ÿWPCÈ ]š, EÊè+j‘ðƒ/ä\Ÿu¤Ø—ˆzF˜ü…Úâ)j:ëîÿ$°Ûs)Å-“‚­²k;ÀnTHêzÑIêMÚÉCº·xÝúþË­‘[¢c|øƒ#`NŽ ´W &Þê}ª&`7ó |¹{å‘;ƒ§LˆóþÚª¤³¸züHø·ñêÌ´N1§@ôZÕ–tÓ;ô˜|ÍÎ(¹pÚ.Ú[´ØîåôÚäÑ^5'#ü[Q_CéÕ`0±ÊÒFyò^Ñi)CãDÜfy`Yó’h w寛W Ä÷1¾Ÿü­­ ÐÉìd¯iÀyf¸‚a)‰ôfŠ;5ŠûAÆ”Y¬CùS^}‚‡áœ'’F¾8Xr?hyd‹ï^Ð7vzÀ–woRáúëL§Œð Ô¬ªh®cìëß‘&?’[{¥¬è˜h8޽½›;©è}Äý>-.šRùO©þ%½Å­ö¶ñ%Ì»`8Õ‘àD1Bléf\ÞËJaŽß[Ö•Eeü~­z—ù"Åf83c”î>Zz$«g·gtå‰?¿DøÎ€çÎ:»92mH»)\ ø±÷hØÁeѲ¢cÒ=K(H}ø£BRèËåÕ+Mã”å#°÷C×oÞêÎý¦Ib#É\ %% ^ + 0ˆ7 UN¿ w 4 z% ÒŸ q € m‚ ™ Æ¡ Æg Æ-ÆóóN¹¹¹E»»»»»»»»»»»»»»»»»»»»»»»»b½½½½½½½½½½½½½½½½½½½½½½½½½½½½½½½½½½½½ 0ëÅÅÅÅ B°° 0¤Í D3q D-¤ 0KÑÑ ASÆo 0¤5 0DÙ A«˜\\IB01S01\CLERK1NASÈÈ,,,,ÈÈ0»e„V/Ï (`£ª$¡¡Ñ€.ÑÑ8€½­»»d»»d8ÑÑ ý ÑÓ  Ó(í€"  Z6Times New Roman Regularo=/ê:i¢Ø+00 ˜C:\PROGRA~1\COREL\WORDPE~1\TEMPLATE\CUSTOM~1\REVISE~1.WPTC:\Program Files\Corel\WordPerfect Office 2000\Template\Custom WP Templates\revised standard opinion.wpt3|x ÿU‹ÿÀÀÀ Level 1Level 2Level 3Level 4Level 5‚Level 1Level 2Level 3Level 4Level 5„Level 1Level 2Level 3Level 4Level 5…Level 1Level 2Level 3Level 4Level 5- ù-(|G2ªý$¤¤Ý ƒ£ª!ÝÑ€.ÑÑ8€SÑ»»dXXdì8ÑÑ ý ÑÓ  ÓÝ  Ýà  àòòÚ  Ú0Ú  ÚóóÔ€ôåùò»»Ô d(|3Ih$££Ý ƒ£ª!ÝÑ€.ÑÑ8€SÑ»»dXXdì8ÑÑ ý ÑÓ  ÓÝ  ÝVVVV'ÿÿdxd)!ÈÈÈÈdxdx( ±þ$’’ò òFigure€Ú  Ú1Ú  Úó ó^_X`YEþÿ<<CÿÿƒLevel 1Level 2Level 3Level 4Level 5(|3Ih$¢¢Ý ƒ£ª!ÝÑ€.ÑÑ8€SÑ»»dXXdì8ÑÑ ý ÑÓ  ÓÝ  Ý($$””ò òÚ  Ú1Ú  Úó óX[Z&OLE 2.0 Box <=8ÿÿÿÿÿÿÿÿÿÿCÿÿ HKKKKÝ ƒ£ª!ÝÑ€.ÑÑ8€SÑ»»ddÈ8ÑÑ ý ÑÓ  ÓÝ  ÝÔ_ÔÑ  ÑÔ€¼SÑ»»»ÔÑ8€%XXdì»»d8ÑÑ  Ñà@ü ü ìàÔ‡îTÐSÑÔIN€THE€COURT€OF€APPEALS€OF€TENNESSEEˆÐ ° Ðà@kk$ìàAT€NASHVILLEÔ#†¼SÑ»îîTÐ #ԈРÖ& ÐÓ  Ó€September€3,€2003€SessionÐ üL ÐÔ‡X%X»¼SÑÔÌò òÔ#†¼SÑ»XX%÷#ÔARTHUR€L.€LYNNòòóó€v.€RANDY€C.€CAMP,€COMMISSIONER,€òòet€alóó.Ô‡X%X»¼SÑÔó óÐ úJ ÐÌà@@½½ìàò ò€Appeal€from€the€Chancery€Court€for€Davidson€CountyÐ ú J Ðà@@øøìàNo.€01„3738„I€€€€€€Irvin€H.€Ô_ÔKilcreaseÔ_Ô,€Jr.,€ChancellorÐ æ 6 ÐÌÌà@@ìì*ìàßA€V) °°` d€÷E<©` AßÐ ªú  ÐÌà@@TTìàNo.€M2002„02708„Ô_ÔCOAÔ_Ô„R3„CV€„€Filed€October€22,€2003€Ð ¥õ  ÐÌßA€V) °°` dE<|` AßÐ }Í  Ðó óÌÓ  ÓThis€case€concerns€a€petition€for€judicial€review€filed€in€chancery€court.€€The€petition€sought€reviewÐ xÈ  Ðof€the€Ô_ÔALJÔ_Ôððs€order€affirming€the€Petitionerððs€termination€for€sleeping€on€the€job€in€violation€of€theÐ d´ ÐArlington€Development€Centerððs€policy.€€The€chancellor€dismissed€the€Petition.€€We€affirm€theÐ P  ÐChancellor.Ð <Œ ÐÓÐÓÌò òTenn.€R.€App.€P.€3€Appeal€as€of€Right;€Judgment€of€the€Chancery€Court€Ð d ÐAffirmed€and€Remandedó óÐ P ÐÌòòÓ  ÓÔ#†¼SÑ»àX%~#ÔÔ‡X%X.¼SÑÔWilliam€B.€Cain,óó€J.,€delivered€the€opinion€of€the€court,€in€which€òòPatricia€J.€Cottrell,€J.,€óóandÐ Ø( ÐòòJames€L.€Ô_ÔWeatherfordÔ_Ô,€Sr.€J.óó,€joined.Ð Ä ÐÌLarry€D.€Woods,€Nashville,€Tennessee,€for€the€appellant,€Arthur€L.€Lynn.Ð œì ÐÌPaul€G.€Summers,€Attorney€General€&€Reporter;€Steven€B.€Ô_ÔMcCloudÔ_Ô,€Assistant€Attorney€General,Ð tÄ Ðfor€the€appellees,€Randy€C.€Camp,€Commissioner€and€Elisabeth€Ô_ÔRukeyserÔ_Ô,€Commissioner€of€theÐ `° ÐTennessee€Department€of€Mental€Health€and€Developmental€Disabilities.Ð L œ ÐÓ,ÓÌò òOPINIONó óÔ#†¼SÑ»XX%[#ÔÔ‡X%X»¼SÑÔÐ $"t! ÐÌòòóóÔ#†¼SÑ»XX%q #ÔÓ  ÓÔ€X%X»¼SÑÔà  àThere€is€little€dispute€as€to€the€material€facts€in€this€case.€€Arlington€Developmental€CenterÐ ü#L# Ð(ADC)€is€an€in„house€care€facility€operated€by€the€Tennessee€Department€of€Mental€Health€andÐ è$8 $ ÐDevelopmental€Disabilities.€€The€Holly€Unit€located€in€the€Baker€Building€at€ADC€housesÐ Ô%$!% Ðdevelopmentally€disabled€citizens€none€of€whom€are€ambulatory€or€otherwise€able€to€care€forÐ À&"& Ðthemselves.€€The€citizens€in€Holly€Unit€were€considered€more€medically€fragile€than€thoseÐ ¬'ü"' Ðmaintained€in€other€areas€of€the€facility€and€required€particular€vigilance€due€to€their€inability€to€careÐ ˜(è#( Ðfor€themselves€or€to€articulate€need€for€assistance.