FI LED U. S . COURT OF AP PE ALS E L E V E N T H C IR C U IT Febr uar y 21, 2007 T HOM AS K. KAHN CL E RK

Honora ble J ohn F. Na

ng le, United States District Judge f or the Ea stern District of * Missouri, sitting by

designation. [ P UB L I S H] I N THE UN I TE D STATE S C OU RT OF APPE ALS F O R T H E E L E V E N T H C IR C U IT

________________________ N o. 06- 11571

________________________ D O A N o . 0 2 - 0 0 0 1 - H PA C H R I S T O P H E R J E R O M E Z A H N D , P e titio n e r , v ersu s S E C R E T A R Y O F T H E D E P A R T M E N T O F A G R I C U L T U R E , R e s p o n d e n t.

________________________ P e t i t i on f orR e vi e w of

aD e c i s i on of

the D epartm entof A gri cul ture

_________________________ ( F e b r u ar y 21, 2007) B ef ore B IR C H and P R Y O R , C i rc ui tJudg es , and N A N G L E , D i stri ctJudg e. * P R Y O R , C i rc ui tJudg e: T hi s pet i t i on for r evi ew of an order of the S ec re t ary of the U ni t ed S t at es2

D epartm entof A gri cul ture pres ent s the fol l ow i ng i ss ue: w hether s ub st ant i al e vi de nc e s upport s the de c i s i on of aJ udi c i a l O f

f i c e rf orthe D e pa rtm e ntof A gri cul ture thatL ady E bo ny’ s A ce , a f ou r- ye ar -ol d T enness ee W al ki ng H orse , w as s or e w i thi n the m e a ni ng of the H or s e P r ot e c t i on A c t , 15 U . S . C . §§ 1821- 1831, w h e n s h e w a s e n te r e d in ah o r s e s h o w in S h e lb y v ille , T e n n e s s e e , o n M a y 2 5 , 2 0 0 0 . A ftertw o v eter in ar ian s f o r th e D ep ar tm en t o f A g ricu ltu re in sp ec ted L ad y E b o n y’s A c e a tthe s how , at i c ke tw a s i s s ue d c ha r gi ng C hr i s t ophe rJ e r om e Z a hnd, the h o rse’ s trai n er, an d R o n al d B el t z, th e h o rse’ s o w n er, w i th v i o l at i n g th e H o rse P r ot e c t i on A c tby e nt e r i ng as or e hor s e . F ol l ow i ng ahe a r i ng, an A dm i ni s tr a t i ve L a w J udge di s m i s s e d the c om pl a i ntbe c aus e he f ound tha tZ a hnd ha d r e butt e d the st atut ory pre sum pt i on of vi ol at i on , bu ta Jud i ci al O ff i ce r r ever se d. T he Judi ci al O f f ic e rr e lie d o n th e e x p e rt te s tim o n y o f av e te r in a r ia n w h o e x a m in e d th e h o r s e . A f te rth o r o u g h r e v ie w o f

th e r e c o r d , w e a f

f irm . I . B AC KG RO UN D O n the m orni ng of

M a y 25, 2000, Z a hnd l oa de d L a dy E bony ’ s A c e i nt o a h o r s e tr a ile ra t h is s tab le in T r in ity , A lab a m a . Z a h n d th e n d r o v e to th e 3 0 th A nn ual S pri ng F un S ho w P re vi ew “ S . H . O . W . Y ou r H orse s” i n S hel byvi l l e, T enness ee . L ady E bo ny’ s A ce spentthe great erpartof the day i n the tra i l er b e c au s e , in a d d itio n to d r iv in g tim e , Z a h n d s to p p e d f o rs e v e r a l h o u r s a t ah o r s e s a le a n d as ta ll h a d n o t b e e n p r o c u r e d f o rth e u s e o f

