88-006439
Robert Pereira vs.
Department Of Law Enforcement
Status: Closed
Recommended Order on Wednesday, July 5, 1989.
Recommended Order on Wednesday, July 5, 1989.
1STATE OF FLORIDA
4DIVISION OF ADMINISTRATIVE HEARINGS
8ROBERT PEREIRA, )
11)
12Petitioner, )
14)
15and )
17)
18METROPOLITAN DADE COUNTY, )
22)
23Intervenor, )
25)
26vs. ) CASE NO. 88-6439
31)
32FLORIDA DEPARTMENT OF LAW )
37ENFORCEMENT, )
39)
40Respondent. )
42___________________________________)
43RECOMMENDED ORDER
45Pursuant to notice, the Division of Administrative Hearings, by its duly
56designated Hearing Officer, Claude B. Arrington, held a formal hearing in the
68above-styled case on April 10, 1989, in Miami, Florida.
77APPEARANCES
78For Petitioner: Donald D. Slesnick, III, Esquire
8510680 N.W. 25 Street
89Miami, Florida 33172
92For Respondent: Joseph S. White, Esquire
98Assistant General Counsel
101Florida Department of Law Enforcement
106Post Office Box 1489
110Tallahassee, Florida 33202
113For Intervenor: Lee Kraftchick, Esquire
118Assistant County Attorney
121in and for Dade County
126Metro Dade Center
129111 N.W. 1st Street, Suite 2810
135Miami, Florida 33128
138STATEMENT OF THE ISSUES
142At issue in this proceeding is whether Petitioner possesses the requisite
153good moral character for certification as a correctional officer.
162PRELIMINARY STATEMENT
164The record in the instant case consists of the testimony and exhibits
176offered at the hearing held on April 10, 1989, as well as the generic record
191developed during the course of hearing on April 3-4, 1989. At the hearing held
205April 10, 1989, Petitioner testified on his own behalf and called three
217additional witnesses. Petitioner introduced 15 documentary exhibits which were
226accepted into evidence. Respondent called no witnesses and offered one
236documentary exhibit which was received into evidence pursuant to stipulation of
247the parties.
249A generic record was developed because this case is one of a series of
263formal hearings heard on a docked which began April 3, 1989. Certain evidence,
276which pertains to this case as well as almost all of the other cases on the
292docket, was heard by Hearing Officer William J. Kendrick on April 3 and 4, 1989.
307This generic evidence will be considered as part of the record of this case by
322stipulation of the parties and by order of Hearing Officer Kendrick. The
334generic record consisted of the testimony of two witnesses called by the
346Intervenor, the testimony of one witness called by Respondent, and the testimony
358of two witnesses called by Petitioner. Documentary evidence was received into
369evidence as follows: Hearing Officer's Exhibits 1-38; Respondent's Composite
378Exhibit 1, and Petitioner's Exhibit 1. The only documentary exhibit not
389accepted into evidence was marked for identification purposes as Intervenor's
399Exhibit 1.
401Metropolitan Dade County, Intervenor, participated in the presentation of
410the generic evidence on April 3 and 4, 1989, and submitted a post hearing brief
425in this case, but did not otherwise participate or appear at the formal hearing
439on April 10, 1989.
443At the parties' request, a deadline was established for filing proposed
454findings of fact or other post hearing submissions that was more than ten days
468after the filing of the transcript in May. Consequently, the parties waived the
481requirement that a recommended order be rendered within thirty days after the
493transcript is filed. Rule 221-6.031, Florida Administrative Code. The parties'
503proposed findings have been addressed in the appendix to this recommended order.
515FINDINGS OF FACT
518Background
5191. In June 1988, Respondent, Florida Department of Law Enforcement,
529Criminal Justice Standards and Training Commission, acting on a tip from local
541media that intervenor, Metropolitan Dade County, Department of Corrections and
551Rehabilitation (Metro Dade Corrections), had in its employ a number of
562correctional officers who were not certified, undertook a review of the
573employment records of Metro Dade Corrections. As a result of this review,
585Respondent identified 363 individuals, including Petitioner, who were employed
594by Metro Dade Corrections as correctional officers but who had not been
606certified by Respondent.