Ð „)Ô$) ÐÌà  àPetitioner€Arthur€Lynn€had€for€more€than€seven€years€been€employed€as€a€developmentalÐ \+¬&+ Ðtechnician€observing€and€assisting€such€developmentally€disabled€citizens.€€DevelopmentalÐ H,˜', Ðtechnicians€are€required€to€check€on€each€of€the€citizens€assigned€to€them€no€less€than€every€fifteenÐ 4-„(-ý ÐÔ_Ôminutes€and€to€observe€the€patients€carefully,€provide€any€care€required€such€as€changing€theÐ ° Ðpatientððs€position€or€supplying€dry€clothing,€and€to€report€any€physical€difficulties€the€patient€mightÐ œì Ðhave€to€the€medical€staff€for€treatment.€€The€maximum€number€of€citizens€requiring€directÐ ˆØ Ðsupervision€that€could€be€assigned€to€any€one€developmental€technician€was€three€patients€and€theÐ tÄ Ðminimum€number€that€could€be€assigned€was€one€patient.€€The€determination€of€which€citizensÐ `° Ðrequired€one€on€one€coverage€and€which€should€have€one€on€two€or€one€on€three€coverage€was€madeÐ L œ Ðby€a€physician.€€Assignment€of€€developmental€technicians€to€three€citizens€per€shift€indicated€thatÐ 8 ˆ Ðthey€were€less€at€risk€for€medical€emergencies€and€needed€less€intensive€care€than€did€citizensÐ $ t Ðassigned€staff€assistance€of€one€on€one€and€one€on€two.€€At€the€beginning€of€each€shift€the€supervisorÐ  ` Ðassigned€the€available€technicians€to€one,€two,€or€three€patients€according€to€the€information€givenÐ ü L  Ðabout€the€patientððs€staffing€needs€and€the€number€of€workers€present€for€the€shift.€€Ð è 8  ÐÌà  àOn€the€overnight€shift€of€February€29€to€March€1,€2000,€Petitioner€was€working€the€tenÐ À  Ðoððclock€p.m.€to€six€oððclock€a.m.€shift.€€At€the€beginning€of€the€shift,€Tennie€Gales,€developmentalÐ ¬ü  Ðtechnician€supervisor€for€Holly€Unit,€assigned€three€developmentally€disabled€citizens€to€PetitionerððsÐ ˜è  Ðcare.€€Petitioner€was€assigned€to€sit€in€a€room€with€two€of€the€citizens€and€to€periodically€go€to€aÐ „Ô  Ðseparate€room€where€the€other€citizen€was€located.€€All€three€of€the€citizens€assigned€to€Mr.€LynnÐ pÀ Ðwere€subject€to€seizures.€€Two€of€them€were€subject€to€hypothermic€temperature€variations€and€oneÐ \¬ Ðhad€a€tracheotomy€tube€that€required€periodic€observation€to€insure€that€no€aspiration€or€otherÐ H˜ Ðblockage€developed.€€During€the€shift€at€issue€Holly€had€sixteen€citizens€and€eight€developmentalÐ 4„ Ðtechnicians€with€three€of€the€Petitionerððs€co„workers€assigned€two€citizens€each,€three€othersÐ  p Ðassigned€with€only€one€citizen€each,€and€one€other€co„worker€assigned€three€citizens.€€Patient„staffÐ  \ Ðratios€that€night€were€at€the€maximum€permitted€with€no€overlapping€coverage€whereby€the€citizensÐ øH Ðassigned€to€Mr.€Lynn€received€attention€from€other€staff€as€well€as€Mr.€Lynn.Ð ä4 ÐÌà  àAt€approximately€twelve€thirty€a.m.€on€March€1,€2000,€Ms.€Gales,€while€making€herÐ ¼  Ðsupervisory€rounds,€discovered€Petitioner€asleep€in€a€chair.€€She€shook€him€to€awaken€him€and€toldÐ ¨ø Ðhim€to€check€on€the€citizens€assigned€to€him.€€When€she€returned€a€few€minutes€later€to€see€if€herÐ ”ä Ðinstructions€had€been€followed€she€found€Petitioner€asleep€again€in€the€same€position.€€She€calledÐ €Ð Ðher€supervisor€for€advice€and€was€directed€to€have€the€duty€nurse€accompany€her€to€where€PetitionerÐ l¼ Ðwas€sleeping.€€Ms.€Gales€returned€to€the€room€accompanied€by€nurse€Rose€Untal€and€foundÐ X ¨ ÐPetitioner€asleep.€€She€then€awakened€the€Petitioner€and€told€him€to€leave€the€unit.Ð D!” ÐÌà  àPetitioner€does€not€dispute€that€he€was€found€sleeping€on€duty.