Case Name: Charles R. MOORE, et al. v. Governor "Buddy" ROEMER, et al.
Court: Louisiana Court of Appeal
Jurisdiction: Louisiana
Decision Date: 1990-04-10
Citations: 560 So. 2d 927
Docket Number: No. 89 CA 1496
Parties: Charles R. MOORE, et al. v. Governor “Buddy” ROEMER, et al.
Judges: Before COVINGTON, C.J., and WATKINS, SHORTESS, CRAIN and ALFORD, JJ.
Reporter: Southern Reporter, Second Series
Volume: 560
Pages: 927–942

Head Matter:
Charles R. MOORE, et al. v. Governor “Buddy” ROEMER, et al.
No. 89 CA 1496.
Court of Appeal of Louisiana, First Circuit.
April 10, 1990.
Writ Denied May 18, 1990.
Philip G. Hunter, Alexandria, for plaintiffs-appellants Charles R. Moore, et al.
Oliver Williams, Baton Rouge, for Governor “Buddy” Roemer.
Roy Mongrue, Baton Rouge, for Attorney General William Guste.
Stephen Cavanaugh, Baton Rouge, for Office of Workers’ Compensation.
Before COVINGTON, C.J., and WATKINS, SHORTESS, CRAIN and ALFORD, JJ.

Opinion:
WATKINS, Judge.
This suit challenges the constitutionality of the Louisiana Worker's Compensation Law, LSA-R.S. 23:1021, et seq. as revised by Act 938 of 1988.
Two worker's compensation claimants (Henry Rubin and Otis Burr) and a practicing attorney (Charles R. Moore), who represents compensation claimants, filed suit for declaratory and injunctive relief. The defendants are Charles "Buddy" Roemer, Governor of the State of Louisiana; the Office of Worker's Compensation Administration; the Director of the Office of Worker's Compensation Administration; Steve Cavanaugh, Assistant Secretary of Labor for the State of Louisiana; Phyllis Coleman Mouton, Secretary of Labor for the State of Louisiana; and the State of Louisiana. The plaintiffs alleged that Act 938 of 1988 violates several provisions of the Louisiana Constitution of 1974 and deprives them of rights protected by both the federal and the state constitutions. The act contains numerous changes to the Louisiana Worker's Compensation Law, but the challenges of the plaintiffs are directed to those provi sions of the act which establish a new procedure for resolving disputed worker's compensation claims. Finding that the statutory provisions were constitutional, the district court dismissed the suit. This devolutive appeal followed.
We reverse the district court's judgment; we hold that Act 938 of 1988 violates Article V, Section 16 of the Louisiana Constitution providing for original jurisdiction in the district courts.
CLAIMING COMPENSATION — THEN AND NOW
From 1914 until 1984 a worker who could not reach agreement with his employer in regard to his claim for compensation benefits caused by a work-related accident filed a civil law suit at the district court level. In 1983 the Louisiana Legislature enacted a broad revision of worker's compensation law in this state and established the Office of Worker's Compensation Administration (OWC). Act 938 of 1988 brought still more changes, not the least of which was the appointment of OWC hearing officers with exclusive original jurisdiction over all worker's compensation claims. The law in effect since 1984 was explained by Justice Dennis in Turner v. Maryland Casualty Co., 518 So.2d 1011, 1014-1015 (La.1988). A review of the Justice's explanation highlights the differences we encounter in the revised law.
STATUTORY PROVISIONS REGARDING ADMINISTRATION OF CLAIMS
Informal Dispute Resolution
Act 1 of the 1983 Extraordinary Session created the Office of Worker's Compensation Administration and established administrative procedures for the informal resolution of claims. Under the procedures, an employee, his dependent, the employer, or the insurer may file a claim regarding worker's compensation with the director when a dispute arises over compensation in connection with a worker's injury resulting in excess of seven days lost time or death. La.R.S. 23:1310. Within thirty days after receipt of the claim, the director shall issue a recommendation for resolution of the dispute to the parties. La.R.S. 23:1310.1. The recommendation is advisory only and, although admissible into evidence, shall not be accorded any presumption of correctness. Id. Each party is instructed by the recommendation to notify the director of his acceptance or rejection of the recommendation within thirty days of his receipt thereof. Id.; Rule LWC-19. A party who fails to notify the director timely of his rejection is conclusively presumed to have accepted the recommendation. La.R.S. 23:1310.1.
