99-002922 Palm Beach County School Board vs. Ramona Wright
 Status: Closed
Recommended Order on Friday, June 2, 2000.


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Summary: Teacher`s contract was wrongfully terminated where the decision of the Commissioner of Education to deny her application for temporary certification was under challenge and not final.

1STATE OF FLORIDA

4DIVISION OF ADMINISTRATIVE HEARINGS

8PALM BEACH COUNTY SCHOOL BOARD, )

14)

15Petitioner, )

17)

18vs. ) Case No. 99-2922

23)

24RAMONA WRIGHT, )

27)

28Respondent. )

30__________________________________)

31RECOMMENDED ORDER

33Pursuant to notice, the Division of Administrative

40Hearings, by its duly-designated Administrative Law Judge,

47William J. Kendrick, held a formal hearing in the above-styled

57case on May 8, 2000, by video teleconference, with sites in

68Tallahassee and West Palm Beach, Florida.

74APPEARANCES

75For Petitioner: Glen J. Torcivia, Esquire

81Glen J. Torcivia, P.A.

851800 Australian Avenue, South

89Suite 205

91West Palm Beach, Florida 33409

96For Respondent: Mark Herdman, Esquire

101Herdman and Sakellarides

1042595 Tampa Road

107Palm Harbor, Florida 34684

111STATEMENT OF THE ISSUE

115At issue in this proceeding is whether, as alleged in the

126Amended Administrative Complaint, Respondent's application for a

133temporary teacher's certificate was denied and, consequently, her

141dismissal from employment as an elementary school teacher with

150the Palm Beach County School Board was proper.

158PRELIMINARY STATEMENT

160By letter of April 27, 1999, the Palm Beach County School

171Board (School Board) dismissed Respondent from her employment as

180a elementary school teacher, effective April 28, 1999, based on

190its conclusion that her application for a temporary teacher's

199certificate had been denied and, consequently, her termination

207was proper. Such letter did not provide notice or an

217opportunity to request a pre-termination hearing.

223Subsequently, by letter of June 21, 1999, Respondent's

231counsel advised the School Board that Respondent denied there

240was any basis to support the action taken in the letter of

252termination, and demanded a hearing pursuant to Section

260120.57(1), Florida Statutes, before the Division of

267Administrative Hearings. In response, the School Board filed an

276administrative complaint which formally sought Respondent's

282dismissal from employment, based on the denial of her

291application for a temporary teacher's certificate by the

299Commissioner of Education, and forwarded the matter to the

308Division of Administrative Hearings for the assignment of an

317administrative law judge to conduct the hearing Respondent had

326requested. The School Board's complaint was later amended, but

335its gravamen remained the same.

340At hearing, the Petitioner (School Board) called Respondent

348and Marion Weil as witnesses, and Petitioner's Exhibits 1-7 were

358received into evidence. Respondent called no additional

365witnesses and offered no additional exhibits.

371A transcript of the hearing was filed May 16, 1999, and the

383parties were accorded 10 days from that date to file proposed

394recommended orders. The parties elected to file such proposals

403and they have been duly considered.

409FINDINGS OF FACT

4121. On or about August 14, 1998, Respondent, Ramona Wright,

422received a Statement of Academic Eligibility (Statement of

430Eligibility) for elementary education (grades 1-6) from the

438Florida Department of Education. The Statement of Eligibility

446was valid until July 29, 2000, and (consistent with Rule 6A-

4574.004, Florida Administrative Code,) provided, as follows:

465The State of Florida issues two types of

473certificates for full-time teaching, a

478nonrenewable Temporary Certificate valid for

483two years and a Professional Certificate

489valid for five years . . . The Temporary

498Certificate is issued to allow time to

505complete requirements for the Professional

510Certificate.

511Your application for teacher certification

516has been received and evaluated. Based upon

523current requirements, you will be eligible

529for a two-year nonrenewable Temporary

534Certificate valid for two consecutive school

540fiscal years covering Elementary Education

545when:

546You obtain employment with a Florida

552public, state supported, or nonpublic school

558which has an approved system for documenting

565the demonstration of required professional

570education competence. Your employer must

575request issuance of your certificate.

