Opinion ID: 1987331
Heading Depth: 2
Heading Rank: 2

Heading: Petitioner's review-reopening petition.

Text: On February 21, 1994, Simonson filed a review-reopening petition with the industrial commissioner seeking an increase in the thirty-five percent industrial disability award and for interest and costs. See Iowa Code § 86.14(2). On September 29, 1995, a hearing was held before the deputy industrial commissioner concerning Simonson's review-reopening claim and her petition of March 6, 1991 for penalties for delay in payments since April 10, 1990. The deputy concluded that Simonson was not entitled to additional permanent disability payments and, without ruling on the merits of the claim, that Simonson was not entitled to penalty benefits under Iowa Code section 86.13. Simonson then appealed to the industrial commissioner. In a ruling issued December 31, 1996, the industrial commissioner agreed with the deputy's decision that Simonson had failed to present adequate evidence showing a physical or nonphysical change in condition or earning capacity caused by her work-related injury and that Simonson thus was not entitled to additional workers' compensation benefits on review-reopening. The commissioner also concluded that Simonson was not entitled to penalty benefits for any alleged delay in payment of benefits by Snap-On. The commissioner believed that Simonson's current claim for penalty benefits, as articulated in her March 6, 1991 petition, was the same as her prior claim for penalty benefits asserted in her arbitration petitions, which had already been adjudicated in favor of Snap-On. The commissioner therefore concluded that Simonson's claim for penalty benefits as alleged in her March 6, 1991 petition was barred either by issue or claim preclusion. The commissioner also concluded that, even if Simonson's current claim for penalty benefits was not barred by issue or claim preclusion, the commissioner did not have jurisdiction to consider the claim for penalty benefits. The commissioner noted that the June 23, 1993 decision of the court of appeals remanded that case to the industrial commissioner for the limited purpose of determining partial disability under [section] 85.33(4) for the weekend days of August 15 and 16, 1987. Based on this statement, the commissioner believed she did not have authority to consider Simonson's claim for penalty benefits. As a final basis for the decision, the commissioner stated that the proper means for enforcement of Simonson's award is found in Iowa Code section 86.42 which allows a claimant to enforce a commissioner's decision by obtaining a judgment in district court. Thereafter, Simonson filed a petition for judicial review in district court. In its ruling, the district court (Judge Duffy) affirmed the decision of the industrial commissioner concerning Simonson's review-reopening claim. The court concluded that there was substantial evidence in the record supporting the commissioner's conclusion that no change of earning capacity due to the work injury was shown and that there had been no change in Simonson's physical condition. With respect to Simonson's claim for penalty benefits pursuant to Iowa Code section 86.13, the district court concluded that the industrial commissioner erred in deciding that Simonson's claim for penalties was barred under either issue or claim preclusion. The court also determined that Simonson's current claim for penalties, as articulated in her March 6, 1991 petition, related to the delay in payments by Snap-On since the April 10, 1990 hearing. Thus, the court reasoned that the court of appeals decision concerning penalties only related to delay in payments before the April 10, 1990 hearing. The court therefore concluded that Simonson's current claim for penalties was not barred by either issue or claim preclusion. Additionally, the district court concluded that the industrial commissioner's authority to consider Simonson's current claim for penalty benefits was in no way limited by the court of appeals decision. The district court noted that the court of appeals decision pertained to events separate and distinct from Simonson's current claim for penalty benefits and thus the commissioner had original jurisdiction to consider the penalty benefit issues presented in the March 6, 1991 petition. Based on these findings, the district court reversed the commissioner's ruling on the penalty claim issue and remanded the case to the commissioner for purposes of addressing the merits of the penalty claim because the merits had not previously been adjudicated by the commissioner. Petitioner Simonson appeals, asserting that the district court erred in affirming the commissioner's decision denying her review-reopening claim for additional workers' compensation benefits. See Iowa Code § 17A.20. Respondents Snap-On and its insurer, Royal Insurance Company, cross-appeal from the district court's decision that Simonson is entitled to a ruling by the commissioner on the merits of her claim for penalties pursuant to Iowa Code section 86.13 concerning Snap-On's alleged delay in benefits payments since April 10, 1990.