15-003284 God&Apos;S Little Blessings vs. Department Of Children And Families
 Status: Closed
Recommended Order on Monday, November 2, 2015.


View Dockets  
Summary: Old, unproven abuse report insufficient reason to deny child care licensure application. Hearing limited to one reason listed in denial letter.

1STATE OF FLORIDA

4DIVISION OF ADMINISTRATIVE HEARINGS

8GOD ' S LITTLE BLESSINGS,

13Petitioner,

14vs. Case No. 15 - 3284

20DEPARTMENT OF CHILDREN AND

24FAMILIES,

25Respondent.

26_______________________________/

27RECOMMENDED ORDER

29Pursuant to notice, a formal hearing was held in this case

40before the Division of Administrative Hearings by its designated

49Administrative Law Judge, Diane Cleavinger, on August 17, 2015,

58in Tallahassee, Florida.

61APPEARANCES

62For Petitioner: Leslie Fudge, pro se

68Apartment F - 8

72216 Dixie Drive

75Tallahassee, Florida 32304

78For Respondent: Camille Larsen, Esquire

83Assistant Northwest Regional Counsel

87Department of Children and Families

922383 Phillips Road

95Tallahassee, Florida 32308

98STATEMENT OF THE ISSUE

102The issue in this proceeding is whether Petitioner ' s

112application for licensure as a child care facility should be

122granted.

123PRELIMINARY STATEM ENT

126By letter dated May 1, 2015, Respondent, Department of

135Children and Families (Respondent, Department , or DCF), advised

143Petitioner, God ' s Little Blessings (Petitioner), that its

152application for licensure as a child care facility was denied.

162The denial was based on Petitioner ' s inability to meet the

174Department ' s licensure standards contained in section 402.310(1),

183Florida Statutes (2015) . Specifically, the Department ' s decision

193was solely based on an abuse/neglect report against Petitioner.

202Petitioner disagreed with the denial and requested a formal

211hearing on May 18, 2015. Thereafter, the case was forwarded to

222the Division of Administrative Hearings.

227At the hearing, Petitioner testified on her own behalf and

237called two additional witnesses. Petitione r did not offer any

247exhibits into evidence. Respondent presented the testimony of

255two witnesses and offered four exhibits into evidence numbered

2641, 3, 5 , and 7 , which were admitted into evidence.

274The final hearin g Transcript was filed on August 31 , 2015.

285After the hearing, Respondent filed a Proposed Recommended Order

294on September 14, 2015. Petitioner did not file a proposed

304recommended o rder.

307FINDING S OF FACT

3111 . Petitioner, God ' s Little Blessings, applied for

321licensure as a child care faci lity on March 23, 2015. The

333application was completed and submitted by Leslie Fudge, the

342owner and proposed operator of the facility. The proposed

351director was Adrienne Wimas (spelling uncertain).

3572. After review of the application, the Department denied

366Pe titioner a child care facility license on May 1, 2015. The

378sole reason for the denial was contained in the Department ' s

390denial letter dated May 1, 2015. The letter stated:

399This letter will serve to advise you that

407your Application . . . is hereb y denied based

417on review of your background screening,

423including the Florida Central Abuse Hotline

429Record Search.

431No other reason for denial was stated in the Department ' s letter.

4443. While not stating the specific facts regarding the

453background scre ening and abuse record search, the evidence

462demonstrated that the denial was based on one confirmed report of

473neglect (Abuse Report 2003 - 031849 - 01) against Ms. Fudge for

485inadequate supervision of resident R.H. , and medical neglect of

494resident s R.G. and J.D . Both incidents occurred at about the

506same time on or about March 5, 2003, while Ms. Fudge was employed

519at Tallahassee Development Center (Center) . The Center provided

528residential and direct care to developmentally disabled residents

536at its facility. A t the time, Ms. Fudge was employed as care

549staff responsible for providing direct one - to - one care to R.H.

562She was not assigned to provide care to R.G. Other than

573Ms. Fudge, no witness with personal knowledge of these incidents

583testified at the hearing. Consequently, many of the statements

592contained in the 2003 abuse report remain hearsay which was not

603corroborated by any competent substantial evidence.

609Additionally, the age of the report, confusing allegations and

618lack of factual basis for its findings of inadequate supervision

628or medical neglect cause the abuse report to be unreliable and

639untrustworthy as evidence. As such, except as found below, the

649report by itself cannot form a basis for denial of Petitioner ' s

662application.