L a d y E b o n y ’s A c e b e f

o r e th e s h o w .3

W hen L ady E bo ny’ s A ce w as un l oaded from the tra i l er , short l y bef ore her pres h o w in s p e c tio n , s h e h a d b e e n in th e h o r s e tr a ile rf o re le v e n to tw e lv e h o u r s . A ft er s he w a s unl oa de d, L a dy E bony ’ s A c e w a s e xa m i ne d by Z a hnd a nd L a rry J oe A ppl e t on J r . , w ho w a s a c t i ng a s Z a hnd’ s gr oom f orthe ni ght . N e i the rZ a hnd nor A p p le to n o b s e rv e d a n y ab n o rm a l r e s p o n s e s f r o m th e m a r e . L ady E bo ny’ s A ce w as then exam i ned b y C harl es T ho m as , the D es i gn at ed Q ua l i f i e d P e r s on hi r e d by the S pr i ng F un S how t o e ns ur e c om pl i anc e w i th the H orse P rot ec t i on A ct , and tw o v et er i nari ans f or the D epartm entof A gri cul ture, D r s . C le m e n t D u s s au lt a n d J o h n G u e d r o n . T h e p u rp o s e o f th a t e x a m in a tio n is to d e te rm in e w h e th e rth e h o r s e is s o r e , th a t is , w h e th e rah o r s e h a s b e e n ab u s e d w ith chem i ca l or m ec hani ca l devi ce s and w i l l fe elpai n w hen m ov i ng . T he typi ca l e xa m i na t i on t a ke s am i nut e t o am i nut e a nd 15 s e c onds a nd in v o lv e s tw o s ta g e s . F i r s t , the hor s e i s obs e rve d a s i tw a l ks a r ound ac one . S e c ond, the f e e ta nd l e gs of th e h o r s e a r e p a lp a te d w ith th u m b p r e s s u r e . T ho m as exam i ned L ady E bo ny’ s A ce tw i ce . A ft erhi s e xam i nat i on , T ho m as di squal i fi ed her f

rom show i ng thatni gh t . T ho m as no t ed thatL ady E bo ny’ s A ce r e a c t e d t o pa l pa t i on on both f r ontf e e ta nd w a l ke d s l ow l y w i th as l i ghtpul l on the r e i ns w he n l e d. T hom a s not e d am i l d r e a c t i on on the l e f tf r ontf ootout s i de a nd a strong erre ac t i on on the ri gh tfr on tfootou t si de. T hom a s di d notf i nd avi ol a t i on of th e H o r s e P r o te c tio n A c t.4

L a d y E b o n y ’s A c e w a s th e n e x a m in e d b y D r . D u s s au lt. D r . D u s s au lt obs e rve d tha tL a dy E bony ’ s A c e m ove d “ s om e w ha tf r e e l y ” a s s he m ove d a r ound th e c o n e . O n p alpat i on , D r. D ussaul tob se rved thatL ady E bo ny’ s A ce w i thd re w he rf ootw he n he pa l pa t e d the m e di a l a nd l a t e r a l a s pe c t s of both the l e f

ta nd r i ght f r o n t p a s te rn s . D r . D u s s au lt d e s c r ib e d th e r e a c tio n a s m o d e r a te . B a s e d o n h is o b s e rv a tio n s , D r . D u s s au lt r e q u e s te d th a t D r . G u e d r o n e x a m in e L a d y E b o n y ’s A c e . D ur i ng hi s e xa m i na t i on, D r . G ue dr on obs e rve d tha t , a s s he w a l ke d a r ound the cone, L ady E bo ny’ s A ce w al ked sl ow l y “ w i th a short ened gai tand w as r e lu c ta n t to le a d .” O n phy s i c a l e xa m i na t i on, D r . G ue dr on obs e rve d “ s tr ong, consi st entand repeat abl e pai n res po nses . . . t o d i gi t al pal pat i on of bo th the m edi al an d l at eral h eel b u l b s” o f th e l eftfo o t . O n th e ri g h tfo o t , D r. G u ed ro n al so obs e rve d “ s tr ong, c ons i s t e nta nd r e pe a t abl e pa i n r e s pons e s t o di gi t a l pa l pa t i on of the sa m e are as of the past ern as des cr i bed for the l ef tfoot . ” A f t e rthe i re xa m i na t i ons , D r . D us s aul ta nd D r . G ue dr on c onf e rr e d a nd agre ed thatL ady E bo ny’ s A ce w as sore as defi ned b y the H orse P rot ec t i on A ct . In se para t e a ff

i davi t s, bo th d oct ors gave thei r opi ni on thatthe ho rs e had been sored b y u s e o f c h e m ic a l o rm e c h a n ic a l m e a n s . Z a h n d a n d B e ltz w e r e e a c h is s u e d tic k e ts th a t a lle g e d v io la tio n s o f th e H o r s e P r o te c tio n A c t. O n O c t obe r25, 2001, the A c t i ng A dm i ni s tr a t orof the A ni m a l a nd P l a nt H e a l th I ns pe c t i on S e rvi c e of the D e pa rtm e ntof