€€He€explained€at€the€hearingÐ #l! Ðbefore€the€Administrative€Law€Judge€that€he€was€suffering€from€allergies€and€sinus€or€cold„relatedÐ $X" Ðproblems€and€had€taken€an€over„the„counter€Benadryl„type€medication.€€Upon€these€facts,€AssistantÐ ô$D # ÐSuperintendent,€Nina€Staples,€recommended€that€Petitioner€be€terminated.€€This€recommendationÐ à%0!$ Ðwas€concurred€in€by€the€Director€of€Human€Resources€at€ADC€and€by€letter€dated€March€7,€2000€theÐ Ì&"% ÐSuperintendent€of€ADC€discharged€Petitioner.Ð ¸'#& ÐÌà  àConsistent€with€Tennessee€Department€of€Personnel€Rule€1120„11„.05,€Petitioner€appealedÐ )à$( Ðhis€termination€and€a€hearing€was€held€before€Administrative€Law€Judge€Margaret€Robertson€onÐ |*Ì%) ÐMay€29,€2001.€€Judge€Robertson€denied€Petitionerððs€grievance€and€upheld€the€decision€of€ADC€toÐ h+¸&* Ðterminate€his€employment.€€Mr.€Lynn€then€filed€his€Petition€for€Review€in€the€Chancery€Court€forÐ ° ÐDavidson€County€and€following€a€hearing€on€April€25,€2002,€the€Chancellor€affirmed€the€decisionÐ œì Ðof€the€Administrative€Law€Judge€finding€that€her€decision€was€supported€by€substantial€and€materialÐ ˆØ Ðevidence.Ð tÄ ÐÌà  àPetitioner€filed€a€timely€notice€of€appeal.Ð L œ ÐÌà  àBefore€proceeding€to€Mr.€Lynnððs€issue€on€appeal€the€Court€is€constrained€to€note€that€priorÐ $ t Ðto€the€activity€which€led€to€the€instant€action,€the€grievant€had€a€superior€performance€record.€€AsÐ  ` Ðdevelopmental€technician€Mr.€Lynn€earned€several€ð ðsuperiorðð€ratings€in€annual€performance€review.€Ð ü L  ÐIndeed,€on€February€1,€2000,€one€month€prior€to€the€date€of€this€infraction,€Mr.€Lynn€received€yetÐ è 8  Ðanother€overall€rating€of€ð ðsuperiorðð€on€his€performance€evaluation.€€Ð Ô$  ÐÌà  àThe€gravamen€of€the€Petition€appears€in€paragraphs€18€through€21€of€the€Complaint:Ð ¬ü  ÐÌà8  àà ` à18.à ¸ àPetitioner€has€had€a€long€career€in€state€government€with€excellentÐ „Ô  Ðperformance€and€enjoys€an€outstanding€reputation.ÐpÀÐ Ð  Ðà8  àà ` à19.à ¸ àUnder€such€circumstances,€termination€of€the€petitioner€was€certainlyÐ \¬ Ðunwarranted.€€Further,€the€Department€failed€to€use€or€follow€statutory€requirementsÐ H˜ Ðconcerning€progressive€discipline.Ð4„Ð Ð  Ðà8  àà ` à20.à ¸ àBased€upon€the€above,€the€actions€of€the€respondents€violate€the€dueÐ  p Ðprocess€rights€of€Mr.€Lynn,€violate€statutory€provisions,€are€in€excess€of€theirÐ  \ Ðstatutory€authority,€were€made€upon€unlawful€procedures,€were€made€in€an€improperÐ øH Ðmanner,€and€were€done€in€an€arbitrary,€capricious,€abusive€manner€using€a€clearlyÐ ä4 Ðunwarranted€exercise€of€discretion.€€Further,€the€decision€below€is€unsupported€byÐ Ð  Ðevidence€which€is€both€substantial€and€material.€€In€the€alternative,€the€ADC€sleepingÐ ¼  Ðpolicy€is€void€for€vagueness.ШøÐ Ð  Ðà8  àà ` à21.à ¸ àFor€all€these€reasons,€the€termination€of€the€petitioner€should€beÐ ”ä Ðreversed.€€The€respondents€should€be€ordered€to€reinstate€Mr.€Lynn€and€to€pay€backÐ €Ð Ðpay,€benefits,€and€reasonable€attorneyððs€fees€pursuant€to€42€U.S.C.€ðð1983,€1988,€etÐ l¼ Ðseq.€and€costs.€ÐX ¨Ð Ð  ÐÌà  àTennessee€Code€Annotated€section€4„5„322(h)(2001)€sets€out€the€appropriate€standard€ofÐ 0"€  Ðreview€to€be€applied€by€the€chancery€court€and€is€likewise€binding€upon€this€Court.€€Our€supremeÐ #l! Ðcourt€has€provided€the€following€guidance€concerning€the€standard:Ð $X" ÐÌà8  àà ` àWhen€reviewing€an€agency€decision,€the€appropriate€standard€of€review€is€thatÐ à%0!$ Ðset€forth€in€the€Administrative€Procedures€Act€.€.€.€€In€addition,€such€review€is€limitedÐ Ì&"% Ðto€the€record€of€the€case.€€Tenn.€Code€Ann.€ðð€4„5„322(g).€€Findings€of€fact€made€byÐ ¸'#& Ðthe€agency€may€not€be€reviewed€òòde€novoóó€by€the€trial€or€appellate€courts,€and€courtsÐ ¤(ô#' Ðshould€not€substitute€their€judgment€for€that€of€the€agency€as€to€the€weight€of€theÐ )à$( Ðevidence€on€factual€issues.