FILED
2014 IL App (4th) 130719 May 22, 2014
Carla Bender
NO. 4-13-0719 4th District Appellate
Court, IL
IN THE APPELLATE COURT
OF ILLINOIS
FOURTH DISTRICT
CHERYL WRIGHT, ) Appeal from
Plaintiff-Appellant, ) Circuit Court of
v. ) Champaign County
THE BOARD OF TRUSTEES, STATE ) No. 12MR546
UNIVERSITIES RETIREMENT SYSTEM OF )
ILLINOIS, ) Honorable
) Thomas J. Difanis,
Defendant-Appellee.
) Judge Presiding.
JUSTICE POPE delivered the judgment of the court, with opinion.
Justices Holder White and Steigmann concurred in the judgment and opinion.
OPINION
¶1 In July 2007, plaintiff, Cheryl Wright, was awarded disability benefits by the
State Universities Retirement System of Illinois (SURS) retroactive to December 23, 2006, based
on a July 2006 disability date. In March 2011, SURS staff notified Wright by letter she owed
$51,413.62 (after SURS withheld her February 2011 disability payment of $1,687.96) based on a
workers' compensation award she received. Wright sought administrative review.
¶2 In February 2012, the Claims Panel of SURS issued a written opinion upholding
the SURS staff's determination. In June 2012, the Executive Committee of the Board of Trustees
of SURS (Executive Committee) issued a final administrative decision adopting the Claims
Panel's determination in its entirety. In July 2013, the circuit court affirmed the decision of the
Executive Committee.
¶3 Wright appeals, asserting her workers' compensation award was not paid until
January 11, 2011 (180 days after its July 15, 2010, approval), and, thus, the offset should apply
only to SURS benefits received after that date, resulting in a $2,185.25 offset.
¶4 I. BACKGROUND
¶5 In January 2007, Wright filed an application for disability benefits with SURS as
the result of an on-the-job accident, noting a disability date of July 2006. In July 2007, SURS
notified Wright by letter she would begin receiving $1,791.93-per-month disability benefits
retroactive to December 23, 2006. The letter contained the following notice:
"If you qualify for benefits under any State or Federal
Workers' Compensation or Occupational Diseases Acts for any
period for which disability benefits are payable by SURS, the
disability benefit paid by SURS will be reduced by an amount
equivalent to such Workers' Compensation or Occupational
Diseases payment."
¶6 After being advised Wright received a $53,101.58 workers' compensation
settlement in case Nos. 07-WC-9038, 07-WC-10331, and 07-WC-10390 (after attorney fees,
costs, and medical expenses had been subtracted), SURS staff sent Wright a letter in March 2011
informing her it was "entitled to offset disability benefits when an employee receives benefits
under the State Workers' Compensation or Diseases Act." The letter noted Wright's temporary
total disability (TTD) payments ended February 23, 2007. Thus, the SURS offset began
February 24, 2007, and continued through her final permanent partial disability (PPD) payment
on May 22, 2010, for a total of 168.50 weeks (38.88 months) at $1,365.78 per month, or a total
offset of $53,101.58. We note the workers' compensation settlement agreement states the PPD
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award is equal to 158.50 weeks, apparently a typographical error. SURS withheld Wright's
February 2011 disability payment ($1,687.96), leaving a balance of $51,413.62 owed to SURS.
¶7 Wright responded to SURS's letter, asserting she was not responsible for the
offset amount because her workers' compensation settlement held her harmless for any
subrogation. In April 2011, SURS staff responded by letter notifying Wright the subrogation
clause in her workers' compensation settlement did not apply to the disability benefits she
received from SURS and demanded payment. Wright petitioned for review before the SURS
Claims Panel, asserting (1) the State of Illinois agreed to hold her harmless for any claim such as
this and (2) her workers' compensation award was limited to PPD and she received nothing for
TTD for the time frame alleged by SURS.
¶8 In October 2011, a hearing was conducted before the Claims Panel, resulting in a
February 2012 written decision. At the hearing, according to the Claims Panel's decision (the
record does not contain a transcript of this hearing), counsel for Wright argued (1) the workers'
compensation offset should begin in September 2010, when the settlement contract was
approved by the workers' compensation arbitrator (the agreement was actually approved on July
15, 2010); or (2) alternatively, the offset should begin 180 days after the settlement was
approved because that was when the settlement was actually paid. The Claims Panel noted as
follows:
"It has long been established before the Illinois Workers'
Compensation Commission that permanent partial disability
benefits begin to accrue immediately after the period of temporary
total disability ends. Arbitration and Commission decisions before
the Illinois Workers' Compensation Commission have historically
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ordered that permanent partial disability benefits begin to accrue
the day following the point at which the claimant is no longer
temporary totally disabled."
