COURT OF APPEALS OF VIRGINIA 

Present: Judges Frank, Beales and Senior Judge Clements 

Argued at Richmond, Virginia 

NATIONWIDE MUTUAL INSURANCE COMPANY 

 OPINION BY 

v. Record No. 0322-14-2 JUDGE ROBERT P. FRANK 

 DECEMBER 9, 2014 

THE ESTATE OF PHILLIP HARRISON AND 

 UNINSURED EMPLOYER’S FUND 

 FROM THE VIRGINIA WORKERS’ COMPENSATION COMMISSION 

 Adam E. Strauchler (Robey, Teumer, Drash, Kimbrell & Counts, on 

brief), for appellant. 

 Charlene A Morring (Montagna, Klein, Camden LLP, on brief), for 

appellee the Estate of Phillip Harrison. 

 Robert A. Rapaport (Bonnie P. Lane; Clarke, Dolph, Rapaport, 

Hull & Brunick, P.L.C., on brief), for appellee Uninsured 

Employer’s Fund. 

 Nationwide Mutual Insurance Company (“Nationwide”), appellant, appeals the decision 

of the Workers’ Compensation Commission (“commission”) finding that the commission has 

jurisdiction to award compensation to the claimant. In the alternative, Nationwide challenges the 

commission’s refusal to stay proceedings before the commission pending the outcome of a 

declaratory judgment action in the circuit court to resolve the coverage dispute. For the 

following reasons, we affirm the commission’s decision. 

BACKGROUND 

 Claimant filed a claim against D&W Garages, Inc. (“D&W”) seeking compensation for 

the death of claimant’s decedent, Phillip Harrison. At the time of his death, Harrison was an 

employee for Home Crafters of Tidewater and a statutory employee of D&W. 

PUBLISHED 
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 D&W alleged it was covered under a workers’ compensation policy issued by 

Nationwide. Nationwide defended on the basis that its policy was void ab initio due to a 

material misrepresentation made by D&W, i.e., that D&W failed to disclose its use of 

subcontractors. The Uninsured Employer’s Fund was joined in the case. 

 The parties stipulated that decedent was subject to the jurisdiction of the Workers’ 

Compensation Act (“the Act”) at all times, that he was working for Home Crafters of Tidewater 

on August 29, 2012 when he was electrocuted resulting in his death on September 5, 2012, that 

his wife was the sole dependent at the time of his death, that his average weekly wage was 

$78.86, and that subject to the resolution of a coverage dispute with the employer, Nationwide is 

responsible for any award of benefits the commission may enter. 

 Nationwide asked the deputy commissioner to resolve the coverage dispute between it 

and D&W. The deputy ruled he had no jurisdiction to address the coverage dispute.1

 

Nationwide then contended that the commission had no jurisdiction to enter an award against it 

because the deputy refused to determine coverage. 

 In the alternative, Nationwide moved for a stay in the proceedings pending the resolution 

of the declaratory judgment proceeding pending in circuit court. Nationwide did not indicate 

how long that proceeding would take.2

 The deputy denied Nationwide’s motions. Nationwide appealed to the full commission 

which upheld the deputy’s rulings. 

 This appeal follows. 

 1

 Nationwide, in this appeal, does not contest this ruling. 

2

 As of the date of the panel hearing, the declaratory judgment action had not yet been set 

for a hearing. 
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ANALYSIS 

 Nationwide raises two issues on appeal. First, it contends the commission had no 

jurisdiction to enter an award against it. Second, Nationwide claims the commission erred in 

refusing to stay the proceedings pending the results of the declaratory judgment action in circuit 

court. 

Jurisdiction 

 Nationwide contends the commission had no jurisdiction to enter an award against it. 

This argument is premised on the commission’s ruling that it had no jurisdiction over 

Nationwide to decide the coverage issue. It contends any award by the commission pre-supposes 

Nationwide is D&W’s insurer. Until that issue is resolved, Nationwide argues, it is not properly 

before the commission until it is determined Nationwide is D&W’s insurer. 

 A question regarding jurisdiction is a matter of law. Craig v. Craig, 59 Va. App. 527, 

539, 721 S.E.2d 24, 29 (2012). “[W]e review the trial court’s statutory interpretations and legal 

conclusions de novo.” Navas v. Navas, 43 Va. App. 484, 487, 599 S.E.2d 479, 480 (2004). 

 Clearly, the commission has jurisdiction to resolve claims made under Title 65.2. See 

Code § 65.2-700. Nationwide cites no cases nor argues why the commission should be divested 

of that jurisdiction because of a coverage issue. 

 Nationwide is bound by the provisions of Code § 65.2-811 which states: 

 No policy of insurance against liability arising under this 

title shall be issued unless it contains the agreement of the insurer 

that it will promptly pay the person entitled to the same all benefits 

conferred by this title and all installments of the compensation that 

may be awarded or agreed upon and that the obligation shall not be 

affected by any default of the insured after the injury or by any 

default in giving notice required by such policy or otherwise. Such 

agreement shall be construed to be a direct promise by the insurer 

to the person entitled to compensation, enforceable in his name. 
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 Contractually, Nationwide agreed to pay compensation and that duty is a “direct 

promise” to the claimant to pay. As the commission opined, “there is no caveat in the statute that 

the claimant must first establish coverage . . . .” 

