IN THE SUPREME COURT OF IOWA
DEBORAH ANN LYNCH
Appellee,
VS.
CITY OF DES MOINES, IOWA,
Appellee.
No. 100 / 89-222
Filed April 18,1990
Appeal from the Iowa District
Court for Polk County, Michael J. Streit, Judge.
Parties appeal from judgment
in sex discrimination suit under Iowa Civil Rights Act. AFFIRMED
Nelda Barrow Mickle, City
Solicitor, Des Moines, for appellant.
Roxanne Barton Conlin of
Galligan & Conlin, P.C., Des Moines, for appellee.
Considered by McGiverin, C.J., and Larson, Carter, Lavorato and Neuman, JJ.
McGIVERIN, C.J.
Plaintiff Deborah Ann Lynch
was a police officer employed by defendant City of Des Moines,
Iowa. In May 1985, Lynch filed a complaint with the Iowa Civil
Rights Commission in which she alleged that the City had discriminated
against her on the basis of sex, in violation of Iowa Code chapter
601 A (1985) (Iowa Civil Rights Act of 1965, as amended). The
complaint became the basis of this lawsuit, which was tried to
the district court.
In December 1988, the district
court entered its findings of fact, conclusions of law, and judgment.
The court ruled that the city had violated chapter 601 A by maintaining
a sexually hostile work environment at the Des Moines Police Department
and by retaliating against Lynch for her complaints about the
work environment at the Des Moines Police Department and by retaliating
against Lynch for her complaints about the work environment. The
court awarded Lynch $10,000 to compensate her for emotional distress
she suffered because of the City's conduct. The court also ordered
the City to develop and implement an education and training plan
to prevent, detect and correct sexual harassment at the police
dapartment.
The City appealed and Lynch
cross-appealed. On appeal, the City argues that the district court:
1) lacked authority to consider certain incidents of alleged sexual
harassment and retaliation aimed at Lynch; 2) erred by finding
that the City had violated chapter 601 A; 3) erred by ruling that
Iowa Code section 601A.6(l)(a) is not unconstitutionally vague:
4) erred by awarding Lynch damages for emotional distress and
by ordering the City to develop and implement an education and
training plan, and, 5) erred by refusing to allow the City to
amend its answer shortly before trial. On cross-appeal, Lynch
asserts that the district court's $10,000 award to her is so grossly
inadequate that it should be increased.
This case was tried to the
court as a law action. Our review, therefore, is for correction
of errors at law. See, e.g., Frank v. American Freight
Systems, Inc., 398 N.W.2d 797, 799 (Iowa 1987) (supreme court
will treat case on appeal in the manner in which it was tried
in district court); Iowa R. App. P. 4. The district court's findings
of fact are entitled to the weight of a special verdict and are
binding on appeal if supported by substantial evidence. Blunt,
Ellis & Loewi, Inc. v. Igram, 319 N.W.2d 189, 192 (Iowa
1982).
We conclude that substantial
evidence supports the district court's findings of fact and that
no error of law occurred. Accordingly, we affirm.
I. Background facts and
proceedings. Lynch became a Des Moines police officer in January
1981. She served in that capacity until a work-related knee injury
forced her to retire from the force in March 1988. Her knee injury
and retirement are unrelated to the claims in this suit; but for
the knee injury, Lynch would still be a Des Moines police officer.
Prior to March 1985, Lynch
and fellow officers Timothy Lynch (T. Lynch, not related to plaintiff
Lynch) and Merlin D. Nielsen were assigned to the same squad and
worked together on the first watch (10:30 p.m. to 6:30 a.m.).
On March 29, 1985, Lynch
filed a formal complaint with the internal affairs unit of the
police department, alleging that T. Lynch and Nielsen had been
sexually harassing her at work. An internal affairs investigation
was begun. This investigation culminated on May 13,1985, when
chief of police William H. Moulder concluded that the conduct
of T. Lynch and Nielsen had violated both the City of Des Moines
and Des Moines Police Department prohibitions of sexual harassment.
Moulder suspended T. Lynch and Nielsen for thirty days and reassigned
them to the third watch. Both officers were warned that further
sexual harassment by them would result in their termination. Sergeant
Dale Anderson was also suspended because of his ineffective supervision
of T. Lynch and Nielsen after Lynch's complaints concerning them.
