Lead Opinion
Not knowing that she was entitled to receive workers’ compensation income benefits for time she lost due to a compensable injury, Phyllis Glisson used more than seven weeks of vacation, personal, and sick leave when she was unable to work because of a work-related injury. An administrative law judge found that Glisson was entitled to temporary total disability (“TTD”) income benefits for that time period, but that her employer, Rooms To Go, was entitled to credit for the leave time she used. The appellate division held that Glisson was not entitled to income benefits, and the superior court affirmed. Glisson appealed to this court, and for the reasons that follow, we reverse.
Glisson sustained a work-related injury to her right shoulder in April 2000, for which she received workers’ compensation medical benefits. In June 2002, her treating physician assessed her as having a five percent permanent partial disability to her right arm, and she received a lump sum payment for that permanent injury. Glisson sought TTD benefits for the 52.75 days she missed between April 2000 and June 2002, during which time she used all of her accrued vacation and sick leave. In response to that request, Rooms To Go sought credit for temporary total disability payments made to Glisson under a “wage continuation plan” pursuant to OCGA § 34-9-243.
At the hearing before the ALJ, Rooms To Go presented no evidence regarding its leave policies or anything else. Glisson testified and introduced her medical evidence. The ALJ found that Glisson was entitled to TTD benefits, but also found that her employer was entitled to a credit for the leave time Glisson used. Both parties appealed to the appellate division of the workers’ compensation board, the employer contesting that Glisson was entitled to income benefits, and Glisson contesting the determination that the employer was entitled to a credit.
The appellate division vacated the ALJ’s decision, analyzing Glisson’s circumstances as a change in condition under OCGA § 34-9-104 (a) (1). It determined that the employee’s use of her leave time constituted an “award” of benefits that established her wage-earning
Glisson appealed that decision to the superior court, which affirmed it. The court held that “the Appellate Division of the [Board] was correct in their assessment that the intent behind the Act is to limit, the employer’s liability for a work-related injury to one recovery.” Because Glisson received her regular salary (by using up her leave time), the court concluded she was not entitled to TTD benefits for the same time period.
Glisson argues on appeal that the superior court erred in affirming the appellate division’s conclusion that she was not entitled to workers’ compensation income benefits for the period between April 8, 2000, the date of her injury, and May 31, 2002, because she was entitled to income benefits for the days she missed because of her work-related injury, and because Rooms To Go was not entitled to credit for the leave time she used.
1. The first question is whether Glisson was entitled to TTD benefits, based on her compensable injury. The employer did not dispute that her injury was work-related, and paid her permanent partial disability benefits for a five percent loss of use of her arm.
The Workers’ Compensation Act constitutes a complete code of laws upon the subject, and the recoverability of workers’ compensation benefits is strictly a matter of statutory construction, because there is no common law right to such benefits. In construing a statute, our goal is to ascertain its legislative intent and meaning. Statutes should be read according to the natural and most obvious import of the language, without resort to subtle and forced constructions, for the purpose of either limiting or extending their operation. When a statute is plain and susceptible of but one natural and reasonable construction, the court has no authority to place a different construction upon it but must construe it according to its terms.
(Punctuation and footnotes omitted.) Mickens v. Western Probation Detention Center,
The appellate division’s analysis incorrectly concludes that the employer’s use of the employee’s leave time, at the employee’s instigation, constituted an “award” so that the burden of proving a
A change of condition under OCGA § 34-9-104, which the appellate division found absent, is defined as “solely an economic change in condition occasioned by the employee’s inability to work or to continue to work for the same or any other employer, which inability is proximately caused by the accidental injury.” (Punctuation and footnote omitted.) City of Atlanta v. Arnold,
This case is unlike State of Ga. v. Graul,
Further, both the claimant in Graul and the claimant in State of Ga. v. Head,
Further, the State Personnel Board rules when Graul was decided required the state to file a form showing that the claimant elected to receive salary benefits in lieu of workers’ compensation income benefits. We have no such contractual showing here regarding Rooms To Go’s policies regarding the use of leave time in lieu of workers’ compensation benefits, as the company failed to present any evidence at the workers’ compensation hearing of its leave policies or of anything else.
As Presiding Judge Ruffin so eloquently explains in his opinion, partially concurring and partially dissenting in this case, an employee who is required to forego leave benefits in lieu of receiving workers’ compensation benefits sustains an economic injury, because if, for example, she “must miss work due to illness or injury unrelated to her employment, her economic ability to weather the storm is compromised because she used personal leave when she was entitled to
2. If Glisson is entitled to TTD benefits, the next issue becomes whether her employer was entitled to credit for Glisson’s use of her leave time, an issue the appellate division did not reach. The ALJ did consider the issue, however, and determined that “the payment of a salary to Ms. Glisson, even if it was in the form of vacation, sick, or personal leave pay, is a wage continuation plan as contemplated by OCGA § 34-9-243. Accordingly, the employer/insurer is entitled to a credit for those wages paid.”
