U.S. Department of Agriculture Food and Nutrition Service Administrative Review Branch Alexandria, VA 22302 Royal Star Grocery, Appellant, v. Case Number: C0177857 Retailer Operations Division, Respondent. FINAL AGENCY DECISION It is the decision of the U.S. Department of Agriculture (USDA), Food and Nutrition Service (FNS) that a six-month disqualification from participation as an authorized retailer in the Supplemental Nutrition Assistance Program (SNAP) was properly imposed against Royal Star Grocery by the Retailer Operations Division. It is also USDA s final decision that a civil money penalty in lieu of disqualification is not appropriate in this case. ISSUE The issue accepted for review is whether or not the Retailer Operations Division took appropriate action, consistent with Title 7 Code of Federal Regulations (CFR) Part 278, in its administration of SNAP when it imposed a one-year disqualification against Royal Star Grocery. AUTHORITY 7 U.S.C. 2023 and its implementing regulations at 7 CFR 279.1 provide that [A] food retailer or wholesale food concern aggrieved by administrative action under 278.1, 278.6 or 278.7... may file a written request for review of the administrative action with FNS. CASE CHRONOLOGY FNS records show that the Appellant firm, Royal Star Grocery, was initially authorized for SNAP participation as a convenience store on May 15, 1998. Between October 28, 2014 and November 4, 2014, FNS conducted an undercover investigation at the firm to ascertain its compliance with Federal SNAP laws and regulations. The investigation report documented that personnel at Royal Star Grocery accepted SNAP benefits in exchange for ineligible merchandise on four separate occasions. According to the report, the Appellant firm sold plastic spoons and 1
incense sticks in exchange for SNAP benefits, which benefits are permitted to be used only in exchange for eligible foods. In a letter dated January 28, 2015, the Retailer Operations Division charged the Appellant with violating the terms and conditions of the SNAP regulations at 7 CFR 278.2(a). The letter stated that the violation of accepting SNAP benefits in exchange for ineligible nonfood items warrants a disqualification period of one year pursuant to 7 CFR 278.6(e)(5) and (6). The letter further stated that under certain conditions and in accordance with 7 CFR 278.6(f)(1), FNS may impose a civil money penalty (CMP) in lieu of disqualification. In response to the charge letter, the Appellant, through counsel, submitted to the Retailer Operations Division a letter dated February 2, 2015, in which it denied that the violations occurred. The Appellant stated that all cashiers were questioned about the alleged violations, and all denied accepting SNAP benefits in exchange for non-food items. The Appellant explained that customers often request to use SNAP to obtain nonfood items, particularly cigarettes, toiletries, and cash, but all such requests are denied. The Appellant further argued that a one-year disqualification is wholly disproportionate the minor nature of the violations and stated that such a penalty would jeopardize not only the firm itself, but also the livelihood of its owners and employees. As part of its response, the Appellant requested information specific to the investigation. For example, the Appellant asked for the precise times that the transactions occurred so that it could review its surveillance tapes, which the Appellant believed would exonerate it of any wrongdoing. The Appellant also asked for copies of any video of the transactions, if such video existed. The Retailer Operations Division considered this request for information a request under the Freedom of Information Act (FOIA) and forwarded the request to the FNS FOIA office. On March 10, 2015, the agency FOIA office provided the Appellant with a response to its request. It is noted that the requests for the specific times of the transactions was denied. The FOIA office stated that the information was withheld under 5 U.S.C. 552 (b)(6) and (b)(7)(c), as providing the precise times the vendor s store was entered and exited could reasonably be expected to disclose the identity of the Investigator. The FOIA response also indicated that there was no video of the transactions. Upon being informed that the FOIA response had been completed, the Retailer Operations Division sent the Appellant a letter stating that if it wished to present any additional information, explanation, or evidence in support of its contentions, it had 10 days to do so. This letter was sent on July 25, 2016. (The Retailer Operations Division has offered no explanation as to why there was a 16-month gap between the FOIA response and the date of this second letter.) On July 29, 2016, the Appellant, through counsel, provided a second response, but offered no additional contentions. Instead, it referred back to its original response to the charge letter and reiterated that it did not believe that the violations occurred, and stated that the Appellant would not take any action to jeopardize the privilege of serving SNAP customers. After considering the Appellant s reply to the charges as well as the evidence in the case, the 2
