[Cite as State ex rel. Walters v. Indus. Comm., 2022-Ohio-4587.]

IN THE COURT OF APPEALS OF OHIO

TENTH APPELLATE DISTRICT

State ex rel. : 

Laurie M. Walters (Surviving Spouse)

Timothy E. Walters (Deceased), :

Relator, : No. 20AP-560

v. : (REGULAR CALENDAR)

Industrial Commission of Ohio et al., :

 

Respondents. :

D E C I S I O N

Rendered on December 20, 2022

On brief: Philip J. Gauer, Attorney at Law, LLC, and 

Philip J. Gauer, for relator. 

On brief: Dave Yost, Attorney General, and Cindy Albrecht,

for respondent Industrial Commission of Ohio. 

On brief: Critchfield, Critchfield & Johnston, LTD., and 

Kimberly L. Hall, for respondent Paradise Lawn Care, Inc.

IN MANDAMUS

ON OBJECTIONS TO THE MAGISTRATE'S DECISION

McGRATH, J.

{¶ 1} Laurie M. Walters ("relator"), surviving spouse of Timothy E. Walters 

("decedent"), has filed an original action seeking a writ of mandamus ordering respondent, 

Industrial Commission of Ohio ("commission"), to vacate its order that denied relator's 

request for payment of a scheduled loss of use award for the loss of two arms, two legs, loss 

of sight in two eyes, and for the permanent and total loss of hearing in two ears.
No. 20AP-560 2

{¶ 2} On May 16, 2018, decedent was employed as a mechanic with Paradise Lawn 

Care, Inc. ("Paradise"). Decedent had been working on a small bucket loader that was used 

to load mulch onto company trucks. That day, the bucket loader apparently experienced 

some type of hydraulic leak. Decedent drove the bucket loader to an area behind the shop 

building to make repairs. Bart Morr, the owner of Paradise, observed decedent working on 

the bucket loader but proceeded inside the office to conduct other business. Another 

employee notified Morr that decedent was pinned under the bucket loader and was 

unconscious. Morr immediately called 911 and went to help decedent. Morr located a large 

bucket loader with a backhoe attachment and used that vehicle to lift the small bucket 

loader off decedent. 

{¶ 3} Decedent was unconscious and unresponsive. It appears that the bucket 

loader moved from its upright position toward the ground, landing on decedent's chest and

pinning him to the ground. Decedent was under the bucket loader for approximately 10 to 

15 minutes. When EMS arrived, decedent had no pulse. EMS started CPR, and intubated

decedent at the scene and he was life-flighted to Akron City Hospital. "On arrival 

[decedent] was unresponsive and intubated, pupils were fixed and dilated." (Stip. at 15.)

{¶ 4} Upon arrival at Akron City Hospital, the neuro critical care initial evaluation 

noted the "return of spontaneous circulation after seven rounds of CPR with 'down time 

during CPR 45 minutes.' " (Stip. at 165.) Neither EMS staff, Life Flight staff, nor the 

emergency room staff were able to identify any obvious trauma. The attending trauma 

physician, Nathan Blecker, M.D., indicated "[i]interestingly, he has no obvious injuries (no 

fractures, no organ injuries)." (Stip. at 72.) Multiple hospital records indicate no evidence 

of fractures or organ injury. "CT Cervical Spine * * * No fracture or spondylolistheses." 

(Stip. at 90.) "CT Cervical Spine WO Contrast * * * Cervical vertebrae, disc spaces and 

joints: No fracture, subluxation or other malalignment. * * * [s]urrounding soft tissues of 

the neck are unremarkable * * * [n]o fracture or spondylolistheses." (Stip. at 116-17.) "AP 

PELVIS * * * there is unremarkable appearance of both hip joints without acute fracture, 

dislocation, or joint space narrowing." (Stip. at 137.) Dr. Blecker—"No obvious injuries 

identified.") (Stip. at 72.) "CT neck: * * * No fracture or spondylolisthesis. * * * CTA Chest:

* * * No evidence of aortic dissection or laceration. * * * CT Abd/Pelvis: * * * No 
No. 20AP-560 3

pneumoperitoneum or injury to the solid abdominal pelvic organs." (Stip. at 76-77.) Dr. 

Blecker indicated that "[t]he etiology of his arrest is either blunt cardiac trauma, or a 

respiratory arrest (likely from weight of object) that led to a cardiac arrest." (Stip. at 72.)

