What you're really referring to is the fact that at the stage where a grievance or a discipline has been brought to the next level, the committee is a recommending body. The decision-maker is the commissioner at those levels for those cases; that's the reason the act reads that it's the commissioner who is the decision-maker, who refers the case to the committee for a recommendation.
In other words, the reason it's in that order is that the law does not give the committee the final decision-making power. It's a recommending body.