[Cite as Ohio State Dental Bd. v. HealthCare Venture Partners, L.L.C., 2014-Ohio-2508.]

 IN THE COURT OF APPEALS OF OHIO 

TENTH APPELLATE DISTRICT 

 

Ohio State Dental Board, : 

 Petitioner-Appellee, : 

v. : No. 14AP-165 

 (C.P.C. No. 13 MS 964) 

HealthCare Venture Partners, LLC et al., : 

 (REGULAR CALENDAR) 

 Respondents-Appellees, : 

(Dr. J.W., D.D.S., : 

 Appellant). : 

 

D E C I S I O N 

Rendered on June 10, 2014 

 

Michael DeWine, Attorney General, and Katherine J. 

Bockbrader, for appellee Ohio State Dental Board. 

Frank R. Recker & Associates Co., LPA, Todd W. Newkirk

and Frank R. Recker, for appellant.

 

APPEAL from the Franklin County Court of Common Pleas 

TYACK, J. 

{¶ 1} This appeal concerns two subpoenas issued by the Ohio State Dental Board 

("Board") to obtain records and testimony from a treatment facility where Dr. J.W., an 

oral surgeon licensed in the state of Ohio, underwent diagnosis and/or treatment for 

alcohol abuse or dependence. On appeal, Dr. J.W. assigns the following as error: 

[I.] The trial court erred in denying Dr. J.W.'s motion to 

dismiss for lack of jurisdiction. 
No. 14AP-165 2 

[II.] The trial court erred in ordering the disclosure of 

protected medical records when it found a good cause 

exception to 42 U.S.C. 290dd-2. 

[III.] The trial court erred in findings [sic] that confidential 

communications in Dr. J.W.'s records could be disclosed 

under 42 U.S.C. 290dd-2. 

{¶ 2} Dr. J.W. was the subject of an investigation by the Board as to whether he 

was impaired in his ability to practice dentistry. On March 21, 2012, Dr. J.W. performed 

oral surgery while under the influence of alcohol at St. Elizabeth Healthcare in Fort 

Thomas, Kentucky. After the surgery, Dr. J.W. was found to have a blood alcohol content 

of 0.184 mg/dl. At that time, Dr. J.W.'s hospital privileges were summarily suspended. 

The next day, he was admitted for detoxification and stabilization to St. Elizabeth 

Healthcare in Falmouth, Kentucky, a hospital-based facility. Three days later, he was 

discharged and authorized to return to work as of March 26, 2012, with no restrictions. 

He was, however, instructed not to drink alcohol or use mood altering drugs, to obtain a 

sponsor, and to follow-up with his primary physician for any medical problems. Two 

months later, Dr. J.W. was arrested and pled guilty to Driving Under the 

Influence/Aggravated in Oldham, Kentucky. His blood alcohol content on that occasion 

was .181. 

{¶ 3} The Board ordered Dr. J.W. to submit to a 72-hour evaluation at The Ridge, 

a Board approved treatment facility, to determine whether he was impaired in his ability 

to practice dentistry due to alcohol dependence or abuse. See R.C. 4715.30 (authorizing 

the Board to order the license holder to submit to reasonable examinations at the Board's 

request and expense). Dr. J.W. signed a release to permit The Ridge to disclose 

information to the Board. 

{¶ 4} A physician from The Ridge, Dr. Todd Carran, provided a report indicating 

that Dr. J.W. was alcohol dependent and impaired in his ability to practice dentistry. The 

Board concluded that his further practicing presented a danger of immediate and serious 

harm to the public, and summarily suspended Dr. J.W.'s license on December 4, 2013. 

Dr. J.W. requested a hearing that same day, and the Board scheduled an administrative 
No. 14AP-165 3 

hearing to make a final determination as to whether Dr. J.W. should be allowed to keep 

his professional license. 

{¶ 5} Dr. J.W. challenged the Board's ability to use information from The Ridge at 

his hearing. On the eve of the hearing, Dr. J.W. claimed that the release he signed was 

invalid under the Public Health Service Act, 42 U.S.C. 290dd-2. The hearing was recessed 

to permit the Board to seek a court order to authorize the use of the information from The 

Ridge. 