Trial of Civil Action
If any party rejects the recommendation of the director, the employee or his dependent may file a civil action in court on the claim within sixty days of the receipt of the recommendation or within the period established in La.R.S. 23:1209, whichever occurs last. La.R.S. 23:1311(A). A suit for compensation is premature if the claim has not been submitted to the director for informal resolution. La.R.S. 23:1314(A). However, this objection is waived by the defendant if the dilatory exception of prematurity is not timely filed. La.C.C.P. art. 926, 928; cf. Disotell v. Wadsworth Golf Construction, 500 So.2d 371, 373 (La.1987); Bailey v. Pacific Marine Insurance Co., 509 So.2d 508, 511-12 (La.App. 3rd Cir.1987), cert. den. 510 So.2d 377 (La.1987); Moody v. K & B Equipment Co., 508 So.2d 927, 928 (La.App. 4th Cir.1987); Brignac v. Liberty Mutual Insurance Co., 496 So.2d 1306, 1308 (La.App. 3d Cir.1986); Rich v. Geosource Wireline Services, Inc., 490 So.2d 1165, 1172 (La.App. 3d Cir.1986) (failure to obtain recommendation prior to bringing action to modify); Watson v. Amite Milling Co., Inc., 504 So.2d 1149, 1153 (La.App. 5th Cir.1987) (filing before 1331(C) period had elapsed); Dupre v. Travelers Insurance Co., 477 So.2d 1279, 1282 (La.App. 3d Cir.1985) (failure to follow pleading requirements of 23:1314).
Modification of an Agreed Award
If the parties have accepted the director's recommendation either expressly or tacitly, .either party may apply for a recommended modification of the agreed award at any time after six months from the date of the acceptance. La.R.S. 23:1331(C). Disotell v. Wadsworth Golf Construction, supra, 500 So.2d at 373; Bailey v. Pacific Marine Insurance Co., supra, 509 So.2d at 511-12; Moody v. K & B Equipment Co., supra, 508 So.2d at 928; Brignac v. Liberty Mutual Insurance Co., supra, 496 So.2d at 1308; Rich v. Geosource Wireline Services, Inc., supra, 490 So.2d at 1172; Arthur v. Union Underwear Co., Inc., 492 So.2d 873, 876 (La.App. 3rd Cir.1986). See W. Malone & A. Johnson, Worker's Compensation Law & Practice § 284 (2nd ed. 1980; Supp. 1987). Thereupon, the director is required to review the application and issue a new recommendation. Id. The timely rejection of the new recommendation by any party permits the employee or his dependent to litigate the claim in court by filing a timely suit. La.R.S. 23:1311.
(Footnote omitted.)
Turner v. Maryland Casualty Co., 518 So.2d at 1014-1015.
