ARITA MAGEE V RETIREMENT COMM OF GENESEE CO
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STATE OF MICHIGAN
COURT OF APPEALS
ARITA MAGEE,
UNPUBLISHED
March 16, 2001
Plaintiff-Appellee,
v
No. 218292
Genesee Circuit Court
LC No. 96-051716-CK
RETIREMENT COMMISSION OF THE
GENESEE COUNTY EMPLOYEES’
RETIREMENT SYSTEM,
Defendant-Appellant.
Before: K. F. Kelly, P.J., and Smolenski, Meter, JJ.
PER CURIAM.
Defendant appeals as of right from the circuit court order resolving plaintiff’s petition for
writ of superintending control. We reverse the circuit court’s decision and dismiss plaintiff’s
petition.
I. Factual and Procedural Background
On January 22, 1981, plaintiff entered into a contract with the Genesee County Clerk.
Under that contract, plaintiff agreed to perform specific services for the Genesee County Road
Commission. In general, plaintiff’s duties involved keeping the minutes for the road
commission’s board meetings. For approximately twelve years, plaintiff performed the duties set
forth in her contract with the county. During that time period, she did not work a full-time
schedule, but worked an average of approximately 5 to 6 hours per week.
The county clerk provided all the office space, equipment and supplies used by plaintiff
in performance of her contractual duties. The county clerk provided plaintiff with computer
training and also provided a replacement employee to perform plaintiff’s duties when she was
unavailable. Plaintiff’s contract with the county specified a flat hourly rate for her services and
stated that plaintiff would be considered as an independent contractor, not as an employee of
either the county or the road commission. Finally, the contract specified that plaintiff was not
“entitled to receive any benefits” as a county or road commission employee.
On October 7, 1993, plaintiff requested permission to purchase service credits in the
Genesee County Employees’ Retirement System for the twelve years during which she kept the
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road commission minutes. Defendant denied plaintiff’s request for service credits, finding that
plaintiff’s services were not rendered as a member of the retirement system. Rather, defendant
found that plaintiff was a person “engaged for special services on a contract or fee basis” under
an exception defined in § 16(b)(1) of the retirement system ordinance.
Plaintiff filed a complaint for superintending control pursuant to MCR 3.302(E),
requesting that the circuit court compel defendant to provide her with the requested service
credits. The circuit court stated on the record that it would not issue an order of superintending
control. Instead, the circuit court issued an order stating that plaintiff “was not a person who was
engaged for special services on a contract or fee basis as that term is used in section 16(b) of the
Genesee County Employees’ Retirement System Ordinance.” The circuit court then remanded
the case to defendant with instructions to conduct a rehearing consistent with the circuit court’s
ruling. The record reveals that the circuit court retained jurisdiction over the matter, scheduling
another hearing in order to ensure that defendant resolved plaintiff’s request for retirement
service credits. Defendant appeals as of right. We reverse.
II. Petitions for Writs of Superintending Control
MCR 3.302(E) governs the procedure that a circuit court must follow when a party files a
petition for writ of superintending control. The rule provides, in pertinent part:
(3) Issuance of Order; Dismissal.
(a) After the filing of a complaint and answer or, if no answer is filed,
after expiration of the time for filing an answer, the court may
(i) issue an order to show cause why the order requested should
not be issued,
(ii) issue the order requested, or
(iii) dismiss the complaint.
(b) If a need for immediate action is shown, the court may enter an order
before an answer is filed.
(c) The court may require in an order to show cause that additional
records and papers be filed.
(d)
complaint.
An order to show cause must specify the date for hearing the
“Superintending control is an extraordinary power that may be invoked when the plaintiff
demonstrates the defendant’s failure to perform a clear legal duty and the absence of an adequate
legal remedy.” In re Gosnell, 234 Mich App 326, 341; 594 NW2d 90 (1999). An order of
superintending control has traditionally been used only to determine if the inferior tribunal had
jurisdiction, whether it exceeded that jurisdiction, and whether it proceeded according to law. Id.
Furthermore, the circuit court’s review of the inferior tribunal’s decision is limited to questions
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of law. Id. The circuit court may not substitute its judgment of the facts for that of the inferior
tribunal, but must accept those findings of fact that are supported by substantial evidence on the
whole record. In re Payne, 444 Mich 679, 692; 514 NW2d 121 (1994).
III. Standard of Review
As an initial matter, we note that the circuit court lacked authority to issue the remand
order in the present case. MCR 3.302(E)(3)(a) permits a circuit court only three options when
ruling on a party’s petition for a writ of superintending control: (1) issue an order to show cause
why the order requested should not be issued, (2) issue the order requested, or (3) dismiss the
complaint. The court rule does permit the circuit court to issue a show cause order requiring a
party to file additional records and papers in the circuit court. MCR 3.302(E)(3)(c). However,
the court rule does not explicitly permit a circuit court to retain jurisdiction over a plaintiff’s
petition while remanding to the inferior tribunal with instructions to conduct further hearings.
