The decision, which is linked at the end of this article, included a lengthy statement with specificity by the judge about the bias and credibility of the inspector.
Some of the questions about Cal/OSHAâs filing, which was denied by the Judge, are:
- Was it an attempt to cover up an inspectorâs bias against an employer by an inspector with clear and convincing animosity toward and employer?
- Could it be that the government is afraid of the fallout or of what an appellate judge might think?
- Or is this evidence that can be used by other employers when the same inspector is on the case?
- Is it, as DOSH contends, an attempt to âremove findings that are not essential to the Decisionâs rulingsâ?
- And, finally, does the Division of Industrial Relations allow Cal/OSHA to harbor and protect inspectors who are demonstrably showing their negative personal feelings about industries or specific individual employers?
Read on and decide for yourself.
The employer is Sea World. It successfully accused the investigator in this case, Senior Safety Engineer Darcy Murphine, of considerable bias, so much so that it argued that all of the citations in the case should have been thrown out. And they all were, save one.
Administrative Law Judge Howard Chernin dismissed a serious violation and a violation of the serious injury/fatality reporting standard, and $23,000 in penalties. Sea World was ordered to pay only $560.
As it happens, the one violation Chernin found which there was evidence enough to uphold was a general violation on Sea Worldâs Injury and Illness Prevention Program. He ruled the IIPP was too hard for employees to understand and lacked several crucial elements. IIPP violations are common.
Cherninâs ruling that Murphine was biased, âevasive and obstinate,â he wrote, questioning her credibility. âMurphineâs tweets about Employer during an active investigation calls into question her and the Divisionâs impartiality and integrity during the investigation,â Chernin said.
But that wasnât okay with Cal/OSHA. It attempted to expunge the Judgeâs critical comments in its ârequest for modification of decision.â
Cal/OSHA argued of the decision that âfinds bias on the part of the Divisionâs compliance officer,â that âThese findings, however, are not relevant to the outcome.â
Chernin denied the motion, telling DOSH that the proper procedure is a Petition for Reconsideration before the full Appeals Board. It is unknown at this time if the Division will seek reconsideration.
Inspectorâs Ideological Bias
Defense attorneys in Cal/OSHA cases contend that inspector bias is common. Cal-OSHA Reporter contacted some defense attorneys not directly connected to case. We provided anonymity. Hereâs what they say about inspector bias.
âThe typical inspector is biased against the employer,â says one attorney. He or she says there is a general bias against employers and even personal biases, such as appears to be in the case with Sea World.
âMost new inspectors are being hired out of college, donât have a lot of real-world experience and donât know the context in which the safety orders are applied,â the attorney tells Cal-OSHA Reporter. Another factor is that DOSH doesnât seem to hire as many inspectors who have worked in the private sector as in the past. âThe new hires at DOSH appear to be ideologically driven,â the attorney says. âTheyâre to the left of Obama.â
The attorney also agrees that personnel changes affect inspections. For instance, industrial hygienists now do engineering-related inspections. They might understand a regulation, âbut applying it is the disconnect.â
Worker Burned â Whose Fault?
The incident that revived Sea Worldâs bias charges against Murphine occurred in September 2014, when a kitchen worker at the Water Stone Grill at the Aquatica park in Chula Vista suffered serious burns to a hand when she inadvertently immersed her hand in a deep fryer. Sea World asserts that it had sufficient protections in place to prevent such incidents and that the worker simply wasnât paying attention to what she was doing.
Murphine was sent to investigate, which, given her history with this employer, was a questionable decision by the DOSH district office.
As a result of her investigation, Cal/OSHA cited Sea World for:
Allegedly failing to provide appropriate hand protection under General Industry Safety Orders §3384(a). âThe employer did not select, provide and require employees to use the appropriate hand protection for the task which exposes them to the hazard of skin contact with hot oil,â the citation reads.
An Injury and Illness Prevention Program that was too hard for workers to navigate and was missing key elements, such as identifying and correcting workplace hazards and ensuring that employees comply with safe and health work practices. (GISO §3203(a)).
Failing to report the serious injury within the required eight hours, per §342(a). DOSH withdrew this citation before the hearing
ALJ Chernin vacated the hand-protection citation (General Industry Safety Orders §3384) because DOSH could not show that the protection she was provided â sleeves covered by Kevlar gloves and a long-handled skimmer â was inappropriate. The Division âfailed to present evidence as to what would have been appropriate,â he held.
That left the IIPP violation, which the ALJ upheld despite his findings that Murphine was not credible and harbored bias against the employer. Defense counsel maintained that the violation should be dismissed because her bias âtainted the Divisionâs investigation.â In fact, counsel said, she âmanufacturedâ the violation due to her bias.