Under the law as amended by Act 938 of 1988 a claim is commenced by the filing of a notice of injury with the director of the OWC. LSA-R.S. 23:1310.3. The director oversees all matters pertaining to such injuries until such time as the director is notified, by the filing of a petition by a party, that there is a controverted issue which cannot be resolved by the parties. Upon receipt of the petition, the director assigns the matter to one of the nine hearing officers whose positions were created by Act 938. LSA-R.S. 23:1310.3. See also LSA-R.S. 23:1310.1. A defendant's answer is due within 15 days from receipt of the petition; this period may be extended by 10 days. LSA-R.S. 23:1310.3A(2). The hearing officers are vested with original exclusive jurisdiction over all claims filed pursuant to the Worker's Compensation Law. LSA-R.S. 23:1310.3A(4). The hearing officer conducts a hearing at which each party is permitted to present evidence. The hearing officer is not bound by technical rules of evidence or procedure, but all findings of fact must be based upon competent evidence. LSA-R.S. 23:1317A. Upon completion of such hearing or hearings, the hearing officer shall make such order, decision, or award as is proper, just, and equitable. LSA-R.S. 23:1310.5A. Any order, decision, or award made by the hearing officer shall be considered as final, unless appealed to an appeals panel within 10 days of receipt by certified mail of the order, decision, or award of the hearing officer. LSA-R.S. 23:1310.5A and B. The appeals panel consists of three other hearing officers assigned by the director; the panel may modify the decision of the hearing officer only if it determines that such decision was against the clear weight of the evidence or contrary to law. LSA-R.S. 23:1310.5A. The order, decision, or award of the appeals panel shall be final and conclusive upon all questions within its jurisdiction between the parties, unless a timely appeal is taken to the circuit court of appeal for the judicial district in which the petition was filed. LSA-R.S. 23:1310.5B. The entire process bypasses the district court, except for the enforcement of the orders of the hearing officers. LSA-R.S. 23:1310.7.
To summarize, the 1988 legislation excludes the district court from the worker's compensation adjudication system. It vests the first and only "adjudication" of a worker's claim with an OWC hearing officer. Thereafter, the claimant or the em ployer has a right to appeal to the circuit court of appeal.
JUDICIAL REVIEW OF STATUTE
On appeal plaintiffs argue that Act 938 violates a number of Louisiana constitutional provisions, requiring this court to declare Act 938 unconstitutional. The alleged violations are as follows:
1. The act divests the district courts of original jurisdiction of worker's compensation cases in violation of Article V, Section 16.
2. The act divests the district court of exclusive jurisdiction over cases involving the state and its political subdivisions as defendant in violation of Article V, Section 16.
3. The act confers original jurisdiction on the courts of appeal in violation of Article V, Section 10.
4. The act violates the separation of powers mandate of Article V, Sections 1 and 2, by vesting judicial power in executive branch employees.
5. The act provides for executive appointment of judges called "hearing officers" in violation of Article V, Section 22.
6. The act violates the equal protection and due process provisions of both the federal and state constitutions by denying compensation claimants the same access to district courts enjoyed by employers and other administrative litigants.
"A person attacking the constitutionality of a statute of public purpose must show clearly the constitutional aim to deny the legislature the power to enact the legislation." Louisiana Recovery District v. Taxpayers, 529 So.2d 384, 387 (La.1988). The requirement arises because, unlike the federal constitution which grants enumerated powers to Congress, a state constitution limits the otherwise plenary power of the people exercised through the state's legislature. The legislature has the power to enact any legislation which the state constitution does not prohibit. Id. See, Swift v. State, 342 So.2d 191 (La.1977).
Unless fundamental rights are involved, there is a strong presumption that the legislature acted within its constitutional powers when it enacted the statute. Louisiana Recovery District v. Taxpayers, supra. Because a worker's compensation claim does not involve fundamental rights, Bazley v. Tortorich, 397 So.2d 475 (La.1981), we must accord the legislation the presumption the law requires and hold that it is unconstitutional only if we conclude that it has been shown, clearly and convincingly, that the constitutional aim was to deny the legislature the power to enact the statute. Ancor v. Belden Concrete Products, Inc., 260 La. 372, 256 So.2d 122 (1971).
THE JUDICIARY ARTICLE
Plaintiffs contend that the provisions of Act 938 of 1988 which vest exclusive original jurisdiction over all claims filed under the Worker's Compensation Law with the OWC hearing officers is in violation of Article Y, Section 16 of the Louisiana Constitution of 1974. The issue is whether the legislature can constitutionally divest the district courts of subject matter jurisdiction of worker's compensation claims.
Section 16 of the Judiciary Article establishes the jurisdiction of the district courts, as follows:
(A) Original Jurisdiction. Except as otherwise authorized by this constitution, a district court shall have original jurisdiction of all civil and criminal matters. It shall have exclusive original jurisdiction of felony cases and of cases involving title to immovable property; the right to office or other public position; civil or political rights; probate and succession matters; the state, a political corporation, or political subdivisions, or a succession, as a defendant; and the appointment of receivers or liquidators for corporations or partnerships.
