Court Opinion

ID: 9898037
Source: CourtListenerOpinion
Date Created: 2023-11-14 19:27:59.995154+00
Date Added: 2024-06-11T09:16:25.195399
License: Public Domain

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                                                                                                         Filed
                                                                                                   Washington State
                                                                                                   Court of Appeals
                                                                                                    Division Two

                                                                                                   February 22, 2023

           IN THE COURT OF APPEALS OF THE STATE OF WASHINGTON

                                                  DIVISION II
        MARK ANDREW                HIESTERMAN,          an                    No. 54171-8-II
        individual,

                        Appellant/Cross-Respondent,

                v.

        STATE OF WASHINGTON DEPARTMENT                               ORDER GRANTING MOTION
        OF HEALTH,                                                         TO PUBLISH

                        Respondents/Cross-Appellants.

               Respondent, Department of Health, moved this court to publish its December 13, 2022

       opinion. After consideration, we grant the motion. it is now

               ORDERED that the final paragraph in the opinion which reads “A majority of the panel

       having determined that this opinion will not be printed in the Washington Appellate Reports, but will

       be filed for public record pursuant to RCW 2.06.040, it is so ordered.” is deleted. It is further

               ORDERED that the opinion will now be published.

               Panel: Jj. Cruser, Veljacic, Worswick.

               FOR THE COURT:

                                                                       Veljacic, J.
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                                                                                                     Filed
                                                                                               Washington State
                                                                                               Court of Appeals
                                                                                                Division Two

                                                                                              December 13, 2022

           IN THE COURT OF APPEALS OF THE STATE OF WASHINGTON

                                                DIVISION II
        MARK ANDREW              HIESTERMAN,          an                   No. 54171-8-II
        individual,

                       Appellant/Cross-Respondent,

               v.

        STATE OF WASHINGTON DEPARTMENT                               UNPUBLISHED OPINION
        OF HEALTH,

                       Respondents/Cross-Appellants.

              VELJACIC, J. — Mark A. Hiesterman was arrested twice for driving under the influence

       (DUI). He was reported to the Board of Osteopathic Medicine and Surgery (Board), which

       received two complaints. He was also reported to the Board by the Washington Physicians Health

       Program (WPHP) after he voluntarily sought program assistance and then refused to comply with

       its recommendation. The Board conducted an investigation and issued charges. Eventually it

       suspended Hiesterman’s license to practice medicine. As required by statute, the Board reported

       his charges and later suspension to the public via a news release. It incorrectly stated that he had

       been convicted of DUI. Hiesterman sued the Department of Health (DOH), arguing he was owed

       damages due to its error in reporting he was convicted of DUI. DOH moved for summary

       judgment dismissal, arguing it was immune from suit under RCW 18.130.300(1). The trial court

       granted DOH’s motion.

              Hiesterman appeals, arguing that RCW 18.130.300(1) violates the Washington

       Constitution. He also argues that Janaszak v. State, 173 Wn. App. 703, 297 P.3d 723 (2013),
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       54171-8-II

       which interpreted RCW 18.130.300(1) and expanded its immunity to DOH, was incorrectly

       decided. He also argues that RCW 18.130.300(1) does not protect administrative acts like DOH’s

       reporting in this case. We decline to consider Hiesterman’s constitutional challenges under RAP

       2.5(a)(3) because he failed to preserve this argument for appeal and the alleged constitutional

       errors are not manifest. We also conclude that the plain language of RCW 18.130.300(1) provides

       immunity to the Board and those performing the reporting function on its behalf. We affirm the

       trial court’s summary judgment order.

                                                    FACTS

              Hiesterman practices osteopathic medicine and is licensed to practice in Washington.

       Hiesterman was arrested twice for DUI, once in Michigan and once in Idaho. For the Michigan

       charge, he pleaded guilty to driving while intoxicated. For the Idaho charge, he pleaded guilty in

       exchange for a withheld judgment. The Idaho charge was eventually dismissed.

