SUPERIOR COURT OF NEW JERSEY

APPELLATE DIVISION

DOCKET NO. A-4092-17T3

IN THE MATTER OF CAROL

FOX, BOROUGH OF KEYPORT

POLICE DEPARTMENT.

_____________________________

Submitted June 4, 2019 – Decided August 8, 2019

Before Judge Hoffman and Geiger.

On appeal from the New Jersey Civil Service 

Commission, Docket No. 2018-1033.

Di Francesco Bateman Kunzman Davis Lehrer & 

Flaum, PC, attorneys for appellant Carol Fox (Richard 

Paul Flaum and Robert Philip Manetta, on the briefs).

Mc Manimon Scotland & Baumann LLC, attorneys for 

respondent Borough of Keyport Police Department 

(Leslie G. London and Thaddeus John Del Guercio, on 

the brief).

Gurbir S. Grewal, Attorney General, attorney for 

respondent Civil Service Commission (George Norman

Cohen, Deputy Attorney General, on the statement in 

lieu of brief).

PER CURIAM

NOT FOR PUBLICATION WITHOUT THE

APPROVAL OF THE APPELLATE DIVISION

This opinion shall not "constitute precedent or be binding upon any court." Although it is posted on the 

internet, this opinion is binding only on the parties in the case and its use in other cases is limited. R. 1:36-3.
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Carol Fox appeals from a final determination of the Civil Service 

Commission (Commission) terminating her position as a communications 

officer / dispatcher (dispatcher) with the Borough of Keyport Police Department 

(department) for leaving her dispatch post prior to her relief arriving, in violation 

of specific rules and department policies and practices. The Commission 

adopted the decision of the Administrative Law Judge (ALJ). We affirm.

Because ALJ Sarah G. Crowley comprehensively detailed the relevant 

factual and procedural history in her written opinion, we briefly recount those 

facts necessary to provide context for our decision.

Fox was a dispatcher with the department for thirteen years. The duties 

of the dispatchers are to answer the telephone and dispatch police and fire 

departments to emergencies. Dispatchers also log every fifteen minutes what a 

prisoner is doing if there is a prisoner in the holding cell. It is undisputed that 

Fox left her post on July 26, 2017 prior to being relieved, leaving a prisoner and 

the emergency phone desk unattended. Prior to leaving, the rules require 

dispatchers to wait for their relief and then provide an update on any 

developments that occurred during their twelve-hour shifts. 
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On August 29, 2017, Fox was served a Preliminary Notice of Disciplinary 

Action (PNDA) and was suspended with pay pending a Loudermill1 hearing for 

incompetency, inefficiency or failure to perform duties, chronic or excessive 

absenteeism or lateness, neglect of duty, and other sufficient causes in violation 

of N.J.A.C. 4A:2-2.3.

A week later, Fox participated in a Loudermill hearing before the Keyport 

Borough Council. The borough administrator issued a Final Notice of 

Disciplinary Action (FNDA) on September 20, 2017, imposing the penalty of 

removal and termination, effective immediately. Fox appealed her termination 

and the matter was transferred to the Office of Administrative Law (OAL) as a 

contested case. 

The ALJ presided over a one-day hearing. She considered testimony from 

seven witnesses, including Fox. In her written decision, the ALJ stated that Fox 

testified:

She is familiar with the rules and regulations governing 

the department with respect to the job duties. . . . 

[Dispatchers] are required to fill in the log sheet with 

anything that happens. [Fox] was working . . . on July 

26, 2017. Her shift ended at 6:30 a.m. and [officers] 

Dixon, Salvatore, McCartin, and Hassmiller were in the 

office. She stopped and said goodbye to them and left. 

She never asked who was relieving her, and did not seek 

 

1

 Cleveland Bd. of Educ. v. Loudermill, 470 U.S. 532, 546 (1985).
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permission to leave her post before her replacement 

arrived. She knew that the usual relief, Gallagher[,] 

was on vacation, but she did not know who was 

supposed to relieve her and she did not ask. She 

testified that she just assumed they knew someone 

needed to relieve the dispatch.

. . . . [Fox] testified that [the officers in the office] 

should have known no one was at dispatch because she 

had said goodbye and Gallagher was off. She also said 

it was a onetime oversight.

In her written decision, the ALJ determined that the department satisfied 

its burden of proof by a preponderance of the competent and credible evidence. 