€€òòSouthern€Ry.€Co.€v.€Tennessee€Bd.€of€Equalizationóó€682Ð |*Ì%) ÐS.W.2d€196,€199€(Tenn.1984);€òòCF€Indus.€v.€Tennessee€Pub.€Serv.€Commððnóó,€599Ð h+¸&* ÐS.W.2d€536€(Tenn.1980);€òòNational€Council€on€Compensation€Ins.€v.€Gaddisóó,€786Ð ° ÐS.W.2d€240,€242€(Tenn.Ct.App.1989).€€However,€the€ð ðsubstantial€and€materialÐ œì Ðevidence€standardðð€in€Tenn.€Code€Ann.€ðð€4„5„322(h)(5)€requires€a€searching€andÐ ˆØ Ðcareful€inquiry€that€subjects€the€agencyððs€decision€to€close€scrutiny.€€òòWayne€CountyÐ tÄ Ðv.€Solid€Waste€Disposal€Control€Bd.óó,€756€S.W.2d€274,€280€(Tenn.Ct.App.1988).€Ð `° ÐFurther,€construction€of€a€statute€and€application€of€the€law€to€the€facts€is€a€questionÐ L œ Ðof€law€that€may€be€addressed€by€the€courts.€€òòSee€Beare€Co.€v.€Tennessee€Dept.€ofÐ 8 ˆ ÐRevenueóó,€858€S.W.2d€906€(Tenn.1993).òò€óóÐ$ tÐ Ð  ÐÌòòSanifill€of€Tennessee,€Inc.€v.€Tennessee€Solid€Waste€Control€Bd.óó,€907€S.W.2d€807,€809„10Ð ü L  Ð(Tenn.1995).Ð è 8  ÐÌà  àIn€this€context,€this€Court€is€presented€with€the€following€issues€on€appeal:Ð À  ÐÌà8  àI.à0` Ð Ð àWhether€the€ALJ€considered€and€applied€the€wrong€portion€of€ADCððsÐ ˜è  Ðsleeping€policy€to€Mr.€Lynnððs€infraction;Ð„Ô ` Ð ` Ð  Ðà8  àII.à0` Ð Ð àWhether€the€ADC€rule€is€void€for€vagueness€under€the€U.S.€and€TennesseeÐ pÀ ÐConstitutions;Ð\¬` Ð ` Ð  Ðà8  àIII.à0` Ð Ð àWhether€the€chancery€court€failed€to€find€that€the€commissioner€wronglyÐ H˜ Ðrefused€to€apply€Tennessee€Code€Annotated€section€8„30„330.€€Ð4„` Ð ` Ð  ÐÌà  àThe€following€facts€found€by€the€commissioner,€with€which€the€chancellor€concurred,€andÐ  \ Ðto€which€Mr.€Lynn€admits,€are€of€primary€importance€in€the€determination€of€these€issues.€€Mr.€LynnÐ øH Ðadmits€that€he€was€asleep€while€on€duty€as€a€developmental€technician€for€ADC.€€Mr.€Lynn€likewise€Ð ä4 Ðadmits€that€he€was€asleep€in€the€room€occupied€by€two€of€the€citizens€over€which€he€had€charge.€€Mr.Ð Ð  ÐLynn€likewise€admits€that€he€was€required€to€check€on€these€patients€every€fifteen€minutes.€€Mr.Ð ¼  ÐLynn€takes€no€issue€with€the€statements€of€Nina€Staples€and€Rose€Untal€taken€before€theÐ ¨ø ÐAdministrative€Law€Judge,€which€indicate€that€twice€he€had€to€be€shaken€before€he€would€wake.€Ð ”ä ÐAlso€of€note€is€the€fact€that,€of€the€sixteen€citizens€in€the€care€of€ADC€on€the€night€in€question,€noneÐ €Ð Ðof€Mr.€Lynnððs€citizens€were€assigned€to€any€other€developmental€technician€in€addition€to€Mr.€Lynn.€Ð l¼ ÐIn€the€hearing€before€the€Administrative€Law€Judge,€conflicting€evidence€was€presented€concerningÐ X ¨ Ðwhether€any€other€developmental€technicians€were€in€the€room€in€which€Mr.€Lynn€had€fallen€asleepÐ D!” Ðwho€could€render€aid€to€the€citizens€in€Mr.€Lynnððs€direct€care.€€That€night€Mr.€Lynn€was€in€chargeÐ 0"€  Ðof€three€citizens.€€All€three€of€these€citizens€were€in€a€unit€known€for€housing€individuals€requiringÐ #l! Ðtube€feeding€and€periodic€checks€of€tracheotomy€tubes€to€avoid€aspiration€and€asphyxiation.€€InÐ $X" Ðevaluating€whether€the€petitionerððs€€termination€was€appropriate,€the€assistant€director€of€ADC,€NinaÐ ô$D # ÐStaples,€evaluated€all€of€these€circumstances€and€applied€the€following€pertinent€sections€of€ADCððsÐ à%0!$ ÐPolicy€on€Employee€Sleeping:Ð Ì&"% ÐÌà8  àB.à0` Ð Ð àDisciplinary€Action:Ф(ô#'` Ð ` Ð  ÐÌà8  àà ` àAny€employee€determined€to€be€sleeping€as€specified€in€the€aforementionedÐ |*Ì%) ÐSection€V.A.€shall€be€subject€to€disciplinary€action€according€to€the€Rules€of€theÐ h+¸&* ÐTennessee€Department€of€Personnel€(authority€cited€above€in€Section€III).