12-0019. IN THE MATTER OF THE PETITION FOR A FINDING OF THE FAILURE TO INSURE WORKERS' COMPENSATION LIABILITY AND ASSESSMENT OF A CIVIL PENALTY AGAINST EDWIN A. MILNER; EDWIN A. MILNER dba GLACIER SEAMLESS GUTTER; Employer Respondents.
Court | Alaska |
Alaska Workers Compensation Decisions
2012.
Workers' Compensation Board
12-0019.
IN THE MATTER OF THE PETITION FOR A FINDING OF THE FAILURE TO INSURE WORKERS' COMPENSATION LIABILITY AND ASSESSMENT OF A CIVIL PENALTY AGAINST EDWIN A. MILNER; EDWIN A. MILNER dba GLACIER SEAMLESS GUTTER; Employer Respondents
Alaska Workers' Compensation Appeals
Commission IN THE MATTER OF THE
PETITION FOR A FINDING OF THE FAILURE TO INSURE WORKERS' COMPENSATION LIABILITY
AND ASSESSMENT OF A CIVIL PENALTY AGAINST, EDWIN A. MILNER; EDWIN A. MILNER dba
GLACIER SEAMLESS GUTTER; Employer, Respondents.AWCB Decision No.12-0019Filed with AWCB Anchorage, Alaskaon
January 26, 2012AWCB Case No.
700003494FINAL DECISION AND ORDERThe Petition for Finding of Failure to Insure and Assessment of
Civil Penalties against Edwin A. Milner, and Edwin A. Milner doing business as
Glacier Seamless Gutter (Employer or Mr. Milner) was heard on January 4, 2012,
in Anchorage, Alaska. Rhonda Gerharz, Investigator for the Special
Investigations Unit of the Workers' Compensation Division (Division), Alaska
Department of Labor and Workforce Development (DOL), represented the State of
Alaska and testified. Betty Milner (Mrs. Milner), Edwin Milner's spouse,
appeared on behalf of Employer and testified at hearing. Velma Thomas appeared
for the Alaska Workers' Compensation Benefits Guaranty Fund (Fund). John C.
Waski (Mr. Waski) also testified. The record closed at the hearing's conclusion
on January 4, 2012.
ISSUES
The Division contends Edwin A. Milner operated a business using
employee labor when not insured for workers' compensation liability, failed to
provide proof of workers' compensation liability coverage, and failed to insure
for workers' compensation liability during the period September 9, 2008 through
December 31, 2010. The Division contends Employer should be assessed a civil
penalty for this period. Employer does not dispute these contentions, but asks
that mitigating factors be considered if a civil penalty will be
assessed.
The Division makes similar contentions with respect to John
Waski, who owned and operated Glacier Seamless Gutter prior to Mr. Milner. Mr.
Waski contends he operated the business single-handedly when he owned it, never
had any employees, and thus was not required to procure workers' compensation
insurance.
1. May the Division's allegations with respect to Mr. Waski be
considered here?
2. Did Employer fail to file evidence of compliance with
workers' compensation laws during the period September 9, 2008 through December
31, 2010?
3. Did Employer fail to provide workers' compensation
insurance coverage for its employees during the period September 9, 2008
through December 31, 2010?
4. Should Employer be assessed a civil penalty for failure to
insure during the period September 9, 2008 through December 31, 2010, and if
so, in what amount?
FINDINGS OF
FACTS
Evaluation of the record as a whole establishes the following
facts and factual conclusions by a preponderance of the evidence:
1) The Division's Petition for Finding of Failure to Insure for
Workers' Compensation Liability, and for Assessment of a Civil Penalty
(Petition) named Edwin A. Milner, and Edwin A. Milner, doing business as (dba)
Glacier Seamless Gutter, as the sole respondent. (Petition, December 8,
2010).
2) Glacier Seamless Gutter is a small siding and gutter
installation business. (DuPuis v. Glacier Seamless Gutter,
AWCB Decision No. 11-0103 (July 19, 2011)(Dupuis I).
3) Although the Petition names Edwin A. Milner individually and
doing business as Glacier Seamless Gutter as the sole respondent, the Petition
and a Discovery Demand were served on both Employer and Mr. Waski. (Petition,
December 8, 2010).
4) Mr. Waski is Mr. and Mrs. Milners' son-in-law. (Mrs.
Milner).
5) Mr. Waski and his wife Shelley A. Milner-Waski owned, and
Mr. Waski operated Glacier Seamless Gutter from June 28, 1993 through December
31, 1998. (Gerharz; Waski; Division Exhibit 5).
6) Mr. Waski testified he operated the business alone, with no
employees. No evidence was introduced to contradict this testimony. (Waski;
record).
7) Mr. Milner held an active business license to operate
Glacier Seamless Gutter as a sole proprietorship after he acquired the business
from Mr. Waski on or about September 8, 2008, until the business license
expired on December 31, 2010. (DuPuis I; Gerharz; Mrs.
