Opinion ID: 1392412
Heading Depth: 2
Heading Rank: 2

Heading: Exigent Circumstances Justifying Punitive Action Prior to Hearing

Text: West Virginia Code § 8-14A-3(b) (1997) (Repl.Vol.2003), addresses the requirements for a hearing where a civil service officer faces punitive action and provides as follows: When a civil service accused officer faces a recommended punitive action of discharge, suspension or reduction in rank or pay, but before such punitive action is taken, a hearing board must be appointed and must afford the accused civil service officer a hearing conducted pursuant to the provisions of article fourteen, section twenty [§ 8-14-20], or article fifteen, section twenty-five [§ 8-15-25] of this chapter: Provided, That the punitive action may be taken before the hearing board conducts the hearing if exigent circumstances exist which require it. W. Va.Code § 8-14A-3(b) (emphasis provided). In Alden v. Harpers Ferry Police Civil Service Commission, 209 W.Va. 83, 543 S.E.2d 364 (2001), this Court held that the express language of West Virginia Code § 8-14A-3(b) requires a predisciplinary hearing unless exigent circumstances exist to preclude such a proceeding. Specifically, this Court explained as follows in syllabus point four of Alden: W.Va.Code § 8-14A-3(b) (1997) (Repl. Vol.1998) requires that, before a civil service officer may be disciplined through discharge, suspension, or reduction in rank or pay, he/she must be afforded a predisciplinary hearing before a hearing board unless there exist exigent circumstances that require the recommended disciplinary action to precede such hearing. To the extent our prior decision in the Syllabus of City of Huntington v. Black, 187 W.Va. 675, 421 S.E.2d 58 (1992), is inconsistent with this holding, it is hereby expressly modified. In addressing this issue of exigent circumstances in the present case, the Commission found that exigent circumstances existed to justify punitive action prior to conducting a hearing, based upon public safety concerns. On appeal, the circuit court essentially bypassed this issue by finding that the Appellee did not refuse to test and therefore should not have been suspended or terminated. The circuit court based its conclusion upon its interpretation of the Commission's findings, reasoning that the Commission was unable to conclude that the urine sample as submitted by the Plaintiff was adulterated or what happened to it. . . . A review of the Commission's order, however, indicates the miscalculation in the circuit court's reasoning. During the hearing, members of the Commission did engage in discussion concerning the possible causes for the laboratory results of the urine testing. Commissioner Bagley explained that the Commissioners had great concern about the fire fighters and the dangers of any sort of drug use or alcohol use while on duty. And we certainly don't want any of that sort of thing happening in the Huntington Fire Department. But at the same time, we know that there is a human factor about these things and that mistakes can happen, but we don't know what happened to this specimen that was given. We don't know whether it was adulterated or what happened to it. The possibility of hair follicle testing was thereafter discussed, and it was ultimately determined that the Commission would rule once the record was prepared and reviewed. In the written decision rendered on February 17, 2005, the Commission specifically stated its ultimate finding that the Appellee did violate Policy 19(J) of the City of Huntington's Policy and Procedure Manual. Policy 19(J) prohibits conduct that would obstruct the proper administration of the test. The Commission finds that the accused officer, by substituting his urine sample as testified to by Dr. Raba, has engaged in such conduct. It is a paramount principle of jurisprudence that a court speaks only through its orders. See State v. White, 188 W.Va. 534, 536 n. 2, 425 S.E.2d 210, 212 n. 2 (1992) ([H]aving held that a court speaks through its orders, we are left to decide this case within the parameters of the circuit court's order. (citations omitted)); State ex rel. Erlewine v. Thompson, 156 W.Va. 714, 718, 207 S.E.2d 105, 107 (1973) (A court of record speaks only through its orders[.] (citations omitted)). This principle has been relied upon where conflicting signals are presented by a circuit court. State ex rel. Kaufman v. Zakaib, 207 W.Va. 662, 671, 535 S.E.2d 727, 736 (2000). In Tennant v. Marion Health Care Foundation, Inc., 194 W.Va. 97, 459 S.E.2d 374 (1995), this Court explained the proper approach as follows: As an initial matter, it is clear that where a circuit court's written order conflicts with its oral statement, the written order controls. Therefore, we are left to decide this case within the parameters of the circuit court's order. State v. White, 188 W.Va. 534, 536 n. 2, 425 S.E.2d 210, 212 n. 2 (1992). See also Harvey v. Harvey, 171 W.Va. 237, 241, 298 S.E.2d 467, 471 (1982) ([t]hat a court of record speaks only through its records or orders has been generally affirmed by this Court in subsequent cases). Considering the above authority, we believe it is necessary to give greater credence to the circuit court's order. Thus, we find in this case that the defendants' concerns of the difference between the circuit court's ruling from the bench and the subsequent written order have no merit. 