State ex rel. Cordell v. Pallet Cos.

• Decision Date: 29 December 2016
• Docket Number: No. 2015–0163.,2015–0163.
• Citation: 149 Ohio St.3d 483,2016 Ohio 8446,75 N.E.3d 1230
• Parties: The STATE ex rel. CORDELL, Appellee v. PALLET COMPANIES, INC., et al., Appellants.
• Court: Ohio Supreme Court

149 Ohio St.3d 483

75 N.E.3d 1230

2016 Ohio 8446

The STATE ex rel. CORDELL, Appellee

v.PALLET COMPANIES, INC., et al., Appellants.

No. 2015–0163.

Supreme Court of Ohio.

Submitted Aug. 31, 2016.

Decided Dec. 29, 2016.

Craigg E. Gould, for appellee.

Dinsmore & Shohl, L.L.P., Christen S. Hignett, and Michael L. Squillace, Columbus, for appellant Pallet Companies, Inc.

Michael DeWine, Attorney General, and Lisa R. Miller, Assistant Attorney General, for appellant Industrial Commission.

Philip J. Fulton Law Office and Chelsea Fulton Rubin, Columbus, urging affirmance for amici curiae, Ohio Association of Claimants' Counsel and Ohio Association for Justice.

O'NEILL, J.

{¶ 1} Appellee, James F. Cordell, was terminated from his employment with appellant Pallet Companies, Inc. ("Pallet") after failing a routine drug test administered soon after a workplace accident in which he was injured. Pallet concedes that Cordell's drug use did not cause the accident. In this appeal, we consider whether conduct prior to a workplace injury can sustain an employer's defense of voluntary abandonment of employment and preclude temporary-total-disability ("TTD") benefits. Cordell's workers' compensation claim was initially allowed for TTD compensation, but then the Industrial Commission determined that Cordell was not eligible for TTD compensation, because he voluntarily abandoned his employment by using marijuana prior to the accident. The Tenth District Court of Appeals granted Cordell a writ of mandamus compelling the commission to vacate its order denying TTD compensation and to issue an order granting Cordell TTD compensation. We affirm.

Facts and Procedural History

{¶ 2} The parties do not dispute the facts regarding Cordell's injury. Cordell worked for Pallet from August 2009 until February 2012. He was injured in an accident in the course and scope of his employment on February 16, 2012. He was operating a tow motor on a loading dock that day when the truck he was servicing began to move away from the dock unexpectedly. Cordell jumped from the tow motor to the dock plate, but then fell from the dock plate when the truck moved a second time. He dropped between five and six feet, landing between the dock and the truck and fracturing his right fibula and tibia. At the hospital, Cordell's urine was collected and sent for a toxicology screening. Cordell applied for workers' compensation benefits the day after the accident.

{¶ 3} Six days later, on February 22, 2012, Cordell's toxicology results became available, and they showed that he tested positive for marijuana metabolites, indicating that at some point during his employment, he had used marijuana. Cordell was terminated from employment that day for violating Pallet's drug-free workplace policy. His termination notice specified that he was being terminated because he "failed postaccident drug screen."

{¶ 4} Pallet's drug-free-workplace policy prohibited the use of illegal substances "at any time whether on or off duty," the violation of which was a terminable offense.

{¶ 5} On March 5, 2012, the Bureau of Workers' Compensation ("BWC") allowed Cordell's claim for medical benefits for his fractured right tibia and fibula and for TTD compensation starting on February 17, 2012. Pallet appealed on March 20, 2012, and the matter was heard by a district hearing officer ("DHO") on May 1, 2012. The DHO determined that Cordell was eligible for medical benefits for the allowed injuries but found that he was not eligible for TTD compensation, because he had been terminated for a preinjury violation of the workplace policy.

{¶ 6} Cordell appealed from the DHO order on May 9, 2012, and the matter was heard by a staff hearing officer ("SHO") on July 2, 2012. The SHO vacated the DHO order to the extent that it denied Cordell TTD compensation. The SHO noted that State ex rel. Pretty Prods., Inc. v. Indus. Comm., 77 Ohio St.3d 5, 670 N.E.2d 466 (1996), held that "an Injured Worker who is unable to return to work at his former position of employment cannot voluntarily abandon his former position of employment." Applying our ruling in Pretty Prods., the SHO determined that Cordell "was terminated on 02/22/2012, after he was disabled by the injury in this claim. Therefore, the termination does not amount to a voluntary abandonment of employment and does not preclude the payment of temporary total compensation."

{¶ 7} Pallet appealed to the commission on July 17, 2012, arguing that the SHO's failure to apply State ex rel. PaySource USA, Inc. v. Indus. Comm., 10th Dist. Franklin No. 08AP–677, 2009 WL 3246775 (June 30, 2009), constituted legal error. In PaySource, the claimant was terminated for his use of cocaine prior to the industrial injury. The court of appeals determined that the claimant had voluntarily abandoned his employment when he used drugs prior to the injury, which severed any connection between the workplace injury and loss of wages. Thus, the court of appeals granted a writ of mandamus and ordered the commission to deny TTD compensation.

