Case Title: In Re: Amendments to the Florida Judicial Qualifications Commission Rules

Citation: 

Docket Number: SC17-1362

State: florida

Court: Florida Supreme Court

Date: 2018-08-30T00:00:00Z

Document:
Supreme Court of Florida 
 
 
____________ 
 
No. SC17-1362 
____________ 
 
 
IN RE: AMENDMENTS TO THE FLORIDA JUDICIAL 
QUALIFICATIONS COMMISSION RULES 
 
August 30, 2018 
 
PER CURIAM. 
 
The Florida Judicial Qualifications Commission (Commission or JQC) has 
submitted for this Court’s review recent amendments to the Florida Judicial 
Qualifications Commission Rules (JQC Rules).  Article V, section 12(a)(4) of the 
Florida Constitution authorizes this Court, with five justices concurring, to repeal 
the Commission’s rules of procedure or any part thereof.  The Court now exercises 
that authority and repeals the recent amendments to JQC Rules 6 and 20 that 
purport to authorize the Commission’s investigative and hearing panels to 
designate filings with this Court confidential (confidentiality amendments).  These 
amendments are inconsistent with Florida Rule of Judicial Administration 2.420 
(Public Access to and Protection of Judicial Branch Records) and beyond the 
Commission’s authority under the Florida Constitution. 
 
 
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In its July 24, 2017, notice of adoption, the Commission submitted for this 
Court’s review a number of recent amendments to the JQC Rules, including the 
confidentiality amendments to rules 6 and 20.1  This Court reviewed all the 
amendments and ordered the Commission to explain why the confidentiality 
amendments should not be repealed for inconsistency with rule 2.420.  After 
receiving the Commission’s response, this Court issued an order requesting 
clarification of the amendments.  The Commission responded to this order and 
simultaneously provided a notice of adoption of revised confidentiality 
amendments to rules 6 and 20.  Having considered the originally submitted 
amendments, the Commission’s responses to this Court’s orders, and the notice of 
adoption of revised amendments to rules 6 and 20, the Court repeals only the rule 6 
and 20 confidentiality amendments.   
Similar to the confidentiality amendments originally submitted in this case,2 
the revised confidentiality amendments, which resulted in newly adopted JQC 
                                          
 
 
1.  The amendments originally submitted are the amendments included in 
the October 27, 2017, second revised appendix A to the July 24, 2017, notice of 
adoption.  The Court published those amendments for comment.  No comments 
were filed.  
 
2.  The original confidentiality amendments consisted of amendments to 
relettered rule 6(k) and a new rule 20(b) that authorized the investigative and 
hearings panels to designate portions of filings with this Court confidential.  The 
Commission added the following sentence to relettered rule 6(k): 
 
 
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Rules 6(l) and 20(b), authorize the Commission’s investigative and hearing panels 
to designate filings with this Court, or portions of those filings, confidential.3  
                                          
 
The Investigative Panel may designate portions of the filing with the 
Supreme Court confidential.  Portions of the filings designated as 
confidential shall be described without revealing the confidential 
information and will remain so, subject to further order from the 
Supreme Court. 
Appendix A Second Revised at 5, In re Amends. to Fla. Jud. Qualif. Comm’n 
Rules, No. SC17-1362 (Fla. appendix filed Oct. 27, 2017).  The Commission added 
new rule 20(b) to provide as follows: 
 
The Hearing Panel may designate portions of the record, findings, and 
recommendation confidential.  Portions of the record designated as 
confidential shall be described without revealing the confidential 
information and will remain so, subject to further order from the 
Supreme Court. 
Id. at 7. 
 
