Opinion ID: 2581636
Heading Depth: 1
Heading Rank: 2

Heading: analysis

Text: This court must determine whether sufficient evidence supports the hearing officer's conclusion that Diamondstone lacks the capacity to practice law. We must also consider whether Diamondstone's challenge to the standard of proof in this case requires that we overturn the recommendation that she be transferred to inactive status. And we must evaluate the additional constitutional and statutory claims raised by counsel and by Diamondstone pro se. Title 8 of the ELCs governs attorney disability proceedings. Disability proceedings are not disciplinary proceedings, but they are conducted under the same procedural rules unless otherwise noted in Title 8. ELC 8.2(b), (c)(1). Where, as here, the question of a lawyer's competence arises independently (not in the context of a disciplinary proceeding), ELC 8.2 applies. Compare ELC 8.2 with ELC 8.3. Under ELC 8.2, a review committee may require a hearing if there is reasonable cause to believe that the attorney lacks the mental or physical capacity to practice law. ELC 8.2(a). If the attorney does not obtain counsel, counsel must be appointed. ELC 8.2(c)(2). Once a hearing is ordered, the hearing officer may appoint an independent mental health professional to evaluate the attorney and submit a report. ELC 8.2(c)(4). Rule 8.7 states that the party asserting incapacity must prove that the attorney lacks capacity to practice law by a preponderance of the evidence. ELC 8.7. [3] If the hearing officer finds that the attorney lacks capacity, then he or she must recommend that the attorney be transferred to inactive status. ELC 8.2(c)(5). The Board automatically reviews a hearing officer's finding of incapacity. ELC 8.2(c)(6); ELC 11.2(b)(1). If the Board agrees, then the Board must immediately transfer the attorney to inactive status. ELC 8.2(c)(7). The attorney has a right to appeal the finding of incapacity to this court. ELC 8.4; ELC 12.3. If an attorney is transferred to disability inactive status, he or she may petition the Board for a return to active status once the attorney can show that the disability has been removed. ELC 8.8. Washington cases involving the transfer of an attorney to disability inactive status do not articulate a specific standard of review. See In re Disciplinary Proceeding Against Meade, 103 Wash.2d 374, 378, 693 P.2d 713 (1985); In re Disciplinary Proceeding Against Ryan, 97 Wash.2d 284, 286-87, 644 P.2d 675 (1982); In re Matter of Campbell, 74 Wash.2d 276, 278-79, 444 P.2d 784 (1968). However, the procedure for appealing an order of transfer to inactive status is the same as the procedure for appealing suspensions. See ELC 8.4. When reviewing decisions on disability, we will generally apply the same principles as we have adopted in attorney discipline cases. Sufficiency of the Evidence: Diamondstone challenges the finding of both the hearing officer and the unanimous Board that the Association presented sufficient evidence to establish by a preponderance of the evidence, even by a clear preponderance of the evidence, that she lacks the capacity to practice law. To the extent that Diamondstone challenges the hearing officer's findings of fact, we review them as we would in a disciplinary proceeding. The mere presence of conflicting evidence in the record is not enough to overturn the hearing officer's findings of fact, and we do not ordinarily overturn unanimously approved findings of fact based on conflicting evidence. In re Disciplinary Proceeding Against Egger, 152 Wash.2d 393, 405-06, 98 P.3d 477 (2004). We do not substitute our evaluation of a witness's credibility for that of the hearing officer. Id. Finally, we will uphold the hearing officer's conclusion of law regarding the ultimate finding of capacity if it is supported by the findings of fact. In re Disciplinary Proceeding Against Dynan, 152 Wash.2d 601, 608, 98 P.3d 444 (2004). Here, the hearing officer properly relied on Dr. Grant's uncontroverted testimony, which included his diagnosis. The hearing officer found Dr. Grant to be a reliable and credible witness whose report and testimony were persuasive, unrebutted, and essentially unchallenged. FOF 8, 9. Dr. Grant's qualifications, including board certifications in both psychiatry and forensic psychiatry, are well established and Diamondstone did not object to him being treated as an expert witness. FOF 3; Transcript (TR-I) (Sept. 23, 2003) at 53. Dr. Grant's diagnosis was based on his one hour interview with Diamondstone, [4] the