CATHY BAKER, Appellant, v. GRACE MILLER, d/b/a Miller‘s Metropole, et al., Appellees.
No. 75399
Supreme Court of Illinois
May 26, 1994
Defendants argue that the trial court should have considered the expertise Rauch developed after his investigation of the collision between Hugo and Mоnroe. According to defendants, Rauch had investigated over 3,000 collisions at the time of trial. Given that Rauch had no independent recollection of the investigation, though, there is no assurance that Rauch did, or even could, apply this after-developed expertise to this collision. At trial, Rauch relied entirely upon his report and a diagram prepared on the day of the collision. The record suggests that this report and diagram may not have been accurate. For these reasons, we cannot say that the triаl court abused its discretion in finding Rauch unqualified as an expert witness and excluding his testimony as to the point of impact.
The judgment of the appellate court is affirmed.
Judgment affirmed.
Gary G. Johnson, of Bloomington, for appellant.
Rex L. Reu, of Bloomington, for appellees.
Randall D. Schmidt, of Chicago, for amicus curiae Willie Pridgett.
Cynthia A. Wilson, of Chicago, for amicus curiae Chicago Lawyers Committee for Civil Rights Under Law, Inc.
JUSTICE FREEMAN delivered the opinion of the court:
The issue presented in this appeal is whether a claim for employment discrimination may be brought directly under
FACTUAL AND PROCEDURAL BACKGROUND
Plaintiff, Cathy Baker, is a former employee of a tavern business owned by defendant Grace Miller, doing business as Miller‘s Metropole, and managed by Richard Yeast (hereinafter referred to collectively as defendants). The tavern employs fewer than 15 emplоyees. On June 24, 1991, defendant Yeast discharged plaintiff from her duties as bartender at the tavern.
Subsequently, plaintiff filed a two-count complaint in the circuit court of McLean County against defendants seeking to recover damages for employment discrimination. In count I of her complaint, plaintiff al
Defendants filed a motion to dismiss the complaint. (
Following a hearing on the motion, the trial court granted defendants’ motion and dismissed the complaint with prejudice. The appellate court affirmed (242 Ill. App. 3d 44), and we granted plaintiff‘s petition for leave to appeal (
DISCUSSION
“All persons shall have the right to be free from discrimination on the basis of race, color, creed, national ancestry and sex in the hiring and promotion practices of any employer or in the sale or rental of property.
These rights are enforceable without action by the General Assembly, but the General Assembly by law may establish reasonable exemptions relating to these rights and provide additional remedies for their violation.” (Emphasis added.)
Ill. Const. 1970, art. I, §17 .
The guarantees provided by
Article 2 of the Act, which governs employment discrimination claims, is relevant to our discussion here. Under the Act, it is a civil rights violation “[f]or any employer to refuse tо hire, to segregate, or to act with respect to recruitment, hiring, promotion, renewal of employment, selection for training or apprenticeship, discharge, discipline, tenure or terms, privileges or conditions of employment on the basis of unlawful discrimination.” (Emphasis added.) (
ANALYSIS
We begin our analysis with a statement of the applicable standard of review. On appeal from a dismissal for failure to state a cause of action, the reviewing court‘s sole task is to determine whether the allegations in the complaint are sufficient to set forth a cause of action for which relief may be granted. People ex rel. Fahner v. Carriage Way West, Inc. (1981), 88 Ill. 2d 300, 308.
It is plaintiff‘s contention that she is a person “not covered” under the Act, and, therefore, she has a direct cause of action under section 17. She offers the following analysis in support of her contention. The Act defines a “civil rights violation” as prohibited conduct by an “employer.” Because defendants employed fewer than 15 persons, they are not, by the Act‘s definition, “employers,” and their alleged discriminatory conduct does not constitute a “civil rights violation.” Therefore, the Act does not apply. Plaintiff maintains that where the Act does not apply, a complainant may seek redress for a violation of any common law and constitutional rights directly in the courts.
We reject plaintiff‘s analysis. Whether a plaintiff may seek redress for employment discrimination directly under section 17 of the cоnstitution presents, simply, a question of statutory construction. The dispositive issue is whether the legislature has exempted small employers from discrimination claims.
Generally, the rules of statutory construction are applicable to the construction of a constitutional provision. (People ex rel. Chicago Bar Association v. State Board of Elections (1990), 136 Ill. 2d 513, 526, citing Coalition for Political Honesty v. State Board of Elections (1976), 65 Ill. 2d 453, 464.) As with statutory construction, this court must construe a constitutional provision so as to effectuate the intent of the drafters. (People v. Turner (1964), 31 Ill. 2d 197, 199.) The best indication of the intent of the drafters of a constitutional provision is the language which they voted to adopt. (Coryn v. City of Moline (1978), 71 Ill. 2d 194, 200.) And so it is with statutory construction. (See In re Marriage of Logston (1984), 103 Ill. 2d 266, 277.) Where the statutory language is clear аnd unambiguous, it will be given effect without resort to other aids for construction. (People ex rel. Baker v. Cowlin (1992), 154 Ill. 2d 193, 197.) As for construing the constitution, while the “‘true inquiry concerns the understanding of the meaning of its provisions by the voters who adopted it, still the practice of consulting the debates of the members of the convention which framed the constitution has long been indulged in by courts in determining the meaning of provisions which are thought to be doubtful.‘” Board of Education, School District No. 142 v. Bakalis (1973), 54 Ill. 2d 448, 461-62, quoting People ex rel. Keenan v. McGuane (1958), 13 Ill. 2d 520, 527.
