v. Department of Revenue , 2020 COA 17 ( 2020 )


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  •      The summaries of the Colorado Court of Appeals published opinions
    constitute no part of the opinion of the division but have been prepared by
    the division for the convenience of the reader. The summaries may not be
    cited or relied upon as they are not the official language of the division.
    Any discrepancy between the language in the summary and in the opinion
    should be resolved in favor of the language in the opinion.
    SUMMARY
    January 30, 2020
    2020COA17
    No. 18CA1347, Emmons v. Department of Revenue — Vehicles
    and Traffic — Driver’s Licenses — Revocation of Licenses Based
    on Administrative Determination — Hearing
    A division of the court of appeals considers whether the
    Colorado Department of Revenue, Division of Motor Vehicles, had
    jurisdiction to revoke Kerry Marie Emmons’ driver’s license.
    Generally, the Department of Revenue must hold a driver’s
    license revocation hearing within sixty days of receiving a driver’s
    written request for such a hearing. § 42-2-126(8)(a), C.R.S.
    2019. However, for a legitimate cause, the Department may
    reschedule a hearing more than sixty days after receiving the
    driver’s request if the Department reschedules the hearing for the
    “earliest possible time” the hearing officer becomes available. § 42-
    2-126(8)(a)(IV).
    Like other divisions, the division first concludes that section
    42-2-126(8)(a) imposes a limit on the Department’s jurisdiction to
    revoke a driver’s license. See Tate v. Colo. Dep’t of Revenue, 
    155 P.3d 643
    , 645 (Colo. App. 2007); Guynn v. State, 
    939 P.2d 526
    , 529
    (Colo. App. 1997); Wilson v. Hill, 
    782 P.2d 874
    , 875 (Colo. App.
    1989).
    Then, as a matter of first impression, the division concludes
    that the Department of Revenue has the burden to show that it
    rescheduled a driver’s license revocation hearing for the “earliest
    possible time” a hearing officer became available. Because the
    Department rescheduled the hearing more than sixty days after
    Emmons requested a hearing, and because the Department did not
    prove that it rescheduled the hearing at the “earliest possible time”
    a hearing officer became available, the division concludes that the
    Department lacked jurisdiction to revoke Emmons’ license.
    Accordingly, the division reverses the district court’s judgment
    affirming the Department’s revocation of Emmons’ license.
    COLORADO COURT OF APPEALS                                        2020COA17
    Court of Appeals No. 18CA1347
    El Paso County District Court No. 17CV32513
    Honorable Thomas K. Kane, Judge
    Kerry Marie Emmons,
    Plaintiff-Appellant,
    v.
    Colorado Department of Revenue, Division of Motor Vehicles, acting by and
    through its executive director, Lu Cordova,
    Defendant-Appellee.
    JUDGMENT REVERSED
    Division IV
    Opinion by JUSTICE MARTINEZ*
    Navarro and Rothenberg*, JJ., concur
    Announced January 30, 2020
    The Bussey Law Firm, P.C, Timothy R. Bussey, Philip C. Shadwick, Jr.,
    Colorado Springs, Colorado, for Plaintiff-Appellant
    Philip J. Weiser, Attorney General, Laurie Rottersman, Senior Assistant
    Attorney General, Jessica E. Ross, Assistant Attorney General, Denver,
    Colorado, for Defendant-Appellee
    *Sitting by assignment of the Chief Justice under provisions of Colo. Const. art.
    VI, § 5(3), and § 24-51-1105, C.R.S. 2019.
    ¶1    Officer Scott Warren arrested Kerry Marie Emmons on
    suspicion of drunk driving. Subsequently, the Department of
    Revenue, Division of Motor Vehicles (Department) revoked Emmons’
    driver’s license after a hearing at which it found that she had driven
    within two hours of having a blood alcohol content (BAC) above .08.
    Emmons appealed to the district court, which affirmed the action of
    the Department. Now, Emmons appeals the district court’s
    judgment affirming the Department’s revocation of her license.
    ¶2    On appeal, Emmons raises several challenges. She contends
    that (1) the Department lacked jurisdiction to revoke her license
    because her hearing was untimely; (2) the hearing officer violated
    her due process rights by allowing Officer Warren to testify by
    telephone at her hearing; (3) the record does not support the
    hearing officer’s finding that Officer Warren lawfully stopped
    Emmons; and (4) the record does not support the hearing officer’s
    finding that Emmons had a BAC above .08.
