Mary Blaine McLaughlin, Esq. Ricklin Brown, Esq.
Bureau of Employment of Programs Mark H. Dellinger, Esq.
Charleston, West Virginia Bowles Rice McDavid Graff
Attorney for Appellant & Love PLLC
Charleston, West Virginia
Attorney for Appellee, Mercer,
McDowell, Wyoming Mental Health
Donald L. Darling
Senior Deputy Attorney General
Charleston, West Virginia
Attorney for Appellee,
Board of Review of the West Virginia
Department of Employment Security
Mr. Jerry K. Bailey
Beckley, West Virginia
Appellee, Pro se
JUSTICE SCOTT delivered the Opinion of the Court.
Under West Virginia Code § 21A-6-3(1) (1996), an individual who is
discharged without cause by his employer after giving notice of his prospective resignation,
but before expiration of the notice period, is not disqualified for unemployment
compensation benefits after the date on which his resignation would have become effective
but for the discharge.
Scott, Justice:
The Appellant, William F. Vieweg, Commissioner of the West Virginia Bureau
of Employment Programs, Unemployment Compensation Division (Commissioner), seeks
reversal of a final order of the Circuit Court of Kanawha County, entered September 15,
1999,
affirming decisions of the Board of Review of the West Virginia Department of
Employment Security (Board of Review)
. The Board of Review ruled that three individual
claimants, who tendered notice of prospective resignation to their employers but were fired
before their respective notice periods lapsed, were
disqualified
for unemployment
compensation
benefits
after the designated effective dates of their resignations. After
examining
West Virginia Code § 21A-6-3(1)
(1996)
,
the controlling statutory provision,
we
conclude that the claimants were not disqualified as determined below and accordingly,
reverse the judgment of the circuit court.
Gray filed a claim for unemployment compensation benefits with the
Department of Employment Security
(DES), and on October 6, 1998, a DES deputy
commissioner
ruled that Gray was eligible for said benefits, finding that [a]lthough the
claimant had given notice of resignation, the employer severed the relationship by
terminating him prior to the effective date of the resignation. MMW Mental Health
appealed the deputy's decision, and on October 29, 1998, a de novo hearing was held before
an Administrative Law Judge (ALJ). By decision issued November 5, 1998, the ALJ
modified the deputy's decision by limiting the grant of benefits to the time period between
Gray's discharge and his designated resignation date. Specifically, the ALJ ruled that Gray
was not disqualified from August 6, 1998, through August 31, 1998 but was disqualified
from September 1, 1998, to indefinite, as he voluntarily quit his job without good cause
involving fault on the part of the employer. The Commissioner appealed the ALJ's decision
to the Board of Review, and on December 1, 1998, the Commissioner's attorney argued the
appeal before the Board of Review. On December 17, 1998, the Board of Review affirmed
the ALJ's decision, with only a minor adjustment of the beginning date of disqualification
to September 2, 1998.
On September 1, 1998, claimant Baker submitted to MMW Mental Health a
written, two-week notice of her intended resignation, to be effective on September 15, 1998.
On September 5, 1998, MMW Mental Health informed Baker that it no longer needed her
services. She was not paid for the remainder of the notice period.
After being discharged by MMW Mental Health, Baker filed a claim for
unemployment compensation benefits with DES. On September 22, 1998, a DES deputy
commissioner issued a decision granting Baker benefits on the grounds that [a]lthough the
claimant had given notice of resignation, the employer severed the relationship by
terminating her prior to the effective date of the resignation. MMW Mental Health appealed
the deputy's decision, and on October 8, 1998, a de novo hearing was held before an ALJ.
In a decision issued on October 14, 1998, the ALJ modified the deputy's decision by ruling
that Baker was not disqualified from September 5, 1998, through September 15, 1998, the
period from her discharge to the date when her resignation was to become effective, but was
disqualified from September 15, 1998, to indefinite, as she voluntarily quit her job without
good cause involving fault on the part of the employer. The Commissioner appealed the
ALJ's decision to the Board of Review. Following oral argument before the Board of
Review on November 17, 1998, the Board,
on November 19, 1998, affirmed the ALJ's
decision.