Retailer Operations Division issued a letter of determination dated November 15, 2016. This letter informed the Appellant that it was the determination of the Retailer Operations Division that the violations did occur as outlined in the letter of charges and that a one-year disqualification penalty would be imposed in accordance with 7 CFR 278.6(a) and (e). The determination letter also stated that consideration for a hardship civil money penalty was given, but that the Appellant was not eligible for a CMP because there were other authorized retail stores in the area selling as large a variety of staple foods at comparable prices. In a letter postmarked November 23, 2016, the Appellant, through counsel, appealed the Retailer Operations Division s determination by requesting an administrative review. The request was granted and implementation of the sanction has been held in abeyance pending completion of this review. STANDARD OF REVIEW In an appeal of adverse action, such as disqualification from SNAP participation, an appellant bears the burden of proving by a preponderance of the evidence, that the administrative action should be reversed. This means that an appellant has the burden of providing relevant evidence which a reasonable mind, considering the record as a whole, would accept as sufficient to support a conclusion that the matter asserted is more likely to be true than not true. CONTROLLING LAW AND REGULATIONS The controlling law in this matter is found in the Food & Nutrition Act of 2008, as amended (7 U.S.C. 2021), and promulgated through regulation under Title 7 CFR Part 278. In particular, 7 CFR 278.6(a) and (e)(5) establish the authority upon which a six-month disqualification may be imposed against a retail food store or wholesale food concern. 7 CFR 278.2(a) states, inter alia: [SNAP benefits] may be accepted by an authorized retail food store only from eligible households only in exchange for eligible food. 7 CFR 271.2 states, inter alia: Eligible foods means: Any food or food product intended for human consumption except alcoholic beverages, tobacco and hot food and hot food products prepared for immediate consumption 7 CFR 278.6(a) states, inter alia: FNS may disqualify any authorized retail food store if the firm fails to comply with the Food and Nutrition Act of 2008, as amended, or this part. Such disqualification shall result from a finding of a violation on the basis of evidence that may include facts established through on-site investigations... Disqualification shall be for a period of 6 months to 5 years for the firm s first sanction; for [a] period of 12 months to 10 years for 3
a firm s second sanction; and disqualification shall be permanent for a disqualification based on paragraph (e)(1) of this section. [Emphasis added.] 7 CFR 278.6(c) states, inter alia: The letter of charges, the response, and any other information available to FNS shall be reviewed and considered by the appropriate FNS regional office, which shall then issue the determination 7 CFR 278.6(e) states, inter alia: FNS shall take action as follows against any firm determined to have violated the Act or regulations The FNS regional office shall: (5) Disqualify the firm for 6 months if it is to be the first sanction for the firm and the evidence shows that personnel of the firm have committed violations such as but not limited to the sale of common nonfood items due to carelessness or poor supervision by the firm's ownership or management. (6) Double the appropriate period of disqualification prescribed in paragraphs (e)(2) through (5) of this section if the same firm has once before been assigned a sanction. 7 CFR 278.6(f)(1) states, inter alia: FNS may impose a civil money penalty as a sanction in lieu of disqualification when the firm subject to a disqualification is selling a substantial variety of staple food items, and the firm s disqualification would cause hardship to [SNAP] households because there is no other authorized retail food store in the area selling as large a variety of staple food items at comparable prices. FNS may disqualify a store which meets the criteria for a civil money penalty if the store had previously been assigned a sanction INVESTIGATION DETAILS During an undercover investigation conducted between October 28, 2014 and November 4, 2014, the USDA completed five compliance visits at Royal Star Grocery. The agency record indicates that a report of the investigation was provided to the Appellant as an attachment to the January 28, 2015 charge letter. The investigation report included Exhibits A through E, which provided full details on the results of each compliance visit. SNAP violations were documented during four of the five visits, specifically the exchange of ineligible nonfood merchandise for SNAP benefits. The report noted that the following nonfood items were purchased by an investigator using SNAP benefits: One 24-count box of plastic spoons (Essential brand), Exhibit A One 24-count box of plastic spoons (Essential brand), Exhibit C One 24-count box of plastic spoons (Essential brand), Exhibit D Three incense sticks (no brand indicated), Exhibit E 4
