Wetherington v. NC Dep't of Pub. Safety

IN THE COURT OF APPEALS OF NORTH CAROLINA

No. COA18-1018

Filed: 18 February 2020

Office of Administrative Hearings, No. 16 OSP 9787

THOMAS C. WETHERINGTON, Petitioner,

v.

NC DEPARTMENT OF PUBLIC SAFETY, NC HIGHWAY PATROL, Respondent.

Appeal by petitioner from order entered 17 May 2018 by Administrative Law

Judge Donald W. Overby in the Office of Administrative Hearings. Heard in the

Court of Appeals 7 August 2019.

The McGuinness Law Firm, by J. Michael McGuinness; Law Offices of Michael

C. Byrne, by Michael C. Byrne, for petitioner-appellant.

Attorney General Joshua H. Stein, by Special Deputy Attorney General

Tammera S. Hill, for respondent-appellee.

Milliken Law, by Megan A. Milliken, for Southern States Police Benevolent

Association and North Carolina Police Benevolent Association, amici curiae.

Crabbe, Brown & James, LLP, by Larry H. James and Christopher R. Green,

for National Fraternal Order of Police; Essex Richards, P.A., by Norris A.

Adams, II, for North Carolina Fraternal Order of Police, amici curiae.

Edelstein & Payne, by M. Travis Payne, for the Professional Fire Fighters and

Paramedics of North Carolina, amicus curiae.

Tin, Fulton, Walker & Owen, PLLC, by John W. Gresham, for the National

Association of Police Organizations, amicus curiae.

STROUD, Judge.

WETHERINGTON V. N.C. DEP’T OF PUB. SAFETY

Opinion of the Court

It is unlikely so many lawyers have ever before written so many pages because

of a lost hat. True, hats have caused serious problems in prior cases. Once a street

car passenger was blinded in one eye by a hat thrown by a man quarreling with

others.1 Lost and misplaced hats have been important bits of evidence in quite a few

murder and other felony cases.2 People have suffered serious injuries trying to catch

a hat.3 As in those cases, the real issue here is far more serious than an errant hat,

but that is where it started. Up to this point, this case includes over 1,000 pages of

evidence, testimony, briefs, and rulings from courts, from the agency level to the

Supreme Court and back to this Court for a second time. But we agree with

Respondent, this matter is not just about a hat. It is about the tension between the

statutorily protected rights of a law enforcement officer and proper discipline to

protect the integrity and reliability of the North Carolina State Highway Patrol.

This case began in 2009 when Petitioner Wetherington, then a trooper with

the North Carolina State Highway Patrol, misplaced his hat during a traffic stop; he

then lied about how he lost his hat, which was later recovered, mostly intact.

1 Giblett v. Garrison, 232 N.Y. 618, 134 N.E. 595 (1922).

2 Sulie v. Duckworth, 743 F. Supp. 592, 598 (N.D. Ind. 1988), aff’d, 908 F.2d 975 (7th Cir. 1990);

Johnson v. State, 289 Ga. 106, 709 S.E.2d 768 (2011); Bower v. State, 5 Mo. 364 (1838); People v. Baker,

27 A.D. 597, 50 N.Y.S. 771, (N.Y. App. Div. 1898); Thomas v. State, 171 Tex. Crim. 54, 344 S.W.2d 453

(1961);Wilson v. State, 63 Tex. Crim. 81, 138 S.W. 409 (1911); Nelson v. State, 52 Wis. 534, 9 N.W. 388

(1881).

3Rosenberg v. Durfree, 87 Cal. 545, 26 P. 793 (1891); Gulf, C. & S.F. Ry. Co. v. Newson, 45 Tex. Civ.

App. 562, 102 S.W. 450 (1907).

-2-

WETHERINGTON V. N.C. DEP’T OF PUB. SAFETY

Opinion of the Court

Respondent terminated Petitioner’s employment as a trooper based upon its “per se”

rule that any untruthfulness by a state trooper is unacceptable personal conduct and

just cause for dismissal. See N.C. Gen. Stat. § 126-35 (2017). In the first round of

appellate review, the North Carolina Supreme Court concluded, “Colonel Glover’s use

of a rule requiring dismissal for all violations of the Patrol’s truthfulness policy was

an error of law,” and remanded for Respondent to make a decision on the proper legal

basis “as to whether petitioner should be dismissed based upon the facts and

circumstances and without the application of a per se rule.” Wetherington v. N.C.

Dep’t of Pub. Safety, 368 N.C. 583, 593, 780 S.E.2d 543, 548 (2015) (hereinafter

Wetherington I), aff’d as modified, 231 N.C. App. 503, 752 S.E.2d 511 (2013). In 2015

on remand, based upon the same evidence and facts, Respondent again determined

Petitioner engaged in unacceptable personal conduct and there was just cause for his

dismissal. Because Respondent failed to consider the factors as directed by the

Supreme Court on remand, we again reverse and conclude as a matter of law, on de

novo review, that Petitioner’s unacceptable personal conduct was not just cause for

dismissal. In accord with North Carolina General Statute § 126-34.02(a), we remand

to the Office of Administrative Hearings for entry of a new order imposing some

disciplinary action short of dismissal and reinstating Petitioner to the position from

which he was removed.

I. Background

-3-

WETHERINGTON V. N.C. DEP’T OF PUB. SAFETY

Opinion of the Court

The full factual and procedural history of this case leading up to remand can

be found in Wetherington I, 368 N.C. 583, 780 S.E.2d 543. By the time of remand

from the Supreme Court, Colonel Randy Glover, who had originally terminated

Petitioner’s employment, had retired. In March 2013, Colonel William Grey became

the Commander of the North Carolina State Highway Patrol responsible for

considering the appropriate discipline for Petitioner’s violation of the truthfulness

policy on 28 March 2009. Col. Grey did not provide notice or a pre-dismissal

conference to Petitioner, and he reviewed the existing record. On 20 May 2016, Col.

Grey sent a termination letter to Petitioner. The letter states:

Pursuant to the decision of the North Carolina Supreme

Court filed on 18 December 2015, this case has been

remanded back to the North Carolina Highway Patrol for

me to determine, based upon the facts and circumstances

of this case, whether you should be dismissed from the

Highway Patrol, as previously determined by Colonel

Glover, or whether you should be reinstated.

This letter serves as notification of my decision to uphold

your dismissal. My decision is based on my review of the

Report of Investigation and attached documents, my

viewing of the video recording of your interview with

Internal Affairs and the evidence presented by you during

your pre-dismissal conference.

This case has been remanded for me to review based on a

determination that Colonel Glover’s earlier decision to

dismiss you from the Highway Patrol was premised on a

“misapprehension of the law, namely that he had no

discretion over the range of discipline he could administer.”

Accordingly, I review this case with an open mind and with

the full understanding that the range of discipline to be

-4-

WETHERINGTON V. N.C. DEP’T OF PUB. SAFETY

Opinion of the Court

administered, if any, is within my discretion and based on

the unique facts and circumstances of your case.

Your dismissal was based on evidence that you provided

contradictory statements about an incident in which you

lost your campaign hat during a traffic stop, thereby

violating the Highway Patrol’s truthfulness policy. That

policy, at all relevant times, stated, in pertinent part:

“Members shall be truthful and complete in all written and

oral communications, reports, and testimony. No member

shall willfully report any inaccurate, false, improper, or

misleading information.”

....

Consistent with the mandate of the North Carolina

Supreme Court, I have reviewed the record with the

understanding that I have discretion in determining what,

if any, level of punishment is most appropriate based on

the facts and circumstances of this case. I have considered

the entire range of disciplinary actions available under

state law. In that regard, I have taken into consideration

the fact that you had been employed by the Highway Patrol

as a Cadet and as a State Trooper from June 2007 until the

time of your dismissal on August 4, 2009 that you did not

have any disciplinary actions prior to the time of your

dismissal and that your overall performance rating and

work history since being sworn as a Trooper in November

2007 was “Good.”

I am also mindful that, pursuant to Brady v. Maryland, 373

U.S. 83 (1963), prosecutors have constitutional obligation

to disclose evidence favorable to the defendant. “Favorable

evidence” includes evidence that is exculpatory as well as

information that could be used to impeach the testimony of

a prosecution witness. Giglio v. U.S., 405 U.S. 150 (1972).

Consistent with this Constitutional obligation, law

enforcement agencies have a duty to disclose information

to prosecutors, including a summary of Internal Affairs

findings and other applicable conduct that bears on the

-5-

WETHERINGTON V. N.C. DEP’T OF PUB. SAFETY

Opinion of the Court

credibility of any witness who may testify. In federal court,

the United States Attorney, in each of the three North

Carolina districts, routinely requires the Highway Patrol

to disclose, in writing, potential Giglio issues for each and

every case in which a Trooper may testify. Several District

Attorneys have adopted similar policies based on an

understanding that the credibility of the judicial system

rests on the foundation that public servants possess

integrity that is beyond reproach and can be trusted to

testify truthfully in every case. Despite these

Constitutional concerns, I understand that not every

violation of the Highway Patrol’s truthfulness policy

warrants dismissal.

Based upon the facts and circumstances of this case, as

described above, I have no confidence that you can be

trusted to be truthful to your supervisors or even to testify

truthfully in court or at administrative hearings. Given

that you were willing to fabricate and maintain a lie about

such an insignificant fact as losing a campaign cover4 as

part of an attempt to cover up the fact that you did not wear

it during an enforcement contact, I have no confidence that

you would not alter material facts in court in an attempt to

avoid evidence from being suppressed or for the purpose of

obtaining a conviction. Even if my confidence in your

ability to testify truthfully had not been lost, your ability

to perform the essential job functions of a Trooper is

reparably limited due to the Highway Patrol’s duty to

disclose details of the internal investigation to prosecutors,

as discussed above. If you were to return to duty with the

Highway Patrol I could not, in good conscience, assign you

to any position where you may potentially have to issue a

citation, make an arrest or testify in a court of law or

administrative proceeding. There are no Trooper positions

available within the Highway Patrol that do not include

these essential job functions, accordingly, any assignment

would compromise the integrity of the Highway Patrol and

the ability of the State to put on credible evidence to

4 Campaign cover is another term for the official hat worn by State Highway Patrol troopers.

-6-

WETHERINGTON V. N.C. DEP’T OF PUB. SAFETY

Opinion of the Court

prosecute its cases.