results of the Minnesota Multiphasic Personality Inventory-2 (MMPI-2) test, as well as an extensive review of documentary evidence provided by the Association, including documents and pleadings drafted by Diamondstone herself. FOF 10; TR-I at 74; TR-D at 21. While Dr. Grant reported that Diamondstone scored within normal limits in the MMPI-2 test, he also explained that the test involves self-reporting, and careful answers could have minimized Diamondstone's symptoms. TR-I at 75-77. While the MMPI-2 results indicate no mental illness, the other evidence in the record is overwhelming. Diamondstone complains that Dr. Grant did not seek to determine whether the assertions set forth in her pleadings and letters were true. However, Dr. Grant reviewed documents that contradicted Diamondstone's claims in Diamondstone v. Woods, TR-I at 93-97, and he found Diamondstone's other statements to be incredible. TR-I at 73. The hearing officer was also able to evaluate Diamondstone's assertions in light of testimony from various witnesses denying that they acted as Diamondstone claimed. TR-D at 22; FOF 11. Finally, Diamondstone argues that Dr. Grant was too vague in his discussion of his diagnosis under the American Psychiatric Association's Diagnostic and Statistical Manual of Mental Disorders (DSM-IV). However, Dr. Grant's testimony supports his diagnosis. TR-I at 71-74. He listed the DSM-IV criteria that Diamondstone met [5] and described Diamondstone's symptoms in detail. TR-I at 69-74. Diamondstone contends that even if she has a mental illness, she does not necessarily lack the capacity to practice law. First, she argues that Dr. Grant does not possess the necessary expertise to determine her capacity to practice law. Even assuming for the sake of argument that this is true, the hearing officer, not Dr. Grant, made the ultimate determination that Diamondstone lacks capacity. COL 25, 26. Dr. Grant testified that as a result of [her] mental illness, [Diamondstone's] judgment, ability to process information, and ability to stay on task are all impaired, her thoughts and speech are derailed and tangential, she misperceives information, and [she] suffers from delusions and paranoia. FOF 5. The hearing officer is a lawyer and is therefore able to use this information to form a conclusion as to Diamondstone's capacity to practice law. See In re Disciplinary Proceeding Against Brown, 94 Wash.App. 7, 13-14, 972 P.2d 101 (1998) (noting that members of the dental disciplinary board could use their experience and specialized knowledge to evaluate and draw inferences when evaluating unprofessional conduct). Dr. Grant concluded that Diamondstone does not exhibit symptoms of her mental illness at all times. However, he could not predict what types of situations would trigger impairments in Diamondstone's perceptions, judgment, and reasoning. FOF 7. Diamondstone asserts that because she is not constantly impaired, with supervision she can continue to practice law in some circumstances. [6] However, this court has held that where it is impossible to predict when an attorney's judgment will be affected, a transfer to inactive status is appropriate. Meade, 103 Wash.2d at 378-79, 693 P.2d 713; Ryan, 97 Wash.2d at 287, 644 P.2d 675 (limited license would place too great a policing burden on the Association). Finally, Diamondstone attempts to discredit the testimony of other witnesses including that of Judge Pechman, opposing counsel, and former clients. However, the hearing officer found the Association's witnesses to be generally credible and his evaluation of witness credibility should not be disturbed by this court. See Egger, 152 Wash.2d at 405-06, 98 P.3d 477. The hearing officer considered the cumulative weight of this testimony, along with the report and testimony of Dr. Grant and the extensive documentary evidence in this case. He justifiably concluded that the Association proved Diamondstone lacks the capacity to practice law by a clear preponderance of the evidence. The Preponderance of the Evidence Standard: As stated above, we agree with the ultimate conclusion of both the hearing officer and the Board; the Association has shown Diamondstone lacks the capacity to practice law by a clear preponderance of the evidence. Therefore, there is no need to reach the question of whether the simple preponderance of the evidence standard set forth in ELC 8.7 is unconstitutional. See, e.g., Isla Verde Int'l Holdings, Inc. v. City of Camas, 146 Wash.2d 740, 752, 49 P.3d 867 (2002) (noting that where a case can be resolved on