A gr i c ul tur e f

i l e d ac om pl a i nt5

a g a in s t B e ltz a n d Z a h n d a n d a lle g e d th a t L a d y E b o n y ’s A c e h a d b e e n e n te r e d in the s how i n S he l by vi l l e f orthe purpos e of

s how i ng w hi l e s he w a s s or e . A he a r i ng w as sc hedu l ed for Jun e 3, 20 04 . B ec ause D r. G uedron w as un avai l abl e t o t es t i fy on tha tda t e , the he a r i ng w a s r e s c he dul e d t o D e c e m be r1, 2004. B e f or e the re sc hedu l ed heari ng , the com pl ai ntagai nstB el t z w as se tt l ed, w hi ch l ef tZ ahnd as th e o n ly r e s p o n d e n t. A tthe he a r i ng, the S e c r e t a ry of f e r e d the t e s t i m ony of

D r . D us s aul ta nd e i ght e xhi bi t s , w hi c h c ons i s t e d of the a f f i da vi t s of T hom a s , D r . D us s aul t , D r . G ue dr on, a nd Z a hnd, the D Q P t i c ke ta nd e xa m i na t i on s he e t , the vi ol a t i on t i c ke ti s s ue d by the D e pa rtm e nt , a nd avi de o of the e xa m i na t i on pr oc e e di ngs . Z a hnd a nd A ppl e t on te s tif ie d f o rZ a h n d . D r . G u e d r o n d id n o t te s tif y . D r. D u ssau l tt est i fi ed th at , d u ri n g an ex am i n at i o n , h e l o o k s fo r o d o rs, s c a rr in g , o re v id e n c e o f o th e ra rtif

ic ia l s u b s ta n c e s o n ah o r s e ’s le g . W ith r e g a r d to pa l pa t i on, D r . D us s aul tl ooks f orar e pe a t e d r e s pons e s uc h a s w i thdr a w a l of the f oota s as i gn of

pa i n. D r. D ussaul tt es t i fi ed thatthe pres sure typi ca l l y app l i ed du ri ng pal pat i on i s e no ug h t o b l anch the thu m bn ai l . D r. D ussaul tt es t i fi ed that p al p at i o n al o n e w o u l d n o tcau se a h o rse t o feel p ai n o r m o v e b u tj ab b i n g a h o rse c o u ld m a k e it m o v e . W i th regard t o h i s e xam i nat i on of L ady E bo ny’ s A ce , D r. D ussaul tt es t i fi ed th a t, w h e n h e p a lp a te d th e la te r a l p a rt o f th e h o r s e ’s p a s te rn , s h e w ith d r e w h e rf o o t,6

w hi c h i s as i gn of

pa i n. D r . D us s aul tdi d notobs e rve a ny s m e l l s ors c a rr i ng on L ad y E b o n y’ s A ce an d d i d n o trecal l an y h ai r l o ss. O n cross -e xam i nat i on , D r. D us s aul ta gr e e d tha ti nc r e a s e d r e a c t i ons t o m ul t i pl e pa l pa t i ons c oul d be as i gn ei ther thatthe ho rs e w as fe el i ng m ore pai n o r thatthe ho rs e w as i rr i t at ed. D r. D ussaul tal so agre ed thata horse thathad b ee n i n a tra i l eral l day c ou l d b e m ore a g g r a v a te d th a n ah o r s e th a t h a d b e e n in as ta ll, butopi ne d tha the di d notbe l i e ve L a dy E bony ’ s A c e w a s a ggr a va t e d be c aus e s he onl y r e s ponde d w he n pa l pa t e d on th e la te r a l p a rt o f

h e rp a s te rn . A pp l et on t es t i fi ed fi rs tfor Z ahnd . A pp l et on t es t i fi ed thatL ady E bo ny’ s A ce ha d s pe nte l e ve n t o tw e l ve hour s i n atr a i l e ron the da y of the s how a nd tha tthe tr a i l e rw a s “ pr e tty uns t abl e ” w he n m ovi ng. W i th r e ga r d t o hi s e xa m i na t i on of L a d y E b o n y ’s A c e b e f

o r e th e in s p e c tio n b y th e D e s ig n a te d Q u a lif ie d P e r s o n . A p p le to n te s tif

ie d th a t h e d id n o t o b s e rv e a n y r e a c tio n s . A p p le to n te s tif ie d th a t a h o r s e w ill b e c o m e m o r e irr ita te d w ith r e p e a te dm a s h in g o f its f o o t a n d th a t, de pe ndi ng on the m a nne rof m a s hi ng, a n e xa m i ne rc a n obt a i n adi f f e r e ntr e a c t i on f r om ahor s e . A ppl e t on a l s o obs e rve d tha t , a tl e a s tonc e dur i ng the e xa m i na t i ons of L a d y E b o n y ’s A c e , a n o th e rh o r s e w a lk e d d ir e c tly b e h in d h e r . A c c o r d in g to A p p le to n , m o s t o f

th e tim e ah o r s e w ill m o v e if a n o th e rh o r s e w a lk s b e h in d it d u r in g in s p e c tio n . A p p le to n a d m itte d , o n c r o s s - e x a m in a tio n , th a t h e w a s n o t a v e te r in a r ia n .7

