Opinion ID: 2209220
Heading Depth: 3
Heading Rank: 1

Heading: Rhode Island Fair Employment Practice Act

Text: Employers are prohibited by § 28-5-7(1)(B), as amended by P.L. 1987, ch. 494, § 1, from discharging or discriminating against an employee on the basis of age. [5] Union alleges that FEPA was not violated in this case by virtue of G.L. 1956 (1988 Reenactment) § 43-3-26, which states: Conflicting general and special provisions.  Wherever a general provision shall be in conflict with a special provision relating to the same or to a similar subject, the two (2) provisions shall be construed, if possible, so that effect may be given to both; and in those cases, if effect cannot be given to both, the special provision shall prevail and shall be construed as an exception to the general provision. Union claims that the act is a special act within the terms of § 43-3-26. See Police and Firefighter's Retirement Ass'n of Providence v. Norberg, 476 A.2d 1034, 1036 (R.I.1984) (third time P.L. 1923, ch. 489, has been construed as a special act under § 43-3-26); see also Linnane v. Clark, 557 A.2d 477, 479 (R.I.1989). By distinction, Union characterizes FEPA as a general law. Therefore, applying the rule of statutory construction as provided by § 43-3-26, the act is valid law and is not unlawful age discrimination as prohibited by FEPA. Union also relies on G.L. 1956 (1988 Reenactment) § 43-2-2, which states: Every act, amending or repealing a public law shall, immediately preceding the public law to be amended or repealed, refer to the law by the number and name of the chapter containing the law amended or repealed, and to the year of its passage; provided, however, that any failure to include the reference shall not invalidate or otherwise render void the act. In response Power cites to § 28-5-38, as amended by P.L. 1988, ch. 310, § 3, which states: Liberal Construction.  The provisions of this chapter shall be construed liberally for the accomplishment of the purposes thereof, and any law inconsistant with any provision hereof shall not apply. Nothing contained in this chapter shall be deemed to repeal any of the provisions of any law of this state relating to discrimination because of race or color, religion, sex, physical handicap, age or country of ancestral origin. Nothing contained in this chapter shall be deemed to repeal any of the provisions of any law of this state relating to parental leave. Power states that § 28-5-38 must be construed to override any contrary provisions in a general retirement law. We think it is clear that the question of whether FEPA invalidates the act is a question of law. See St. Germain v. City of Pawtucket, 119 R.I. 638, 641, 382 A.2d 180, 181 (1978) (duty of court to resolve conflicts between statutes). The sole question is one of statutory construction void of any factual issues. The trial judge erred in failing to rule whether the passage of FEPA repealed, or otherwise made unenforceable, the act. We rule today that notwithstanding § 28-5-38, Power fails to state a valid FEPA claim because under § 43-3-26, the act is a special act and FEPA is a general law. In conjunction with the FEPA claim, Union states that Power has failed to exhaust his administrative remedies before bringing this FEPA claim to the Superior Court. Union cites to §§ 28-5-17, 28-5-18, and 28-5-24.1 as mandating the dismissal of a Superior Court action where the commission has not had the opportunity to negotiate a settlement on a FEPA claim. More particularly, Union cites to Roadway Express, Inc. v. Rhode Island Commission for Human Rights, 416 A.2d 673, 676 (R.I.1980), for the proposition that this court has been willing to dismiss a Superior Court claim when the procedural requirements for filing have not been complied with. Before the trial court, Power's sole rebuttal was that Union has no evidence that charges have not been filed with the commission. Before this court, Power now states that charges have been filed before the commission. However, Power makes no attempt to rebut Union's argument that Rhode Island law prevents a FEPA claim until administrative remedies have been exhausted. Although we agree that the exhaustion doctrine would normally ban Power's FEPA claim, Paulo v. Cooley, Inc., 686 F. Supp. 377, 382 (D.R.I. 1988), we believe this case falls within an exception that allows him to bring his suit directly to the Superior Court. The retirement board was operating under a mandamus order approved by this court, to retire police personnel such as Power. To require Power to bring his FEPA claim before the commission would be a futile effort. The commission would be unable to undertake its normal task of conference, persuasion, and conciliation to reach a settlement on Power's claim, because the retirement board was obligated to follow our mandamus order. See § 28-5-16; see also Providence Firefighters Local 799 v. Retirement Board of City of Providence, No. 88-221-A. (R.I., filed January 11, 1988). We shall not require Power to make a fruitless trip to the commission when it is crystal clear and certain that he could not have a favorable outcome. See Ambeault v. Burrillville Racing Ass'n, 118 R.I. 310, 315, 373 A.2d 807, 809 (1977). Moreover, the purposes of the exhaustion doctrine would not be furthered by our not allowing Power's claim to be heard. Typically, the exhaustion doctrine enables the agency to develop a factual record, to apply its expertise to the problem, to exercise its discretion, and to correct its own mistakes, and is credited with promoting accuracy, efficiency, agency autonomy, and judicial economy. Christopher W. v. Portsmouth School Committee, 877 F.2d 1089, 1094 (1st Cir.1989). Here there is no factual record to develop. The only question that would be before the commission is whether age discrimination under the act is a violation of FEPA. We give less deference to the exhaustion doctrine when a pure matter of law is before the administrative agency. Id. at 1095. For these legal reasons, Power may properly assert his FEPA claim before the Superior Court. However, again, the question of whether Power may properly assert a FEPA claim without exhausting his administrative remedies is a question of law, and the trial judge erred in refusing to grant summary judgment on the basis that a question of fact exists. Union further asks that we consider an argument not raised before the trial court. After the trial court issued its decision on May 24, 1989, the Rhode Island Legislature amended FEPA on July 3, 1989. See P.L. 1989, ch. 183, § 2. By the addition of § 28-5-7.1 to the Rhode Island General Laws, the Rhode Island Legislature amended FEPA to conform to the analogous federal statute, 29 U.S.C. § 623(i) (1988). The Rhode Island amendment states that certain age discrimination against fire and police personnel does not violate FEPA with respect to causes of action accruing after July 3, 1989. See P.L. 1989, ch. 183, §§ 2, 3. Assuming we were to allow Union to raise this argument for the first time before this court, the argument is fruitless since clearly the facts demonstrate that if Power had a cause of action under FEPA, it arose prior to July 3, 1989.