MEMORANDUM DECISION
Pursuant to Ind. Appellate Rule 65(D), Nov 04 2015, 9:33 am
this Memorandum Decision shall not be
regarded as precedent or cited before any
court except for the purpose of establishing
the defense of res judicata, collateral
estoppel, or the law of the case.
APPELLANT PRO SE ATTORNEYS FOR APPELLEES
Lisa Jackson Gregory F. Zoeller
Indianapolis, Indiana Attorney General of Indiana
Kyle Hunter
Deputy Attorney General
Indianapolis, Indiana
IN THE
COURT OF APPEALS OF INDIANA
Lisa Jackson, November 4, 2015
Appellant, Court of Appeals Case No.
93A02-1504-EX-192
v. Appeal from the Review Board of
the Department of Workforce
Review Board of the Indiana Development
Department of Workforce Steven F. Bier, Chairperson
Development, and Company, George H. Baker, Member
Larry A. Dailey, Member
Appellees
Review Board Case No.
15-R-342
Robb, Judge.
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Case Summary and Issues
[1] Lisa Jackson was discharged from her employment as a licensed practical nurse
(“LPN”) with Eaglecare, LLC (“Eaglecare”). An administrative law judge
(“ALJ”) of the Indiana Department of Workforce Development determined
Jackson was discharged for just cause. The Unemployment Insurance Review
Board (“Review Board”) adopted and affirmed the ALJ’s decision, thereby
denying Jackson unemployment benefits. Jackson, pro se, appeals the Review
Board’s decision, raising the following restated issues: (1) whether the Review
Board abused its discretion by not accepting additional evidence; and (2)
whether the Review Board’s decision was supported by substantial evidence.
Concluding Jackson waived her claim regarding the Review Board accepting
additional evidence and the Review Board’s decision was supported by
substantial evidence, we affirm.
Facts and Procedural History
[2] Eaglecare, a nursing home facility, employed Jackson as an LPN until her
discharge on October 9, 2014. Eaglecare discharged Jackson due to her
repeated failure to administer patients’ medication per physician order. On
August 17, 2014, Jackson was reprimanded for “fail[ing] to perform medication
administration correctly.” Transcript Exhibit at 31. Jackson was again
reprimanded on September 8, 2014, for failing to properly administer
medication: “She left them at resident’s bedside, and coincidently the resident
never took their [physician-]ordered medication.” Id. at 14, 32. On October 4,
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2014, Jackson was reprimanded for failing to administer a patient’s seizure
medication in a timely manner. The patient’s medication was to be
administered between 8:00 p.m. and 10:00 p.m., but Jackson did not administer
the medication until after 10:00 p.m. Finally, on October 9, 2014, Jackson was
discharged for her “[b]latant disregard for resident care,” as evidenced by
multiple incidents of failing to administer physician-ordered medications in a
safe and timely manner. Id. at 33.1
[3] Jackson subsequently filed a claim for unemployment benefits with the Indiana
Department of Workforce Development. On November 20, 2014, a claims
deputy found she was discharged for just cause and thus ineligible for benefits.
Jackson appealed the decision of the claims deputy on November 28, 2014, and
a hearing before an ALJ was held on January 30, 2015. Jackson appeared at
the hearing telephonically and admitted she failed to properly administer
medications on all of the dates she received reprimands.
[4] As to the final incident on October 4, 2014, Eaglecare alleged the seizure
medication was to be administered no later than 10:00 p.m. but that Jackson
did not administer the medication until midnight. Jackson denied she waited
until midnight but admitted she did not administer the medication until
sometime between 10:00 p.m. and 11:00 p.m. “[I]t’s sometimes just not
possible . . . to pass your meds in a timely manner,” Jackson explained, to
1
Jackson was also reprimanded on July 16, 2014, for failing to document a patient’s blood pressure per
physician order on July 12, 2014, and July 13, 2014.
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which Eaglecare responded, “[T]his is such a serious medication, a seizure
medication and it has to be given timely to be effective.” Tr. at 19-20. Jackson
countered, “I mean, I did my job as best as I could. . . . It did not cause any
negative outcome to [the patient]. It didn’t hurt her.” Id. at 21.
[5] The ALJ concluded:
In July, August and September, 2014, the Employer reprimanded
the Claimant for medication errors. On October 04, 2014, a
patient’s seizure medication was due at 9:00 pm. The Claimant
was to administer the medication within an hour before or after
9:00 pm. The Claimant did not administer the medication until
after 10:00 pm. The Claimant’s post-reprimands failure to timely
administer seizure medication resulted from wanton indifference
to the Employer’s interest in its patients receiving medication in a
timely manner. The Employer discharged the Claimant from
employment for just cause in connection with work. The
Claimant is ineligible to receive unemployment insurance
benefits.
Tr. Ex. at 35.
[6] On February 13, 2015, Jackson appealed the ALJ’s decision to the Review
Board, which adopted the ALJ’s findings and conclusions and affirmed the
denial of benefits on March 2, 2015. The Review Board did not hold a hearing
or accept additional evidence. Jackson now appeals the Review Board’s
decision.
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Discussion and Decision
I. Additional Evidence
[7] Jackson contends the Review Board abused its discretion when it declined to
accept additional evidence; she does not state the nature of the “new evidence.”
Appellant’s Brief at 2.2 Title 646, Section 5-10-11(b) of the Indiana
Administrative Codes provides,
Each hearing before the review board shall be confined to the
evidence submitted before the administrative law judge unless it
is an original hearing. Provided, however, the review board may
hear or procure additional evidence upon its own motion, or
upon written application of either party, and for good cause
shown, together with a showing of good reason why the
additional evidence was not procured and introduced at the
hearing before the administrative law judge.
