BARBARA D. MEADOWS, Employee, Plaintiff v. N.C. DEPT. OF
TRANSPORTATION, Employer SELF-INSURED, Defendant
1. Workers' Compensation--condition of employment--required shoes
In a workers' compensation action brought by a driver's license examiner who had RSD in
her feet and who alleged that her required work shoes aggravated her condition, the Industrial
Commission erred by concluding that the shoes issued by defendant were not a condition of
employment where the evidence showed that plaintiff was required to wear her DMV uniform,
including the shoes, that she was not allowed to purchase and wear her own shoes, and that
defendant usually granted a physician's request that an employee be permitted to wear another
style of shoe. There was no evidence that plaintiff knew that such an exemption could be had.
2. Workers' Compensation--timeliness of claim--plaintiff not informed that she had an
occupational disease
In a workers' compensation action brought by a driver's license examiner who had RSD in
her feet and who alleged that her required work shoes aggravated her condition, the Industrial
Commission erred by concluding that the claim was barred for untimeliness where the opinion and
award did not contain any finding as to when any treating physician informed plaintiff clearly,
simply, and directly that she had an occupational disease and that the illness was work-related.
Judge Hunter Dissents.
KELLUM & JONES, by J. Kevin Jones, for plaintiff-appellant.
Attorney General Michael F. Easley, by Special Deputy Attorney
General Elisha H. Bunting, Jr., for defendant-appellee.
TIMMONS-GOODSON, Judge.
Barbara D. Meadows (plaintiff) appeals from adverse rulings
by the North Carolina Industrial Commission (Commission or Full
Commission) which resulted in the denial of her claim for workers'
compensation benefits. After a thorough examination of the record
and briefs of the parties, we reverse the Commission's opinion andaward.
The relevant factual and procedural history are as follows:
In February of 1990, plaintiff began employment with the North
Carolina Department of Transportation (defendant) as a driver's
license examiner. Her job responsibilities included administering
licensing road, written, and vision tests, accessing the Division
of Motor Vehicles (DMV) computer database, and photographing
driver's license recipients. In the course of her duties,
plaintiff spent approximately one-third of the workday on her feet.
At the onset of her employment, plaintiff was issued a
standard DMV uniform, which included synthetic leather (Corfam)
work shoes. Generally, DMV employees were not permitted to wear
any shoes other than those provided by defendant. However, if an
employee presented defendant with a written physician's request
that she be permitted to wear another style of shoe because of some
special medical circumstance, defendant usually granted the
request. Plaintiff, who had pre-existing bunions and congenital
deformities unrelated to her employment, never sought permission to
wear an alternate shoe.
Plaintiff began to experience problems with her work shoes in
June of 1990. As she stated, [her] feet would become very hot,
would perspire, and swell up in the shoe, and [she would
experience] a lot of pain[,] particularly in her right foot.
Plaintiff's symptoms continued to worsen over the next five years,
but she did not inform her supervisor, nor did she consult a
physician during that time.
Plaintiff first sought medical attention for her symptoms on13 November 1995, when she visited Dr. Thomas J. Hagan,
a
podiatrist. She reported experiencing right foot pain, which she
said became increasingly severe throughout the workday while
wearing the required Corfam shoes. Dr. Hagan's initial diagnosis
was that plaintiff suffered from Morton's Neuroma in her right
foot. To treat the condition, he injected plaintiff's foot with
Celeston Soluspan and Lidocaine and fitted her with a Berkemann
premolded orthotic device.
This treatment, however, proved to be unsuccessful, and on 30
November 1995, plaintiff returned to Dr. Hagan complaining of
further foot discomfort. Dr. Hagan performed additional tests and
discovered that plaintiff had multiple foot problems including
hallux abducto valgus, hallux abductus, hypertrophic bone-fifth
toe, plantar declinated fifth metatarsal and Morton's Neuroma-third
interspace, all of which were pre-existing, non-occupational
deformities. He did not, at that time, advise plaintiff that the
malformations of her foot were aggravated or exacerbated by work-
related conditions, such as the required Corfam shoes. He
recommended that she undergo surgery to correct the problems and
filed a request for permission to perform the surgery with
plaintiff's regular medical insurance carrier.
