Fred A. ZUNIGA, Plaintiff-Appellant, v. AMFAC FOODS, INC., D/B/A Wilhelm Foods, Inc., Defendant-AppelleeFred A. ZUNIGA, Plaintiff-Appellant, v. AMFAC FOODS, INC., D/B/A Wilhelm Foods, Inc., Defendant-Appellee
Plaintiff-appellant Zuniga brought this action for reinstatement with back pay, advancement in pay grade and seniority denied during a period of discharge, for costs and other equitable relief deemed proper. He alleges that jurisdiction is invoked under
An agreed statement of the case was approved by the district court and filed pursuant to Rule 10(d), F.R.A.P. It states that the issue on appeal is:
Whether the appropriate statute of limitations governing employment discrimination actions brought in the federal district courts of Colorado under42 U.S.C. § 1981 is either the two-year “federal action” statute (1973 C.R.S. § 13-80-106) or three-year “residuary” statute (1973 C.R.S. § 13-80-108(l)(b)), on the one hand, or the six-year statute governing certain contract and tort actions (1973 C.R.S. § 13-80-110), on the other, or some other statute.
The agreed statement says that the plaintiff’s action was brought solely under
The plaintiff was employed by defendant AMFAC from October, 1969 to August, 1970. Plaintiff alleges that in August, 1970, defendant refused him “bumping rights” which would have prevented the termination of his employment. Plaintiff further avers that on April 5, 1971, defendant wrongfully refused him reinstatement and that defendant AMFAC’s actions were based on plaintiff’s national origin, in violation of
The agreed statement further says that plaintiff’s complaint was filed approximately four years and nine months after his cause of action accrued concerning his alleged “bumping rights” and four years and two months after his cause of action accrued concerning the refusal of reinstatement.
In order to have a more thorough understanding of the complaint, the motion to dismiss and the defendant’s supporting statement of points and authorities, on our own motion we directed that a supplemental record containing those critical pleadings be certified and transmitted. 2 See Rule 10(e), F.R.A.P. From that record we note these circumstances:
The complaint essentially alleges these facts: Plaintiff was hired by defendant AMFAC in October, 1969. In August, 1970, *382 AMFAC refused to grant or recognize plaintiff’s “bumping rights” which would have kept plaintiff working and would have allowed plaintiff to retain his seniority. On April 5, 1971, plaintiff requested reinstatement but this request was denied, allegedly because of plaintiff’s national origin, Mexican-American. Anglos with less seniority have been retained and continue to work and the plaintiff has not been reinstated or recalled to work.
Plaintiff further avers that defendant’s collective bargaining agreement provides that seniority shall be determined by the length of service in the plant; that plaintiff had been performing the same job which an Anglo specialist is now doing while plaintiff had a hire date and seniority date of October 6, 1969, or more than one month’s seniority over the Anglo employee who was retained; that plaintiff was not afforded the opportunity to be trained, which would have enabled him to retain his seniority rights; and that defendant’s seniority policy was in effect at the time of the alleged incident.
Further, the complaint alleges that all of defendant’s acts complained of are based solely on discrimination against plaintiff because of his national origin, that plaintiff has resorted to processes of the Equal Employment Opportunity Commission pursuant to
Defendant AMFAC’s motion to dismiss under Rule 12(b)(6), F.R.Civ.P., for failure to state a claim, and its supporting statement of points and authorities, argue for dismissal on limitations grounds. It says that the complaint results from plaintiff’s layoff in August 1970, that a discriminatory act on April 5, 1971, was alleged when plaintiff claims he requested reinstatement, and that the complaint was not filed until June 4, 1975 — more than four years after the most recent discriminatory act alleged. AMFAC’s statement of points and authorities argues that the applicable statute of limitations is two years under C.R.S.1973 § 13-80-106 (Supp.R. 6).
The district court held the action barred by limitations. By an order on March 16, 1976, the court pointed out that there was a difference of views on the limitations question among the Judges of the District, which will be treated later. In this order Chief Judge Winner stated that:
This case is barred under both 13-80-106 and 13-80-108(l)(b), and I need hold no more and I hold no more than did Chief Judge Arraj in Evans. However, if the case had been brought more than two years and less than three years after the claim arose, I would unhesitatingly hold that the action was barred under C.R.S. 1973 13-80-106.
The order further advised that it was the court’s intention to treat the motion as one for summary judgment and that summary judgment would be entered for defendant on March 29, 1976, unless plaintiff raised genuine issues of material fact before that time. The docket sheet shows no filings by plaintiff before that date when the complaint and action were dismissed.