other grounds, this court should decline to reach a constitutional question). Americans with Disabilities Act (ADA) and Equal Protection Claims: ELC 12.1 incorporates the Rules of Appellate Procedure (RAPs) as guidance for review of cases under the ELCs. RAP 2.5(a) states that this court may refuse to review any claim of error which was not raised [at the trial level]; however, a party may raise manifest error affecting a constitutional right for the first time on appeal. RAP 2.5(a). This court has applied RAP 2.5(a) in attorney discipline cases. In re Disciplinary Proceeding Against Curran, 115 Wash.2d 747, 764, 801 P.2d 962 (1990). ADA Claim: [7] Title II of the ADA protects against disability discrimination by public entities. 42 U.S.C. § 12132. Specifically, a public entity may not administer a licensing or certification program in a manner that discriminates against qualified individuals with disabilities. 28 C.F.R. § 35.130(b)(6). A public entity must make reasonable modifications when necessary to avoid discrimination on the basis of disability unless such modifications would fundamentally alter the nature of the government activity. 28 C.F.R. § 35.130(b)(7). Diamondstone contends, for the first time in this court, that her disability proceedings under the ELCs violated the ADA because the Association did not accommodate her perceived mental disability. Diamondstone argues that the Association should have allowed her to continue a limited practice under the supervision of another attorney. Because this claim was not presented to the hearing officer, we decline to reach it; the Association did not have an opportunity to develop facts at the hearing necessary to address Diamondstone's ADA claim. [8] Specifically, the Association did not have the opportunity to show that placing Diamondstone on supervised probation, as she now suggests, would require a substantial modification of its licensing standards. Moreover, the record does not support a finding that Diamondstone is a qualified individual who can meet the Association's licensing requirements, even with her suggested accommodation. Equal Protection Claim: Diamondstone also contends that her transfer to inactive status violates the equal protection clause of the United States Constitution. [9] Specifically she notes, for the first time on appeal, that she will be excluded entirely from the practice of law and may not return to active status until she can show that her disability has been removed. ELC 8.8(a). She argues that this treatment differs from the way that the bar handles both disciplined attorneys and initial bar applicants in that disciplined attorneys are sometimes allowed to continue to practice under supervised probation and initial bar applicants are not required to prove their capacity in order to obtain an initial license to practice law. Under RAP 2.5(a), we decline to address new constitutional issues raised for the first time on appeal unless the claim reflects a manifest error affecting a constitutional right. RAP 2.5(a) was not designed to allow parties `a means for obtaining new trials whenever they can identify a constitutional issue not litigated below.' State v. WWJ Corp., 138 Wash.2d 595, 602, 980 P.2d 1257 (1999) (quoting State v. Scott, 110 Wash.2d 682, 687, 757 P.2d 492 (1988) (quoting State v. Valladares, 31 Wash.App. 63, 76, 639 P.2d 813 (1982), aff'd in part, rev'd in part, 99 Wash.2d 663, 664 P.2d 508 (1983))). If the record is insufficient to evaluate the merits of the constitutional claim, then we must deny review. Id. In addition, the party making the new argument must show a concrete detriment to the claimant's constitutional rights such that actual prejudice has resulted. Id. at 602-03, 664 P.2d 508. Diamondstone has not established a concrete detriment to her constitutional rights or actual prejudice because she has not shown that her equal protection claim could have succeeded below. To survive an equal protection challenge, the ELC provisions at issue here must only be rationally related to a legitimate state objective. State v. Manussier, 129 Wash.2d 652, 673, 921 P.2d 473 (1996); Merseal v. Dep't of Licensing, 99 Wash.App. 414, 420-21, 994 P.2d 262 (2000). [10] The different treatment of disabled attorneys from disciplined attorneys and bar applicants seems rationally related to the legitimate state interest in protecting the public and maintaining the integrity of the legal profession. While disciplined attorneys have sometimes been placed on supervised probation, see In re Disciplinary