              Hiesterman self-referred to the Washington Physicians Health Program (WPHP), an

       organization that assists doctors who present with a condition that may affect their ability to

       practice.    After a consultation, WPHP directed Hiesterman to undergo a “comprehensive

       evaluation at a WPHP-approved facility.” Clerk’s Papers (CP) at 61. He chose the Betty Ford

       Center’s clinical diagnostic evaluation. The Betty Ford team concluded that Hiesterman required

       90 days of residential chemical dependency treatment.        Hiesterman refused to follow the

       recommendation, and WPHP gave him the opportunity to have an additional evaluation conducted.

       He never sought an additional evaluation.

              Around the time Hiesterman received his Betty Ford evaluation and recommendation, the

       Board received two complaints about Hiesterman. One complaint pertained to his arrest for DUI

       in Idaho. Meanwhile, WPHP informed Hiesterman that he was required to undergo treatment or

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       54171-8-II

       seek an additional evaluation, and that if he failed to comply, WPHP would contact the Board.

       WPHP contacted the Board after Hiesterman failed to either seek treatment or reevaluation.

              The Board conducted an investigation and issued a statement of allegations. The Board

       later sent Hiesterman a statement of charges. Pursuant to RCW 18.130.110(2)(c),1 the Board

       issued a news release, that included the inaccurate sentence: “Hiesterman was convicted of driving

       while intoxicated in 2006 in Michigan and in 2013 in Idaho.” CP at 144.

              Following a hearing, the Board suspended Hiesterman’s license. The Board issued another

       news release informing the public that Hiesterman’s license was suspended. Eventually, the Board

       reinstated Hiesterman’s license and removed all conditions. It issued a news release informing the

       public of the reinstatement.

              Hiesterman sued the DOH in tort for damages because it reported he had been convicted

       of driving while intoxicated in Idaho.2 DOH moved for summary judgment, arguing it was

       immune from suit under RCW 18.130.300(1).

              Hiesterman never challenged the constitutionality of RCW 18.130.300(1) or the

       constitutionality of the Janaszak holding in the trial court. The trial court granted DOH’s motion

       for summary judgment. Hiesterman appeals.

                                                 ANALYSIS

       I.     THE DEPARTMENT OF HEALTH’S DISCIPLINARY PROCESS

              In passing the Uniform Disciplinary Act (UDA), the legislature intended to standardize the

       licensing and disciplinary procedures for health care professions. RCW 18.130.010. The UDA

       1
         RCW 18.130.110(2)(c) requires the Board to report to the public via a news release any time it
       issues a statement of charges or a final order.
       2
         Hiesterman asserted claims of negligence, defamation, tortious interference with business
       expectancy, and invasion of privacy.

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       54171-8-II

       established boards to oversee the licensure and discipline of such professions, including the Board

       relevant here. RCW 18.57.003. The Board oversees the licensure and discipline of osteopathic

       medical professions pursuant to the UDA. RCW 18.57.005(1); RCW 18.57.011. The Board does

       not have its own staff and instead relies on DOH to provide staff.

               The Board, as a disciplining authority, receives complaints made against medical

       professionals and determines whether such complaints merit investigation.                      RCW

       18.130.080(1)(a), (2). DOH must report the issuance of charges or a final order to the public via

       a press release sent to local news media and major news wire services. RCW 18.130.110(2)(c).

       After a hearing and a finding that a professional has acted unprofessionally, the Board may

       discipline the professional through revocation or suspension of their license. RCW 18.130.160.

               The UDA also includes an immunity provision that states in relevant part, “The secretary,

       members of the boards or commissions, or individuals acting on their behalf are immune from suit

       in any action, civil or criminal, based on any disciplinary proceedings or other official acts

       performed in the course of their duties.” RCW 18.130.300(1).

       II.     CONSTITUTIONALITY OF RCW 18.130.300

               Hiesterman argues that RCW 18.130.300(1) is facially unconstitutional because it provides

       absolute immunity, which is barred by article I, section 8 of the Washington Constitution. DOH

       first argues that Hiesterman failed to preserve his constitutional claims. Alternatively, it argues

       that RCW 18.130.300(1) is constitutional. We decline to address Hiesterman’s facial challenge to

       RCW 18.130.300(1) because he failed to preserve his constitutional claims and the claimed error

       is not a manifest error affecting a constitutional right.