Z a hnd the n t e s t i f

i e d on hi s ow n be ha l f

. Z a hnd t e s t i f

i e d tha thi s oc c upa t i on w a s tr a i ni ng T e nne s s e e W a l ki ng H or s e s a nd tha the ha d be e n i n tha tf i e l d f or fi ft ee n years . Z ahnd t es t i fi ed thathe show ed L ady E bo ny’ s A ce ei gh tt o t en t i m es am onth f

r om M a r c h t o N ove m be r2000. T he i ns t a ntc i t a t i on w a s the onl y one Z a hnd ha d e ve rr e c e i ve d. Z a hnd t e s t i f i e d tha t , on the ni ghtof

the S pr i ng F un S ho w , bo th h e and A pp l et on exam i ned L ady E bo ny’ s A ce before the offi ci al i nspect i on and h e di d n otob se rve a ny re spon se t o p alpat i on du ri ng ei ther exam i nat i on . Z ahnd t es t i fi ed thatthe ki nd of pres sure used on a horse coul d aff ec t th e stren g th o f th e reacti o n . Z ah n d al so t est i fi ed th atL ad y E b o n y’ s A ce w as a “little b it s tu b b o rn a n d h a te f u l th in g ” a n d th a t if

h e rr o u tin e w a s c h a n g e d s h e c o u ld be c om e i rr i t a t e d. Z a hnd obs e rve d tha t , dur i ng one of the e xa m i na t i ons , L a dy E b o n y ’s A c e w a s r e s tin g h e rb a c kf o o t in ap o s itio n th a t ah o r s e w ill n o t ta k e if it is sore . Z ahnd t es t i fi ed thathe di d n otkn ow du ri ng w hi ch i nspect i on the ho rs e r es t ed he rba c k f

oot . I n a ddi t i on, Z a hnd t e s t i f i e d tha ti f

y ou poke on ahor s e ’ s f oot enou gh t i m es eventual l y s he w i l l m ov e. Z ahnd t es t i fi ed that , i n h i s e xp er i ence , h ai r l o ss o r scarring i s ap p aren to n 9 0 p ercen to f so red h o rses. O n cro ssexam i nat i on , Z ahnd adm i tt ed thathe w as no ta vet er i nari an and a vet er i nari an s h o u ld k n o w m o r e , “w ith o u t ad o u b t,” ab o u t w h e th e rah o r s e is s o r e . A f t e rc ons i de r a t i on of

the e vi de nc e , the A dm i ni s tr a t i ve L a w J udge di s m i s s e d the c om pl a i nt . T he A dm i ni s tr a t i ve L a w J udge c onc l ude d tha tthe8

S ec re t ary had es t abl i shed the st atut ory pre sum pt i on thatL ady E bo ny’ s A ce w as s o r e , 1 5 U .S .C . § 1 8 2 5 ( d ) ( 5 ) , b u t Z a h n d h a d r e b u tte d th e s ta tu to ry p r e s u m p tio n . T he A dm i ni s tr a t i ve L a w J udge c onc l ude d tha tZ a hnd ha d r e butt e d the pr e s um pt i on of s or e ne s s w i th e vi de nc e tha tthe r e a c t i ons of L a dy E bony ’ s A c e c oul d be a ttr i but e d t o m ul t i pl e f

a c t or s , i nc l udi ng he rt e m pe ra nd he rl ong da y s pe nti n a tr a i l e r . T he A dm i ni s tr a t i ve L a w J udge w a s a l s o i nf l ue nc e d i n hi s de c i s i on by the l acko f an y p h ysi cal i n d i ci a o f so ri n g ; th e fai l u re o f D r. G u ed ro n t o t est i fy, spec i fi ca l l y w i th regard t o h i s m anner of pal pat i on ; the l ac k o f any re bu tt al ev id en ce to co n trad ict Z ah n d ’s ex p lan atio n s f o r th e m ar e’s b eh av io r; an d Z h an d ’s u n b le m is h e d r e c o r d o f

c o m p lia n c e w ith th e H o r s e P r o te c tio n A c t. O n ap p e a l, th e J u d ic ia l O f f ic e rr e v e r s e d th e A d m in is tr a tiv e L a w J u d g e . A f te rm a k in g in d e p e n d e n t f in d in g s o f

