Court Opinion

ID: 9954369
Source: CourtListenerOpinion
Date Created: 2024-03-25 22:15:54.055335+00
Date Added: 2024-06-11T08:12:05.995037
License: Public Domain

IN THE COURT OF APPEALS OF THE STATE OF WASHINGTON

AQUEEL W. AL DARRAJI,                             No. 85680-4-I

                   Appellant,                     DIVISION ONE

            v.                                    UNPUBLISHED OPINION

STATE OF WASHINGTON,
EMPLOYMENT SECURITY
DEPARTMENT,

                   Respondent.

       FELDMAN, J. — Aqueel Al Darraji appeals an Employment Security

Department (ESD) commissioner’s decision affirming an order dismissing his

administrative appeal because he failed to establish good cause for his

nonappearance at an administrative hearing regarding unemployment benefits.

Because Al Darraji has not demonstrated the invalidity of the commissioner’s

decision, we affirm.

                                      I

       Al Darraji was an UBER driver and became unemployed due to the COVID-

19 pandemic in March 2020. He applied for and received unemployment benefits

from March 1, 2020 to April 28, 2021. Thereafter, ESD issued a determination

letter denying further unemployment benefits and assessing an overpayment. Al
No. 85680-4-I

Darraji appealed the ESD’s determination letter, and a telephonic hearing to review

the decision was set for October 4, 2021 at 11:00 AM by the Office of

Administrative Hearings (OAH).

      The OAH mailed a Notice of Hearing (Notice) to Al Darraji. The Notice

provided detailed instructions regarding when and how “TO PARTICIPATE IN THE

HEARING BY PHONE,” including the following:

      1. Five minutes before your hearing, call: 1-855-929-3239.

      2. When prompted, enter 246 078 72443 followed by the # key.

      3. You will not have an Attendant ID Number. when prompted by the
         system for your Attendee ID Number, just press #.

      4. You will now be in the conference and may hear other participants
         on the call. Please announce yourself as you join the conference.

          ....

      7. If you have problems joining the telephone conference, or if the
         judge does not join within ten minutes after the hearing start time,
         immediately call OAH at (800) 366-0955. If you do not call within
         10 minutes after the scheduled hearing start time, the Judge may
         enter a Default Order, which means you could lose your right to
         a hearing.

      8. If you get disconnected, call back in using the same code.

The Notice further states: “IF YOU FILED THE APPEAL, and you fail to call in, the

Administrative Law Judge may hold you in default and dismiss your appeal. RCW

34.05.440(2).”

      On the day of the hearing, the Administrative Law Judge (ALJ) waited

approximately 20 minutes past the scheduled start time of the hearing for Al Darraji

to appear by telephone, but Al Darraji did not appear at the hearing. Consequently,

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No. 85680-4-I

the ALJ entered an order of default and dismissed Al Darraji’s appeal pursuant to

RCW 34.05.440.

       Al Darraji timely filed a petition for review of the ALJ’s dismissal order to the

Commissioner’s Review Office (CRO) and a motion to vacate the default order. In

the motion to vacate, Al Darraji explained:

       I was waiting for judge to call me because I thought he will call me
       on my phone number and I did not receive any information about this
       hearing by my mail. I just received email that’s tell me I have hearing
       appointment on October 4. [T]hat’s it. [L]ast time unemployment
       employee called me before my hearing and I thought it’s the same
       thing at this time.

The ALJ declined to consider the motion to vacate because the petition for review

deprived the ALJ of jurisdiction. In response to the petition for review, the CRO

remanded the matter for a hearing to determine whether Al Darraji could establish

good cause for his nonappearance.

       The required hearing took place on May 31, 2022, and Al Darraji attended

telephonically. At the conclusion of the hearing, the ALJ found that Al Darraji had

failed to appear and participate at the October 4, 2021 hearing “because he did

not read the instructions in the Notice of Hearing and call in for the hearing, as

directed” and concluded, “The petitioner has failed to establish good cause for

failing to appear at the October 4, 2021 hearing. The Order Dismissing Appeal

(Default) issued on October 5, 2021 is AFFIRMED.” In support of the ruling, the

ALJ reasoned that failure to read the Notice, lack of understanding of the Notice,

and mistake or oversight do not constitute good cause under controlling legal

authority.