{¶ 5} Decedent was admitted to the ICU with diagnoses of traumatic cardiac arrest, 

left pneumothorax, acute respiratory failure with hypoxia, shock, anoxic brain injury, and 

blunt injury to chest. The primary survey revealed a GCS of 3 (Glasgow Coma Scale which 

indicates no neurological function) with pupils fixed at 4 mm and unreactive, no 

spontaneous movement of hands or toes, no grasp, no plantarflexion, and complete loss of 

consciousness. On May 17, 2018, decedent died as a result of his injuries. Dr. Blecker 

indicated that decedent "sustained a traumatic cardiac arrest as a result of traumatic 

asphyxiation as per the Medical Examiner's report. Although he was initially successfully 

resuscitated, he sustained a severe anoxic brain injury." (Stip. at 7.)

{¶ 6} Relator filed a C-86 motion for a scheduled loss of use award. A hearing was 

held before a district hearing officer ("DHO") and, in an order dated July 25, 2019, the DHO 

granted relator's C-86 motion. The Bureau of Workers' Compensation ("BWC") and

Paradise appealed. 

{¶ 7} A hearing was held before a Staff Hearing Officer ("SHO"), and in a 

September 6, 2019 order, the SHO vacated the DHO's order and denied relator's C-86 

motion. The SHO found, in part, that the medical evidence does not substantiate that these 

awards are warranted where, as a result of this anoxic brain injury, decedent was left 

without function of his arms and legs and without the ability to hear or see. The SHO, citing 

in support State ex rel. Smith v. Indus. Comm., 138 Ohio St.3d 312, 2014-Ohio-513, further 

held that this type of injury does not satisfy the requirements for the requested loss of use 

award as the losses of function due to a brain injury do not qualify for the losses enumerated 

in R.C. 4123.57(B). 

{¶ 8} On December 1, 2020, relator filed a complaint for a writ of mandamus 

requesting that this court order the commission to grant her motion for loss of use award. 

Pursuant to Civ.R. 53 and Loc.R. 13(M) of the Tenth District Court of Appeals, we referred 

this matter to a magistrate who issued a decision, including findings of fact and conclusions 

of law, which is appended hereto. The magistrate found the instant matter falls under the 
No. 20AP-560 4

purview of Smith and that, without specific guidance, the magistrate was unwilling to allow 

the loss of use of arms and legs due only to anoxic brain injury when the Supreme Court of 

Ohio has not allowed the loss of use of eyes and ears due only to anoxic brain injury. 

Therefore, the magistrate recommended this court deny relator's request for a writ of 

mandamus.

{¶ 9} Relator raises the following five objections to the magistrate's decision: 

(1) the magistrate erroneously construed R.C. 4123.57(B) as prohibiting a compensation 

award for loss of use of arms and legs when the loss results from anoxic brain injury;(2) the 

magistrate erred in concluding there is no evidence that decedent's legs and arms were not 

functionable; (3) the magistrate's decision misapplies Ohio precedent on loss of use claim 

for arms and legs; (4) the magistrate erroneously found that no visual or auditory test could 

be performed on decedent; and (5) the magistrate erred in concluding that Dr. Blecker's 

report provides some evidence of functioning eyes and ears. 

{¶ 10} In considering objections to a magistrate's decision, we must independently 

review the decision to ascertain whether "the magistrate has properly determined the 

factual issues and appropriately applied the law." Civ.R. 53(D)(4)(d). In order for this court 

to issue a writ of mandamus, a relator must ordinarily show a clear legal right to the relief 

sought, a clear legal duty on the part of the respondent to provide such relief, and the lack 

of an adequate remedy in the ordinary course of law. State ex rel. Pressley v. Indus. Comm., 

11 Ohio St.2d 141 (1967). 

{¶ 11} A clear legal right to a writ of mandamus exists where the relator shows that 

the commission abused its discretion by entering an order that is not supported by any 

evidence in the record. State ex rel. Elliott v. Indus Comm., 26 Ohio St.3d 76 (1986). On 

the other hand, where the record contains some evidence to support the commission's 

findings, there has been no abuse of discretion and mandamus is not appropriate. State ex 

rel. Lewis v. Diamond Foundry Co., 29 Ohio St.3d 56 (1987). Furthermore, questions of 

credibility and the weight to be given the evidence are clearly within the discretion of the 

commission as fact finder. State ex rel. Teece v. Indus. Comm., 68 Ohio St.2d 165 (1981).

{¶ 12} Here, the commission was presented with reports from various physicians, 

and the commission was clearly within its discretion to judge the credibility of those 
No. 20AP-560 5

witnesses and weigh the evidence. The magistrate found that Dr. Blecker's report

constituted some evidence upon which the commission could rely in determining that 

decedent's loss of vision and hearing was not attributable to damage to the structure or 

function of his eyes and ears proper, but instead was due to the loss of brain function. 

Dr. Blecker's letter of March 21, 2019, stated in part: "[B]y the very nature of an anoxic 

brain injury, [decedent] was * * * likely without function of his vision and hearing until the 

time of his death." (Stip. at 7.) Based on this factual determination, the magistrate found 

the commission properly applied Smith, which held that R.C. 4123.57(B) does not authorize 

loss of use compensation when a loss of brain function is the cause of the vision or hearing 

loss rather than damage to the eye or ear structure itself. See also State ex rel. Harris v. 