194 W.Va. at 107 n. 5, 459 S.E.2d at 384 n. 5. In the circumstances of this case, we believe these principles regarding judicial proceedings should be applied to the administrative proceeding before us here. Since there is no dispute about the content of the record made before the Firemen's Civil Service Commission, we believe it is appropriate to rely upon the findings of the Commission as reflected by its final order, rather than to base our judgement on one short passage taken from the record that appears to run counter to the Commission's clearly expressed findings and conclusions. Thus, this Court should rely on the Commission's order in examining the soundness of its reasoning. Prior hypothetical discussion notwithstanding, the Commission explicitly states the finding in its written order that the Appellee violated Policy 19(J) by substituting his urine sample. Consequently, we find no basis for the circuit court's conclusion that the Commission's ruling was flawed in that regard. The Commission's order regarding the existence of exigent circumstances justifying punitive action prior to a hearing must stand. Safety issues have consistently been identified as paramount concerns where an employee is possibly using illicit drugs. See Twigg v. Hercules Corp., 185 W.Va. 155, 158, 406 S.E.2d 52, 55 (1990) (holding that drug testing is not violative of public policy where job responsibility involves public safety or the safety of others). Furthermore, safety issues have also been identified as primary considerations in evaluating the issue of whether exigent circumstances exist. In State ex rel. Sweikert v. Briare, 94 Nev. 752, 588 P.2d 542 (1978), for instance, the Nevada court held that the danger to the public from structural and fire hazards resulting from a casino remodeling project improperly approved by a building inspector were sufficient exigent circumstances to warrant the immediate termination of the inspector. 588 P.2d at 544. Likewise, in Bowie v. City of Jackson Police Department, 816 So.2d 1012 (Miss.App.2002), the court explained that extraordinary circumstances warranted an exception to procedural due process requirements where a police officer was suspended without pay. 816 So.2d at 1016. The court found that the officer's use of excessive force in an arrest indicated that his continued employment would result in injury to the public or to private citizens. Id. In the present case, Chief Fuller testified that the safety of other firefighters, as well as citizens of the City of Huntington, would be endangered by the continued employment of the Appellee. In discussing the exigent circumstances standard, Chief Fuller explained that [i]t means an emergency, something urgent, you have to take action to prevent further damage or loss of property and life. Chief Fuller further elaborated as follows: Captain Legg is not only a fire fighter, he is also a fire officer. As such, he's responsible for the lives and property of the citizens in his district and sometimes throughout the whole city. He's also responsible for the safety of the fire fighters under his command. A fire fighter has great latitude statutorily locally by ordinance. A fire officer has access to . . . keys which give access to drugstores, banks, all nature of businesses. The duties of a fire fighter involve  are very physical. They involve life and death decisions. To have a fire fighter that may be under the influence of a substance performing these types of duties to me constitutes an exigent circumstance. This Court holds that the evidence was sufficient to support the determinations of the Commission regarding the existence of exigent circumstances. There is no indication that any of the Commission's findings were clearly wrong, based upon mistake of law, arbitrary, capricious, an abuse of discretion, or otherwise contrary to law. Consequently, we find that the circuit court improperly reversed the decision of the Commission. The order of the Circuit Court of Cabell County is reversed. We direct that the order of the Commission be reinstated. Reversed