Opinion ID: 779950
Heading Depth: 2
Heading Rank: 1

Heading: Peters' Employment History with the City

Text: 2 Peters began his employment with the City of Mauston, Wisconsin, in March 1968 upon his graduation from high school. He worked for the City for approximately nine years before he quit to work in construction. Peters then returned to his employment with the City as an Operator in 1978 and remained in that position until his termination on March 15, 1995. 3 The City has two job classifications relevant to Peters' case: Operator and Laborer. As an Operator, Peters' duties included using various construction equipment as well as being able to perform all duties assigned to Laborers. A Laborer performs a wide range of construction tasks, including the lifting of heavy objects. Laborers, however, are not authorized to use the construction equipment, as operation of the equipment is left solely to the Operators, who are generally in charge on the worksite. According to the City, the job of an Operator is relatively unpredictable and includes such duties as: excavating trenches for replacement or repair of existing water, wastewater, and storm water mains and laterals; removing snow and ice accumulations from streets and sidewalks; trimming trees and cutting brush; and performing maintenance on equipment. 4 During the three years prior to his termination Peters suffered two work-related injuries to his shoulders. The first injury occurred to his right shoulder in 1992, and after surgery in August 1992, he returned to work in the late fall of 1993. In early 1994, Peters injured his left shoulder when he was thrown against the windshield of his truck while plowing snow. He underwent surgery for this injury as well and missed work from June 1994 through March 1995, when he was terminated. 5 While Dr. Thomas G. Hoeft provided Peters' medical care following his second injury, the City's workers' compensation insurer sent Peters to Dr. Ronald C. Rudy for an independent medical evaluation on September 1, 1994. Dr. Rudy's report indicated that Peters could return to work after one month and with no restrictions following Peters' completion of physical therapy. On October 6, 1994, however, Dr. Hoeft recommended that Peters return to light duty with restrictions prohibiting Peters from lifting over thirty pounds, repetitive shoveling, and overhead use of the left hand. 6 On November 17, 1994, Peters met with his supervisor, Patrick Giesendorfer, the Director of Public Works, to discuss his ability to return to work and the conflicting doctors' reports. Giesendorfer informed Peters that he needed to secure a release from Dr. Hoeft because Dr. Hoeft was Peters' personal physician and had indicated that Peters still had some work restrictions. Peters told Giesendorfer that he had been working hard during his time off by painting three rooms and varnishing the floors in his house, cleaning out his garage, and building deer stands. 7 On November 21, 1994, Devin Willi, the City Administrator, wrote to both Peters and Dr. Hoeft requesting that Peters undergo a functional capacity evaluation, which would determine Peters' work capabilities and restrictions, and that Peters secure a work release from Dr. Hoeft. Dr. Hoeft did not respond to Willi's letter of November 21. On both December 28, 1994, and February 20, 1995, Willi again wrote to Dr. Hoeft seeking confirmation of Peters' status and the scheduled functional capacity evaluation. Dr. Hoeft did not immediately reply to either request. On February, 21, 1995, Willi wrote to Peters and informed him that it was his (Peters') responsibility to secure the report and release from Dr. Hoeft. 8 Dr. Hoeft finally forwarded the results of Peters' functional capacity evaluation to Willi on February 22, 1995. The report indicated that during an eight-hour work day, Peters could work with the following restrictions: 1) that he could never lift or carry anything in excess of fifty pounds; 2) that he could occasionally (11-30% of the day) lift or carry between twenty-one and fifty pounds; 3) that he could frequently (31-70% of the day) lift or carry between eleven and twenty pounds; 4) that he could continuously (71-100% of the day) lift or carry between one and ten pounds; and 5) that he could occasionally (11-30% of the day) shovel. Dr. Hoeft also determined that during an eight-hour work day Peters could use his left arm and shoulder continuously for only two hours and for no more than six hours total. The report indicated that these restrictions were permanent and that Peters fell into a medium demand job classification. Finally, Dr. Hoeft stated that if Peters were likely to have additional demands placed on him, and in an unpredictable way, he might be better served by seeking a different occupation. 9 On February 28, 1995, Willi and Giesendorfer discussed the report with Peters. At this meeting, Peters expressed his interest in returning to work as well as his concern about performing some of the job's functions. Willi then took Dr. Hoeft's report and a summary of the February 28 meeting to the City's Personnel Committee, which directed Willi to meet with Peters again and discuss every element of Peters' job description to determine Peters' view on performing each task, including any accommodations that could be made. 10 Pursuant to this direction, Peters, Willi, and Giesendorfer met again on March 13, 1995. At this meeting Willi went through the job descriptions for Operators and Laborers line by line and asked Peters whether there were any accommodations that could be made to help him perform his job. Peters responded by saying either that he could do the work and saw no problem, or that he was uncertain and would only know if he tried to do the work. Peters apparently had trouble understanding the concept of accommodation and was not aware that Dr. Hoeft listed his work restrictions as permanent. When asked specifically about those restrictions, Peters said he thought his shoulder would get better over time, but that if the lifting required by the job became too heavy, someone would probably have to help him. According to Peters, he tried to indicate that he wanted to try and see whether he could do the job by returning to work. 11 Willi reported the results of the meeting to the City's Common Council on March 14, 1995. The Council reviewed Dr. Hoeft's functional capacity report, Willi's report of the interview with Peters on March 13, and the list of duties for Peters' job. The Council determined that Peters could not safely, reasonably, and effectively perform the duties of an Operator in light of the permanent lifting restrictions placed upon Peters by his doctor. The Council based this decision upon its assessment that Peters' job required lifting, carrying, and extensive use of his shoulder. 12 Following that meeting, Willi informed Peters that the City decided to terminate his employment on March 15, 1995. Because there were no other vacancies in the City at that time, the Council did not consider whether Peters could perform any other job within the City. The Council, likewise, did not consider whether Peters could perform any type of job outside of the City and did not discuss with him his ability to find work elsewhere. Peters, however, indicated that he did not feel physically limited by his shoulder and believed that he could do the work. 13 After his termination, Peters found various jobs in construction and as a truck driver. This work required him to do heavy lifting and carrying, all of which he was able to complete without limitation. Interestingly, on February 13, 1996, Dr. Hoeft revised Peters' functional capacity evaluation and lifted the permanent lifting restrictions entirely. Peters claims that Dr. Hoeft never actually evaluated him for the initial functional capacity evaluation but relied only upon the reports of non-physician staff to form his conclusions. 14 Peters eventually filed a grievance over his termination, which was heard on August 6, 1998. On March 7, 2000, an arbitrator found that the City lacked just cause under its collective bargaining agreement for terminating Peters. The arbitrator reinstated Peters to his job as an Operator with the City but did not award back pay. In deciding not to award back pay, the arbitrator noted that it was Peters' own doctor who imposed the erroneous lifting restrictions and that, as a result, Peters must bear the wage loss. Peters resumed his job as an Operator shortly after the arbitrator issued his decision and, as far as the record reflects, has since performed the job satisfactorily. 15