On 8 December 1995, Dr. Hagan surgically corrected plaintiff's
right foot deformities. Plaintiff's regular health insurance
provider approved the operation and paid the medical costs. On 16
February 1996, plaintiff underwent a follow-up procedure to the
original surgery, and on 4 March 1996, Dr. Hagan released plaintiff
to return to light-duty, indoor work. Plaintiff reported to workthe following day, and after contacting the Raleigh office to learn
that work commensurate with plaintiff's restrictions was
unavailable, plaintiff's supervisor sent her home. Since then,
plaintiff has not sought or held other employment.
Presented on 4 April 1996 with plaintiff's complaints of
increased pain and a feeling of fullness in her right foot, Dr.
Hagan referred her to Dr. James M. Tarpley at New Bern Anesthesia
Associates for diagnosis and further treatment. Thereafter, Dr.
Tarpley examined plaintiff and diagnosed her as having a painful
condition known as Reflex Sympathetic Dystrophy (RSD), which he
attributed to the surgeries performed on plaintiff's right foot.
From April to June of 1996, Dr. Tarpley treated plaintiff's
condition with lumbar sympathetic blocks, intravenous regional
blocks, an intravenous bretyline block, pain medication and
physical therapy. Plaintiff's condition, however, has not
improved, as the treatments have provided only temporary pain
relief. Plaintiff has since developed RSD in her left foot as
well, and she experiences chronic, disabling pain. There has been
no determination that plaintiff's disability is permanent, nor has
plaintiff ever received a disability rating.
Plaintiff filed a claim for workers' compensation benefits on
5 November 1996 alleging that she contracted an occupational
disease in that the required Corfam work shoes aggravated her pre-
existing, non-work-related foot deformities. The matter came
before Deputy Commissioner Mary Moore Hoag, who, on 26 June 1998,
entered an opinion and award wherein she concluded that plaintiff's
disease was non-occupational and, for that reason, denied herworkers' compensation claim. Plaintiff appealed this decision to
the Full Commission, and the panel affirmed the deputy commissioner
with minor modifications. Plaintiff again appeals.
4. Plaintiff has not suffered an
occupational disease arising out of and in the
course of the employment with defendant-
employer. Plaintiff does not have a
compensable disability, because any inability
to earn wages in her former employment with
defendant-employer is the result of surgery
for a non-occupational disease and/or
subsequent complications arising therefrom.
(Citations omitted).
As previously noted, we will not disturb the Commission's
findings of fact if the record contains any competent evidence to
support them. Peoples v. Cone Mills Corp., 316 N.C. 426, 342
S.E.2d 798 (1986). Where, however, there is a complete lack of
competent evidence in support of the findings they may be set
aside. Id. at 432-33, 342 S.E.2d at 803. Such action is fitting
in this case, since the record lacks any evidence that the shoes
which were issued as part of plaintiff's uniform were not required
as a condition of employment.
The evidence indicates and, indeed, the Commission found that
plaintiff was required to wear her DMV uniform, including the
Corfam shoes, at all times during work hours. The evidence and the
findings further show that [p]laintiff was not allowed to purchase
and wear her own work shoes. Still, the Commission found that the
Corfam shoes were not a requirement of plaintiff's employment.
This finding, it appears, was based on the notion that an
employee's ability to be exempted from wearing the shoes due to
special medical needs transformed the requirement into anelection or personal choice. Notwithstanding that we have found
nothing in our jurisprudence to support the Commission's reasoning,
we find no evidence in the record to show that plaintiff knew such
an exemption could be had. Accordingly, the Commission's findings
and corresponding conclusions that the Corfam shoes issued by
defendant were not a condition of plaintiff's employment cannot
stand.