{¶ 6} HealthCare Venture Partners, LLP (hereafter "HCVP"), which operates The 

Ridge, took the position that federal law prohibited it from complying with the subpoenas 

without a court order to do so pursuant to 42 U.S.C. 290dd-2. That statute provides in 

pertinent part that: 

Records of the identity, diagnosis, prognosis, or treatment of 

any patient which are maintained in connection with the 

performance of any program or activity relating to substance 

abuse education, prevention, training, treatment, 

rehabilitation, or research, which is conducted, regulated, or 

directly or indirectly assisted by any department or agency of 

the United States shall * * * be confidential and be disclosed 

only for purposes and under the circumstances expressly 

authorized under subsection (b) of this section. 

 

42 U.S.C. 290dd-2(a) 

{¶ 7} Subsection (b)(2)(C) of the statute provides that records from alcohol and 

drug treatment facilities may be disclosed pursuant to a court order: 

If authorized by an appropriate order of a court of competent 

jurisdiction granted after application showing good cause 

therefor, including the need to avert a substantial risk of 

death or serious bodily harm. In assessing good cause the 

court shall weigh the public interest and the need for 

disclosure against the injury to the patient, to the physicianpatient relationship, and to the treatment services. Upon the 

granting of such order, the court, in determining the extent 

to which any disclosure of all or any part of any record is 

necessary, shall impose appropriate safeguards against 

unauthorized disclosure. 

{¶ 8} To determine whether good cause exists, "the court must find that: (1) Other 

ways of obtaining the information are not available or would not be effective; and (2) The 
No. 14AP-165 4 

public interest and need for the disclosure outweigh the potential injury to the patient, the 

physician-patient relationship and the treatment services." 42 C.F.R. 2.64(d) 

(implementing the statute as authorized by 42 U.S.C. 290dd-2(g)). An order which 

permits disclosure must be strictly limited to the subjects specified by the regulation. 42 

C.F.R. § 2.64(e). 

{¶ 9} Finally, "confidential communications made by a patient to a program in 

the course of diagnosis, treatment, or referral" in such records may be disclosed after a 

showing of good cause as set forth above, and then only if: 

(1) The disclosure is necessary to protect against an existing 

threat to life or of serious bodily injury, including 

circumstances which constitute suspected child abuse and 

neglect and verbal threats against third parties; 

(2) The disclosure is necessary in connection with 

investigation or prosecution of an extremely serious crime, 

such as one which directly threatens loss of life or serious 

bodily injury, including homicide, rape, kidnapping, armed 

robbery, assault with a deadly weapon, or child abuse and 

neglect; or 

(3) The disclosure is in connection with litigation or an 

administrative proceeding in which the patient offers 

testimony or other evidence pertaining to the content of the 

confidential communications. 

42 C.F.R. 2.63(a). 

{¶ 10} On December 19, 2013, the Board initiated an action in the Franklin County 

Court of Common Pleas to enforce the subpoenas issued by the Board upon Dr. Todd 

Carran, and the records custodian of The Ridge. The Board brought the action under R.C. 

119.09, a statute that authorizes an agency to bring an action in common pleas court to 

compel compliance with agency subpoenas. The Board sought an order holding that 42 

U.S.C. 290dd-2 was not applicable to the records held by The Ridge relating to Dr. J.W. 

Alternatively, the Board also sought an order pursuant to 42 U.S.C. 290dd-2(b)(2)(C) 

authorizing Dr. Carran and the records custodian for The Ridge to testify and present 

evidence from The Ridge at the administrative hearing. 
No. 14AP-165 5 

{¶ 11} The court of common pleas conducted a hearing on January 9, 2014. At the 

conclusion of the hearing, the judge announced that she was ruling in favor of the Board. 

{¶ 12} On January 15, 2014, counsel for Dr. J.W. filed a motion to dismiss for lack 

of jurisdiction. Dr. J.W. claimed that the only court with jurisdiction to order compliance 

with the subpoenas was in Clermont County where HCVP and the relevant records were 

located. The trial court denied the motion finding that jurisdiction and venue were proper 

in Franklin County. On February 7, 2014, the trial court issued its judgment entry 

granting the Board's application. 

{¶ 13} The trial court made a finding that the federal statute applied to the 

information sought by the Board, but did not explain its reasoning. The trial court further 

found that good cause existed to disclose the records because the public interest in the 

Board's use of the information to determine Dr. J.W.'s fitness to practice dentistry 

outweighed any potential injury to Dr. J.W. The trial court also found that other means of 

obtaining the information were not available or would not be effective. In order to protect 

Dr. J.W.'s interests in safeguarding the records from unauthorized disclosure, the trial 

court ordered that the documents at issue be admitted under seal and, among other 

things, that the administrative hearing before the Board be closed to the public during the 

periods when information from the records would be revealed or discussed. 