For the above-stated reasons, I do not find any level of

discipline, short of dismissal, to be appropriate in your

case. Your violation of the Highway Patrol’s truthfulness

policy, while over a trivial matter, does not negate the fact

that your false story was created by you with

premeditation and deliberation to lie to your supervisor

and you continued to lie to your supervisor for a period of

weeks and only decided to tell the truth after being

confronted with compelling evidence that your story was

untruthful. Additionally, there was no coercion, no

trickery and no other mitigating circumstance present to

mitigate or even explain your misconduct. Instead, the

evidence shows that your fabricated an elaborate story

merely because you were afraid you would possibly be

reprimanded for leaving your patrol vehicle without your

cover. As indicated above, I simply have no confidence

that, if allowed to return to the Highway Patrol, you can be

trusted to testify truthfully and having considered all

mitigating factors and lesser levels of discipline, I have

concluded that the appropriate level of discipline in this

case is Dismissal from the North Carolina Highway Patrol.

The obligations outlined above under Brady and Giglio, as

well as the high standards expected of each member of the

Highway Patrol, preclude me, in my capacity as Patrol

Commander, from ever allowing you to testify in court as a

representative of the Highway Patrol. Therefore it is my

decision to uphold your dismissal.

Petitioner received a final agency decision from Frank Perry, Secretary of the

North Carolina Department of Public Safety, by a letter dated 31 August 2016. The

letter stated the North Carolina Department of Public Safety Employee Advisory

Committee convened and upheld his dismissal for the same reasons as stated in Col.

Grey’s letter. Having exhausted his administrative remedies for a second time,

-7-

WETHERINGTON V. N.C. DEP’T OF PUB. SAFETY

Opinion of the Court

Petitioner filed a second contested case petition with the Office of Administrative

Hearings (“OAH”) to challenge his termination. Petitioner filed motions for judgment

as a matter of law, for judgment on the pleadings, and for summary judgment. These

were all denied by Administrative Law Judge Donald W. Overby. A contested case

hearing was held on 29-30 January 2018 before ALJ Overby.

At the 2018 hearing, all of the exhibits and testimony from the 2009 hearing

were admitted. The only new witnesses were Melvin Tucker, an expert witness for

Petitioner, and Col. Grey, who testified regarding his decision-making process after

remand from the Supreme Court.5 Col. Grey testified that he did not draft or prepare

Petitioner’s termination letter. Col. Grey also testified that he did not review the

Supreme Court’s decision or this Court’s prior decision before making his

determination regarding Petitioner’s termination:

Q. Okay. Now, at that point -- well, I would presume that

you would have been provided the supreme court decision

that, sort of, dumped this back in your lap?

A. I never saw the supreme court decision.

Q. Oh.

A. I didn’t review it.

Q. Okay. All right.· Did anyone provide you the court of

appeals decision in the case right before it reached the

supreme court?

5At the time of the hearing, Col. Grey had been retired from the Highway Patrol for approximately

one year.

-8-

WETHERINGTON V. N.C. DEP’T OF PUB. SAFETY

Opinion of the Court

A. And I don’t know -- I do -- I saw the OAH information,

but I don’t know that -- you know, I don’t recall reviewing

the court of appeals stuff.

Col. Grey was asked about this again on cross examination:

Q. Colonel, you did share with us earlier that you did not

read the supreme court decision; but didn’t you become

aware through some source that the entire court of appeals

and the superior court found there was no just cause for

Trooper Wetherington’s termination?

MS. HILL: Objection.

BY MR. MCGUINNESS:

Q. Did you become aware of that?

THE COURT: Overruled.

THE WITNESS: I did. At some point I understood that, I

think, correct me if I’m wrong, Mr. McGuinness, that OAH

was in favor of the organization, superior court and court

the appeals was in favor of Mr. Wetherington, and the

supreme court remanded it back to the agency. Am I right?

BY MR. MCGUINNESS:

Q. I believe you are. And I guess it just makes me curious

as to why in light of the history of the case and the concerns

that you’ve articulated that -- that you didn’t get into the

supreme court decision and see what particular factors

that they thought was most important, not myself or Miss

Hill, but the supreme court. In your, obviously, your course

of actions, but you chose not to get into that, apparently?

A. That’s correct.

-9-

WETHERINGTON V. N.C. DEP’T OF PUB. SAFETY

Opinion of the Court

In an order entered 17 May 2018, ALJ Overby conducted de novo review of

whether just cause existed for Petitioner’s termination and affirmed the decision to

terminate Petitioner concluding in part:

38. Whether just cause existed for disciplinary

action against a career status State employee is a question

of law, to be reviewed de novo. In conducting that review,

this Court owes no deference to DPS’s just cause decision

or its reasoning therefore and is free to substitute its

judgment for that of the agency on whether just cause

exists for the disciplinary action taken against the

employee.

39. Respondent met its burden of proof and

established by substantial evidence that it had just cause

to dismiss Petitioner from employment with the State

Highway Patrol for unacceptable personal conduct.

40. The Respondent has not exceeded its authority

or jurisdiction; acted erroneously; failed to use proper

procedure; acted arbitrarily or capriciously; and has not

failed to act as required by law or rule.

(Citations omitted.) Petitioner timely appealed to this Court.

II. Preliminary Procedural Issues

We first note that during the long pendency of this case, the procedure for this

appeal has changed.

A. Jurisdiction

The appeal process under North Carolina General Statute Chapter 126, Article

8 for Petitioner’s case changed as of 21 August 2013, when amendments to North

Carolina General Statute Chapter § 126-34.02 became effective.

- 10 -

WETHERINGTON V. N.C. DEP’T OF PUB. SAFETY

Opinion of the Court

Once a final agency decision is issued, a potential,

current, or former State employee may appeal an adverse

employment action as a contested case pursuant to the

method provided in N.C. Gen. Stat. § 126-34.02 (2015). As

relevant to the present case, N.C. Gen. Stat. § 126-34.02(a)

provides:

(a) [A] former State employee may file a

contested case in the Office of Administrative

Hearings under Article 3 of Chapter 150B of

the General Statutes. . . . In deciding cases

under this section, the [ALJ] may grant the

following relief:

(1) Reinstate any employee to the

position from which the employee has

been removed.

(2) Order the employment, promotion,

transfer, or salary adjustment of any

individual to whom it has been

wrongfully denied.

(3) Direct other suitable action to

correct the abuse which may include

the requirement of payment for any

loss of salary which has resulted from

the improper action of the appointing

authority.

One of the issues, which may be heard as a contested

case under this statute, is whether just cause existed for

dismissal, demotion, or suspension. As here, “[a] career

State employee may allege that he or she was dismissed,

demoted, or suspended for disciplinary reasons without

just cause.” N.C. Gen. Stat. § 126-34.02(b)(3). In such

cases, “the burden of showing that a career State employee

was discharged, demoted, or suspended for just cause rests

with the employer.” N.C. Gen. Stat. § 126-34.02(d). In a

contested case, an “aggrieved party” is entitled to judicial

review of a final decision of an administrative law judge

[ALJ] by appeal directly to this Court. N.C. Gen. Stat. §

126-34.02(a); N.C. Gen. Stat. § 7A-29(a).

Harris v. N.C. Dep’t of Pub. Safety, 252 N.C. App. 94, 98, 798 S.E.2d 127, 131-32,

- 11 -

WETHERINGTON V. N.C. DEP’T OF PUB. SAFETY

Opinion of the Court

aff’d, 370 N.C. 386, 808 S.E.2d 142 (2017) (alterations in original).

The amendments in 2013 eliminated one step in appellate review, so there was

no Superior Court review of the OAH decision after remand by the Supreme Court,

as there was in Wetherington I. Neither party has raised any challenges to the

procedure on remand. Petitioner timely appealed the ruling from the OAH to this

Court pursuant to North Carolina General Statute § 126-34.02(a) and North Carolina

General Statute § 7A-29(a). See Peterson v. Caswell Developmental Ctr., ___ N.C.

App. ___, ___, 814 S.E.2d 590, 593 (2018) (“An appeal lies with this Court of a final

decision of the Office of Administrative Hearings pursuant to N.C. Gen. Stat. § 7A-29

(2017).”).

B. Standard of Review

Section 150B-51 of our State’s Administrative

Procedure Act (APA) establishes the scope and standard of

review that we apply to the final decision of an

administrative agency. The APA authorizes this Court to

affirm or remand an ALJ’s final decision, but such a

decision may be reversed or modified only

if the substantial rights of the petitioners may

have been prejudiced because the findings,

inferences, conclusions, or decisions are:

(1) In violation of constitutional provisions;

(2) In excess of the statutory authority or

jurisdiction of the agency or [ALJ];

(3) Made upon unlawful procedure;

(4) Affected by other error of law;

(5) Unsupported by substantial evidence

admissible under G.S. 150B-29(a), 150B-30,

or 150B-31 in view of the entire record as

submitted; or

- 12 -

WETHERINGTON V. N.C. DEP’T OF PUB. SAFETY

Opinion of the Court

(6) Arbitrary, capricious, or an abuse of

discretion.

The particular standard applied to issues on appeal

depends upon the nature of the error asserted. “It is well

settled that in cases appealed from administrative

tribunals, questions of law receive de novo review, whereas

fact-intensive issues such as sufficiency of the evidence to

support an agency’s decision are reviewed under the whole-

record test.”

To that end, we review de novo errors asserted under

subsections 150B-51(b)(1)-(4). Under the de novo standard

of review, the reviewing court “considers the matter anew

and freely substitutes its own judgment[.]”

When the error asserted falls within subsections

150B-51(b)(5) and (6), this Court must apply the “whole

record standard of review.” Under the whole record test,

[the reviewing court] may not substitute its

judgment for the agency’s as between two

conflicting views, even though it could

reasonably have reached a different result

had it reviewed the matter de novo. Rather,

a court must examine all the record

evidence—that which detracts from the

agency’s findings and conclusions as well as

that which tends to support them—to

determine whether there is substantial

evidence to justify the agency’s decision.

“‘Substantial evidence’ means relevant evidence a

reasonable mind might accept as adequate to support a

conclusion.”

“In a contested case under the APA, as in a legal

proceeding initiated in District or Superior Court, there is

but one fact-finding hearing of record when witness

demeanor may be directly observed.” It is also well

established that

[i]n an administrative proceeding, it is the

prerogative and duty of [the ALJ], once all the

evidence has been presented and considered,

to determine the weight and sufficiency of the

evidence and the credibility of the witnesses,

- 13 -

WETHERINGTON V. N.C. DEP’T OF PUB. SAFETY

Opinion of the Court

to draw inferences from the facts, and to

appraise conflicting and circumstantial

evidence. The credibility of witnesses and the

probative value of particular testimony are for

the [ALJ] to determine, and [the ALJ] may

accept or reject in whole or part the testimony

of any witness.