f a c t, th e J u d ic ia l O f

f ic e rs u m m a r ily concl ud ed thatZ ahnd ’ s e vi dence w as no tsuff i ci entt o rebutthe st atut ory p r e s u m p tio n a n d d id n o t o u tw e ig h th e e v id e n c e th a t L a d y E b o n y ’s A c e w a s s o r e . T he Judi ci al O ff

i ce r then add re ss ed the concl usi on s of the A dm i ni stra t i ve L aw J udge a nd hi s di s a gr e e m e nt s w i th thos e c onc l us i ons . T he J udi c i a l O f f i c e rf ound th atth e fai l u re o f D r. G u ed ro n t o t est i fy w as n o ta d etri m en tt o th e S ecret ary’ s case because the pres sure used by D r. G uedron i n p alpat i ng L ady E bo ny’ s A ce w as i rr e l e va nt . W i th r e ga r d t o the abs e nc e of s c a rr i ng, c he m i c a l odor , a nd ha i rl os s , the Judi ci al O ff

i ce r f ou nd that , ac cordi ng t o the po l i cyof the S ec re t ary of A gri cul ture,9

d i g i t al p al p at i o n al o n e i s a h i g h l y rel i ab l e m eth o d o f d et erm i n i n g w h eth er a h o rse i s s or e . B a s e d on hi s “ pe r s ona l e xpe r i e nc e w i th H or s e P r ot e c t i on A c tc a s e s , ” the J udi c i a l O f

f i c e rdi s a gr e e d w i th the c onc l us i on of the A dm i ni s tr a t i ve L a w J udge tha t“ s c a rr i ng, c he m i c a l odor , a nd ha i rl os s a r e the thr e e m os tc om m on i ndi c i aof th e u s e o f

m e c h a n ic a l o rc h e m ic a l s o r in g d e v ic e s ” a n d n o te d th a t D r . D u s s au lt t es t i fi ed thatsore ness w as po ss i bl e w i tho utod or or hai r l oss. T he Judi ci al O ff i ce r r e j e c t e d Z a hnd’ s e xpl a na t i ons f orthe r e a c t i ons of

L a dy E bony ’ s A c e be c aus e he concl ud ed thatL ady E bo ny’ s A ce w as no ta “ si l l y” ho rs e, thati s, a horse that m ove s no m a tt e rw he r e i ti s t ouc he d. T he J udi c i a l O f f i c e rr e vi e w e d avi de ot ape of th e e x a m in a tio n s b y T h o m a s , D u s s au lt, a n d G u e d r o n to s u p p o rt h is f in d in g . F i nal l y, the Judi ci al O ff i ce r f ou nd thatZ ahnd ’ s r ec ord o f c om pl i ance w as i rr el evantt o the qu es t i on w hether L ady E bo ny’ s A ce w as sore d. T he Judi ci al O ff i ce r di d n ototherw i se expl ai n h i s c on cl usi on thatL ady E bo ny’ s A ce w as prov en sore and thatZ ahnd di d n otre bu tthe pres um pt i on . T he Judi ci al O ff i ce r i m pos e d af

i ne of $2200 a nd di s qua l i f

i e d Z a hnd f

r om s how i ng ore xhi bi t i ng f or o n e y e a r . I I . STA N D A R D O F R EVI EW W e r evi ew the fi nd i ng s of the S ec re t ary t o d et erm i ne w hether they are supp ort ed by subst ant i al evi dence. 15 U . S . C . § 1 82 5(b)(2). “ S ub st ant i al evi dence i s : ‘ s om e thi ng l e s s tha n the w e i ghtof the e vi de nc e , a nd the pos s i bi l i ty of dr a w i ng10

tw o i nc ons i s t e ntc onc l us i ons f r om the e vi de nc e doe s notpr e ve nta n a dm i ni s tr a t i ve a g e n c y ’ s f

i n d i n g f r o m b e i n g s u p p o rt e d b y s u b s t a n t i a l e v i d e n c e . ’ ” Th o rn t o n v . U . S. D e p’ tof A gr i c . , 715 F . 2d 1508, 1510 ( 11th C i r . 1983) ( quot i ng C ons ol o v. F e d. M a r . C om m ’ n, 383 U . S . 607, 620, 86 S . C t . 1018, 1026 ( 1966) ) . T o s upportthe fi n d i n g s o f th e S ecret ary, su b st an t i al ev i d en ce m u stb e fo u n d o n th e reco rd as a w hol e . S e e G i l e s L ow e ry S t oc ky a r ds , I nc . v. D e p’ tof A gr i c . , 565 F . 2d 321, 326 ( 5 th C ir . 1 9 7 7 ) . I I I . DI S CUS S I ON T o res ol ve thi s pet i t i on , w e a dd re ss tw o m att er s. F i rs t , w e a dd re ss the nature of the al l eged vi ol at i on of the H orse P rot ec t i on A ct , 15 U . S . C . §§ 18 21 -183 1, at i ss ue i n thi s proce edi ng . S ec on d, w e a dd re ss w hether s ub st ant i al evi dence supp ort s the deci si on of the Judi ci al O ff i ce r thatZ ahnd di d n otre bu tthe st atut ory p r e s u m p tio n . A . T