I
We begin with the problem that no statute of limitations is provided by Congress for actions to redress infringement of rights protected by
Thus since no federal limitation governs, the timeliness of this suit “. . .is to be determined, as a matter of federal law, by reference to the appropriate state statute of limitations.”
Auto Workers v. Hoosier Corp.,
We agree that the characterization of this action for the purpose of selecting the appropriate state limitations provision is ultimately a question of federal law. Textile Workers v. Lincoln Mills, supra [353 U.S. 448 ,77 S.Ct. 912 ,1 L.Ed.2d 972 ]; McClaine v. Rankin, supra [197 U.S. 154 ,25 S.Ct. 410 ,49 L.Ed. 702 ]. But there is no reason to reject the characterization that state law would impose unless that characterization is unreasonable or otherwise inconsistent with [the policy of the federal statute]. Cf. Reconstruction Finance Corp. v. Beaver County,328 U.S. 204 , 210, [66 S.Ct. 992 ,90 L.Ed. 1172 ]; De Sylva v. Ballentine,351 U.S. 570 , 580-582, [76 S.Ct. 974 ,100 L.Ed. 1415 ].
There are marked differences in the approach to choice of the appropriate state statute of limitations. This is illustrated by
Beard v. Robinson,
We are persuaded that the latter approach of critical analysis of the particular claim, and then determining if there is a comparable state law analogue, is more in keeping with what
Auto Workers v. Hoosier Corp.,
supra,
In sum, the answer to our limitations question requires analysis of the essential nature of the federal claim and comparison to similar state actions. See
Meyers v. Pennypack Woods Home Ownership Ass’n,
II
There are three Colorado statutes which are our main concern. First, there is the statute governing actions under federal statutes, C.R.S.1973 § 13-80-106, providing a two-year limitation or “the period specified for comparable actions under Colorado law, whichever is longer . . . ”
4
This is the statute which Chief Judge Winner said he would apply if this action had been brought more than two but less than three years after the claim arose. In
Ray Safeway Stores, Inc.,
Civil Action No. 75-W-459 (D.Colo.) (unpublished), Chief Judge Winner held that a claim brought under
Second, there is the three-year residuary provision for “[a]ll other actions of every kind for which no other period of limitation is provided for by law.” C.R.S.1973 § 13-80-108(l)(b).
6
This is the second statute under which Chief Judge Winner held this action barred, the other being C.R.S.1973 § 13-80-106, the federal claims statute discussed above. Judge Arraj had earlier held
The third statute which we must consider is C.R.S.1973 § 13-80-110(l)(d) and (g) which respectively provide a six-year limitations period for “[a]ll actions of assumpsit, or on the case founded on any contract or liability, express or implied . . and for “[a]ll other actions on the case, except actions for slander and for libel.”
7
It was the six-year limitation of this statute which Judge Finesilver held applicable to a suit claiming a discriminatory discharge and refusal to rehire and brought under
We are persuaded by the reasoning in
Jackson v. Continental Oil Co.,
supra. After looking first to the “federal action” statute, C.R.S.1973 § 13-80-106, the court considered whether there are “comparable actions” under Colorado law and concluded that “[i]n an employment discrimination case such as this, the facts will most closely resemble either a contract or tort suit.” The court pointed to the language of
All persons . . . shall have the same right ... to make and enforce contracts . . . as is enjoyed by white citizens .
The court also recognized that sometimes claims of employment discrimination may be founded on interference with the personal right to contract, and that in that sense the suits sound in tort. In either event the court concluded that the six-year limitations provisions of C.R.S.1973 § 13-80-110, covering both contract and tort, applied. See note 7, supra.