    ¶3    Emmons also contends the district court erred in denying her
    motion to stay the revocation of her license without holding a
    hearing.
    1
    ¶4    We conclude that the Department lacked jurisdiction to revoke
    Emmons’ license. We therefore reverse the district court’s judgment
    and do not address Emmons’ other contentions.
    I.     Background
    ¶5    In the early morning of May 25, 2017, Officer Warren of the
    Colorado Springs Police Department was out on patrol. He noticed
    a black SUV alternating speeds and weaving within its lane on
    Interstate 25 and began to follow the vehicle.
    ¶6    When the black SUV “straddled” the dashed lines marking its
    lane, Warren activated his patrol car’s overhead lights and pulled
    the SUV over. The driver, Emmons, admitted that she had
    consumed alcohol at home, had bloodshot watery eyes and slurred
    speech, and did not successfully perform roadside sobriety tests.
    ¶7    Officer Warren arrested Emmons, took her to the police
    station, and administered a breath test to her. The results showed
    that she had a BAC of .173 grams of alcohol per 210 liters of
    breath. Because Emmons’ BAC exceeded the legal limit of .08,
    Officer Warren served her with a notice of revocation of her driver’s
    license.
    2
    ¶8     On May 30, 2017, Emmons requested a hearing with the
    Department to review the revocation of her license. After some
    scheduling difficulties (which we will discuss in detail below), the
    Department held Emmons’ hearing on August 17, before Hearing
    Officer Linda Stanley.
    ¶9     Stanley heard testimony from Emmons and Officer Warren
    and concluded that Emmons “drove a motor vehicle in the State of
    Colorado with a resulting BAC that exceeded the legal limit set forth
    in C.R.S. § 42-2-126(2)(b) and which was established within two
    hours of the initial observation of [her] driving.” Based on this
    finding, Stanley issued an order revoking Emmons’ driving
    privileges for twelve months.
    ¶ 10   At the end of the twelve-month revocation period, Emmons’
    license was not reinstated because she had not met several
    requirements, including
    • completing an alcohol and drug treatment program, see
    § 42-2-126(4)(d)(II)(A), C.R.S. 2019;
    • paying a $95.00 restoration fee, § 42-2-132(4)(a)(I), C.R.S.
    2019; and
    3
    • filing an “SR-22,” which requires a driver’s insurance
    company to notify the Department if the driver cancels
    her insurance policy, see Zelenoy v. Colo. Dep’t of
    Revenue, 
    192 P.3d 538
    , 540 (Colo. App. 2008).
    ¶ 11   Emmons filed an appeal in the district court, challenging the
    hearing officer’s order; the district court affirmed the revocation of
    her license. She now appeals the district court judgment affirming
    the revocation of her driver’s license. Emmons and the Department
    have advised this court that her license has not been reinstated.
    II.    Standard of Review
    ¶ 12   When reviewing the Department’s actions in revocation
    proceedings, we stand in the same position as the district
    court. Baldwin v. Huber, 
    223 P.3d 150
    , 152 (Colo. App. 2009). We
    may reverse the revocation only if, based on the administrative
    record, we find “that the department exceeded its constitutional or
    statutory authority, made an erroneous interpretation of the law,
    acted in an arbitrary and capricious manner, or made a
    determination that is unsupported by the evidence in the record.”
    § 42-2-126(9)(b). “A hearing officer’s finding of fact is arbitrary and
    capricious if the record as a whole shows there is no substantial
    4
    evidence to support the decision.” Fallon v. Colo. Dep’t of Revenue,
    
    250 P.3d 691
    , 693 (Colo. App. 2010). We review both the hearing
    officer’s and the district court’s determinations of law de novo. 
    Id. III. Timeliness
    of Hearing
    ¶ 13   Emmons contends that the Department lacked jurisdiction to
    revoke her license because (1) her revocation hearing took place
    more than sixty days after the Department received her request for
    a hearing and (2) the Department did not show that the hearing was
    rescheduled at the earliest possible time a hearing officer was
    available. See § 42-2-126(8)(a)(I), (IV).