580Your employer submits a fingerprint

585card which as been processed by the Florida

593Department of Law Enforcement and the

599Federal Bureau of Investigation. If your

605fingerprint report reflects an arrest

610record, your file will be referred to

617Professional Practices Services for further

622review. Issuance of your certificate will

628be contingent upon the results of this

635review . . . .

6402. Given her eligibility, Respondent was employed by the

649Palm Beach County School Board (School Board) as an elementary

659school teacher on August 20, 1998, and, consistent with the

669provisions of her Statement of Eligibility, an application was

678submitted to the Florida Department of Education (Department of

687Education) for a temporary certificate. Pertinent to this case,

696the annual contract of employment under which Respondent was

705employed, provided as follows:

709This contract is conditioned and based on

716the assertions by the Employee:

721* * *

724(2) That the Employee has completed the

731requirements and will be legally qualified

737to teach in the State of Florida upon

745issuance of a Florida teacher's certificate,

751for which application has been duly made as

759evidenced by the official receipt and

765acknowledgment recorded in the office of the

772Superintendent, bearing Department of

776Education file number cited above. In the

783event that such application is denied, the

790Employee agrees that the School Board shall

797be relieved of all obligation under this

804provision.

8053. By letter of April 1, 1999, Tom Gallagher, Commissioner

815of Education, Department of Education, advised Respondent that

823her application for a temporary teacher's certificate was

831denied. 1/ Specifically, the letter stated:

837Dear Ms. Wright:

840Your application for a Florida Teacher's

846Certificate has been carefully considered by

852the Department of E ducation and, for the

860reasons stated in the Notice of Reasons,

867your application is hereby DENIED pursuant

873to Section 231.17(5), Florida Statutes,

878which states in pertinent part:

"883The Department of Education is

888authorized to deny an applicant a

894certificate if it possesses evidence

899satisfactory to it that the applicant

905has committed an act or acts or that a

914situation exists for which the

919Education Practices Commission would

923be authorized to revoke a teaching

929certificate."

930You may appeal the certificate denial by

937following the Florida Administrative

941Procedures Act and Rule 6B-11.005 of the

948Florida Administrative Code. If you want to

955appeal the Department's decision, you have

961TWENTY (20) DAYS from the date this Notice

969of Denial is RECEIVED to fill in and FILE an

979Election of Rights Notice of Appeal with the

987Office of Professional Practices Services .

993. . .

996The reasons stated in the Notice of Reasons were as follows:

1007The Department of Education files and serves

1014upon the Applicant, RAMONA BIANCA WRIGHT,

1020its Notice of Reasons for its denial in

1028accordance with the provisions of Section

1034120.60, Florida Statutes, and as grounds

1040therefore, alleges:

1042On or about July 23, 1995, Applicant was

1050involved in an altercation with a tenant of

1058rental property owned by Applicant and her

1065family. Applicant yelled at the tenant,

1071struck a police officer and smashed some the

1079tenant's dishes. Applicant then refused the

1085request of the police to leave the area.

1093Applicant was arrested and charged with

1099Disorderly Conduct, Battery and Criminal

1104Mischief. On or about October 10, 1996,

1111Respondent pled Not Guilty to the charges.

1118The court withheld adjudication to the

1124charge of Disorderly Conduct, found

1129Applicant Not Guilty of the Battery charge

1136and Nolle Prosequi the remaining charge.

1142The Department of Education charges:

1147STATEMENT OF VIOLATIONS

1150COUNT 1: The applicant is in violation

1157of Section 231.17(3)(c)6., Florida Statutes,

1162which requires that the holder of a Florida

1170Educator's Certificate be of good moral

1176character.

1177COUNT 2: The applicant is in violation

1184of Section 231.17(5)(a), Florida Statutes,

1189which provides that the Department of

1195Education is authorized to deny an Applicant

1202an educator's certificate if it possesses

1208evidence satisfactory to it that the

1214Applicant has committed an act or acts or

1222that a situation exists for which the

1229Education Practices Commission would be

1234authorized to revoke a teaching certificate.

1240COUNT 3: The Applicant is in violation

1247of Section 231.28(1)(c), Florida Statutes,

1252in that she has been guilty of gross

1260immorality or an act involving moral

1266turpitude.