Defendant AMFAC relies on the reasoning in
Solano v. Sears Roebuck & Co.,
Civil Action No. 75-A-931 (D.Colo.), that the civil rights acts “created rights and imposed obligations different from any which would exist at common law in the
*386
absence of statute,” and similar cases. It says there are therefore no “comparable actions,” for which a longer limitation applies and thus the two-year bar of C.R.S. 1973 § 13-80-106 controls. We cannot agree. There is no- doubt that there are some differences between a civil rights claim created by
Plaintiff-appellant points to his allegations about the union contract and denial of his “bumping rights” because of his national origin. He argues that in effect he has alleged a breach of his union contract, that his action is comparable to a breach of contract suit under Colorado law, and that the six-year limitation of C.R.S.1973 § 13-80-110 applies, citing
Johnson v. Railway Express Agency, Inc.,
Johnson v. Railway Express Agency, Inc.,
It seems logical to us that the general provisions of C.R.S.1973 § 13-80-110(l)(d) for “All actions of assumpsit, or on the case founded on any contract or liability, express or implied” and (g) for “All other actions on the case, except actions for slander and for libel” embrace actions comparable to the instant case. In
Ahart v. Sutton,
We are persuaded that the broad six-year limitations provisions for “All actions of assumpsit, or on the case founded on any contract or liability, express or implied”, and for “All other actions on the case, except actions for slander and for libel” (C.R.S.1973 § 13-80-110(l)(d) and (g)) includes claims comparable to this
Defendant AMFAC argues alternatively for application of the three-year general residuary limitation provision of C.R.S. 1973 § 13-80-108. See note 6, supra. However, under the Colorado statutory scheme this residuary provision does not apply if another provision is applicable, and we have concluded that C.R.S.1973 § 13-80-110 does cover this
In sum, we are convinced that the holding on the limitations question in
Jackson v. Continental Oil Co.,
was right.
Notes
. The applicable jurisdictional grant for the claim under
. The party who brings the suit is master to decide what law he will rely on and the complaint determines the nature of the suit. See
Pan American Petroleum Corp. v. Superior Court of Delaware,
. We note that our Hinman opinion applied this two-year statute for an “action for injury to the rights of another, not arising on contract” although the previous subsection, Kansas G.S. 1935 Sec. 60-306, par. 2, provided a three-year limitation for “an action upon a liability created by statute other than a forfeiture or penalty.”
. This proviso adopting the longer limitations for comparable actions avoids the constitutional problem of discrimination against federal claims which was earlier pointed out in Trussed v.
United Underwriters, Ltd.,
. C.R.S.1973 § 13-80-106 provides:
13-80-106. Actions under federal statutes. All actions upon a liability created by a federal statute, other than for a forfeiture or penalty for which actions no period of limitations is provided in such statute, shall be commenced within two years or the period specified for comparable actions arising under Colorado law, whichever is longer, after the cause of action accrues.
. As one alternative to its reliance on the two-year limitations provisions of C.R.S.1973 § 13-80-106, AMFAC says that the short six-month limitations period for filing civil rights complaints under the Colorado Anti-Discrimination Act of 1957 should apply. See C.R.S.1973 § 24-34-307. AMFAC argues that the type of evidence for a claim under the State statute is comparable to that for a
We disagree. We are persuaded by the decisions of other Circuits that limitations periods for state statutory nonjudicial proceedings are inapplicable to civil rights actions in courts of law. See
Chambers v. Omaha Public School District,
. C.R.S.1973 § 13-80-108 provides in pertinent part:
13-80-108. Actions barred in three years. (1) The following actions shall be commenced within three years next after the act complained of and not afterwards:
******
(b) All other actions of every kind for which no other period of limitation is provided for by law.
. C.R.S.1973 § 13-80-110 provides:
13-80-110. Actions barred in six years. (1) Except as otherwise provided in section 4-2-725, C.R.S.1973, the following actions shall be commenced within six years after the cause of action accrues, and not after-wards:
(a) All actions of debt founded upon any contract or liability in action;
(b) All actions upon judgments rendered in any court not being a court of record;
(c) All actions for arrears of rent;
(d) All actions of assumpsit, or on the case founded on any contract or liability, express or implied;
(e) All actions of waste and for trespass upon land;
(f) All actions of replevin, and all other actions for taking, detaining, or injuring goods or chattels;
(g) All other actions on the case, except actions for slander and for libel. (Emphasis added).
. There was need at the common law for a remedy for damage suffered for a wrong committed without force and the separate form of action known as trespass on the case evolved. Dix, The Origins of the Action of Trespass on the Case, 46 Yale Law Journal 1142, 1174 (1937); to the same effect see 1 Am.Jur.2d Actions, § 22, p. 560. Where a statute merely imposes a duty without providing any remedy, an action on the case will lie if appropriate to the character of the injury. 14 C.J.S. Case, Action On § 5, p. 5; see also 1 Am.Jur.2d, Actions § 26, pp. 562-63.
. See
Meyers v. Pennypack Woods Home Ownership Association,
. Likewise we cannot agree with defendant AMFAC’s further alternative argument that the three-year bar of C.R.S. § 13-80-107 dealing with personal actions on any contract is applicable. As the statute says, it does not apply if C.R.S. 1973 § 13-80-110 is applicable. See
Carlson v. McCoy,
One remaining contention of defendant AM-FAC is that
Heuschkel v. Wagner,