[2]Next, we must consider whether the record supports the
Commission's conclusion that plaintiff failed to timely notify
defendant of her occupational disease, as required by sections 97-
22 and 97-58(b) of the General Statutes. Again, we hold that it
does not.
Under section 97-22 of our General Statutes,
Every injured employee . . . shall
immediately on the occurrence of an accident,
or as soon thereafter as practicable, give or
cause to be given to the employer a written
notice of the accident, . . . but no
compensation shall be payable unless such
written notice is given within 30 days after
the occurrence of the accident or death,
unless reasonable excuse is made to the
satisfaction of the Industrial Commission for
not giving such notice and the Commission is
satisfied that the employer has not been
prejudiced thereby.
N.C. Gen. Stat. § 97-22 (1999). Section 97-58 of the General
Statutes sets forth the time limits for filing claims of
occupational disease:
. . . .
(b) The report and notice to the employer
as required by G.S. 97-22 shall apply in all
cases of occupational disease except in case
of asbestosis, silicosis, or lead poisoning.
The time of notice of an occupational disease
shall run from the date that the employee hasbeen advised by competent medical authority
that he has same.
(c) The right to compensation for
occupational disease shall be barred unless a
claim be filed with the Industrial Commission
within two years after death, disability, or
disablement as the case may be. . . .
N.C. Gen. Stat. § 97-58(b), (c) (1999). Construing the provisions
of section 97-22 and 97-58 in pari materia, our Supreme Court has
said that an employee claiming an occupational disease must notify
the employer of her ailment within thirty days after she is advised
by competent medical authority of the nature and work-related cause
of the disease, Booker, 297 N.C. at 480-81, 256 S.E.2d at 203, and
must file a claim for disability within two years of receiving such
advice, Lawson v. Cone Mills Corp., 68 N.C. App. 402, 403, 315
S.E.2d 103, 104 (1984). Therefore, to trigger the running of the
statutory time limit, the employee first must be informed clearly,
simply and directly that [s]he has an occupational disease and that
the illness is work-related. Id. at 410, 315 S.E.2d at 107.
The Commission in the instant case concluded that plaintiff
notified defendant of her occupational disease in an untimely
manner:
3. . . . Plaintiff received medical
knowledge of her condition as early as 13
November 1995. Although Dr. Hagen [sic] did
not tell plaintiff that her problems were
related to her shoes, plaintiff testified thatshe had related her discomfort to the shoes
for the previous five years. Even after her
surgery, plaintiff failed to inform defendant
of the relationship between her shoes and her
condition until she filed a claim under the
Act in November 1996. By waiting to provide
defendant with notice until after she had
voluntarily aggravated her condition for five
years and an additional year after she had
surgery on her foot, plaintiff effectively
eliminated defendant's opportunity to
alleviate the problem by allowing plaintiff to
wear different shoes. Accordingly, defendant
was prejudiced by plaintiff's failure to give
timely notice, and plaintiff is statutorily
barred from claiming compensation under the
Act.
We hold that this conclusion is contrary to the findings of fact
and the evidence.
The Commission found that although Dr. Hagan diagnosed
plaintiff's condition on 30 November 1995, [he], at that point,
did not advise plaintiff she was suffering from an aggravation or
exacerbation of her foot deformities due to work-related
conditions. The opinion and award does not contain any finding as
to when Dr. Hagan, or any other treating physician, informed
[plaintiff] clearly, simply and directly that [s]he ha[d] an
occupational disease and that the illness [was] work-related. Id.
at 410, 315 S.E.2d at 107. Thus, the Commission had no basis to
conclude that the statutory notice and filing time periods had
triggered, much less expired. The Commission's conclusion that
plaintiff's claim was barred for untimeliness then must fail.
For the foregoing reasons, we reverse the opinion and award of
the Full Commission and remand this matter for further appropriate
proceedings.