Indus. Comm., 10th Dist. No. 21AP-60, 2022-Ohio-3149; State ex rel. Dobson v. Indus. 

Comm., 10th Dist. No. 21AP-83, 2022-Ohio-3796. 

{¶ 13} As to relator's fourth objection, i.e., that the magistrate erroneously found 

that no visual or auditory test could be performed on decedent, we again look at the facts of 

the instant case. The record indicates decedent was at all times unconscious and listed as 

in a coma with no neurological functions. Under the facts of Smith, Dr. Hess could not 

identify any injury or actual damage to Smith's eyes or ears, and admitted "that there is no 

test that can show whether Smith's ears actually function, and thus, his belief that Smith 

cannot hear is speculative." (Emphasis sic.) Smith at ¶ 17. The Supreme Court observed 

"there is apparently no test that can be performed to establish definitively whether Smith 

has an actual loss of sight in one or both eyes or an actual loss of hearing in one or both 

ears." Id. at ¶ 18. 

{¶ 14} In the instant case, Dr. Avrom D. Epstein indicated "it was not possible to 

perform tests of brain function, either in the ambulance or at the hospital. Intractable 

metabolic derangements precluded testing for irreversible loss of brain function, even after 

respiratory and circulatory supports were established." (Stip. at 36.) Based on the facts and 

evidence of this case, we do not find error with the magistrate's determination that no visual 

or auditory tests could be performed on decedent. 

{¶ 15} Since the commission relied upon Dr. Blecker's medical report, and not the 

opinions of Drs. Epstein and Alexander Merkler (found to be speculative by the 
No. 20AP-560 6

commission), the magistrate, having found that the commission did rely on some evidence 

to support their findings, properly determined the factual issues and applied the 

appropriate law. Accordingly, we find no merit to relator's fourth and fifth objections and 

overrule them. 

{¶ 16} We next address relator's first three objections, pertaining to the request for 

loss of use of decedent's arms and legs. On this issue, the magistrate found that "[a]lthough 

the court in Smith only addressed loss of use of the eyes and ears, without specific guidance, 

the magistrate is unwilling to allow the loss of use of arms and legs due to anoxic brain 

injury when the Ohio Supreme Court has not allowed the loss of use of eyes and ears due to 

anoxic brain injury, and specifically held in Smith that the General Assembly has not 

included loss of brainstem functioning in the schedule for compensation set forth in R.C. 

4123.57." (Appended Mag. Decision at ¶ 45.) 

{¶ 17} We initially note the Supreme Court in Smith was never asked to decide the 

issue of Smith's loss of use claim for his arms or legs. Specifically, although Smith did 

submit a claim for the loss of use compensation for his arms and legs, that issue was 

resolved prior to the matter being heard before the Supreme Court and therefore was not 

presented to that court for determination. Rather, the issue before the Supreme Court in 

Smith was "whether R.C. 4123.57(B) permits an award of compensation for the scheduled 

loss of vision or hearing when the inability to comprehend sights or sounds results from a 

lack of brain-stem function." Id. at ¶ 12.

{¶ 18} In the instant matter, neither EMS staff, Life Flight staff, the emergency room 

staff, nor the physicians at the hospital were able to identify any obvious trauma to 

decedent. Decedent had no fractures to his body, no injury to any of his organs, and no 

injury to his arms or legs. According to Dr. Blecker, decedent "sustained a traumatic cardiac 

arrest as a result of traumatic asphyxiation as per the Medical Examiner's report. Although 

he was initially successfully resuscitated, he sustained a severe anoxic brain injury."

Further, "by the very nature of an anoxic brain injury, [decedent] was certainly left without 

the function of his arms and legs, * * * until the time of his death." (Stip. at 7.) Based upon 

this factual determination, the magistrate found that the commission properly applied 

Smith as it also relates to decedent's upper and lower extremities. 
No. 20AP-560 7

{¶ 19} In Smith, the Supreme Court concluded that R.C. 4123.57(B) does not 

authorize loss of use compensation when a loss of brain function is the cause of the vision 

or hearing loss rather than damage to the eye or ear structure itself, as the General Assembly 

has not included loss of brain stem functioning "in the schedule for compensation set forth 

in R.C. 4123.57." Smith at ¶ 19. This court now finds that R.C. 4123.57(B) does not 

authorize loss of use compensation when a loss of brain function is the only cause of the 

loss of use of an arm or arms and/or a leg or legs rather than damage to the structure of one 

or both arms and/or one or both legs. 