6634. Ms. Fudge was the onl y person who testified at the

675hearing with personal knowledge about the events of March 5,

6852003. She testified, and such testimony is accepted, that on or

696around March 5, 2003, she was not a shift supervisor, but was

708assigned as a direct care aide with " o ne - to - one " supervision of

723R.H . The testimonial evidence from Ms. Fudge and other employees

734of the Center during 2003 demonstrated that Tallahassee

742Developmental Center employees were trained that o ne - to - one

754supervision meant that " the person had always to be watched " and

" 765you could never leave [the person] alone. " There was no

775credible evidence that the person could not be alone in the

786restroom, that the staff assigned to watch the person had to be

798within arm ' s length of the resident , or that such observa tion was

812not varied according to the behavior plan for an individual

822resident. Further , the testimonial evidence showed that staff

830and Ms. Fudge knew R.H. would run away usually to hide in a

843particular office, but occasionally with the police be ing called

853if R.H. were to leave the building and could not be found . The

867evidence did not demonstrate that R.H. behaviorally was

875aggressive or dangerous to others, but only that he would run

886away and hide. Finally, the testimonial evidence showed that the

896facilit y was in the process of trying to wean R.H. off of

909one - to - one supervision by implementing a plan of moving away from

923him and permitting him times of less supervision.

9315. On March 5, 2003, the testimonial evidence demonstrated

940that Ms. Fudge, R.H. , and ot her residents were gathered in the

952living room of the house where they lived . The phone in the

965adjoining office rang and Ms. Fudge answered it. While on the

976phone she could observe R.H. through the window between the

986rooms. At some point, R.H. was sent to go to the restroom. It

999was unclear who sent him. After finishing in the restroom, he

1010did not return to the living room, but " left out of the bathroom "

1023to another office, locked the door and hid behind the desk.

1034Ms. Fudge could see him in the office and called a nurse to bring

1048the key so that the office could be unlocked. At the time, R.H.

1061was not in danger and there was no evidence that demonstrated he

1073was in danger. There was some evidence that another staff person

1084mistakenly may have believed tha t R.H. had left the building.

1095However, the better evidence showed that Ms. Fudge knew where

1105R.H. was, could see R.H. in the room in which he was locked , and

1119that he was not in danger at the time. Given R.H. ' s behavior

1133plan, none of these facts establish neglect by Ms. Fudge in the

1145supervision of R.H.

11486. There was no credible, non - hearsay evidence presented at

1159hearing as to the abuse report ' s allegations regarding resident

1170R.G. or J.D. As such, the Department ' s evidence consisted only

1182of an old unreliabl e abuse report consisting of uncorroborated

1192hearsay about an incident involving R.G. and perhaps J.D. and the

1203testimony of the investigator who had no personal knowledge of

1213the facts regarding the incident or the supervisory policies of

1223the Center.

12257. Given these facts, Respondent has failed to demonstrate

1234that Ms. Fudge neglected, either in supervision or medically,

1243residents who were in her care. In fact, the evidence showed

1254that Petitioner has been caring for and/or supervising people for

1264many years and has the character and capacity to continue to do

1276so. Since the unproven abuse report was the only basis on which

1288the Department based its decision to deny Petitioner ' s

1298application, there was nothing in the record to support its

1308determination that Pet itioner lacked moral character or the

1317ability to safely operate a child care facility. Therefore,

1326Petitioner ' s application for such licensure should be granted.

1336CONCLUSIONS OF LAW

13398 . The Division of Administrative Hearings has jurisdiction

1348over the parti es to and the subject matter of this proceeding.

1360§ 120.57, Fla. Stat. (2015 ).

13669. The Department is the state agency charged with the

1376responsibility of licensing child care facilities under

1383chapter 402, Florida Statutes. The purpose of such licens ure is

1394to " protect, the health, safety, and well - being of all children

1406in the state who are cared for at child care facilities. "

1417§ § 402.301 - 319, Fla. Stat. As a consequence, a child care

1430license is a public trust and not a privilege. However, the

1441Depar tment cannot act unreasonably, arbitrarily , or capriciously

1449in denying requests for child care licensure.