The third claimant, Scott E. Furrow,
worked as a mechanic for Jerry K. Bailey,
d/b/a Bailey's Auto Repair (Bailey), from January 5, 1998, to August 24, 1998. On August
24, 1998, Furrow gave notice of his resignation to Bailey, to be effective on August 28, 1998.
On the same day that Furrow
submitted his notice, he was
discharged by Bailey
, allegedly
because of unsatisfactory job performance. Furrow was not paid wages for the notice period.
Thereafter, Furrow filed a claim for unemployment compensation benefits with
DES. On September 8, 1998, a DES deputy commissioner ruled him eligible, finding that
[a]lthough the claimant had given notice of resignation, the employer severed the
relationship by terminating him prior to the effective date of the resignation. Bailey
appealed, and on October 5, 1998, following a de novo hearing, an ALJ modified the
deputy's decision, finding that Furrow was not disqualified for benefits from the date of his
discharge, August 24, 1998, until the designated effective date of his resignation, August 28,
1998, but was disqualified from benefits from August 29, 1998, to indefinite, as he
voluntarily quit work without good cause involving fault on the part of the employer. The
Commissioner appealed from the ALJ's decision to the Board of Review, and on November
25, 1998, the Board affirmed the ALJ's decision with respect to the dates of Furrow's
disqualification.
After receiving adverse rulings from the Board of Review in
the Gray, Baker,
and Furrow claims, the Commissioner appealed from the Board's decision in each matter to
the Circuit Court of Kanawha County. The appeals were consolidated, and in a final order
entered September 15, 1999, the circuit court affirmed the decisions of the Board of Review,
holding:
By voluntarily resigning, the employees
rendered themselves disqualified from
receiving
unemployment compensation from the effective
date of their separation from employment until
once again employed for the statutorily required
period. If the Court were to adopt the
commissioner's position, it would be a fortuitous
circumstance for an employer to terminate the
employee in the interim, resulting in a windfall [to
the employee].
The standard utilized by this Court for reviewing decisions of the Board of
Review was enunciated in syllabus point three of Adkins v. Gatson, 192 W.Va. 561
, 453
S.E.2d 395
(1994):
The findings of fact of the Board of
Review of the West Virginia Department of
Employment Security are entitled to substantial
deference unless a reviewing court believes the
findings are clearly wrong. If the question on
review is one purely of law, no deference is given
and the standard of judicial review by the court is
de novo.
Whether the claimants are disqualified for benefits after the designated effective dates of
their resignations, pursuant to West Virginia Code § 21A-6-3
(1), is a question of statutory
interpretation. Thus, our review is plenary.
Here, there is no dispute regarding the claimants' eligibility. The question we
are asked to resolve concerns only
disqualification
under West Virginia Code § 21A-6-3(1).
That statutory provision states:
Upon the determination of the facts by the
commissioner, an individual shall be disqualified
for benefits:
(1) For the week in which he left his most recent
work voluntarily without good cause involving fault onthe part of the employer and until the individual returns
to covered employment and has been employed in
covered employment at least thirty working days.
W. Va. Code § 21A-6-3(1).
The precise issue presented by this appeal is whether, under
West Virginia Code § 21A-6-3(1)
,
an individual who is fired by his employer after
submitting notice of his prospective resignation, but prior to expiration of the notice period,
is disqualified for unemployment compensation
benefits after the designated effective date
of his resignation.
The Commissioner contends that the claimants are not disqualified for benefits
after the designated effective dates of their resignations.