The investigation report also noted that in Exhibit B, the cashier on duty refused to allow the purchase of plastic spoons in exchange for SNAP benefits. In Exhibit E, the investigator attempted to obtain cash from the clerks in exchange for SNAP benefits (i.e. trafficking), but this request was also refused. The report further indicated that three separate clerks conducted the four violative transactions during the investigation. In evaluating the investigation report, the Retailer Operations Division determined that the violations that occurred in Exhibits A, C, D, and E warranted a disqualification period of six months in accordance with 7 CFR 278.6(e)(5). However, agency records show that the firm had already once been sanctioned for SNAP violations, which meant that the disqualification period for the current violations should be doubled. According to FNS records, an undercover investigation of Royal Star Grocery was conducted by USDA in 2000 and 2001, during which ineligible non-food items were permitted to be purchased with SNAP benefits. The violations committed in that case also warranted a six-month disqualification. The sanction was upheld in administrative review, but during the Appellant s appeal in Federal court, FNS agreed to impose a civil money penalty in lieu of the six-month disqualification. Therefore, the sanction imposed upon the firm was a civil money penalty in the amount of $3,624.97, which the firm paid in full in October 2002. In accordance with 7 CFR 278.6(e)(6), a six-month disqualification for the sale of ineligible items must be doubled if the firm has once before been assigned a sanction. Therefore, the Retailer Operations Division imposed a one-year disqualification period for the current violations. APPELLANT S CONTENTIONS The Appellant, through counsel, made the following summarized contentions in its request for administrative review, in relevant part: Appellant denies accepting SNAP benefits in exchange for ineligible non-food items. The continuation of the Appellant s business is dependent on being able to accept SNAP. All employees are instructed on SNAP regulations and are advised that if they violate the rules, their employment will be terminated. After receipt of the initial charge letter, all cashiers were questions about the alleged violations, and all denied committing the violations. The cashiers stated that customers often make requests to use SNAP benefits to purchase non-food items, particularly for cigarettes, toiletries, and cash, but all such requests are denied. While Appellant acknowledges that no SNAP violations should occur, it points out that the alleged violations involved only plastic spoons and incense, with a combined profit of less than $1.00. A disqualification of one year is wholly disproportionate to the alleged act, and such a disqualification would jeopardize the continuation of the business and the livelihood of its six employees as well as the business owners. In light of these contentions, Appellant requests that the disqualification not be imposed, but if that is not possible, then Appellant requests consideration of another sanction, such as probation and/or a hardship civil money penalty. 5
Appellant believes that it is eligible for a CMP as there are no other SNAP-authorized retail stores selling staple foods during many of the hours that the store is open, which is necessary and vital to members of the community. The Appellant has been in business for over 15 years and is open almost every day of the year from 6 a.m. to 2 a.m. It fully stocks its 2,500 square foot space with a great variety of products for its customers. These customers continuously praise the Appellant for being open late at night, when all of the other businesses that accept SNAP close no later than 9 p.m., thereby rendering the ability of the Appellant to continue to accept SNAP benefits critical. The Appellant store is owned and run by five families that support themselves from the income from the store, and all employees are fully trained as to the SNAP regulations. It must be recognized that the violations occurred over a one-week period and included very minor items. Since that time, no violations have occurred. Appellant reiterates that a one-year disqualification is wholly inappropriate for the violations alleged and that the continuation of an open store that accepts SNAP benefits after 9 p.m. is vital. In support of its contentions, the Appellant provided three letters: One letter from 7 U.S.C. 2018 (b)(6) & (b)(7)(c) 7 U.S.C. 2018 (b)(6) & (b)(7)(c) (as best as could be deciphered from the signature), representative of Lanvale Towers and Canal Courts a low income housing project. 