Case Name: Michael HOPPING v. LOUISIANA HORTICULTURE COMMISSION
Court: Louisiana Court of Appeal
Jurisdiction: Louisiana
Decision Date: 1987-05-27
Citations: 509 So. 2d 751
Docket Number: No. CA 86 0436
Parties: Michael HOPPING v. LOUISIANA HORTICULTURE COMMISSION.
Judges: Before GROVER L. COVINGTON, C.J., and LANIER and ALFORD, JJ.
Reporter: Southern Reporter, Second Series
Volume: 509
Pages: 751–763

Head Matter:
Michael HOPPING v. LOUISIANA HORTICULTURE COMMISSION.
No. CA 86 0436.
Court of Appeal of Louisiana, First Circuit.
May 27, 1987.
Dissenting Opinion June 23, 1987.
Edward P. Glusman, Baton Rouge, for Michael Hopping.
Winston Riddick, Baton Rouge, for Louisiana Horticulture Com’n.
Before GROVER L. COVINGTON, C.J., and LANIER and ALFORD, JJ.

Opinion:
ALFORD, Judge.
Plaintiff, Michael Hopping, filed a petition of suspensive appeal, judicial review, temporary restraining order, and injunctive relief relative to a decision of the Horticulture Commission of Louisiana (the Commission). The trial court affirmed the Commission's decision finding plaintiff in violation of Louisiana horticulture law. Plaintiff now appeals to this court and assigns errors alleging the evidence presented to the Commission did not support its findings of fact, the Commission used an unlawful procedure in obtaining information and thus violated his constitutional rights, the Commission refused to answer interrogatories or comply with his request to produce documents, the penalties imposed exceeded the Commission's authority, and the statutes violated by Mr. Hopping are unconstitutionally vague.
FACTS
The Commission received two complaints, dated July 30, 1984 and September 17, 1984, from Mr. Dennis Gail Abbey, coordinator of the Baton Rouge section, Louisiana chapter of the American Society of Landscape Architects. He apprised the Commission that Michael Hopping was engaged in landscape design at the Iberville Parish courthouse in Plaquemine, Louisiana, and that neither the plans nor specifications were stamped with the registration seal of a licensed landscape architect. Mr. Hopping had entered into an agreement with Bradley-Miremont and Associates, Architects and Engineers, and Forte and Tab-lada, Inc., Engineers, Architects and Planners, to provide "full and complete architectural landscaping services for the [Iber-ville Parish Courthouse], consisting of Plans, Specifications, Estimates, Supervision and Warranty Inspections." Although Mr. Hopping holds a valid landscape contractor's license, he has never been licensed as a landscape architect. He claims to have employed Mr. Chris Braud and Ms. Cynthia Cash, both of whom are licensed, and thus complied with the statute.
Two investigative hearings were held by the Commission on May 8, 1985 and June 11, 1985. The Commission then notified Mr. Hopping that he had violated then LSA-R.S. 37:1964(C) [now redesignated as LSA-R.S. 3:3804(C) ] by receiving fees and soliciting business in the regulated profession of landscape architecture without a license. The Commission issued several subpoenas duces tecum and conducted an adjudicatory hearing on September 20, 1985. Its pertinent findings of fact are as follows:
The Iberville Parish Police Jury contracted with Forte and Tablada and Bradley and Miremont to construct a new courthouse complex in Plaquemine, Louisiana. These two firms, through Bradley and Miremont, contracted with Michael Hopping to provide all landscape architectural drawings, plans, designs, specifications, supervision, and warranty of the landscape work for the Iberville Courthouse Building. Mr. Hopping contracted with Mr. Chris Braud and Ms. Cynthia Cash to provide the landscape architectural services. The specifications and design for the landscaping of the Iberville Courthouse Building was submitted by Mr. Hopping to Bradley-Miremont. Mr. Braud and Ms. Cash were self-employed individuals. They were not regular employees of Michael Hopping. Both were paid on an hourly basis by Mr. Hopping for the work that they actually performed. They did not receive a regular paycheck from Mr. Hopping. They did not receive wages from Mr. Hopping. No workmen's compensation, no FICA, and no income tax were withheld from the monies paid to them by Mr. Hopping. These two individuals paid income tax as self-employed persons and also paid social security taxes as self-employed persons.