Our review, therefore, must be undertaken “with a high

degree of deference” as to “‘[t]he credibility of witnesses and

the probative value of particular testimony[.]’” As our

Supreme Court has explained, “the ALJ who conducts a

contested case hearing possesses those institutional

advantages that make it appropriate for a reviewing court

to defer to his or her findings of fact.”

Brewington v. N.C. Dep’t of Pub. Safety, 254 N.C. App. 1, 12-13, 802 S.E.2d 115, 124-

25 (2017) (alterations in original) (citations omitted), review denied, 371 N.C. 343,

813 S.E.2d 857 (2018).

The primary issue on appeal is whether the OAH erred in upholding Col.

Grey’s determination of “just cause” to terminate Petitioner’s employment.

Career state employees are entitled to statutory

protections, including the protection from being

discharged, suspended, or demoted without “just cause.”

This Court established a three-part analysis to determine

whether just cause existed for an employee’s adverse

employment action for unacceptable personal conduct:

The proper analytical approach is to first

determine whether the employee engaged in

the conduct the employer alleges. The second

inquiry is whether the employee’s conduct

falls within one of the categories of

unacceptable personal conduct provided by

the Administrative Code. Unacceptable

personal conduct does not necessarily

establish just cause for all types of discipline.

- 14 -

WETHERINGTON V. N.C. DEP’T OF PUB. SAFETY

Opinion of the Court

If the employee’s act qualifies as a type of

unacceptable conduct, the tribunal proceeds

to the third inquiry: whether that misconduct

amounted to just cause for the disciplinary

action taken. Just cause must be determined

based “upon an examination of the facts and

circumstances of each individual case.”

Here, only the third prong of the analysis is at issue,

as the ALJ concluded, and Petitioner did not appeal, the

first two findings that Petitioner had engaged in the

alleged unacceptable personal conduct and that conduct

fell within one of the provided categories.

Peterson, ___ N.C. App.at ___, 814 S.E.2d at 593 (citation omitted) (quoting Warren

v. N.C. Dep’t of Crime Control, 221 N.C. App. 376, 383, 726 S.E.2d 920, 925 (2012)).

Here, as in Peterson, only the “third inquiry” is challenged on appeal, and we

review the conclusion of “just cause” de novo. “Under the de novo standard of review,

the trial court considers the matter anew and freely substitutes its own judgment for

the agency’s.” Wetherington I, 368 N.C. at 590, 780 S.E.2d at 546 (citation and

brackets omitted).

C. Law of the Case

This case’s long history adds another layer of complication. Our review of the

order on appeal is guided both by the standard of review and by the prior rulings in

this case under the law of the case doctrine.

According to the doctrine of the law of the case, once an

appellate court has ruled on a question, that decision

becomes the law of the case and governs the question both

in subsequent proceedings in a trial court and on

subsequent appeal.

- 15 -

WETHERINGTON V. N.C. DEP’T OF PUB. SAFETY

Opinion of the Court

Weston v. Carolina Medicorp, 113 N.C. App. 415, 417, 438 S.E.2d 751, 753 (1994)

(citing Transportation, Inc. v. Strick Corp., 286 N.C. 235, 210 S.E.2d 181 (1974)).

The law of the case doctrine applies only to the issues decided in the previous

proceeding.

In North Carolina courts, the law of the case applies only

to issues that were decided in the former proceeding,

whether explicitly or by necessary implication, but not to

questions which might have been decided but were not.

“[T]he doctrine of the law of the case contemplates only

such points as are actually presented and necessarily

involved in determining the case.”

Goldston v. State, 199 N.C. App. 618, 624, 683 S.E.2d 237, 242 (2009) (alteration in

original) (quoting Hayes v. Wilmington, 243 N.C. 525, 536, 91 S.E.2d 673, 682 (1956)),

aff’d by an equally divided court, 364 N.C. 416, 700 S.E.2d 223 (2010).

In his Petition for a Contested Case Hearing filed after Col. Grey issued his

determination on remand, Petitioner argued, “The law of the case controls[,]” citing

to Wetherington I. In Wetherington I, the Supreme Court notably did not reverse or

vacate either the Superior Court’s order or this Court’s opinion, which was affirmed

as modified. See Wetherington I, 368 N.C. at 593, 780 S.E.2d at 548-49. In addition,

the Superior Court’s order and this Court’s opinion reversed ALJ Gray’s order which

was on appeal in Wetherington I. The Supreme Court instead held:

Nevertheless, the superior court determined that

petitioner’s conduct did not constitute just cause for

dismissal, and the Court of Appeals affirmed that

- 16 -

WETHERINGTON V. N.C. DEP’T OF PUB. SAFETY

Opinion of the Court

determination. Because we conclude that Colonel Glover’s

use of a rule requiring dismissal for all violations of the

Patrol’s truthfulness policy was an error of law, we find it

prudent to remand this matter for a decision by the

employing agency as to whether petitioner should be

dismissed based upon the facts and circumstances and

without the application of a per se rule. As a result, we do

not decide whether petitioner’s conduct constitutes just

cause for dismissal.

Accordingly, the decision of the Court of Appeals is

modified and affirmed, and the case is remanded to the

Court of Appeals with instructions to that court to remand

to the Superior Court, Wake County for subsequent

remand to the SPC and further remand to the employing

agency for additional proceedings not inconsistent with

this opinion.

Id. at 593, 780 S.E.2d at 548 (citation omitted). Therefore, the Supreme Court

modified this Court’s opinion in Wetherington I only regarding this Court’s holding,

which was, “The superior court did not err in concluding that Petitioner’s conduct did

not constitute just cause for dismissal.” 231 N.C. App. at 513, 752 S.E.2d at 517.

As ALJ Overby noted, the basic facts as to the traffic stop in 2009, the loss of

the hat, and Petitioner’s statements about it were determined in Wetherington I. The

remand by the Supreme Court did not limit Respondent’s options on remand but gave

Respondent the opportunity to develop additional evidence as to those events in 2009,

to amend its charges against Petitioner, and to present additional substantive

evidence at another contested case hearing. See Wetherington I, 368 N.C. at 593, 780

S.E.2d at 548-49. Since the Supreme Court was considering a legal issue, the holding

and open-ended remand gave Respondent at least two options. One option was for

- 17 -

WETHERINGTON V. N.C. DEP’T OF PUB. SAFETY

Opinion of the Court

Respondent to pursue amended charges or consider additional evidence on remand,

if it determined the facts required further development. See N.C. Dep’t of Env’t &

Nat. Res. v. Carroll, 358 N.C. 649, 674-75, 599 S.E.2d 888, 904 (2004) (“Ordinarily,

when an agency fails to make a material finding of fact or resolve a material conflict

in the evidence, the case must be remanded to the agency for a proper finding.”).

Another option, which Respondent elected, was to proceed upon the same evidence

and facts as established in Wetherington I regarding the events in 2009 and to make

a new determination of “whether petitioner’s conduct constitutes just cause for

dismissal” based upon the specific factors as directed by the Supreme Court. See

Wetherington I, 368 N.C. at 593, 780 S.E.2d at 548.

D. Adjudicated Facts

At the second contested case hearing, no new substantive evidence regarding

the facts surrounding the loss of the hat was presented. The transcripts and exhibits

from the first hearing were all admitted into evidence. In the order, ALJ Overby

noted that both the Court of Appeal and Supreme Court in Wetherington I had quoted

“fifteen specific findings of fact” from the prior order which were not “successfully

challenged on appeal” in Wetherington I and “thus are conclusively established on

- 18 -

WETHERINGTON V. N.C. DEP’T OF PUB. SAFETY

Opinion of the Court

appeal.”6 “[T]he established and settled facts of the underlying events for which

Petitioner was terminated” quoted by the Supreme Court in Wetherington I are:

5. On March 29, 2009, Petitioner, while on duty,

observed a pickup truck pulling a boat and made a traffic

stop of that truck on U.S. 70 at approximately 10:00 pm.

During that traffic stop, Petitioner discovered two loaded

handguns in the truck and smelled the odor of alcohol

coming from the interior of the truck. The two male

occupants of the truck were cooperative and not

belligerent. Petitioner took possession of the handguns. At

the conclusion of that traffic stop, Petitioner proceeded to a

stopped car that had pulled off to the side of the road a

short distance in front of the truck and boat trailer.

6. Petitioner testified that he first noticed his hat

missing during his approach to the car parked in front of

the truck. Petitioner heard a crunch noise in the roadway

and saw a burgundy eighteen-wheeler drive by.

7. Petitioner testified that after the conclusion [of]

his investigation of the stopped car, he looked for his hat.

Petitioner found the gold acorns from his hat in the right

hand lane near his patrol vehicle. The acorns were

somewhat flattened.

....

9. After searching for, but not locating his hat,

Petitioner contacted Sergeant Oglesby, his immediate

supervisor, and told him that his hat blew off of his head

and that he could not find it.

6 These findings were in ALJ Beecher Gray’s order based upon the 2009 hearing. It is true that these

findings are the “established and settled facts,” although the Superior Court and this Court reversed

ALJ Gray’s order in Wetherington I based upon de novo review of the “just cause” conclusion. Petitioner

challenges some of these “adjudicated facts” on appeal as unsupported by substantial evidence. There

are good arguments both ways on whether this Court would be able to review those facts on appeal or

if they are part of the law of the case. But based upon our analysis of the case, we need not address

this portion of Petitioner’s argument.

- 19 -

WETHERINGTON V. N.C. DEP’T OF PUB. SAFETY

Opinion of the Court

....

11. Trooper Rink met Petitioner on the side of the

road of U.S. 70. Trooper Rink asked Petitioner when he

last saw his hat. Petitioner said he did not know. . . .

Petitioner said that he was going down the road . . . and

was putting something in his seat when he realized he did

not have his hat. Petitioner then indicated that he turned

around and went back to the scene of the traffic stops and

that is when he found the acorns from his hat. Petitioner

was very upset and Trooper Rink told Petitioner that

everybody loses stuff and that if Petitioner did not know

what happened to his hat, then he should just tell his

Sergeants that he didn’t know what happened to it.

Petitioner replied that it was a little late for that because

he already had told his Sergeant that a truck came by and

blew it off of his head.

