Opinion ID: 1160462
Heading Depth: 2
Heading Rank: 1

Heading: Constantly Necessary

Text: Claimant first argues that the LIRAB erred in denying compensation for attendant care services because her living circumstances are such that attendant care services are constantly necessary and payable under HRS § 386-23. At the time of Claimant's original injury in 1970, HRS § 386-23 read as follows: Services of attendant. When the director of labor and industrial relations finds that the services of an attendant for the injured employee is constantly necessary he may award a sum of not more than $150 a month as the director may deem necessary for the procurement of such service. [6] HRS § 386-23 (1968) (emphasis and footnote added). When construing a statute, our foremost obligation is to ascertain and give effect to the intention of the legislature, which is obtained primarily from the language contained in the statute itself. Pacific Int'l Servs. Corp. v. Hurip, 76 Hawai`i 209, 216, 873 P.2d 88, 95 (1994). In interpreting a statute, the court must give the words their common meaning, unless there is something in the statute requiring a different interpretation. Ross v. Stouffer Hotel Co. (Hawai`i) Ltd. Inc., 76 Hawai`i 454, 461, 879 P.2d 1037, 1044 (1994). The term constantly necessary is not expressly defined in HRS § 386-23; therefore, we resort to the dictionary definition for guidance. Black's Law Dictionary defines the word constantly as continuously. Black's Law Dictionary 310 (6th ed. 1990). The word continuously is defined as [u]ninterruptedly; in unbroken sequence; without intermission or cessation; without intervening time; with continuity or continuation. Id. at 322. The word necessary must be considered in the connection in which it is used, as it is a word susceptible of various meanings. It may import absolute physical necessity or inevitability, or it may import that which is only convenient, useful, appropriate, suitable, proper, or conductive to the end sought. It is an adjective expressing degrees, and may express mere convenience or that which is indispensable or an absolute physical necessity. It may mean something which in the accomplishment of a given object cannot be dispensed with, or it may mean something reasonably useful and proper, and of greater or lesser benefit or convenience, and its force and meaning must be determined with relation to the particular object sought. Id. at 1029. However, the dictionary definition of constantly necessary is only a starting point. We have held that the plain language rule of statutory construction[] does not preclude an examination of sources other than the language of the statute itself even when the language appears clear upon perfunctory review. Were this not the case, a court may be unable to adequately discern the underlying policy which the legislature seeks to promulgate and, thus, would be unable to determine if a literal construction would produce an absurd or unjust result, inconsistent with the policies of the statute. Bragg v. State Farm Mutual Auto. Ins. Co., 81 Hawai`i 302, 306, 916 P.2d 1203, 1207 (1996) (quoting Sato v. Tawata, 79 Hawai`i 14, 17, 897 P.2d 941, 944 (1995)). We must read statutory language in the context of the entire statute and construe it in a manner consistent with its purpose. State v. Toyomura, 80 Hawai`i 8, 19, 904 P.2d 893, 904 (1995). Workers' compensation laws were enacted as a humanitarian measure for the benefit of employees. Hun v. Center Properties, 63 Haw. 273, 276, 626 P.2d 182, 185 (1981). The two goals of workers' compensation laws are to restore the injured employee and to compensate the employee adequately. Respicio v. Waialua Sugar Co., 67 Haw. 16, 18, 675 P.2d 770, 772 (1984). Therefore, we have long held that workers' compensation laws should be liberally construed in order to accomplish the intended beneficial purposes of the statute. Locations, Inc. v. Hawai`i Dep't of Labor & Indus. Relations, 79 Hawai`i 208, 210, 900 P.2d 784, 786 (1995); Puchert v. Agsalud, 67 Haw. 25, 36, 677 P.2d 449, 457 (1984), appeal dismissed, 472 U.S. 1001, 105 S.Ct. 2693, 86 L.Ed.2d 710 (1985); Evanson v. University of Hawaii, 52 Haw. 595, 600, 483 P.2d 187, 191 (1971); In re Ikoma, 23 Haw. 291, 295-95 (1916). For these reasons, we refuse to interpret the term constantly necessary in HRS § 386-23 as limiting compensability only to individuals who require care twenty-four hours per day. Doing so would preclude compensation for those who are seriously disabled but require somewhat less than twenty-four hour care. Instead, we interpret