6092. On August 10-11, 1988, personnel employed by Respondent visited the
620Metro Dade Corrections personnel office and audited the personnel file
630maintained by Metro Dade Corrections of each of the 363 individuals in question,
643including Petitioner's personnel file. The audit demonstrated that the files
653were disorganized, lacking documentation required by Rule 11B-27.002, Florida
662Administrative Code, to apply for certification, and that Metro Dade Corrections
673had failed to apply for certification on behalf of the 363 officers.
6853. Over the course of their two-day visit, employees of Respondent worked
697with employees of Metro Dade Corrections to complete the documentation on each
709file. Variously, they prepared registration forms and affidavits of compliance
719and assembled other missing documentation, such as birth certificate and
729fingerprint cards.
7314. The 363 completed applications for certification were returned to
741Tallahassee by Respondent for processing. The vast majority of the individuals
752were certified; however, Respondent declined, for reasons hereinafter discussed,
761to certify Petitioner The pending application
7675. Petitioner has been employed by the Metropolitan Dade County Department
778of Corrections and Rehabilitation (hereinafter called Metro Dade Corrections) as
788a correctional officer since June 24, 1985, without benefit of certification.
7996. As part of the pre-employment process, Petitioner submitted to Metro
810Dade Corrections an affidavit dated June 24, 1985, which provides in pertinent
822part:
823I fully understand that, in order to qualify
831as a law enforcement or correctional officer,
838I must fully comply with the provisions of
846Section 943.13, Florida Statutes, as follows:
852* * *
8557. Be of good moral character.
861I further understand that by executing this
868document I am attesting that I have met the
877qualifications as specified.
8808. Metro Dade Corrections, as the employing agency, is responsible for
891conducting a thorough background investigation to determine the moral character
901of an applicant. Consistent with such mandate, Metro Dade Corrections routinely
912uses previous employment data, law enforcement records, credit agency records,
922inquiries of the applicant's neighbors and associates, and a pre-employment
932interview, at which a polygraph examination is administered, to assess an
943applicant's moral character. At the time Petitioner began employment on June
95424, 1985, Metro Dade Corrections had completed its investigation into
964Petitioner's background and had concluded that Petitioner possessed the good
974moral character required for certification.
9799. Fred Crawford, the Metro Dade Corrections director, executed an
989affidavit of compliance on June 24, 1985, that contained the following sworn
1001statement:
1002I hereby certify that I have collected,
1009verified, and am maintaining on file evidence
1016that the applicant has met the provisions of
1024Section 943.13(1)-(8) and Section 943.131,
1029Florida Statutes, or any rules adopted
1035pursuant thereto.
103710. There is no evidence that a complete application package for
1048Petitioner's certification was prepared in 1985. Respondent did not receive a
1059complete application for certification on Petitioner's behalf until August 11,
10691988.
107011. On August 11, 1988, Metro Dade Corrections, as the employing agency,
1082submitted to Respondent a complete application package for certification of
1092Petitioner as a correctional Officer. This was the first application for
1103certification submitted on Petitioner's behalf.
110812. By letter dated November 7, 1988, Respondent notified Petitioner that
1119his application for certification was denied because Petitioner did not possess
1130the requisite good moral character for certification as a correctional officer.
1141Respondent gave the following as its reasons for concluding that Petitioner
1152lacked good moral character:
1156You have unlawfully and knowingly possessed
1162and introduced into your body cannabis.
116813. Petitioner used marijuana on one occasion that predated his employment
1179with Metro Dade Corrections by fourteen years. Petitioner freely admitted the
1190usage of marijuana on this occasion during his pre-employment processing and
1201made no attempt to conceal the truth. Petitioner has used no controlled
1213substance since that one incident.
121814. At the time of the hearing, Petitioner was 42 years of age and had
1233worked as a Correctional Officer since June 24, 1985. Petitioner's job
1244performance evaluations with Metro Dade Corrections have been satisfactory or
1254above. Petitioner has received several commendations for his service with Metro
1265Dade Corrections. Prior to his service with Metro Dade Corrections, Petitioner
1276served in the U.S. Army with distinction where he had a top secret security
1290clearance. Petitioner also had a good record as a security officer for the
1303Veterans Administration.
130515. Petitioner's reputation is that he is a dependable, reliable, and
1316trustworthy individual who possesses high moral character.