3.  Newly adopted rules 6(l) and 20(b), included in the Commission’s 
March 13, 2018, response and notice of adoption, provide that the 
investigative and hearing panels  
may designate filings with the Supreme Court, or portions of 
documents therein, as confidential.  The confidential information shall 
be described without revealing the confidential information, consistent 
with the procedure contained in Rule 2.420 of the Florida Rules of 
Judicial Administration.  The materials that may be designated as 
confidential include those items listed in Rule 2.420, or other medical 
and psychological records, or filings referencing those materials.  The 
materials designated as confidential by the Commission shall remain 
so, subject to review by, and further order of the Supreme Court. 
Response to Request for Clarification; and Notice of Adoption of Amends. to 
Rules 6 and 20(b) of the Fla. Jud. Qualif. Comm’n at 2-3, In re Amends. to Fla. 
Jud. Qualif. Comm’n Rules, No. SC17-1362 (Fla. document filed Mar. 13, 2018). 
 
 
 
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According to the Commission, authorizing its panels to designate filings with this 
Court confidential is the Commission’s “attempt to avoid disclosure of medical and 
personal information that is necessary to provide to [this] Court in cases involving 
disability or illness.”4  This Court does not question that the Commission’s attempt 
to protect such sensitive medical and personal information from public view is 
made with good intentions.  However, this Court must repeal the confidentiality 
amendments because neither the Commission nor its panels have authority to 
designate filings in this Court confidential under rule 2.420 or the Florida 
Constitution, and the Commission does not have authority to adopt a rule of 
procedure purporting to grant such authority.   
Under article V, section 2(a) of the Florida Constitution, this Court has 
exclusive authority to “adopt rules for the practice and procedure in all courts,” 
including this Court.  Article V, section 12(a)(4) of the Florida Constitution 
authorizes the Commission to “adopt rules regulating its proceedings.”  However, 
neither that provision of the constitution5 nor article I, section 24, which creates the 
                                          
 
 
4.  Notice of Adoption of Amendments to the Rules of the Fla. Jud. Qualif. 
Comm’n at 6, 10, In re Amends. to Fla. Jud. Qualif. Com’n. Rules, No. SC17-1362 
(Fla. notice filed July 24, 2017); Response to Request for Clarification; and Notice 
of Adoption of Amends. to Rules 6 and 20(b) of the Fla. Jud. Qualif. Comm’n at 2-
3, In re Amends. to Fla. Jud. Qualif. Comm’n Rules, No. SC17-1362 (Fla. 
document filed Mar. 13, 2018).   
 
5.  Cf. In re Rules of Fla. Jud. Qualif. Comm’n, 364 So. 2d 471, 471 (Fla. 
1978) (repealing JQC rule purporting to establish procedures governing JQC 
 
 
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public’s right of access to judicial branch records and the limitations on that right,6 
authorizes the Commission to adopt rules allowing its panels to designate filings in 
this Court confidential.   
Article I, section 24 of the Florida Constitution recognizes the rules of this 
Court that were in effect at the time of the adoption of that section as one source of 
limitation on the public’s right of access to judicial branch records.7  Therefore, in 
October 1992, in anticipation of the adoption of article I, section 24, this Court 
adopted Florida Rule of Judicial Administration 2.420 to govern access to judicial 
branch records.8    
As relevant here, rule 2.420 provides the procedures for determining the 
confidentiality of court records, which includes all filings with this or any other 
                                          
 
proceedings in this Court as exceeding Commission’s constitutional authority to 
“adopt rules regulating its proceedings” and intruding on this Court’s exclusive 
authority to “adopt rules for the practice and procedure in all courts”). 
 
6.  Article I, section 24 of the Florida Constitution creates a right of access to 
all public records as defined by that section, which includes judicial branch 
records, except for those records made confidential by another section of the 
constitution, by a statute enacted by the Legislature, or by a court rule that was in 
effect when article I, section 24 was adopted.   
 
7.  Art. I, § 24(d), Fla. Const. 
 
8.  See In re Amends. to Fla. Rule of Jud. Admin.—Public Access to Jud. 
Records, 608 So. 2d 472 (Fla. 1992) (adopting Florida Rule of Judicial 
Administration 2.051, which has been renumbered 2.420, to govern public access 
to judicial branch records). 
 