{¶ 20} This court recognizes that there is a line of cases that do award loss of use 

injury compensation for the loss of vision or hearing. See, e.g., State ex rel. Autozone, Inc. 

v. Indus. Comm., 10th Dist. No. 05AP-634, 2006-Ohio-2959 (employee perforated one eye 

with a screwdriver while installing a wiper blade on a car); State ex rel. Kincaid v. Allen 

Refractories Co., 114 Ohio St.3d 129, 2007-Ohio-3758, ¶ 2 (employee sustained severe 

facial trauma and a concussion at work resulting from a "fractured left cheekbone; lacerated 

left cheek; cerebral concussion; scintillating scintellens (periodic loss of bilateral vision)"); 

State ex rel. Sheller-Globe Corp. v. Indus. Comm., 66 Ohio St.2d 51, 52 (1981) (all parties 

accept that employee "has suffered at least a profound hearing loss," i.e., between 87 and 

100 percent hearing loss). Each of those cases, however, involved injuries to the eyes or 

ears, not just the loss of brain function, and in none of those cases was an injured worker 

awarded compensation for the inability of the brain to process visual or auditory signals 

caused by a loss of brain function. 

{¶ 21} There is also a line of cases where loss of use compensation was awarded for 

loss of use of extremities (arms and/or legs). See State ex rel. Moorehead v. Indus. Comm., 

112 Ohio St.3d 27, 2006-Ohio-6364 (worker fell 15 to 20 feet head first onto concrete floor 

suffering a spinal cord injury which rendered him a quadriplegic); State ex rel. Arberia

L.L.C. v. Indus. Comm., 10th Dist. No. 13AP-1024, 2014-Ohio-5351, ¶ 4 (Decedent died 

after falling about 30 feet from a roof onto his head; when approached, "[b]lood and brain 

matter were coming from his nose," decedent "was suffering from massive hemorrhages of 

his brain," and "[h]e also was found to have multiple skull fractures."). Both of these cases 

involved spinal/neck injuries, in addition to brain injury, i.e., they did not involve an award 
No. 20AP-560 8

of compensation where the only damage to the body was a loss of brain function. Based 

upon the foregoing, we find no merit to relator's first, second or third objections.

{¶ 22} Recognizing that there is importance for clarity and consistency, this court 

finds the Supreme Court's decision in Smith instructive. Accordingly, where there is only a 

loss of brain function (i.e., as in the instant case in which decedent suffered a traumatic 

cardiac arrest as a result of traumatic asphyxiation, sustaining a severe anoxic brain injury),

and no injury to a body part listed in R.C. 4123.57(B), and no other injury to the body, the 

commission does not abuse its discretion in failing to award loss of use compensation under 

R.C. 4123.57.

{¶ 23} Following an independent review of this matter, we find the magistrate has 

properly determined the facts and applied the appropriate law. Therefore, having overruled 

relator's five objections to the magistrate's decision, we adopt the magistrate's decision as 

our own. In accordance with the magistrate's decision, we deny relator's request for a writ 

of mandamus. 

Objections overruled;

writ of mandamus denied. 

BEATTY BLUNT and MENTEL, JJ., concur.

_______________
[Cite as State ex rel. Walters v. Indus. Comm., 2022-Ohio-4587.]

APPENDIX 

IN THE COURT OF APPEALS OF OHIO

TENTH APPELLATE DISTRICT

State ex rel. : 

Laurie M. Walters (Surviving Spouse)

Timothy E. Walters (Deceased), :

Relator, :

v. : No. 20AP-560

Industrial Commission of Ohio et al., : (REGULAR CALENDAR)

 

Respondents. :

M A G I S T R A T E ' S D E C I S I O N

Rendered on April 6, 2022

Philip J. Gauer, Atty At Law, LLC, and Philip J. Gauer, for 

relator. 

Dave Yost, Attorney General, and Cindy Albrecht, for 

respondent Industrial Commission of Ohio. 

Critchfield, Critchfield & Johnston, LTD., and Kimberly L. 

Hall, for respondent Paradise Lawn Care, Inc.

IN MANDAMUS

{¶ 24} Relator Laurie M. Walters (surviving spouse) ("claimant") and Timothy E. 

Walters (deceased) ("decedent") have filed this original action requesting this court issue a 

writ of mandamus ordering respondent Industrial Commission of Ohio ("commission") to 

vacate its order that denied claimant's request for payment of a scheduled loss award for 

loss of use of two arms and two legs, loss of sight in two eyes, and loss of hearing in two ears 

pursuant to R.C. 4123.57(B), and to enter an order granting such compensation. 
No. 20AP-560 10

Findings of Fact:

{¶ 25} 1. The decedent was injured on May 16, 2018, in the course of and arising 

from his employment with Paradise Lawn Care, Inc. ("employer") when a bucket loader 

pinned decedent under the bucket. The decedent died on May 17, 2018, approximately 24 

hours after his injuries occurred. Claimant applied for death benefits and funeral expenses, 

which the Ohio Bureau of Workers' Compensation ("BWC") approved on September 5, 

2018. 