(B) Appellate Jurisdiction. A district court shall have appellate jurisdiction as provided by law.
The starting point for determining if the legislature can divest the district court of jurisdiction over worker's compensation cases and vest that jurisdiction exclusively in the OWC is the language, "[ejxcept as otherwise authorized by this constitution . " The Judiciary Committee for the Louisiana Constitutional Convention of 1973 considered, but rejected, a proposal which would have empowered the legislature to change the jurisdiction of the district courts. The Judiciary Committee had a working draft of Section 16; following the lead of the Louisiana State Law Institute Projet, the draft conferred jurisdiction "unless otherwise provided in this constitution or by law." [Emphasis supplied; Draft A, Sec. 21; Projet, Art. VI, Sec. 26.]
"That [proposed] approach allowed the legislature to divest the district court of any jurisdiction the constitution did not state was exclusive in the district court. The committee, however, did not recommend such broad authority in the legislature . The final styling process resulted in the language as adopted, '[ejxcept as otherwise authorized, by this constitu-tion_' It is clear then, that the legislature can divest the district courts of jurisdiction only if the constitution contains an authorization for it to do so." [Emphasis in original; Hargrave, "The Judiciary Article of the Louisiana Constitution of 1974," 37 La.L.Rev. 765, 811 (1977) ]. The express prohibition of Section 16(A) precludes a conclusion that the 1988 worker's compensation amendments were enacted pursuant to the legislature's plenary powers.
One example of a divestiture of the original jurisdiction of the district courts "otherwise authorized" by the constitution is the original jurisdiction vested in the Louisiana Civil Service Commission. The Louisiana Civil Service Commission has the exclusive power and authority to hear and decide all removal and disciplinary cases. La. Const. Art. X, § 12(A). In Foreman v. Falgout, 503 So.2d 517 (La.App. 1st Cir.1986), we held that the district court lacked subject matter jurisdiction of the plaintiff's tort claim. The plaintiff, an employee of the Louisiana Department of Health and Human Resources, had filed suit against the under-secretary for DHHR and other individuals, who were not state employees, and alleged a conspiracy to intentionally interfere with his employment rights. We concluded that the constitutional grant of power to the Louisiana Civil Service Commission over classified civil service employer-employee disputes that are employment related divested district courts of original jurisdiction. Accord, Barenis v. Gerace, 357 So.2d 892 (La.App. 1st Cir.), writ denied, 359 So.2d 1308 (La.1978).
Another example of a divestiture of the original jurisdiction of the district courts "otherwise authorized" by the constitution is the original jurisdiction vested in the Louisiana Public Service Commission. La. Const. Art. IV, § 21. We recently affirmed a trial court judgment declining jurisdiction over one issue in a contract case on the ground that the issue fell within the exclusive sphere of the commission's rate-making "jurisdiction." O'Niell v. LP & L, 558 So.2d 1235 (La.App. 1st Cir.1990).
In addition to serving as examples of jurisdiction "otherwise authorized" by the constitution, the above cited cases illustrate the effect of a constitutional grant of exclusive original jurisdiction, such as the grant to district courts of cases against the state as a defendant, which grant we find in the second sentence of Section 16(A). The sentence "lists the types of cases in which the district courts have exclusive original jurisdiction_ [Sjuch cases cannot be included by law [statute] in the jurisdiction of courts of limited or specialized original jurisdiction." Hargrave, "The Judiciary Article of the Louisiana Constitution of 1974," 37 La.L.Rev. 765, 810 (1977). This conclusion is consistent with our holdings in O'Niell v. LP & L and Foreman v. Falgout. In the latter case we specifically stated that, but for the exclusive nature of the jurisdiction of the Louisiana Civil Service Commission, the commission and the district courts would have concurrent jurisdiction. Foreman v. Falgout, supra at 518-19.
Since one of the plaintiffs in the instant case is a state worker, the state is a defendant. Exclusive original jurisdiction over that plaintiffs claim, having been vested in the district courts by the constitution, precludes concurrent jurisdiction in the OWC.