 
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state court.9  Thus, the only filings in a JQC proceeding in this Court that can be 
designated and maintained as confidential are those determined to be confidential 
in accordance with the rule 2.420 procedures adopted by this Court.10  A filing in 
this or any other state court is not confidential under rule 2.420 and cannot be 
otherwise “designated” confidential simply because it contains sensitive personal 
information.11  And nothing in rule 2.420 excludes from its requirements filings in 
JQC proceedings in this Court or authorizes the Commission or its panels to 
designate such filings confidential and exempt from the public’s constitutional 
right of access to those records.  
                                          
 
 
9.  See Fla. R. Jud. Admin. 2.420(b)(1) (defining “[r]ecords of the judicial 
branch”); 2.420(b)(1)(A) (defining “court records”). 
 
10.  See Fla. R. Jud. Admin. 2.420(d)(1)-(d)(3) (listing information in court 
records that the clerk of court must designate and maintain confidential; providing 
for the filing of a notice of confidential information in court filings; and providing 
for the filing of motions to determine confidentiality of information in court 
records that may be confidential under subdivision (c) of rule 2.420 but is not listed 
under subdivision (d)(1)); Fla R. Jud. Admin. 2.420(g)(1), (g)(8) (providing for the 
filing of motions to determine confidentiality of appellate court records and 
providing that records of a lower tribunal determined to be confidential by that 
tribunal must be treated as confidential during any review proceedings). 
 
11.  Cf. In re Implementation of Comm. on Privacy & Court Records 
Recommendations, 78 So. 3d 1045, 1049-50 (Fla. 2011) (explaining that Florida 
Rule of Judicial Administration 2.425 provides the procedures for minimizing the 
amount of sensitive personal information included in documents being filed with 
the court and that rule 2.420 provides the procedures for determining the 
confidentiality of information after it has been filed).   
 
 
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Consistent with article V, section 12(a)(4) of the Florida Constitution, which 
makes proceedings against a judge before an investigative panel of the 
Commission confidential, rule 2.420(c)(3)(A) recognizes as confidential 
complaints alleging misconduct against judges until probable cause is found.  
However, after an investigative panel finds probable cause and files formal charges 
with the Clerk of this Court, any further proceedings before the Commission or this 
Court are public, and the records created in connection with or filed in those 
proceedings are public unless they are recognized as confidential under rule 
2.420(c).   
 This Court cannot agree with the Commission that rule 2.420(c)(8) 
authorizes the Commission to adopt the confidentiality amendments at issue here.  
Rule 2.420(c)(8) recognizes as confidential “[a]ll records presently deemed to be 
confidential by . . . the rules of the Judicial Qualifications Commission.”  This 
provision was adopted in 1992, shortly before article I, section 24 of the Florida 
Constitution.12  Section 24(d) preserves the effectiveness of rules of court 
exempting certain judicial branch records from public access as of the date this 
section was adopted, but it does not authorize new rules of court providing 
additional exemptions.  On the contrary, section 24(c) grants only the Legislature 
                                          
 
 
12.  In re Amends. to Fla. Rule of Jud. Admin.—Public Access to Jud. 
Records, 608 So. 2d at 474. 
 
 
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the power to create new exemptions.  Consistent with these constitutional 
provisions, rule 2.420(c)(8) simply recognizes as confidential records that were 
confidential under any JQC rule that existed at the time rule 2.420 was adopted.13  
That rule does not authorize the Commission to adopt new rules of procedure 
addressing the confidentiality of its filings in this Court.  
Accordingly, this Court repeals the amendments to JQC Rules 6 and 2014 
that purport to authorize the Commission’s panels to designate filings with this 
Court confidential. 
It is so ordered. 
CANADY, C.J., and PARIENTE, QUINCE, POLSTON, LABARGA, and 
LAWSON, JJ., concur.  
LEWIS, J., concurs in result. 
 
THE FILING OF A MOTION FOR REHEARING SHALL NOT ALTER THE 
EFFECTIVE DATE OF THESE AMENDMENTS.  
 