7 U.S.C. 2018 (b)(6) & (b)(7)(c) argues that the Appellant firm is critical to the residents at Lanvale Towers, particularly since the store is open past 9 p.m. Two letters from local residents, one age 60, and another age 57, both of whom claim to suffer from a disability. Both letters explain how it is critical that they have access to a nearby store that stays open past 9 p.m. The Appellant also provided the names, addresses, phone numbers, and signatures of 60 individuals (no indication that these are SNAP recipients), who, according to the Appellant, have signed their names with the intention that [the administrative review officer] recognize their desire for [Royal Star Grocery] to continue to service SNAP customers. The preceding may represent only a brief summary of the Appellant s contentions presented in this matter. However, in reaching a decision, full attention was given to all contentions presented, including any not specifically summarized or explicitly referenced herein. ANALYSIS AND FINDINGS As best as can be determined, the Appellant did not, at any time, offer any evidence to counter the violations outlined in the investigation report. The Appellant claims that upon receipt of the charge letter it questioned its employees about the investigation, and contends that all of them denied accepting SNAP benefits for ineligible items. However, no evidence or documentation was offered by the Appellant to support these claims. Assertions of inculpability, by themselves and without supporting evidence and rationale, do not constitute valid grounds for dismissal or modification of the current charges. As such, it is the 6
determination of this review that the violations did occur as charged. The remainder of this review will focus on the Appellant s additional contentions and documentation. Penalty Does Not Fit the Crime The Appellant, through counsel, argues that a one-year disqualification penalty is wholly disproportionate to the minor nature of the SNAP violations, which involved only plastic spoons and incense sticks, with a combined profit to the firm of less than $1.00. The Appellant argues that the investigation took place over a one-week period and that no violations have occurred since that time. With regard to these contentions, the regulations at 7 CFR 278.6(e)(5) and (6) do not allow for a modification or a reduction of the disqualification period on the basis that the punishment appears to be excessive in comparison with the violations that were committed. The regulations state that FNS shall disqualify the firm if the evidence shows that personnel of the firm have committed violations such as but not limited to the sale of common nonfood items due to carelessness or poor supervision by the firm s ownership or management. The regulation further indicates that the period of disqualification shall be doubled if the same firm has once before been assigned a sanction. Because Royal Star Grocery has previously been sanctioned for program violations, a disqualification period of one year is entirely in accordance with regulatory guidelines. Hardship to Appellant The Appellant, through counsel, has argued that the continuation of the Appellant s business is dependent upon its ability to accept SNAP benefits. It claims that a one-year disqualification would jeopardize not only the firm itself, but also the livelihood of its six employees and business owners. With regard to these contentions, it must be noted that hardship to the firm itself or to its owners is not a factor when deciding whether or not the disqualification determination should be reversed or whether or not a lesser penalty, such as a civil money penalty, can be applied. It is recognized that some degree of economic hardship to the firm is a likely consequence whenever a store is disqualified from participation in SNAP. However, there is no provision in the SNAP regulations for waiver or reduction of an administrative penalty on the basis of possible financial hardship to either the firm or the firm s ownership resulting from the imposition of such a penalty. To allow store ownership to be excused from administrative penalties based on a purported economic hardship would render virtually meaningless the provisions of the Food and Nutrition Act of 2008 and the enforcement efforts of USDA. Moreover, giving special consideration to economic hardship to the firm would forsake fairness and equity, not only to competing stores and other participating retailers who are complying fully with Program regulations, but also to those retailers who have been disqualified from the Program in the past for similar violations. 7