    ¶ 14   We agree.
    A.   Delays in Scheduling the Hearing
    ¶ 15   Emmons received the notice of revocation on May 25, 2017.
    On May 30, 2017, she timely filed a written request for a hearing.
    See § 42-2-126(7)(b) (“A person must request a hearing in writing
    within seven days after the day the person receives the notice of
    revocation . . . .”). The Department scheduled her hearing for July
    28, 2017. It began, as scheduled, on that day before a hearing
    officer of the Department. (We will refer to this hearing officer as
    “the original hearing officer.”)
    5
    ¶ 16   A bomb threat interrupted the July 28 hearing, forcing the
    parties to evacuate the building. For the entire week after the bomb
    threat, the original hearing officer called in sick to work. The week
    after that, the original hearing officer went on vacation. At some
    point while she was on vacation, the original hearing officer
    resigned her position with the Department.
    ¶ 17   The Department ultimately rescheduled the hearing for August
    17, 2017, before a new hearing officer, Hearing Officer Stanley.
    ¶ 18   At the beginning of the August 17 hearing, Stanley noted the
    hearing was “outside of the 60-day timeline.” Emmons objected,
    arguing that the Department lacked jurisdiction because the
    hearing had been scheduled more than sixty days after the
    Department received her request for a hearing and was not
    rescheduled at the earliest possible time when a hearing officer was
    available. See § 42-2-126(8)(a)(IV).
    ¶ 19   Stanley explained that the original hearing officer had called in
    sick before going on vacation and resigning. Thus, Stanley noted,
    there was no way to reschedule with the original hearing officer
    between the date of the bomb threat and the date when the officer
    resigned.
    6
    ¶ 20      After this explanation, Stanley took Emmons’ objection under
    advisement. She informed Emmons that she would research the
    issue and would dismiss the matter if she found Emmons’ objection
    “valid and justified.” Then she directed the parties to proceed with
    the hearing.
    ¶ 21      Emmons’ counsel objected once more. Stanley said she
    understood the objection, but reiterated that the hearing was
    “scheduled outside of the 60 days due to the [original] Hearing
    Officer unavailability [sic] which would include not being able to
    continue the hearing on [the day of the bomb threat], the [original]
    Hearing Officer calling in sick, and then the [original] Hearing
    Officer being on vacation.”
    ¶ 22      Neither Stanley nor Emmons’ counsel commented again on the
    timeliness issue during the hearing.
    ¶ 23      After the hearing, Stanley issued an order revoking Emmons’
    license. The revocation order contained the following findings of
    fact:
    • “[Emmons] requested a hearing on May 30, 2017. The
    hearing was originally conducted on July 28, 2017,
    within 60 days of the written request.”
    7
    • “Due to an unexpected evacuation of the premises, the
    hearing needed to be rescheduled to August 17, 2017,
    pursuant to C.R.S. § 42-2-126(8)(a).”
    It contained the following conclusion of law:
    • “The Hearing Officer had jurisdiction to hear this matter
    as there is an Express Consent revocation pending and
    the hearing was conducted within the 60 day timeframe
    of the request for hearing.”
    Emmons challenges this conclusion and contends that the
    Department lacked jurisdiction.
    ¶ 24        We begin our analysis of Emmons’ contention by outlining the
    statutory timeframe in which the Department must schedule a
    driver’s license revocation hearing.
    B.     Statutory Timeframe for Scheduling a Revocation Hearing
    ¶ 25        Within seven days of receiving a notice of revocation, a
    licensee may make a written request for a hearing reviewing the
    Department’s revocation. § 42-2-126(7)(a). Section 42-2-126(8)(a)
    provides:
    The hearing shall be scheduled to be held as
    quickly as practicable but not more than sixty
    days after the date the department receives the
    8
    request for a hearing; except that, if a hearing
    is rescheduled because of the unavailability of
    a law enforcement officer or the hearing officer
    in accordance with subsection 8(a)(III) or
    (8)(a)(IV) of this section, the hearing may be
    rescheduled more than sixty days after the
    date the department receives the request for
    the hearing . . . .
    ¶ 26   In summary, the statute requires the Department to hold the
    hearing within sixty days of receiving a licensee’s request, unless
    certain exceptions under subsections (8)(a)(III) and (8)(a)(IV) apply.