                                          
 
 
13.  The term “presently” as used in rule 2.420(c)(8) means at the time of the 
1992 adoption of the rule.  See id. at 472-73 (recognizing that proposed 
amendment to the Florida Constitution, which became article I, section 24, 
provided that all judicial branch records are public except those exempted by rule 
in effect on the date of the adoption of the amendment or those exempted by the 
Legislature and therefore constitutional amendment would prohibit the later 
adoption of judicial branch rules that would close any other judicial branch 
records).   
 
14.  To avoid any revival issues, the Court repeals new rules 6(l) and 20(b) 
included in the appendix to this opinion and the amendment to relettered rule 6(k) 
and new rule 20(b) quoted in footnote 2 of this opinion.   
 
 
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Original Proceeding – Florida Rules of Judicial Qualifications Commission 
 
Krista Marx, Chair, West Palm Beach, Florida, Michael L. Schneider, Executive 
Director, and Alexander J. Williams, Assistant General Counsel, Judicial 
Qualifications Commission, Tallahassee, Florida, 
 
for Petitioner 
 
 
 
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APPENDIX 
APPENDIX A THIRD REVISED (with Changes to 6(l) and 20(b)) 
FILED MARCH 14, 2018 
RULE 2. 
DEFINITIONS 
In these rules, the singular shall include the plural and vice-versa, and any 
singular personal pronoun shall include both feminine and masculine genders, and 
unless the context or subject matter otherwise requires: 
(1) 
“Commission” means the Judicial Qualifications Commission. 
(2) 
“Investigative Panel” means a division of the Commission vested with 
the jurisdiction to receive or initiate complaints, conduct investigations, dismiss 
complaints, and, upon a vote of a simple majority of the panel, submit formal 
charges to the hearing panel. The chair of the Commission shall be its chair. 
(3) 
“Hearing Panel” means a division of the Commission vested with the 
authority to receive and hear formal charges from the Investigative Panel. The 
Hearing Panel, by majority vote of its members may recommend to the Supreme 
Court that a judge be subject to appropriate discipline. Upon a two-thirds vote, the 
panel may recommend to the Supreme Court the removal of a judge, as provided in 
Article 5, § 12, of the Constitution of the State of Florida, or the involuntary 
retirement of a judge for any permanent disability that seriously interferes with the 
performance of judicial duties. 
(4) 
“Judge” means a justice of the Supreme Court and a judge of the 
District Court of Appeal, Circuit Court and County Court. 
(5) 
“Chair” includes the acting chair. 
(6) 
“General Counsel” means any member of The Florida Bar 
designatedemployed by the Commission to serve as legal advisor to the 
Commission and Investigative Panel, and to perform such other duties as 
authorized by the Commission to gather and present evidence before the 
Investigative Panel or the Hearing Panel with respect to the charges against a judge 
and to represent the Commission in any proceedings, related to the activities of the 
Commission. 
 
 
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(7) 
“Counsel to the Hearing Panel” means any member(s) of The Florida 
Bar, designated by the Hearing PanelChair of the Commission to serve as legal 
advisor to the Hearing Panel. Counsel to the Hearing Panel shall act as clerk to the 
Hearing Panel during the trial, collect evidence, and transmit the record to the 
Supreme Court. 
(8) 
“Special Counsel” means any member(s) of The Florida Bar 
designated by the Investigative Panel to gather and present evidence before the 
Investigative Panel or the Hearing Panel with respect to the charges against a judge 
and to represent the Commission in any proceedings, related to the activities of the 
Commission. 
(9) 
“Shall” is mandatory and “may” is permissive. 
(10) “Mail” and “mailed” include ordinary, registered, certified, or other 
form of United States mail, personal delivery, and delivery by a commercial 
delivery service. 
(11) “Executive Director” means a person designatedmember of The 
Florida Bar employed by the Commission to supervise its staff, to serve as legal 
advisor to the Commission and Investigative Panel, and to render such services to 
the Commission and its several panels as required, provided, however, that. theThe 
Executive Director and administrative staff will provide only ministerial or similar 
services to facilitate the activities of the Hearing Panel. 
(12) “Member” means a member of the Commission. 
(13) “Supreme Court” means the Supreme Court of Florida. 
RULE 4. 
OFFICERS OF THE COMMISSION 
The Commission shall elect a Chair and a Vice-Chair, each of whom shall 
serve for a term of two years. The Vice-Chair shall act as the chair of the 
Commission in the absence of the Chair. If both the Chair and the Vice-Chair are 
absent, then a majority of the members present may appoint a Chair Pro Tempore. 
The Commission may employ staff, including an eExecutive dDirector and 
General Counsel, and such other staff as necessary to carry out its duties. The 
Commission will consider and decide matters relating to budget and other business 
of the Commission not specifically assigned to its panels. The Hearing Panel 
mayChair shall appoint Counsel to the Hearing Panel to serve as its legal advisor. 
 
