Wards Corner Beauty Acad., Corp. v. Nat'l Accrediting Comm'n of Career Arts
Opinion
Plaintiff-Appellant Wards Corner Beauty Academy ("WCBA") appeals the district court's dismissal of its case following a bench trial. After the National Accrediting Commission of Career Arts and Sciences ("NACCAS") withdrew WCBA's accreditation as a barbering and cosmetology academy, WCBA filed suit against NACCAS alleging due process violations in the accreditation proceeding and seeking injunctive and declaratory relief. On appeal, WCBA challenges the district court's dismissal of its due process claims based on three alleged violations: first, that one Commissioner had an impermissible pecuniary interest in the outcome of the decision; second, that NACCAS's alleged failure to follow its own conflict of interest rules violated WCBA's due process rights; and third, that the Commissioners reviewing WCBA's accreditation prejudged the decision by acting as both investigators and adjudicators. For the following reasons, we affirm.
I.
NACCAS is a non-profit corporation organized under the laws of Virginia. It is recognized by the United States Department of Education as a national accrediting agency, see 20 U.S.C. § 1099b(f), and is responsible for granting and reviewing accreditation for institutions such as WCBA.
WCBA is a cosmetology and barbering institution in Virginia. WCBA was first accredited in 1977 by NACCAS's predecessor, the Cosmetology Accrediting Commission, and its accreditation was continuously renewed until 2014. This case arises from NACCAS's decision to withdraw WCBA's accreditation in 2014.
NACCAS maintains Rules of Practice and Procedure (the "NACCAS Rules") as well as Standards and Criteria that define both the process for schools to renew accreditation and the substantive criteria they must meet to maintain accreditation. Pursuant to these requirements, schools must maintain a benchmark graduation rate of at least fifty percent. Each accredited school must submit an annual report of aggregated student data to demonstrate compliance with the benchmark graduation rate. If NACCAS determines that a school has not met the benchmark graduation rate, the school must bring itself into compliance with the NACCAS Rules. Should a school fail to do so, NACCAS may take adverse action, including placing the school on probation or withdrawing the school's accreditation. A school may appeal such adverse action to an Appellate Review Panel.
In November 2014, WCBA submitted its 2013 Annual Report to NACCAS reporting a graduation rate below the fifty percent benchmark. NACCAS informed WCBA that it had twelve months to bring its graduation rate into compliance. WCBA submitted its 2014 Annual Report to NACCAS in the fall of 2015, at which point NACCAS determined that WCBA had failed to demonstrate a compliant graduation rate. Nonetheless, NACCAS permitted WCBA to submit supplemental information demonstrating that its graduation rate was in fact compliant. WCBA submitted this information in January 2016.
In February 2016, NACCAS held a week-long Commission Meeting at which the NACCAS Commission considered and voted upon numerous school actions, including WCBA's accreditation. A day or two before the Commission votes on a school action (e.g., WCBA's accreditation), its File Review Teams, each comprised of three Commissioners, independently investigate the school action in question and make a recommendation to the full Commission. As part of this process, File Review Teams consider written reports prepared by NACCAS's Compliance Department staff. NACCAS staff assigns case files to the File Review Teams, who do not know which school actions they will investigate until they meet on the designated day. After the File Review Teams submit their recommendations, the full Commission convenes to discuss and then vote on the various school actions.
At the February 2016 Commission Meeting, the Chairman of the Commission, Michael Bouman, presided over the Commission Meeting by calling the agenda items and moderating the discussion. Bouman also personally participated in reviewing WCBA's file as part of the File Review Team process. Typically, as Chairman, Bouman would not have been assigned to a File Review Team. Because one of the File Review Teams was missing a member, however, Bouman filled in as a substitute. Bouman's File Review Team was tasked with determining whether to recommend that the full Commission withdraw WCBA's accreditation.
Bouman was also the President, Chief Operating Officer ("COO"), and part owner of Empire Education Group, Inc. ("EEG"), which operated a school near WCBA. 1 The district court later determined that at the time of the Commission Meeting, Bouman was unaware of a potential conflict between WCBA and EEG. He had no prior dealings with WCBA, nor was he aware of the geographic proximity between the two schools. Consequently, he did not recuse himself.
Upon reviewing the WCBA file, Bouman's File Review Team recommended that NACCAS withdraw WCBA's accreditation. In doing so, Bouman personally signed the "action form" recommending that the full Commission vote to withdraw accreditation. Subsequently, the full Commission considered WCBA's case and unanimously voted to withdraw WCBA's accreditation. As Chairman, Bouman did not participate in the discussion before the full Commission, nor did he vote on the matter, though he was present in the room. WCBA appealed the decision in May 2016 to an Appellate Review Panel, which affirmed the decision in October 2016.
WCBA then sued in federal district court, asserting that it was denied its common law right to due process in the NACCAS accreditation proceedings and requesting injunctive and declaratory relief. Specifically, WCBA contended that Bouman's involvement in the proceedings--given his purported pecuniary interest in their outcome through his relationship with WCBA's competitor, EEG--violated WCBA's due process rights.