he A l leged V

i olat i on of

the H orse P rotec t i on A ct T he H or s e P r ot e c t i on A c tm a ke s i ti l l e ga l f ora ny i ndi vi dua l t o e nt e r“ f orthe p u rp o se o f sh o w i n g o r ex h i b i t i n g i n an y h o rse sh o w o r h o rse ex h i b i t i o n , an y h o rse w hi c h i s s or e . ” 15 U . S . C . § 1824( 2) ( B ) . A s us e d by the s t a tut e , s or i ng m e a ns the appl i c a t i on of

de vi c e s orc he m i c a l s t o the f or e l i m bs of

ahor s e t o a c hi e ve the di st i nct i ve hi gh -s t eppi ng gai tof the T enness ee W al ki ng H orse . S ori ng causes in te n s e p a in to th e h o r s e a n d g iv e s th e h o r s e tr a in e ra n u n f a ira d v a n ta g e in11

c o m p e titio n b y a rtif

ic ia lly in d u c in g th e d is tin c tiv e g a it. U nde rthe A c t , ahor s e i s s or e onl y i f the s or e ne s s i s the r e s ul tof one of sev eral art i fi ci al m ean s. ( A ) a n i rr i t a t i ng orbl i s t e r i ng a ge ntha s be e n appl i e d, i nt e rna l l y or ext ernal l y, by a per son t o any l i m b o f aho rs e, ( B ) a ny burn, c ut , orl a c e r a t i on ha s be e n i nf l i c t e d by ape r s on on a ny l i m b of a horse , ( C ) a ny t a c k, na i l , s c r e w , orc he m i c a l a ge ntha s be e n i nj e c t e d by ape r s on i nt o orus e d by ape r s on on a ny l i m b of ahor s e , or ( D ) a ny othe rs ubs t a nc e orde vi c e ha s be e n us e d by ape r s on on a ny l i m b of a horse or a per son h as engaged i n a pract i ce i nv ol vi ng a horse , and, as a r es ul tof such appl i ca t i on , i nfl i ct i on , i nj ec t i on , use, or prac t i ce , such ho rs e s uffe rs , or ca n rea sonabl y be e xp ec t ed t o suffe r, ph ys i ca l pa i n ordi s tr e s s , i nf

l a m m a t i on, orl a m e ne s s w he n w a l ki ng, tr ott i ng, or otherw i se m ov i ng , exce ptthatsuch t erm do es no ti ncl ud e s uch an ap p lic a tio n , in f

lic tio n , in je c tio n , u s e , o rp r a c tic e in c o n n e c tio n w ith the therapeut i c tre atm entof a horse by or un der the supervi si on of a pers on l i ce nsed t o p ra ct i ce vet er i narym edi ci ne i n the S t at e i n w hi ch s uc h tr e a tm e ntw a s gi ve n. I d . § 1 8 2 1 ( 3 ) . A h o r s e is p r e s u m e d to b e s o r e “if it m a n if e s ts ab n o rm a l s e n s itiv ity o rin f la m m a tio n in b o th o f

its f o r e lim b s o rb o th o f

its h in d lim b s .” I d . § 1 8 2 5 ( d ) ( 5 ) . W i th res pectt o L ady E bo ny’ s A ce , there i s no d i sput e thatthe st atut ory p r e s u m p t i o n o f

s o r e n e s s wa s tr i g g e r e d . T h e De s i g n a t e d Qu a l i f i e dP e r s o n a n d two ve t e r i na r i a ns f

orthe D e pa rtm e ntof

A gr i c ul tur e pa l pa t e d L a dy E bony ’ s A c e a nd o b s e rv e d ab n o rm a l s e n s itiv ity in b o th o f h e rf o r e lim b s . “N e v e rth e le s s , it is w e ll12

s e tt l e d tha tthe pr e s um pt i on of s or e ne s s i s r e butt abl e . W hi l e i ti m pos e s on the pa rty a ga i ns tw hom i ti s di r e c t e d the bur de n of pr oduc i ng e vi de nc e t o m e [ e ] tor r e butthe pr e s um pt i on, the bur de n of pr oof r e m a i ns w i th the [ C om pl a i na nt ] a nd ne ve rs hi f