On May 21, 1985, Lynch filed
an administrative complaint with the Iowa Civil Rights Commission
in which she alleged that the City had discriminated against her
on the basis of sex, in violation of Iowa Code chapter 610A. The
complaint specifically alleged that from September 1984 to March
29, 1985, officers T. Lynch and Nielsen made sexual comments toward
Lynch, that the comments had been reported to Lynch's superiors
and to the internal affairs unit, and that the situation was not
effectively remedied; and that as a result of her reports Lynch
was reassigned to another patrol territory while her harassers
were given privileged treatment. In other words, the complaint
alleged that the City had practiced two kinds of sex discrimination:
maintenance of a sexually hostile work environment at the police
department, and retaliation against Lynch for her complaint about
the work environment. See Iowa Code §§ 601 A.6(1)(a)
(prohibiting sex discrimination in employment), 601A.11(2) (prohibiting
retaliation for opposing or reporting sex discrimination employment).
In September 1985, Lynch
filed a petition at law against the City, Anderson, T. Lynch and
Nielsen, alleging their liability to her on several common law
tort theories. By November, the Iowa Civil Rights Commission had
issued Lynch a right to sue letter with regard to her May 21 administrative
complaint, and Lynch amended her petition at law to include chapter
601A claims against the defendants. See Iowa Code § 601 A.1
6; 161 Iowa Admin. Code 3.9. The matter was resolved prior to
trial except for the chapter 601A claims against the City. Trial
was to the court solely on those claims.
The district court made
extensive findings of fact concerning the sexual comments and
sexually-charged verbal abuse which had been aimed at Lynch by
T. Lynch and Nielson. We choose not to dignify their conduct by
recording it here. Suffice it to say that it involved repeated
incidents of sexually derogatory remarks, vulgar insults, and
requests for sexual favors which the City attempts to portray
as "teasing" or "joking" but which were demeaning
and insulting to Lynch, whatever their purpose. In at least one
instance Nielsen actively interfered with Lynch's performance
of her duties. In other instances Lynch was so visibly upset by
the situation that her work performance was undoubtedly affected.
In addition the court cited
one incident where, after having been insulted by sexual comments
from T. Lynch and Nielsen, Lynch complained to sergeant Anderson.
Anderson responded by making a sexual comment to Lynch about her
body. The evidence conflicted over whether Anderson even spoke
to T. Lynch and Nielsen about their conduct. Lynch also complained
to captain Charles Backstrom. Neither Backstrom nor Anderson compelled
T. Lynch and Nielsen to stop making sexual comments toward Lynch.
On another occasion when
Lynch complained to Anderson about Nielsen, Anderson actually
suggested to Lynch that she take matters into her own hands by
reporting Nielsen's conduct to Nielsen's wife. Lynch appropriately
told Anderson that this advice was "ridiculous" and
stated that she would file a formal complaint unless the harassment
was stopped.
The district court found
that supervisory officers were sometimes present during incidents
like those described and were familiar with the conduct of T.
Lynch and Nielsen toward Lynch, yet took no action to prevent
it. Lynch repeatedly asked her harassers to stop, and brought
the matter to the attention of her superiors on several occasions.
In addition to the sexually
hostile work environment claim, the district court considered
Lynch's claim that she was the victim of retaliation for complaining
about the work environment. The court found that the City had
adequately explained the alleged incidents of retaliation by nondiscriminatory
reasons, except for the conduct of one officer, lieutenant Jack
Rose.
Rose supervised Lynch for
a time in 1985 and 1986. The court found that after T. Lynch and
Nielsen had been disciplined by chief Moulder, Rose treated Lynch
differently than he had before. He criticized Lynch's fingernail
length for the first time, noting it on his inspection report.
He ordered Lynch to pick up paper soiled with human defecation
under the pretext of gathering evidence. He told other officers
at roll call that Lynch had the City in a precarious legal position
and asked them to collect negative information on her. He followed
Lynch home one time after work for no valid reason.
In light of these facts,
the court concluded that the City had violated Iowa Code chapter
601 A by maintaining a sexually hostile work environment at the
Des Moines Police Department and by retaliating against Lynch
for her complaints about the work environment. The court entered
judgment for Lynch.
II. Jurisdictional issues.
The City asserts that the district court lacked authority to consider
certain incidents of alleged sexual harassment and retaliation
aimed at Lynch.1
A. Incidents of sexual
harassment which occurred prior to September 1984 and/or outside
the 180-day limitations period of Iowa Code section 601 A. 15(12).