Reversed and remanded.
Chief Judge EAGLES concurs.
Judge HUNTER dissents.
BARBARA D. MEADOWS,
Employee,
Plaintiff
v
.
&
nbsp;From the North Carolina
&
nbsp; Industrial Commission
&
nbsp; I.C. No. 682687
N.C. DEPT. OF TRANSPORTATION,
Employer;
SELF-INSURED,
Defendant
HUNTER, Judge, dissenting.
The majority has chosen to overturn the unanimous decision of
the Full Commission (affirming the deputy commissioner's decision)
finding for the defendant-employer (DOT). For the reasons
outlined below, I respectfully dissent.
The majority opinion is based on the fact that because the
Commission found that the shoes issued as a part of plaintiff's
uniform were not required as a condition of employment and
plaintiff was not allowed to purchase and wear her own work shoes,
the Commission cannot then transform[] the 'requirement' into an
election or personal choice. However, I do not agree that the
Commission did so.
In finding that the shoes were required -- DOT having readily
admitted it -- the Commission simply acknowledged the general rules
of employment for that employer. However, DOT stated and the
Commission found as fact that upon request and receipt of awritten statement from a doctor, shoes other than the required work
shoes would [have] be[en] permitted. Plaintiff does not dispute
this finding, but neither does she argue that she ever made the
request. Instead, plaintiff alleges that from the beginning of her
employment with defendant, she experienced problems with her feet
[above and beyond the already pre-existing conditions] while
wearing the required work shoes . . . [and that] her symptoms
worsened over [the] five years [she worked for defendant]; [yet]
she never complained to her supervisor nor consulted a physician.
It is true that under N.C. Gen. Stat. § 97-22, an employee is
required to notify her employer, in writing, that she has an
occupational disease within 30 days after the occurrence. In
addition, § 97-58(b) sets out that [t]he time of notice . . . [to
the employer does not begin to run until] the employee has been
advised by competent medical authority that he has the
occupational disease. N.C. Gen. Stat. § 97-58(b) (1999) (emphasis
added). However, even though plaintiff admits that she believed,
from the very beginning of the five years she worked for defendant,
that her disease was being aggravated by the work shoes, the
majority chooses to hold that plaintiff was not required to notify
defendant of her occupational disease until a doctor actually
attributed the illness to her work and advised her so. I do not
believe this interpretation bodes well with case law or legislative
statutory intent.
When we read N.C. Gen. Stat. § 97-58(c) which deals with
occupational disease caused by radiation (an injury which oftentakes a long time to show itself), we see that our Legislature
clearly chose to place responsibility on the employee to notify her
employer of its possible liability. The pertinent portion of the
statute states:
[T]he right to compensation for radiation
injury, disability or death shall be barred
UNLESS a claim is filed within two years after
the date upon which the employee first
suffered incapacity from the exposure to
radiation and either knew or in the exercise
of reasonable diligence should have known that
the occupational disease was caused by his
. . . employment.
N.C. Gen. Stat. § 97-58(c) (1999) (emphasis added). Thus, I do not
believe that our Legislature intended to hold victims of radiation
poisoning to a higher standard than employees injured in the
workplace by other means.
It has long been held by the courts of this state that:
Statutes in pari materia are to be
construed together and where the language is
ambiguous, the court must construe it to
ascertain the true legislative intent. And
where a strict literal interpretation of the
language of a statute would contravene the
manifest purpose of the Legislature, the
reason and purpose of the law should control,
and the strict letter thereof should be
disregarded.
Duncan v. Carpenter, 233 N.C. 422, 426, 64 S.E.2d 410, 413-14
(1951), overruled on other grounds, Taylor v. Stevens & Co., 300
N.C. 94, 265 S.E.2d 144 (1980) (emphasis added) (citations
omitted). Furthermore, this Court has enunciated the Legislative
intent in holding that time for [latent occupational disease]
claims runs from notification of injury is . . . [due to] thepeculiar problems of such a disease . . . . Taylor, 300 N.C. at
101, 265 S.E.2d at 148.