Because the circuit court chose not to issue an order to show cause, it was required to either issue
the requested order or dismiss plaintiff’s complaint.
Although the circuit court stated on the record that it was not granting plaintiff’s petition
for superintending control, we conclude that its order effectively did so. The circuit court’s order
granted plaintiff the relief that she requested in the petition, i.e., ordered defendant to conclude
that plaintiff “was not a person who was engaged for special services on a contract or fee basis”
under § 16(b)(1) of the retirement system ordinance. Defendant’s factual determination to the
contrary was the sole basis on which defendant denied plaintiff’s request for service credits.
Accordingly, for purposes of our review, we must treat the circuit court’s decision as an order
granting plaintiff’s petition for superintending control. This Court reviews for abuse of
discretion a circuit court’s decision to grant or deny an order of superintending control. Gosnell,
supra at 333.
IV. Analysis
Defendant argues on appeal that the circuit court erroneously substituted its own factual
determination for that of defendant when it concluded that plaintiff did not fall within the
category of persons described in § 16(b)(1) of the retirement system ordinance. We agree.
The circuit court may grant a writ of superintending control only when the defendant has
failed to perform a clear legal duty. Gosnell, supra at 341. When reviewing a petition for writ of
superintending control, the circuit court may only determine questions of law, and may not
resolve questions of fact. Id. If the defendant’s decision is supported by substantial evidence in
the record, the circuit court must accept the defendant’s findings of fact. Payne, supra at 692.
Further, the circuit court may not set aside the defendant’s findings of fact “merely because
alternative findings also could have been supported by substantial evidence on the record.” Id.
Applying this standard in the present case, we cannot conclude that defendant’s findings
of fact were unsupported by substantial evidence. Defendant determined that plaintiff was not
eligible for retirement service credits because she fell within an exception defined in § 16 of the
retirement system ordinance, which provides:
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(a) All persons who are employees of an employer, and all persons who become
employees of an employer, shall become members of the retirement system,
except as provided in subsection (b) of this section.
(b) The membership of the retirement system shall not include (1) any person
who is engaged for special services on a contract or fee basis . . . .
***
(d) In any case of doubt the Retirement Commission shall decide who is a
member of the retirement system and to which general group of employees a
member belongs within the meaning of the provisions of this ordinance.
[Emphasis added.]
Defendant determined, as a factual matter, that plaintiff was “engaged for special services
on a contract or fee basis.” Accordingly, defendant held that plaintiff was not a member of the
retirement system and denied her request for retirement service credits. Plaintiff admits that she
provided services for the road commission under contract with the county clerk. Accordingly,
substantial evidence exists to support defendant’s conclusion that plaintiff worked for the county
on a “contract basis.”1
However, plaintiff contends that the record is devoid of substantial evidence that she was
engaged for “special services.” We disagree. Plaintiff’s contract specified the services that
plaintiff would perform, and plaintiff admits that she provided no services beyond those stated in
the contract. Although plaintiff may have performed services similar to those services performed
by employees of the county clerk, she did not perform all the tasks and duties performed by those
employees. Further, plaintiff worked only on a limited basis, averaging approximately 5 to 6
hours per week. Finally, plaintiff’s contract clearly provided that she was not “entitled to receive
any benefits” as a county or road commission employee.2
We believe that the record contains substantial evidence supporting defendant’s factual
conclusion that plaintiff fell within the exclusion defined in § 16(b)(1). Although there may have
been substantial evidence on the record to support plaintiff’s position, there was also substantial
evidence on the record to support defendant’s decision. Accordingly, we conclude that the trial
court abused its discretion when it set aside defendant’s factual determination. Because
1
Plaintiff contends that she does not fall within § 16(b)(1) because the county paid her on an
hourly basis, rather than a fee basis. We conclude that this distinction is irrelevant. Section
16(b)(1) excludes “any person who is engaged for special services on a contract or fee basis.”
Because plaintiff admits that she performed services pursuant to a written contract with the
county, it is clear that she performed services on a “contract basis,” and we need not decide
whether she performed services on a “fee basis.”
2
Plaintiff contends that she does not fall within § 16(b)(1) because she was an employee, not an
independent contractor. We conclude that this distinction is irrelevant. Section 16 of the
retirement system ordinance does not use the term “independent contractor,” and the ordinance
clearly excludes some persons who are employees.
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defendant did not fail to perform a “clear legal duty,” the circuit court’s decision to grant plaintiff
relief on her petition for writ of superintending control was inappropriate. Gosnell, supra at 341.
We reverse the circuit court’s decision and dismiss plaintiff’s petition for superintending control.
Reversed.
/s/ Kirsten Frank Kelly
/s/ Michael R. Smolenski
/s/ Patrick M. Meter
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