....

13. The testimony of Trooper Rink provides

substantial evidence that Petitioner did not know what

happened to his hat, was untruthful to Sergeant Oglesby

when he said it blew off of his head, and that Petitioner’s

untruthfulness was willful.

....

15. The next day, March 30, 2009, Sergeant Oglesby

and several other members of the Patrol looked for

Petitioner’s hat.

16. Sergeant Oglesby had a detailed conversation

with Petitioner on the side of the road regarding how the

hat was lost. During the conversation, Petitioner remained

consistent with his first statement to Sergeant Oglesby

from the night of March 29, 2009 as he explained to

Sergeant Oglesby that a gust of wind blew his hat off of his

head. Petitioner continued stating that the wind was

- 20 -

WETHERINGTON V. N.C. DEP’T OF PUB. SAFETY

Opinion of the Court

blowing from the southeast to the northwest. Petitioner

said he turned back towards the direction of the roadway

and saw a burgundy eighteen[-]wheeler coming down the

road so he could not run out in the roadway and retrieve

his hat. Petitioner then heard a crunch and did not see his

hat anymore.

....

18. Petitioner was not truthful to Sergeant Oglesby

on March 30, 2009, when he explained how he lost his hat.

....

20. Petitioner testified that, approximately three to

four days after the loss of the hat, he suddenly realized that

the hat did not blow off of his head, but that he had placed

the hat on the light bar of his Patrol vehicle and it blew off

of the light bar. Petitioner never informed any supervisors

of this sudden realization.

21. Approximately three weeks after the hat was

lost, Petitioner received a telephone call from Melinda

Stephens, during which Petitioner was informed that her

nephew, the driver of the truck and boat trailer on March

29, 2009, had Petitioner’s hat.

22. Petitioner informed Sergeant Oglesby that his

hat had been found.

23. Petitioner’s hat subsequently was returned to

Sergeant Oglesby. When returned, the hat was in good

condition and did not appear to have been run over.7

7 As noted in Finding 7, “Petitioner found the gold acorns from his hat in the right hand lane near his

patrol vehicle. The acorns were somewhat flattened.” Wetherington I, 368 N.C. at 586, 780 S.E.2d at

544. When the hat was recovered, the acorns were missing from the hat, but it was not crushed. Thus,

the hat had not been run over by an eighteen-wheeler—at least not to the point the hat was destroyed.

There was some debate at the hearing over whether a hat without acorns is in “good condition.” For

purposes of this opinion, we assume so.

- 21 -

WETHERINGTON V. N.C. DEP’T OF PUB. SAFETY

Opinion of the Court

24. Due to the inconsistencies in Petitioner’s

statements and the condition of the hat, First Sergeant

Rock and Sergeant Oglesby called Petitioner to come in for

a meeting. During the meeting, First Sergeant Rock asked

Petitioner to clarify that the hat blew off of his head and

that the hat was struck by a car. Petitioner said yes. First

Sergeant Rock then pulled Petitioner’s hat out of the

cabinet and told Petitioner that his story was not feasible

because the hat did not appear to have been run over. At

that point, Petitioner broke down in tears and said he

wasn’t sure what happened to his hat. He didn’t know if it

was on the trunk lid of the truck, the boat, or behind the

light bar, and blew off. Petitioner stated that he told

Sergeant Oglesby that the hat blew off his head because he

received some bad counsel from someone regarding what

he should say about how the hat was lost.

25. During his meeting with First Sergeant Rock

and Sgt. Oglesby, Petitioner was untruthful when he told

First Sergeant Rock that the hat blew off of his head

because by Petitioner’s own testimony, three days after

losing his hat he realized that he placed it on his light bar.

However, three weeks after the incident, in the meeting

with First Sergeant Rock and Sergeant Oglesby he

continued to claim that the hat blew off of his head. It

wasn’t until First Sergeant Rock took the hat out and

questioned Petitioner more that Petitioner admitted that

the hat did not blow off of his head, but blew off of the light

bar. Therefore, even if Petitioner was confused on March

29, 2009, as he claims, he still was being untruthful to his

Sergeants by continuing to tell them that the hat blew off

of his head . . . .

....

33. Petitioner’s untruthful statements to First

Sergeant Rock and Sergeant Oglesby were willful and were

made to protect himself against possible further reprimand

because of leaving the patrol vehicle without his cover.

- 22 -

WETHERINGTON V. N.C. DEP’T OF PUB. SAFETY

Opinion of the Court

Wetherington I, 368 N.C. at 585-88, 780 S.E.2d at 544-46 (alterations in original).

III. New Findings of Fact on Remand

ALJ Overby made additional findings of fact regarding Col. Grey’s

consideration on remand. Many of these findings did not exist before remand and

were not addressed in Wetherington I, although some are essentially reiterations of

the “adjudicated facts” regarding events in 2009 and some are actually conclusions of

law. We will refer to these new findings as the “remand findings” to distinguish them

from the “adjudicated facts.” Petitioner challenges some of the remand findings as

unsupported by substantial evidence.8

8. Col. Grey’s termination letter is very specific

about what he reviewed in making his decision. He

considered the Report of Investigation and attached

documents, the video recording of Petitioner’s interview

with Internal Affairs, and the evidence presented by

Petitioner during his pre-dismissal conference.

9. In the letter, Col. Grey recognizes that he has

discretion to administer any level of punishment. He

acknowledges mitigating factors, including Petitioner’s

work history.

10. There are four enumerated facts that the

Colonel recites as the basis of his decision to terminate.

Those facts, as set forth in the letter, are consistent with

the Facts as found by ALJ Gray. Within the four

enumerated facts, Col. Grey states his conclusions

regarding the facts as he recites the proven facts as the

basis for his decision.

8Petitioner challenges Findings 15, 17, 18, 28, 29, 30, 32, 34, 35, 36, 47, 48, 60, 62, 64, 65, and 66. We

address the arguments as to specific findings as appropriate below.

- 23 -

WETHERINGTON V. N.C. DEP’T OF PUB. SAFETY

Opinion of the Court

11. Col. Grey states that Petitioner violated the

Patrol’s truthfulness policy by making contradictory

statements (plural) about how he lost his campaign cover.

....

14. Col. Grey did not write the termination letter,

and he does not know who wrote the letter. It was given to

him to sign.

15. It is not of consequence that Col. Grey did not

write the dismissal letter. By signing the letter, he is

taking full responsibility and ownership for its contents.

Likewise, Col. Grey did not need to be fully aware of Col.

Glover’s testimony because Col. Grey was reviewing the

file and drawing his own conclusions from the full record in

the hearing.

16. Trooper Wetherington’s employment was

terminated based on the allegations of untruthfulness.

Petitioner’s untruthful statements were about where his

hat was physically located when it was blown away from

his care and control.

17. Wetherington initially stated his hat blew off his

head and became lost during a traffic stop, and that is what

he reported to his supervisor, Sergeant Oglesby, knowing

that statement not to be true.

18. From the Adjudicated Facts of this case,

Petitioner Wetherington sought counsel from someone who

suggested what he should say about the lost hat, after

which he called Sgt. Oglesby. He then talked with Trooper

Rink who counseled him to tell the truth, but Petitioner

told Trooper Rink that it was too late because he had

already told Sgt. Oglesby a story that was not true.

Petitioner continued to maintain his untrue statements

until confronted with the return of his campaign cover, i.e.,

hat.

- 24 -

WETHERINGTON V. N.C. DEP’T OF PUB. SAFETY

Opinion of the Court

19. According to Petitioner Wetherington, he had a

sudden realization three to four days later of the hat’s

actual location when he lost it but never informed any of

his superiors of that revelation.

20. It has been practically a universally held

opinion, including Col. Grey, that the underlying premise

of a lost campaign cover in and of itself was not a

significant violation. The issue pertains to Petitioner’s

untruthfulness.

....

23. The remand hearing before the undersigned

primarily focused on Col. Grey’s decision, including his

application of the just cause factors required by North

Carolina’s just cause law. Two witnesses testified at the

remand hearing on January 29 and 30, 2018, Col. William

Grey for the Respondent and retired Chief Melvin Tucker

for Petitioner.

....

25. At the time of the hearing, Col. Grey was still

familiar with the policies of the SHP. The policy on

truthfulness, he remembered, was fairly simple: “You’re

just required to be truthful in all your communications

whether they’re oral or written at all times.”

26. As the commander of the SHP, Col. Grey felt that

truthfulness was paramount, not just for the SHP, but for

all law enforcement:

[Y]ou gotta have trust that a person is

credible, has moral courage to step up and do

the right thing and is going to be honest and

forthright in all their communications…. You

take people’s freedoms, you’re gonna charge

them with stuff and in a worst case scenario,

you can-you can take their life, if the situation

- 25 -

WETHERINGTON V. N.C. DEP’T OF PUB. SAFETY

Opinion of the Court

calls for it, so you got [to] be sure that person

is always aboveboard and forthright.

27. During his tenure as Colonel, Col. Grey

disciplined members of SHP. He gave the full range of

discipline from written warnings to days off to dismissals.

In making his decision to discipline a member, it was Col.

Grey’s practice to review the entire case, including the

internal affairs investigation and the member’s work

history, and he would make a decision based on the totality

of the circumstances surrounding the case.

28. Col. Grey received this case after the Supreme

Court ruled to remand the matter for decision. Col. Grey

never read the Supreme Court decision in this contested

case; however, it was explained to him. As he understood

the Supreme Court ruling, he was to review the case as if

for the first time and make his decision from the evidence

presented.

29. Col. Grey did not have to read the Supreme Court

decision to understand the full import of all of its holdings.

The provisions of the decision were explained to him in

sufficient detail for him to properly consider the provisions

of the Supreme Court decision in conducting the review

and making his decision in this contested case.

30. Over the course of a few days, Col. Grey reviewed

the recordings, transcripts, internal investigation report,

and pre-disciplinary information, as well as Petitioner’s

work history and disciplinary history. Col. Grey treated

this case like any other case coming to him for the first

time.

31. Col. Grey did not know Petitioner and had never

worked with him at SHP. Col. Grey did not speak with

Petitioner during his review of Petitioner’s case. This was

not unusual since he did not usually speak with members

prior to issuing discipline. He would only review the

information presented to him after the pre-disciplinary

- 26 -

WETHERINGTON V. N.C. DEP’T OF PUB. SAFETY

Opinion of the Court

conference just as he did with Petitioner’s case.