{¶ 8} After initially rejecting Pallet's appeal, the commission agreed to consider whether Cordell was entitled to TTD compensation. On May 11, 2013, a divided panel of the commission agreed with Pallet that the SHO had made a clear mistake of law by not applying PaySource . The panel found that Cordell "sustained an injury in the course of and arising out of his employment on 2/16/2012." But the panel determined that Cordell had "voluntarily abandoned his employment" by " ‘ingestion’ or ‘use’ of marijuana * * * prior to [his] termination on 02/22/2012" and "prior to the industrial injury." Accordingly, the panel denied TTD compensation from the date of the injury. Consistent with that order, the BWC issued an overpayment notice on May 17, 2013, finding that Cordell had been paid $22,081.88 in TTD compensation to which he had not been entitled.

{¶ 9} One member of the panel dissented. Citing State ex rel. Ohio Decorative Prods., Inc. v. Indus. Comm., 10th Dist. Franklin No. 10AP–498 (Sept. 15, 2011), the dissenting panel member explained that PaySource has been "heavily discounted" in more recent published decisions of the Tenth District Court of Appeals. The panel member would have instead applied our decision on reconsideration in State ex rel. Gross v. Indus. Comm., 115 Ohio St.3d 249, 2007-Ohio-4916, 874 N.E.2d 1162 ("Gross II "), and awarded TTD compensation from the time of the injury.

{¶ 10} On December 3, 2013, Cordell petitioned the Tenth District Court of Appeals for a writ of mandamus compelling the commission to vacate its order denying TTD compensation and declaring an overpayment and to enter an order awarding TTD compensation from the date of the injury. A magistrate for the court of appeals recommended that a writ issue after comparing PaySource , which did not apply Gross II, to the later-issued published opinion of the Tenth District Court of Appeals in State ex rel. Ohio Welded Blank v. Indus. Comm., 10th Dist. Franklin No. 08AP–772, 2009-Ohio-4646, 2009 WL 2872973, which did apply Gross II to essentially the same facts as in PaySource (claimant terminated after workplace injury for use of illegal drugs prior to the injury). The court of appeals adopted the magistrate's recommendation over Pallet's objections. We now take up the direct appeals of the commission and Pallet.

{¶ 11} The commission asserts the following two propositions of law.

{¶ 12} Proposition of law No. I: "Reliance on [Gross II ] without considering the decision in [PaySource ], creates bad public policy that rewards illegal behavior."

{¶ 13} Proposition of law No. II: "When the Industrial Commission had some evidence to support its order that a claimant violated a written work rule thereby barring his receipt of TTD compensation, a writ of mandamus is not appropriate."

{¶ 14} Pallet asserts the following three propositions of law.

{¶ 15} Proposition of law No. I: An injured worker who fails a postinjury drug test and is terminated based on his employer's drug-free-workplace policy voluntarily abandoned his employment and is not eligible for TTD.

{¶ 16} Proposition of law No. II: Gross II, 115 Ohio St.3d 249, 2007-Ohio-4916, 874 N.E.2d 1162, does not preclude a finding of voluntary abandonment when the act that resulted in the injured worker's termination was not contemporaneous with the injury.

{¶ 17} Proposition of law No. III: The commission has the exclusive authority to resolve factual issues, and to that extent, its determination that the injured worker's conduct, which was not contemporaneous with his injury, constitutes a voluntary abandonment of his employment, should not be disturbed absent a showing of an abuse of discretion.

{¶ 18} Because the second proposition of law asserted by the commission and the third proposition of law asserted by Pallet address this court's standard of review, we will address them first.

Analysis

The commission's second proposition of law and Pallet's third proposition of law

{¶ 19} R.C. 4123.512 limits this court's authority to act as an appellate body with respect to decisions made by the commission concerning the extent of disability. State ex rel. Elliott v. Indus. Comm., 26 Ohio St.3d 76, 79, 497 N.E.2d 70 (1986). (At the time Elliott was decided, R.C. 4123.512 was numbered R.C. 4123.519.) Id. It is well settled that the commission is "exclusively responsible" for making factual determinations; those determinations will not be disturbed absent an abuse of discretion. State ex rel. Nick Strimbu, Inc. v. Indus. Comm., 106 Ohio St.3d 173, 2005-Ohio-4386, 833 N.E.2d 286, ¶ 10. This is the some-evidence rule. Elliott at 79, 497 N.E.2d 70. But "[a] mandatory writ may issue against the Industrial Commission if the commission has incorrectly interpreted Ohio law." State ex rel. Gassmann v. Indus. Comm., 41 Ohio St.2d 64, 65, 322 N.E.2d 660 (1975).

{¶ 20} Here, the extent of Cordell's injuries is not disputed. Therefore, we limit our review in this case to...