€€The€RuleÐ ° Ðallows€the€Supervisor€and€ADC€Management€discretion€in€determining€disciplinaryÐ œì Ðaction.€€Subsequent€violations€of€categories€ð ðaðð€or€ð ðbðð€may€result€in€progressiveÐ ˆØ Ðdisciplinary€action.€€Individual€circumstances€(e.g.,€length€of€time€between€violations,Ð tÄ Ðcause€of€sleeping,€etc.)€will€be€considered€in€these€instances€before€action€is€taken.Ð`°Ð Ð  ÐÌà  à1.à0 ` àOffenses€and€Corresponding€Degrees€of€Disciplinary€ActionsÐ8 ˆ` (#` (# ÐÌà  àà8 ` àa.à ¸ àIf€an€employee€is€determined€to€be€sleeping€and€is€notÐ  ` Ðresponsible€for€direct€citizen€support,€the€employee€will€receive€aÐ ü L  Ðwritten€warning.€€An€offense€such€as€this€would€not€directly€placeÐ è 8  Ðcitizens€at€risk.€€[òòExampleóó€ð!ð€a€Support€Series€employee€falls€asleep€atÐ Ô$  Ða€desk€or€an€employee€falls€asleep€during€a€Staff€Development€class.]ÐÀ ` x` x ÐÌà8  àà8` Ð Ð àb.à ¸ àIf€an€employee€is€determined€to€be€sleeping€and€is€responsibleÐ ˜è  Ðfor€direct€citizen€support,€yet€the€employee€is€discovered€sleeping€inÐ „Ô  Ða€setting€where€other€employees,€or€co„workers,€could€at€least€accountÐ pÀ Ðfor€the€sleeping€employeeððs€citizen(s),€the€employee€will€receive€aÐ \¬ Ðfive„day€(5)€suspension.€€An€offense€such€as€this€would€directly€placeÐ H˜ Ðcitizens€at€risk,€although€the€risk€may€be€considered€ððlowðð.€Ð 4„ Ð(Employees€discovered€sleeping€who€are€responsible€for€1:1€citizenÐ  p Ðcoverage€fall€within€the€subsequent€category€ð ðcðð€regardless€ofÐ  \ Ðcircumstance.)€ÐøH` x` x ÐÌà  àà8 ` àc.à ¸ àIf€an€employee€is€determined€to€be€sleeping€and€is€responsibleÐ Ð  Ðfor€direct€citizen€support,€and€such€a€determination€occurs€in€anyÐ ¼  Ðsetting€other€than€the€type€described€in€V.B.1.b.,€or€creates€significantÐ ¨ø Ðrisk€for€the€citizen,€the€employee€will€be€terminated€fromÐ ”ä Ðemployment.€€Any€employee€discovered€sleeping€who€is€assigned€1:1Ð €Ð Ðcitizen€coverage€falls€within€this€category.€[òòExampleóó€ð!ð€an€employeeÐ l¼ Ðfalls€asleep€while€providing€one„to„one€coverage€at€a€hospital€or€anÐ X ¨ Ðemployee€is€discovered€sleeping€while€assisting€a€citizen€duringÐ D!” Ðmealtime.]Ð0"€ ` x` x ÐÌà  àThe€plain€unambiguous€language€of€the€sleeping€policy€provides€that€sleeping€on€duty€shallÐ $X" Ðsubject€a€sleeping€employee€to€disciplinary€action.€€The€plain€language€likewise€accords€managementÐ ô$D # Ðdiscretion€in€determining€the€appropriate€disciplinary€action.€€Contrary€to€Appellantððs€argument,Ð à%0!$ Ðsubsection€(b)€does€not€require€all€employees€discovered€sleeping€to€be€suspended€five€days€as€a€firstÐ Ì&"% Ðoffense.€€The€five€day€suspension€provision€only€applies€to€employees€ð ðdiscovered€sleeping€in€aÐ ¸'#& Ðsetting€where€other€employees€or€co„workers€could€at€least€account€for€the€sleeping€employeeððsÐ ¤(ô#' Ðcitizen(s).ðð€€With€regard€to€whether€other€employees€or€co„workers€could€account€for€Mr.€LynnððsÐ )à$( Ðassigned€citizens,€the€proof€before€the€Administrative€Law€Judge€is€conflicting.€€Tennie€GalesÐ |*Ì%) Ðprovided€the€following€testimony:Ð h+¸&* Їà8  àà ` àQ.à ¸ àAnd€during€that€30€minutes,€or€maybe€27€minutes€until€you€and€NurseÐ ° ÐRose€get€there,€the€only€citizen€coverage€for€Brian€and€Calvin€is€Mr.€Lynn,€correct?€ÐœìÐ Ð  Ðà  àà ` àA.à0 ¸ àHe€was€in€the€room.Јظ (#¸ (# Ðà  àà ` àQ.à0 ¸ àWas€anybody€else€in€the€room?Ðtĸ (#¸ (# Ðà  àà ` àA.à0 ¸ àNo.Ð`°¸ (#¸ (# ÐÌà  àThe€following€testimony€given€by€Nina€Staples,€Assistant€Superintendent€for€residential€andÐ 8 ˆ Ðsupported€living€at€ADC,€further€explains€the€coverage€controversy:Ð $ t ÐÌà8  àà ` àà ¸ àAnd€then€the€next€question€would€be:€€Was€the€employee€workingÐ ü L  Ðwith€citizens,€period;€meaning€was€the€employee€assigned€to€citizens.