather, that his case warrants an exception to the statutory method because his procedural due process rights were violated. ¶ 13. Smith argues that he is entitled to bring an independent suit and seek de novo review of the University's employment decision for two reasons. First, Smith argues that since this Court allowed a former University of Mississippi football coach trial de novo in Board of Trs. of State Insts. of Higher Learning v. Brewer, 732 So.2d 934 (Miss.1999), that he also is entitled a trial de novo. Second, Smith argues that the PARB hearing was constitutionally infirm and that, to address the hearing's constitutional flaw, the Court must consider matters outside the record before the PARB. Smith claims that if his sole remedy is by writ of certiorari, and if the reviewing court is confined to the face of the record, then he essentially has no remedy because the record from his appeal before the PARB is inadequate. Additionally, Smith argues that since he sought reinstatement as a remedy, the chancery court had jurisdiction to hear the matter. ¶ 14. The University argues that appeal to the circuit court by writ of certiorari was Smith's exclusive remedy for review of the PARB's employment decision. The University asserts that because Smith did not appeal the PARB's decision, that decision is final, and Smith's claims are therefore barred by res judicata. The University also asserts that the circuit court lacks jurisdiction over the matter, because Smith did not file a petition for writ of certiorari with the required bond within six months of the PARB's decision. ¶ 15. In support of his first contention, that his claims are not barred by his failure to appeal the PARB's decision in the statutorily prescribed manner, Smith relies on Board of Trs. of State Insts. of Higher Learning v. Brewer, 732 So.2d 934 (Miss. 1999). In Brewer, former University head football coach Billy Brewer appealed his termination to the PARB for a full hearing. Brewer, 732 So.2d at 935. The PARB ultimately upheld his termination, and Brewer then filed a complaint in the circuit court, seeking monetary damages for breach of contract, violation of his constitutional rights, and tortious interference with contract. Id. The Board of Trustees (Board) filed a Motion to Dismiss for Lack of Jurisdiction, claiming that the circuit court lacked jurisdiction over the case, because Brewer failed to follow the statutory procedure under Miss.Code Ann. §§ 11-51-93 and 11-51-95. The circuit court denied the Board's motion, and the Board appealed to this Court. ¶ 16. In explaining why Brewer could maintain a separate action in the circuit court, despite the fact that he did not follow the statutory procedure, this Court cited Hall v. Board of Trs. of State Insts. of Higher Learning, 712 So.2d 312 (Miss. 1998). In Hall, the Court approved the use of the statutory procedure for appeals from administrative tribunals at Mississippi universities. In Brewer, this Court differentiated the two cases by stating that: Hall is easily distinguished from the current case. Hall sought to have the decision of the administrative tribunal... reversed; his action was a direct appeal from the administrative procedure. In this case, Brewer filed a separate suit seeking monetary damages for breach of contract after he received confirmation from the University's director of Personnel ... that his administrative remedies with the University had been exhausted. Brewer's action in circuit court was not an attempt to seek reinstatement through an appeal from the decision of the University or the Board's approval, but was instead a separate breach of contract action for damages. Brewer, 732 So.2d at 936. The Court held that Brewer followed the proper procedure for initiating a breach of contract claim against the Board by filing a complaint in the circuit court. Id. at 937. ¶ 17. Smith argues that, although he did and still does seek reinstatement, his complaint before the chancery court also sought monetary damages in the alternative. Smith argues that the reason this Court ruled that Brewer did not have to avail himself of the statutory procedure requiring a writ of certiorari was because Brewer sought damages, a separate type of remedy. He claims that since he demanded damages in his complaint to the chancery court, he should have been allowed to pursue the action upon the chancery court's transfer to the circuit court. Smith also argues that the chancery court had jurisdiction to hear the entire matter the issue of reinstatement and the issue of monetary damages. ¶ 18. Smith's reliance on Brewer is misguided. Brewer did not overrule this Court's prior holding in Hood; rather, the holding in Brewer was limited to the facts of that particular case. Brewer emphasized that, the circuit court has original jurisdiction over all breach of contract cases, and that Brewer's action in circuit court was not an attempt to seek reinstatement through an appeal from the decision of the University or the Board, but was instead a separate breach of contract action for damages. Id. at 936. Brewer had three years remaining on his contract with the University at the time he was terminated. Id. at 935. The Court's rationale in Brewer was based on the fact that Brewer had a written, separately negotiated contract with the University, the terms of which were in dispute. This Court places high importance on such contractual relationships. Smith, however, had no such written contract. Smith refers to an oral contract of employment with the University. In truth, Smith was a state employee with no separate, written contract. Smith was afforded statutory protections and procedures for the purpose of appealing employment decisions, while an employee with a separate, written contract may pursue other avenues in search of relief. ¶ 19. Also, in Brewer, the Court implied that its decision was based in part on fairness concerns, stating that: Our notions of due process would be impugned by requiring Brewer to pursue a breach of contract claim against the Board in an administrative tribunal ultimately answerable to the Board itself and subject to the limited review of the circuit court allowed under § 11-51-93. Id. at 937.