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No. 85680-4-I

       Al Darraji timely appealed the ALJ’s order to the CRO, which adopted the

ALJ’s findings of fact and conclusions of law, ruled that Al Darraji “has not

established good cause for his non-appearance at the October 4, 2021, hearing,”

and affirmed the ALJ’s order dismissing the appeal. Al Darraji timely appealed that

decision to Thurston County Superior Court, which transferred the matter to the

Court of Appeals pursuant to RCW 34.05.518.

                                             II

       The Washington Administrative Procedure Act (APA), ch. 34.05 RCW,

governs judicial review of a final decision of an ESD commissioner. Verizon Nw.,

Inc. v. Emp’t Sec. Dep’t, 164 Wn.2d 909, 915, 194 P.3d 255 (2008). We review

the decision of the commissioner, not the underlying decision of the ALJ. Id. (citing

Tapper v. Emp’t Sec. Dep’t, 122 Wn.2d 397, 405-06, 858 P.2d 494 (1993)). “We

consider a commissioner’s decision to be prima facie correct and the ‘burden of

demonstrating the invalidity of agency action is on the party asserting invalidity.’”

Anderson v. Emp’t Sec. Dep’t, 135 Wn. App. 887, 893, 146 P.3d 475 (2006)

(quoting RCW 34.05.570(1)(a)).

       We may reverse the commissioner’s decision if they based their decision

on an error of law, if substantial evidence does not support the decision, or if the

decision was arbitrary or capricious. RCW 34.05.570(3)(d), (e), (i). Al Darraji

primarily argues that the commissioner’s decision was not supported by substantial

evidence. “Evidence is substantial if it is sufficient to persuade a fair-minded

person of the truth of the fact a party seeks to prove.” Scheeler v. Dep’t of Emp’t

Sec., 122 Wn. App. 484, 488, 93 P.3d 965 (2004).

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No. 85680-4-I

A.     Good Cause Determination

       Al Darraji asserts that the commissioner erred in concluding that he did not

have good cause for his nonappearance at the October 4, 2021 hearing. We

disagree.

       The APA expressly authorizes an administrative presiding officer to enter a

default judgment if a party fails to attend or participate in a hearing.          RCW

34.05.440(2). If such a default order is entered, the standard for setting it aside is

as follows: “an order of default will be vacated by the presiding officer only upon a

showing of good cause for failure to appear or to request a postponement prior to

the scheduled time for hearing.” WAC 192-04-185(3) (emphasis added). “A party

establishes good cause for failure to participate in a hearing if the circumstances

would have deterred a reasonably prudent person from doing so.” Moran v. State

Emp’t. Sec. Dep’t, No. 68464-7-I, slip op. at 7 (Wash Ct. App. June 17, 2013)

(unpublished), https://www.courts.wa.gov/opinions/pdf/684647.pdf (citing In re

Shay, No. 04-2010-47150-R, 2011 WL 8129816 (Wash. Emp’t Sec. Dep’t Comm’r

Dec. No. 970, 2d Series Apr. 29, 2011)). 1

       The commissioner here correctly concluded that Al Darraji had failed to

establish good cause for failing to appear at the October 4, 2021 hearing. Al Darraji

failed to appear at the hearing even though he received and read the Notice before

the scheduled date of the hearing. Additionally, as the instructions quoted in part

I above show, the Notice provided clear and detailed information about when and

how to participate at the upcoming hearing and warned Al Darraji that failure to

1 Although Moran is an unpublished opinion, we may properly cite and discuss unpublished
opinions where, as here, doing so is “necessary for a reasoned decision.” GR 14.1(c).

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No. 85680-4-I

appear at the hearing could result in an order of default and dismissal.            A

reasonably prudent litigant would comply with those instructions.

       Although Al Darraji admitted he received and read the Notice, he claimed

he mistakenly assumed the ALJ would contact him at the time of the scheduled

hearing. Division Two rejected a similar argument in Graves v. Department of

Employment Security, 144 Wn. App. 302, 182 P.3d 1004 (2008). There, as here,

Graves failed to attend a scheduled hearing, and the ALJ entered a default

judgment. Id. at 310. Graves explained that his “only reason for failing to attend

was that he mismarked the hearing date on his calendar.” Id. The court held, “A

party’s mismarking of a hearing date on their personal calendar is not good cause

requiring vacation of an order of default and the commissioner did not abuse his

discretion in declining to vacate the ALJ’s default judgment on that basis.” Id. at

311.