The City argues that the court lacked authority to consider
any incident which occurred prior to 180 days before Lynch filed
her administrative complaint with the Iowa Civil Rights Commission
on May 21, 1985, that is, any incident which occurred prior to
approximately November 21, 1984. Similarly, the City argues that
because Lynch's administrative complaint alleged that she had
been harassed "from September 1984 to March 29, 1985."
the court lacked authority to consider any incident of sexual
harassment which occurred prior to September 1984.
It is true that the Iowa
Civil Rights Commission may consider only claims brought within
180 days after the alleged discriminatory practice occurred. Iowa
Code § 601A.15(12) ("A claim under this chapter shall
not be maintained unless a complaint is filed with the commission
within one hundred eighty days after the alleged discriminatory
or unfair practice occurred.") It also is true that the district
court has authority to consider only those chapter 601 A claims
that first have been presented to the commission.2
If the commission has no authority to consider a chapter 60
1A claim for whatever reason, then the district court likewise
lacks authority to consider that claim. See City or Des
Moines Police Dep't v. Iowa Civil Rights Comm'n, 343 N.W.2d
836 (Iowa 1984) (reversing district court judgment which
upheld agency order on judicial review, where agency lacked authority
to act on the matter).
The district court unquestionably
considered specific incidents of sexual harassment aimed at Lynch
which occurred prior to September 1984 and prior to November 21,1984.
We cannot agree with the City's reasoning that if a specific incident of sexual harassment was not specifically "pleaded" by Lynch in her complaint to the commission (because it occurred prior to September 1984), then the court lacked authority to consider it as evidence in Lynch's case. The "discriminatory or unfair practice" Lynch alleged in her complaint was the City's maintenance of a sexually hostile work environment through sexual harassment. Specific incidents of sexual harassment are evidence of the validity of the claim, but they are not claims in themselves in the sense that each incident must have been pointed out to the commission before it may be considered by the court.
We also cannot agree with the City's reasoning that if a specific
incident of sexual harassment occurred prior to November 21, 1984,
then the court lacked authority
to consider it as evidence in Lynch's case. When the plaintiff's
claim is that her employer maintained a sexually hostile work
environment, the alleged discriminatory practice must be viewed
as a so-called "continuing violation" of chapter 601
A. As long as the discriminatory practice continued within the
limitations period, the claim is timely and may be proven, at
least in part, by evidence of specific incidents of sexual harassment
which occurred outside the limitations period. See Hy-vee Food
Stores, Inc, v. Iowa Civil Rights Comm'n, ____ N.W.2d ____,
____ (Iowa 1990); 161 Iowa Admin. Code 3.3.
This rule has much to recommend
it in cases where the alleged sex discrimination takes the form
of maintenance of a sexually hostile work environment. Unlike
a charge of discriminatory discharge or failure to fire, for example,
the essence of a sexually hostile work environment claim clearly
is that of a pattern of harassment, a violation over time; we
doubt that a sexually hostile work environment could be shown
by proving only one incident of sexual harassment.3 Were we to hold that
the court cannot consider
incidents of sexual harassment which occurred outside the limitations
period in sexually hostile work environment cases, a plaintiff
would be forced to endure the hostile environment until sufficient
incidents had occurred to show that the environment existed, but
then might be precluded from proving a case because some incidents
occurred outside the limitations period.
We conclude that the district
court properly considered specific incidents of sexual harassment
which occurred prior to September 1984, notwithstanding the language
of Lynch's administrative compliant. We also conclude that the
court properly considered specific incidents of sexual harassment
which occurred prior to 180 days before Lynch filed her administrative
complaint.
B. Incidents of retaliation
which occurred after Lynch's administrative complaint was filed.
The City's second argument concerns the court's authority to consider
the conduct of lieutenant Rose. With regard to her claim of illegal
retaliation, Lynch's administrative complaint specified that her
cause of action was based on her perception that after complaining
to he superiors, she had been reassigned to another patrol area
while her harassers were given privileged treatment. The City
argues that the court lacked authority to consider Rose's conduct
because it was not mentioned in Lynch's administrative complaint.
Lynch's administrative complaint
was filed on May 21, 1985. The district court found that Rose's
retaliatory conduct began after T. Lynch and Nielsen were disciplined
by chief Moulder on May 13,1985, and some of it occurred as late
as September 1986. The fact that Rose's conduct did not occur
until after Lynch's complaint was filed with the commission is
significant.
