Dredge v. State ex rel., Dept. of Prisons

• Decision Date: 22 February 1989
• Docket Number: No. 18465,18465
• Citation: 769 P.2d 56,105 Nev. 39
• Parties: James R. DREDGE, Appellant, v. The STATE of Nevada, ex rel., its DEPARTMENT OF PRISONS, Respondent.
• Court: Nevada Supreme Court

Page 56

769 P.2d 56

105 Nev. 39

James R. DREDGE, Appellant, v. The STATE of Nevada, ex rel., its DEPARTMENT OF PRISONS, Respondent.

No. 18465.

Supreme Court of Nevada.

Feb. 22, 1989.

Norah Ann McCoy, State Employees Ass'n, Carson City, for appellant.

Brian McKay, Atty. Gen. and Debra Winne Jeppson, Deputy Atty. Gen., Carson City, for respondent.

OPINION

STEFFEN, Judge:

James R. Dredge, a correctional sergeant employed by the Nevada Department of Prisons (NDOP), was terminated for misconduct involving off-duty driving under the influence of alcohol and associating with an ex-inmate. The former conduct resulted in Dredge's arrest. Although Dredge was reinstated after a hearing conducted by a Nevada Personnel Commission hearing officer, the district court reversed the hearing officer's decision, thus prompting this appeal. We affirm.

The Facts

Prior to his discharge on July 21, 1986, Dredge had been employed at the Northern Nevada Correctional Center (NNCC) for approximately six years. His employment history was that of a valued employee whose last two evaluations before his termination reflected an "above average" rating.

On May 31, 1986, Dredge was off duty and drinking at a bar when he saw and greeted John Paul Ellis, an ex-inmate from NNCC. The two men engaged in sporadic conversation before Ellis prevailed upon Dredge to give him a ride to a girlfriend's house. Enroute to the intended destination, Dredge tailgated another vehicle, thus provoking the driver to record Dredge's license plate number and contact a Nevada highway patrolman.

Officer Benzler was directed to the Dredge vehicle by the concerned citizen. The officer, smelling "a strong odor of intoxicating beverages" on Dredge, directed him to take a field sobriety test. Based upon Dredge's driving, odor of alcohol, failure to pass the sobriety test, and loud and boisterous behavior, Officer Benzler arrested him.

After arresting Dredge, and while taking a statement from the percipient witness, the officer was forced to arrest Ellis for attempting to interfere in the officer's duties. Later, at the sheriff's office, Dredge twice refused to submit to a breath or chemical test as required by Nevada's implied consent law. According to Officer Benzler, Dredge refused to take either test without having an attorney present. Dredge's recalcitrance was consistent with the advice given him by Ellis. Ultimately, Dredge agreed to a breath test after being informed that his refusal to cooperate would result in the loss of his driver's permit for a year, during which he would be unable to work because NDOP's regulations required that prison employees be qualified to drive. Dredge's breath tests revealed alcohol levels of .20% and .19%.

Dredge later supplied bail for both himself and Ellis by placing a second mortgage on his house and co-signing Ellis' bail agreement. Upon their release, the bail bondsman, Larry Ogden, drove the two men to Dredge's truck, where he left them.

On June 20, 1986, Dredge pleaded guilty to driving under the influence and served one day in jail. His driver's license initially was revoked for ninety days and later reduced to a total of forty-seven days. As previously observed, Dredge was discharged on July 21, 1986. In general, his termination from state service resulted from "disgraceful" conduct related to the DUI and his behavior associated therewith, and having an ex-inmate in his company contrary to regulations, thereby compromising his position as a peace officer.

The hearing officer viewed the evidence in a more benevolent light than George Sumner, the Director of the Nevada Department of Prisons, who made the decision to terminate Dredge. In addition, the hearing officer incorrectly applied our holding in Schall v. State, 94 Nev. 660, 587 P.2d 1311 (1978), to exclude from his decision evidence surrounding the extent of Dredge's association with Ellis during the overall period of behavior considered by the Director in his decision to terminate. The district court granted relief under NDOP's petition for judicial review. The court held that the hearing officer, erroneously interpreting Schall, labored under an error of law in refusing to consider evidence that, although admitted, was not included in the specificity of charges. The district court concluded that the evidence thus excluded from the decisional process was substantial because it supported the State's position that Dredge associated with an ex-inmate without authorization. We agree with the district court.