A “wage continuation plan” is a specific plan designed to operate when an employee is entitled to income benefits for a compensable injury. OCGA § 34-9-243 (a) provides, “The payment by the employer ... to the employee ... of salary or wages . . . during the employee’s disability shall be credited against any payments of weekly benefits due.” The claimant argues that she was not paid her wages, but instead used her personal leave time, and nothing in the record shows otherwise.
One treatise on Georgia Workers’ Compensation Law quotes another treatise as noting that “credit is usually denied for any kind of sick pay or vacation pay to which the claimant is entitled upon the basis of his past service rather than on the basis of his injury. But see State of Ga. v. Head, [supra,]
Under Rooms To Go’s argument, it would be entitled to credit for Glisson’s use of her leave time as a wage continuation plan, although it failed to produce any evidence showing that its compensation to Glisson fell within that category of payments for which it is entitled to receive credit. If this were the rule, then any employer who grants employee leave benefits can avoid having to pay workers’ compensation income benefits simply by not telling its employees they may be entitled to them and allowing its employees to use up all of their leave time unwittingly, leaving them at economic risk if they later must take leave for subsequent illnesses or injuries. This result is not intended under the Workers’ Compensation Act.
Additionally, “it does not appear that [the employer] ever made an adequate showing as to what portion, if any, of the [income benefits] might have qualified as a ‘credit’ under OCGA § 34-9-243.” Caldwell v. Perry,
The employer is also not entitled to credit under OCGA § 34-9-243 (b), which provides that the employer is entitled to credit for the employer-funded portion of payments to the injured employee “pursuant to a disability plan, a wage continuation plan, or from a disability insurance policy established or maintained by the same employer.” The ALJ held that leave time constituted a “wage continuation plan,” but provided no analysis or citations to the record. The only reference in the record to a “wage continuation plan” is on the Form 243 filed by the employer seeking the credit. The statute requires more of a showing from the employer.
For example, in concluding that OCGA § 34-9-243 (b) did not allow credit for retirement benefits, “regardless of whether such benefits are paid in the ordinary course of retirement, or for an early retirement brought on by disability,” the Supreme Court of Georgia held that “the intent of the statute was to enable an employer to take credit for payments received by the employee only pursuant to an employer funded disability plan, wage continuation plan, or disability insurance policy.” City of Waycross v. Holmes,
While we held in State of Ga. v. Head, supra,
Further, neither Walton County Bd. of Commrs. v. Williams,
The rest of OCGA § 34-9-243 (b) makes it clear that the employer should only receive credit for certain categories of payments, providing that the determination of “[t]he employer funded portion shall be based upon the ratio of the employer’s contributions to the total contributions to such plan or policy.” No record evidence in this case shows that the employer contributed to a wage-continuation disability plan. Apparently, the employer provided vacation, sick, and personal leave to all its employees regardless of their disability status, and therefore that leave time did not constitute payments for which the employer should receive credit.
The employer argues, as the appellate division held, that allowing workers’ compensation benefits in this situation would give the employee an improper double payment. But the burden was on the employer to show that it was entitled to a credit under OCGA § 34-9-243, and it did not meet this burden. Apparently, previous workers’ compensation board rules required the employer to indicate on the forms WC1 or WC2 that the employee elected to receive salary in lieu of weekly benefits, and “absent compliance with the board’s duly authorized rules, an employer was not entitled to a credit for salary paid to an employee in lieu of workers’ compensation disability benefits.” Davis v. Union Camp Corp.,
Further, Board Rule 220 (c) does not demand a different finding. Rule 220 relates to OCGA § 34-9-220, which prescribes the period of incapacity required before compensation is due.
This court and the Supreme Court of Georgia have denied credit to employers in other situations that may be instructive. For example, employers are not entitled to a credit for disability retirement benefits (City of Waycross v. Holmes, supra,
Therefore, because Glisson was entitled to TTD benefits, and because the employer failed to establish that it was entitled to credit for employer-funded payments under a disability plan, wage continuation plan, or disability insurance policy, or that Glisson was paid her regular wages, the superior court erred in affirming the decision of the appellate division.
Judgment reversed.
Notes
Superseded, by statute on other grounds, Porter v. Ingles Market,
No compensation shall be allowed for the first seven calendar days of incapacity resulting from an injury, including the day of the injury, except the benefits provided for in Code Section 34-9-200; provided, however, that, if an employee is
Concurrence Opinion
concurring in part and dissenting in part.