In Hulme v. Barrett,
449 N.W.2d 629 (Iowa 1989), the plaintiff's work hours were reduced
and she thereafter complained to the Iowa Civil Rights Commission
that she was the victim of illegal age discrimination. Id.
at 630-31. Plaintiff was later discharged from employment. Id.
at 631. After the commission issued her a right to sue letter,
plaintiff sued her former employer under chapter 601A alleging:
1) that her hours were illegally reduced because of her age; 2)
that she was illegally discharged because of her age; and 3) that
she was illegally discharged in retaliation for filing a complaint
with the commission. Id.
The district court in Hulme
ruled that it had no jurisdiction over plaintiff's second and
third claims because plaintiff's discharge had not been raised
before the commission. Id. We reversed on this issue,
saying that "[t]o force a plaintiff to file a new
administrative charge with each continuing incident of discrimination
would create needless procedural barriers." Id.
at 633 (quoting Oubichon v. North American Rockwell
Corp., 482 F.2d 569, 571 (9th Cir. 1973)). We held that the
district court had jurisdiction over plaintiff's second and third
claim because those claims were reasonably related to plaintiff's
first claim, a claim which was properly before the court.
Id.
Lynch's claim of a sexually
hostile work environment and her claim of retaliation concerning
her patrol area reassignment were pending before the commission
when Rose's retaliatory conduct was just beginning. Rose's conduct
is reasonably related to Lynch's other claims, claims which were
properly before the court. To require an additional administrative
proceeding on Rose's conduct would be to erect a needless procedural
barrier to hearing the merits of Lynch's case. Following Hulme,
we conclude that the district court had authority to consider
the retaliation claim arising out of Rose's conduct toward Lynch.
III. Statutory and sufficiency of the evidence issues. The Iowa Civil Rights Act prohibits sex discrimination in employment in broad terms making it illegal to:
refuse to hire, accept, register, classify, or refer for employment, to discharge any employee, or to otherwise discriminate in employment against any applicant for employment or employee because of the . . . sex . . . of such applicant or employee, unless based upon the nature of the occupation.
Iowa Code § 601A.6(l)(a)
(emphasis added).4 In Chauffeurs, Teamsters and
Helpers, Local Union No. 238 v. Iowa Civil Rights Commission,
394 N.W.2d 375 (Iowa 1986), we held that similar language in Iowa
Code section 601A.6(l)(b) made it illegal for a union to maintain
a racially hostile membership environment by failing to stop racial
harassment of the plaintiff by the union's members. Id. at 378-
81. We now follow through on Chauffeurs and hold that maintenance
of a sexually hostile work environment through sexual harassment
is a form of illegal sex discrimination under section 601 A.6(1)(a)
of the Iowa Civil Rights Act.
In Chauffeurs we adopted the approach of Henson v. City of Dundee, 682 F2d 897 (11 th Cir. 1982), as to the elements of a racial harassment claim under the Iowa Civil Rights Act. Chauffeurs, 394 N.W.2d at 378.5 Henson was a sexual harassment case. Henson, 682 F.2d at 899. We think, therefore, that the Henson analysis should also be applied to sexual harassment claims under the Iowa Civil Rights Act. In order to establish a valid claim of maintenance of a sexually hostile work environment through sexual harassment, it must be proven that:
(1 ) the plaintiff belongs to a protected class;
(2) the plaintiff was subject to unwelcome sexual
harassment;
(3) the harassment was based upon sex;
(4) the harassment affected a term, condition or privilege of employment, and;
(5) the employer knew or should have known of the harassment and failed to take prompt and appropriate remedial action.
Cf. Chauffeurs, 394 N.W.2d at 378. See also
Barrett v. Omaha Nat'l Bank, 726 F.2d 424, 427 (8th Cir. 1984)
(immediate and appropriate remedial action may insulate defendant
employer from Title VII liability for sexual harassment of plaintiff
by her coworkers). The district court correctly identified this
analysis as the law applicable to Lynch's claim that the City
maintained a sexually hostile work environment.6
The City does not seriously
dispute that the Iowa Civil Rights Act makes it illegal to maintain
a sexually hostile work environment through sexual harassment.
The city also does not dispute that Chauffeurs provides, in general
outline, the essential elements of such a claim. Rather, the City's
argument on the statutory front is that Lynch failed to prove
the elements of the claim. This is a challenge to the sufficiency
of the evidence.
The City first argues that
Lynch was not subjected to unwelcome sexual harassment
because there was evidence that Lynch herself voluntarily engaged
in "raw sexual banter" with her fellow officers, often
using the same crass language she now claims to have found offensive.
