| Matter of Sacco v Mast Adv./Publ. |
| 2010 NY Slip Op 02040 [71 AD3d 1304] |
| March 18, 2010 |
| Appellate Division, Third Department |
| In the Matter of the Claim of Duow Sacco, Respondent, v MastAdvertising/Publishing et al., Appellants, et al., Respondent. Workers' Compensation Board,Respondent. |
—[*1] Andrew M. Cuomo, Attorney General, New York City (Steven Segall of counsel), forWorkers' Compensation Board, respondent.
Peters, J.P. Appeal from a decision of the Workers' Compensation Board, filed August 28,2008, which ruled that claimant was totally industrially disabled and amended his averageweekly wage.
Claimant worked as a salesperson for the employer from June 1991 to March 3, 1992, whenhe injured his back after slipping and falling on ice during the course of his employment. In July1993, his claim for workers' compensation benefits was established and, based upon a C-240form filed by the employer, his average weekly wage was set at $447.36. Claimant was initiallyfound in March 1996 to have a permanent partial disability and was reclassified in October 2003with a marked permanent partial disability.
In 2007, claimant sought a finding that he was totally industrially disabled and requested[*2]that his average weekly wage be recalculated pursuant toWorkers' Compensation Law § 14, arguing that it should have been based on the wages ofa similar worker at the time of his injury, rather than his actual wages. The Workers'Compensation Law Judge (hereinafter WCLJ) agreed and directed the employer to submit aC-240 form for a similar worker. In response, the employer indicated that, since it maintainedpayroll records for only seven years, no such records were available for an employee at the timeof claimant's injury. Following a hearing, the WCLJ found claimant to have a total industrialdisability and reserved decision on the issue of claimant's average weekly wage. In a decisionfiled in May 2008, a WCLJ found that the C-240 form filed by the employer in 1992 was"improper on its face," interpreted it in favor of claimant due to the employer's failure to submita C-240 form reflecting the wages of a similar worker, and modified claimant's average weeklywage to $624 pursuant to Workers' Compensation Law § 14 (3). Upon the employer'sappeal, the Workers' Compensation Board upheld both the March 2008 and May 2008 decisions.The employer and its workers' compensation carrier now appeal.
Substantial evidence supports the Board's determination that claimant suffers a totalindustrial disability. "A claimant who has a permanent partial disability may nonetheless beclassified as totally industrially disabled where the limitations imposed by the work-relateddisability, coupled with other factors, such as limited educational background and work history,render the claimant incapable of gainful employment" (Matter of Barsuk v Joseph Barsuk, Inc., 24 AD3d 1118, 1118[2005] [citations omitted], lv dismissed 6 NY3d 891 [2006], lv denied 7 NY3d708 [2006]; see Matter of Guan v CPCHome Attendant Program, Inc., 50 AD3d 1218, 1219-1220 [2008]). Whether a claimanthas such a total industrial disability presents a question of fact for the Board to resolve and itsdetermination will not be disturbed if supported by substantial evidence (see Matter of Guanv CPC Home Attendant Program, Inc., 50 AD3d at 1220; Matter of Newman v Xerox Corp., 48AD3d 843, 843 [2008]).
Here, claimant testified that he had not worked since 1992, cannot sit, stand or walk for morethan 15 minutes at a time, takes pain relief and antianxiety medications that make him drowsy,and has to lie down 16 to 18 hours a day in order to manage his pain. According to therehabilitation counselor who evaluated claimant on behalf of the Board, these physicallimitations, when considered in connection with claimant's employment history, renderedclaimant incapable of sustaining gainful employment. Although the employer's vocationalrehabilitation counselor expressed a contrary view in her report, her testimony at the hearing wasinconclusive as to whether claimant was employable, and the Board was entitled to reject heropinion in favor of that of the Board's vocational rehabilitation counselor (see Matter ofUtley v General Motors Corp., 285 AD2d 843, 844 [2001]). Since substantial evidencesupports the Board's determination that claimant was totally industrially disabled as a result ofhis back injury, it will not be disturbed. The employer and carrier's contentions to the contrarymainly involve conflicts in the medical evidence and questions of credibility that were for theBoard to resolve (see Matter of Newman v Xerox Corp., 48 AD3d at 844; Matter ofYanarella v IBM Corp., 195 AD2d 620, 621-622 [1993]).
Next addressing the Board's action in modifying claimant's average weekly wage, we rejectthe employer and carrier's contention that the Board could not modify the 1993 decisionestablishing claimant's average weekly wage absent an appeal from that decision or anapplication to reopen. It is clear that the Board maintains continuing jurisdiction over workers'compensation claims and is empowered to "make such modification or change with respect toformer findings, awards, decisions or orders relating thereto, as in its opinion may be just"(Workers' Compensation Law § 123; see Matter of Bey v Aramark Healthcare Support Servs., [*3]Inc., 26 AD3d 607, 607 [2006], lv denied 7 NY3d702 [2006]; Matter of Farcasin v PDG, Inc., 286 AD2d 840, 840-841 [2001]).