“We felt that the legislature should be empowered to provide for reasonable exemptions here where the balancing would be the other way around, if you please, and where in these situations we felt that the greater value lies in a freedom of choice on the part of the employer or, for example, on the part of a person furnishing the housing.
Now, let me give you an idea of some of these possible exemptions which we feel are reasonable and which the legislature would be empowered to enact. *** For example, the right of religious organizations to employ оr provide housing for members of their own faith only. *** Another example of a reasonable exemption would be that relating to small employers-employers, that is, of small numbers of employees. Just what this number would be, I don‘t know, of course; but in all these areas it was the committee‘s feeling that the relationship between landlord and tenant or between employer and employee was of such an intimate and personal nature that the greater value there lies in leaving a freedom of choice to the landlord or to the employer, as the case might be. Hence, we have provided that the legislature may enact these exemptions. It‘s not required to do so, but it has the-has the power under the clause to do so.” (Emphasis added.) 3 Record of Proceedings, Sixth Illinois Constitutional Convention 1592-93.
In his prefatory remarks, Delegate Wilson noted the committee‘s recognition that the fashioning of a bill of rights is a job of balancing and trying to evaluate competing interests. “Sometimes these are the interests
The express grant of authority to create reasonable exemptions, as well as the section 17 drafters’ supporting rationale, clearly indicate a recognition and acceptance that section 17 guarantees could be subject to limitation. Therefore, we rejeсt any suggestion that the constitutional drafters did not intend that employees of small employers might possibly be left without a remedy for a violation of section 17 guarantees. Had the drafters intended otherwise, they simply would not have provided for “reasonable exemptions.” That said, we turn our attention to whether the legislature made such “reasonable exemptions.”
The Act does not expressly state that small employers are exempted from its coverage. We note, incidentally, that section 2-104 of the Act, which is titled “Exemptions,” expressly provides that certain conduct, such as giving preferential treatment to veterans, giving professionally developed ability tests, or establishing an educational requirement, is not prohibited under the Act. (
The court in Ritzheimer apparently viewed any non-express exemption as constituting no exemption. We disagree. We know of no rule of construction, and plaintiff points to none, which recognizes only express exemptions. On the contrary, the enumeration of one thing in a statute implies the exclusion of all others. (See Burke v. 12 Rothschild‘s Liquor Mart, Inc. (1992), 148 Ill. 2d 429, 442.) Although no statute may be construed more broadly than its express language and reasonable implications (Insull v. New York World-Telegram Corp. (1959), 172 F. Supp. 615, 628), that which is implied in a statute is as much a part of it as that which is expressed (United States v. Jones (1953), 204 F.2d 745, 754).
Implicit in the Act‘s definition of those employers who are subject to discrimination claims is that employers of fewer than 15 employees are exempt from such claims. Therefore, contrary to plaintiff‘s contention, she is “covered” under the Act.
We recognize that the rule expressio unius est exclusio alterius is not a rule of law, but a rule of statutory construction which may be overcome by a strong indication of contrary legislative intent. (Sulser v. Country Mutual Insurance Co. (1992), 147 Ill. 2d 548.) However, we believe that our interpretation of the Act is wholly supported by and consistent with the legislative intent.
As previously stated, the Act expressly provides that
The legislative debates to the Act, as recited in Dilley v. Americana Healthcare Corp. (1984), 129 Ill. App. 3d 537, 546, provide an additional measure of support for our conclusion. There the court recited the comments of then State Representative Braun as follows:
“[Senate Bill 1377] repeals the existing civil rights authority and replaces that authority but abandons certain existing rights regarding testing standards, discrimination by contractors, protections extended to the handicapped, private right of action, delay by respondents, damages by willful discrimination. It creates a new exemption for discrimination by private clubs, religious corporations, and others.” (Emphasis added.) 81st Ill. Gen. Assem., House Debates, November 8, 1979, at 97, quoted in Dilley, 129 Ill. App. 3d at 546.