The argument is based on language in Henson where the court
clarified the concept of "unwelcomeness" by stating
that the alleged sexually-harassing conduct ,'must be unwelcome
in the sense that the employee did not solicit or incite it, and
in the sense that the employee regarded the conduct as undesirable
or offensive." Henson, 682 F.2d at 903.
We agree that Lynch's conduct
is relevant to the determination of whether the alleged sexual
harassment by T. Lynch and Nielsen was unwelcome. The record shows
that Lynch sometimes gave as much as she got. Nevertheless, it
also shows that she repeatedly indicated to T. Lynch, Nielsen,
and her superiors that this state of affairs was offensive and
unacceptable. She acted reasonably under the circumstances. Viewing
the record as a whole, we believe there is substantial evidence
to support the district court's conclusion that the harassment
aimed at Lynch was unwelcome.
The City next argued that
the harassment of Lynch was not based upon sex, because T. Lynch
and Nielsen "used obscene language all the time to everyone."
It may be true that verbal abuse with sexually-charged language
was not reserved only for women at the Des Mones Police Department.
Nevertheless, the court found that Lynch
would not have been
subjected to such pervasive harassment but for the fact that she
is a woman. Many of the insulting comments aimed at Lynch were
particularly reserved for women. There is substantial evidence
to justify the court's conclusion that Lynch was harassed because
of her sex.
The City also asserts that
the harassment aimed at Lynch did not affect a term, condition
or privilege of employemnt. This argument is based on the fact
that the harassment of Lynch did not take the form of denial of
a tangible job benefit.
We reject the suggestion
that only cases involving the loss of a tangible job benefit are
actionable under the Iowa Civil Rights Act. A primary purpose
of the legislature in passing the Iowa Civil Rights Act was to
place women on equal footing with men in the workplace. Sommers
v. Iowa Civil Rights Comm'n, 337 N.W.2d 470, 474 (Iowa 1983).
The act must be construed broadly to that end. Iowa Code §
601 A. 18. Where sexual harassment in the workplace is so pervasive
and severe that it creates a hostile or abusive work environment,
so that the plaintiff must endure an unreasonably offensive environment
or quit working, the sexual harassment affects a condition of
employment. In such cases, female employees are faced with a working
environment different from that faced by men, a situation that
the Iowa Civil Rights Act sought to remedy.
The record in this case
provides substantial evidence to support the district court's
conclusion that Lynch's work environment was so polluted by sexual
harassment that it affected her psychological and emotional well-being.
She was forced to endure persvasive and severe sexual harassment
or quit. The court correctly determined that the harassment affected
a condition of Lynch's employment.
The city's final argument
on the sexually hostile work environment claim is that there is
not substantial evidence to support the court's conclusion that
after the City knew or should have known of the harassment, it
failed to take prompt and appropriate remedial action. The city
submits that chief Moulder's suspension of T. Lynch, Nielsen,
and Anderson in May 1985 conclusively establishes that the City
took prompt and appropriate remedial action and so is insulated
from liability here.
This argument overlooks
the fact that the court found that Lynch's superiors knew about
the harassment months before Lynch resorted to the formal internal
affairs complaint process, yet did nothing to curb the harassment.
Substantial evidence supports that finding.
Finally, the City asserts
that Lynch failed to prove her claim of illegal retaliation under
Iowa Code section 601 A. 11 (2). That section makes it illegal
to "discriminate" against a person "because such
a person has lawfully opposed any practice forgidden by [chapter
601 A], or has filed a complaint, testified, or assisted in any
proceeding under [chapter 601 A]." The record supports the
district court's finding of a fact with regard to lieutenant Rose's
conduct, and we agree that Rose's conduct is within the prohibition
of section 601 A.11(2).
In sum, we conclude that
there is substantial evidence to support the district court's
findings that the City violated Iowa Code sections 601A.6(l)(a)
and 601A.11(2) in its treatment of Lynch. We find no error here.
IV. Remedy issues. The
City assails the court's choice of remedy on two grounds. First,
the City argues that the district court erred in awarding Lynch
damages for emotional distress where the City's conduct was not
"outrageous" and Lynch's emotional distress was not
demonstrably severe. Second, the City argues that the district
court has no authority to order the City to develop and implement
a police department-wide plan of education and training in the
prevention, detection and correction of sexual harassment. On
cross-appeal, Lynch contends the damages awarded to her were inadequate.