{¶ 26} 2. On March 21, 2019, Nathan R. Blecker, M.D., issued a letter, in which Dr. 

Blecker indicated the following: (1) he was the attending trauma surgeon, as well as the 

surgical intensivist, who helped take care of decedent until the time of his death; 

(2) decedent sustained a traumatic cardiac arrest as a result of traumatic asphyxiation as 

per the medical examiner's report; (3) although he was initially successfully resuscitated, 

he sustained a severe anoxic brain injury; and (4) in his medical opinion, by the very nature 

of an anoxic brain injury, decedent was certainly left without function of his arms and legs 

and likely without the function of his vision and hearing until the time of his death. 

{¶ 27} 3. On May 13, 2019, claimant filed a C-86 motion for a scheduled loss of use 

award, pursuant to R.C. 4123.57(B), for decedent's loss of use of both arms and both legs, 

for the loss of sight in both eyes, and for the permanent and total loss of hearing in both 

ears during the time between his accident and his death due to his injuries. 

{¶ 28} 4. In a June 6, 2019, letter, the BWC recommended that the C-86 motion be 

denied and referred the claim to the commission. 

{¶ 29} 5. On July 5, 2019, Avrom D. Epstein, M.D., issued a report, in which he 

indicated the following: (1) in his opinion, decedent suffered a total loss of vision and 

hearing as a consequence of his traumatic injuries and prolonged anoxia; (2) the primary 

visual sensory system begins with the retina of the eyes and ends in the rearmost portion of 

the brain, where seeing actually begins; (3) the retina is composed of nerve cells that derive 

directly from the brain early in gestation; (4) the prolonged period of anoxia that led to 

decedent's death also damaged the nerve cells composing the entire visual pathway, 

resulting in total loss of vision in both eyes; and (5) the prolonged anoxia similarly damaged 

the nerve cells composing the auditory pathways, resulting in total loss of hearing in both 

ears.
No. 20AP-560 11

{¶ 30} 6. A hearing was held before a district hearing officer ("DHO") and, in a 

July 25, 2019, order, the DHO granted claimant's C-86 motion, finding the following: 

(1) based on Dr. Blecker's March 21, 2019, report, decedent sustained traumatic cardiac 

arrest as a result of traumatic asphyxiation, decedent was initially successfully resuscitated 

but sustained a severe anoxic brain injury, and by the very nature of an anoxic brain injury 

decedent lost all function of the use of his bilateral arms, bilateral legs, bilateral vision, and 

bilateral hearing until he died; and (2) based on the total loss of use of both arms, loss of 

both legs, loss of bilateral eyes, and permanent and total loss of hearing, claimant is entitled 

to a total loss of use of 1,225 weeks. The BWC and the employer appealed.

{¶ 31} 7. On September 2, 2019, Dr. Epstein issued an addendum, in which he 

indicated the following: (1) in this case, it was not possible to perform tests of brain 

function, either in the ambulance or at the hospital; (2) intractable metabolic derangements 

precluded testing for irreversible loss of brain function, even after respiratory and 

circulatory supports were established; (3) the primary visual areas of the brain are subject 

to damage by low blood flow and low oxygen, as are the visual and auditory association 

areas in the parietal lobes; (4) metabolic abnormalities from the injury limited conclusions 

from the clinical neurological exam, and the brain was not examined by autopsy; and (5) 

based on the visual and auditory findings in the medical record prior to his death, decedent 

spent the last day of his life without hearing or vision.

{¶ 32} 8. On September 2, 2019, Alexander Merkler, M.D., issued a report, in which 

he indicated the following: (1) decedent experienced severe hypoxic-ischemic injury as a 

result of likely asphyxiation; (2) hypoxic-ischemic injury preferentially injures structures 

that are highly metabolically active; (3) hypoxic-ischemic injury affects areas of the 

cerebrum including the basal ganglia, cortical ribbon, hippocampi, cerebellum, and parietal 

and occipital lobes; (4) these areas lead to loss of strength, loss of higher cortical functions, 

such as cognition and language, anterograde amnesia, loss of balance, and loss of sight; (5) 

in his opinion, these structures in the cerebrum were injured prior to any injury to the 

brainstem; (6) although decedent experienced severe hypoxic-ischemic injury as a result of 

asphyxiation, there is no evidence that decedent was ever brain dead; (7) decedent never 

underwent the required apnea testing or a confirmatory neuroimaging study to confirm 

brain death and, thus, he was never brain dead; (8) decedent was alive until 8:47 a.m. on 
No. 20AP-560 12

May 17, 2016, when supportive medical care was withdrawn; and (9) until the point of 

death, decedent had lost the use of his eyes, ears, arms, and legs as a result of the injury 

suffered in the workplace.