While not exclusive, Section 16(A) provides that, "a district court shall have original jurisdiction of all civil . matters." If a worker's compensation claim is a civil matter, and we hold that it is, the district courts cannot be divested of jurisdiction of these claims absent a constitutional amendment.
"CIVIL MATTERS"
We are cognizant of the basic rule of statutory interpretation which provides that "if a statute is susceptible of two constructions, one of which will render it constitutional and the other of which will render it unconstitutional, or raise grave and doubtful constitutional questions, the court will adopt the interpretation of the statute which without doing violence to its language, will maintain its constitutionality." Hondroulis v. Schumacher, 546 So.2d 466, 474-475 (La.1989).
In order to find those provisions of Act 938 of 1988 which divest the district courts of original jurisdiction constitutionally valid, we would have to hold that the legislature intended to change the classification of a claim for worker's compensation benefits as a civil cause of action in Louisiana, thus removing it from the "civil matters" over which the district courts have jurisdiction. We decline to read the amendments in that fashion because: (1) such an interpretation is contraindicated by the language of the amendments, and (2) such an interpretation would do violence to the intent of the Constitution.
The legislation establishing the procedure for OWC hearings is replete with terms such as "case," "issues in dispute," "judgment," and "suits." In LSA-R.S. 23:1317(B) the legislature has provided that costs may be awarded "as in other civil proceedings." The use of the word "other" connotes a legislative intent that a worker's compensation claim is still a civil proceeding. If the legislature had intended otherwise, it would have left out the word "other." The wording of the 1988 amendments to the Louisiana Worker's Compensation Law indicates a legislative intent to change the forum for the adjudication of a worker's claim; it does not indicate an in tent to exercise the legislative power of eliminating a cause of action. We must read the words of the amendments "in their most usual signification and in the sense in which the lawmakers have used them in other legislation." Bazley v. Tortorich, 397 So.2d at 482.
In our opinion an administrative agency determination such as would issue from an OWC hearing is a "civil matter" as was contemplated by the Constitutional Convention delegates who drafted the Judiciary Article. The delegates purposefully adopted the term "matters" instead of "cases." Use of "matters" avoided the serious case or controversy questions often fostered by the term "cases." 37 La.L. Rev. at 803-804. The Judiciary Article classifies cases or matters as "civil," "criminal," "juvenile" and "family." These áre the traditional classifications into which are placed the multifarious matters handled by our courts. There are no other classifications in the article, and none can be added if these provisions of our constitution are to be construed in the context which was intended. To find that the legislature can change the classification of these matters at will would permit it to circumvent the provisions of Article V, Section 16(A) and by statute divest the district courts of original jurisdiction. Additionally, our designation is supported by the jurisprudence. In Touchette v. City of Rayne Mun. Fire & Police Civil Ser. Bd., 321 So.2d 62 (La.App. 3d Cir.1975), the court held that it had jurisdiction, under the 1974 Constitution, of an appeal from a district court judgment on a review of an administrative agency determination because the district court review was a civil matter decided within its circuit.
Accordingly, we conclude that since a worker's compensation claim is a civil matter within the original jurisdiction of the district court, and since Act 938 of 1988 vests the claims exclusively with the OWC, the legislation has "in effect" divested the district courts of original jurisdiction in direct violation of Article V, Section 16(A) of the Louisiana Constitution.
APPELLATE JURISDICTION
Defendants contend that nothing in the constitution prohibits the legislature from providing direct review by the courts of appeal of decisions of OWC hearing officers, relying upon Article V, Section 10(B) and our decision in Marine Shale Processors, Inc. v. Department of Environmental Quality, 543 So.2d 487 (La.App. 1st Cir.1989). The fallacy of the argument is exposed once one considers the crucial distinction between public rights and private rights.
Article V, Section 10(B) provides: "Except . as provided by law in the review of administrative agency determinations, appellate jurisdiction of a court of appeal extends to law and facts." In Marine Shale, supra, we held that the district court lacked jurisdiction of a suit challenging an order of the director of DEQ, and we implicitly recognized the legislature's power to control the jurisdiction of the appeal of such an agency determination.