Nor do we conclude that the Board erred in finding that modification of claimant's averageweekly wage is not barred by the doctrine of laches. Laches may be applied in the context of aworkers' compensation case where there is a "[f]ailure to assert a right for an 'unreasonable andunexplained length of time, accompanied by other circumstances causing prejudice to an adverseparty' " (Matter of Holloway v West St.Trucking, 14 AD3d 816, 817 [2005], quoting Matter of Taylor v Vassar Coll.,138 AD2d 70, 73 [1988]; see Matter ofMcGuinness v John P. Picone, Inc., 36 AD3d 1032, 1032 [2007]). Whether the doctrineapplies is a question of fact for the Board to resolve and its decision must be upheld if supportedby substantial evidence (see Matter ofHopkins v Alcas Corp., Cutco Cutlery, 63 AD3d 1342, 1343 [2009]; Matter of Manticoff v American Bldg.Maintenance, 63 AD3d 1308, 1309-1310 [2009]).
Here, the 1993 decision setting claimant's average weekly wage was based upon the C-240form submitted to the Board by the employer, which improperly set forth claimant's wages forthe 39 weeks he worked for the employer, rather than the average wage of a similar worker, aswas required. A claimant's average daily wage is used in determining his or her annual averagewage only when such claimant has worked in the same job for substantially all of the yearpreceding his or her injury (see Workers' Compensation Law § 14 [1]). Where, ashere, a claimant did not work in the same job for substantially all of the year preceding his or herinjury, such claimant's average annual wage is determined by applying a statutory multiplier tothe average daily wage of "an employee of the same class working substantially the whole ofsuch immediately preceding year in the same or in a similar employment in the same or aneighboring place" (Workers' Compensation Law § 14 [2]).[FN*]Thus, since claimant did not work for the employer for substantially all of the whole year prior tohis injury, his average weekly wage should not have been based upon his actual wages duringthe 39 weeks of his employment.
The employer and carrier urge, as it did before the Board, that the employer was prejudicedby claimant's delay in seeking modification of his average weekly wage because it was unable toprovide the wages of a similar worker. While there can be little dispute that claimant's nearly15-year delay in seeking modification of his average weekly wage was excessive, it cannot beoverlooked that it was the employer, in the first instance, who erroneously failed to set forth thewages of a similar worker. This was notwithstanding the clear and unequivocal directivecontained in the C-240 form itself, which instructed the employer to provide the weekly grossearnings of a similar employee where the injured employee did not work for at least 234 days(based on a five-day work week) during the year preceding the injury. Clearly, the employerknew or should have known from the outset that claimant's average weekly wage waserroneously set and, in our view, the employer's inability to furnish the payroll records of asimilar employee at the time of claimant's injury is due, at least in part, to its own neglect (cf.Matter of Holloway v West St. Trucking, 14 AD3d at 817). Moreover, under the particular[*4]circumstances of this case, we fail to find any real prejudiceflowing from the employer's inability to provide the wages of a similar worker. To that end, thisCourt has held that Workers' Compensation Law § 14 (2) was not intended to be employed"in the case of salesmen whose income is largely dependent upon commissions," reasoning that"the income of one individual from commissions offers no accurate method of determining theincome of another, and does not reasonably represent the annual earning capacity of an injuredemployee" (Matter of Delmonte v Sears, Roebuck & Co., 12 AD2d 548, 548 [1960]).Under such circumstances, we concluded that "neither of the methods provided for insubdivision[s] 1 and 2 [of Workers' Compensation Law § 14] can fairly and reasonably beapplied, and all of the factors provided for in subdivision 3 should be given consideration,including the actual earnings of claimant, in arriving at a figure which shall reasonably representthe annual earning capacity of the injured employee" (id. at 549 [internal quotationmarks and citations omitted]). For these reasons, we find that the Board's refusal to invoke thedoctrine of laches to bar claimant from seeking modification of his average weekly wage issupported by substantial evidence and, as such, will not be disturbed (see Matter ofManticoff v American Bldg. Maintenance, 63 AD3d at 1310; Matter of Holloway v WestSt. Trucking, 14 AD3d at 817).
As for the merits of the Board's modification, substantial evidence supports its finding thatclaimant's annual earning capacity is most accurately determined by averaging his earnings fromthe last 10 weeks of employment. Workers' Compensation Law § 14 (3) directs that, whereneither of the methods set forth in subdivisions (1) and (2) can "reasonably and fairly beapplied," a claimant's average weekly wage must be computed based on "such sum as. . . shall reasonably represent the annual earning capacity of the injured employeein the employment in which he [or she] was working at the time of [his or her] accident." Here,the WCLJ implicitly accepted claimant's argument that his earnings in the last 10 weeks ofemployment would most accurately reflect his earning capacity at the time of the accident, sincehe was a new employee and did not receive commissions in his first several weeks ofemployment. However, in so doing, the WCLJ incorrectly utilized claimant's earnings during hislast 11 weeks of employment and divided that sum by 10, and thus we modify by basingclaimant's average weekly wage on his last 10 weeks of employment, resulting in an averageweekly wage of $592.23.
We have examined the employer and carrier's remaining contentions and find them to belacking in merit.
Spain, Lahtinen, Stein and Garry, JJ., concur. Ordered that the decision is modified, withoutcosts, by reversing so much thereof as amended claimant's average weekly wage to $624;claimant's average weekly wage is set at $592.23; and, as so modified, affirmed.
Footnote *: As will be more fully discussedbelow, if neither of the previous methods can "reasonably and fairly be applied," Workers'Compensation Law § 14 directs that a claimant's average annual wage be computed basedon "such sum as . . . shall reasonably represent the annual earning capacity of theinjured employee" (Workers' Compensation Law § 14 [3]).