{¶ 33} 9. A hearing was held before a staff hearing officer ("SHO"), and in a 

September 6, 2019, order, the SHO vacated the DHO's order and denied claimant's C-86 

motion, finding the following: (1) the medical evidence does not substantiate that these 

awards are warranted in this claim; (2) the March 21, 2019, report of Dr. Blecker indicated 

that, as a result of this anoxic brain injury, decedent was left without functions of his arms 

and legs and without the ability to hear or see; (3) this type of injury does not satisfy the 

requirements for the requested loss of use awards; (4) pursuant to State ex rel. Smith v. 

Indus. Comm., 138 Ohio St.3d 312, 2014-Ohio-513, losses of function due to a brain injury 

do not qualify for the losses enumerated in R.C. 4123.57(B); (5) the Supreme Court of Ohio 

expressly indicated in Smith that the General Assembly did not include losses of use from 

a brain injury in the schedule set forth in that section; (6) claimant's reliance upon State ex 

rel. Moorehead v. Indus. Comm., 112 Ohio St.3d 27, 2006-Ohio-6364, is misplaced; (7) 

Moorehead involved a spinal cord injury that rendered the worker quadriplegic, which was 

found to be compensable under R.C. 4123.57(B), regardless of the duration of the worker's 

survival subsequent to the injury or the worker's cognizance of being injured; and (8) 

Moorehead did not involve a brain injury that interfered with all bodily functions. Claimant 

appealed. 

{¶ 34} 10. On September 25, 2019, the commission refused the appeal. 

{¶ 35} 11. On October 8, 2019, claimant filed a request for reconsideration, which 

the commission denied on November 7, 2019. 

{¶ 36} 12. On December 1, 2020, claimant filed a complaint for writ of mandamus,

requesting that this court order the commission to grant his motion for loss of use award. 

Conclusions of Law and Discussion:
No. 20AP-560 13

{¶ 37} The magistrate recommends that this court deny claimant's request for a writ 

of mandamus. 

{¶ 38} In order for this court to issue a writ of mandamus, a relator must ordinarily 

show a clear legal right to the relief sought, a clear legal duty on the part of the respondent 

to provide such relief, and the lack of an adequate remedy in the ordinary course of law. 

State ex rel. Pressley v. Indus. Comm., 11 Ohio St.2d 141 (1967). 

{¶ 39} A clear legal right to a writ of mandamus exists where the relator shows that 

the commission abused its discretion by entering an order that is not supported by any 

evidence in the record. State ex rel. Elliott v. Indus. Comm., 26 Ohio St.3d 76 (1986). On 

the other hand, where the record contains some evidence to support the commission's 

findings, there has been no abuse of discretion and mandamus is not appropriate. State ex 

rel. Lewis v. Diamond Foundry Co., 29 Ohio St.3d 56 (1987). Furthermore, questions of 

credibility and the weight to be given evidence are clearly within the discretion of the 

commission as fact finder. State ex rel. Teece v. Indus. Comm., 68 Ohio St.2d 165 (1981).

{¶ 40} R.C. 4123.57(B) authorizes scheduled compensation to a claimant for the 

total loss of a body part, such as the total loss of an arm or leg. "Loss" within the meaning 

of the statute includes not only amputation, but also the loss of use of the affected body 

part. State ex rel. Wyrick v. Indus. Comm., 138 Ohio St.3d 465, 2014-Ohio-541, ¶ 10, citing 

State ex rel. Moorehead v. Indus. Comm., 112 Ohio St.3d 27, 2006-Ohio-6364. An injured 

worker claiming loss of use under R.C. 4123.57(B) bears the burden of showing that the loss 

of use is complete and permanent. State ex rel. Carter v. Indus. Comm., 10th Dist. No. 

09AP-30, 2009-Ohio-5547. 

{¶ 41} In the present case, claimant first argues that the commission abused its 

discretion in applying Smith to deny the scheduled loss of use award for arms and legs. 

Claimant contends that R.C. 4123.57(B) provides compensation shall be payable for the loss 

of an arm and a leg, and the statute does not exclude compensation for loss of use of an arm 

or leg when the loss arises from hypoxic brain injury. Claimant points out that the plaintiff 

in Smith received a loss of use award for arms and legs, and the mechanism of injury has 

never been a factor to determine whether a loss of use award is appropriate for the loss of 

an arm or leg. Claimant also points out that in Moorehead, compensation was payable even 

though the loss of use was only for 90 minutes after a head-first fall onto concrete. Claimant 
No. 20AP-560 14

asserts the SHO here wrongly distinguished Moorehead on the basis that Moorehead did 

not involve a brain injury that interfered with all bodily functions but instead involved a 

spinal cord injury, because nothing in Moorehead indicated there was no brain injury, and 

it was not germane to the court's decision whether the injured worker suffered a spinal cord 

or brain injury. Claimant contends that our decision in State ex rel. Arberia, L.L.C. v. Indus. 