32. Col. Grey determined Petitioner’s dismissal was

appropriate based on Petitioner's violation of the

truthfulness policy. It was not a “spontaneous lie.” Rather,

Petitioner “had time to think about it, he thought about it,

and then he called his sergeant and told him a lie, knowing

that it was untrue, and then he changed his story from his

first statement to a second statement.” It was not until he

was confronted with the truth that Petitioner finally

admitted: “Okay, I’m not telling the truth.”

33. Col. Grey considered evidence of mitigation, as

well as all other forms of discipline available to him, but

decided that dismissal was the most appropriate discipline

given Petitioner’s conduct. Col. Grey made his decision

without regard for what the Secretary of the Department

of Public Safety or anyone else wanted. He was not

pressured to dismiss Petitioner.

34. Col. Grey did not feel that the matter was “just

about a hat.” Instead, the Colonel was bothered that

Petitioner was willing to go to such lengths to lie about an

event when there was not “a whole lot on the line there.”

Had Petitioner been truthful and confessed that he simply

did not know what happened to his hat, the Colonel likely

would not have known about it, because it would not rise

to the level of his review. Petitioner would most likely have

been given a written warning or a counseling.

35. Col. Grey felt that the fact that Petitioner had

just concluded a “high-intensity” yet routine traffic stop

does not negate the fact that Petitioner intentionally lied

to his sergeant about how he lost his hat. Col. Grey also

felt that the fact that Petitioner was a relatively new

trooper does not negate the fact that he intentionally lied

to his sergeant and continued to maintain the lie. While it

might be expected that less experienced troopers will make

more technical mistakes, the same cannot be said for moral

mistakes, according to Col. Grey.

- 27 -

WETHERINGTON V. N.C. DEP’T OF PUB. SAFETY

Opinion of the Court

36. The fact that Petitioner was willing to lie about

such a relatively small thing as losing his hat caused Col.

Grey to lose confidence in the integrity of Petitioner. This

is consistent with the findings in the Recommended

Decision by Judge Gray, which speaks of the widely held

position with the Highway Patrol and not just Colonel

Glover’s position of a per se violation. For Col. Grey to

reach that conclusion is not a new allegation, but a finding

based upon the facts and circumstances existing in the

2009 case as found by Judge Gray.

....

52. The transcript of the first OAH hearing shows

that Trooper Wetherington was 23 years old at the time of

the first hearing. He graduated from New Bern High

School in 2005. Wetherington was a volunteer firefighter

and an American Red Cross Instructor. Wetherington

graduated from the Highway Patrol Academy in 2007.

53. According to that transcript, Wetherington was

not previously disciplined by SHP. Wetherington was

rated as one of the highest producers while in the field

training program. His work and conduct history revealed

exemplary service and conduct. In his 2008-2009

evaluation, Trooper Wetherington was rated as good or

very good in every rating category. Judge Gray found that

Wetherington’s overall performance rating in 2008 was “3,”

which was average. Colonel Grey was aware of

Wetherington’s work history.

54. The Employee Advisory Committee report found

that Wetherington was a very “devoted, dedicated”

Trooper, and unanimously recommended reinstatement.

Colonel Grey was aware of the Committee report.

55. The record of this contested case reflects that

several laypersons and some of Wetherington’s supervisors

testified before Judge Gray in the first hearing at OAH.

They testified to Wetherington’s excellent work

- 28 -

WETHERINGTON V. N.C. DEP’T OF PUB. SAFETY

Opinion of the Court

performance, character, and conduct. This Tribunal did not

hear their testimony and therefore is unable to assess the

credibility of their individual testimonies by taking into

account the appropriate factors generally used for

determining credibility. Their testimony is considered and

given the appropriate weight.

56. Likewise, seven letters were written on

Petitioner’s behalf. Two of the authors also appeared and

testified before Judge Gray. The letters have been

considered.

57. The circumstances of the traffic stop wherein the

hat was lost was also considered by Col. Grey and the

undersigned. It is noted that there were two occupants in

the truck he stopped, that there was an odor of alcohol, and

that there were two guns in the truck. The guns were

removed, and the occupants were cooperative and were

released without incident.

...

58. Disparate treatment is a factor which may be

considered in assessing discipline.

59. The issue of disparate treatment was raised in

the OAH hearing before Judge Gray in 2009. Judge Gray

made specific Findings of Fact concerning disparate

treatment.

60. In 2009, Judge Gray, in Finding No. 43, found

that substantial evidence existed that “since at least 2002

all members of the Patrol with substantiated violations of

truthfulness have been dismissed.”

61. Judge Gray concluded then that it was not

incumbent on the Highway Patrol to look back through

history to find a lowest common denominator for assessing

punishment from the historical point forward. There is no

evidence of cases of disparate treatment more recent in

- 29 -

WETHERINGTON V. N.C. DEP’T OF PUB. SAFETY

Opinion of the Court

time before this Tribunal for determining the most recent

punishment by the Patrol for violation of the truthfulness

policy; however, this Tribunal is not going to reach back

into history in order to compare Petitioner’s case with

similar cases from several years ago, without any recent

cases for comparison, and especially cases decided by Col.

Grey.

62. This current case was decided by Col. Grey in

2016. It is not fair or reasonable to hold the Highway

Patrol to a standard set by disposition of its worse cases

from many years before. Col. Grey decided the case based

upon his thorough review of the totality of facts and

circumstances of this case, including how he had disposed

of cases during his tenure as Colonel. Col. Grey

acknowledged that he reviewed only cases decided during

his tenure.

...

63. Petitioner Wetherington contends that Col.

Grey’s reliance on the Brady and Giglio cases is

tantamount to inserting a new allegation of sorts that

should not have been brought into consideration in this

current review on remand.

64. The undersigned excluded evidence on the Brady

and Giglio cases, at least in part, out of an abundance of

caution, to avoid evidence that would indeed constitute a

totally new allegation not within the purview of the

original charge sheet. On further review, Col. Grey’s

reliance on Brady and Giglio was not ill-founded. Brady

was decided by the Supreme Court of the United States in

1963, and Giglio was decided by the Supreme Court of the

United States in 1973, well before even the first hearing in

OAR on this matter.

65. Assuming arguendo that Col. Grey should not

have referenced specifically to those cases, Col. Glover had

considered the impact of findings of untruthfulness with

- 30 -

WETHERINGTON V. N.C. DEP’T OF PUB. SAFETY

Opinion of the Court

Highway Patrol Troopers as reflected in his testimony.

Further, in upholding Col. Glover’s decision to terminate

Petitioner, Secretary Reuben Young referenced the effect

of a Trooper having his honesty, integrity and truthfulness

questioned, especially from the witness stand. Thus, Col.

Grey’s reliance on the impact of loss of credibility for

untruthfulness would have been in keeping with the initial

determinations in this case, including Col. Glover’s

testimony in the first hearing before OAR.

66. Col. Grey’s reliance on the Brady/Giglio factors

was directly related to Petitioner’s actions which were the

cause of his termination, and referenced in Col. Glover’s

very abbreviated dismissal letter and the original Charge

Sheet.

(Citations and parentheticals omitted) (alterations in finding 26 in original.)

IV. Just Cause

Petitioner first argues on appeal that DPS did not follow the instructions from

the North Carolina Supreme Court regarding factors to consider on remand.

Respondent contends that “[d]espite the numerous argument headings in Petitioner’s

brief, there is solely one issue before this Court: the existence of just cause to affirm

Petitioner’s dismissal.” We review whether just cause existed to terminate Petitioner

de novo. See Peterson, ___ N.C. App. at ___, 814 S.E.2d at 593.

As this Court noted in Warren v. North Carolina Department of Crime Control:

We conclude that the best way to accommodate the

Supreme Court’s flexibility and fairness requirements for

just cause is to balance the equities after the unacceptable

personal conduct analysis. This avoids contorting the

language of the Administrative Code defining unacceptable

personal conduct. The proper analytical approach is to first

- 31 -

WETHERINGTON V. N.C. DEP’T OF PUB. SAFETY

Opinion of the Court

determine whether the employee engaged in the conduct

the employer alleges. The second inquiry is whether the

employee’s conduct falls within one of the categories of

unacceptable personal conduct provided by the

Administrative Code. Unacceptable personal conduct does

not necessarily establish just cause for all types of

discipline. If the employee’s act qualifies as a type of

unacceptable conduct, the tribunal proceeds to the third

inquiry: whether that misconduct amounted to just cause

for the disciplinary action taken. Just cause must be

determined based “upon an examination of the facts and

circumstances of each individual case.”

221 N.C. App. 376, 382-83, 726 S.E.2d 920, 925 (2012) (footnote omitted) (quoting

Carroll, 358 N.C. at 669, 599 S.E.2d at 900).

In Wetherington I, the Supreme Court noted Col. Glover’s testimony that

because petitioner’s conduct “was obviously a violation of

the truthfulness policy,” dismissal was required, and he

repeatedly asserted that he “had no choice” to impose any

lesser punishment. After petitioner’s counsel asked

Colonel Glover whether, “when there is a substantiated or

adjudicated finding of untruthfulness . . . [a trooper] would

necessarily need to be terminated,” Colonel Glover

reiterated that if “that’s the violation, again . . . I have no

choice because that’s the way I view it.” Petitioner’s

counsel then asked, “[D]oes that mean if you find a

substantiated or adjudicated violation of the truthfulness

policy . . . that you don’t feel like that gives you any

discretion as Colonel to do anything less than

termination?” Colonel Glover agreed with that statement.

368 N.C. at 592, 780 S.E.2d at 548 (alterations in original). The Supreme Court then

noted that the “truthfulness policy” applies to a wide range of communications,

whether related to the trooper’s duties or not, but as Col. Glover described his

- 32 -

WETHERINGTON V. N.C. DEP’T OF PUB. SAFETY

Opinion of the Court

application of that policy, any untruthful or inaccurate statement, in any context,

required termination:

As written, the truthfulness policy applies to “all

written and oral communications,” and it applies to a wide

range of untruthful, inaccurate, “improper,” or

“misleading” statements. Nothing in the text of the policy

limits its application to statements related to the trooper’s

duties, the Patrol’s official business, or any other

significant subject matter. Notwithstanding the

potentially expansive scope of this policy, Colonel Glover

confirmed that he could not impose a punishment other

than dismissal for any violation, apparently regardless of

factors such as the severity of the violation, the subject

matter involved, the resulting harm, the trooper’s work

history, or discipline imposed in other cases involving

similar violations. We emphasize that consideration of

these factors is an appropriate and necessary component of

a decision to impose discipline upon a career State

employee for unacceptable personal conduct.