REVIEW OF DECISION
Between August 13, 1982 and April 17, 1985, the pertinent time Mr. Hopping was engaged in this project, LSA-R.S. 37:1964(C) read:
No person shall receive fees, whether directly or indirectly, for engaging in a regulated profession, or advertise as engaged in a regulated profession, or solicit business in a regulated profession, unless the person holds a valid appropriate license issued by the commissioner, or has a regular employee who holds a valid appropriate license issued by the commissioner, or is employed by or is working under the direct supervision of a person who holds a valid appropriate license issued by the commissioner.
Based on its findings of fact, the Commission issued a written conclusion of law that Mr. Hopping was guilty of four violations of this statute, since then LSA-R.S. 37:1970(A) [now redesignated as LSA-R.S. 3:3810(A) ] provided that each day on which a violation occurs shall be considered a separate offense. Mr. Hopping had submitted invoices for which he received payments in four separate checks.
The general principle governing judicial review of administrative decisions is that, if the evidence as reasonably interpreted supports the determination of an administrative agency, its orders are accorded great weight and will not be reversed or modified in the absence of a clear showing that the administrative action is arbitrary and capricious. Summers v. Sutton, 428 So.2d 1121, 1129 (La.App. 1st Cir.1983).
Mr. Hopping testified at the adjudicatory hearing that he "did a site analysis and drew up some preliminary plans for the site." He also worked with George Fran-cise, a landscape supervisor for Ascension Contractors, Inc., who answered "Mr. Hopping" in response to the question "[w]ho supervised or directed or gave instructions to you . "?
LSA-R.S. 37:1968(E) and (F) [now redes-ignated as LSA-R.S. 3:3808(E) and (F)] regulated separately the professions of landscape architect and landscape contractor. The former "may prepare and supervise the execution of plans, studies, surveys, specifications, and designs for the preservation, reclamation, or development of land areas, vegetation, hydrology, water features, and nonhabitable landscape features." A landscape contractor "may execute plans, studies, surveys, specifications, and designs prepared by a licensed landscape architect, and may recommend and execute measures for interior and exterior beautification and development through the use of nursery stock." A landscape contractor may also sell nursery stock which he installs.
It is undisputed that Mr. Hopping has never held a license as a landscape architect, although he admitted he prepared some plans and supervised their execution. He represents himself as "Michael Hopping, Landscape Design and Construction" on his letterhead and checking account, and signed the agreement with Bradley-Mire-mont and Forte and Tablada as "Michael Hopping, Landscape Designer." The only way he could be in compliance with the statute was if Chris Braud and/or Cynthia Cash were his "regular employee[s]." Both Mr. Braud and Ms. Cash testified they worked for Mr. Hopping on an hourly consultant basis. Mr. Braud had contracted regularly with Mr. Hopping on different projects for a period of years beginning in 1981. Mr. Hopping paid Mr. Braud $34,-645.06 in 1981, $36,595.96 in 1982, $45,-262.00 in 1983, and $21,346.72 in 1984. Mr. Braud testified he has no space set aside for him at Mr. Hopping's office and works sporadic hours, depending on the individual project. Ms. Cash testified at the investigative hearing, "I always felt that I was more of a consultant than an employee. To me . being a regular employee [means] taking out social security and things like that. I kept my own hours. I'm basically self-employed."