145610. Section 402.302 (1) and (2) broadly define the terms

1466child care and child care facility. The s ection s state :

1478( 1) " Child care " means the ca re, protection,

1487and supervision of a child, for a period of

1496less than 24 hours a day on a regular basis,

1506which supplements parental care, enrichment,

1511and health supervision for the child, in

1518accordance with his or her individual needs,

1525and for which a paym ent, fee, or grant is

1535made for care.

1538(2) " Child care facility " includes any child

1545care center or child care arrangement which

1552provides child care for more than five

1559children unrelated to the operator and which

1566receives a payment, fee, or grant for any of

1575the children receiving care, wherever

1580ope rated, and whether or not operated for

1588profit. The following are not

1593included . . . .

1598Further, sub section (14) defines the term " screening " and states:

1608(14) " Screening " means the act of assessing

1615the background of child care personnel and

1622volunteers and includes, but is not limited

1629to, employment history checks, local criminal

1635records checks through local law enforcement

1641agencies, fingerprinting for all purposes and

1647checks in this subsection, statewide criminal

1653records checks through the Department o f Law

1661Enforcement, and federal criminal records

1666checks through the Federal Bureau of

1672Investigation.

167311. Se ction 402.305 establishes the criteria for the

1682Department ' s licensing standards. It states, in pertinent part:

1692(1) LICENSING STANDARDS. The department

1697shall establish licensing standards that each

1703licensed child care facility must meet

1709regardless of the origin or source of the

1717fees used to operate the facility or the type

1726of children served by the facility.

1732* * *

1735(c) The minimum standards for child care

1742facilities shall be adopted in the rules of

1750the department and shall address the areas

1757delineated in this section.

176112. Section 402.301 requires the Department to establish

1769minimum standards that all child care facilities must meet. The

1779statute provides the following:

1783It is the legislative intent to protect the

1791health, safety, and well - being of the

1799children of the state and to promote their

1807emotional and intellectual development and

1812care. Toward that end:

1816(1) It is the purpose o f ss. 402.301 -

1826402.319 to establish statewide minimum

1831standards for the care and protection of

1838children in child care facilities, to ensure

1845maintenance of these standards, and to

1851approve county administration and enforcemen t

1857to regulate conditions in such facilities

1863through a program of licensing.

1868(2) It is the intent of the Legislature that

1877all owners, operators, and child care

1883personnel shall be of good moral character.

1890Minimum standards for childcare personnel

1895shall inc lude minimum requirements as to:

1902(a) Good moral character based upon

1908screening. This screening shall be conducted

1914as provided in chapter 435, using level 2

1922standards set forth in that chapter.

1928See also , § 402.310, Fla. Stat.

193413 . The Department has adopted rules establishing the

1943qualifications for licensure. See Fla. Admin. Code R. 65C -

195322.008. In general, these rules require an applicant to be able

1964to safely care for children in a clean, healthy , and stable

1975environment.

197614 . Florida has had a child/adult abuse reporting system

1986since approximately 1971. Over the years, the system has gone

1996through several statutory changes and used a variety of

2005terminology to classify these reports. Relevant to this

2013proceeding, i n 1995, c hapter 415 , Flor ida Statutes (1995),

2024provided for the child abuse reporting system in Florida. At the

2035time, the system was known as the central abuse registry and

2046tracking system. Under s ection 415.1075, Florida

2053Statutes (1995) , a process for challenging certain

2060classi fications of abuse reports was provided. This process

2069included a right to an administrative hearing since a person ' s

2081substantial interest could be impacted by an abuse report.

2090Chapter 95 - 228, Laws of Florida, (generally effective October 1,

21011995) changed the name of the abuse registry to the central abuse

2113hotline .

21151 5 . Around 1997, s ection 39.201(4)(a)

2123and (e), Florida Statutes, continued to authorize the central

2132abuse hotline for abuse or neglect related to children and

2142established the uses of the informatio n contained in the hotline.

2153S ec tion 39.201(4)(a) and (e) stated in part:

2162(4)(a) The department shall establish a

2168central abuse hotline to receive all reports

2175made pursuant to this section . . . which any

2185person may use to repo rt known or suspected

2194child abuse, abandonment, or neglect . . . .

2203* * *

2206(e) Information in the central abuse hotline

2213may not be used for employment screening.

2220Access to the information shall only be

2227granted as set forth in s. 415.51.