1267WHEREFORE, the undersigned concludes

1271that RAMONA BIANCA WRIGHT has committed an

1278act or acts or that a situation exists for

1287which the Education Practices Commission

1292would be authorized to revoke an educator's

1299certificate. It is therefore, respectfully

1304recommended that the Education Practices

1309Commission affirm the Department of

1314Education's denial of the issuance of a

1321teaching certificate to the Applicant based

1327upon the reasons set forth herein, in

1334accordance with the Explanation of Rights

1340form which is attached to and made a part of

1350this Notice of Reasons.

1354Respondent timely filed an election of rights and requested a

1364formal hearing of the Education Practices Commission to contest

1373the C ommissioner's decision to deny her application. Section

1382231.17(10), Florida Statutes.

13854. On April 27, 1999, notwithstanding the pendency of

1394Respondent's challenge to the Commissioner's decision and

1401without inquiry of her regarding the status of that matter, the

1412School Board advised Respondent that her employment was

1420terminated. Specifically, the letter of termination stated:

1427Dear Ms. Wright:

1430Please be advised that the School District

1437of Palm Beach County has received

1443notification from the Florida Department of

1449Education (DOE) that your application for a

1456teaching certificate was denied pursuant to

1462Section 231.17(5), Florida Statutes. As a

1468result, your last day of employment with the

1476district is Wednesday, April 28, 1999.

1482Until such time as there is a change in your

1492certification status, you are ineligible for

1498teaching as well as coaching assignments.

1504As you are aware, you have the right to

1513appeal the DOE's decision to deny your

1520application for certification, as outlined

1525in the April 1st letter from the

1532Commissioner of Education. Should you have

1538questions or need clarification regarding

1543the above matter, please contact me at (561)

1551434-8043. We regret such action is

1557necessary and hope you are successful in

1564your pursuit of other employment

1569opportunities.

1570Consistent with the terms of the letter, Respondent's last day

1580of employment was April 28, 1999, a number of weeks prior to the

1593end of the school year and her contractual term of employment.

16045. Respondent's administrative challenge to the

1610Commissioner's decision to deny her application for a temporary

1619certificate was resolved, as between Respondent and the

1627Commissioner of Education, subject to the approval of the

1636Education Practices Commission, by a Settlement Agreement dated

1644September 10, 1999, wherein it was agreed, inter alia , that the

1655Commissioner would issue Respondent the certificate she had

1663applied for. (Petitioner's Exhibit 3) The agreement was

1671subsequently approved by the Education Practices Commission in

1679late October 1999, and Respondent was issued her teacher's

1688certificate in November 1999.

1692CONCLUSIONS OF LAW

16956. The Division of Administrative Hearings has

1702jurisdiction over the parties to and the subject matter of these

1713proceedings. Sections 120.569 and 120.57(1), Florida Statutes.

17207. Pertinent to this case, Chapter 231, Florida Statutes,

1729provides:

1730231.02 Qualifications of personnel.-

1734(1) To be eligible for appointment in any

1742position in any district school system, a

1749person shall be of good moral character;

1756shall have attained the age of 18 years, if

1765he or she is to be employed in an

1774instructional capacity; and shall, when

1779required by law, hold a certificate or

1786license issued under rules of the State

1793Board of Education . . . .

1800(2)(a) Instructional and noninstructional

1804personnel who are hired to fill positions

1811requiring direct contact with students in

1817any district school system or laboratory

1823school shall, upon employment, file a

1829complete set of fingerprints taken by an

1836authorized law enforcement officer or an

1842employee of the school or district who is

1850trained to take fingerprints. These

1855fingerprints shall be submitted to the

1861Department of Law Enforcement for state

1867processing and to the Federal Bureau of

1874Investigation for federal processing. Such

1879new employees shall be on probationary

1885status pending fingerprint processing and

1890determination of compliance with standards

1895of good moral character. Employees found

1901through fingerprint processing to have been

1907convicted of a crime involving moral

1913turpitude shall not be employed in any

1920position requiring direct contact with

1925students. 2/ Probationary employees

1929terminated because of their criminal record

1935shall have the right to appeal such

1942decisions . . . .