The Claims Panel found SURS staff had properly calculated the $53,101.58 offset, noting "it is
apparent that the claimant did receive duplicate payments of both SURS disability benefits and
Illinois Workers' Compensation permanent partial disability benefits covering the same dates,
i.e., February 24, 2007[,] through February 28, 2011." (Wright retired in February 2011 and
began receiving retirement benefits, thus terminating her disability payments.) Because SURS
did not pay Wright her February 2011 disability benefits, the amount of the offset was reduced to
$51,413.62. While the decision incorrectly states Wright's PPD benefits covered through
February 28, 2011, in fact, based on SURS staff's calculation, Wright's PPD benefit period ended
on May 22, 2010.
¶9 In June 2012, the Executive Committee issued a final administrative decision
adopting the Claims Panel's determination in its entirety. In July 2012, Wright filed a complaint
for administrative review with the circuit court.
¶ 10 In July 2013, following a hearing on the matter, the circuit court affirmed the
decision of the Executive Committee.
¶ 11 This appeal followed.
¶ 12 II. ANALYSIS
¶ 13 On appeal, Wright asserts because her workers' compensation award was not paid
until January 11, 2011 (180 days after its July 15, 2010, approval), the offset should apply only
to SURS benefits received after that date, resulting in a $2,185.25 offset.
¶ 14 A. Standard of Review
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¶ 15 The Administrative Review Law (735 ILCS 5/3-101 to 3-113 (West 2010))
applies to all proceedings for judicial review of the final administrative decisions of the Board of
Trustees (Board) of SURS. 40 ILCS 5/15-188 (West 2010). We review the administrative
agency's decision rather than the judgment of the circuit court. Marconi v. Chicago Heights
Police Pension Board, 225 Ill. 2d 497, 531, 870 N.E.2d 273, 292 (2006).
"The applicable standard of review—which determines the
extent of deference afforded to the administrative agency's
decision—depends upon whether the question presented is a
question of fact, a question of law, or a mixed question of law and
fact. [Citations.] Rulings on questions of fact will be reversed only
if against the manifest weight of the evidence. [Citation.] In
contrast, questions of law are reviewed de novo [citation], and a
mixed question of law and fact is reviewed under the clearly
erroneous standard [citations]." Id. at 532, 870 N.E.2d at 292-93.
¶ 16 The parties disagree on the appropriate standard of review in this case. Wright
asserts because the question before us involves the interpretation of a statute, i.e., what "payable"
means, the de novo standard of review applies. SURS contends the primary question is a factual
one, i.e., whether the record supports the Executive Committee's application of the offset statute
based on the factual determination Wright received workers' compensation benefits during the
same period she received SURS disability benefits. Because the resolution of this case turns on
the meaning of the term "payable," we review this issue de novo.
¶ 17 B. The Offset Period
¶ 18 Section 15-153.1(c) of the Illinois Pension Code provides, in part, as follows:
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"In determining the monthly benefits payable under this Article, a
deduction shall be made equivalent to any benefits payable to any
employee under any State or Federal Workers' Compensation or
Occupational Diseases Acts for any period for which disability
benefits are payable." (Emphases added.) 40 ILCS 5/15-153.1(c)
(West 2010).
The workers' compensation settlement provided as follows: "All parties agree that payment of
the settlement is deferred until after 180 days from the approval date of this contract." Based on
this language, Wright asserts her workers' compensation award did not become payable until
January 11, 2011 (180 days after the July 15, 2010, approval of the award), and thus, the offset
should apply only to SURS disability benefits received after that date. (We note the Claims
Panel's decision erroneously states the workers' compensation settlement agreement was
approved by the arbitrator in September 2010; it was actually approved in July 2010.) SURS
disagrees, contending the actual date the payment was made is irrelevant.
¶ 19 "The cardinal rule of statutory construction is to ascertain and give effect to the
legislature's intent, and the plain language of the statute is the best indication of that intent."