{¶ 14} In his first assignment of error, Dr. J.W. argues that the trial court 

improperly exercised jurisdiction under R.C. 119.09 to enforce the subpoenas because 

they were not issued until December 18, 2013, a day after the administrative hearing 

began. 

{¶ 15} Dr. J.W. does not have standing to assert that witnesses were not properly 

served with subpoenas or did not have sufficient time to respond. As a non-party to the 

subpoena enforcement action, Dr. J.W.'s right to participate was limited to notice and the 

right to be heard regarding the federal statute. 42 C.F.R. 2.64. Even if Dr. J.W. had 

standing to assert this claim, the record shows that, on December 18, 2013, the Board 

issued subpoenas for The Ridge records as well as Dr. Carran to testify in support of the 

suspension of Dr. J.W.'s license. The subpoenas were hand delivered and, on that same 

day, counsel for The Ridge informed the Board that the facility refused to comply with the 

subpoenas unless a common pleas court issued an order compelling it to do so.
No. 14AP-165 6 

{¶ 16} In addition, the trial court's inherent jurisdiction to enforce an 

administrative subpoena is part of certain powers that are necessary for the orderly and 

efficient exercise of justice. R.C. 2705.02 gives a trial court authority to punish as 

contempt failure to obey a subpoena. 

{¶ 17} R.C. 119.09 provides, in pertinent part, that: 

In any case of disobedience or neglect of any subpoena 

served on any person or the refusal of any witness to testify 

to any matter regarding which the witness may lawfully be 

interrogated, the court of common pleas of any county where 

such disobedience, neglect, or refusal occurs or any judge 

thereof, on application by the agency shall compel obedience 

by attachment proceedings for contempt, as in the case of 

disobedience of the requirements of a subpoena issued from 

such court, or a refusal to testify therein. 

{¶ 18} Here, the "disobedience" of the subpoena occurred in Franklin County 

where the witnesses were required to testify and produce records at the administrative 

hearing. Thus, R.C. 119.09 permits the Franklin County Court of Common Pleas to 

enforce a subpoena issued by the Board for an administrative hearing in Franklin County. 

{¶ 19} Assuming Dr. J.W. is arguing venue was improper in Franklin County, as a 

non-party he again lacks standing to assert this argument. See Civ.R. 3(C) (permitting 

assertion of improper venue to be raised by the defense). 

{¶ 20} Dr. J.W.'s jurisdictional arguments are not well-taken, and the first 

assignment of error is overruled. 

{¶ 21} In his second assignment of error, Dr. J.W. asserts that the Board lacked 

good cause for disclosure because it was unable to show that the public interest and need 

for disclosure outweighed any adverse effect that the disclosure might have on him. 

{¶ 22} Preliminarily, the Board has argued that the materials and testimony it 

seeks are outside the purview of 42 U.S.C. 290dd-2. The Board's position is that the 

statutory confidentiality provisions do not apply because Dr. J.W. was not a patient 

seeking treatment. He was undergoing a Board-ordered examination, which the Board 

paid for. He had no expectation that the information he provided would be confidential, 

as he knew the purpose of the evaluation was for The Ridge to evaluate him and provide 

expert opinion to the Board as to whether he was impaired in his ability to practice. 
No. 14AP-165 7 

{¶ 23} Dr. J.W. takes the position that the diagnostic evaluation was to determine 

whether he required alcohol treatment and what type of treatment would be required. 

{¶ 24} The purpose of the statute and regulations prohibiting disclosure of records 

relating to substance abuse treatment except by patient consent or court order after a 

showing of good cause is to encourage patients to seek treatment for substance abuse 

without fear that by so doing, their privacy will be compromised. Mosier v. Am. Home 

Patient, Inc., 170 F.Supp.2d 1211 (N.D.Fla. 2001). 

{¶ 25} Therefore, in order to determine whether the Act applies to Dr. J.W. with 

respect to his evaluation at The Ridge, we must determine whether Dr. J.W. was a patient 

within the meaning of the statute and whether his diagnosis was made for the purpose of 

treatment or referral for treatment. The term "patient" is defined in the regulations as 

"any individual who has applied for or been given diagnosis or treatment for alcohol or 

drug abuse at a federally assisted program." 42 C.F.R. 2.11. 