1947231.15 Positions for which certificates

1952required.-

1953(1) The State Board of Education shall

1960classify school services, designate the

1965certification subject areas, establish

1969competencies, including the use of

1974technology to enhance student learning, and

1980certification requirements for all school-

1985based personnel, and prescribe rules in

1991accordance with which the professional,

1996temporary, and part-time certificates shall

2001be issued by the Department of Education to

2009applicants who meet the standards prescribed

2015by such rules for their class of

2022service . . . Each person employed or

2030occupying a position as school supervisor,

2036principal, teacher, library media

2040specialist, school counselor, athletic

2044coach, or other position in which the

2051employee serves in an instructional

2056capacity, in any public school of any

2063district of this state shall hold the

2070certificate required by law and by rules of

2078the state board in fulfilling the

2084requirements of the law for the type of

2092service rendered . . . .

2098231.17 Official statements of eligibility

2103and certificates granted on application to

2109those meeting prescribed requirements.-

2113(1) APPLICATION.-Each person seeking

2117certification pursuant to this chapter shall

2123submit a completed application to the

2129Department of Education . . . . Pursuant to

2138s. 120.60, the Department of Education shall

2145issue within 90 calendar days after the

2152stamped receipted date of the completed

2158application an official statement of

2163eligibility for certification or a

2168certificate covering the classification,

2172level, and area for which the applicant is

2180deemed qualified.

2182(2) STATEMENT OF ELIGIBILITY.-The

2186statement of eligibility must advise the

2192applicant of the qualifications that must be

2199completed to qualify for the temporary or

2206professional certificate sought. Each

2210statement of eligibility is valid for 2

2217years after its date of issuance and may be

2226reissued for one additional 2-year period if

2233application is made while the initial

2239statement of eligibility is valid or within

22461 year after the initial statement expires.

2253(3) TEMPORARY CERTIFICATE.-

2256(a) The department shall issue a

2262temporary certificate to any applicant who

2268submits satisfactory evidence of possessing

2273the qualifications for such a certificate as

2280prescribed by this chapter and by rules of

2288the state board. Each temporary certificate

2294is valid for 2 years after the date of its

2304issuance and is nonrenewable, except as

2310otherwise provided in subsection (6) . . . .

2319* * *

2322(10) DENIAL OF CERTIFICATE.-

2326(a) The Department of Education may deny

2333an applicant a certificate if the department

2340possesses evidence satisfactory to it that

2346the applicant has committed an act or acts,

2354or that a situation exists, for which the

2362Education Practices Commission would be

2367authorized to revoke a teaching certificate.

2373(b) The decision of the Department of

2380Education is subject to review by the

2387Education Practices Commission upon the

2392filing of a written request from the

2399applicant within 20 days after receipt of

2406the notice of denial.

24108. Also pertinent to this case are the rules of the State

2422Board of Education relating to temporary certificates. Among

2430other things, the rule requires, as a condition of issuance of a

2442temporary certificate, that the applicant provide "verification

2449of full-time employment in a Florida public . . . school which

2461has an approved Florida provisional orientation program." Rule

24696A-4.004(2), Florida Administrative Code.

24739. Based on her Statement of Eligibility, the School Board

2483employed Respondent as an elementary school teacher, and she

2492taught while her application for a temporary certificate was

2501pending; however, the contract of employment expressly provided

2509that "[i]n the event that such application is denied, the

2519Employee [Respondent] agrees that the School Board shall be

2528relieved of all obligation under this [agreement; and

2536Respondent's employment may be terminated]". Respondent's

2543employment was consistent with the Statement of Eligibility she

2552received from the Department of Education, the provisions of

2561Rule 6A-4.004(2), Florida Administrative Code, and the School

2569Board's accepted practice, 3/ and the terms of the contract

2579regarding termination were clear and unambiguous.

258510. Here, the School Board contends it was authorized to

2595terminate Respondent's employment (under the terms of the annual

2604contract) when the Commissioner of Education, by letter of

2613April 1, 1999, denied her application for temporary

2621certification. Respondent is of the opinion that, given her

2630timely challenge of the Commissioner's decision, there was no

2639change in the status of her application; it remained pending and

2650not denied. Consequently, until the matter was formally

2658resolved, Respondent contends the School Board could not, based

2667on a claim that her application was denied, terminate her

2677employment. Respondent's position has merit.

