Department of Public Safety & Correctional Services v. Cole

652 A.2d 1159, 103 Md. App. 126
CourtCourt of Special Appeals of Maryland
DecidedFebruary 2, 1995
DocketNo. 401
StatusPublished
Cited by7 cases

This text of 652 A.2d 1159 (Department of Public Safety & Correctional Services v. Cole) is published on Counsel Stack Legal Research, covering Court of Special Appeals of Maryland primary law. Counsel Stack provides free access to over 12 million legal documents including statutes, case law, regulations, and constitutions.

Bluebook
Department of Public Safety & Correctional Services v. Cole, 652 A.2d 1159, 103 Md. App. 126 (Md. Ct. App. 1995).

Opinion

MARVIN H. SMITH, Judge,

Specially Assigned.

The central issue in this case is whether an administrative law judge erred when, without any authentication, he admitted a video tape into evidence. We conclude, as did the circuit judge who heard the matter on appeal, that he did in fact err. There are other issues that we shall discuss, but they are relatively unimportant.

I.

On August 14, 1991, appellee, Gregory Cole, was a merit system employee of the State of Maryland, being a lieutenant as a correctional officer of the Division of Corrections, Department of Public Safety and Correctional Services, at the Roxbury Correctional Institution at Hagerstown. He had been [129]*129there since the opening of the institution in 1983. On the day in question, he was part of an extraction team sent to remove an inmate from his cell. We are told that a cell extraction consists of an organized team of officers who approach a cell to extract an inmate who is unruly by virtue of the kind of behavior exhibited from the cell. As was the institution’s practice, a video tape was made of this extraction. No complaint was made at the time by the inmate or anyone else regarding Cole’s actions during the extraction. At a later time, the tape, with others, was reviewed for training purposes. What was shown on the tape ultimately was brought to the attention of the warden. On February 20, 1992, the warden filed charges against Cole for violating regulations by using unnecessary force against the prisoner during the cell extraction. The charges were retroactive to February 5. Cole was then suspended without pay.

On October 8, 1992, a hearing was conducted at the institution by an administrative law judge. The Department offered the original video tape of the cell extraction into evidence through the warden. This was received over the timely objection of Cole. No issue was made by the Department of the timeliness or sufficiency of Cole’s objection. The only evidence against Cole other than the tape was the testimony of the warden, who was not present at the time of the extraction. No effort was made to authenticate the tape. At this hearing, Cole admitted that he was part of the extraction team and that he was in fact pictured in the video tape. He denied, however, using excessive force against the inmate. The administrative law judge found that “management ha[d] met its burden of proving sustainable charges against Lieutenant Cole” and “ordered that the charges for removal filed by management against Lieutenant Cole [were] justified and accordingly should be sustained.”

A hearing was held before the designee of the Secretary of Personnel on December 16, 1992. On February 2, 1993, that designee adopted the proposed decision of the administrative law judge and ordered that Cole be separated from his position effective with the close of business on February 2, [130]*1301993. On that same day, Cole applied for retirement from State service. His application was approved and his retirement became effective March 1, 1993.

Cole appealed his removal to the Circuit Court for Washington County. The circuit judge (Daniel Moylan, J.) said:

The issue in this case was whether Lieutenant Cole used unnecessary force which could reasonably result in harm or death. By not requiring any authentication whatsoever of the video tape, Lieutenant Cole was deprived of a fair hearing. The principal evidence, indeed the only evidence, was the video tape or silent witness. Where there is nothing to show the reliability of the procedure or that the video tape had not been altered, that portions of it had [not] been deleted or doctored, such evidence is not competent, and the decision of the Administrative Law Judge must be reversed because of the prejudicial effect of admitting incompetent evidence.

Issues presented on this appeal are:

(1) Whether the circuit court erred in ruling that the administrative law judge improperly admitted the video tape of the cell extraction into evidence.
(2) Whether Cole, through counsel, waived his objection to the admission of the video tape by arguing at the administrative hearing that the video tape did not show him using excessive force, and that the video tape spoke for itself.
(3) Assuming that the administrative law judge erred in admitting the video tape of the cell extraction, did the circuit court abuse its discretion in not remanding the case to the Secretary of Personnel for another hearing where the video tape could be properly authenticated?
(4) If Cole prevails in this court or on remand to the Secretary of Personnel, is the Department required to reemploy him?

As indicated, we shall hold that the circuit court did not err in its ruling. We shall further hold that there was no waiver, but that the circuit court should have remanded the case for [131]*131further proceedings before the Secretary of Personnel. We shall leave to the Secretary of Personnel the mootness issue occasioned by Cole’s retirement.

II.

The Department correctly points out that under Maryland Code (1984), § 10-208(b), State Government Article, in a proceeding before an administrative agency that “agency may admit probative evidence that reasonable and prudent individuals commonly accept in the conduct of their affairs and give probative effect to that evidence.” Section 10-208(c) provides that the agency may exclude evidence that is incompetent, irrelevant, immaterial, or unduly repetitious. The Department also correctly makes the point, citing Commission on Medical Discipline v. Stillman, 291 Md. 390, 422, 435 A.2d 747, 763 (1981), and other cases, that administrative agencies are not bound by the technical common law rules of evidence. From this it is argued that the video tape in this case was competent evidence “for either a judicial proceeding or an administrative proceeding,” and, hence, that the administrative law judge “did not err in admitting it, and the circuit court erred in reversing the Secretary’s decision.”

Black’s Law Dictionary 689 (5th ed. 1983) defines incompetent evidence as:

Evidence which is not admissible under the established rules of evidence.... Evidence which the law does not permit to be presented at all, or in relation to the particular matter, on account of lack of originality or of some defect in the witness, the document, or the nature of the evidence itself.

In Department of Public Safety v. Scruggs, 79 Md.App. 312, 322, 556 A.2d 736, 741 (1989), Judge Pollitt for this Court referred to § 10-208(b) of the State Government Article, with which we are here concerned, and § 10-215(g), pertaining to judicial review, and said for the Court:

The critical requirement to be gleaned from these statutes is that, whether in judicial or administrative proceed[132]*132ings, the evidence presented must be considered “competent.”

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652 A.2d 1159, 103 Md. App. 126, Counsel Stack Legal Research, https://law.counselstack.com/opinion/department-of-public-safety-correctional-services-v-cole-mdctspecapp-1995.