She characterized all of the witnesses' testimony as "honest and sincere," and 

found "[t]he facts surrounding the charges are undisputed." Namely, Fox did 

"not dispute that she left her post at dispatch prior to being relieved on July 26, 

2017." The ALJ determined the "fact that she stopped and said good[]bye to 

everyone, including her supervisor does not relieve[] her of the obligation of 

waiting for relief before leaving her post." The ALJ concluded that Fox's 

conduct was "in violation of the rules and regulations and engaged in 

incompetency, inefficiency, neglect of duty and other sufficient cause." 

The ALJ then determined that "the penalty of removal is appropriate given 

the egregious nature of the offense of just leaving an important post without 

securing relief, which could have resulted in life threatening consequence for 
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the public trying to call in an emergency and the prisoner who was left without 

supervision." In reaching this penalty, the ALJ cited several aggravating factors: 

One factor is that [Fox] continued to try to justify 

leaving her post by claiming she said good[]bye first 

and that it was a "one time" oversight. [Fox's seven] 

prior offenses of neglect of duty and/or incompetency 

are further aggravat[ing] factors.

In considering the former charges against Fox for incompetency, inefficiency 

and neglect of duty in her analysis, the ALJ reasoned that an employee's "past 

record may be considered when determining the appropriate penalty for the 

current offense." (quoting In re Phillips, 11 N.J. 567, 581 (1990)). 

On April 6, 2018, the Commission adopted the ALJ's findings of fact and 

conclusions of law. 

On appeal, Fox contends the decision of the Commission to terminate her

was arbitrary, capricious, and not reasonably proportional to the offense. We 

disagree.

Appellate review of an administrative agency decision is limited. In re 

Herrmann, 192 N.J. 19, 27 (2007). A strong presumption of reasonableness 

attaches to the Commission's decision. In re Carroll, 339 N.J. Super. 429, 437 

(App. Div. 2001). Appellant has the burden to demonstrate grounds for reversal.

McGowan v. N.J. State Parole Bd., 347 N.J. Super. 544, 563 (App. Div. 2002).
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Appellate courts generally defer to final agency actions, only "reversing 

those actions if they are 'arbitrary, capricious or unreasonable or [if the action] 

is not supported by substantial credible evidence in the record as a whole.'" N.J. 

Soc'y for the Prevention of Cruelty to Animals v. N.J. Dep't of Agric., 196 N.J. 

366, 384-85 (2008) (quoting Henry v. Rahway State Prison, 81 N.J. 571, 579-

80 (1980) (alteration in original)). Under the arbitrary, capricious, and 

unreasonable standard, our scope of review is guided by three major inquiries: 

(1) whether the agency's decision conforms with the relevant law; (2) whether 

the decision is supported by substantial credible evidence in the record; and (3) 

whether in applying the law to the facts, the administrative agency clearly erred 

in reaching its conclusion. In re Stallworth, 208 N.J. 182, 194 (2011).

When an agency decision satisfies such criteria, we accord substantial 

deference to the agency's fact-finding and legal conclusions, acknowledging the 

agency's "expertise and superior knowledge of a particular field." Circus 

Liquors, Inc. v. Governing Body of Middletown Twp., 199 N.J. 1, 10 (2009) 

(quoting Greenwood v. State Police Training Ctr., 127 N.J. 500, 513 (1992)).

We will not substitute our judgment for the agency's even though we might have 

reached a different conclusion. Stallworth, 208 N.J. at 194; see also In re Taylor, 

158 N.J. 644, 656 (1999).
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Our deference to agency decisions "applies to the review of disciplinary 

sanctions as well." Herrmann, 192 N.J. at 28. "In light of the deference owed 

to such determinations, when reviewing administrative sanctions, 'the test . . . is 

whether such punishment is so disproportionate to the offense, in light of all the 

circumstances, as to be shocking to one's sense of fairness.'" Id. at 28-29 

(quoting In re Polk, 90 N.J. 550, 578 (1982)).

Having considered Fox's arguments in light of the record on appeal and 

our limited standard of review, we affirm the Commission's final determination 

substantially for the reasons expressed by the ALJ. The Commission's final 

determination is supported by sufficient credible evidence on the record as a 

whole. R. 2:11-3(e)(1)(D). Fox's arguments are without sufficient merit to 

warrant further discussion. R. 2:11-3(e)(1)(E).

Affirmed.