The case proceeded to a multi-day bench trial at which multiple witnesses, including Bouman, testified. In its comprehensive post-trial order, the district court denied WCBA's request for relief. It first determined that while WCBA's Norfolk school and EEG's Virginia Beach school were competitors "at some level" during the relevant time period, multiple factors counseled against finding that the schools were in direct competition with one another.
Wards Corner Beauty Acad. v. Nat'l Accrediting Comm'n of Career Arts & Scis.
,
II.
Following a bench trial, we review the district court's factual findings for clear error and its legal conclusions de novo. Fed. R. Civ. P. 52 ;
Helton v. AT & T Inc.
,
III.
WCBA raises three issues on appeal. First, WCBA argues that it was denied an impartial decisionmaker based on Bouman's purported pecuniary interest in the outcome of the accreditation decision. Second, WCBA argues that NACCAS's failure to follow its own conflict of interest rules violated WCBA's due process rights. Third, WCBA contends that the Commissioners improperly prejudged the decision by acting as both investigators at the File Review Team level as well as adjudicators when they voted with the full Commission. We address each issue in turn.
A.
First, WCBA argues that Bouman's participation in the NACCAS proceedings violated its due process rights in light of his pecuniary interest in the withdrawal of WCBA's accreditation. We begin by explaining the relevant law governing due process challenges in the accreditation context. We then consider each of WCBA's various arguments and affirm the district court's conclusion that there was no due process violation here.
1.
We first addressed a common law due process challenge to an accreditation agency's decision in
Professional Massage
,
In defining what constitutes a disqualifying pecuniary interest for the purposes of due process, the Supreme Court has held that a litigant is not denied an impartial decisionmaker when the decisionmaker has "a
slight
pecuniary interest" in the outcome rather than a "direct, personal, substantial" interest.
Aetna Life Ins. Co. v. Lavoie
,
A due process claim does not require a showing that the adjudicator was actually influenced by the alleged pecuniary interest. Instead, the question is whether sitting on that case "would offer a possible temptation to the average ... judge to ... lead him not to hold the balance nice, clear and true."
Caperton v. A.T. Massey Coal Co.
,
Determining whether an adjudicator's pecuniary interest violates due process is a fact- and context-specific inquiry.
See
Pinar v. Dole
,
2.
With this legal framework in mind, we consider WCBA's argument that Bouman's participation in the NACCAS proceedings violated WCBA's due process rights. According to WCBA, Bouman had an improper pecuniary interest in WCBA's competitor by virtue of his EEG position and stock ownership and was therefore financially motivated to withdraw WCBA's accreditation. WCBA's argument implicitly relies on several conjunctive steps: WCBA and EEG must have been in competition with one another such that Bouman's connection to EEG was problematic; the revocation of WCBA's accreditation must have resulted in its students transferring to EEG; and, finally, to the extent that EEG's student enrollment increased at all, it must have led to some sort of financial benefit to Bouman. While we conclude that WCBA's theory fails at the first step, out of an abundance of caution we nonetheless address each of WCBA's arguments below.
As a threshold matter, WCBA's argument requires that WCBA and EEG were in competition with one another. It is true, as the district court acknowledged, that there was "some degree of competition" between WCBA and EEG.
Wards
,
Cases where such competition has been found make the distinction clear. In
Gibson
, the Supreme Court found that a state licensing tribunal held a direct and substantial competitive interest where the adjudicators would have inherited the business of the plaintiffs--who represented nearly half of all suppliers in the relevant statewide market--as a result of the proceedings.
Even assuming that WCBA and EEG were in direct competition with one another, however, WCBA fails to meet the remaining steps necessary to establish a due process claim. WCBA has not demonstrated that NACCAS's decision to withdraw WCBA's accreditation resulted in students transferring from WCBA to EEG. The record evidence shows that at most, three students transferred from WCBA to EEG, and only one of those students appears to have done so after it became public knowledge that WCBA lost its accreditation. Further, there is no evidence in the record indicating that this transfer was motivated by NACCAS's accreditation decision. 3
Even if we were to consider the fact that one student transferred to EEG following the revocation of WCBA's accreditation, WCBA has not shown that this resulted in a financial benefit to Bouman that was direct and substantial such that it gave rise to a due process violation.
See
Lavoie
,
We note that Bouman's role in the ultimate accreditation decision was limited.
He did not participate in the final debate before the dispositive vote was cast, nor did he formally vote to withdraw accreditation. While Bouman was a member of the File Review Team that considered WCBA's accreditation initially, he did so only to fill in for another team member who was unexpectedly absent; Bouman could not have anticipated the happenstance of such an opening on the team that was assigned WCBA's school action. Further, upon finding Bouman's testimony to be credible, the district court concluded that any such interest Bouman might have held was unknown to him at the time of the proceedings. Bouman was therefore not improperly tempted from "hold[ing] the balance nice, clear and true."