t s t o the R e s ponde nt . ” I n r e M a rt i n, 53 A gr i c . D e c . 212, 223 ( M a r . 16, 1 9 9 4 ) ( b r a c k e ts in o r ig in a l) . B . T h e D ecisi o n o

f th e Ju d i ci a l

O f f i cer th a t Za h n d D i d N o t R eb u t th e S ta tu to ry P r e s u m p tio n o f So r e n e s s I

s Su p p o r te d b y Su b s ta n tia l E v ide n c e . W hether w e c an m eani ng ful l y r evi ew the deci si on of the Judi ci al O ff i ce r th a t Z a h n d f

a ile d to r e b u t th e s ta tu to ry p r e s u m p tio n o f s o r e n e s s is ac lo s e q u e s tio n . T he A dm i ni s tr a t i ve L a w J udge f ound tha tZ a hnd r e butt e d the pr e s um pt i on, butthe J udi c i a l O f

f i c e rdi s a gr e e d. B e c aus e the J udi c i a l O f f i c e ri s notbound by the d eci si o n o f th e A d m i n i strat i v e L aw Ju d g e an d can d raw i n d ep en d en ti n feren ces, w e r evi ew on l y the deci si on of the Judi ci al O ff i ce r f or subst ant i al evi dence. S ee U ni ve r s a l C a m e r a , 340 U . S . a t496, 71 S . C t . a t469. O urde c i s i on i s m a de di f f i c ul tbe c aus e , a l though the J udi c i a l O f f i c e re xpr e s s e d hi s di s a gr e e m e ntw i th the de c i s i on of

the A dm i ni s tr a t i ve L a w J udge , the J udi c i a l O f f i c e rdi d notof

f e ra ny r e a s oni ng f

orhi s de c i s i on tha tZ a hnd di d notr e butthe s t a tut ory pr e s um pt i on. T he J u d ic ia l O f

f ic e rf a ile d to a d d r e s s a t le a s t s o m e o f Z a h n d ’s e v id e n c e a n d e x p la in w h y th a t e v id e n c e d id n o t r e b u t th e p r e s u m p tio n . A tthe he a r i ng, Z a hnd pr e s e nt e d af e w e xpl a na t i ons t o r e butthe pr e s um pt i on13

thatL ady E bo ny’ s A ce w as sore . Z ahnd ’ s e vi dence w as thatL ady E bo ny’ s A ce w as an i rri t ab l e h o rse: sh e h ad b een su b j ectt o th e i rri t at i o n o f a d ay i n a h o rse tra i l er ; she had been subj ec tt o m ul t i pl e pal pat i on s; the m anner of pal pat i on can a f f e c tw he the rahor s e m ove s ; a nd a n i rr i t a t e d hor s e c oul d e xhi bi tgr e a t e rr e a c t i ons tha n anon- i rr i t a t e d hor s e . Z a hnd a l s o pr e s e nt e d tw o othe rpos s i bl e c aus e s f or s om e of the m ove m e nt s of

L a dy E bony ’ s A c e : f

i r s t , A ppl e t on t e s t i f

i e d tha tthe m ove m e ntof

a nothe rhor s e be hi nd ahor s e be i ng e xa m i ne d or di na r i l y w i l l m a ke the l a tt e rhor s e m ove ; a nd s e c ond, Z a hnd obs e rve d tha tL a dy E bony ’ s A c e s t ood r e s tin g ab a c kf

o o t d u r in g a n e x a m in a tio n , w h ic h w a s , in Z a h n d ’s la y e x p e r ie n c e , a pos i t i on ahor s e doe s nott a ke w he n i ti s s or e . B oth A ppl e t on a nd Z a hnd ap p a r e n tly w e r e c r e d ib le w itn e s s e s . T he on l y r es po nse of the Judi ci al O ff i ce r t o thi s e vi dence w as thatthe re cord di d nots upportthe f

i ndi ng tha tL a dy E bony ’ s A c e w a s a“ s i l l y ” hor s e . A l though the r e c or d s upport s tha tf i ndi ng, the s ugge s t i on tha tL a dy E bony ’ s A c e w a s a c t i ng

“ si l l y” w as no tthe sol e e xp l anat i on for herbehavi or offe re d b y Z ahnd . T he t erm