    The exception relevant here is as follows:
    If a hearing officer cannot appear at an original
    or rescheduled hearing because of medical
    reasons, a law enforcement emergency,
    another court or administrative hearing, or any
    other legitimate, just cause, the hearing officer
    or the department may reschedule the hearing
    at the earliest possible time when the law
    enforcement officer and the hearing officer will
    be available.
    § 42-2-126(8)(a)(IV).
    ¶ 27   Emmons contends the Department lacked jurisdiction because
    it failed to comply with the time limit of section 42-2-126(8)(a).
    Thus, to address her contention, we must first determine whether
    section 42-2-126(8)(a) is jurisdictional.
    C.   Jurisdiction
    9
    ¶ 28   Unlike district courts, which have “general jurisdiction,” Colo.
    Const. art. VI, § 9, the power of administrative agencies extends
    only so far as “the authority conferred on them by statute,” Flavell
    v. Dep’t of Welfare, 
    144 Colo. 203
    , 206, 
    355 P.2d 941
    , 943 (Colo.
    1960) (citation omitted); see also § 24-4-106(7)(b)(IV), C.R.S. 2019
    (providing that a reviewing court shall set aside an administrative
    agency action that exceeds the agency’s statutory jurisdiction); Colo.
    Div. of Emp’t & Training, Dep’t of Labor & Emp’t v. Indus. Comm’n,
    
    665 P.2d 631
    , 633 (Colo. App. 1983) (noting that administrative
    agencies’ jurisdiction is “determined and limited by the statutes by
    which they are created”).
    ¶ 29   Divisions of this court have held that the time limit in section
    42-2-126(8) (and its predecessors) is jurisdictional. See Tate v.
    Colo. Dep’t of Revenue, 
    155 P.3d 643
    , 645 (Colo. App. 2007); Guynn
    v. State, 
    939 P.2d 526
    , 529 (Colo. App. 1997); Wilson v. Hill, 
    782 P.2d 874
    , 875 (Colo. App. 1989).
    ¶ 30   We agree with these divisions. The plain language of the
    statute sets forth the scope of the Department’s jurisdiction to
    conduct a revocation hearing: “The hearing shall be scheduled to be
    held as quickly as practicable but not more than sixty days after the
    10
    date the department receives the request for a hearing . . . .” § 42-
    2-126(8)(a)(I) (emphasis added).
    ¶ 31   Thus, we conclude that the time limit of section 42-2-126(8) is
    jurisdictional.
    D.     Analysis
    ¶ 32   Having concluded that the time limit of section 42-2-126(8) is
    jurisdictional, we review de novo whether the Department had
    jurisdiction in this matter. See Hawes v. Colo. Div. of Ins., 
    65 P.3d 1008
    , 1015 (Colo. 2003) (“[A]n agency’s determination of its own
    jurisdiction is subject to de novo review by a court.”). If we find that
    the Department acted without jurisdiction, we must reverse the
    district court judgment affirming its revocation order. § 24-4-
    106(7)(b)(IV); see 
    Wilson, 782 P.2d at 875
    ; see also 
    Guynn, 939 P.2d at 529
    .
    ¶ 33   Emmons contends that the Department lacked jurisdiction to
    revoke her license because (1) her hearing took place more than
    sixty days after she filed her request for a hearing and (2) there is
    no record evidence that the Department rescheduled her hearing for
    the “earliest possible time” when Hearing Officer Stanley and Officer
    Warren were available. See § 42-2-126(8)(a)(IV).
    11
    ¶ 34   The Department counters that Emmons (1) did not preserve
    her jurisdictional argument and (2) has presented no evidence that
    the hearing did not take place at the “earliest possible time” a
    hearing officer became available. 
    Id. 1. Preservation
    ¶ 35   Even if Emmons had not preserved her jurisdictional
    argument, “[i]ssues concerning subject-matter jurisdiction may be
    raised at any time.” Medina v. State, 
    35 P.3d 443
    , 452 (Colo. 2001).
    In any event, we conclude that Emmons preserved this issue. At
    the beginning of the August 17 hearing, Emmons’ counsel objected,
    citing section 42-2-126(8)(a)(IV). He argued that the hearing was
    “outside of the 60 days” and that, to his knowledge, it “was not
    rescheduled at the earliest possible times [sic] that the Hearing
    Officer would be available concerning this particular case.” He
    noted that his objection was a “jurisdictional argument.” In so
    objecting, he preserved the issue.