               We consider only the issues and evidence the parties called to the trial court’s attention on

       the motion for summary judgment. RAP 9.12. But we will consider an issue raised for the first

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       54171-8-II

       time on appeal if the claimed error is a manifest error affecting a constitutional right. RAP

       2.5(a)(3); Vernon v. Aacres Allvest, LLC, 183 Wn. App. 422, 427, 333 P.3d 534 (2014). An error

       is manifest if it results in actual prejudice to the defendant or the defendant makes a “‘plausible

       showing . . . that the asserted error had practical and identifiable consequences in the trial of the

       case.’” State v. WWJ Corp., 138 Wn.2d 595, 603, 980 P.2d 1257 (1999) (quoting State v. Lynn,

       67 Wn. App. 339, 345, 835 P.2d 251 (1992)). “The court previews the merits of the claimed

       constitutional error to determine whether the argument is likely to succeed.” State v. Walsh, 143

       Wn.2d 1, 8, 17 P.3d 591 (2001).

              Lynn sets out a four-step approach to determining whether an error claimed for the first

       time on appeal amounts to a manifest constitutional error requiring review:

              First, the reviewing court must make a cursory determination as to whether the
              alleged error in fact suggests a constitutional issue. Second, the court must
              determine whether the alleged error is manifest. Essential to this determination is
              a plausible showing by the defendant that the asserted error had practical and
              identifiable consequences in the trial of the case. Third, if the court finds the alleged
              error to be manifest, then the court must address the merits of the constitutional
              issue. Finally, if the court determines that an error of constitutional import was
              committed, then, and only then, the court undertakes a harmless error analysis.

       67 Wn. App. at 345.

              First, Hiesterman’s claim that RCW 18.130.300 violates article I, section 8 of the

       Washington Constitution clearly suggests a constitutional issue. Second, the alleged error is

       manifest because the immunity provided by RCW 18.130.300 is a core issue resulting in judgment

       for DOH here. But Hiesterman stumbles on the third step because a consideration of the merits of

       the constitutional issue does not result in relief to Hiesterman. That is because Hiesterman must

       “by argument and research, convince the court that there is no reasonable doubt that the statute

       violates the constitution.” Island County. v. State, 135 Wn.2d 141, 147, 955 P.2d 377 (1998).

       Instead, Hiesterman asserts in conclusory fashion that RCW 18.130.300 grants irrevocable

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       54171-8-II

       immunity, which denies plaintiffs recourse, which in turn “‘runs contrary to the most fundamental

       precepts of our legal system.’” Br. of Appellant at 8 (quoting Lutheran Day Care v. Snohomish

       County, 119 Wn.2d 91, 105, 829 P.2d 746 (1992)). This argument fails to show that there is no

       reasonable doubt that the statute violates the constitution.

              Hiesterman fails in the Lynn four-step approach, and therefore, fails to show that the alleged

       constitutional error was manifest. RAP 2.5(a). Accordingly, we decline to consider Hiesterman’s

       constitutional challenge to RCW 18.130.300(1).

       III.      HIESTERMAN’S JANASZAK CHALLENGE

                 Hiesterman also argues for the first time on appeal that Janaszak violates article II, section

       26 of the Washington Constitution. But we consider only the issues and evidence the parties called

       to the trial court’s attention on the motion for summary judgment. RAP 9.12. However, as stated

       above, we will consider an issue raised for the first time on appeal if the claimed error is a manifest

       error affecting a constitutional right. RAP 2.5(a)(3); Vernon, 183 Wn. App. at 427. Also as set

       out above, we review Hiesterman’s argument under the four-step approach set forth in Lynn. We

       conclude that as to the first step, his argument suggests a constitutional issue because it alleges a

       conflict with a state constitutional provision, article II, section 26. Second, if Janaszak, and its

       application of liability to DOH in that case, is prohibited by article II, section 26, then it would

       have a practical and identifiable consequence to Hiesterman’s case below. But as to the third

       factor, again, Hiesterman would not be entitled to relief. That is because we agree with Janaszak

       and its reasoning.