I agree with the majority that Glisson has established that she is disabled. Accordingly, she is entitled to temporary total disability (TTD) benefits and the State Board of Workers’ Compensation and superior court erred in concluding otherwise. Unlike the majority, however, I believe that the employer should be able to take credit for the salary Glisson was paid. Thus, I also dissent in part.
I do agree that the threshold issue is Glisson’s entitlement to workers’ compensation income benefits. Pursuant to OCGA §§ 34-9-261 and 34-9-262, an employee is entitled to payment of such benefits while there exists a “disability to work resulting from .. . injury.” As noted by the dissent, “disability’ for Workers’ Compensation purposes connotes an economic injury.
Personal leave and sick leave are benefits of employment that are of economic value to employees.
Nonetheless, I do not believe that she is entitled to TTD benefits in addition to the salary she has been paid pursuant to her personal leave benefits. As this Court recently reiterated, “[t]he Workers’ Compensation Act is to be liberally construed to protect both employees and employers. And we are to interpret the Act, if its language will permit, so as not to deny its benefits to either employee or employers.”
Here, I believe the majority interprets the Act in such a way as to deprive the employer of its benefits. It does so by focusing solely on whether Glisson’s continued receipt of wages through personal and sick leave constitutes a “wage continuation plan” under OCGA § 34-9-243 (b). However, I believe the employer is entitled to a credit under subsection (a), which provides, in pertinent part, that “[t]he payment by the employer ... to the employee ... of any benefit when not due or of salary or wages . . . during the employee’s disability shall be
The cases the majority cites to support its position that the employer is not entitled to a credit under subsection (a) do nothing to dissuade me. Neither Caldwell v. Perry
Finally, I note that the Workers’ Compensation Act authorizes the State Board to “make rules, not inconsistent with this chapter, for carrying out this chapter.”
See Ga. Pacific Corp. v. Wilson,
Cf. Ellison v. DeKalb County,
See OCGA§ 34-9-261 (for April 2000 injury, TTD benefits are capped at $350); State of Ga. v. Graul,
According to Glisson, she was unaware that she was entitled to workers’ compensation income benefits. Thus, she could not have elected to receive such benefits in lieu of her salary.
But see State of Ga. v. Head,
(Punctuation and footnote omitted.) Gulf States Underwriters &c. v. Bennett,
Although the majority contends that “personal leave time” constitutes something other than wages, I find this contention unpersuasive. While on leave, Glisson received her regular salary, and she conceded as much during the hearing before the administrative law judge.
See Dan Vaden Chevrolet v. Mann,
See Horizon Indus., supra.
OCGA § 34-9-60 (a).
State Board of Workers’ Compensation Rule 220 (c).
See Wet Walls, Inc. v. Ledezma,
Dissenting Opinion
dissenting.
Because I believe that the Appellate Division of the State Board of Workers’ Compensation correctly denied Phyllis L. Glisson’s petition for total disability and temporary partial disability (“TPD”) benefits for various periods of time between April 8, 2000, the date of her injury, and May 31, 2002,1 respectfully dissent.
Normally this Court reviews workers’ compensation awards under the “any evidence” standard.
Glisson’s hearing before the State Board of Workers’ Compensation (the “Board”) occurred on October 23, 2002. The administrative law judge (“ALJ”) who presided over the hearing awarded Glisson temporary total disability (“TTD”) benefits for the time she missed due to her injuries, ruled that the employer was entitled to credit for the wages paid to Glisson during that same time, and denied her request for TPD benefits. The appellate division vacated the award and concluded that Glisson was not entitled to TTD income benefits, stating that “[wjhen an employee receives her regular salary, we find the employee is not economically disabled as a result of her injury.” The appellate division also denied the employer’s request for a credit.
In reaching its decision, the appellate division relied on OCGA § 34-9-104 (a) (1), which governs the modification of awards in the event of a change in condition. In pertinent part, the statute provides that “the term ‘change in condition’ means a change in the wage-earning capacity,... which change must have occurred after the date on which the wage-earning capacity, physical condition, or status of the employee or other beneficiary was last established by award or
The superior court concluded that “the Appellate Division... was correct in their assessment that the intent behind the Act is to limit the employer’s liability for a work-related injury to one recovery.” Since Glisson received her regular salary in lieu of workers’ compensation benefits, then received PPD income benefits, the court concluded that she was not entitled to TTD income benefits for the same period of time.
Glisson has failed to cite any authority to support her position that she was economically disabled and entitled to TTD. She is required to show that she was economically disabled by the use of her accrued leave in lieu of workers’ compensation benefits, and she has not done so.
Metro Interiors v. Cox,
Trent Tube v. Hurston,
City of Atlanta v. Arnold,
See generally State of Ga. v. Graul,
The record shows that the parties stipulated that the amount she would be entitled to under workers’ compensation would be $233.35 a week while the lower courts found that she was paid more than that for the days in question.