An employee (servant) is a person who lets, hires or engages his services to another to be employed at any work, commerce or occupation whatever for the benefit of the other for a certain price, or upon certain conditions. La.C.C. art. 163; Vining v. Bardwell, 482 So.2d 685 (La.App. 1st Cir.1985), writ denied, 487 So.2d 439 (La. 1986).
In order to meet the requirements of La.C.C. art. 163, the single most important factor to consider in deciding whether the employer-employee relationship exists is the right of the employer to control the work of the employee. Roberts v. State, Through the Louisiana Health and Human Resources Administration, 404 So.2d 1221 (La.1981). The supreme court quoted Blanchard v. Ogima, 253 La. 34, 215 So.2d 902 (1968), at page 1225 as follows:
It is the right of control of the time and physical activities in the other party and the existence of a close relationship between the parties which determine that one is a servant.
We further stated:
'Servant' must be interpreted as that particular kind of agent who has a very close economic relation to, and is subject to very close control by the principal. A servant is one who offers his personal services for a price. He is an integral part of his employer's business and must submit to the control of his physical conduct as well as of his time.
The factors used to determine the right to control are selection and engagement, payment of wages, power of dismissal, and power of control. Varnado v. Sanders, ill So.2d 1205 (La.App. 1st Cir.1985), writ denied, 481 So.2d 630 (La.1986). We feel Mr. Hopping did not exercise such degree of control over Mr. Braud or Ms. Cash so as to constitute an employer-employee relationship. We therefore agree with the Commission's decision that neither Mr. Braud nor Ms. Cash were regular employees of Mr. Hopping and conclude that its findings of fact were not manifestly erroneous. Accordingly, the Commission's legal conclusion that Mr. Hopping did not have a regular employee under LSA-R.S. 37:1964(C) is legally correct.
UNLAWFUL PROCEDURE
LSA-R.S. 49:964(G) of the Louisiana Administrative Procedure Act provides:
The court may affirm the decision of the agency or remand the case for further proceedings. The court may reverse or modify the decision if substantial rights of the appellant have been prejudiced because the administrative findings, inferences, conclusions, or decisions are:
(1) In violation of constitutional or statutory provisions;
(2) In excess of the statutory authority of the agency;
(3) Made upon unlawful procedure;
(4) Affected by other error of law;
(5) Arbitrary or capricious or characterized by abuse of discretion or clearly unwarranted exercise of discretion; or
(6) Manifestly erroneous in view of the reliable, probative, and substantial evidence on the whole record. In the application of the rule, where the agency has the opportunity to judge of the credibility of witnesses by firsthand observation of demeanor on the witness stand and the reviewing court does not, due regard shall be given to the agency's determination of credibility issues.
Mr. Hopping claims the Commission used an unlawful procedure in that the Commission had no authority to issue subpoenas for an investigative hearing and that Mr. Hopping was denied his right of discovery by the Commission's failure to respond to his interrogatories and request for production of documents.
LSA-R.S. 49:956(5) provides that in adjudication proceedings "[a]ny agency or its subordinate presiding officer shall have power to sign and issue subpoenas in the name of the agency requiring attendance and giving of testimony by witnesses and the production of books, papers, and other documentary evidence." Former LSA-R.S. 37:1961(F) [now redesignated as LSA-R.S. 3:3801(F)] authorizes the Commission
to adopt such rules and regulations as are necessary to enforce the provisions of this Chapter and to carry out the intent of the laws contained therein, including, but not limited to, rules and regulations for the following purposes:

(4) To hold hearings and to conduct investigations.
(5) To do all things necessary to prevent fraudulent practices by persons engaged in the professions and occupations regulated by the commission.
The Commission's Rules and Regulations, which were entered in the record, authorize the Director of the Commission to sign a subpoena or order the issuance of a subpoena duces tecum at an investigative hearing. Rule 2.6 does not require the Director to sign the subpoenas but merely authorizes him to do so. The subpoenas issued for the investigative hearing in this case were signed by a hearing officer, who has the authority to preside at all investigative hearings of the Commission under Rule 2.3, and attorney for the Commission. The subpoenas were issued "in the name of the Louisiana Horticulture Commission." However, the subpoenas' assertions that they were issued "under the authority of the Louisiana Revised Statutes Title 49, Section 956(5)(6)" are incorrect, since that statute only governs adjudication proceedings.