 Code § 65.2-804(B) provides: 

No policy of insurance hereafter issued under the provisions of this 

title, nor any membership agreement in a group self-insurance 

association, shall be cancelled or nonrenewed by the insurer 

issuing such policy or by the group self-insurance association 

cancelling or nonrenewing such membership, except on 30 days’ 

notice to the employer and the Workers’ Compensation 

Commission, unless the employer has obtained other insurance and 

the Workers’ Compensation Commission is notified of that fact by 

the insurer assuming the risk, or unless, in the event of 

cancellation, said cancellation is for nonpayment of premiums; 

then 10 days’ notice shall be given the employer and the Workers’ 

Compensation Commission. 

Hartford Fire Ins. Co. v. Tucker, 3 Va. App. 116, 348 S.E.2d 416 (1986), aids our 

analysis. The issue there was whether the commission had jurisdiction to decide an insured’s 

claim for restitution against another insurer, specifically, which carrier was responsible for 

paying benefits to the claimant. Hartford had paid benefits for claimant pursuant to various 

agreements until it discovered that its policy did not become effective until after claimant 

suffered his injury. Hartford then sought to have another carrier be responsible for future 

benefits and to have that carrier make restitution to Hartford for payments previously made. 

We held the commission had no jurisdiction to resolve disputes between carriers that do 

not affect an award of the commission. “The purpose and effect of the [Act] are to control and 

regulate the relations between the employer and the employee.” Id. at 120, 348 S.E.2d at 418. 

“When the rights of the claimant are not at stake, the Act clearly leaves the litigants to their 

common law remedies . . . .” Id. at 121, 348 S.E.2d at 419. 

Nationwide seeks to distinguish Hartford because in that case Hartford had already 

voluntarily assumed responsibility for compensating claimant for his injuries. Hartford had 
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agreed to and had been paying benefits prior to discovering the coverage problem. Nevertheless, 

whatever the underlying facts, the commission determined it had jurisdiction to rule on 

compensation despite finding it had no jurisdiction to determine restitution between conflicting 

carriers. 

 In the instant case, the commission found: 

 When Virginia workers’ compensation policies are reported 

to the commission, the commission presumes coverage under the 

registered policy, absent a ruling to the contrary. Valid coverage is 

presumed by the commission, so long as the insurance is reported 

and registered with the commission, and there is no requirement 

that coverage be affirmatively proven in every case. If the insurer 

asserts that it is not responsible for payment of the disputed claim, 

the insurer must prove that the policy it issued and reported to the 

commission was cancelled or voided. Moreover, if an insurer 

seeks to avoid coverage, which is facially valid by its report and 

registration of such policy with the commission, it must act to 

avoid coverage by providing the requisite notice of cancellation or 

nonrenewal, or by seeking a declaratory judgment voiding the 

policy. 

 In this case, at the time of the claimant’s accident the 

employer’s policy with the employer was in place, it had been 

reported and registered with the commission, and there had been 

no notice provided of a cancellation or nonrenewal of the policy. 

Nor had there been any declaratory judgment action in which the 

policy had been declared void. Thus, under Va. Code § 65.2-811, 

the insurer was obligated to pay the claimant benefits owed under 

the Act, and the commission had jurisdiction to enter an award 

against the insurer in this case. Under these circumstances, a stay 

of the proceedings would be inappropriate. 

 The commission’s opinion is well grounded in the Act. An insurer is required to pay 

benefits until the policy has been cancelled, not renewed or declared void. At the time of the 

claim, the policy was in full force and effect.3

 3

 At oral argument, appellant contended that the commission should have ordered 

payment from the Uninsured Employer’s Fund for payment. We disagree. 

Pertinent to this issue, Code § 65.2-1203(A) provides as follows: 

Whenever, following due investigation of a claim for 

compensation benefits, the Commission determines that (i) the 
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 Nationwide does not contend it cancelled the policy or did not renew it under the 

provisions of Code § 65.2-804(B). Thus, we conclude the commission did not err in finding it 

had jurisdiction over Nationwide to award compensation. 

Denial of Nationwide’s Motion to Stay 

 Essentially, Nationwide asked the commission to delay awarding the deceased’s widow 

death benefits because it disputed coverage with its insured. Clearly, the claimant was not 

involved in that dispute. 

 The decision to stay a proceeding is a discretionary matter. See Harris v. Harris, 184 Va. 

124, 127, 34 S.E.2d 378, 379 (1945) (addressing whether the circuit court “abuse[d] its 

discretion in refusing to stay the proceedings”). Similarly, a “ruling on a motion for a 

continuance will be rejected on appeal only upon a showing of abuse of discretion and resulting 

prejudice to the movant.” Haugen v. Shenandoah Valley Dep’t of Soc. Servs., 274 Va. 27, 34, 

645 S.E.2d 261, 265 (2007). We review such a decision “in view of the circumstances unique to 

each case.” Id. 