Although small employers are not mentioned in the comments as one of the exempted classes, it is significant that religious corporations are noted as еxempted. Religious corporations, along with small employers, are a class of employers which the section 17 drafters included as permissible exemptees. As with small
We find additional support for our conclusion in the application of another of the rules of statutory construction. The rule, as generally stated, provides that in construing statutes, courts presume that the General Assembly, in passing legislation, did not intend absurdity, inconvenience or injustice. (Harris v. Manor Healthcare Corp. (1986), 111 Ill. 2d 350, 363.) We have considered the likely results of a construction of the Act which would permit a direct action under section 17. In that regard, we note that the Act provides that its purpose is to protect the citizens of this State against unfounded charges of unlawful discrimination. (
Plaintiff would no doubt argue that a construction of the Act which leaves employees of small employers without a remedy for employment discrimination is, likewise, unjust. Such a construction comports, however, with the section 17 drafters’ attempt to balance the competing interests in accommodating the intimate relationships and personal choices involved in the small employer-employеe relationship against preventing discrimination. Notably, in its report on the various antidiscrimination proposals, the Bill of Rights Committee stated:
“[F]ew would approve an anti-discrimination provision that absolutely prohibited the kind of indirect discrimination involved in providing housing exclusively to the aged
In support of her argument that direct action was intended by the section 17 drafters, plaintiff invites our consideration of that portion of the debates concerning the self-executing clause of section 17:
“MR. S. JOHNSON: Delegate Wilson, I‘d like to ask you two or three questions about this self-enacting provision. Exactly how would that work? Supposing-supposing I had a grievance against someone and no remedy was found in statute law; how would I file a charge and what would happen after that?
MR. WILSON: Well, if we are right-and I think we are right about this, Mr. Johnson-that this provision does create a right and the legislature has not set up any procedure, the courts are not powerless to find a remedy and to establish a remedy.” (Emphasis added.) (3 Record of Proceedings, Sixth Illinois Constitutional Convention 1597.)
Delegate Wilson additionally commented:
“This is what courts are doing all the time. You know there is no statutory definition, for example, of due process of law. The courts are decide what is due process of law, and they decide this; and this has been the genius, оf course of the English common law. They decide this on a case-by-case basis *** whether or not there has been discrimination within the purview of this *** constitutional provision.” 3 Record of Proceedings, Sixth Illinois Constitutional Convention 1597.
Plaintiff‘s argument that the drafters intended that a plaintiff be able to pursue a remedy directly under section 17 is not wholly incorrect. The self-executing provision is clearly an attempt to defeat any claim of unenforceability of section 17 rights. However, we believe that the provision is operational only in thе
The committee comments to section 17 suggest that, in the absence of implementing legislation, there is an obvious question as to how the courts will fashion remedies for violations of section 17. (Ill. Ann. Stat., 1970 Const., art. I, § 17, Constitutional Commentary, at 673 (Smith-Hurd 1971).) Further, Delegate Gertz, chairman of the Bill of Rights committee, citing the constitutional commentary, offers that the self-executing provision was included to avoid the effects of Dorsey v. Stuyvesant Town Corp. (1949), 209 N.Y. 512 (holding that a general civil rights provision in New York‘s constitution did not outlaw racial discrimination in housing in the absence of legislative action). (Gertz, The Unrealized Expectations of Article I, Section 17, 11 J. Marshall J. of Prac. & Proc. 283, 294 n.57 (1978).) Finally, we find significant Delegate Wilson‘s response to a question concerning the General Assembly‘s role in controlling excessive penalties. Delegate Wilson stated: “The provision gives the General Assembly the right to establish exemptions, the general nature of which I referred to in my remarks, and also to establish procedure and remedies.” (Emphasis added.) 3 Record of Proceedings, Sixth Illinois Constitutional Convention 1597.
In our view, the self-executing provision simply makes clear that inaction by the legislature, or repeal of any implementing legislation, would not serve to defeat the substantive rights guaranteed by section 17. However, the self-executing provision does not operate where the General Assembly has acted. (See Mein, 109 Ill. 2d 1.) Incidentally, in the absence of legislative action, it is unclear how the section 17 drafters’ public policy concerns with respect to the intimacy and personal choice involved in the small employer-employee relationship would have been actualized. Under our
For these reasons, we conclude that the Act implicitly exempts small employers from a section 17 claim. By such exemption, employees of small employers are “covered” under the Act. Because the Act is the exclusive remedy for employment discrimination claims (
Our determination that a direct action under section 17 is precluded renders resolution of the subordinate issue, whether discharge is included in the phrase “hiring and promotion practices,” unnecessary.
CONCLUSION
The Human Rights Act provides a broad array of antidiscrimination protections. Clearly, the Act was designed to afford greater protections and to alleviate those gaps in protection which existed under the former employment discrimination statute, the Fair Emрloyment Practices Act. The current Act provides a comprehensive and systematic mechanism for the investigation and disposition of discrimination claims. As properly construed, however, the Human Rights Act precludes a remedy for employees of small employers for employment discrimination. This construction is, nonetheless, supported by the constitutional debates. And, in our review, we are constrained to do no more than interpret the law. Any attempt to broaden or narrow the scope of the Act is necessarily a matter for the legislature.
Plaintiff has not stated a cause of action upon which relief may be granted. For all of the foregoing reasons, we affirm the judgment of the appellate court.
Affirmed.
For the reasons set forth in Ritzheimer v. Insurance Counselors, Inc. (1988), 173 Ill. App. 3d 953, I believe that an employee fired from her job because of gender discrimination is entitled to bring an action directly under