Id.

The Supreme Court rejected the “per se” rule of dismissal for any violation of

the truthfulness policy. Id. at 593, 780 S.E.2d at 548. Although Respondent had

discretion in choosing an appropriate punishment for violation of the policy, that

discretion was to be guided by consideration of certain factors outlined by the

Supreme Court. Specifically, on remand, DPS was required to consider

the severity of the violation, the subject matter involved,

the resulting harm, the trooper’s work history, or discipline

imposed in other cases involving similar violations. We

emphasize that consideration of these factors is an

appropriate and necessary component of a decision to

impose discipline upon a career State employee for

- 33 -

WETHERINGTON V. N.C. DEP’T OF PUB. SAFETY

Opinion of the Court

unacceptable personal conduct.

Id. at 592, 780 S.E.2d at 548. The Supreme Court also noted that Respondent should

consider a “range of disciplinary actions” and not just termination:

While dismissal may be a reasonable course of action for

dishonest conduct, the better practice, in keeping with the

mandates of both Chapter 126 and our precedents, would

be to allow for a range of disciplinary actions in response to

an individual act of untruthfulness, rather than the

categorical approach employed by management in this case.

Id. at 593, 780 S.E.2d at 548 (emphasis added).

On remand, the Supreme Court did not limit DPS to relying on the existing

record. Id. The ALJ found that “[t]he Supreme Court’s directive is specifically

sending this matter back to the agency to make a determination based on the facts

and circumstances of this case. The directive does not indicate that an entirely new

investigation should be undertaken.” We agree the Supreme Court did not direct “an

entirely new investigation” but it also did not preclude Respondent from conducting

further investigation or from developing additional evidence as needed to address the

factors as directed by the Supreme Court.9 In any event, Respondent elected to rely

9 Since the Supreme Court was reviewing “just cause” de novo, it could have performed that review

based upon the existing record in Wetherington I without remand, but because Respondent had

erroneously applied a “per se” rule of dismissal, the Supreme Court gave Respondent the opportunity

on remand to develop the record as to the additional factors it had directed Respondent to consider

and to exercise its discretion accordingly. We also agree with the ALJ that if Respondent had

considered new evidence, “then such new allegations would have necessitated procedural due process,

including, among other things, written notice and an opportunity to be heard in a pre-dismissal

conference.” But Respondent elected to rely on the existing record, so another pre-dismissal conference

was not required.

- 34 -

WETHERINGTON V. N.C. DEP’T OF PUB. SAFETY

Opinion of the Court

only on the existing record, so all the evidence and facts as to the events in 2009 are

exactly the same as considered by this Court and the Supreme Court in Wetherington

I. Only the findings on remand as to Col. Grey’s decision are new, and many of these

findings are actually reiterations of the 2009 “adjudicated facts” or conclusions of law,

which we will review as such.

Petitioner argues, and ALJ Overby found, that Col. Grey did not read either

the opinions issued by the Court of Appeals or Supreme Court in Wetherington I:

28. Col. Grey received this case after the Supreme

Court ruled to remand the matter for decision. Col. Grey

never read the Supreme Court decision in this contested

case; however, it was explained to him. As he understood

the Supreme Court ruling, he was to review the case as if

for the first time and make his decision from the evidence

presented.

29. Col. Grey did not have to read the Supreme Court

decision to understand the full import of all of its holdings.

The provisions of the decision were explained to him in

sufficient detail for him to properly consider the provisions

of the Supreme Court decision in conducting the review

and making his decision in this contested case.

(Parenthetical omitted.)

Based upon Col. Grey’s letter, his testimony, and the above findings, it is

apparent that Col. Grey “review[ed] the case as if for the first time and ma[de] his

decision from the evidence presented.” It is not apparent that he considered the

factors as directed by the Supreme Court, as we discuss in more detail below. We

acknowledge that it is possible for an opinion to be “explained to” someone, but we

- 35 -

WETHERINGTON V. N.C. DEP’T OF PUB. SAFETY

Opinion of the Court

cannot discern from Col. Grey’s letter and testimony he “understood the full import

of all of its holdings,” since he did not address the factors as directed by the Supreme

Court.

The ALJ interpreted the Supreme Court’s opinion as requiring consideration

of as few as one of the listed factors, based upon the word “or” in one sentence. Those

factors, sometimes referred to as the “Wetherington factors,” as articulated by the

Supreme Court are “the severity of the violation, the subject matter involved, the

resulting harm, the trooper’s work history, or discipline imposed in other cases

involving similar violations.” Id. at 592, 780 S.E.2d at 548 (emphasis added).

26. It is important to note that the Supreme Court

uses the word “or.” The usual and customary use of “or”

indicates an alternative and oftentimes, as here,

alternatives in a listing. If there is a choice between two

items, then “or” would mean an alternative choice for

either item. While the Supreme Court notes that it is

appropriate and necessary to consider those factors, the

use of “or” negates any mandatory findings or conclusions

based on all of those factors.

27. Assuming arguendo that there is a requirement

to give consideration to all of those factors, Col. Grey did,

in fact, consider each of the Wetherington factors in

reaching his decision to terminate Petitioner.

This interpretation of the “Wetherington factors” is not supported the text of

Wetherington I or by later cases applying it. Although the factors as quoted in ALJ

Overby’s order are accurate, they are taken out of the context of the sentence in the

case. Reading the Supreme Court’s instruction in context, the “or” in this sentence

- 36 -

WETHERINGTON V. N.C. DEP’T OF PUB. SAFETY

Opinion of the Court

must be read as “and” when applied to the factors which should be considered. The

Supreme Court stated:

Notwithstanding the potentially expansive scope of this

policy, Colonel Glover confirmed that he could not impose a

punishment other than dismissal for any violation,

apparently regardless of factors such as the severity of the

violation, the subject matter involved, the resulting harm,

the trooper’s work history, or discipline imposed in other

cases involving similar violations. We emphasize that

consideration of these factors is an appropriate and

necessary component of a decision to impose discipline upon

a career State employee for unacceptable personal conduct.

Id. (emphases added). The Supreme Court explained that Col. Glover could not

“impose a punishment other than dismissal for any violation” without regard for

these factors. Id. The Court then directed that “consideration of these factors is an

appropriate and necessary component of a decision to impose discipline upon a career

State employee for unacceptable personal conduct.” Id. (emphasis added). Other

cases from this Court have interpreted Wetherinton I as requiring consideration of

any factors for which evidence is presented. See Brewington, 254 N.C. App. at 25,

802 S.E.2d at 131 (“Although the primary holding in Wetherington was that public

agency decision-makers must use discretion in determining what disciplinary action

to impose in situations involving alleged unacceptable personal conduct, the Court

did identify factors that are ‘appropriate and necessary component[s]’ of that

discretionary exercise.” (alterations in original)); accord Blackburn v. N.C. Dep’t of

Pub. Safety, 246 N.C. App. 196, 784 S.E.2d 509 (2016). Thus, Respondent was

- 37 -

WETHERINGTON V. N.C. DEP’T OF PUB. SAFETY

Opinion of the Court

directed to consider all of these factors, at least to the extent there was any evidence

to support them. Respondent could not rely on one factor while ignoring the others.

ALJ Overby determined that “Col. Grey did, in fact, consider each of the

Wetherington factors in reaching his decision to terminate Petitioner.” But upon

examination of his letter, we can find consideration of only two factors. We will

address each factor as directed by the Supreme Court. Since we are to review “just

cause” for dismissal de novo, we will review the factors based upon the “adjudicated

fact” and the “remand facts.”10

A. The Severity of the Violation

Although Col. Grey’s letter uses more words than Col. Glover’s did to describe

Petitioner’s untruthfulness regarding losing his hat, the basic facts have not changed

and were established in 2009, as quoted above. But Petitioner’s untruthful statement

regarding losing his hat was not a severe violation of the truthfulness policy. It did

not occur in court and it did not affect any investigation, prosecution, or the function

of the Highway Patrol. It was about a matter—exactly how Petitioner lost his hat—

all parties concede was not very important.

Col. Grey considered the very insignificance of the subject matter an indication

of the severity of the violation, indicating Petitioner could not be trusted in any

10 By relying on the existing findings, we are essentially viewing the facts in the light most favorable

to Respondent. Petitioner has challenged some of the findings on appeal, but we need not consider

those challenges based upon our holding.

- 38 -

WETHERINGTON V. N.C. DEP’T OF PUB. SAFETY

Opinion of the Court

context. His letter to Petitioner stated, “Based upon the facts and circumstances of

this case, as described above, I have no confidence that you can be trusted to be

truthful to your supervisors or even to testify truthfully in court or at administrative

hearings.” ALJ Overby agreed that “Petitioner’s lie was neither insignificant nor

immaterial. Because the Petitioner chose to continue to lie about an insignificant

event, his credibility is called into question all the more.” This reading of the

truthfulness policy sounds exactly like Col. Glover’s “per se” rule—rejected by the

Supreme Court—that any untruthful statement, even if the subject matter does not

involve an investigation or official business, and no matter how insignificant the

subject, requires dismissal, and no discipline short of dismissal will suffice. In fact,

based on ALJ Overby’s logic, the more “insignificant” the subject matter of the lie, the

more Petitioner’s credibility is called into question. Thus, a lie about a significant

matter, such as untruthful testimony about a criminal investigation in court, would

be a severe violation requiring dismissal because untruthfulness in that context

obviously undermines the very mission of the Highway Patrol, while a lie about an

insignificant matter must also result in dismissal because a trooper who would lie

about something so insignificant cannot be trusted in any context, according to Col.

Grey. This interpretation of the truthfulness policy is functionally indistinguishable

from the “per se” dismissal rule applied by Col. Glover in Wetherington I and rejected

by the Supreme Court.

- 39 -

WETHERINGTON V. N.C. DEP’T OF PUB. SAFETY

Opinion of the Court

Respondent made a similar argument seeking to embellish the severity of

Petitioner’s untruthfulness in Wetherington I, and this Court noted:

Respondent contends in its brief that Petitioner

“made up an elaborate lie full of fabricated details”

regarding the “specific direction of the wind, the specific

color of the truck and the noise he heard when the truck

ran over his hat.” However, neither the ALJ nor the SPC

made findings indicating that the wind, truck’s color, or

“crunch noise” were untruthful. Rather, the lie or

“untruth” lay only in the hat’s location when Petitioner

misplaced it. The ALJ found that Petitioner “didn’t know

if it was on the trunk lid of the truck, the boat, or behind

the light bar, and blew off.” The findings do not support

Respondent’s characterization of Petitioner’s statements as

an “elaborate lie full of fabricated details[.]”