    ¶ 36   Notwithstanding this objection, the Department seems to
    argue Emmons waived her jurisdictional argument. The
    Department points to a minute order in the record indicating that
    the August 17 hearing date was “cleared” with Emmons’ counsel.
    12
    We do not agree that this notation in the record even suggests an
    earlier date was not acceptable to counsel, much less that counsel
    waived the objection to jurisdiction. Moreover, challenges to the
    Department’s jurisdiction can be raised at any time. Cf. 
    Medina, 35 P.3d at 452
    .
    ¶ 37   We now turn to the merits of Emmons’ argument.
    2.   Legitimate, Just Cause to Reschedule
    ¶ 38   We conclude that the bomb threat and the original hearing
    officer’s calling in sick, taking vacation, and resigning mid-vacation
    qualify as “legitimate, just” cause for rescheduling the hearing.
    § 42-2-126(8)(a)(IV). Thus, the statute allowed the “hearing officer
    or the department” to “reschedule the hearing at the earliest
    possible time when the law enforcement officer and the hearing
    officer will be available.” 
    Id. We next
    discuss whether they met the
    earliest possible time requirement.
    3.   Earliest Possible Time
    ¶ 39   The parties seem to agree that there is no evidence in the
    record that August 17, 2017, was the “earliest possible time” when
    the hearing officer and Officer Warren were available. However,
    13
    they disagree about who has the burden to show the hearing was
    rescheduled for the earliest possible time.
    ¶ 40   The Department contends that Emmons “did not present any
    evidence that the August 17, 2017 hearing date was not the earliest
    possible time when a hearing officer was available.” (Emphasis
    added.) Emmons responds that no authority indicates that it is her
    “burden of proof” to show the Department had jurisdiction.
    ¶ 41   Thus, we must decide who has the burden to show the
    Department complied (or did not comply) with section 42-2-
    126(8)(a)’s jurisdictional requirements.
    ¶ 42   The text of the statute does not offer guidance on this
    question. Nonetheless, because the power of administrative
    agencies extends only so far as “the authority conferred on them by
    statute,” we conclude that the Department has the burden to show
    that it has jurisdiction. 
    Flavell, 144 Colo. at 206
    , 355 P.2d at 943
    (citation omitted); see also § 24-4-106(7)(b)(IV) (providing that a
    reviewing court shall set aside an administrative agency action that
    exceeds the agency’s statutory jurisdiction).
    ¶ 43   We find no record evidence that the hearing was rescheduled
    for the earliest possible date. Although Hearing Officer Stanley
    14
    explained the delays in scheduling a hearing were due to the bomb
    threat, the original hearing officer calling in sick, and the original
    hearing officer resigning, these explanations show there was
    “legitimate, just” cause for rescheduling the hearing, not that
    August 17 was the earliest possible time when a hearing officer was
    available.
    ¶ 44   Neither Stanley nor anyone else in the Department provided
    any evidence that August 17 was the “earliest possible time when” a
    hearing officer was available. See § 42-2-126(8)(a)(IV). For
    example, there is no evidence as to why the Department could not
    have rescheduled with a different hearing officer during the two
    weeks the original hearing officer was absent. Nor did the
    Department provide any explanation why it could not have
    rescheduled on August 14, 15, or 16, 2017 — after it knew about
    the original hearing officer’s resignation.
    ¶ 45   Once sixty days had passed from the time the Department
    received Emmons’ request for a hearing, the plain language of the
    statute allowed the Department to reschedule only at “the earliest
    possible time” a hearing officer was available. § 42-2-126(8)(a)(IV).
    15
    ¶ 46   Because we can find no record evidence that August 17, 2017,
    was the earliest possible time when a hearing officer was available,
    we conclude the Department lacked jurisdiction. We therefore
    reverse the district court’s judgment affirming the revocation of
    Emmons’ license. Accordingly, we do not reach Emmons’ other
    contentions.
    IV.    Conclusion
    ¶ 47   The judgment is reversed.
    JUDGE NAVARRO and JUDGE ROTHENBERG concur.
    16