It is clear that our Legislature never
intended that the statutory scheme of G.S. 97-
58 would be construed to render time for
notice and claim absurd. It is equally clear
that our Legislature never intended that a
claimant for workers' compensation benefits
would have to make a correct medical diagnosis
of his own condition prior to notification by
other medical authority of his disease in
order to timely make his claim. . . .
[However,] [t]his is not to say that the
time of disablement for other statutory
provisions is necessarily the date a claimant
was informed he was disabled by an
occupational disease. . . .
Id. at 102, 265 S.E.2d at 149 (citation omitted) (emphasis added).
Thus, construing these statutes and our case law in para
materia, I believe it is evident that where an employee in the
exercise of reasonable diligence should have known that [her]
occupational disease was caused by h[er] . . . employment[,] she
had a responsibility to timely file her claim so that her employer
would be put on notice, N.C. Gen. Stat. § 97-58(c) (emphasis
added), UNLESS she had a reasonable excuse. N.C. Gen. Stat. §
97-22 (1999).
A reasonable excuse has been defined by
this Court to include a belief that one's
employer is already cognizant of the accident
. . . or [w]here the employee does not
reasonably know of the nature, seriousness, or
probable compensable character of his injury
and delays notification only until he
reasonably knows . . . . Lawton v. County of
Durham, 85 N.C. App. 589, 592, 355 S.E.2d
158, 160 (1987). The burden is on the
employee to show a reasonable excuse.
Jones v. Lowe's Companies, 103 N.C. App. 73, 75, 404 S.E.2d 165,
166 (1991) (emphasis added). In the case at bar, it is my belief
that plaintiff failed to give timely notice -- without reasonable
excuse -- thus the Commission was correct in denying her claim
against her employer. N.C. Gen. Stat. § 97-22. Nevertheless, even
if plaintiff's notice was timely, I believe the Commission was
correct in denying her claim.
In Jones, plaintiff-employee was a delivery clerk who injured
his leg when he fell while carrying several panels of sheetrock.
Plaintiff-employee did not notify his employer the day of the
accident and only did so when, more than two months later, his leg
became numb and would no longer support his body. Jones, 103 N.C.
App. at 76, 404 S.E.2d at 166. Plaintiff-employee argued that his
notice to employer was timely because it was not until that point
that he knew the nature and seriousness of his injury. Id. This
Court, agreeing with plaintiff-employee that his notice was timely,
opined that timely notice was, however, not enough; the Court
reasoned that:
If prejudice [against employer] is shown,
Employee's claim is [still] barred even though
he had a reasonable excuse for not giving
notice of the accident within 30 days. . . .
Whether prejudice exists requires an
evaluation of the evidence in relationship to
the purpose of the statutory notice
requirement.
The purpose is dual: First, to enable the
employer to provide immediate medical
diagnosis and treatment with a view to
minimizing the seriousness of the injury; and
second, to facilitate the earliest possible
investigation of the facts surrounding the
injury.
2B Larson's Workmen's Compensation Law §
78.10, 15-102; Booker v. Medical Center, 297
N.C. 458, 481, 256 S.E.2d 189, 204 (1979).
Id. at 76-77, 404 S.E.2d at 167 (citations omitted) (emphasis
added).
In the case at bar, the Commission found in its Opinion and
Award that:
2. During her employment with
defendant-employer, plaintiff has filed at
least four workers' compensation claims, only
one of which has been found compensable. When
questioned about the claims, plaintiff had no
memory of them.
. . .
4. As a part of her employment with
defendant, plaintiff was required to wear at
all times a uniform which included synthetic
leather (Corfam) work shoes that were provided
by defendant to plaintiff. Plaintiff was not
allowed to purchase and wear her own work
shoes. However, upon request and receipt of a
written statement from a doctor, shoes other
than the required work shoes would be
permitted. Plaintiff never requested
permission to wear other than required work
shoes. She did not ask her doctor, Dr. Hagan,
for a prescription although he had previously
provided such a statement for other DMV
workers.