22341 6 . In 1 998, s ection 39.201(4)(e) was renumbered as

2246subsection (6) and amended to state:

2252(6) Information in the central abuse hotline

2259may not be used for employment screening,

2266except as provided in s. 39.202(2)(a)

2272and (h). Information in the central abuse

2279hotl ine and the department ' s automated abuse

2288information system may be used by the

2295department, its authorized agents or contract

2301providers, the Department of Health, or

2307county agencies as part of the licensure or

2315registration process pursuant to ss. 402.301 -

232240 2.319 and ss. 409.175 - 409.176.

2329During these years c hapter 415 provided similar abuse registry

2339provisions for adults. On the adult protection side,

2347s ec tion 415.1075 continued to provide the name - clearing hearing

2359requirements for persons whose substanti al interests were

2367impacted by these reports. There was no such provision on the

2378chil d protection side contained in c hapter 39.

23871 7 . Chapter 2000 - 349, Laws of Florida, repealed

2398s e ction 415.1075 . However, what is clear from these various

2410amendments i s that the right to an administrative name - clearing

2422hearing on verified abuse reports was no longer available , since

2432no substantial interest of a person involved in the report was

2443impacted by the maintenance of such a report and the reports, by

2455themselves, did not constitute competent evidence in an

2463administrative hearing. If the reports were given such an

2472effect, such reports wou ld clearly involve a substantial interest

2482of a licensee or potential licensee and would be subject to

2493challeng e under c hapter 12 0 . Thus, the use by the Department of

" 2508information " in the central abuse hotline is of limited value in

2519the licensure process when that information is challenged and a

2529formal administrative hearing is sought. In those cases , the

2538Department must produce e vidence of the underlying facts

2547cont ained in a confirmed report. See Springston v. Dep ' t of

2560Child. and Fam. S ervs. , Case No. 02 - 1346 ( Fla. DOAH Aug. 30,

25752002; Fla. DCF Dec. 18, 2002 ).

25821 8 . In this case, the Department denied Petitioner ' s

2594application based upon the information revealed in its background

2603screening of Petitioner. Th e background screening document upon

2612which the Department relied consisted of one report from the

2622central abuse r egistry completed in 2003 .

263019 . As an applicant , Petitio ner must adhere to licensin g

2642standards established by Respondent under authority set forth in

2651s ection 402.305 and has the burden to establish by a

2662preponderance of the evidence entitlement to such license . See

2672Fla. Dep ' t of Transp. v. J.W. C., Co. , 396 So. 2d 778 (Fla. 1st

2688DCA 1981). However, the Dep artment has the burden to establish

2699by a preponderance of the evidence that Petitioner was guilty of

2710negl ect as reflected in the central abuse registry report.

2720Sprin g ston , supra .

272520 . To satisfy her burden, Pe titioner was not required to

2737address the constellation of factors relevant to licensure ;

2745rather, the scope of the hearing was limited to the particular

2756concerns identified in the Department ' s denial letter. See M.H.

2767v. Dep ' t of Child. & Fam. Servs. , 977 S o. 2d 755, 757 - 758 (Fla.

27852d DCA 2008) (remanding with instructions to adopt the ALJ ' s

2797Recommended Order, which correctly limited the scope of the

2806administrative hearing to the Department ' s reasons for denial);

2816L.J. v. Dep ' t of Child. & Fams. , Case No. 13 - 4666 (Fla. DOAH

2832Aug. 25, 2014) (observing that applicant was required to address

2842only those issues or concerns raised in the notice of intent to

2854deny).

28552 1 . In this case, Respondent has failed to demonstrate that

2867Ms. Fudge neg lected person s placed in he r care. Since the

2880unproven abuse report was the only basis on which the Department

2891based its decision to deny Petitioner ' s application, there was

2902nothing in the record to support its determination that

2911Petitioner lacked moral character or the ability to s afely

2921operate a child care facility. Further, the evidence showed that

2931Petitioner has been caring for and/or supervising people for many

2941years and has the character and capacity to continue to do so.

2953Given these facts, Petitioner ' s application for licens ure as a

2965child care facility should be granted.

2971RECOMMENDATION

2972Based on the foregoing Findings of Fact and Conclusions of

2982Law, it is :

2986RECOMMENDED that Petitioner ' s application for licensure as a

2996child care facility is granted.

3001DONE AND ENTERED this 2nd day of November , 2015 , in

3011Tallahassee, Leon County, Florida.