€€And€in€thisÐ è 8  Ðinstance,€Mr.€Lynn€was€assigned€to€three€citizens€that€night.ÐÔ$ Ð Ð  Ðà8  àà ` àà ¸ àThe€other€question€becomes€a€question€of,€if€when€he€was€discoveredÐ À  Ðasleep,€was€there€someone€else€that€could€take€care€of€or€address€the€needs€of€thisÐ ¬ü  Ðcitizen.€€And€in€the€case€of€the€room€that€he€was€in€with€Brian€and€Calvin,€it€was€myÐ ˜è  Ðunderstanding€that€there€may€have€been€another€person€present,€but€that€the€otherÐ „Ô  Ðperson€could€not€assume€that€responsibility€because€that€other€person€had€anÐ pÀ Ðassignment.€€And€if€that€person€took€on€any€more,€then€that€person€would€have€„€„€weÐ \¬ Ðwould€have€been€out€of€our€ratio.€€And€our€ratio€„€„€the€ratio€for€that€other€personÐ H˜ Ðwould€have€exceeded€her€ratio.€€And€that€was€the€reason€why€she€would€not€haveÐ 4„ Ðbeen€able€to€assume€any€additional€responsibilities€for€citizen€care.Ð pÐ Ð  ÐÌà  àIn€addition€to€the€aforementioned€testimony,€the€ALJ€heard€from€Ronald€Bruce,€the€DirectorÐ øH Ðof€Personnel;€Tiffany€Moffett,€a€former€employee€with€ADC;€Rose€Untal,€the€nurse€on€duty€at€theÐ ä4 Ðtime€of€Mr.€Lynnððs€infraction,€and€Mr.€Lynn€himself.€€After€the€hearing€the€Administrative€LawÐ Ð  ÐJudge€entered€a€fairly€lengthy€order€in€which€it€found,€in€pertinent€part:Ð ¼  ÐÌà8  àà ` àThe€preponderance€of€the€evidence€in€this€matter€is€that€the€GrievantððsÐ ”ä Ðoffense€falls€into€category€(c)€rather€than€category€(b),€in€spite€of€the€testimony€to€theÐ €Ð Ðcontrary€elicited€from€Ms.€Staples.€€Category€(c)€applies€to€two€types€of€situations,Ð l¼ Ðwhich€include€a€situation€where€an€employee€is€assigned€to€1:1€citizen€coverage.€Ð X ¨ ÐCategory€(c)€applies€when€an€employee€is€responsible€for€direct€citizen€support,€andÐ D!” Ðis€found€sleeping€in€any€setting€other€than€that€described€in€(b),€that€being€a€settingÐ 0"€  Ðin€which€other€employees€or€co„workers€could€account€for€the€citizens€charged€to€theÐ #l! Ðcare€of€the€sleeping€employee.€€Category€(c)€also€applies€when€the€employeeððsÐ $X" Ðsleeping€creates€significant€risk€for€the€citizen(s)€to€whom€he€is€assigned.€€In€theÐ ô$D # Ðinstant€case,€Grievant€Lynn€was€directly€responsible€for€three€citizens.€€No€otherÐ à%0!$ Ðemployees€were€available€to€overlap€with€Grievant€Lynnððs€responsibilities.€€TheÐ Ì&"% Ðnumber€of€staff€on€duty€€that€night€was€just€enough€to€meet€staffing€requirements€atÐ ¸'#& Ðrequired€levels€for€the€number€of€citizens€and€the€level€of€staffing€their€conditionsÐ ¤(ô#' Ðrequired.€€The€loss€of€Mr.€Lynnððs€services€that€night€required€that€his€supervisorÐ )à$( Ðassume€direct€care€responsibility€for€three€citizens€in€order€for€the€unit€to€continueÐ |*Ì%) Ðto€meet€required€staffing€levels€during€the€shift.€€Ðh+¸&*Ð Ð  Їà8  àà ` à10.à ¸ àSleeping€by€Mr.€Lynn€caused€significant€risk€to€the€citizens€assignedÐ ° Ðto€his€care.€€These€citizens€were€mentally€retarded,€non„ambulatory,€had€seizureÐ œì Ðdisorders€and€may€have€had€feeding€tubes,€tracheostomies€(sic),€and€vulnerability€toÐ ˆØ Ðhypothermia.€€They€required€regular€monitoring€at€brief€intervals€and€the€continualÐ tÄ Ðpresence€of€someone€who€could€quickly€observe€a€developing€medical€problem€andÐ `° Ðbe€able€to€make€a€timely€call€to€a€medical€professional.€€The€absence€of€oversight€byÐ L œ Ðthe€staff€member€assigned€to€stand€watch€over€them€placed€them€at€significant€riskÐ 8 ˆ Ðbecause€of€their€medically€fragile€conditions.€€Grievant€Lynnððs€argument€that€the€factÐ $ t Ðthat€the€citizens€assigned€to€him€were€suitable€for€assignment€to€a€3:1€citizen„to„staffÐ  ` Ðratio€meant€that€the€situation€was€necessarily€a€low€risk€one€and€thus€restricted€to€aÐ ü L  Ðcategory€(b)€offense€is€not€persuasive.