5. Plaintiff had pre-existing non-work
related foot problems consisting of bunions
and congenital deformities.
6. In June of 1990, at the beginning of
her employment with defendant-employer,
plaintiff experienced problems with her feet
while wearing the required work shoes. Her
feet would become hot, they would perspire,
swell and plaintiff would experience pain,
more in the right foot than the left.
According to plaintiff, her symptoms worsened
over five years; however, she never complained
to her supervisor nor consulted a physician.
. . .
8. Plaintiff and Dr. Hagan agreed that
plaintiff had pre-existing foot deformities
and also foot pain and problems for at least
the preceding five years.
. . .
11. Plaintiff informed her supervisor of
the surgery to take place on 8 December 1995.
Plaintiff testified that she told her
supervisor that she could not wear the shoes
without having surgery, and her supervisor
stated that plaintiff informed him she was
having foot problems which required surgery.
However, plaintiff never informed her
supervisor that the condition requiring
surgery was caused or otherwise due to the
shoes she wore as part of her uniform.
Plaintiff never complained to her supervisor
about her shoes. She never requested
permission during the five years of her
employment, to wear shoes other than the
Corfam shoes supplied at work. Defendant was
prejudiced by plaintiff's failure to inform it
of the relationship between her shoes and her
increasingly deteriorating foot condition.
Had plaintiff informed defendant of the
problem, her shoes could have been changed and
no aggravation of her condition would have
occurred.
12. Plaintiff never asserted that her
pre-existing foot deformities were aggravated
by her work conditions until more than a year
after her surgery, when she was diagnosed with
Reflex Sympathetic Dystrophy (RSD) resulting
from the surgery.
The Commission then concluded that:
2. . . . The uncontradicted evidence
shows that the shoes which were issued as part
of plaintiff's uniform were not a requirement
of her employment, but could have been
replaced upon her request with shoes which
accommodated plaintiff's condition.
Plaintiff's decision to continue wearing shoes
which aggravated her condition could have
occurred in any occupation; therefore, the
shoes in question do not constitute acondition of plaintiff's particular trade,
occupation or employment. Accordingly, any
aggravation of plaintiff's non-disabling, pre-
existing condition, the surgery, the resulting
RSD, and any subsequent disability therefrom,
are not the result of causes and conditions
characteristic of and peculiar to claimant's
employment. N.C. Gen. Stat. § 97-53(13); Id.
3. Plaintiff is responsible for
providing employer with notice of her
occupational disease in accordance with the
mandates of N.C. Gen. Stat. § 97-22[] [and]
. . . N.C. Gen. Stat. § 97-58(b). . . .
By waiting to provide defendant with notice
until after she had voluntarily aggravated her
condition for five years and an additional
year after she had surgery on her foot,
plaintiff effectively eliminated defendant's
opportunity to alleviate the problem by
allowing plaintiff to wear different shoes.
Accordingly, defendant was prejudiced by
plaintiff's failure to give timely notice
. . . .
4. Plaintiff has not suffered an
occupational disease arising out of and in the
course of the employment with defendant-
employer. . . . Plaintiff does not have a
compensable disability, because any inability
to earn wages in her former employment with
defendant-employer is the result of surgery
for a non-occupational disease and/or
subsequent complications arising
therefrom. . . .
(Emphasis added.)
Thus, there is no doubt in my mind that the majority opinion
prejudices an unknowing employer by holding it responsible for a
situation that could have easily been avoided or certainly
mitigated had plaintiff, through reasonable diligence, taken
responsibility and done what any reasonable and prudent person
would have done -- notified her employer of the problem. Because
I believe there is competent evidence in the record to support theCommission's findings and conclusions, I vote to affirm the
Commission's Opinion and Award.
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