Wetherington I, 231 N.C. App. at 511, 752 S.E.2d at 516 (alteration in original)

(emphasis added).

On remand, there are no new facts and no new evidence which would allow us

to come to any new conclusion regarding the severity of Petitioner’s lie than this

Court did in Wetherington I. Col. Grey relied only on the existing record. This Court

has previously determined “the lie or ‘untruth’ lay only in the hat’s location when

Petitioner misplaced it,” id., and the Supreme Court did not modify this portion of

this Court’s opinion but instead affirmed it. See Wetherington I, 368 N.C. at 593, 780

S.E.2d at 509.

B. The Subject Matter Involved

- 40 -

WETHERINGTON V. N.C. DEP’T OF PUB. SAFETY

Opinion of the Court

Col. Grey’s letter notes the subject matter involved, the loss of the hat, but

gives no consideration to this particular factor other than the fact that Petitioner lied

about the location of the hat. He characterizes the subject matter of the

untruthfulness appropriately as “over a trivial matter.” Again, this particular

violation of the truthfulness policy had no potential effect on any investigation or

prosecution. Nor would the subject matter—or even Petitioner’s untruthfulness

about it—bring the Highway Patrol into disrepute, as some violations may. For

example, in Poarch v. North Carolina Department of Crime Control & Public Safety,

this Court affirmed a trooper’s termination for just cause based on unacceptable

personal conduct where the trooper was engaged in an extra-marital affair and

“admitted to specific instances of sexual relations with Ms. Kirby, including sex in a

Patrol car, sex behind a Patrol car, and sex in a Patrol office.” 223 N.C. App. 125,

131, 741 S.E.2d 315, 319 (2012). This Court noted the trooper’s misconduct, even

committed when he was off duty, may harm the Patrol’s reputation:

After reviewing the record, we find the distinction

between on duty and off duty based on the Patrol’s radio

codes to be of little significance in this case where

petitioner was in uniform and the use of patrol facilities is

so intertwined with the acts of misconduct. Furthermore,

we find respondent’s argument persuasive that if any

member of the public would have witnessed petitioner’s

misconduct, where petitioner was in uniform and using

patrol facilities, they would assume that petitioner was on

duty to the detriment of the Patrol’s reputation.

Id.

- 41 -

WETHERINGTON V. N.C. DEP’T OF PUB. SAFETY

Opinion of the Court

ALJ Overby appropriately noted the importance of truthfulness by law

enforcement officers:

36. The world in which we live has become more

tolerant and accepting of untruthfulness and outright lies.

While it may be acceptable in some comers, it is not

acceptable for everyone. With some occupations, there is a

higher expectation for honesty and integrity, e.g., the

judiciary and law enforcement officers. Those with power

and authority have a greater responsibility.

37. The citizens of North Carolina and the public at

large, including anyone visiting our state, deserve and

expect honesty from the State Highway Patrol and law

enforcement officers in general. It does not require any

imagination at all to understand how devastating it would

be if the Patrol tolerated and fostered a reputation for lack

of honesty among its personnel. Yet it remains of

paramount consideration that each case rises and falls on

the particular facts and circumstances of this particular

case. Not every case of untruthfulness merits termination.

We agree, and our Supreme Court was also well aware in Wetherington I that

Petitioner had lied and of the importance of truthfulness by law enforcement officers.

It was established in Wetherington I that (1) “the employee engaged in the conduct

the employer alleges,” and (2) “the employee’s conduct falls within one of the

categories of unacceptable personal conduct provided by the Administrative Code.”

Warren, 221 N.C. App. at 383, 726 S.E.2d at 925. Tonly issue left on remand in this

case was whether Petitioner’s lie, which is unacceptable personal conduct, “amounted

to just cause for the disciplinary action taken. Just cause must be determined based

- 42 -

WETHERINGTON V. N.C. DEP’T OF PUB. SAFETY

Opinion of the Court

‘upon an examination of the facts and circumstances of each individual case.’” Id.

(quoting Carroll, 358 N.C. at 669, 599 S.E.2d at 900).

The facts as to the unacceptable personal conduct—the lie about the hat—are

the same now as in Wetherington I. The Supreme Court could have rejected prior

cases requiring consideration of various factors and a balancing of equities and

adopted the “per se” rule for truthfulness for Troopers with the Highway Patrol as

applied by Col. Glover, but it did not. Neither this Court nor the Supreme Court

endorses untruthfulness of any sort by a law enforcement officer, but that is not the

question presented here. The Supreme Court did not suggest that the Highway

Patrol should “tolerate[] and foster[] a reputation for lack of honesty among its

personnel” but only that some instances of untruthfulness may call for some

discipline short of dismissal. The question is whether this lie, in this context, justifies

dismissal, without consideration of any lesser discipline, upon consideration of all of

the applicable factors. Neither Col. Glover nor Col. Grey actually conducted this full

analysis. Col. Grey applied essentially the same “per se” rule as to truthfulness as

did Col. Glover; he just used different words to describe it.

C. The Resulting Harm

The third factor is “the resulting harm” from the violation. Col. Grey spends

most of his letter discussing the potential harm to the agency from any untruthfulness

by an officer, including a discussion of the requirements of Brady v. Maryland, 373

- 43 -

WETHERINGTON V. N.C. DEP’T OF PUB. SAFETY

Opinion of the Court

U.S. 83, 10 L.Ed.2d 215 (1963), and Giglio v. United States, 405 U.S. 150, 31 L. Ed.

2d 104 (1972). We agree, as noted above, that law enforcement officers must uphold

the highest standards of truthfulness, particularly in the course of their official

duties, and we appreciate the legal requirements for law enforcement agencies to

disclose exculpatory evidence to defendants. Yet our Supreme Court was also well-

aware of the requirements of Brady and Giglio when it decided Wetherington I. In

support of its position, which the Supreme Court accurately characterized as a “per

se” rule of dismissal for any violation of the truthfulness policy, Respondent made the

same argument to the Supreme Court in Wetherington I.11 But even considering the

requirements of Brady and Giglio, our Supreme Court still rejected a “per se” rule of

termination for untruthfulness. Although Col. Grey states he was not applying a per

se rule, it is difficult to discern what sort of untruthfulness, in any context, by a

trooper would not lead to termination, without even any consideration of lesser

discipline. Respondent’s counsel at oral argument agreed that a statement of this

11 Respondent argued in its brief to this Court in Wetherington I, “From this point forward, in every

criminal case in which Petitioner is associated, the judicial finding of untruthfulness here and the facts

supporting that conclusion must be disclosed to the defendant. The United States Supreme Court in

Brady v. Maryland, held that the prosecution must turn over all evidence which may favor the

defendant.” Before the Supreme Court, Respondent argued, “The Court of Appeals next dismissed

concerns that in the future every district attorney would have to produce the record of Wetherington’s

falsehoods in response to any defendants’ demands for exculpatory evidence in accordance with their

rights under Brady v. Maryland. The Court of Appeals did not find that the Patrol’s concerns were not

legitimate. In fact, there are reported cases in which courts have order[ed] the prosecution to produce

officer personnel files in response to Brady. However, the Court of Appeals found that Petitioner’s

history of untruthfulness would not bar him from testifying in court and SPC had not presented any

argument that it was likely that defense counsel would use the information to impeach Wetherington

or that the impeachment would cause a jury to disregard his testimony.” (Citations omitted.)

- 44 -

WETHERINGTON V. N.C. DEP’T OF PUB. SAFETY

Opinion of the Court

sort regarding a missing hat does not compare to perjury while testifying in court or

dishonesty in the investigation of a crime—the actual issues addressed by Brady and

Giglio. It is easy to understand the resulting harm to the agency from a trooper’s

intentional lie about substantive facts in sworn testimony or in the course of his

official duties. But Respondent has never been able to articulate how this particular

lie was so harmful. Respondent failed to develop or present any additional facts on

remand which could lead to a different determination.

D. The Trooper’s Work History

According to the letter, Col. Grey did give cursory consideration to Petitioner’s

work history. He stated:

I have taken into consideration the fact that you had been

employed by the Highway Patrol as a Cadet and as a State

Trooper from June 2007 until the time of your dismissal on

August 4, 2009 that you did not have any disciplinary

actions prior to the time of your dismissal and that your

overall performance rating and work history since being

sworn as a Trooper in November 2007 was “Good.”

The ALJ made these findings regarding Petitioner’s work history:

53. According to that transcript, Wetherington was

not previously disciplined by SHP. Wetherington was

rated as one of the highest producers while in the field

training program. His work and conduct history revealed

exemplary service and conduct. In his 2008-2009

evaluation, Trooper Wetherington was rated as good or

very good in every rating category. Judge Gray found that

Wetherington’s overall performance rating in 2008 was “3,”

which was average. Colonel Grey was aware of

Wetherington’s work history.

- 45 -

WETHERINGTON V. N.C. DEP’T OF PUB. SAFETY

Opinion of the Court

54. The Employee Advisory Committee report found

that Wetherington was a very “devoted, dedicated”

Trooper, and unanimously recommended reinstatement.

Colonel Grey was aware of the Committee report.

55. The record of this contested case reflects that

several laypersons and some of Wetherington’s supervisors

testified before Judge Gray in the first hearing at OAH.

They testified to Wetherington’s excellent work

performance, character, and conduct. This Tribunal did

not hear their testimony and therefore is unable to assess

the credibility of their individual testimonies by taking into

account the appropriate factors generally used for

determining credibility. Their testimony is considered and

given the appropriate weight.

(Parentheticals omitted.)

ALJ Overby goes into more detail than did Col. Grey, but nothing in

Petitioner’s work history would support termination. He had no prior disciplinary

actions and a “good” performance rating and work history. This factor could only

favor some disciplinary action short of termination. See Whitehurst v. E. Carolina

Univ., 257 N.C. App. 938, 947-48, 811 S.E.2d 626, 634 (2018) (“Whitehurst’s

discipline-free work history is also relevant to this just cause analysis. . . . .