But Chernin disagreed, saying despite her bias, there was âample independent evidenceâ to demonstrate that Sea Worldâs IIPP didnât comply with General Industry Safety Orders §3203. The problem? Employees had to âjump aroundâ the IIPP to find the information they needed.
The Case for Murphineâs Bias
What did Murphine do that convinced Chernin she was not credible in her testimony? She has a long history with Sea world which is discussed below. For the instant case thereâs all of this:
Central to the bias allegations in this case are tweets posted to Murphineâs Twitter account that appear to be critical of Sea World, which she identified as âSW.â Chernin stated, âEmployerâs allegations go to the heart of fundamental due process and the integrity of the Divisionâs prosecutorial role.â
He also noted that while âpublic prosecutorsâ such as Cal/OSHA inspectors âhave a duty of zealous advocacy,â there also is an expectation that they will exercise âobjective and impartial consideration of each individual case.â
When she started the investigation in September 2014, Murphine asked for and received Sea Worldâs IIPP, but in fact only received part one of the sizable document. She expressed âsurpriseâ at receiving an incomplete IIPP, because in her other investigations of Sea World, Murphine had determined that it met IIPP requirements.
But instead of clarifying whether she had the complete IIPP, Chernin writes, she simply issued a citation.
Sea World attorneys questioned Murphine about her tweets, and she admitted she created them during and after the investigation, but denied that Sea World was the subject. âHer denial was not credible,â Chenin says. âA reasonable observer would likely conclude from the tweets that Murphine holds a bias against Employer, given that all of her tweets about Employer are critical of its operations.â
Sea World also questioned her about a withdrawn 2006 narrative summary, which it argues led to a âgrudgeâ against Sea World because of this âperceived rebuke.â Murphine denied that, but Chernin states:
âMurphineâs cross-examination was not credible due to her combativeness and evasiveness, leading [the ALJ] to conclude that more likely than not she harbors some bias against Employer as a result of the above-described actions.â
He did say that Murphine testified credibly about the difficulties workers had in navigating Sea Worldâs IIPP, adding that there was âample evidenceâ to support a violation. The penalty is a mere $560.
Long History with Sea World
Murphine has a long and controversial history with Sea World. In 2006, after Cal/OSHA opened an investigation into a serious injury to a Sea World trainer, Murphine wrote an investigative summary stating that it was just a âmatter of timeâ before a Sea World trainer would be killed because of its killer whale training practices.
DOSH retracted her summary.
Then, in 2014 following a Fed-OSHA investigation of Sea Worldâs Orlando, Florida, facility, Cal/OSHA initiated an investigation in San Diego, sending Murphine to conduct apparently clandelstine surveillance at the park. The parkâs attorneys allege that she posed as a guest and surreptitiously took videos of a trainer interacting in what is known as the âMedâ pool with a whale.
Sea World had stopped allowing trainers to interact with whales in the main pool after the 2006 incident, in which a trainer suffered a broken ankle, puncture wounds and almost drowned after an orca grabbed him by the ankle and dragged him under the water. This incident led to Murphineâs âmatter of timeâ investigative note.
DOSH says the 2014 incident violated rules set down by Fed-OSHA in the Orlando case and cited the theme park to the tune of $25,000. The cases were similar: In the Orlando case a trainer was also dragged under the water by a whale, and was killed. The Cal/OSHA investigation was spurred by an anti-Sea World website called The Dodo. The site calls Sea World a âsoulless corporation that mistreats and abuses its animals.â
Sea World says Fed-OSHA contacted Cal/OSHA after the a Dodo article was published, at which point it dispatched Murphine to the park, where she posed as a guest and videoed the training session. She was working with John Hargrove, a former Sea World trainer, who turned activist, the employer alleged.
The employer had taken aim at Murphine, calling her an animal rights axe âanti-Sea Worldâ and animal rights activist âwith an ax to grind.â
Cal/OSHA and Sea World settled the case, with the Division dropping all the citations and issuing a Special Order outlining how trainers should interact with whales. Sea World declared victory, saying its protocols already closely matched the Special Order.
The accompanying sidebars show the inconsistencies in Murphineâs sworn testimony versus an earlier deposition, and the anti-Sea World bias demonstrated by her Tweets.
Cal-OSHA Reporter posed more than a dozen questions to the Department of Industrial Relations about this unusual case, given the importance of holding officials like Cal/OSHA inspectors âto high ethical standards.â
We asked DOSH: why DOSH filed the request for modification on the decision; what steps it plans to take now that the request has been denied; why Murphine was assigned to the most recent Sea World case, given her history with the employer; will she be assigned to future Sea World cases, is she being disciplined for the tweets, or conversely, has she been promoted, as has been rumored; does DIR/DOSH have a policy on inspectorsâ use of social media or is it contemplating such a policy; and is there a policy requiring inspectors to set aside their personal feelings or potential bias when assigned to inspect a particular business or industry?
The agencyâs response is at right.