I'm not sure what U2A is supposed to be doing, but running the output voltage to the rail seems right for this circuit. U1 measures the current in R1||R2 by measuring the voltage. Referenced to ground the voltage across them is amplified by 10 at the output pin 6, so 5V/amp. U2A is an open loop op amp with high gain, so the output will be at either rail. The feedback capacitor may be intended to prevent oscillations, not sure. In effect this amp acts as a comparator. When the current in R1||R2 is above a threshold the output of U2A is ground, when below the threshold the output of U2A is near the positive rail. I don't see power connections to U2, so no way to know what that voltage would be.
When the output of U2A is low, it steals the output current of U3A removing the drive from Q1 turning off the FET or at least limiting the output current to the threshold level. There is a lot of gain in the circuit so this may or may not oscillate.
Ok, now that I understand the circuit... If the inputs to U2A are as you say, the inverting input is 3.6V and the non-inverting input is 2.4V the output should be low. Check the other pins on the chip. Is the ground pin at ground? What is the other op amp in the package doing? Did you measure all 8 pin voltages directly on the pins? This will help find errors in connectivity.