Comm., 10th Dist. No. 13AP-1024, 2014-Ohio-5351, undermines the SHO's reasoning that 

the presence of a brain injury precludes compensation for a loss of use award, because that 

worker in that case had blood and brain matter oozing from his nose and massive 

hemorrhages of his brain with multiple skull fractures, and this court acknowledged the 

worker had head and spine injuries, yet this court still found there was a scheduled loss of 

use for the arms and legs. Claimant also notes that the commission's own agency memo 

regarding Smith, Memo F4, indicates that R.C. 4123.57(B) does not permit an award for 

loss of vision or hearing resulting from the loss of brainstem functioning and evidence must 

demonstrate an actual loss of function of the eyes or ears, but the memo does not extend 

Smith to scheduled awards for loss of use of arms and legs resulting from hypoxic brain 

injury.

{¶ 42} In Smith, the worker suffered anoxic brain damage resulting from 

complications of surgery following a work-related injury. The court noted, without 

explanation, that the worker was previously granted an award for the loss of use of his arms 

and legs. However, with regard to his claim for loss of use of his eyes and ears, the court 

found that no tests could be performed to determine whether he had suffered an actual loss 

of sight in one or both eyes or an actual loss of hearing in one or both ears, but the medical 

evidence showed that the worker was unable to process sights and sounds because of 

damage to his brain, not because of any injury to his eyes. The medical evidence showed

that the worker lacked the ability to process visual and auditory stimuli because there was 

no relay of the impulses past the brain stem to the visual cortex on either side and because 

there was a loss of efferent pathways from the mid brain and auditory nerve to the auditory 

cortex. In other words, the worker's eyes and ears were not damaged and could still 

function, but the signals the eyes and ears received could not be processed by his brain. The 

Supreme Court found that the General Assembly has not included loss of brainstem 
No. 20AP-560 15

functioning in the schedule for compensation set forth in R.C. 4123.57, and the commission 

properly denied the claim for loss of use of his eyes and ears. 

{¶ 43} After the original briefing in this matter, the magistrate permitted claimant 

to file a supplement, commission member order in claim number 15-850034, decided 

August 30, 2018, and the parties submitted additional briefing. In that case, the worker was 

involved in a trench cave-in, and he died two days later. The worker's dependents filed a 

request for loss of use award for both arms and both legs. The medical evidence showed 

that the worker sustained permanent and total loss of use of all four extremities as a result 

of his anoxic brain damage. The commission found the worker sustained a loss of use of his 

upper and lower extremities, and Smith was factually different than the instant claim and 

did not dictate a contrary result. The commission indicated that, in Smith, the injured 

worker had already been granted scheduled-loss awards for loss of use of both arms and 

both legs prior to an additional scheduled-loss request for loss of use of both eyes and both 

ears. Claimant, in the present case, urges that the commission's determination in claim 

number 15-850034 establishes that Smith does not preclude a scheduled loss award for loss 

of use of the arms and legs resulting from an anoxic brain injury. Claimant concedes that 

the order in claim number 15-850034 is not binding precedent.

{¶ 44} The commission counters that the order in claim number 15-850034 does 

not explain in what manner Smith was misapplied by the hearing officer, makes no 

pronouncement that Smith does not preclude a loss of use award for the extremities when 

there is an anoxic brain injury, and states only that Smith and the case under consideration 

are factually different. The commission claims that the conclusion that Smith does not 

dictate a contrary result is based solely on the fact that the Smith court did not consider loss 

of use of extremities and only addressed compensation for loss of vision and hearing and, 

therefore, did not address the appropriateness of compensation for the loss of use of the 

extremities. The commission asserts that the limited recitation of facts and unexplained 

inapplicability of Smith does not allow for a sufficient comparison of the cases or for using 

the order in claim number 15-850034 as precedent. 

{¶ 45} After a review of the authorities cited by both parties, the magistrate finds 

that the present circumstances fall under the purview of Smith. Initially, Smith did not 

address the loss of use of arms and legs, and the court in Smith did not explain why the 
No. 20AP-560 16

commission granted an award for loss of use of arms and legs in that case. Although the 

court in Smith only addressed loss of use of the eyes and ears, without specific guidance, 

the magistrate is unwilling to allow the loss of use of arms and legs due to anoxic brain 

injury when the Ohio Supreme Court has not allowed the loss of use of eyes and ears due to 

anoxic brain injury, and specifically held in Smith that the General Assembly has not 

included loss of brainstem functioning in the schedule for compensation set forth in R.C. 