Administrative proceedings are not ordinarily governed by the strict rules of judicial proceedings. The key to pleading and procedure in that administrative process is the opportunity to prepare. Generally inadequacies in pleading and notice may be cured if the record establishes a full hearing was had after proper preparation. White v. Louisiana Public Service Commission, 259 La. 363, 250 So.2d 368 (1971). Mr. Hopping was provided notice of the nature of the investigation and a full hearing. If the evidence or testimony tended to incriminate him, he was afforded the opportunity to appear as a witness, request subpoenas for additional witnesses, or examine or cross-examine the witnesses under Rule 2.5. We conclude Mr. Hopping's rights were not prejudiced by the hearing officer's signature on the subpoenas duces tecum for the investigative hearing.
As for the Commission's objections to the interrogatories and request for production, LSA-R.S. 49:956(7) provides that "[a]n agency having power to conduct adjudication proceedings in accordance with this Chapter may adopt rules providing for discovery to the extent and in the manner appropriate to its proceedings." No rules directly pertaining to pre-hearing discovery have been adopted by the Commission. The purpose of the investigative hearing is to establish a factual record upon which to determine if a violation of law has occurred. As a result of such investigations, the Commission may initiate adjudicatory proceedings against persons engaged in any regulated profession. Rule 2.14 of the Rules and Regulations of the Louisiana Department of Agriculture Horticulture Commission. The trial court concluded that there was no showing as to what would be proven by the Commission's compliance in this matter. We agree that pre-hearing discovery would accomplish no further objective than the informal nature of the investigative hearing. Plaintiff's argument in this regard thus has no merit.
PENALTY AND CONSTITUTIONALITY
Mr. Hopping further complains of the cease and desist order issued by the Commission. He was ordered
to cease and desist from rendering landscape architectural services and from advertising in any manner whatsoever that he performs landscape design and to remove from his letterhead any reference to landscape design until such time as he is licensed as a landscape architect or until he has a regular employee who is a licensed landscape architect.
Rule 2.19 provides that "[ujpon determination of violation of Law or Rules and Regulations, the Commission may issue a cease and desist order describing with particularity the violative action and ordering the immediate cessation of said violative action." The conditions imposed in the cease and desist order are not unduly burdensome or oppressive. We decline to overturn a decision under this express grant of authority absent a finding that the Commission's action was arbitrary or capricious.
Finally, Mr. Hopping claims then LSA-R.S. 37:1964(C) and (D) and 37:1968(E) and (F) are unconstitutionally vague. He testified at the adjudicatory hearing that when he "first was approached about taking this job, I made it perfectly clear that I was not a landscape architect." He also testified he was "aware of the laws here" and did not foresee a problem because of his "ongoing relationship with Chris Braud."
A law is fatally vague and offends due process when it denies a person of ordinary intelligence a reasonable oppor tunity to know what action is prohibited so that he may act accordingly. Laws regulating business behavior are held to a lesser standard of "definiteness" than statutes imposing criminal penalties. Carlin Communications, Inc. v. South Central Bell Telephone Co., 461 So.2d 1208, 1214 (La.App. 4th Cir.1984). Mr. Hopping realized that one practicing landscape architecture must have a license and that such a professional would be required in this case. His challenge to these statutes on the ground of vagueness must fail.
For the above and foregoing reasons, the judgment of the trial court in favor of the Horticulture Commission of Louisiana and against Michael Hopping is affirmed. Costs of this appeal are to be paid by plaintiff-appellant.
AFFIRMED.
LANIER, J., dissents and assigns reasons.