 
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RULE 6. 
INVESTIGATIVE PANEL RULES 
(a) 
The Investigative Panel of the Commission, upon receiving factual 
information, not obviously unfounded or frivolous, or an individual complaint 
made under oath, indicating that a judge is guilty of willful or persistent failure to 
perform judicial duties, or conduct unbecoming a member of the judiciary 
demonstrating a present unfitness to hold office, or conduct violative of the Code 
of Judicial Conduct, or that the judge has a disability seriously interfering with the 
performance of the judge’s duties, which is, or is likely to become, permanent in 
nature, may make an investigation to determine whether formal charges should be 
instituted. 
(b) 
The judge has no right to be present or to be heard during an 
investigation, but before the Investigative Panel determines that there is probable 
cause to initiate formal charges, the judge shall be notified of the investigation, the 
general nature of the subject matter of the investigation, and shall be afforded 
reasonable opportunity to make a statement before the Investigative Panel, 
personally or by the judge’s attorney(s), verbally or in writing, sworn or unsworn, 
explaining, refuting or admitting the alleged misconduct or disability, and to 
respond to questions from the Panel. The judge shall not have the right to present 
other oral testimony or evidence, nor the right of confrontation or cross-
examination of any person interviewed, called or interrogated by the Investigative 
Panel; provided that the Investigative Panel in its sole discretion may receive and 
consider documentary evidence, including affidavits submitted by a judge. Such 
notification shall be given personally, by registered or certified mail, or by delivery 
by a commercial service, addressed to the judge at the judge’s chambers or, if 
returned undelivered, at the judge’s last known residence. 
(c) 
The Investigative Panel shall have the right to require a judge to meet 
with it on an informal basis in reference to matters that relate to the judge’s duties. 
(d) 
When a judge has received a notice of investigation, or a notice to 
appear before the Investigative Panel, or has requested such notification, the judge 
shall be promptly notified in writing if the investigation does not disclose probable 
cause to warrant further proceedings. 
(e) 
The Investigative Panel shall have access to all information from all 
executive, legislative and judicial agencies, including grand juries. At any time, on 
request of the Speaker of the House of Representatives, the Commission shall 
 
 
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make available all information in possession of the Commission for use in 
consideration of impeachment. 
(f) 
When the Investigative Panel finds probable cause that formal charges 
should be filed against the judge, the Investigative Panel shall file a Notice of 
Formal Charges with the Clerk of the Supreme Court. The Investigative Panel shall 
designate one or more Special Counsel who shall prepare appropriate papers and 
pleadings, gather and present evidence before the Hearing Panel with respect to the 
charges against the judge, and otherwise act as counsel in connection with the 
prosecution of the charges against the judge, including the representation of the 
Commission in connection with any Commission or judicial proceedings. The 
Investigative Panel shall cause to be served on the judge a copy of the Notice of 
Formal Charges. Such proceedings shall be styled: 
“BEFORE THE FLORIDA JUDICIAL QUALIFICATIONS 
COMMISSION” 
“Inquiry Concerning a Judge, The Honorable____________, No. ______” 
(g) 
The notice shall be issued in the name of the Commission and specify 
in ordinary and concise language the charges against the judge and allege the 
essential facts upon which such charges are based, and shall advise the judge of the 
judge’s right to file a written answer to the charges against within 20 days after 
service of the notice upon the judge. 
(h) 
Service of the notice shall be made personally, by registered or 
certified mail or by commercial delivery service, addressed to the judge at the 
judge’s chambers or, if returned undelivered, at the judge’s last known residence. 
(i) 
After the notice has been filed, any notice or other material shall be 
mailed to the judge at the judge’s chambers or residence address, or to the judge’s 
attorney(s), if any. 
(j) 
The notice may also include the judge’s prior relevant judicial 
disciplinary history with the Commission and the record will be made available to 
the Hearing Panel to establish a pattern of conduct or to assist the Hearing Panel in 
recommending the appropriate sanction to the Supreme Court. 
(k) 
The Investigative Panel may reach agreement with a judge on 
discipline or disability, and such stipulation shall be transmitted directly to the 
 