A. Damages for emotional
distress. The questions raised by the argument concerning
damages for emotional distress have been answered since this appeal
was docketed. In Hy- Vee v. Iowa Civil Rights Comm'n, ___ N.W.2d
___, ___ (Iowa 1990), we held that emotional distress i's
a recoverable element of damages in a private action for violation
of the Iowa Civil Rights Act. A chapter 601 A complainant may
recover damages for emotional distress even without a showing
of physical injury, severe distress, or outrageous conduct. Id.
B. Affirmative action under Iowa Code chapter 601 A. We also find no merit in the argument that the court lacked authority to order the City to develop and implement a plan to curb sexual harassment in the police department. The district court in a chapter 601 A lawsuit may grant any relief which would be available to the commission in an administrative proceeding under chapter 601 A. Iowa Code § 601 A.1 6(5). To remedy discriminatory practices, the commission is empowered to:
issue an order requiring [the violator] to cease and desist fom the discriminatory or unfair practice and to take the necessary remedial action as in the judgment of the commission will carry out the purposes of this chapter.
Iowa Code § 601A.15(8).
(emphasis added) "Development and implementation of an educational
program" is not a specifically enumerated form of remedial
action under section 601A.15(8). Under the statute, however, allowable
"remedial action" expressly is not limited to
those remedies specifically enumerated in the statute.
Iowa Code § 601A.15(8)(a).
The legislature has also
provided that the Iowa Civil Rights Act must be broadly
construed to effectuate its purposes. Iowa Code § 601A.18.
Allowing the sort of remedy ordered by the district court in this
case would further the purposes of the Iowa Civil Rights
Act, and this remedy is not more intrusive than those remedies
specifically enumerated in section 601 A.1 5(8). We hold,
therefore, that one remedy available under the Iowa Civil
Rights Act is an order requiring a violator to educate and
train its employees not to engage in conduct prohibited
by the Act.
We rejected a very similar
argument on this point in Iron Workers Local No. 67 v. Hart,
191 N.W.2d 758 (Iowa 1971). In that case, Local 67 was ordered
to submit to the Iowa Civil Rights Commission "an affirmative
action program to recruit, solicit and admit minorities to its
membership." Id. at 764. We wrote:
In attacking the affirmative portions of this order, respondents make two erroneous assumptions .... The second erroneous assumption is [that] the legislation involved must be interpreted as affording merely a remedy in a specific dispute rather than correcting a broader pattern of behavior. It is the latter goal toward which this legislation is directed.
It was the practice of discrimination, not merely the humiliating treatment of Roe [the individual denied access to Local 67 in the case at bar], at which the Commission and the trial court took aim in this decree.
Id. at 770.7 cf. Quaker Oats Co. V.
Cedar Rapids Human Rights Comm'n, 268 N.W.2d 862, 868 (Iowa
1978) (remedies available under chapter 601A do not include class
relief in the sense that an individual plaintiff may not recover
damages on behalf of all persons similarly discriminated against,
at least absent class certification under the Iowa Rules of Civil
Procedure).
C. Adequacy of the damages
awarded. Lynch likewise raises a remedies issue in her cross-appeal.
Her argumant is that the district court's $10,000 award to her
is so grossly inadequate that we should remand the case with instructions
to increase the award, or increase the award ourselves. Lynch
points out that her award is less than the awards in other reported
sexual harassment cases, and that the court made no separate award
for special damages she had claimed
The district court found
that Lynch suffered mental anguish and depression as a result
of the City's illegal conduct. The court also found, however,
that much of the emotional distress Lynch blamed on the City was
attributable to turmoil in Lynch's personal life, the details
of which we need not disclose except to note that the turmoil
was unrelated to her employment. The court found that Lynch had
failed to prove any permanent damage from the sexual harassment
she sufffered. The court awarded Lynch $10,000 for the emotional
distress caused by the City and impliedly gave no award for the
other items of requested damages. The court also awarded Lynch
reasonable attorney fees. See Iowa Code § 601 A. 1
5(8)a(8).
Determining the amount of
damage attributable to a defendant's conduct is a matter for the
trier of fact. Frantz v. Knights of Columbus, 205 N.W.2d
705, 712 (Iowa 1973). Our review on this issue is for an abuse of discretion.
See Witte v. Vogt, 443 N.W.2d 715, 716 (Iowa 1989) (trial
court's refusal to grant new trial for inadequacy of jury verdict
reviewed for abuse of discretion). The adequacy of the award in
a particular case depends on the unique facts of that case. Id.