       As noted previously, the first instruction in the Notice here stated “Five

minutes before your hearing, call: 1-855-929-3239.” Additionally, the seventh

instruction stated:

       If you have problems joining the telephone conference, or if the judge
       does not join within ten minutes after the hearing start time,
       immediately call OAH at (800) 366-0955. If you do not call within 10
       minutes after the scheduled hearing start time, the Judge may enter
       a Default Order, which means you could lose your right to a hearing.

Al Darraji has not articulated a plausible reading of the Notice and instructions that

would justify his mistake. Given the clarity of the instructions and Division Two’s

opinion in Graves, the commissioner properly concluded that Al Darraji “has not

established good cause for his non-appearance at the October 4, 2021, hearing.”

       Al Darraji claims he “was unable to comprehend the [Notice] due to a

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No. 85680-4-I

language barrier.”    The commissioner carefully considered and rejected this

argument:

              In his Petition for Review, claimant argues that his difficulty
       understanding English prevented him from understanding the
       instructions in the Notice of Hearing to attend the October 4, 2021,
       hearing. We disagree. Claimant was able to read the Determination
       Letter and file an appeal through the Department’s eServices, and
       was also able to read and respond to Department requests for
       information. . . . Claimant also chose not to request an interpreter
       when he filed his appeal . . . . Finally, we note that, in the main,
       claimant responded appropriately in English when speaking with the
       administrative law judge and was able to correctly read aloud from
       the Exhibits. Though claimant’s English was not perfect, we
       conclude that it was sufficient to be able to understand the
       instructions on the first page of the Notice of Hearing.

Here too, substantial evidence supports the commissioner’s decision.

       First, as the commissioner correctly noted, Al Darraji repeatedly declined to

request an interpreter. Addressing this issue, the Notice states:

       Interpreter Hearing: If you need an interpreter due to limited ability
       to speak English or due to a hearing or speech impairment, we will
       provide an interpreter at no cost. Please contact the Office of
       Administrative Hearings at the phone number listed above.

Similarly, in his appeal request, Al Darraji was asked “Interpreter Needed,” to which

he responded “No.”

       Second, Al Darraji’s hand-written pleadings, while not perfect, also support

the commissioner’s determination. For example, Al Darraji’s petition for review

explains, “I was working with Uber before quarantine and when the Covid-19

started I did not work anymore and I was eligible for unemployment and I applied

for unemployment . . . .” Al Darraji’s motion to vacate also cogently explains, “I

was waiting for judge . . . . [L]ast time unemployment employee called me before

my hearing and I thought it’s the same thing at this time.”

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No. 85680-4-I

       Lastly, the transcript of the May 31, 2022 hearing also supports the

commissioner’s determination. When the ALJ asked Al Darraji if he was “able to

hear me and understand me today,” he responded, “Yeah.”              Al Darraji then

answered the following questions about his receipt and understanding of the

Notice:

       •   Al Darraji was asked, “Was this Notice of Hearing delivered to you in the
           mail before October 4th, 2021?” He responded, “Yes. Yes.”

       •   Al Darraji was asked, “I see on . . . page 57 that you told . . . the [OAH]
           in this Motion to Vacate that you . . . were waiting for the judge to call
           you. Was that what happened?” He responded, “Yes.”

       •   Al Darraji was asked, “Did that Notice of Hearing direct you to call into
           the hearing?” He responded, “Yes.”

       •   Al Darraji was asked, “So when you got this Notice of Hearing delivered
           to you in the mail before October 4th, 2021, did you read the entire
           notice?” He responded, “Yes.”

Al Darraji was also able to explain in sufficient detail why he did not appear at the

previous hearing:

       THE ALJ: Did anything prevent you from reading and following those
       instructions [in the Notice]?

       MR. AL DARRAJI: Yeah, but I -- I had mistake.

       THE ALJ: And what was the mistake?

       MR. AL DARRAJI: Yeah. Because I felt that -- that -- that the judge
       was call me or something like that, so before -- before that, it was the
       employment -- if they need something from me, they would call on
       my phone number, so I felt the -- the same thing. . . .

       THE ALJ: Did anything prevent you from reading and following the
       instructions on this Notice of Hearing to participate in your October
       4th, 2021 hearing?