According to the Commissioner,
t
he impetus that causes a claimant immediately to leave his employment is the determinative
factor
under West Virginia Code § 21A-6-3(1)
, which
focuses on the week in which the
claimant actually left work. Since the claimants were discharged before their designated
resignation dates,
there was never a week in which any of the claimants left work voluntarily
so as to require disqualification for benefits under
West Virginia Code
§21A-6-3(1). In each
case, the claimant left work because of immediate termination without just cause. We agree
with the Commissioner and
reject the arguments of the Board of Review and MMW Mental
Health to the effect that, notwithstanding a firing during the notice period which causes an
employee's immediate departure from his job, the employee is
disqualified for benefits
after
the specified effective date of his resignation.
A statutory provision which is clear and unambiguous and plainly expresses
the legislative intent will not be interpreted by the courts but will be given full force and
effect. Syl. Pt. 2, State v. Epperly, 135 W. Va. 877, 65 S.E.2d 488 (1951). West Virginia
Code § 21A-6-3(1) unequivocally links the timing of disqualification for benefits to the
period immediately following the week in which . . . [the employee] left his most recent
work voluntarily without good cause involving fault on the part of the employer. Were we
to adopt the interpretation urged by the
Board of Review and MMW Mental Health, the
timing language of West Virginia Code
§ 21A-6-3(1)
would be stripped of its meaning.
Finding West Virginia Code
§ 21A-6-3(1)
to be clear, unambiguous, and a plain expression
of legislative intent, we give it full force and effect as written.
W
hen discharge by an
employer
is the event which in fact causes an employee to leave his work, preventing the
employee's voluntary quit from reaching fruition, there is no week in which . . . [the
employee] left his most recent work voluntarily and consequently, no statutory
disqualification. W.
Va. Code § 21A-6-3(1)
(emphasis added). Accordingly, w
e hold
that
under West Virginia Code § 21A-6-3(1) (1996), an individual who is discharged without
cause by his employer after giving notice of his prospective resignation, but before expiration
of the notice period, is not disqualified for unemployment compensation benefits after the
date on which his resignation would have become effective but for the discharge
.
Although this issue is one of first impression for this Court, we note
that courts
of other states have applied similar disqualification provisions in the same way as we have
West Virginia Code § 21A-6-3(1). For example, in Dillard Department Stores, Inc. v.
Polinsky, 530 N.W.2d 637 (Neb. 1995), the Supreme Court of Nebraska examined whether
an employee was disqualified for unemployment compensation benefits under Nebraska's
corollary to West Virginia Code
§ 21A-6-3(1)See footnote 2
2
where the employee gave notice to her
employer and was terminated during the notice period. Under the plain language of the
Nebraska statute, the Dillard
Court concluded that the employee was not disqualified for
benefits. In analyzing the Nebraska statute, the court stated:
the statutory language of § 48-628(a)(1) . . . links
the timing of disqualification from benefits to the
period immediately following the week in which
[the employee] left work voluntarily without good
cause. The Commissioner notes and the record
shows that Polinsky left work on October 2, 1992,
and did not return. Due to the termination of
Polinsky's employment by Dillard on October 2,
there never ensued a week in which she left work
voluntarily, such as to require disqualification
from benefits under § 48-628(a)(1).
530 N.W.2d at 642-43; accord West Jordan v. Morrison, 656 P.2d 445, 447 (Utah 1982)
(reasoning, under Utah's corollary to West Virginia Code
§ 21A-6-3(1)
, that the language
of the statute is unambiguous: the week in which the claimant actually leaves work is the
determinative factor regarding subsequent eligibility); see also Coleman v. Mississippi
Employment Sec. Comm'n, 662 So.2d 626, 628 (Miss. 1995) (applying comparable
Mississippi statute and holding that [a]n employee who is terminated without pay after
indicating his intent to resign may be considered discharged and eligible for state
unemployment benefits).
In the instant case, it is uncontroverted that the immediate and actual cause of
each claimant's departure from his or her job was a discharge by the employer. The
claimants' prior submission of notice of resignation is irrelevant under West Virginia Code
§ 21A-6-3(1) since the claimants actually left their jobs not by their own volition but because
they were fired.