Source: https://wcc.state.ct.us/crb/2000/3809crb.htm
Timestamp: 2019-04-26 14:17:58+00:00

Document:
The claimant was represented by William Gallagher, Esq., Gallagher, Gallagher & Calistro, 1377 Boulevard, P.O. Box 1925, New Haven, CT 06509.
The respondents were represented by Theodore M. Pappas, Esq., Law Offices of Scott B. Clendaniel, 300 Windsor Street, P.O. Box 2138, Hartford, CT 06145.
The Second Injury Fund was represented by Jeremy Booty, Esq., P.O. Box 1109, New London, CT 06320, who did not appear at oral argument.
Notice sent to: Second Injury Fund, William McCullough, Esq., Assistant Attorney General, P. O. Box 120, 55 Elm Street, Hartford, CT 06141-0120.
This Petition for Review from the April 22, 1998 Letter issued by the then Commission Chairman Jesse M. Frankl was heard June 18, 1999 before a Compensation Review Board panel consisting of Commissioners Angelo L. dos Santos, John A. Mastropietro1 and Ernie R. Walker.
JOHN A. MASTROPIETRO, CHAIRMAN. The claimant has petitioned for review from the April 22, 1998 Letter by the then Commission Chairman Jesse M. Frankl (hereinafter “Chairman”). In that letter, the Chairman responded to the claimant’s Motion to Vacate Transfer, and explained his reasons for ordering the transfer of the claimant’s case from the Third District to the Sixth District. In support of his appeal, the claimant alleges that the Chairman’s transfer of the case was the functional equivalent of a determination that the two commissioners in the Third District were biased, and as such the transfer was not within the chairman’s administrative authority. Although we do not agree that any determination — functional or otherwise — was made concerning actual bias of the two commissioners in the Third District, we do agree that the matter should be remanded for the reasons stated hereinafter.
The court in Dixon v. United Illuminating Co., 232 Conn. 758 (1995) explained that the powers granted to the chairman pursuant to § 31-280(b)3 indicate “clearly the extensive administrative authority granted to the chairman to manage the workers’ compensation system so that cases are processed in a timely and efficient manner.” Id. at 774. Furthermore, the court opined that there “can be no doubt, moreover, that this authority includes the general power to transfer a case or cases from one district to another for that administrative purpose.” Id (emphasis added). The court held in Dixon that “when the chairman transfers a case or cases pursuant to his administrative power under § 31-280(b), no hearing is required.” Id. at 775.
. That is not the type of claim that falls within the chairman’s administrative authority to determine. Rather, such a claim is subject to resolution pursuant to § 31-278.” Id. at 777.
In the instant case, the former Chairman’s decision was based on what he termed to be Commission policy, which was designed to avoid potential conflict or the appearance thereof. No determination of bias or lack thereof was made. Rather, the decision was based upon the application of a long-standing Commission policy. The underlying rationale for the policy requiring transfer is substantially premised on the assumption that a commissioner who presides over a Form 36 hearing will have, or will appear to have, prejudged the facts. See Krattenstein v. G. Fox & Co., 155 Conn. 609, 614-15 (1967).4 However, the decision to transfer the instant matter out of the Third District did not involve an adjudication or determination as to whether the trial commissioners had prejudged the case.
We recognize the validity of a policy, as articulated in the former Chairman’s letter, regarding commissioners not presiding over cases with which they have already become involved. See Krattenstein, supra. However, the determination of whether a commissioner has heard prior evidence in a matter, and whether having heard such evidence may affect his or her ability to hear the case, is solely within the discretion of the trial commissioner. Section 31-278 makes it the prerogative of the trial commissioner, and not the administrative rules of this agency, to decide whether considerations of actual or potential bias mandate recusal in any given instance. Only the trial commissioner can know whether what he or she has heard will impact his or her ability to fairly preside over the formal hearing.
As stated above, we recognize the wisdom of the court in Krattenstein, supra, regarding the appearance of possible bias when a judge conducts a settlement conference and is then called upon to try the case. However, unlike the superior court, which employs over 160 judges, the workers’ compensation commission has only fifteen commissioners to hear formal hearings in the eight district offices. Accordingly, the judiciary has the ability to maintain a strict policy of recusal, whereas here it is an impracticality. We now reiterate our policy: trial commissioners, whenever possible, should as a matter of course make every effort not to preside over a formal hearing if they have presided over the pre-formal settlement hearing. If a party requests that the commissioner recuse himself or herself from presiding over the formal where the commissioner has also presided over the pre-formal, the commissioner’s decision whether or not to preside should seriously consider the policy established by the Commission. However, the policy should be only one factor in the equation, and not the absolute conclusion. If the trial commissioner chooses to hear the formal over the objection of a party, the decision may be an element of appeal to the Compensation Review Board. See § 31-278; see also Dixon, supra, at 777; Cummings v. Twin Tool Manufacturing, 13 Conn. Workers’ Comp. Rev. Op. 225, 2008 CRB-1-94-4 (April 12, 1995), appeal dismissed June 29, 1995, A.C. 14747; Muniz v. Koteas, 13 Conn. Workers’ Comp. Rev. Op. 284, 1720 CRB-4-93-5 (April 21, 1995).
In the instant case, because the commissioners in the Third District were not given the opportunity to consider recusal on the basis that they had heard evidence, in accordance with the above, the matter must be remanded for the commissioners to decide.
Commissioners Angelo L. dos Santos and Ernie R. Walker concur.

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