3015S

3016DIANE CLEAVINGER

3018Administrative Law Judge

3021Division of Administrative Hearings

3025The DeSoto Building

30281230 Apalachee Parkway

3031Tallahassee, Florida 32399 - 3060

3036(850) 488 - 9675

3040Fax Filing (850) 921 - 6847

3046www.doah.state.fl.us

3047Filed with the Clerk of the

3053Division of Administrative Hearings

3057this 2nd day of November , 2015 .

3064COPIES FURNISHED:

3066Paul Sexton , Agency Clerk

3070Department of Children and Families

30751317 Winewood Boulevard , Building 2, Suite 204

3082Tallahassee, Florida 32399 - 0700

3087(eServed)

3088Camille Larson, Esquire

3091Department of Children and Families

30962383 Phillips Road

3099Tallahassee, Florida 32308

3102(eServed)

3103Leslie Fudge

3105God ' s Little Blessings

3110Apartment F - 8

3114216 Dixie D rive

3118Tallahassee, Florida 32304

3121Michael Andrew Lee, Esquire

3125Department of Children and Families

31302383 Phillips Road, Room 231

3135Tallahassee, Florida 32308 - 5333

3140(eServed)

3141Rebecca Kapusta, General Counsel

3145Department of Children and Families

31501317 Winewood Bo ulevard, Building 2, Room 204

3158Tallahassee, Florida 32399 - 0700

3163(eServed)

3164Mike Carroll, Secretary

3167Department of Children and Families

31721317 Winewood Boulevard, Building 1, Room 202

3179Tallahassee, Florida 32399 - 0700

3184(eServed)

3185NOTICE OF RIGHT TO SUBMIT EXCEP TIONS

3192All parties have the right to submit written exceptions within

320215 days from the date of this Recommended Order. Any exceptions

3213to this Recommended Order should be filed with the agency that

3224will issue the Final Order in this case.

Select the PDF icon to view the document.
PDF
Date
Proceedings
PDF:
Date: 12/17/2015
Proceedings: Agency Final Order filed.
PDF:
Date: 12/16/2015
Proceedings: Agency Final Order
PDF:
Date: 12/03/2015
Proceedings: Letter from Leslie Fudge regarding case filed.
PDF:
Date: 12/03/2015
Proceedings: Letter to Judge Cleavinger from Leslie Fudge regarding case filed.
PDF:
Date: 11/02/2015
Proceedings: Recommended Order
PDF:
Date: 11/02/2015
Proceedings: Recommended Order (hearing held August 17, 2015). CASE CLOSED.
PDF:
Date: 11/02/2015
Proceedings: Recommended Order cover letter identifying the hearing record referred to the Agency.
PDF:
Date: 09/14/2015
Proceedings: Respondent's Proposed Recommended Order filed.
Date: 08/31/2015
Proceedings: Transcript of Proceedings (not available for viewing) filed.
PDF:
Date: 08/17/2015
Proceedings: Return of Service filed.
Date: 08/17/2015
Proceedings: CASE STATUS: Hearing Held.
PDF:
Date: 08/13/2015
Proceedings: Return of Service filed.
PDF:
Date: 08/10/2015
Proceedings: Respondents Witness and Exhibit List filed.
PDF:
Date: 07/08/2015
Proceedings: Order of Pre-hearing Instructions.
PDF:
Date: 07/08/2015
Proceedings: Notice of Hearing (hearing set for August 17, 2015; 9:30 a.m.; Tallahassee, FL).
PDF:
Date: 06/15/2015
Proceedings: Joint Response to Initial Order filed.
PDF:
Date: 06/15/2015
Proceedings: Notice of Appearance (Michael Lee) filed.
PDF:
Date: 06/08/2015
Proceedings: Initial Order.
PDF:
Date: 06/05/2015
Proceedings: Request for Administrative Hearing filed.
PDF:
Date: 06/05/2015
Proceedings: Denial of Application for a License to Operate a Child Care Facility filed.
PDF:
Date: 06/05/2015
Proceedings: Notice (of agency referral) filed.

Case Information

Judge:
DIANE CLEAVINGER
Date Filed:
06/05/2015
Date Assignment:
06/08/2015
Last Docket Entry:
12/17/2015
Location:
Tallahassee, Florida
District:
Northern
Agency:
ADOPTED IN TOTO
 

Counsels

Related DOAH Cases(s) (1):

Related Florida Statute(s) (12):

Related Florida Rule(s) (1):