Therefore, the Appellant s contention that it may incur economic hardship based on the assessment of an administrative penalty does not provide a valid basis for dismissing the charges or for mitigating the penalty imposed. Hardship to Households / Civil Money Penalty The Appellant, through counsel, believes that it is eligible for a civil money penalty as there are no other SNAP-authorized retail stores selling staple foods during the nighttime hours of 9 p.m. to 2 a.m., which business hours, the Appellant claims, are necessary and vital to members of the community. The Appellant contends that customers continuously praise the firm for being open late at night, when all other businesses that accept SNAP are closed. In support of these contentions, the Appellant submitted three letters from individuals who claim that the firm provides a much needed service by remaining open during late night hours, and that they and other community members would experience hardship if the firm were to be disqualified. The Appellant also provided a list of 60 names and signatures of local residents who also want the store to remain open. With regard to these contentions, a review of the agency s case record shows that the Retailer Operations Division properly considered whether or not SNAP recipients would experience hardship as a result of the firm s disqualification. According to 7 CFR 278.6(f)(1), in cases for which the period of disqualification is less than permanent, a civil money penalty may be imposed in lieu of disqualification only when hardship to SNAP households exists. Such hardship is defined in the regulation as no other authorized retail food store in the area selling as large a variety of staple food items at comparable prices. Regulations do not include a store s operating hours in its consideration of hardship to SNAP recipients. It is the determination of this review that a disqualification of Royal Star Grocery, a convenience store, would not cause hardship to SNAP households because there are many other comparable or larger SNAP-authorized stores located in the area of the Appellant firm. According to agency records, there are currently 77 similar or larger SNAP-authorized retail stores located within one mile of Royal Star Grocery, including three supermarkets, one medium grocery store, and dozens of small grocery stores and convenience stores. It is recognized that some degree of inconvenience for SNAP households is likely whenever a SNAP-authorized store is disqualified and the household is forced to use its SNAP benefits elsewhere. However, in accordance with regulation cited above, hardship exists only when there are no other authorized stores in the area selling as large a variety of staple foods at comparable prices. Therefore, pursuant to 7 CFR 278.6(f)(1), a hardship civil money penalty in lieu of disqualification cannot be granted in this case. CONCLUSION Based on a review of the evidence in this case, there is no question that program violations of 7 CFR 278.2(a) did occur at the Appellant firm during a USDA investigation. All transactions 8
cited in the letter of charges were either conducted or supervised by a USDA investigator and all are thoroughly documented. A review of this documentation has yielded no indication of error or discrepancy in any of the reported findings. Rather, the investigative record is specific and accurate with regard to the dates of the violations, including the exchange of SNAP benefits for ineligible, nonfood items, and in all other critically pertinent details. Pursuant to 7 CFR 278.6(a) and (e)(5) and (6) the decision to impose a one-year disqualification against the Appellant, Royal Star Grocery, is sustained. Further, the decision by the Retailer Operations Division to not impose a civil money penalty in lieu of disqualification is also sustained. Pursuant to 7 CFR 278.6(f)(1) it is the determination of this review that SNAP households will not incur hardship as a result of the Appellant s disqualification because there are many other authorized stores in the area selling as large a variety of staple foods at comparable prices. In accordance with the Act and regulations, the disqualification penalty shall become effective 30 days after receipt of this decision. A new application for SNAP participation may be submitted 10 days prior to the expiration of the one-year disqualification period. In accordance with 7 CFR 278.1(b)(4), at the time of any new application for participation in SNAP, the firm will be required to submit a collateral bond or irrevocable letter of credit as a condition for again being authorized to participate in the program. This bond requirement is due to the firm s sanction of a period longer than six months. RIGHTS AND REMEDIES Applicable rights to a judicial review of this decision are set forth in Section 14 of the Food and Nutrition Act of 2008 (7 U.S.C. 2023) and in Section 279.7 of the SNAP regulations. If a judicial review is desired, the complaint, naming the United States as the defendant, must be filed in the U.S. District Court for the district in which the Appellant owner resides or is engaged in business, or in any court of record of the State having competent jurisdiction. If a complaint is filed, it must be filed within 30 days of receipt of this decision. Under the Freedom of Information Act, we are releasing this information in a redacted format as appropriate. FNS will protect, to the extent provided by law, personal information that could constitute an unwarranted invasion of privacy. JON YORGASON June 22, 2017 Administrative Review Officer 9