Opinion ID: 2615617
Heading Depth: 2
Heading Rank: 1

Heading: Adequacy of the Record for Review

Text: Petitioners argue that the certified record in this case is so imperfect and incomplete that a meaningful appellate review cannot take place. We disagree based upon our review of this court's prior case law and the record itself. On two prior occasions, we have considered the adequacy of an appellate record presented for review. First, in Board of County Commissioners v. Salardino, 136 Colo. 421, 318 P.2d 596 (1957), the court addressed a situation in which two hearings were held on an application for a retail liquor store license. Although the trial court directed the Board to certify a complete record of the proceedings, only a partial record was filed. Notably, the certified record did not contain any transcript from one of the two hearings held before the Board. We held that when reviewing a decision by a Board where there is no record regarding what occurred at a hearing, no judicial determination can be made as to whether the Board acted within its discretion or whether it acted arbitrarily and capriciously in denying an application. See id. at 425, 318 P.2d at 598. Accordingly, we reversed and remanded with directions to the trial court to remand to the Board for a new hearing on the application, the taking and recording of all testimony, exhibits, and other evidence in support of and against the application, and the making of specific findings of fact as to the basis of any grant or denial. See id. at 426, 318 P.2d at 598-99. Fifteen years later, in Doyle, the court again addressed the adequacy of an administrative record. The petitioner in that case argued that there could be no effective appellate review because the transcripts of his administrative hearings, although certified as true and complete, were inaccurate. We held that the burden of providing an adequate record is upon the administrative agency; however, once a record has been certified by an administrative tribunal to a reviewing court, the burden shifts to the person seeking review to show that there are inaccuracies or imperfections in the certified record that prejudice him. See Doyle, 174 Colo. at 154, 483 P.2d at 383. In addition, we held that where the record is imperfect or inaccurate, the court must determine whether or not the record of proceedings... reflects competent and sufficient evidence to support the ... Commission's order. Id. at 153, 483 P.2d at 382. The court of appeals relied upon the Doyle analysis when it held that the record was adequate for meaningful judicial review. Petitioners assert, however, that the certified transcripts of the Board's hearings in the case are so imperfect and incomplete that they are tantamount to non-existent, thus the court of appeals should have remanded the case for a new hearing pursuant to Salardino. We disagree. In the present case, just as in Doyle, a certified record was submitted to the trial court for review. [5] As such, the burden shifts to Petitioner to show that any inaccuracies or imperfections in the record prejudice him on review. See id. at 154, 483 P.2d at 383. In addition, to the extent that the record is otherwise imperfect or incomplete, we must determine whether or not the record reflects competent and sufficient evidence to support the order. See Doyle, 174 Colo. at 153, 483 P.2d at 382. Doyle does not require that the certified record be flawless. Doyle analyzes the sufficiency of an administrative record as a whole, including but not limited to any transcripts of administrative hearings. A review of the material contained within the record in this case demonstrates that there is sufficient material to allow for appellate review. The record in this case is comprised of not only the admittedly deficient taped recordings and transcripts of the hearings, but also includes: (1) minutes from the hearings before the Board; [6] (2) documents, maps, plans, photographs, and plats admitted in the record at these meetings; (3) all motions, resolutions, and ordinances of the Board and Planning Commission; (4) all notices sent or published for all meetings and hearings; (5) all memoranda, studies, and recommendations prepared by or for the County Planning Staff relating to the application; (6) all written materials sent or received by the Board, the Planning Commission, or the County Planning staff; [7] and (7) all written materials sent or received by any persons or entities relating to the application. While the transcripts of the hearings before the Board are incomplete and imperfect, the record itself is nonetheless sufficient to allow appellate review. The totality of the record reveals the arguments addressed by both the proponents and opponents of the application and the Board's basis for its decision. Accordingly, Petitioners have not shown that the imperfections contained in the record prejudiced them upon review. To the contrary, we find that the record, reviewed as a whole, presents sufficient evidence to permit meaningful judicial review of the Board's decision.