Defendants assert that a finding of unconstitutionality in the instant case would be inconsistent with our holding in Marine Shale. However, the defendants have failed to note that the administrative agency determination in Marine Shale involved public rights. Contrarily, the quasi-judicial determinations which would result from OWC hearings involve private rights.
As early as 1932, in Crowell v. Benson, 285 U.S. 22, 52 S.Ct. 285, 76 L.Ed. 598 (1932), and as recently as 1982, in Northern Pipeline Construction Co. v. Marathon Pipe Line Co., 458 U.S. 50, 102 S.Ct. 2858, 73 L.Ed.2d 598 (1982), the United States Supreme Court classified the worker's cause of action against his employer for compensation as a private right. The worker's action is not a public right because the public-rights doctrine extends only to matters arising between the government and persons subject to governmental authority in connection with the performance of the constitutional functions of the executive or legislative departments. A minimum requirement for a matter to be classified as one of public rights is that a branch or agency of the government is an adversary in the dispute. On the federal level, Congress' power to create legislative courts to adjudicate public rights carries with it the lesser power to create administrative agencies for the same purpose and to provide for judicial review of those agency decisions in federal court. Northern Pipeline, 458 U.S. at 67-69, 102 S.Ct. at 2869-70. On the state level, the legislature's authority to create administrative agencies with quasi-judicial powers over public rights comes from its plenary powers.
In Crowell v. Benson, supra, a party to litigation involving a longshoreman's claim against his employer challenged the federal district court's authority to hold a trial de novo subsequent to a commissioner's hearing. The court held that Congress, possessed of the power to create an agency for the administration of the longshoreman's claim, nonetheless lacked the power to relegate the entire adjudication to the administrative level in lieu of the trial court level, subject only to appellate review, because the claim asserted was a private right, not a public right.
The Louisiana Legislature's power to provide a preliminary, pre-judicial administrative procedure for initiation of worker's compensation claims has been recognized in the courts. Bazley v. Tortorick, supra; Brock v. Schwegmann Giant Supermarkets, Inc., 520 So.2d 711 (La.1988). However, the distinctions between the previous OWC function and the OWC function outlined in the 1988 legislation are too obvious to merit mention. Suffice it to say that the legislature is powerless to change the nature of a worker's compensation claim from a private right to a public right.
Nor do we read Article V, Section 10(B) as a constitutional provision which has "otherwise authorized" the legislature to regulate the original jurisdiction of the district court. Section 10(B) provides solely for the courts of appeal; it has nothing to do with the jurisdiction of the district courts.
CONCLUSION
After considering the nature of worker's compensation law in this state and the history of Article V revealed by the recorded actions of the Constitutional Convention, we conclude that the legislature assumed powers prohibited to it when it enacted amendments to the Louisiana Worker's Compensation Law to remove compensation claims from the district courts. Considering the wording of Section 16(A), coupled with the well-documented intent of the Constitutional Convention not to permit the legislature to tamper with the jurisdiction of the district courts, we hold that the 1988 worker's compensation amendments violate Article V, Section 16(A).
In reaching this conclusion, we have found it unnecessary to decide whether judicial review of an administrative agency determination is an exercise of a district court's original jurisdiction or of its appellate jurisdiction. Such a classification is superfluous because in either case the legislation under consideration today is unconstitutional; the 1988 legislation completely bypasses the district court.
For the foregoing reasons we reverse the judgment of the trial court which dismissed the plaintiff's suit, and we hold those provisions of Act 938 of 1988 which divest the district courts of original jurisdiction of worker's compensation claims unconstitu tional. Defendants are to pay all costs of court, specifically $538.60 at the trial level and $349.77 on appeal.
REVERSED.
COVINGTON, C.J., dissents and assigns reasons.
