Opinion ID: 1996268
Heading Depth: 1
Heading Rank: 19

Heading: Michael Tikoian

Text: The petitioners all maintain that Tikoian's contacts with subcommittee members should not be considered ex parte. In addition, the intervenors maintain that those contacts with the Governor and his staff and the statements to the media should not be considered ex parte communications. Also, the CRMC and Tikoian further contend that, even if the communications with the Governor and his staff and his statements to the media are ex parte contacts, they do not support a finding of bias. Not surprisingly, Champlin's argues that the trial justice had a sufficient evidentiary basis to disqualify Tikoian. The trial justice relied on several of what she found to be contraventions of Tikoian's role as an agency adjudicator in concluding that he was biased. First, the trial justice cited Tikoian's communication with various subcommittee members wherein he promised a compromise plan and his subsequent efforts to lobby them to support the ultimate Goulet plan. This, she found, violated the statutory prohibition against ex parte contacts with the subcommittee members. The trial justice noted that Tikoian's attempt to exert influence over the subcommittee went to the extent of threatening one member that he would not be reappointed to his seat on the CRMC if he did not support the Goulet plan. Second, the trial justice relied on Tikoian's contact with the Governor's office as evidence that he had abandoned his role as an impartial adjudicator. Third, the trial justice pointed to Tikoian's communications with reporters as an indication of the degree of his prejudgment. The trial justice thus found that these contacts, in the aggregate, established Tikoian's bias and necessitated his disqualification. Mindful of our standard of review, we hold that the trial justice's finding that Tikoian was biased is supported by legally competent evidence. Importantly, the bases for her finding of Tikoian's bias and resultant disqualification related to his specific actions and not to his mental processes as an agency adjudicator. She found that he settled on a desired outcome long before the full council hearing and that he worked tirelessly to advance it. The trial justice concluded that Tikoian's efforts to sway the subcommittee and the full CRMC, his statements to the press, and his attempt to divine the position of the Governor's office, all evinced `a preconceived or settled opinion.' See Ryan, 941 A.2d at 185. She also ruled that he improperly advocated against the grant of Champlin's application by making no secret to his colleagues or the local media of his support for an alternative plan and his disdain for Champlin's proposed expansion. See Davis, 427 A.2d at 337. Thus, she held that Tikoian publicly prejudged Champlin's application and that he was incapable of fulfilling the role of an impartial trier of fact. See id. In doing so, she made extensive credibility determinations during the evidentiary hearing, to which we defer, and, which we decline to disturb on appeal. Champlin's is entitled under the guarantees of due process to feel confident that an impartial administrative tribunal is conscientiously considering its application on the basis of its own circumstances. See id. It is not our intent to discourage healthy debate among members of a quasi-judicial board. We do, however, accept the trial justice's holding that Tikoian crossed the line in advocating for one position over another. Further, we recognize that carrying out the functions of state government requires cooperation and the exchange of ideas. The Governor and his staff have an understandable interest in staying abreast of the progress of a high profile matter affecting Rhode Island. However, we are also of the opinion that staying current on important issues moving through agency proceedings can and must be done without engaging in undisclosed ex parte contacts. Particularly in light of the fact that Tikoian was the chairman of the CRMC, it is in keeping with the high canons of justice and fair play if he is disqualified. Barbara Realty Co., 85 R.I. at 157, 128 A.2d at 344. We affirm the trial justice's finding that Tikoian's bias warranted his disqualification from participation with regard to Champlin's application.