                 Hiesterman argues that the Janaszak court violated article II, section 26 of the Washington

       Constitution and ignored RCW 4.92.090 because it granted immunities to the State and its

       departments when interpreting RCW 18.130.300. He next argues that the Janaszak decision

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       54171-8-II

       conflicts with Savage v. State, 127 Wn.2d 434, 899 P.2d 1270 (1995). We conclude that Janaszak

       was correctly decided.

               When examining whether to extend the immunity protections of a given statute, courts

       must conduct a “detailed policy-oriented factual inquiry.” Lutheran Day Care, 119 Wn.2d at 100.

       Relying on conclusory holdings alone “carries with it the risk of finding immunity based on

       analogy to a case where the title held by the relevant official is the same as the one at issue, but

       the functions, procedures, and inherent protections available are quite different.” Id. at 100-01.

       The Janaszak court specifically examined RCW 18.130.300(1) and its grant of statutory absolute

       immunity. 173 Wn. App. at 713-14. The court concluded that the statute “grants absolute

       immunity for acts performed in the course of a covered individual’s duties.” Id. at 714. It also

       considered whether the statute granted immunity to the state and DOH. Id. at 717-18.

               The court examined the statutory scheme of the UDA, which covers the investigation and

       regulation of the practice of medicine. Id. at 718. It concluded that when it passed the UDA,

       including RCW 18.130.300(1), the legislature intended to provide absolute immunity “for the

       secretary of health, members of the commissions, and individuals acting on their behalf for official

       acts performed by any of these individuals in the course of their duties under the act.” Id. Because

       the investigative and enforcement duties of such roles mirrored prosecutorial and judicial roles,

       the court determined it should examine cases addressing the extension of prosecutorial and judicial

       immunity. Id.

               Its examination revealed that the policy protecting prosecutors and judicial staff was not

       intended solely to protect individuals (though it certainly has that effect), but rather to protect “‘the

       public and to insure active and independent action of the officers charged with the prosecution of

       crime, for the protection of life and property.’” Id. (internal quotation marks omitted) (quoting

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       Creelman v. Svenning, 67 Wn.2d 882, 884, 410 P.2d 606 (1966)). The court explained that the

       Washington Supreme Court has stated that such immunity should be extended to the state and the

       “entity employing the prosecutor.” Janaszak, 173 Wn. App. at 719. The court concluded that the

       same policy considerations applied to RCW 18.130.300(1) because that statute was also not

       intended to protect individuals but to protect the integrity of the disciplinary process. Id. at 719.

       The court held that the absolute immunity in RCW 18.130.300(1) applied to the state and DOH.

       Id.

              We agree with the Janaszak decision and adopt its reasoning here.

              Hiesterman asserts that Janaszak violated the Washington Constitution because only the

       legislature may grant immunity under article II, section 26.3 However, he relies on Savage which

       contradicts his position because it provides that courts may extend immunity upon the appropriate

       policy examinations. See 127 Wn.2d 440-41. Janaszak is consistent with Savage.

              Hiesterman also argues the policy of protecting the disciplinary process under RCW

       18.130.300(1) does not warrant extending immunity to the state or DOH. But the Janaszak court

       spent considerable time analyzing the policy reasons that do warrant extending the immunity of

       RCW 18.130.300(1) to DOH and the state. 173 Wn. App. at 718-19.

              Hiesterman’s assertion that Janaszak is contrary to article II, section 26 of the Washington

       Constitution, RCW 4.92.090, and the Supreme Court’s Savage decision fails. Accordingly, step

       three of the Lynn four-step approach is unmet and the alleged constitutional error is not manifest.

       Because it is not manifest, we do not review the issue per RAP 2.5(a)(3).

       3
        WASH. CONST. art. II, § 26 states: “The legislature shall direct by law, in what manner, and in
       what courts, suits may be brought against the state.”