. We note that a subsequent amendment in 1989 abolishes the appeals panel and provides for appeals to the circuit courts of appeal directly from the decision of' the hearing officers. Act 454, Section 9 of 1989, effective January 1, 1990; LSA-R.S. 23:1310.5(A)(2). The effective date of Act 938 of 1988 was to be July 1, 1989, but it was postponed until January 1, 1990, by Act 260 of 1989.
. Forecasting the possibility that the procedural changes wrought by the new act would be declared unconstitutional, the legislature passed Act 23 of 1989, which is a failsafe re-enactment of the former administrative provisions.
. La.St.L.Inst. Projet of a Constitution for the State of Louisiana (1954).
. Professor Lee Hargrave, Louisiana State University, was the coordinator of legal research for the Constitutional Convention of 1973; he conducted research for the Judiciary Committee.
. But see In re Investigation of Smith, 546 So.2d 561 (La.App. 1st Cir.), writ denied, 550 So.2d 636 (La.1989), wherein this court held that the constitutional provisions delegating judicial authority to the Civil Service Commission are to be narrowly construed because they are exceptions to Article 16 jurisdiction of the district courts over all civil matters. Accord, In re Investigation of Lauricella, 546 So.2d 207 (La.App. 1st Cir.), writ denied, 548 So.2d 330 (La.1989).
. But compare, City of New Orleans v. United Gas Pipe Line Co., 438 So.2d 264 (La.App. 4th Cir.), writ denied, 442 So.2d 463 (La.1983). The case illustrates the principle that an administrative agency, even one that enjoys the elevated status of being a creature of the constitution, cannot overstep the boundaries of its function. Dismissing the Louisiana Public Service Commission's petition of intervention' in a suit to recover overpayments of utility charges, the court labeled the distribution of damages to individual customers as a "judicial function" protected by Article V, Section 1.
. Furthermore, we reach an impasse regarding exclusive original jurisdiction and concurrent jurisdiction if we attempt to find legislative power to divest the district courts of jurisdiction in Article V, Section 16(B): "A district court shall have appellate jurisdiction as provided by law." Although this section gives the legislature the power to enact statutes to regulate the appellate jurisdiction of the district courts, and arguably to withhold appellate jurisdiction from the district courts entirely, the section cannot qualify under the "as otherwise authorized" proviso of Section 16(A). If we were to read Section 16(B) in this manner, we would condone an anomaly: the legislature could create concurrent jurisdiction in the OWC and the district court for cases against non-governmental employers, but the exclusive original jurisdiction over the state as a defendant, which is unaffected by the "as otherwise authorized" proviso, would bar the OWC from exercising jurisdiction over governmental employers. Judicial efficiency, as well as a serious question of lack of equal protection, militates against such a dichotomous result.
. We have no quarrel with the proposition that the legislature has the power to eliminate worker's compensation claims entirely. "The constitutions of the United States and this state impose no obligation on the legislature to provide injured employees with a particular kind of remedy for loss of income and medical expenses. But when a legislature acts to alleviate some of the suffering and hardships of industrial accidents, the manner in which it provides for relief is subject to constitutional limitations." Bazley v. Tortorich, supra, at 482, 483.
. See, Bowen v. Doyal, 259 La. 839, 253 So.2d 200 (1971); Loop, Inc. v. Collector of Revenue, 523 So.2d 201 (La.1988); Tanner v. City of Baton Rouge, 422 So.2d 1263 (La.App. 1st Cir. 1982), writ denied, 429 So.2d 128 (La.1983); and Anderson v. State, 363 So.2d 728 (La.App. 2nd Cir.), writ denied, 364 So.2d 600 (La.1978).
. Although Act 938 of 1988 contains numerous changes to the Louisiana Worker's Compensation Law, this appeal involves only those sections which were amended to establish the procedure for hearing officers within the OWC. Consequently, our decision today strikes down only the pertinent sections before us. Furthermore, since the legislature made known its wishes (see Footnote 2, supra) concerning the procedure the OWC should follow in event the 1988 amendments did not survive constitutional challenge, it is unnecessary for us to discuss severability of the sections that are affected by this opinion. See Cross v. Alexander, 498 So.2d 740 (La.1986).