 

employer of record has failed to comply with the provisions of 

§ 65.2-801 . . . , and (ii) the claim is compensable, the Commission 

shall . . . order payment of any award of compensation benefits 

pursuant to this chapter from the Uninsured Employer’s Fund. 

The Fund was created “for the purpose of providing funds for compensation benefits 

awarded against any uninsured or self-insured employer under the provisions of this chapter.” 

Uninsured Employer’s Fund v. Flanary, 27 Va. App. 201, 206, 497 S.E.2d 912, 914 (1998); 

Code § 65.2-1201. The commission is authorized to “order payment of any award of 

compensation benefits . . . from the . . . Fund” when the commission determines that an employer 

has failed to acquire the requisite workers’ compensation insurance or cannot satisfy a 

compensable claim in whole or in part. Code § 65.2-1203(A). This Court has held that the 

“purpose of the Fund is to insure that injured employees will be paid their compensation benefits 

even though their employer has breached his duty to secure compensation insurance.” A.G. Van 

Metre, Jr., Inc. v. Gandy, 7 Va. App. 207, 213, 372 S.E.2d 198, 202 (1988). 

Contractually, Nationwide is employer’s insurer. Nothing in the record establishes that 

employer failed to comply with any of the statutory provisions of Code § 65.2-801. Therefore, 

we find no merit to Nationwide’s assertion that the Fund is responsible for paying compensation 

to the claimant. 
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 “The purpose of the Act is to protect employees.” Turf Care, Inc. v. Henson, 51 Va. App. 

318, 336, 657 S.E.2d 787, 795 (2008). “Thus, it is to be ‘construed liberally and favorably as to’ 

employees.” Id. (quoting Ellis v. Commonwealth Dep’t of Highways, 182 Va. 293, 303, 28 

S.E.2d 730, 734 (1944)). “‘Further, it is a universal rule that statutes . . . which are remedial in 

nature, are to be construed liberally, so as to suppress the mischief and advance the remedy, as 

the legislature intended.’” 7-Eleven, Inc. v. Dep’t of Envtl. Quality, 42 Va. App. 65, 75, 590 

S.E.2d 84, 89 (2003) (en banc) (quoting Bd. of Sup. v. King Land Corp., 238 Va. 97, 103, 380 

S.E.2d 895, 897-98 (1989)). 

 Nationwide’s position frustrates the purpose of the Act. The Act is remedial in nature; its 

purpose is “the prompt payment of compensation to injured workers. The purpose of the penalty 

provision of Code § [65.2-524] is to compel prompt payment. . . . [The statute’s] time limit is 

designed to discourage ‘slow and circuitous’ payment of benefits due and to discourage inaction 

or inattention to a claim.” Weston v. B.J. Church Constr. Co., 9 Va. App. 283, 286-87, 387 

S.E.2d 96, 97-98 (1989). 

 Code § 65.2-811 states in part: 

No policy of insurance against liability arising under this title shall 

be issued unless it contains the agreement of the insurer that it will 

promptly pay the person entitled to the same all benefits conferred 

by this title and all installments of the compensation that may be 

awarded or agreed upon . . . . 

 The legislature clearly understood the financial needs of injured employees and their 

dependents. It must be remembered that the purpose of the Act is to compensate injured 

employees, based on the claimant’s income. See Arlington Cnty. Fire Dep’t v. Stebbins, 21 

Va. App. 570, 572, 466 S.E.2d 124, 125-26 (1996) (“The purpose of the Workers’ Compensation 

Act is to compensate employees when they lose an opportunity to engage in work after suffering 
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work-related injuries.”). Those payments are income substitutes. Failure to receive income or 

its substitute creates financial hardship on the claimant and his/her dependents. 

 Since the coverage issue does not involve the claimant’s right to an award, the claimant 

should be awarded timely benefits. Nationwide’s argument only addresses prejudice to itself, 

ignoring a delay’s impact on the decedent’s spouse. Such a result does not protect the employee, 

but prejudices him. 

 We note that the deputy found no prejudice to Nationwide. However, the full 

commission never explicitly ruled on prejudice. It found Nationwide was obligated by statute 

and the terms of its policy to pay the award of compensation. Any resolution of the disputed 

coverage issue is not relevant to Nationwide’s present duty to pay. It can reasonably be inferred 

that the commission found no prejudice to Nationwide because any stay granted would not affect 

Nationwide’s present duty to pay. 

 We therefore conclude the commission did not abuse its discretion in not granting 

Nationwide’s motion for a stay. 

CONCLUSION 

 For the foregoing reasons, we conclude the commission did not err in finding that it had 

jurisdiction to award compensation to the claimant. We further find that the commission did not 

err in refusing to stay proceedings pending the outcome of a declaratory judgment action in the 

circuit court. Therefore, the decision of the commission is affirmed. 

Affirmed.