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       IV.    ADMINISTRATIVE VERSUS QUASI-JUDICIAL ACTIONS UNDER RCW 18.130.300(1)

              Hiesterman argues “DOH’s reporting at the conclusion of the disciplinary proceedings is

       an administrative act outside the immunity provided by RCW 18.130.300.” Br. of Appellant at

       12. Further, he argues that because RCW 18.130.300(1) provides immunity for quasi-judicial

       action, it should not be applied to DOH’s reporting action here because such action was

       administrative. DOH argues that by its plain language RCW 18.130.300(1) applies to the reporting

       at issue here. We agree with DOH.

              A.      Legal Principles

              The primary goal of statutory construction is to determine and give effect to the

       legislature’s intent. SEIU Healthcare 775NW v. Dep’t of Soc. & Health Servs., 193 Wn. App. 377,

       398, 377 P.3d 214 (2016). To decipher legislative intent, we examine the plain language of the

       statute, the context of the statute in which the provision is found, and related statutes. Id. at 398.

       “‘[I]f the statute’s meaning is plain on its face, then the court must give effect to that plain meaning

       as an expression of legislative intent.’” Green v. Pierce County, 197 Wn.2d 841, 850, 487 P.3d

       499 (2021) (quoting Dep’t of Ecology v. Campbell & Gwinn, LLC, 146 Wn.2d 1, 9-10, 43 P.3d 4

       (2022)).

              RCW 18.130.300(1) states, “The secretary, members of the boards or commissions, or

       individuals acting on their behalf are immune from suit in any action, civil or criminal, based on

       any disciplinary proceedings or other official acts performed in the course of their duties.”

              B.      Analysis

              RCW 18.130.300(1) is unambiguous. It applies to the reporting action required of DOH.

       Hiesterman spends most of his brief discussing why RCW 18.130.300(1) should not apply to

       DOH’s action here based on the distinction between administrative and quasi-judicial actions, in

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       that the reporting of his DUI history was an administrative action, rather than a quasi-judicial

       function. He does so at the expense of any interpretation of RCW 18.130.300(1) itself. We hold

       that DOH’s fulfillment of its reporting duty is conduct protected by statutory immunity under

       RCW 18.130.300(1).

              Hiesterman’s reliance on the administrative policy underlying DOH’s actions in this case

       is misplaced because RCW 18.130.300(1) makes no distinction between the investigative and

       administrative work of DOH staff. Hiesterman directs our attention to a purpose of the statutory

       immunity as discussed in the Janaszak opinion, he misreads the point of the Janaszak court.

       Hiesterman asserts that the immunity in RCW 18.130.300(1), is not intended to protect the

       individual, but instead to protect only the decision making process, and that immunity therefore

       should not extend to those performing acts that are non-quasi-judicial, such as reporting.

              While it is true that an underlying policy is to protect the decision making process, we will

       not read the policy to nullify the plain unambiguous language of the statute, which grants immunity

       to “[t]he secretary, members of the boards or commissions, or individuals acting on their behalf .

       . . based on any disciplinary proceedings or other official acts performed in the course of their

       duties.” RCW 18.130.300(1). And since notification via press release is an official act performed

       in the course of their duties, those performing those non-quasi-judicial acts on behalf of the Board

       are also protected by the statutory immunity.

              The immunity under RCW 18.130.300(1) includes the reporting mandate of RCW

       18.130.110(2)(c). We affirm the trial court’s summary judgment order.4

       4
         DOH conditionally cross-appeals, arguing that Hiesterman’s affidavit includes inadmissible
       evidence that should be stricken. DOH concedes that we should only review this argument if it
       reverses the trial court’s summary judgment order. Because we affirm the trial court’s summary
       judgment order, we do not consider DOH’s conditional cross-appeal.

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                                                CONCLUSION

               We decline to consider Hiesterman’s constitutional challenges under RAP 2.5(a)(3)

       because the alleged constitutional errors are not manifest. We also conclude that the plain language

       of RCW 18.130.300(1) provides immunity to the Board and those performing the reporting

       function on its behalf. We affirm the trial court’s summary judgment order.

               A majority of the panel having determined that this opinion will not be printed in the

       Washington Appellate Reports, but will be filed for public record in accordance with RCW 2.06.040,

       it is so ordered.

                                                                    Veljacic, J.

       We concur:

               Worswick, J.P.T.

               Cruser, A.C.J.

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