HRS § 386-23 as allowing compensation for attendant care services so long as claimants can establish their inability to function or perform activities of daily living on a consistent basis. This standard focuses on whether the claimant's daily functioning is severely impaired, rather than on whether the amount of care satisfies a rigid twenty-four hour requirement. Therefore, the central question in the present case is whether we are left with a firm and definite conviction that the LIRAB erred with respect to whether Claimant is unable to function or perform activities of daily living on a consistent basis. The record indicates that, on September 22, 1987, Dr. Freeman, Claimant's physician, prescribed an attendant on a part-time basis of four hours per day, for housekeeping, aid in bathing, help with stretching exercises, ambulation assistance, and transfers. The fact that the prescribed attendant care was limited to four hours per day suggests that Claimant could function independently for the remainder of the day. Brigitta B. Jann, M.D., who took over Dr. Freeman's duties as Claimant's physician, noted in her first report, dated September 17, 1990, that Claimant continued to walk with crutches, generally had bowel and bladder control, and had been actually recovering since 1987. In her subsequent office note dated November 13, 1990, Dr. Jann noted Claimant's thespian flare for histrionic pain descriptions with emotional highlighting during transfers. In office notes dated February 25, 1991, August 5, 1991, and September 9, 1991, Dr. Jann commented on Claimant's absolute refusal to consider strategies to deal with her home environment. Dr. Jann recommended simple modifications such as re-arranging her kitchen, pre-planning meals, placing a chair in her shower, and using a bedside commode to minimize in-house travel and to ease transfers onto a commode. However, Claimant consistently refused to make adjustments in her household routines. Dr. Jann noted that her discussions with Claimant were rather futile. For every solution, Claimant found another problem preventing the proposed solution from being implemented. The reports by the staff at the Renaissance Rehabilitation Center also do not support compensation for Claimant's attendant care services. Burton McDaniel, M.D., conducted a medical examination, therapist Darlene Kelsesky conducted a physical therapy evaluation, [7] and therapist Kathie Rush conducted an occupational therapy/activities of daily living evaluation. In his medical evaluation report, Dr. McDaniel noted that Claimant was independent with the use of her wheelchair on all surfaces. He stated that Claimant could be independent in her current environment if all equipment and household equipment is adapted to her current deficits. Dr. McDaniel concluded: Based on patient's current deficits, I would not recommend a 24-hour attendant; however, she could significantly benefit from an attendant 4 hours per day in order to assist in activities of daily living requiring increased strength which is currently lacking from deficits of the left shoulder. In her evaluation report, Ms. Rush noted that Claimant could be independent for most of her needs if her home environment were modified. Installation of bathroom equipment, such as a tub transfer bench, would enable Claimant to bathe herself. With the aid of assistive devices or at a slower speed, Claimant is able to perform grooming, hygiene tasks, and toileting activities independently. Claimant is able to feed herself independently. Claimant can also dress her upper body independently; however, she requires minimal assistance in dressing her lower body because otherwise, due to her paralysis, she must perform this task on her waterbed. [8] In conclusion, Ms. Rush recommended an attendant four to six hours per day, bathroom equipment, and modification of her home environment. In summary, the evidence in the record indicates that Claimant would need little or no attendant care if she would implement simple modifications to her home environment. [9] Even without modifications, she would only need attendant care for a maximum of four to six hours per day because she is capable of performing most daily tasks with some degree of independence. [10] Accordingly, we hold that the LIRAB did not err in denying compensation to Claimant. The record supports the LIRAB's implicit finding that Claimant is generally able to function or perform activities of daily living. Therefore, attendant care services are not constantly necessary, and Claimant is not entitled to compensation.