 
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Supreme Court to accept or reject. If rejected, such agreement shall be without 
prejudice to any party thereto.  
(l) 
The Investigative Panel may designate filings with the Supreme 
Court, or portions of documents therein, as confidential.  The confidential 
information shall be described without revealing the confidential information, 
consistent with the procedure contained in Rule 2.420 of the Florida Rules of 
Judicial Administration.  The materials that may be designated as confidential 
include those items listed in Rule 2.420, or other medical and psychological 
records, or filings referencing those materials.  The materials designated as 
confidential by the Commission shall remain so, subject to review by, and further 
order of the Supreme Court. (REPEALED) 
RULE 8. 
SUSPENSION OF JUDGE 
Before or after the filing of a Notice of Formal Charges, the Investigative 
Panel may, in its discretion, issue its order directed to the judge ordering the judge 
to show cause before it why that panel should not recommend to the Supreme 
Court that the judge be suspended from office, either with compensation or without 
compensation, while the inquiry is pending. The order to show cause shall be 
returnable before the Investigative Panel at a designated place and at a time certain, 
at which place and time the Investigative Panel shall consider the question of 
suspension and any action thereto. Factors to be considered include: the 
seriousness of the allegation of misconduct, the preservation of public confidence 
in the judicial system, the responsiveness of the judge to the disciplinary process, 
or whether the judge has engaged in conduct that demonstrates a present unfitness 
to hold office. The arrest or conviction of a crime constitutes a sufficient basis for 
the recommendation for suspension under this rule. Thereafter, and upon the filing 
of a Notice of Formal Charges with the Supreme Court, the Investigative Panel, not 
less than two-thirds of its members concurring, may recommend to the Supreme 
Court that the judge be suspended from performing the duties of office, either with 
or without compensation, pending final determination of the inquiry. If the 
Investigative Panel recommends suspension, such recommendation shall have 
incorporated therein a record of the proceedings of the Investigative Panel in 
relation to the order to show causethe factual basis for the recommendation. 
RULE 11. SETTING FOR HEARING 
After the filing of an Answer or the expiration of the time for its filing, the 
Hearing Panel shall set a time and place for a hearing and shall give notice of such 
 
 
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hearing at least 20 days prior to the date set. If the judge timely requests that the 
hearing be held in the county of the judge’s residence, it shall be so held unless the 
Hearing Panel, by an affirmative vote of two-thirds of its members, determines 
otherwise. Hearings before the Commission should be accorded precedence over 
most other proceedings due to the extraordinary nature of the hearing. 
RULE 12. PROCEDURE 
(a) 
Settlement Negotiations. Prior to commencement of the hearing to 
determine formal charges against a judge, the Investigative Panel retains the 
authority to enter into stipulations for proposed discipline with the judge or judge’s 
representatives. After the commencement of the hearing to determine formal 
charges against a judge, the Hearing Panel shall have the authority to enter into 
stipulations for proposed discipline with the judge or judge’s representative, which 
it shall incorporate into its recommendation to the Supreme Court. 
(b) 
In all proceedings before the Hearing Panel, the Florida Rules of Civil 
Procedure shall be applicable except where inappropriate or as otherwise provided 
by these rules. 
(c) 
Summary Judgment is not available to either party. 
(d) 
Special Counsel shall, upon written demand of a party or counsel of 
record, promptly furnish the following: 
The names and addresses of all witnesses whose testimony the Special 
Counsel expects to offer at the hearing, together with copies of all written 
statements and transcripts of testimony of such witnesses in the possession of the 
counsel or the Investigative Panel which are relevant to the subject matter of the 
hearing and which have not previously been furnished, except those documents 
confidential under the Constitution of the State. When good cause is shown this 
rule may be waived. 
(de) At the time and place set for hearing, the Hearing Panel may proceed 
with the hearing whether or not the judge has filed an Answer or appears at the 
hearing. 
RULE 14. EVIDENCE 
(a) 
At a hearing before theThe Hearing Panel, legal evidence only shall 
be received and oral evidence shall be taken only on oath or affirmation has wide 
 
