Opinion ID: 2632367
Heading Depth: 1
Heading Rank: 6

Heading: Review of the Whole Record

Text: [¶ 24] We also take this opportunity to make an additional clarification. In the past, occasionally, but not consistently, we have recited the following substantial evidence standard: If, after examining the entire record, we find substantial evidence to support the agency's finding, we will not substitute our own judgment for that of the agency. Instead, we will uphold the agency's finding.... In addition, we examine only the evidence which favors the prevailing party, allowing every favorable inference, while omitting consideration of any conflicting evidence. Matter of Injury to Carpenter, 736 P.2d 311, 312 (Wyo. 1987). To the same effect are Jaqua v. State ex rel. Wyoming Workers' Compensation Div., 873 P.2d 1219, 1220-21 (Wyo.1994); Bearden v. State ex rel. Wyoming Workers' Compensation Div., 868 P.2d 268, 269 (Wyo.1994).... Wyoming Steel & Fab, Inc. v. Robles, 882 P.2d 873, 876 (Wyo.1994) (quoting Sinclair Trucking v. Bailey, 848 P.2d 1349, 1351 (Wyo.1993)) (emphasis added). This statement is obviously internally inconsistent. The mandate to review the entire record cannot possibly be accomplished if only the evidence favorable to the prevailing party is examined. This prevailing party's evidence concept developed in the context of judicial review of civil cases and, without careful consideration of the administrative law doctrine, was intermittently utilized in the review of administrative decisions. Mountain States Telephone & Telegraph Company v. Carpenter, 736 P.2d 311, 312 (Wyo.1987) (worker's compensation); Abas v. State ex rel. Wyoming Worker's Compensation Division, 701 P.2d 1153, 1156 (Wyo. 1985), overruled on other grounds by Parnell v. State ex rel. Wyoming Worker's Compensation Division, 735 P.2d 1367 (Wyo.1987) (worker's compensation); Stockton v. Sowerwine, 690 P.2d 1202, 1205 (Wyo.1984) (real estate transaction). [¶ 25] The WAPA, effective January 1, 1966, initially did not address how the record should be considered in the conduct of judicial review. [2] 1965 Wyo. Sess. Laws ch. 108; Dubois Telephone Exchange v. Mountain States Telephone and Telegraph Company, 429 P.2d 812, 816 n. 1 (Wyo.1967). However, the statute was modified: This subsection was amended, effective May 25, 1979, to require agency action, findings and conclusions to be supported by substantial evidence, but also to provide for a review of the whole record. (FN1) [3] Under this standard, we do not examine the record only to determine if there is substantial evidence to support the Board's decision, but we must also examine the conflicting evidence to determine if the Board could reasonably have made its findings and order upon all of the evidence before it. Board of Trustees of School District No. 4, Big Horn County v. Colwell, 611 P.2d 427, 429 (Wyo.1980). Continued reliance in administrative appeals on the prevailing party's evidence clause after enactment of the WAPA was perhaps questionable since the statute established clear standards for judicial review of administrative actions. However, after the 1979 amendment specifically provided for review of the whole record, application of the prevailing party's evidence clause was clearly contrary to the law. We conclude the prevailing party's evidence clause has no place in judicial review of administrative action and shall no longer be considered or applied in contested case decisions subject to the WAPA.