268211. Section 120.60(3), Florida Statutes, provides that an

2690agency, such as the Department of Education, must provide notice

2700of its licensure decision, as follows:

2706(3) Each applicant shall be given written

2713notice either personally or by mail that the

2721agency intends to grant or deny, or has

2729granted or denied, the application for

2735license. The notice must state with

2741particularity the grounds or basis for the

2748issuance or denial of the license, except

2755when issuance is a ministerial act . . .

2764Each notice shall inform the recipient of

2771the basis for the agency decision, shall

2778inform the recipient of any administrative

2784hearing pursuant to ss. 120.569 and 120.57

2791or judicial review pursuant to s. 120.68

2798which may be available, shall indicate the

2805procedure which must be followed, and shall

2812state the applicable time limits . . . .

282112. Consistent with the mandate of Section 120.60(3),

2829Florida Statutes, the Department of Education gave Respondent

2837notice of her right to seek review of its decision, and

2848Respondent exercised that right. Consequently, until resolved

2855consistent with the Administrative Procedures Act, the

2862Department of Education's decision could, at best, be described

2871as proposed. See Department of Health and Rehabilitative

2879Services v. Barr , 359 So. 2d 503 (Fla. 1st DCA 1978)(The essence

2891of chapter 120 proceedings is to give a person whose substantial

2902interests have been determined by an agency action, an

2911opportunity to attack the agency's position by appropriate

2919means, subject to judicial review under section 120.68, Florida

2928Statutes.) See also Groves Watkins Constructors vs. Department

2936of Transportation , 511 So. 2d 323 (Fla. 1st DCA 1987)(One of the

2948proper purposes for a section 120.57 proceeding is to allow

2958persons affected by intended decisions of state agencies to

2967change the agency's mind.) Consequently, the School Board

2975improvidently terminated Respondent's employment on April 28,

29821999.

2983RECOMMENDATION

2984Based on the foregoing Findings of Fact and Conclusions of

2994Law, it is

2997RECOMMENDED that a final order be entered consistent with

3006the foregoing Findings of Fact and Conclusions of Law, and which

3017accords Respondent all benefits due under her annual contract of

3027employment that was wrongfully terminated.

3032DONE AND ENTERED this 2nd day of June, 2000, in

3042Tallahassee, Leon County, Florida.

3046___________________________________

3047WILLIAM J. KENDRICK

3050Administrative Law Judge

3053Division of Administrative Hearings

3057The DeSoto Building

30601230 Apalachee Parkway

3063Tallahassee, Florida 32399-3060

3066(850) 488-9675 SUNCOM 278-9675

3070Fax Filing (850) 921-6847

3074www.doah.state.fl.us

3075Filed with the Clerk of the

3081Division of Administrative Hearings

3085this 2nd day of June, 2000.

3091ENDNOTES

30921/ There is no explanation of record for the inordinate time the

3104Department of Education took to consider Respondent's

3111application.

31122/ Respondent was not convicted of any crime and there was no

3124statutory mandate against her continued employment in a position

3133requiring direct contact with students.

31383/ At hearing, the School Board offered proof that,

3147historically, the School Board had thirteen individuals with

3155similar circumstances as Respondent and in each instance the

3164person's employment with the School Board was terminated from the

3174moment the School Board was notified that the educator's

3183certificate was denied regardless of whether an appeal (request

3192for formal hearing) had been filed. Such testimony clearly

3201speaks to the acceptability of the manner in which Respondent was

3212employed (pending certification). As for the School Board's

3220practice of terminating employment regardless of the pendency of

3229a challenge to the denial of certification, it can only be said,

3241for reasons that follow, that the School Board has been

3251consistently wrong.

3253COPIES FURNISHED:

3255Dr. H. Benjamin Marlin, Superintendent

3260Palm Beach County School Board

3265Office of the General Counsel

32703340 Forest Hill Boulevard

3274Suite C-316

3276West Palm Beach, Florida 33406-5869

3281Tom Gallagher, Commissioner of Education

3286Department of Education

3289The Capitol, Plaza Level 08

3294Tallahassee, Florida 32399-0400

3297Glen J. Torcivia, Esquire

3301Glen J. Torcivia, P.A.

33051800 Australian Avenue, South

3309Suite 205

3311West Palm Beach, Florida 33409

3316William L. Reitz, Esquire

3320Palm Beach County School Board

3325Office of the General Counsel

33303318 Forest Hill Boulevard

3334Suite C-302

3336West Palm Beach, Florida 33406

3341Mark Herdman, Esquire

3344Herdman and Sakellarides

33472595 Tampa Road

3350Palm Harbor, Florida 34684

3354Thomas L. Johnson, Esquire

3358Chamblee & Johnson, P.A.