{¶ 26} The U.S. Department of Health and Human Services has issued a technical 

assistance publication for the confidentiality of records for alcohol and other drug 

treatment. That publication states in pertinent part that: 

A patient is anyone who has applied for or received a 

diagnostic examination or interview, treatment, or referral 

for treatment for drug or alcohol abuse from a drug or 

alcohol program. Applicants for such services are covered by 

the regulations even if they fail to show for their initial 

appointment or evaluation or, having been interviewed or 

diagnosed, elect not to follow up or enter treatment. 

 

DHHS Publication No. (SMA) 95-3018 (1994). The regulations protect current, former, 

and deceased patients. 

{¶ 27} Here, Dr. J.W. was evaluated for alcohol dependence at The Ridge, and that 

one purpose of the diagnosis was to advise the Board whether he was impaired in his 

ability to practice. It also appears from exhibits attached to Dr. J.W.'s memorandum in 

opposition to the application to enforce subpoenas that The Ridge was authorized to 

disclose, exchange, and receive information for purposes of "participation in the family 

program," "to coordinate treatment," "to gather assessment information for treatment 

planning," and "to gather information for ongoing treatment." (See Trial Court Record 
No. 14AP-165 8 

632 of 985 under seal.) Therefore, while the Board has made a colorable argument that 

the federal regulations may not apply to Dr. J.W.'s evaluation at The Ridge, on the record 

before us, it is equally plausible that diagnosis and treatment were part of the evaluation 

Dr. J.W. underwent at The Ridge. 

{¶ 28} We need not resolve this issue at this time, however, because the trial court 

found and we agree that good cause existed for disclosure of the information to the Board. 

As referred to above, to determine whether good cause exists, the court must find that 

other ways of obtaining the information are not available or would not be effective, and 

that the public interest and need for the disclosure outweigh the potential injury to the 

patient, the physician-patient relationship, and the treatment services. 

{¶ 29} Dr. J.W. conceded that the Board had no alternative means of obtaining the 

information in the absence of a court order. In this case, the records sought are from a 

Board ordered evaluation rather than private, voluntary treatment. Moreover, Dr. J.W. 

initially signed a release allowing disclosure of the information. Even though he later 

attempted to revoke his waiver of confidentiality, it is apparent that he knew the record of 

his evaluation at The Ridge was not confidential to the extent it would be obtained and 

seen by the Board. Obviously, there is little expectation that the results of a Board 

ordered evaluation would not be disclosed to the same Board who requested the 

examination. 

{¶ 30} The second assignment of error is overruled. 

{¶ 31} In his third assignment of error, Dr. J.W. argues that certain confidential 

communications should not be disclosed. Confidential communications are those made 

by a patient to a program in the course of diagnosis, treatment, or referral for treatment. 

42 C.F.R. 2.63. The federal confidentiality regulations are strict, but not absolute. 

{¶ 32} 42 C.F.R. 2.63(a)(1) permits disclosure if it "is necessary to protect against 

an existing threat to life or of serious bodily injury." 42 C.F.R. 2.63(a)(3) permits 

disclosure if "[t]he disclosure is in connection with litigation or an administrative 

proceeding in which the patient offers testimony or other evidence pertaining to the 

content of the confidential communications." 

{¶ 33} The interest in protecting the public from an impaired oral surgeon with a 

substance abuse problem is intuitively obvious. An impaired oral surgeon's substance 
No. 14AP-165 9 

abuse presents an identifiable risk of harm to the dental patients seen by the oral surgeon. 

There is a danger of serious harm to the public due to Dr. J.W.'s inability to practice under 

accepted professional standards because of his alcohol dependency. Even though Dr. 

J.W.'s license is currently under suspension, the risk of the suspension being lifted or his 

return to practice because of an inability to present the records to the Board is an 

immediate threat to the public safety. Before the hearing was recessed, Dr. J.W. 

presented evidence that contradicted the information contained in the communications 

from The Ridge. Under these circumstances, the potential harm to the public greatly 

outweighs the potential harm to Dr. J.W. from having his records revealed to the Board. 

{¶ 34} The safeguards ordered by the trial court to protect the disclosure of the 

information outside of the hearing are a further indication that any harm to Dr. J.W. is of 

a lesser degree than the harm to the public. 

{¶ 35} The third assignment of error is overruled. 

{¶ 36} Based on the foregoing, the three assignments of error are overruled, and 

the judgment of the Franklin County Court of Common Pleas is affirmed. 

Judgment affirmed. 

BROWN and CONNOR, JJ., concur.