 
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latitude to admit or exclude evidence and is not bound by the technical rules of 
evidence. It may admit evidence that is relevant and reliable as described in The 
Florida Bar v. Tobkin, 944 So. 2d 219 (Fla. 2006). 
(b) 
Past disciplinary actions by the Commission may be admitted by the 
Hearing Panel to demonstrate a relevant factual matter such as a pattern of 
conduct, or, upon a finding of guilt, to properly assess the appropriate sanction to 
recommend to the Supreme Court. 
RULE 20. CERTIFICATION OF HEARING PANEL 
RECOMMENDATIONS TO SUPREME COURT 
(a) 
If the Hearing Panel dismisses the formal charges, the Hearing Panel 
shall promptly file a copy of the dismissal order certified by the Chair of the 
Hearing Panel with the Clerk of the Supreme Court. Upon making a determination 
recommending discipline, retirement or removal of a judge, the Hearing Panel shall 
file a copy of the recommendation certified by the Chair of the Hearing Panel, 
together with a transcript and the findings and conclusions, with the Clerk of the 
Supreme Court and shall mail to the judge and to the judge’s attorney(s) notice of 
such filing, together with a copy of such recommendations, findings, and 
conclusions. 
(b) 
The Hearing Panel may designate filings with the Supreme Court, or 
portions of documents therein, as confidential.  The confidential information shall 
be described without revealing the confidential information, consistent with the 
procedure contained in Rule 2.420 of the Florida Rules of Judicial Administration.  
The materials that may be designated as confidential include those items listed in 
Rule 2.420, or other medical and psychological records, or filings referencing 
those materials.  The materials designated as confidential by the Commission shall 
remain so, subject to review by, and further order of the Supreme Court.  
(REPEALED) 
(c) 
If the Hearing Panel determines to recommend removal, it may also 
include in its findings and recommendations that the judge be suspended with or 
without pay pending the final determination of the inquiry. 
RULE 22. SUBPOENAS 
Subpoenas for the attendance of witnesses and the production of 
documentary evidence shall be issued as follows: 
 
 
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(a) 
For investigative purposes, subpoenas may be issued for the 
attendance of witnesses and the production of documents before the General 
Counsel or Special Counsel with respect to any potential violation of the Code of 
Judicial Conduct, and counsel is empowered to administer oaths to all who are 
summonsed to testify or who may voluntarily appear before counsel to testify as to 
any potential violations of the Canons of the Code of Judicial Conduct. 
(b) 
Subpoenas for the attendance of witnesses and the production of 
documentary evidence for discovery after formal charges are filed, and for the 
appearance of any person before anythe Hearing pPanel of the Commission, may 
be issued by the General Counsel, Counsel to the Hearing Panel, or Special 
Counsel, or counsel for the judge, and may be served in the manner provided by 
law for the service of witness subpoenas in a civil action, but without cost. 
(c) 
Contempt. Any person who, without adequate excuse, fails to obey 
such a subpoena of the Commission or a panel of the Commission served upon that 
person may be cited for contempt of the Commission in the manner provided in 
these rules. 
RULE 25. DISQUALIFICATION OR VACANCY 
(a) 
Whenever a judge against whom formal proceedings have been 
instituted, shall file with the Hearing Panel an affidavit that the judge fears the 
judge will not receive a fair hearing before the Hearing Panel on the charges 
because of the prejudice of one or more members of the Hearing Panel against the 
judge, and the facts stated as the basis for making the affidavit shall be supported 
in substance by affidavit of at least two reputable citizens of the State of Florida 
not kin to the judge or the judge’s attorney, or if any member of the Hearing Panel 
shall voluntarily recuse himself, such member or members of the Hearing Panel 
shall proceed no further therein and shall be disqualified from hearing the charges. 
The affidavit shall state the facts and the reasons for the belief that any such 
prejudice exists, shall specify the member(s) of the Hearing Panel allegedly 
prejudiced and shall be filed not more than 15 days after service of the Notice of 
Formal Charges upon the judge chargedAfter the filing of formal charges, a judge 
may move to disqualify a member of the Hearing Panel. The motion shall be in 
writing, sworn to by the judge, and shall specifically allege the facts and reasons 
that establish a legally sufficient factual basis for disqualification. 
 