[8] Jackson did not file a written application to present additional evidence to the
Review Board, nor did she attempt to show good cause that such evidence
should be accepted. Moreover, even assuming Jackson had complied with the
rule, her brief is devoid of any argument or citations in support of her
contention that the Review Board should have accepted additional evidence.
2
We suspect Jackson is referring to a patient’s medication record that has been crudely redacted and
annotated. See Appellant’s Appendix at 2. But “[w]e will not become an advocate for a party, nor will we
address arguments which are either inappropriate, too poorly developed or improperly expressed to be
understood.” Ramsey v. Review Bd. of Ind. Dep’t of Workforce Dev., 789 N.E.2d 486, 487 (Ind. Ct. App. 2003)
(citation omitted). “[O]ne who proceeds pro se is held to the same established rules of procedure that a
trained legal counsel is bound to follow and, therefore, must be prepared to accept the consequences of his or
her action.” Id. (citation and internal quotation marks omitted).
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See Ind. Appellate Rule 46(A)(8)(a) (requiring each contention in the appellant’s
brief be supported by cogent reasoning and citations to relevant authority). As
a result, the issue is waived. See Pierce v. State, 29 N.E.3d 1258, 1267 (Ind. 2015)
(“A litigant who fails to support his arguments with appropriate citations to
legal authority and record evidence waives those arguments for our review.”).
II. Discharge for Just Cause
A. Standard of Review
[9] Jackson was denied unemployment benefits because the Review Board
determined she was discharged for just cause. The Indiana Unemployment
Compensation Act provides unemployment benefits to individuals who are
“unemployed through no fault of their own.” Ind. Code § 22-4-1-1. An
individual is therefore disqualified for unemployment benefits if she is
discharged for “just cause.” Ind. Code § 22-4-15-1(a). “When an employer
alleges that a discharged employee seeking unemployment benefits was
discharged for just cause, the employer has the burden of establishing a prima
facie case showing just cause, after which it is incumbent upon the employee to
produce evidence which rebuts the employer’s case.” Russell v. Review Bd. of Ind.
Dep’t of Emp’t & Training Servs., 586 N.E.2d 942, 947-48 (Ind. Ct. App. 1992).
As relevant here, “discharge for just cause” includes “refusing to obey
instructions” and “any breach of duty in connection with work which is
reasonably owed an employer by an employee.” Ind. Code § 22-4-15-1(d)(5),
(9).
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[10] If supported by the evidence, decisions of the Review Board are conclusive and
binding as to all questions of fact. Benard v. Review Bd. of Ind. Dep’t of Workforce
Dev., 997 N.E.2d 1077, 1080 (Ind. Ct. App. 2013); see also Ind. Code § 22-4-17-
12(a). When a decision of the Review Board is challenged, the standard of
review on appeal is threefold: “(1) findings of basic fact are reviewed for
substantial evidence; (2) findings of mixed questions of law and fact—ultimate
facts—are reviewed for reasonableness; and (3) legal propositions are reviewed
for correctness.” Recker v. Review Bd. of Ind. Dep’t of Workforce Dev., 958 N.E.2d
1136, 1139 (Ind. 2011). In determining whether the Review Board’s findings
were supported by “substantial evidence,” we neither reweigh the evidence nor
judge the credibility of witnesses; rather, we consider only the evidence most
favorable to the Review Board’s findings. J.M. v. Review Bd. of Ind. Dep’t of
Workforce Dev., 975 N.E.2d 1283, 1286 (Ind. 2012). We will reverse the Review
Board’s decision only if there is no substantial evidence to support it. Id.
B. Jackson’s Failure to Properly Administer Medication
[11] From what we can discern, Jackson is arguing there is not substantial evidence
to support the Review Board’s finding that she failed to properly administer
medication. Jackson alleges Eaglecare’s representative made false statements
during the hearing and claims she administered the patient’s seizure medication
on time on October 4, 2014: “This medication was given on time and [the
Director of Nursing Services] did not give the right time in her statement.”
Appellant’s Br. at 4. Aside from the fact Jackson admitted she administered the
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medication late when she testified at the hearing,3 we conclude Jackson’s
argument is merely a request for this court to reweigh the evidence and reassess
witness credibility, which we will not do. See J.M., 975 N.E.2d at 1286.
[12] Jackson was reprimanded three times within a three-month period for failing to
administer medication in a safe and timely manner. Each incident was
documented with a written warning—all of which were admitted as exhibits
during the hearing—and Jackson presented no evidence to rebut Eaglecare’s
case. As the Review Board’s findings were supported by substantial evidence,
we defer to its fact-finding.
Conclusion
[13] Jackson has waived her claim regarding the Review Board accepting additional
evidence, and the Review Board’s findings were supported by substantial
evidence. We therefore affirm the Review Board’s decision denying Jackson
unemployment benefits.
3
The patient’s medication was ordered for 9:00 p.m., but Eaglecare permits medications to be administered
up to one hour before or after the time ordered. Jackson testified,
[ALJ:] [M]edications were due at 9:00 pm but you gave them at midnight. Your response
to that?
[Jackson:] I gave the meds before eleven . . . . I did not give her any meds at twelve o’clock.
That’s not true. I don’t agree with that at all.
[ALJ:] Well, ma’am, what time did you give the meds?
[Jackson:] I don’t know exactly what time I gave it, but it was after ten, . . . it was before
eleven.
Tr. at 18.
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[14] Affirmed.
Vaidik, C.J., and Pyle, J., concur.
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Lisa Jackson v. Review board of the Indiana Department of Workforce Development, and Company
Combined Opinion