If common questions of law and fact are involved, the commissioner may, in his or her sole discretion and at any stage of the proceedings, consolidate two or more appeals for the submission of pleadings and other papers and/or the issuance of a decision. In such case, the commissioner may permit or require the service and filing of pleadings, affidavits, memoranda of law and any other papers required or authorized to be served pursuant to this Part and Part 276 of this Title upon such terms as the commissioner may specify.