People v. Martin, 2011 IL 109102, ¶ 21, 955 N.E.2d 1058. "We will not depart from the plain
language of the statute by reading into it exceptions, limitations, or conditions that conflict with
the express legislative intent." People v. Boclair, 202 Ill. 2d 89, 100, 789 N.E.2d 734, 741
(2002).
¶ 20 Wright urges this court to interpret the term "payable" in the offset statute to mean
the date the payment is actually received. However, such an interpretation would defeat the
purpose of the statute, i.e., to prevent a SURS participant from receiving both SURS disability
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benefits and a workers' compensation award for dates covering the same period of time. See
Taylor v. State Universities Retirement System, 203 Ill. App. 3d 513, 522, 560 N.E.2d 893, 899
(1990) ("The purpose of [the offset statute] is to prevent SURS participants from obtaining
double recoveries of disability benefits [citation] and to facilitate recoupment of SURS disability
benefits to the extent a SURS participant is eligible for workers' compensation or occupational
diseases benefits for a period of time for which he or she received SURS benefits."). Further,
statutes are to be construed to avoid absurd results. People v. Hanna, 207 Ill. 2d 486, 498, 800
N.E.2d 1201, 1207-08 (2003).
¶ 21 In almost any situation this court can envision, disability benefits will be paid
long before a workers' compensation award is issued. If this court were to interpret the offset
statute as Wright suggests, SURS participants would need only delay actual receipt of any
workers' compensation award to avoid reimbursing SURS for any offset. Surely this was not the
intent of the legislature. The actual date a workers' compensation award is paid is irrelevant.
What is relevant is whether the workers' compensation award is being issued for the same period
of time for which the SURS participant also received disability benefits.
¶ 22 In this case, Wright received SURS disability benefits retroactive to December
23, 2006, in the amount of $1,791.93 per month. On February 23, 2007, Wright's TTD benefits
expired. Thus, it follows that any permanent partial disability Wright suffered was present the
day after she was no longer temporarily totally disabled—either she was permanently partially
disabled or she was not. The fact a PPD determination was not made until later is irrelevant.
Based on the workers' compensation settlement agreement, Wright agreed to a lump-sum
settlement of $53,101.58 (after attorney fees, costs, and medical expenses had been subtracted),
representing 22.5% of each leg (48.375 weeks for each leg) and 17.5% for each hand (35.875
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weeks per hand) for a total of 168.50 weeks. It is of no consequence the workers' compensation
settlement agreement was not approved by the arbitrator until July 15, 2010, or paid to Wright
until January 11, 2011.
¶ 23 Wright cites National Manufacturing v. Industrial Comm'n, 331 Ill. App. 3d 1045,
1048, 780 N.E.2d 703, 706 (2002), for the proposition PPD benefits do not accrue unless and
until an arbitrator has entered an award. However, the issue in National Manufacturing was
whether a penalty imposed under section 19(k) of the Workers' Compensation Act (820 ILCS
305/19(k) (West 1994)) against an employer for unreasonably withholding payment of TTD
benefits should also apply to the PPD award—which was not entered until the time the penalty
was imposed—as " 'the amount payable at the time of the award.' " National Manufacturing,
311 Ill. App. 3d at 1047, 780 N.E.2d at 705. The court found the penalty should not have
included PPD benefits because they had not "accrued" at the time of the penalty hearing. Id. at
1048, 780 N.E.2d at 706. The National Manufacturing court used the term "accrue" to denote
the payments that had been unreasonably withheld by the employer, which logically could not
include the recently awarded PPD benefit. Here, however, we are not concerned with whether a
penalty should be imposed on an employer for failing to pay a recently awarded PPD benefit.
Rather, the issue before us is whether a SURS participant is required to reimburse SURS for
benefits she received for the same period of time her workers' compensation award was also
payable.
¶ 24 In this case, SURS determined Wright received both disability benefits from
SURS and a workers' compensation award covering the same period of time. Because Wright
does not take issue with the formula SURS used to calculate the offset amount, and because we
hold the actual date the workers' compensation award was paid is irrelevant, SURS is entitled to
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an offset amount of $53,101.58. Because SURS already withheld $1,687.96, Wright must
reimburse SURS $51,413.62.
¶ 25 III. CONCLUSION
¶ 26 For the reasons stated, we affirm the Executive Committee's decision.
¶ 27 Affirmed.
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