 
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(1) 
Grounds. A motion to disqualify shall show facts would place 
a reasonably prudent person in fear of not receiving a fair and impartial hearing if 
the Hearing Panel member participates. 
(2) 
Time. A motion to disqualify shall be filed within a reasonable 
time not to exceed 15 days after the Hearing Panel members are identified, or the 
discovery of the facts constituting the grounds for the motion and shall be promptly 
presented to the Hearing Panel for an immediate ruling. A motion made during 
hearing shall be ruled on immediately. 
(3) 
Determination. The Hearing Panel shall determine whether the 
facts alleged are sufficient to support a motion to disqualify. The matter of 
disqualification shall be by a majority vote of the panel. 
(4) 
Member’s Initiative. If any member of the Hearing Panel 
voluntarily recuses him or herself, the member shall not participate in the hearing.  
(b) 
The ChairExecutive Director of the Commission shall request from 
each of the appointing authorities a list of four persons who may temporarily serve 
in the absence of incapacitated or disqualified members. The appointing authorities 
are the Conference of District Court of Appeal Judges, the Conference of Circuit 
Court Judges, the Conference of County Court Judges, the Board of Governors of 
The Florida Bar, and the Governor of Florida. Upon the disqualification of or in 
the absence of a member of the Hearing Panel, the replacement shall be chosen by 
the Chair of the Commission from those listed by the appropriate appointing 
authority. Each such replacement shall be from the same category as the 
disqualified member(s) set forth in Section 12(a), Article V of the Constitution of 
the State of Florida. 
(c) 
The judge may within 15 days after receiving notice of such ad hoc 
appointment, file a like affidavit as to that appointee, which shall be supported in 
substance by an affidavit of two citizens as set forth above, in which event the ad 
hoc appointee shall not be disqualified on account of alleged prejudice against the 
judge unless the appointee admits that it is then a fact that the appointee is 
prejudiced against the judge, or unless a majority of the Hearing Panel, which may 
include any ad hoc appointee, holds that the appointee is prejudiced against the 
judge, in which event the same ad hoc appointment procedure set forth above shall 
be followed until a qualified person has been appointed. 
(d) 
A judge moved against by the Commission may, by affidavit, suggest 
the disqualification of a member or members of the Commission unsupported by 
 
 
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two citizens, but in such event the determination of the matter of disqualification 
shall be by majority vote of the panel having jurisdiction unless the person sought 
to be disqualified voluntarily recuses himself. 
(e) 
Upon the vacancy of a position on the Commission due to resignation 
or ineligibility as a member of the Commission, or upon the failure of the 
appointing authority to timely appoint a constituent member, the Chair shall 
appoint an ad hoc member from a list provided by the appropriate appointing 
authority. Each such replacement shall be from the same category as the 
disqualified member(s) set forth in Section 12(a), Article V of the Constitution of 
the State of Florida, and shall serve only until the appointing authority selects a 
representative to fill the vacancy.