Proceeding Against Burtch, 112 Wash.2d 19, 29, 770 P.2d 174 (1989), the Association could reasonably predict that, with supervision, those attorneys could practice within the bounds of the Rules for Professional Conduct. The same cannot be said for Diamondstone. In addition, while bar applicants generally need not prove their mental capacity in order to be admitted to the bar, see Admission to Practice Rule 3, those applicants have no prior finding of incapacity to overcome. Therefore, the Association's practice of treating disciplined attorneys and bar applicants differently than it treats incapacitated attorneys would be rationally related to the legitimate state interest in protecting the public and maintaining the integrity of the profession. Diamondstone has not established actual prejudice because she has not shown that her equal protection claim would have succeeded below; she has not shown a manifest error affecting a constitutional right, and therefore we decline to review her equal protection claim in more detail. Issues Raised Pro Se: Diamondstone raises various additional issues pro se. Most of the pro se claims are based upon Diamondstone's belief that Dr. Grant's diagnosis is somehow based on the fact that she is Jewish. This belief seems to arise from Dr. Grant's interview, in which he asked about her support of the establishment of a religious holiday to remember the victims of the holocaust. TR-I at 85. In his testimony, Dr. Grant explained that he was simply curious about the holiday. TR-I at 84-85; Transcript (Sept. 24, 2003) at 417. The hearing officer concluded that Dr. Grant testified credibly that Diamondstone's religion was not a factor in his evaluation. The hearing officer did not accept Diamondstone's contention that Dr. Grant's report was based on any sort of religious discrimination. TR-D at 25; FOF 24. We conclude that there is no evidence in the record to support a claim of religious discrimination. Dr. Grant is Jewish himself; in fact it appears that Diamondstone requested that her evaluation be performed by a Jewish psychiatrist. Clerk's Papers (CP) at 15. We see no reason to overturn the hearing officer's evaluation of Dr. Grant's credibility. Egger, 152 Wash.2d at 405-06, 98 P.3d 477. Therefore, we affirm the hearing officer's conclusion that Dr. Grant did not in any way rely on Diamondstone's religious beliefs to support his diagnosis. Diamondstone also claims that her rights to due process were violated when she was prohibited from representing herself in the disability hearing. This court has held that [i]f an attorney does not have the requisite mental competency ... to adequately represent himself or herself, the attorney's due process right to a fair hearing is violated if the attorney is allowed to appear pro se. Meade, 103 Wash.2d at 381, 693 P.2d 713. Therefore, due process in fact required the Association to appoint counsel to represent Diamondstone in these proceedings. Diamondstone also complains that appointed counsel failed to conduct discovery to investigate whether Dr. Grant relied on medical records that were not, in fact, Diamondstone's. However, nothing in Dr. Grant's testimony, his written evaluation, or in the hearing officer's findings indicates that Dr. Grant or the hearing officer relied on medical records other than Diamondstone's. See TR-I at 110; CP at 19-27. Diamondstone also asserts that the Association did not give her proper notice of the charges because it dismissed disciplinary grievances filed against her but then began disability proceedings based on the same conduct. The Association did dismiss disciplinary proceedings against Diamondstone but noted in the dismissal letters that it would be conducting disability proceedings based on some of the concerns raised in the grievances. See Ex. 3o; Ex. 3y. The Association's decision to dismiss disciplinary proceedings against Diamondstone, therefore, did not eliminate notice that disability proceedings would be pursued. Finally, Diamondstone claims that the Association discriminated against her because she has an allergy to strawberries. There is no evidence in the record to support this claim. The Association referred to Diamondstone's allergies only in the context of describing claims that she brought in federal court. Therefore, there is not sufficient evidence in the record to support a claim that the Association discriminated against Diamondstone based on her allergies. In sum, none of Diamondstone's pro se arguments are convincing in light of the record in this case. [11]