132316. Following the denial of his request for certification as a
1334correctional officer on November 7, 1988, Petitioner timely requested a formal
1345hearing by the election of rights form he filed with Respondent.
1356CONCLUSIONS OF LAW
135917. The Division of Administrative Hearings has jurisdiction over the
1369subject matter of and the parties to this proceeding. Section 120.57(1),
1380Florida Statutes.
138218. It is Petitioner's burden to prove that he is entitled to be certified
1396by Respondent as a correctional officer. Florida Department of Transportation
1406v. J.W.C. Company, 396 So.2d 778 (Fla. 1st DCA 1981), Irvine v. Duval County
1420Planning Commission, 466 So.2d 357 (Fla. 1st DCA 1985), Astral Liquors, Inc. v.
1433Florida Department of Business Regulation, 432 So.2d 93 (Fla. 3rd DCA 1983).
144519. Petitioner is not entitled to automatic certification under Section
1455120.60(2), Florida Statutes, because there was no proof that a completed
1466application for certification was submitted on Petitioner'S behalf before August
147611, 1988. Respondent's letter dated November 7, 1988, denying Petitioner's
1486application for certification was within the time parameters set by Section
1497120.60(2), Florida Statutes.
150020. Section 943.13(7), Florida Statutes requires that a correctional
1509officer:
15107) Have a good moral character as determined
1518by a background investigation under
1523procedures established by the commission.
152821. Rule 11B-27.0011(2), Florida Administrative Code, is as follows:
1537(2) The unlawful use of any of the
1545controlled substances enumerated in Rule 11B-
155127.0025 by an applicant for certification,
1557employment, or appointment at any time
1563proximate to such application for
1568certification, employment, or appointment
1572conclusively establishes that the applicant
1577is not of good moral character as required by
1586Section 943.13(7). The unlawful use of any
1593of the controlled substances enumerated in
1599Rule 11B-27.00225 by an applicant at any time
1607remote from and not proximate to such
1614application may or may not conclusively
1620establish that the applicant is not of good
1628moral character, as required by Section
1634943.13(7), depending upon the type of
1640controlled substance used, the frequency of
1646use, and the age of the applicant at the time
1656of use. Nothing herein is intended, however,
1663to restrict the construction of Section
1669943.13(7) only to such controlled substance
1675use.
1676The controlled substances enumerated in Rule 1B-27.00225 are amphetamines,
1685barbiturates, cannabis (marijuana), opiates, cocaine, phencyclidine,
1691benzodiazepine, and methaqualone.
169422. In Zemour, Inc. v. Division of Beverage, 347 So.2d 1102, 1105 (Fla.
17071st DCA 1977) the court discussed the meaning of moral character as follows:
1720Moral character . . . means not only the
1729ability to distinguish between right and
1735wrong, but the character to observe the
1742difference; the observance of the rules of
1749right conduct, and conduct which indicates
1755and establishes the qualities generally
1760acceptable to the populace for positions of
1767trust and confidence. . . .
177323. In Florida Board of Bar Examiners v. G.W.L., 364 So.2d 454, 458 (Fla.
17871987), the court discussed the meaning of good moral character as follows:
1799In our view, a finding of a lack of "good
1809moral character" should not be restricted to
1816those acts that reflect moral turpitude. A
1823more appropriate definition of the phrase
1829requires an inclusion of acts and conduct
1836which would cause a reasonable man to have
1844substantial doubts about an individual's
1849honesty, fairness, and respect for the rights
1856of others and for the laws of the state and
1866nation.
186724. The only evidence that might suggest a flaw in Petitioner's moral
1879character is his admitted use of marijuana on one occasion fourteen years before
1892he began his employment as a correctional officer in 1985.
190225. Under Rule 11B-27.0011(2), Florida Administrative Code, unlawful use
1911of drugs conclusively establishes than an applicant is not of good moral
1923character if the unlawful use of drugs is "at a time proximate to" the
1937application for certification or appointment. "Proximate: is defined as
1946immediate, nearest or direct in relationship. Black's Law Dictionary, Fifth
1956Edition, 1979, page 1103. The use of marijuana some 14 years prior to his
1970employment is not at a time proximate to the employment or the application for
1984certification and does not conclusively establish that Petitioner is not of good
1996moral character.