“ si l l y” w as used t o ref

ert o the ho rs e’ s i rr i t abi l i ty. In an af fi davi tprocured by an i nv es t i gat or for the D epartm entof A gri cul ture, Z ahnd st at ed thatthe ho rs e “ w as st i rr ed up , because s he ac t ed si l l y duri ng the w ho l e t i m e s he w as bei ng chec ked. ” T h e A d m in istrativ e L aw Ju d g e d es cr ib ed Z ah n d ’s ex p lan atio n fo r th e h o rs e’s behavi or as “ du e t o the ho rs e a ct i ng ‘ si l l y’ as a r es ul tof spendi ng m ostof the day14

i n ahor s e tr a i l e r , a nd a s ar e s ul tof the e xt e nde d e xa m i na t i on pr oc e s s . ” A l though bo th A pp l et on and Z ahnd prov i ded o ther t es t i m on y s uch thatL ady E bo ny’ s A ce m o v e d w h e n ah o r s e w a lk e d b e h in d h e ra n d th a t ah o r s e w ill n o t r e s t af o o t w h e n it is s o r e , th e J u d ic ia l O f

f ic e rd id n o t e x p la in h is r e je c tio n o f

th e s e e x p la n a tio n s . N e ve rthe l e s s , unde rourhi ghl y de f e r e nt i a l s t a nda r d of

r e vi e w , w e c onc l ude thatthe re

j ec t i on by the Judi ci al O ff i ce r of the expl anat i on thatL ady E bo ny’ s A ce w as “ si l l y” w as i nt ended t o encom pass Z ahnd ’ s e xp l anat i on thatthe m ar e w as a ggr a va t e d ori rr i t a t e d, a nd s ubs t a nt i a l e vi de nc e s upport s tha tf i ndi ng. A s w e ha ve no t ed i n o ur re vi ew of agency dec i si on s und erthe “ arbi trary , capri ci ou s, . . . (or) un supp ort ed by subst ant i al evi dence” s t andard, “ ‘ [t ] he agency mu start i cul at e a r a t i o n a l c o n n e c t i o n b e twe e n th e f a c t s f o u n d a n d th e c h o i c e m a d e . . . . Wh i l e we m ayno tsupp l y are as on ed basi s f or the agency’ s a ct i on thatthe agency i t se l f has n o t g iv e n , w e w ill u p h o ld ad e c is io n o f le s s th a n id e a l c la r ity if th e a g e n c y ’s p a th m a y r e a s onabl y be di s c e rne d. ’ ” R e f r i ge r a t e d T r a ns p. C o. , I nc . v. I . C . C . , 663 F . 2d 528, 531 ( 5th C i r . 1981) ( quot i ng B ow m a n T r a ns p. , I nc . v. A rka ns a s - B e s tF r e i ght S y s . , I nc . , 419 U . S . 281, 285- 86, 95 S . C t . 438, 442 ( 1974) ) . A l though Z a hnd a nd A ppl e t on pr ovi de d t e s t i m ony tha tthe r e a c t i ons of L a dy E bony ’ s A c e c oul d be attri bu t ed t o h eri rr i t abl e t em per a nd m ul t i pl e i rr i t at i on s, D r. D ussaul tt es t i fi ed that L a d y E b o n y ’s A c e w a s n o t a c tin g a g g r a v a te d o rirr ita te d w h e n s h e w a s p a lp a te d . T he Judi ci al O ff

i ce r w as ent i t l ed t o rel y on D ussaul t ’ s t es t i m on y and an15

i nde pe nde ntr e vi e w of

the vi de ot ape of

the e xa m i na t i ons by T hom a s , D us s aul t , a nd G u e d r o n to r e

je c t th e e x p la n a tio n g iv e n b y Z a h n d . T he onl y r e m a i ni ng e vi de nc e of f e r e d by Z a hnd t o r e f

ut e the pr e s um pt i on w a s A p p le to n ’s te s tim o n y th a t th e m o v e m e n t o f o n e h o r s e b e h in d a n o th e rc o u ld c au s e th e la tte rh o r s e to m o v e , a n d Z a h n d ’s te s tim o n y th a t, in h is e x p e r ie n c e , a hor s e w oul d notr e s ti t s f ootw he n i ti s s or e . N e i the rs t a t e m e nti s s uf f i c i e ntf orus t o con cl ud e thatthe deci si on of the Judi ci al O ff i ce r i s notsupp ort ed by subst ant i al e vi de nc e . T he J udi c i a l O f f i c e rw a s e nt i t l e d t o r e l y on both hi s r e vi e w of the vi de ot ape of

the e xa m i na t i ons a nd the e xpe rtt e s t i m ony of ave t e r i na r i a n w ho pe r f orm e d ar e l i abl e e xa m i na t i on of the hor s e r a the rtha n the va gue a nd s pe c ul a t i ve t est i m o n y o f tw o l ay w i tn esses. I V . CONCL US I ON T h e p et i t i o n fo r rev i ew i s DE NI E D.