€€Grievant€Lynnððs€sleeping€on€duty€clearly€fallsÐ è 8  Ðinto€category€(c)€both€because€of€the€lack€of€other€employees€to€cover€his€derelictionÐ Ô$  Ðof€duty€and€because€of€the€medically€fragile€state€of€his€charges.€€In€category€(b),€theÐ À  Ðrisk€is€described€as€low€because€of€the€availability€of€other€employees€to€shoulder€theÐ ¬ü  Ðresponsibilities€of€the€sleeping€employee€for€his€assigned€citizens€so€that€no€coverageÐ ˜è  Ðis€lost.€€Sleeping€while€responsible€for€coverage€at€the€1:1€staffing€ratio€is€an€extremeÐ „Ô  Ðexample€of€a€category€(c)€violation,€not€the€only€example.€€Grievant€Lynnððs€violationÐ pÀ Ðof€falling€asleep€while€on€duty€clearly€violates€category€(c)€of€the€Employee€SleepingÐ \¬ Ðpolicy,€which€directs€that€the€€appropriate€discipline€is€termination.€€Therefore€theÐ H˜ Ðdiscipline€applied€to€him,€which€was€termination,€was€consistent€with€the€policy.Ð4„Ð Ð  ÐÌà  àThe€chancellor€held€that€the€Administrative€Law€Judgeððs€finding€was€supported€byÐ  \ Ðsubstantial€and€material€evidence.€€The€Administrative€Law€Judgeððs€application€of€the€sleepingÐ øH Ðpolicy€depended€on€the€material€facts€presented€in€the€Administrative€hearing.€€It€is€well€settled€thatÐ ä4 Ðwe€do€not€substitute€our€judgment€on€appeal€for€that€of€the€ALJ€and€the€chancellor.€€Thus,€we€findÐ Ð  Ðno€error€in€the€trial€courtððs€dismissal€of€Mr.€Lynnððs€Petition€for€Review€of€the€Administrative€LawÐ ¼  ÐJudge.Ð ¨ø ÐÌà  àRegarding€Appellantððs€argument€that€the€ADC€rule€is€void€for€vagueness,€the€plain€languageÐ €Ð Ðof€the€rule€gives€no€room€for€doubt€that€sleeping€on€the€job€would€subject€the€employee€to€discipline,€Ð l¼ Ðand€that€the€enforcement€of€the€provisions€of€the€policy€left€no€doubt€as€to€the€employeesðð€risks€ofÐ X ¨ Ðdiscipline€and/or€termination€in€the€event€of€a€violation.€€The€findings€are€supported€by€substantialÐ D!” Ðand€material€evidence.Ð 0"€  ÐÌà  àAs€for€Appellantððs€third€issue€concerning€the€progressive€discipline€language€in€TennesseeÐ $X" ÐCode€Annotated€section€8„30„330,€the€plain€language€of€that€statute€as€well€as€the€sleeping€policyÐ ô$D # Ðin€place€at€ADC€made€it€very€clear€that€management€retained€broad€discretion€in€describing€thoseÐ à%0!$ Ðsituations€warranting€progressive€discipline€and€those€situations€imposing€such€risk€that€progressiveÐ Ì&"% Ðdiscipline€was€not€necessary.€€Section€330€provides€that€discipline€be€appropriate€for€the€offense:Ð ¸'#& ÐÌà8  à(a)€€The€supervisor€is€responsible€for€maintaining€the€proper€performance€level,Ð )à$( Ðâ âconduct,€and€discipline€of€the€employees€under€the€supervisorððs€supervision.€€WhenÐ |*Ì%) Ðcorrective€action€is€necessary,€the€supervisor€must€administer€disciplinary€actionÐ ° Ðbeginning€at€the€lowest€appropriate€step€for€each€area€of€misconduct.МìÐ Ð  Ðâ âà8  à(b)€€Any€written€warning€or€written€follow„up€to€an€oral€warning€which€has€beenÐ ˆØ Ðissued€to€an€employee€shall€be€automatically€expunged€from€the€employeeððsÐ tÄ Ðpersonnel€file€after€a€period€of€two€(2)€years;€provided,€that€the€employee€has€had€noÐ `° Ðfurther€disciplinary€actions€with€respect€to€the€same€area€of€performance,€conduct,Ð L œ Ðand€discipline.Ð8 ˆÐ Ð  Ðà8  à(c)€€When€corrective€action€is€necessary,€the€supervisor€must€administer€disciplinaryÐ $ t Ðaction€beginning€at€the€step€appropriate€to€the€infraction€or€performance.€€SubsequentÐ  ` Ðinfractions€or€poor€performance€may€result€in€more€severe€discipline€in€accordanceÐ ü L  Ðwith€subsection€(a).Ðè 8 Ð Ð  ÐTenn.€Code€Ann.€ðð€8„30„330€(1986).