Comparison with other cases is of little value. Housholder
v. Town of Clayton, 221 N.W.2d 488,493 (Iowa 1974). A verdict
is inadequate when uncontroverted facts show that it bears no
reasonble relationship to the loss suffered by the plaintiff,
or in other equally extreme circumstances. See Witte,
443 N.W.2d at 716; Frantz, 205 N.W.2d at 712 (supreme
court will not interfere with trier of fact's allowance of damages
unless it clearly appears the verdict is flagrantly excessive
or inadequate, or so out of reason as to shock the conscience
or sense of justice or raise a presumption it is the result of
passion, prejudice or other ulterior motive or is lacking in evidential
support).8
The district court's findings
on the causes of Lynch's emotional problems are supported by the
evidence. The amount and basis of the judgment are reasonable
related to the loss Lynch suffered as a result of the City's conduct.
We find no abuse of discretion here.
V. Constitutional issues. As noted previously, Iowa code section 601 A.6 (1 )(a) makes it an unfair or discriminatory practice for any person to:
refuse to hire, accept, register, classify, or refer for employment, to discharge any employee, or to otherwise discriminate in employment against any applicant for employment of any employee because of the . . . sex . . . of such applicant or employee, unless based upon the nature of the occupation.
The City argues that the
"or to otherwise discriminate in employment" language
in this statute is unconstitutionally vague so that it cannot
be applied to make it illegal to maintain a sexually hostile work
environment through sexual harassment. This challenge presumably
is brought under the due process clause of the fourteenth amendment
to the United States Constitution.
A statute is unconstitutionally vague if it does not give a person of ordinary intelligence a reasonable opportunity to know what is prohibited. City of Cedar Falls v. Flett, 330 N.W.2d 251, 256 (Iowa 1983). But literal exactitude is not required. Id. "If the statute's meaning is fairly ascertainable by reliance on generally accepted and common meanings of words used, or by reference to the dictionary, related or similar statutes, the common law, or previous judicial constructions, due process is satisfied. " Id. In addition, words in a statute must be read in context.
The construction we give
section 601A.6(l)(a) today is not such that a person of ordinary
intelligence, when confronted with the statute and its history
of judicial enforcement, would be surprised to learn that the
City's conduct in this case was illegal. The statute plainly bans
any sex discrimination in employment, unless based upon the nature
of the occupation. That a statute is broad is not to say that
it is unconstitutionally vague. The conditions under which employees
work are clearly a facet of employment regulated by the statute,9
and the treatment of a person by their coworkers clearly affects
working
conditions. Federal courts have reached this result on statutory
language very similar to that of the Iowa Civil Rights Act. See,
eg., Meritor Savings Bank, FSB v. Vinson, 477 U.S. 57,106 S.Ct
2399, 91 L. Ed.2d 49 (1986) (sex discrimination by harassment
which creates a hostile or abusive work environment is discrimination
in the "terms, conditions or privileges of employment"
actionable under 42 U.S.C. § 20OOe-2(a)(1)); Hall v. Gus
Const. Co., Inc., 842 F.2d 1010 (8th Cir. 1988) (verbal abuse
of a sexual nature actionable under both 42 U.S.C. § 2000e
and the Iowa Civil Rights Act). It is no surprise that the Iowa
statute, too, prohibits maintenance of a sexually hostile working
environment through sexual harassment.
We hold that Iowa Code section 601A.6(l)(a) is not unconstitutionally
vague. The "otherwise discriminate in employment" language
may constitutionally be construed
to make it illegal to maintain a sexually hostile work environment
through sexual harassment, including verbal abuse.
VI. Leave to amend the City's answer. At the pretrial hearing
in this case, the City requested leave to amend its answer to
assert the defense that if the Iowa Civil Rights Act prohibited
the conduct of T. Lynch and Nielsen, then it unconstitutionally
proscribed their rights under the first amendment to the United
States Constitution. The pretrial hearing was nearly three years
after the lawsuit was filed and only days before trial. The district
court refused to allow the amendment,
Leave to amend a pleading is to be freely given when justice so
requires. Iowa R. Civ. P. 88. A motion for leave to amend is directed
to the trial court's discretion, and the court's ruling on the
motion will be disturbed only for a clear abuse of discretion.