Whitehurst was subject to regular performance reviews by ECU and generally

received above average ratings. Jimmy Cannon, an ECU police sergeant who worked

with Whitehurst for roughly twelve years, testified that ‘He’s been an outstanding

peer to work with especially when it comes to his knowledge of police procedures and

police work in general. He’s one of the best . . . that I’ve worked with[.]’ Whitehurst

- 46 -

WETHERINGTON V. N.C. DEP’T OF PUB. SAFETY

Opinion of the Court

had worked for ECU for twelve years, with no disciplinary action. This factor also

mitigates against a finding that just cause existed to dismiss Whitehurst from

employment based on his conduct the night of 17 March 2016.” (second and third

alterations in original)).

E. Discipline Imposed in Other Cases Involving Similar Violations

Col. Grey’s letter did not mention any consideration of discipline imposed in

other cases for similar violations. In his testimony, he stated he considered only

violations occurring during his tenure as Commander, which began in March 2013.

ALJ’s Overby’s order includes several findings regarding disparate treatment:

58. Disparate treatment is a factor which may be

considered in assessing discipline.

59. The issue of disparate treatment was raised in

the OAH hearing before Judge Gray in 2009. Judge Gray

made specific Findings of Fact concerning disparate

treatment.

60. In 2009, Judge Gray, in Finding No. 43, found

that substantial evidence existed that “since at least 2002

all members of the Patrol with substantiated violations of

truthfulness have been dismissed.”

61. Judge Gray concluded then that it was not

incumbent on the Highway Patrol to look back through

history to find a lowest common denominator for assessing

punishment from the historical point forward. There is no

evidence of cases of disparate treatment more recent in

time before this Tribunal for determining the most recent

punishment by the Patrol for violation of the truthfulness

policy; however, this Tribunal is not going to reach back

into history in order to compare Petitioner’s case with

- 47 -

WETHERINGTON V. N.C. DEP’T OF PUB. SAFETY

Opinion of the Court

similar cases from several years ago, without any recent

cases for comparison, and especially cases decided by Col.

Grey.

62. This current case was decided by Col. Grey in

2016. It is not fair or reasonable to hold the Highway

Patrol to a standard set by disposition of its worse cases

from many years before. Col. Grey decided the case based

upon his thorough review of the totality of facts and

circumstances of this case, including how he had disposed

of cases during his tenure as Colonel. Col. Grey

acknowledged that he reviewed only cases decided during

his tenure.

(Parenthetical omitted.)

We first note that the finding as to discipline since 2002 is not relevant to Col.

Grey’s decision, as he testified, and the ALJ found, he did not consider any

disciplinary actions prior to his tenure which began in 2013. In addition, the findings

from the 2009 hearing seem to reflect a per se rule of dismissal for any

untruthfulness. ALJ Gray found that “since at least 2002 all members of the Patrol

with substantiated violations of truthfulness have been dismissed.” This finding is

consistent with application of the “per se” dismissal rule Col. Glover applied, and our

Supreme Court rejected in Wetherington I. On remand, Col. Grey did not consider

this history but acknowledged that he reviewed only cases decided during his tenure,

which began in 2013, four years after Petitioner’s termination. He did not describe

the “untruthfulness” in any of those instances or the discipline imposed. Our record

reveals no instances of disciplinary actions for untruthfulness which arose during

- 48 -

WETHERINGTON V. N.C. DEP’T OF PUB. SAFETY

Opinion of the Court

Col. Grey’s tenure before his decision regarding Petitioner in 2016. Col. Grey did not

identify any other violations during his tenure he may have compared to Petitioner’s

situation, and certainly did not identify any similar violations of the truthfulness

policy.

Based upon the same evidence and facts, this Court analyzed this issue in

Wetherington I. Regarding discipline imposed in other cases, the unanimous panel of

this Court held:

As the superior court observed in its order, the

dissenting member of the SPC concluded that “the

dismissal of Petitioner did not fit the violation and was not

necessary to uphold the integrity of the truthfulness policy.

In short, the punishment did not fit the offense.” In view

of the commensurate discipline approach described in

Warren and applied in Carroll, we agree. Petitioner’s

conduct in this case did not rise to the level described in

Kea and Davis. Rather, Petitioner’s conduct and the

existence of extenuating circumstances surrounding the

conduct make this case comparable to Carroll, in which our

Supreme Court concluded that the Commission lacked just

cause to discipline the petitioner.

Wetherington I, 231 N.C. App. at 513, 752 S.E.2d at 517 (citation omitted).

This Court recently affirmed reversal of the Highway Patrol’s dismissal of a

trooper for unacceptable personal conduct. Warren v. N.C. Dep’t of Crime Control,

___ N.C. App. ___, 833 S.E.2d 633 (2019). The trooper drove “his Patrol-issued

vehicle” to a party at a private residence after consuming alcohol and with an open

- 49 -

WETHERINGTON V. N.C. DEP’T OF PUB. SAFETY

Opinion of the Court

bottle of vodka in the trunk of his vehicle. Id. at ___, 833 S.E.2d at 635. This Court

noted this dismissal was based upon disparate treatment.

Respondent contends that petitioner’s conduct was

especially egregious so as to warrant termination.

However, our review of the disciplinary actions respondent

has taken for unbecoming conduct typically resulted in

either: a temporary suspension without pay, a reduction

in pay, or a demotion of title. In fact, where the conduct

was equally or more egregious than that of petitioner (i.e.,

threats to kill another person, sexual harassment, assault),

the employee was generally subjected to disciplinary

measures other than termination.

While petitioner certainly engaged in unacceptable

personal conduct, termination is inconsistent with

respondent’s treatment of similar conduct and, other

factors mitigate just cause for the punishment. Petitioner

had an excellent work history and tenure of service, and

there was no evidence that petitioner’s actions resulted in

harm. Thus, taking into consideration all of the factors and

circumstances in this case as suggested by Wetherington,

we conclude the superior court properly determined there

is no just cause for petitioner’s termination based on his

conduct.

Id. at ___, 833 S.E.2d at 638.

Again, Respondent had the opportunity on remand to address disciplinary

actions of other employees who violated the truthfulness policy, since Col. Glover did

not consider this factor in applying the “per se” rule in Petitioner’s initial termination.

Col. Grey had the opportunity to note factors in other disciplinary cases which

support dismissal for Petitioner’s violation, but he did not. Wetherington I, 368 N.C.

at 592, 780 S.E.2d at 548. We agree that Col. Grey need not “look back through

- 50 -

WETHERINGTON V. N.C. DEP’T OF PUB. SAFETY

Opinion of the Court

history to find a lowest common denominator for assessing punishment” but he must

consider if there is some relevant denominator in the Highway Patrol’s prior history

for comparison. Although there is no particular time period set for this factor, we

find no legal basis for relying only upon disciplinary actions during a particular

commander’s tenure. If this were the rule, during the first week, or month, or any

time period of a new colonel’s tenure until a disciplinary action based upon a

particular violation has occurred, there would be no history at all, and the disparate

treatment factor would have no meaning. For a new commander, disparate

treatment would by definition be impossible, if he can ignore all relevant prior history

for the agency in imposing discipline.

Thus, Col. Grey failed to consider most of the factors our Supreme Court

directed were “necessary” in this case. The only factor he clearly addressed was

Petitioner’s work history, which would favor discipline short of dismissal. The

Supreme Court stated: “We emphasize that consideration of these factors is an

appropriate and necessary component of a decision to impose discipline upon a career

State employee for unacceptable personal conduct. Wetherington I, 368 N.C. at 592,

780 S.E.2d at 548 (emphasis added). Instead, he considered only his personal

assessment of the importance of Petitioner’s untruthful statements, and although his

letter was longer, his consideration was substantively no different from Col Glover’s.

As this Court noted in Wetherington I: “The findings do not support Respondent’s

- 51 -

WETHERINGTON V. N.C. DEP’T OF PUB. SAFETY

Opinion of the Court

characterization of Petitioner’s statements as an ‘elaborate lie full of fabricated

details[.]’” Wetherington I, 231 N.C. App. at 511, 752 S.E.2d at 516 (alteration in

original).

V. Disposition

Our Courts rarely grant parties in cases two bites at the apple, but Respondent

here has already had the opportunity for two bites. There is no basis for further

remand other than for the appropriate remedy. Upon our de novo review of the

existence of just cause, we reverse ALJ Overby’s conclusion that “Respondent met its

burden of proof and established by substantial evidence that it had just cause to

dismiss Petitioner from employment with the State Highway Patrol for unacceptable

personal conduct.” However, Respondent has established that some disciplinary

action short of dismissal should be imposed. We also reverse the ALJ’s conclusion

that “Respondent has not exceeded its authority or jurisdiction; acted erroneously;

failed to use proper procedure; acted arbitrarily or capriciously; and has not failed to

act as required by law or rule.” We hold that Respondent failed to use proper

procedure on remand and failed to act as required by law or rule in that it should

have considered the factors as directed by the Supreme Court. We therefore remand

for the ALJ to enter an order granting Petitioner relief under North Carolina General

Statute § 126-34.02. Specifically, the ALJ shall order an appropriate level of

discipline, in accord with the law regarding disparate treatment, followed by

- 52 -

WETHERINGTON V. N.C. DEP’T OF PUB. SAFETY

Opinion of the Court

reinstatement and “other suitable action to correct the abuse which may include the

requirement of payment for any loss of salary which has resulted from the improper

action of the appointing authority.” N.C. Gen. Stat. § 126-34.02(a) (2017).

Under subsection (a)(3) of the statute, the ALJ has

express statutory authority to “[d]irect other suitable

action” upon a finding that just cause does not exist for the

particular action taken by the agency. Under the ALJ’s de

novo review, the authority to “[d]irect other suitable action”

includes the authority to impose a less severe sanction as

“relief.”

Because the ALJ hears the evidence, determines the

weight and credibility of the evidence, makes findings of

fact, and “balanc[es] the equities,” the ALJ has the

authority under de novo review to impose an alternative

discipline. Upon the ALJ’s determination that the agency

met the first two prongs of the Warren standard, but just

cause does not exist for the particular disciplinary

alternative imposed by the agency, the ALJ may impose an

alternative sanction within the range of allowed

dispositions.

Harris, 252 N.C. App. at 109, 798 S.E.2d at 138 (alterations in original) (citation

omitted).

VI. Conclusion

Upon de novo review of the existence of just cause, the ALJ’s order affirming

Petitioner’s dismissal is reversed and we remand to the ALJ for further proceedings

consistent with our directive above.

Reversed and Remanded.

Judges BRYANT and DIETZ concur.

- 53 -

WETHERINGTON V. N.C. DEP’T OF PUB. SAFETY

Opinion of the Court

- 54 -