4123.57. As with the worker's eyes and ears in Smith, in the present case, there is no 

evidence that decedent's legs and arms were not functionable. Instead, Dr. Blecker's 

March 21, 2019, report, as relied on by the commission, showed that decedent was left 

without function of his arms and legs due to anoxic brain injury. As for claim number 15-

850034, the magistrate declines to follow it as precedent in the present case, given the few 

facts stated and failure to explain the inapplicability of Smith to those facts. 

{¶ 46} Furthermore, the magistrate finds Moorehead and Arberia distinguishable, 

as those loss-of-use cases also concerned spinal injuries, and not solely brain injuries, as in 

the present case. However, the magistrate notes that, although Moorehead only specifically 

mentioned spinal cord injuries as the cause of the loss of use of the worker's arms and legs, 

in Arberia, the case does not make clear whether the brain or spinal cord injuries were 

responsible for the loss of use of the worker's appendages. The magistrate's decision in 

Arberia states that "[b]ased on the neck fractures, the evidence is undisputed that had 

decedent been conscious, he could not have used his arms and legs," Arberia (magistrate's 

decision), while the court's decision indicates that the worker in that case "suffered physical 

injuries to the head" that resulted in the total loss of use of the limbs. Id. at ¶ 13. Given the 

clear indication in Moorehead, the lack of clarity in Arberia, and the fact that both cases 

involve a combination of brain and spinal injuries, the magistrate cannot find that either 

case is directly on point with the current case, and they are not conclusive as to whether 

there is a compensable loss of use of an appendage when it results from a brain injury. 

{¶ 47} Claimant next argues that the commission abused its discretion when it 

applied Smith to deny the scheduled loss of use award for sight and hearing when the losses 

occurred independent of injury to the brain stem. Claimant asserts that, in Smith, the 

medical evidence showed that the loss of vision occurred because there was no relay of 

impulses past the brain stem to the visual cortex, and the loss of hearing was due to the loss 
No. 20AP-560 17

of signal from the mid-brain to the nerves that innervate the ears; thus, the worker's 

inability to process sight and sounds resulted from a loss of brainstem functioning. 

However, in the present case, claimant contends, Dr. Epstein opined that decedent's loss of 

sight was due to damaged nerve cells composing the entire visual pathway, and his loss of 

hearing was damaged nerve cells composing the auditory pathways, both caused by 

prolonged anoxia, and Dr. Merkler opined that the visual and auditory structures in the 

cerebrum were injured prior to any injury in the brainstem. Claimant further asserts that 

the loss of use of sight and hearing cannot be attributed to a brainstem injury because there 

was no test performed to evaluate brainstem function. 

{¶ 48} However, the magistrate finds there was some evidence to support the 

commission's determination that the loss of use of decedent's eyes and ears is not 

compensable. Dr. Epstein's and Dr. Merkler's opinions were speculative in nature, given no 

visual or auditory tests could be performed. Dr. Epstein's opinion that the nerve cells along 

the auditory and visual pathways were damaged is not supported by any evidence. There 

was no conclusive evidence from any medical professional that decedent suffered injuries 

directly to the eyes and ears, and there was no evidence of trauma to the eyes or ears. What 

is clear from the evidence is that, due to his anoxic brain injury, decedent would not have 

been able to see or hear. Dr. Blecker's March 21, 2019, letter indicated that, by the very 

nature of an anoxic brain injury, decedent was likely without the function of his vision and 

hearing until the time of his death. Smith commands that the loss of use of vision and 

hearing caused by anoxic brain injury that prevents the processing and visual and auditory 

signals by functioning eyes and ears is not compensable under R.C. 4123.57. Without any 

conclusive evidence of injury to the organs of the eyes and ears, the commission decided to 

rely on Dr. Blecker's medical report and not the speculative opinions of Drs. Epstein and 

Merkler, and the magistrate will not disturb the commission's determinations of credibility 

and weight, which rest exclusively within the commission's domain. See Teece.

{¶ 49} Accordingly, it is the magistrate's decision that this court should deny 

claimant's petition for writ of mandamus. 

/S/ MAGISTRATE 

 THOMAS W. SCHOLL III
No. 20AP-560 18

NOTICE TO THE PARTIES

Civ.R. 53(D)(3)(a)(iii) provides that a party shall not assign as 

error on appeal the court's adoption of any factual finding or 

legal conclusion, whether or not specifically designated as a 

finding of fact or conclusion of law under Civ.R. 

53(D)(3)(a)(ii), unless the party timely and specifically objects 

to that factual finding or legal conclusion as required by Civ.R. 

53(D)(3)(b).