M-Z Enterprises, Inc. v. Hawkeye-Security Ins. Co., 318 N.W.2d
408, 411 (Iowa
1982). Late amendment should not be allowed if it would substantially
change the issues in the case. Bremicker v. MCI Telecommunications
Corp., 420 N.W.2d 427, 429
(Iowa 1988).
The City's proffered amendment would have injected a complex constitutional
issue into this case only days before trial. The district court
did not abuse its discretion in refusing to allow the amendment.
VII. Disposition. We find no error in this case. The judgment
of the district court is affirmed. Costs on appeal are taxed to
the City.
AFFIRMED.
1 This case illustrates the distinction we have recently drawn between "lack of subject matter jurisdiction" and "lack of authority to hear a particular case." See Christie B. Rolscreen Co., 448 N.W.2d 447, 450 (Iowa 1989). The district court has subject matter jurisdiction over cases arising under the Iowa Civil Right Act, but can exercise that jurisdiction only if it is properly invoked in this particular case. If the jurisdiction was not properly invoked, then the court has no authority to hear this case. The City argues that the jurisdiction of the district court was not properly invoked in this case because Lynch failed to lay the appropriate groundwork at the agency level.
2 A complainant before the commission may come into court by a petition for judicial review of agency action. Iowa Code § 601 A.17. Otherwise, a complainant may come into court after being granted a right to sue letter from the commission. Iowa Code § 601A.16; 161 Iowa Admin. Code § 3.9. In either case, the chapter 601 A claim ordinarily presented to a court. The procedures mandated by chapter 60 1A are the exclusive means of asserting claims under that chapter. Northrup v. Farmland Indus., Inc., 372 N.W.2d 193, 197 (Iowa 1985).
3 This type of sex discrimination claim requires proof that the sexual harassment was so pervasive and severe that it altered the conditions of employment and created an abusive work environment. A single incident of harassment, in most cases, would not be "pervasive" sexual harassment.
4 Sex discrimination is just one of many kinds of discrimination made illegal by the Iowa Civil Rights Act. The broad terms of chapter 601 A prohibit discrimination because of age, race, creed, color, sex, national origin, religion or disability. See, e.g., Iowa Code § 601 A.6 (prohibiting discrimination in employment)
5 We have previously stated that decisions under Title VII of the federal Civil Rights Act of 1964 may be persuasive in construing the Iowa Civil Rights Act, although, of course, federal decisions under the federal statute are not binding on us when construing the Iowa Statute. See, e.g., Sommers v. Iowa Civil Rights Comm'n 337 N.W.2d 470, 474 (Iowa 1983).
6 In Chauffeurs, we suggested that the burden-shifting analysis traditionally used in desparate-treatment discrimination cases also applies in hostile work environment cases. Chauffeurs, 394 N.W.2d at 378. See generally Hy-Vee v. Iowa Civil Rights Comm'n ___ N.W.2d ___ (Iowa 1990) (discussing burden- shifting analysis). It is questionable whether the traditional burden- shifting analysis is appropriate or necessary in hostile work environment cases where the alleged discrimination does not involve deprivation of a tangible job benefit. See, e.g., Henson, 682 F.2d at 905 n. 11; Katz v. Dole, 709 F.2d 251, 255-56 (4th Cir. 1983). This question was not raised by the parties, so we leave it for another day. We note that the applicability of the traditional burden-shifting analysis to Lynch's claim of illegal retaliation is not questioned.
7 Iron Workers was decided
under Iowa Code chapter 105A (1971). Iron Workers, 191
N.W.2d at 761. Chapter 105A is the statutory predecessor of current
chapter 601A, both being codificaitons of the Iowa Civil Rights
Act of 1965. The remedy provisions of the two codifications are
very similar. Compare Iowa Code § 105A.9(12) (1981)
with Iowa Code § 601 A.1 5(8) (1985).
8 In Householder, 221 N.W.2d 493, we found a jury's verdict inadequate where it was for less than the plaintiff's undisputed special damages and the circumstances raised the s r of an impermissible compromise verdict. in contrast, Lynch's claimed special damages are disputed and there is no suggestion of a compromise verdict, the case having been tried to the court. Most significantly, Lynch's $10,000 award is well in excess of the special damages she claimed. She was also awarded reasonable attorney fees. We cannot say that the court's award to Lynch is flagrantly inadequate.
9 We note that the Iowa Civil Rights Commission has interpreted the Iowa Civil Rights Act as prohibiting sex discrimination "with regard to terms and conditions of employment." 161 Iowa Admin. Code § 8.54(l).