Discussion

It was the task of the hearing officer to determine whether NDOP's decision to terminate Dredge was based upon evidence that would enable NDOP to conclude that the good of the public service would be served by Dredge's dismissal. See NRS 284.385(1)(a); 284.390(5); Oliver v. Spitz, 76 Nev. 5, 348 P.2d 158 (1960). Moreover, the critical need to maintain a high level of security within the prison system entitles the appointing authority's decision to deference by the hearing officer whenever security concerns are implicated in an employee's termination. See NAC 284.650(3). ¹

The standard of review by which we evaluate the hearing officer's decision is governed by the Administrative Procedure Act, NRS 233B. Specifically, under NRS 233B.140(5), the courts are enjoined from substituting their judgment for that of the agency concerning the weight of the evidence on questions of fact. Stated otherwise, both the district court and this court are constrained to review the record as it existed before the administrative agency to determine whether the agency abused its discretion by acting arbitrarily or capriciously. Gandy v. State ex rel. Div. Investigation, 96 Nev. 281, 282, 607 P.2d 581, 582 (1980). Courts are empowered to reverse or modify an agency's decision if the aggrieved party has been prejudiced by administrative findings, inferences, conclusions or decisions that are, inter alia, affected by error of law, clear error in view of the reliable, probative, and substantial evidence of record or an abuse or clearly unwarranted exercise of discretion. NRS 233B.140(5)(d), (e) and (f).

As noted previously, the district court concluded that the hearing officer excluded substantial evidence from the decisional process because of an erroneous interpretation of this court's decision in Schall. We reversed the district court in Schall because the judge, perceiving no evidential support for the finding upon which the hearing officer sustained the termination of Dr. Schall, nevertheless affirmed the decision on a ground that had never been charged against Schall. Such is not the case here. Dredge was specifically charged with unauthorized association with an ex-inmate. Details in support of the charge that were presented at the hearing but not included within the specification of charges were not properly excluded under Schall. We therefore agree with the district court that the hearing officer erroneously failed to consider substantive evidence in reaching his decision. ²

Moreover, rather than extending deference to the appointing authority's determination to terminate Dredge for reasons involving prison security, the hearing officer engaged in an unwarranted exercise in semantics concerning the meaning of the term "association." Resorting to dictionary definitions, the hearing officer concluded that "an isolated, limited contact with an ex-inmate does not fall within the ambit of 'association.' "

Whatever connotation is placed on the word "association," it is clear from the evidence that Director Sumner had ample basis for concluding that Dredge's experience with the ex-inmate exceeded rational parameters of incidental contact to such an extent that a determination of unauthorized association was reasonably warranted. After Dredge recognized and greeted Ellis at a bar, their intermittent conversations expanded to the point where Dredge gave Ellis a ride that culminated in the arrest of both men. Thereafter, the record reflects a relationship characterized by Dredge placing a second trust deed on his house and co-signing the bail agreement to facilitate the ex-inmate's release from jail. These and other activities not described here, constitute a compelling basis for the conclusion that Dredge had engaged in an unauthorized association with an ex-inmate. Understandably, the Director felt that Dredge's behavior compromised the security of the prison system and set an unacceptable and deleterious standard of conduct for prison supervisory personnel.

In a further attempt to buttress his conclusion that Dredge did not meaningfully associate with an ex-inmate, the hearing officer speculated that Dredge was "grossly inebriated" and in a "drunken stupor," thereby rendering himself incapable of "the requisite mens rea to intend to associate" with the ex-inmate. Even if we were to accept, arguendo, the dubious premise that a guilty mind is a requisite to the right to terminate for unauthorized association with an ex-inmate, the record belies the hearing officer's finding. Indeed, the hearing officer concluded somewhat anomalously, that there was not credible evidence that Dredge was following anyone's dictates other than his own mind when he refused to submit to the breathalyzer test. Dredge himself explained that he heard discussion concerning the effect of a thunderstorm on the accuracy of the breathalyzer machine. Moreover, Dredge had presence of mind to complete necessary documentation to secure his release and that of the ex-inmate. He also indicated that he would not have considered himself "drunk" at the time of his release. In short, we are satisfied that the appointing authority attached a practical and reasonable meaning to the term "association" and supplied abundant evidence to support ...