4
Wards
,
We conclude that there is insufficient evidence that WCBA was deprived of an impartial decisionmaker as a result of Bouman's speculative pecuniary interest so as to justify a departure from the deferential standard due to an accreditation agency. We therefore affirm the district court's determination that NACCAS did not deprive WCBA of its right to due process of law on this basis. 5
Nonetheless, we share the district court's concern that throughout the Commission Meeting--from the assignment of school actions to File Review Teams to the final vote-neither NACCAS Commissioners nor staff appear to have considered whether ruling upon a school action might result in a financial benefit to a Commissioner. Such safeguards may be prudent to avoid a due process violation, whether by actual bias or the appearance of partiality.
See
Stivers
,
B.
Second, WCBA argues that NACCAS's failure to follow its own internal rules violated WCBA's due process rights. Specifically, WCBA argues that Bouman's participation in the accreditation proceedings breached NACCAS's internal rules, and that this in turn constitutes a violation of WCBA's common law due process rights. In support of this argument, WCBA relies on
Professional Massage
, where we explained that "[w]hen adjudicating common law due process claims against accreditation agencies, courts should 'focus primarily on whether the accrediting body's internal rules provide[d] a fair and impartial procedure and whether it [followed] its rules in reaching its decision.' "
The district court rejected WCBA's argument for the same reasons that it found that NACCAS had not violated WCBA's common law due process rights. The court explained that NACCAS's internal rules "necessarily require[ ] a Commissioner to evaluate the scope of a potential conflict in determining
whether to recuse himself or herself from a specific agenda item, and the application of such fact-specific analysis is consistent with, and co-existent with, the common law right to an impartial decisionmaker."
Wards
,
We agree. We are unpersuaded that NACCAS's rules impose a higher standard than the general common law duty to provide an impartial decisionmaker such that a violation of those rules leads to a due process violation in this case. The two provisions that WCBA argues NACCAS violated require Commissioners to disclose potential conflicts of interest--including "actual or potential personal benefit[s] from another source" and "personal interests"--and prohibit Commissioners from abusing their position to gain "improper personal, material or pecuniary benefits," respectively. 6 J.A. 652. But NACCAS's internal rules do not define what constitutes an improper personal or pecuniary interest, and we see no basis upon which we can infer that NACCAS has imposed more stringent disqualifying pecuniary interests. We therefore affirm dismissal of WCBA's due process claim based on an alleged violation of NACCAS's internal rules.
C.
Finally, WCBA argues that the district court erred in denying its due process claims on the theory that the Commissioners who reviewed WCBA's accreditation--namely, the File Review Team--improperly prejudged the decision by acting as both investigators and adjudicators. Because WCBA failed to raise the issue to the district court until post-trial briefing, we decline to address it here.
As a rule, "issues must be raised in lower courts in order to be preserved as potential grounds of decision in higher courts ... [which] requires that the lower court be fairly put on notice as to the substance of the issue.' "
Nelson v. Adams USA, Inc.
,
WCBA insists that it preserved this question prior to trial. Specifically, it contends that in the final pre-trial order, WCBA stated the following as a triable issue: whether "one of the participants in the withdrawal of Ward Corner's accreditation [had] a conflict of interest." J.A. 716. But this broad framing of the issues neither "plainly" nor "properly" identified such issues for the district court.
See
In re Under Seal
,
Faced with WCBA's prejudgment argument post-trial, the district court expressly "reject[ed] [WCBA's] late-raised contention that it was denied the right to fair procedure based on [NACCAS's] method of combining investigative and/or prosecutorial functions with adjudicative functions. Such claim is untimely as it was not identified by Plaintiff as a triable issue in the final pre-trial order."
IV.
Accordingly, the district court's order is
AFFIRMED .
Bouman received financial remuneration for his involvement with EEG. As President and COO, Bouman earned an annual salary of $260,000. In addition, Bouman had on occasion received bonuses from EEG in previous years. He also owned less than one percent of EEG's stock through its employee stock program.
The district court further observed that EEG itself operated two schools approximately twenty to twenty-five miles apart, highlighting the limited geographic reach of each school.
Wards
,
We further note that WCBA did not argue, and so we do not address, that prospective students decided to go to EEG instead of WCBA as a result of the accreditation decision.
We emphasize that actual bias is not necessary to make out a due process claim and that the appearance of partiality may be sufficient to support such a claim.
See
Stivers
,
We likewise reject WCBA's related argument that Bouman's participation violated WCBA's due process rights because his fiduciary duty to EEG creates an unresolvable conflict of interest. The district court considered and rejected WCBA's contention that Bouman had a duty to EEG to drive competition out of business through his role at NACCAS.
Wards
,
WCBA has not argued that, and therefore we do not consider whether, aside from a purported financial benefit, Bouman received or expected to receive "actual or potential personal benefit[s] from another source" such that those benefits constituted a disqualifying interest for due process purposes. J.A. 652.
Reference
- Full Case Name
- WARDS CORNER BEAUTY ACADEMY, a Virginia Corporation, Plaintiff - Appellant, v. NATIONAL ACCREDITING COMMISSION OF CAREER ARTS & SCIENCES, Defendant - Appellee.
- Cited By
- 14 cases
- Status
- Published