Milner).
8) Mr. Milner operated Glacier Seamless Gutter as a part-time
side business only, and worked primarily as a supervisor for Chumley's Inc., a
large construction company on the Kenai Peninsula. (DuPuis
I).
9) On October 25, 2010, Mr. DuPuis was injured while performing
general labor, including installing gutters and siding, for Employer.
(Id.)
10) This job injury brought Employer to the attention of the
Office of Special Investigations, Workers' Compensation Division.
(Gerharz).
11) Employer was operating without workers' compensation
insurance the entire time he owned and operated Glacier Seamless Gutter, from
September 9, 2008, through December 31, 2010. (Gerharz).
12) Glacier operated seasonally, and did not install siding and
gutters during Alaska winters. Mrs. Milner testified the job at which Mr.
DuPuis was injured was probably the last job Glacier performed, as Mr. Milner
thereafter became ill, requiring hip replacement surgery, developing kidney
disease, and receiving diagnoses of Scleroderma, Sjogren's disease, Gout, and
Proteinuria. (Mrs. Milner) Medical records corroborate Mr. Milner has had
serious medical issues since 2010. However, Employer's business records reflect
at least one job performed in November, 2010. (Mrs. Milner; medical records;
Division Exhibit 9).
13) According to Mrs. Milner and Mr. Waski, much of Glacier's
work can be done by a single person. (Mrs. Milner, Mr. Waski).
14) Mr. Waski, a much younger man than Mr. Milner, testified he
performed siding and gutter installations single-handedly when he owned the
business. (Mr. Waski; experience, observations, judgment, unusual facts of the
case and inferences therefrom).
15) Mrs. Milner testified Mr. Milner often performed Glacier
jobs alone, or with her assistance, and occasionally with Mr. DuPuis'
assistance. (Mrs. Milner).
16) Employer produced business records of jobs performed during
calendar year 2010 only. (Division Exhibit 9).
17) Business records were not maintained, or at least were not
produced, for years prior to 2010. (Mrs. Milner; experience,
observations).
18) The 2010 business records reflect Mr. Milner performed
contracted jobs alone, or assisted by Mrs. Milner, Mr. DuPuis, or someone known
as "J.C." (Id.)
19) Mr. DuPuis was injured while employed for Glacier on
October 25, 2010, incurring $34,150.77 in medical expenses for a hand
laceration, and subsequent infection. (DuPuis I; printout of
payments made by Alaska Workers' Compensation Benefits Guaranty Fund in AWCB
Case No. 201016927).
20) Employer contested liability, but judgment in favor of Mr.
DuPuis was entered on July 19, 2011. In addition to medical benefits, Mr.
DuPuis was awarded temporary total disability benefits (TTD), attorney fees and
costs. (DuPuis I).
21) Employer failed to pay the benefits awarded, and a
supplemental order declaring amount of default was entered in Dupuis v.
Glacier Seamless Gutter, AWCB Decision No. 11-157 (October 26,
2011)(Dupuis II).
22) Employer defaulted on payment of the sums owed in
accordance with DuPuis v. Glacier Seamless Gutter, AWCB
Decision No. 11-0103 (July 19, 2011). (DuPuis II).
23) The Alaska Workers' Compensation Benefits Guaranty Fund has
paid benefits to and on Mr. DuPuis' behalf totaling $48,199.77. (Ms. Thomas;
Printout of payments made by Alaska Workers' Compensation Benefits Guaranty
Fund in AWCB Case No. 201016927).
24) Because Employer failed to produce business records before
2010, there is no evidence to support a finding, by a preponderance of
evidence, Employer utilized employees in 2008 or 2009. (record).
25) Employer's business records for 2010 reflect Mr. Milner
engaged employee labor on no less than 26 employee work days in 2010. The
Division reached this figure by calculating as one work day any eight hour
period, or portion thereof, worked by someone other than Mr. Milner. (Division
Exhibit 9; Gerharz; DuPuis I, Finding of Fact 7).
26) Employer's business records, however, do not include the
Van Dyke siding job at which Mr. Dupuis was injured while employed on October
25, 2010. Mr. Milner provided the Division with an explanation of the events
occurring on October 25, 2010, in which he stated Mr. DuPuis worked 56.5 hours
on the Van Dyke job. Calculating 8 hours as a work day, Mr. Dupuis worked seven
days on the Van Dyke job. Mr. DuPuis' employment on this job increases
Employer's known uninsured employee work days from 26 to 33. (Experience,
observation, unusual facts of the case and inferences drawn therefrom).
27) Edwin A. Milner dba Glacier Seamless Gutter is an
"employer" under the Alaska Workers' Compensation Act (Act). (DuPuis
I).
28) Employer failed to provide evidence of compliance with
workers' compensation insurance requirements for the period September 9, 2008
through December 31, 2010 (Gerharz).
29) Employer had an opportunity to file evidence of...
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