Ohio Ass'n of Public School Employees v. Lakewood City School District Board of Education

68 Ohio St. 3d 175
CourtOhio Supreme Court
DecidedJanuary 26, 1994
DocketNo. 92-1877
StatusPublished
Cited by61 cases

This text of 68 Ohio St. 3d 175 (Ohio Ass'n of Public School Employees v. Lakewood City School District Board of Education) is published on Counsel Stack Legal Research, covering Ohio Supreme Court primary law. Counsel Stack provides free access to over 12 million legal documents including statutes, case law, regulations, and constitutions.

Bluebook
Ohio Ass'n of Public School Employees v. Lakewood City School District Board of Education, 68 Ohio St. 3d 175 (Ohio 1994).

Opinion

Moyer, C.J.

We are asked to decide whether procedural due process requires direct face-to-face confrontation between a discharged employee and the principal witness against him at a posttermination arbitration hearing. We hold that there exists no absolute right to face-to-face confrontation under these circumstances, and accordingly we reverse the court of appeals.

It is not disputed that Terry Johnson has a protected property right to continued employment. Cleveland Bd. of Edn. v. Loudermill (1985), 470 U.S. 532, 105 S.Ct. 1487, 84 L.Ed.2d 494. Before the state may deprive a person of a property interest, it must provide procedural due process consisting of notice and a meaningful opportunity to be heard. Id. In some situations, due process requires that the party about to suffer the deprivation first have the opportunity to confront and cross-examine adverse witnesses. Greene v. McElroy (1959), 360 U.S. 474, 79 S.Ct. 1400, 3 L.Ed.2d 1377 (revocation of government contractor’s employee’s security clearance); Goldberg v. Kelly (1970), 397 U.S. 254, 90 S.Ct. 1011, 25 L.Ed.2d 287 (revocation of public assistance benefits). Confrontation [177]*177and cross-examination are important where the government action turns on questions of fact. Id., 397 U.S. at 269, 90 S.Ct. at 1021, 25 L.Ed.2d at 300.

Confrontation and cross-examination are not, however, absolute prerequisites to predeprivation due process. The inquiry as to what process is due depends on the facts of each case. Brock v. Roadway Express, Inc. (1987), 481 U.S. 252, 107 S.Ct. 1740, 95 L.Ed.2d 239. In Brock, the court stated: “Determining the adequacy of predeprivation procedures requires consideration of the Government’s interest in imposing the temporary deprivation, the private interests of those affected by the deprivation, the risk of erroneous deprivations through the challenged procedures, and the probable value of additional or substitute procedural safeguards.” Id. at 262, 107 S.Ct. at 1747, 95 L.Ed.2d at 250.

In Loudermill, a board of education terminated a security guard for lying on his employment application. Ohio law at the time permitted termination without a hearing. The court held that as a classified civil servant, the employee had a protected property right to continued employment, of which he could not be deprived without “ * * * notice of the charges against him, an explanation of the employer’s evidence, and an opportunity to present his side of the story.” Id., 470 U.S. at 546, 105 S.Ct. at 1495, 84 L.Ed.2d at 506. The court held that the procedure need not include a full evidentiary hearing, and distinguished Goldberg, stating that the equities in a welfare case were significantly different from those applicable in the context of public employment. Id., 470 U.S. at 545, 105 S.Ct. at 1495, 84 L.Ed.2d at 506. It is thus clear from Loudermill that no right to confrontation and cross-examination attaches to a pretermination “hearing” of a public employee.

Neither this court nor the United States Supreme Court has yet expressly determined the requirements of procedural due process in a positermination hearing of a public employee. Moreover, the fact that the proceeding was an arbitration, as opposed to a formal courtroom proceeding, was raised as an issue at oral argument in this court. Johnson contended that the collective bargaining agreement did not incorporate the very informal evidentiary rules of the American Arbitration Association (“AAA”), and consequently stricter evidentiary rules should have applied.

The AAA Voluntary Labor Arbitration Rules, which exempt hearings from the “legal rules of evidence” (Rule 28), serve the laudable goal of avoiding much of the formality, time consumption, and expense of a full trial-type hearing. When the arbitration concerns the termination of a public employee with a protected right to continued employment, however, the informality of arbitration may not supersede the requirements of due process. The scope of a property right is not defined by the procedures created for its removal, and due process must be [178]*178satisfied whatever those procedures may be. Vitek v. Jones (1980), 445 U.S. 480, 100 S.Ct. 1254, 63 L.Ed.2d 552.

Consequently, we hold that a terminated public school employee is entitled to procedural due process at the employee’s posttermination arbitration hearing. We measure Johnson’s arbitration hearing against the same baseline due-process requirements that would apply to any type of posttermination hearing. The informality inherent in arbitration does not lower the threshold of the test.

Having held that due process guides the procedures at a posttermination arbitration hearing, we next determine what process is due. Loudermill and Brock suggest that a posttermination hearing must provide the parties a more thorough opportunity to present their evidence and to challenge adverse evidence than that promised at a pretermination hearing. In Loudermill, the court rested its holding, with respect to the pretermination hearing procedures, in part on Loudermill’s opportunity for more thorough posttermination hearings. 470 U.S. at 546-547, 105 S.Ct. at 1495-1496, 84 L.Ed.2d at 506-507. In Brock, the court upheld the informal preliminary procedures because “[flinal assessments of the credibility of supporting witnesses are appropriately reserved for the administrative law judge, before whom an opportunity for complete cross-examination of opposing witnesses is provided.” 481 U.S. at 266, 107 S.Ct. at 1750, 95 L.Ed.2d at 253.

A more thorough posttermination hearing is necessary to “ferret out bias, pretext, deception and corruption by the employer in discharging the employee.” Duchesne v. Williams (C.A.6, 1988), 849 F.2d 1004, 1008. Accomplishing this truth-finding function requires the employment of at least some trial-type procedures. However, the cases provide no bright-line rule that direct face-to-face confrontation is necessary to satisfy due process in a posttermination hearing.

We find support for this view in several federal appellate cases. Papapetropoulous v. Milwaukee Transport Services, Inc. (C.A.7, 1986), 795 F.2d 591, involved the posttermination arbitration hearing of a bus driver who was fired for a sexual assault on a passenger while on duty. The passenger suffered an emotional breakdown during cross-examination and was excused by the arbitrator. The employee argued that the dismissal of the witness deprived him of a full opportunity to cross-examine her. The Seventh Circuit Court of Appeals disagreed, holding that the hearing as a whole afforded appellant a full and fair opportunity to present his own evidence and to challenge adverse evidence. Id. at 600. In West v. Grand Cty.

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Bluebook (online)
68 Ohio St. 3d 175, Counsel Stack Legal Research, https://law.counselstack.com/opinion/ohio-assn-of-public-school-employees-v-lakewood-city-school-district-ohio-1994.