“Present Candor over Past Reform”
The North Carolina Supreme Court Redefines the Temporal Focus of the “Good Moral Character” Inquiry for Justice-Officer Certification

1. Introduction

In Devalle v. North Carolina Sheriffs’ Education & Training Standards Commission, the Supreme Court of North Carolina confronted a thorny question that surfaces whenever a licence, credential or public office hinges on “good moral character.” After an unblemished nineteen-year career with the Highway Patrol, Sergeant Maurice Devalle was dismissed for falsifying time sheets, misrepresenting his duty status and violating a residency rule. Within days he became a Columbus County deputy sheriff and school resource officer and, two years later, sought permanent certification from the Sheriffs’ Education & Training Standards Commission (“the Commission”). The Commission denied certification on the ground that Devalle’s testimony at the administrative hearing displayed an ongoing lack of candour. Both the trial court and the Court of Appeals sided with Devalle; the Supreme Court reversed.

The decision is important for three distinct reasons:

1. It re-anchors the “good moral character” test in the applicant’s conduct at the moment of application, not at the moment of judicial review.
2. It clarifies that sworn testimony at an administrative hearing can itself supply “substantial evidence” of a character deficiency, even where intervening rehabilitation is well documented.
3. It nudges administrative agencies to articulate, not merely cite, controlling precedent when codifying vague standards such as moral character.

2. Summary of the Judgment

Applying the whole-record test mandated by N.C.G.S. §150B-51, the Court held that:

• Devalle’s own sworn answers—which the Commission found evasive and contradictory—constituted “substantial evidence” that he lacked the candour and truthfulness demanded of deputy sheriffs.
• The agency therefore acted neither arbitrarily nor capriciously in denying certification; the Court of Appeals erred by substituting its judgment for that of the Commission.
• Retroactive certification cannot precede the moment the applicant first carries the burden of proving good moral character; courts reviewing agency decisions may not back-date licensure to an earlier point on the “rehabilitation timeline.”

3. Analysis

3.1 Precedents Cited and Their Influence

The Commission’s rule, 12 N.C.A.C. 10B .0301(12), incorporates a chain of North Carolina moral-character cases—largely bar-admission decisions. The Court leaned heavily on three:

• In re Willis (1975) – established that failure to fully disclose can be as damning as the underlying misconduct. The Court analogised Mr Willis’s misleading bar application to Devalle’s evasive answers at his hearing.
• In re Elkins (1983) – emphasised that credibility determinations belong to the administrative body, not the reviewing court.
• In re Legg (1989) – reiterated that honesty and candour are the fundamental attributes of moral character and that the applicant bears the initial burden of proof.

The Court distinguished the Commission’s 2011 agency decision in Royall, on which the Court of Appeals had relied. Whereas Royall involved an honest mistake in posting investigative details online, Devalle involved knowing falsehoods and a “pattern” of misrepresentation.

3.2 Core Legal Reasoning

1. The “Whole-Record” lens is deferential. The Court reiterated that judicial review asks only whether some reasonable person could accept the evidence supporting the agency’s findings. Where the record presents two plausible narratives, courts may not choose the more lenient one.
2. “Good moral character” centres on honesty. Drawing from Willis and Legg, the Court held that candour under oath is beyond merely important – it is indispensable to public trust in law enforcement. An officer whose testimony appears calculated or self-serving has not met the standard.
3. Time of assessment. The opinion ties the inquiry to the applicant’s status when the application is filed. Post-application rehabilitation may be laudable but does not compel the agency to overlook evidence of contemporary dishonesty.
4. Limited scope of retroactivity. Certification may be made retroactive only to the point where the evidence unequivocally shows the applicant met all prerequisites. Courts cannot “fill in the gap” with extra-record conduct.

3.3 Potential Impact

• Law-enforcement hiring. Sheriffs and municipalities will likely tighten pre-employment interviews, focusing on an applicant’s ability to recount difficult episodes with precision and candour.
• Agency rule-making. The Court’s nudge to define, not merely cite precedent portends revisions to 12 N.C.A.C. 10B .0301. Expect clearer, bullet-point definitions of “good moral character.”
• Timing strategies for applicants. Officers who have been disciplined may now defer filing for certification until they are confident any character deficiency has been cured and can be demonstrated, lest new testimony reopen old wounds.
• Judicial review boundaries. Trial courts reviewing agency actions must stick to the administrative record; the temptation to credit post-decision rehabilitation is curtailed.

4. Complex Concepts Simplified

• Good Moral Character – not saintliness, but a proven pattern of honesty, integrity and accountability; more than an absence of wrongdoing.
• Whole-Record Test – the reviewing court examines everything the agency saw (helpful and harmful) but upholds the agency if reasonable minds could agree with it.
• Arbitrary or Capricious – an agency acts arbitrarily when it treats similarly-situated people differently without justification, or when it has no rational link between facts and decision.
• Indefinite Denial versus Time-Limited Suspension – an “indefinite” bar lasts only until the applicant corrects the specific deficiency (here, lack of candour), whereas a fixed suspension lapses automatically after a stated period.
• Retroactive Certification – back-dating a licence to an earlier date; permissible only when the evidence shows the applicant already met every statutory requirement at that earlier moment.

5. Conclusion

Devalle does not pronounce a new, rigid test; instead it recalibrates the existing framework by spotlighting present-tense candour. Rehabilitation matters, but it must be transparent, specific, and timely documented. For administrative lawyers, the case is a reminder that substantial-evidence review is not a re-trial; for officers, it underscores that the safest path back to service begins with unvarnished acceptance of past failings. Finally, the Court’s gentle reproach to the Commission—cite less, define more—signals that vague moral standards will soon give way to clearer, profession-specific guidance, ensuring fairer notice to both applicants and the public they seek to serve.