Ð Ô$  ÐÌà  àThe€limited€standard€of€review€in€this€case€does€not€permit€this€Court€to€second„guess€theÐ ¬ü  Ðwisdom€of€the€judgment€of€ADC.€€The€discussion€by€this€Court€in€òòPapachristou€v.€University€ofÐ ˜è  ÐTennesseeóó,€29€S.W.3d€487€(Tenn.Ct.App.2000)€is€enlightening€and€reflects€the€limitations€on€judicialÐ „Ô  Ðcontrol€mandated€by€Tennessee€Code€Annotated€section€4„5„322(h).Ð pÀ ÐÌà8  àà ` àTenn.Code€Ann.€ðð€4„5„322(h)€states€that€upon€judicial€review€of€an€agencyððsÐ H˜ ÐfindingsÐ4„Ð Ð  Ðà8  àà ` à(h)à0¸ Ð Ð àThe€court€may€affirm€the€decision€of€the€agency€or€remand€the€caseÐ  p Ðfor€further€proceedings.€€The€court€may€reverse€or€modify€theÐ  \ Ðdecision€if€the€rights€of€the€petitioner€have€been€prejudiced€becauseÐ øH Ðthe€administrative€findings,€inferences,€conclusions€or€decisions€are:Ðä4¸ Ð ¸ Ð  Ðà8  àà ` àà ¸ à(1)à0Ð Ð àIn€violation€of€constitutional€or€statutory€provisions;ÐÐ Ð Ð  Ðà8  àà ` àà ¸ à(2)à0Ð Ð àIn€excess€of€the€statutory€authority€of€the€agency;м Ð Ð  Ðà8  àà ` àà ¸ à(3)à0Ð Ð àMade€upon€unlawful€procedure;ШøÐ Ð  Ðà8  àà ` àà ¸ à(4)à0Ð Ð àArbitrary€or€capricious€or€characterized€by€abuse€of€discretionÐ ”ä Ðor€clearly€unwarranted€exercise€of€discretion;€or€clearlyÐ €Ð Ðunwarranted€exercise€of€discretion;€orÐl¼Ð Ð  Ðà8  àà ` àà ¸ à(5)à0Ð Ð àUnsupported€by€evidence€which€is€both€substantial€andÐ X ¨ Ðmaterial€in€the€light€of€the€entire€record.ÐD!”Ð Ð  Ðà8  àà0` Ð Ð àà0¸ ` Ð ` Ð àIn€determining€the€substantiality€of€evidence,€the€court€shall€take€intoÐ 0"€  Ðaccount€whatever€in€the€record€fairly€detracts€from€its€weight,€but€theÐ #l! Ðcourt€shall€not€substitute€its€judgment€for€that€of€the€agency€as€to€theÐ $X" Ðweight€of€the€evidence€on€questions€of€fact.Ðô$D #¸ Ð ¸ Ð  Ðà8  àà ` àð ðSubstantial€and€material€evidenceðð€has€been€defined€as€ð ð€ððsuch€relevantÐ à%0!$ Ðevidence€as€a€reasonable€mind€might€accept€to€support€€a€rational€conclusion€andÐ Ì&"% Ðsuch€as€to€furnish€a€reasonably€sound€basis€for€the€action€under€consideration.ðð€ðð€Ð ¸'#& ÐòòClay€County€Manor,€Inc.€v.€State€of€Tennessee4óó,€8949€S.W.2d€755,€759€(Tenn.1993)Ð ¤(ô#' Ð(òòquoting€Southern€Railway€Co.€v.€State€Board€of€Equalizationóó,€682€S.W.2d€196,€199Ð )à$( Ð(Tenn.1984)).Ð|*Ì%)Ð Ð  Ðà  àà ` à.€.€.€.€€€Ð h+¸&* Ðà8  àà ` àWhen€reviewing€administrative€decisions,€the€courts€do€not€make€de€novoÐ ° Ðdecisions€about€the€credibility€of€witnesses.€€òòCrass€v.€Tennessee€Valley€Authorityóó,Ð œì Ð460€F.Supp.€941€(D.C.Tenn.1978),€òòaffððdóó€627€F.2d€1089€(6th€Cir.1978).€€Neither€theÐ ˆØ Ðtrial€court€nor€this€court€may€review€issues€of€fact€de€novo€or€substitute€the€courtððsÐ tÄ Ðjudgment€for€that€of€the€agency€as€to€the€weight€of€the€evidence.€€òòReece€v.€TennesseeÐ `° ÐCivil€Service€Commissionóó,€699€S.W.2d€808€(Tenn.Ct.App.1985).€€With€substantialÐ L œ Ðand€material€proof€in€the€record€on€which€the€University€Chancellorððs€findings€couldÐ 8 ˆ Ðbe€based,€the€action€taken€must€be€affirmed.Ð$ tÐ Ð  ÐÌòòPapachristou€v.€University€of€Tennesseeóó,€29€S.W.3d€487,€490„91€(Tenn.2000).Ð ü L  ÐÌà  àThe€temptation€is€strong€to€try€to€give€relief€to€a€man€whose€ð ðsuperiorðð€performance€in€theÐ Ô$  Ðpast€is€unquestioned.€€There€is,€however,€ð ðevidence€which€is€both€substantial€and€materialðð€in€theÐ À  Ðrecord€to€support€the€judgment€of€the€Administrative€Law€Judge€and€of€the€Chancellor.€€At€thisÐ ¬ü  Ðpoint,€the€appellate€inquiry€comes€to€an€end.Ð ˜è  ÐÌà  àThe€judgment€of€the€trial€court€is€in€all€respects€affirmed.€€Costs€of€appeal€are€taxed€againstÐ pÀ ÐAppellant€for€which€execution€may€issue.€€Ð \¬ ÐÌÌÌÌà  àà ` àà ¸ àà  àà h àà À àà  à___________________________________€Ð øH Ðà  àà ` àà ¸ àà  àà h àà À àà  àWILLIAM€B.€CAIN,€JUDGE