Court Opinion

ID: 9731871
Source: CourtListenerOpinion
Date Created: 2023-08-26 16:00:33.661455+00
Date Added: 2024-06-11T18:26:21.687867
License: Public Domain

KELLY, Justice
(concurring specially).
I concur. The affidavit of prejudice should have been honored in this case and the district court’s failure to do so requires that the case be reversed and remanded. However, I cannot concur in the portion of the majority’s opinion which finds partial support for this result in the prevailing interpretation of the scope of review governing appellate courts when reviewing an agency’s factual findings. I cannot agree that either the Constitution or the Minnesota Administrative Procedure Act (MAPA) mandate such a narrow and restrictive scope of review.
It has long been recognized by this court that reasonable legislative regulations designed to aid this court in the exercise of its appellate functions are acceptable on comity principles. Appeal of O’Rourke, 300 Minn. 158, 175, 220 N.W.2d 811, 821 (1974). However, the legislature may not by regulation deny this court’s “constitutionally independent appellate authority to review whatever this court deems mandated in the interests of justice.” Id. (Footnote omitted.)
In the context of administrative law, this principle is tempered in light of the constitutionally based doctrine of separation of powers. Article 3 of the Minnesota Constitution not only grants the judiciary independent power free from encroachment by the executive or the legislature, but also grants the legislature and the executive powers which are independent of the judiciary. Thus, where courts review decisions of an administrative agency which performs legislative or executive functions, our review is necessarily more restrictive. To substitute our judgment for that of such an agency would constitute the exercise of non judicial powers. Such a review would be unconstitutional on separation of powers grounds. See e. g. Ex parte Bakelite Corp., 279 U.S. 438, 49 S.Ct. 411, 73 L.Ed. 789 (1929); American Beauty Homes Corp. v. Louisville & Jefferson County Planning & Zoning Comm’n., 379 S.W.2d 450 (Ky.1964). But where an agency performs judicial or quasi-judicial functions, appellate review may be more rigorous without running afoul of the constitution. Despite the fact that there are compelling policy reasons behind our recognition of the legislature’s regulation of our appellate powers on grounds of comity, not the least of which is the necessity of cooperation by the three branches for the best results in government, our recognition of such regulations is not in all cases constitutionally compelled.
The prevailing interpretation of the “substantial evidence” rule is far more restrictive than Minn.Stat. § 15.0425 (1978) requires. A better interpretation of this rule in a review of a judicial or quasi-judicial agency’s factual findings would focus on the words of the statute which require reversal of an agency’s findings if unsupported “by substantial evidence in view of the entire record as submitted.” (Emphasis added.) Minn.Stat. § 15.0425(e) (1978). In such a review a court would consider not only the evidence tending to support the agency’s findings but also the evidence militating against those findings. Agency findings would be reversed where it appeared they were clearly against the weight of the evidence or where the reviewing court was left with a definite and firm conviction a mistake had been made. Universal Camera Corp. v. NLRB, 340 U.S. 474, 71 S.Ct. 456, 95 L.Ed. 456 (1951); Benedict v. Board of Police Pension Fund Comm’rs., 35 Wash.2d 465, 214 P.2d 171 (1950); Burke v. Coleman, 356 Mo. 594, 202 S.W.2d 809 (1947).
I would therefore overrule Gibson v. Civil Service Bd., 285 Minn. 123, 171 N.W.2d 712 (1969) and the subsequent line of cases adopting the position of the court taken in the Gibson case including Reserve Mining Co. v. Herbst, 256 N.W.2d 808 (Minn.1977). In that case this court rejected the “clearly *527erroneous” interpretation of the substantial evidence rule. Additionally, it adopted the view that no particular deference should be paid the decisions of the district courts which conduct appellate reviews of administrative agencies. This lack of deference creates a needless duplication of appellate effort and constitutes a waste of not inconsiderable judicial expertise. I strongly urge a reexamination of the standard of review of administrative factual findings.