199826. The unlawful use of drugs at a time remote from and not proximate to
2013the application or employment may or may not conclusively establish a lack of
2026good moral character under Rule 11B-27.0011(2), Florida Administrative Code,
2035depending on the type of drug used, the frequency of the use, and the age of the
2052applicant at the time of the use. The use of marijuana on one occasion, 14
2067years before employment, is too isolated and too remote to base a conclusion
2080that the Petitioner does not have good moral character.
208927. The overwhelming evidence presented by this record is that Petitioner
2100possesses all the qualifications for certification as a correctional officer,
2110including the qualification of good moral character.
2117RECOMMENDATION
2118Based on the foregoing Findings of Fact and Conclusions of Law, it is:
2131RECOMMENDED that the Florida Department of Law Enforcement, Division of
2141Criminal Justice standards and Training issue a Final Order which approves
2152Petitioner'S application for certification.
2156DONE and ENTERED this 5th day of July, 1989, in Tallahassee, Leon County,
2169Florida.
2170___________________________________
2171CLAUDE B. ARRINGTON
2174Hearing Officer
2176Division of Administrative Hearings
2180The DeSoto Building
21831230 Apalachee Parkway
2186Tallahassee, Florida 32399-1550
2189(904) 488-9675
2191Filed with the Clerk of the
2197Division of Administrative Hearings
2201this 5th day of July 1989.
2207APPENDIX
2208The proposed findings of fact submitted on behalf of petitioner,
2218individually, are addressed as follows:
22231-2. Rejected as unnecessary to the result reached.
22313. Addressed in paragraph 12.
22364. Addressed in paragraph 12.
22415. Rejected as being subordinate to findings of paragraph 12.
22516. Addressed in paragraph 6 and 8.
22587-8. Rejected as unnecessary to result reached.
22659. Addressed in paragraph 13.
227010. Rejected as being unnecessary to result reached and as being subordinate to
2283findings of paragraph 12.
228711. Rejected as being unnecessary to result reached.
229512-19. Addressed in paragraphs 13 and 14 so far as relevant. Rejected in part
2309as being subordinate to the findings of paragraphs 13 and 14.
2320The proposed findings of fact submitted for petitioner on the generic
2331record are addressed as follows:
23361-14. Rejected as recitation of witness testimony, and not findings of fact.
2348The matters have, however, been addressed in paragraph 7 so far as deemed
2361necessary to the result reached.
236615, 16, 18-20. Addressed in paragraphs 1-4.
237317. Rejected as unnecessary to the result reached.
238121. Addressed in paragraph 7, otherwise rejected as unnecessary to the result
2393reached in a legal conclusion.
239822-27. Rejected as subordinate to the conclusion reached.
240628. Rejected as misleading and not supported by competent proof.
241629-36. Rejected as being subordinate to the conclusion reached or not supported
2428by competent evidence.
2431The proposed findings of fact filed on behalf of respondent are addressed
2443as follows:
24451-2 Addressed in paragraphs 10-d11.
24503. Addressed in paragraph 10.
24554. Rejected as being unnecessary to result reached.
24635-6. Addressed in paragraph 12.
24687-8. Addressed in paragraph 13.
2473COPIES FURNISHED:
2475Donald D. Slesnick, III, Esquire
248010680 Northwest 25th Street
2484Miami, Florida 33172
2487Joseph S. White, Esquire
2491Assistant General Counsel
2494Florida Department of Law Enforcement
2499Post Office Box 1489
2503Tallahassee, Florida 32302
2506Lee Kraftchick, Esquire
2509Assistant County Attorney
2512in and for Dade County
2517Metro Dade Center
2520111 N.W. First Street, Suite 2810
2526Miami, Florida 33128
2529Daryl McLaughlin, Executive Director
2533Florida Department of Law
2537Enforcement
2538Post Office Box 1489
2542Tallahassee, Florida 32302
2545Rodney Gaddy, Esquire
2548Florida Department of Law
2552Training Commission Enforcement
2555Post Office Box 1489
2559Tallahassee, Florida 32302
2562Jeffrey Long, Director General Counsel
2567Criminal Justice Standards
2570Post Office Box 1489
2574Tallahassee, Florida 32302