3362709 West Azeele Street

3366Tampa, Florida 33606

3369NOTICE OF RIGHT TO SUBMIT EXCEPTIONS

3375All parties have the right to submit written exceptions within

338515 days from the date of this Recommended Order. Any exceptions

3396to this Recommended Order should be filed with the agency that

3407will issue the Final Order in this case.

Select the PDF icon to view the document.
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Date
Proceedings
Date: 06/19/2000
Proceedings: Petitioner`s Motion for Extension of Time filed.
PDF:
Date: 06/02/2000
Proceedings: Recommended Order
PDF:
Date: 06/02/2000
Proceedings: Recommended Order sent out. CASE CLOSED. Hearing held 05/08/2000.
Date: 05/30/2000
Proceedings: Petitioner`s Notice of Supplemental Authority (filed via facsimile).
Date: 05/26/2000
Proceedings: Respondent`s Proposed Findings of Fact and Conclusion of Law filed.
Date: 05/26/2000
Proceedings: (Petitioner) Proposed Findings of Fact and Conclusions of Law w/diskette filed.
Date: 05/16/2000
Proceedings: Transcript of Proceedings ; Condensed Transcript and Concordance filed.
Date: 05/09/2000
Proceedings: CASE STATUS: Hearing Held.
Date: 02/29/2000
Proceedings: Notice of Video Hearing sent out. (hearing set for May 9, 2000; 9:00 a.m.; West Palm Beach and Tallahassee, FL)
Date: 02/14/2000
Proceedings: (G. Torcivia) Status Report (filed via facsimile).
Date: 02/03/2000
Proceedings: Order Granting Continuance sent out. (Parties to advise status by February 14, 2000.)
Date: 02/02/2000
Proceedings: (William Reitz) Notice of Appearance and Substitution of Counsel (filed via facsimile).
Date: 02/01/2000
Proceedings: Petitioner`s Unopposed Motion for Continuance (filed via facsimile).
Date: 01/26/2000
Proceedings: Order Granting Continuance and Re-scheduling Hearing by Video Teleconference sent out. (hearing set for February 7, 2000; 9:00 a.m.; West Palm Beach, FL)
Date: 01/18/2000
Proceedings: Petitioner`s Motion for Continuance (filed via facsimile).
Date: 11/30/1999
Proceedings: Notice of Video Hearing sent out. (hearing set for January 28, 2000; 9:00 a.m.; and Tallahassee, FL)
Date: 10/06/1999
Proceedings: Order Granting Motion to Amend and Granting Continuance sent out. (hearing cancelled, parties to advise status by 10/25/1999)
Date: 10/06/1999
Proceedings: (T. Elfers) Notice of Filing; Amended Administrative Complaint filed.
Date: 10/05/1999
Proceedings: (2) Petitioner`s Motion to Amend Administrative Complaint; Amended Administrative Complaint (unsigned) (filed via facsimile).
Date: 07/30/1999
Proceedings: Notice of Hearing by Video sent out. (Video Hearing set for 9:00 a.m.; West Palm Beach & Tallahassee; 10/8/99)
Date: 07/22/1999
Proceedings: Respondent`s Answer to Administrative Complaint (filed via facsimile).
Date: 07/20/1999
Proceedings: Joint Response to Initial Order (filed via facsimile).
Date: 07/15/1999
Proceedings: (T. Elfers) Notice of Appearance and Substitution of Counsel (filed via facsimile).
Date: 07/08/1999
Proceedings: Initial Order issued.
Date: 07/07/1999
Proceedings: Agency Referral Letter; Agency Action Letter; Administrative Complaint; Notice of Reasons (filed via facsimile).

Case Information

Judge:
WILLIAM J. KENDRICK
Date Filed:
07/07/1999
Date Assignment:
07/08/1999
Last Docket Entry:
06/19/2000
Location:
West Palm Beach, Florida
District:
Southern
Agency:
County School Boards
 

Related DOAH Cases(s) (1):

Related Florida Statute(s) (4):

Related Florida Rule(s) (1):