       MR. AL DARRAJI: Yeah. Just a mis -- misunderstanding.

              ....

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No. 85680-4-I

       THE ALJ: Is there anything else you want to tell me, Mr. Al Darraji,
       about why you did not appear for your hearing on October 4th, 2021?

       MR. AL DARRAJI: Yeah. I just -- I -- I -- the -- the mis – the
       misunderstanding about this point. I thought they would call me, so I
       was waiting for him all the time and everything, so I thought they
       would call me, but I had the m -- mis -- misunderstanding so I -- I
       have to call them or the court number. Yeah. But I was waiting for
       them.

       THE ALJ: Okay. Is there anything else you want to tell me new and
       additional before -- or is anything else you want to tell me before I
       rule on whether you have shown good cause under the law for failing
       to appear at the October 4th, 2021, hearing?

       MR. AL DARRAJI: No, this -- that -- that’s all.

This evidence, collectively, is more than sufficient to persuade a fair-minded

person that although Al Darraji’s “English was not perfect . . . it was sufficient to be

able to understand the instructions on the first page of the Notice of Hearing.” On

this record, Al Darraji has not established that the commissioner based their

decision on an error of law, that substantial evidence does not support the

decision, or that the decision was arbitrary or capricious.

B.     Fair Opportunity to Participate

       Al Darraji also claims the commissioner erred “in concluding that [he] had a

fair opportunity to participate in the [May 31, 2022] hearing when he expressed

confusion throughout the hearing.” Again, we disagree.

       Initially, this argument was not properly raised before the agency and may

not be raised on appeal. RCW 34.05.554 (“[i]ssues not raised before the agency

may not be raised on appeal,” absent enumerated exceptions that are not

applicable here).     “In order for an issue to be properly raised before an

administrative agency, there must be more than simply a hint or a slight reference

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No. 85680-4-I

to the issue in the record.” Citizens for Mount Vernon v. City of Mount Vernon, 133

Wn.2d 861, 869, 947 P.2d 1208 (1997). Al Darraji did not satisfy this requirement

to properly raise the issue below and therefore cannot raise it here.

        In any event, Al Darraji’s argument fails on the merits. In support of the

argument, Al Darraji cites the commissioner’s decision in In Re Yusuf, No. 013199,

2017 WL 9515963 (Wash. Emp’t Sec. Comm’r Dec. No. 1012, 2d Series May 26,

2017. 2 There, the commissioner remanded the matter for a new hearing because

the record clearly indicated that the claimant had “a very limited understanding of

and proficiency in the English language” and the interpreter “appeared to be

confused in translating testimony from English to Somali (the claimant’s native

language) and from Somali to English,” which resulted in a “fail[ure] in many

instances to provide the claimant with effective communication.” Id. at *1. Given

these circumstances, the commissioner concluded that “justice and the public

interest in a fair and equitable outcome in this case” required the ALJ to hold a new

hearing at which the claimant would be provided with a different interpreter. Id.

        Here, in contrast, Al Darraji has not established that justice and the public

interest in a fair and equitable outcome in this case require a new hearing because,

as discussed above, Al Darraji had a fair and meaningful opportunity to participate

in the May 31, 2022 hearing. He declined the opportunity to have an interpreter

present throughout the proceedings before the ALJ. He told the ALJ at the May

31, 2022 hearing that he could hear and understand the questions. He was then

2 Although commissioner decisions such as Yusef “are not binding on this court, they are valuable

as persuasive authority.” Engbrecht v. Emp’t Sec. Dep’t, 132 Wn. App. 423, 428, 132 P.3d 1099
(2006).

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No. 85680-4-I

able to answer numerous questions and effectively communicate why he did not

appear at the October 4, 2021 hearing, which was the essential purpose of the

May 31, 2002 hearing. And unlike Yusef, Al Darraji never indicated during the

hearing that he was unable to communicate effectively.   On this record, the

commissioner’s decision in Yusuf, even if it were binding precedent, does not

compel us to remand the matter for a new hearing.

                                        III

      Al Darraji requests an award of attorney fees and costs under RCW

50.32.160. The statute authorizes such an award only “if the decision of the

commissioner shall be reversed or modified.” RCW 50.32.160. Because that did

not occur here, we deny Al Darraji’s request.

      Affirmed.

WE CONCUR:

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