Robert P. Fitzsimmons, Esquire
William
E. Galeota, Esquire
Wheeling, West Virginia
Morgantown,
West Virginia
Attorney for Appellant
Ancil
G. Ramey, Esquire
R.
Christopher Anderson, Esquire
Charleston,
West Virginia
Steptoe
& Johnson
Attorneys
for Appellee
The Opinion of the Court was delivered PER CURIAM.
CHIEF JUSTICE MAYNARD concurs in part and dissents in part and reserves the right
to file a concurring/dissenting Opinion.
JUSTICE DAVIS concurs in part and dissents in part and reserves the right
to file a concurring/dissenting Opinion.
JUSTICE STARCHER dissents and reserves the right to file a dissenting Opinion.
JUSTICE MCGRAW dissents and reserves the right to file a dissenting Opinion.
1. 'In considering
the constitutionality of a legislative enactment, courts must exercise due restraint,
in recognition of the principle of the separation of powers in government among
the judicial, legislative and executive branches. [W.Va. Const. art.
V, § 1.] Every reasonable construction must be resorted to by the courts
in order to sustain constitutionality, and any reasonable doubt must be resolved
in favor of the constitutionality of the legislative enactment in question.
Courts are not concerned with questions relating to legislative policy. The
general powers of the legislature, within constitutional limits, are almost
plenary. In considering the constitutionality of an act of the legislature,
the negation of legislative power must appear beyond reasonable doubt.
Syl. pt. 1, State ex rel. Appalachian Power Co. v. Gainer, 149 W.Va.
740, 143 S.E.2d 351 (1965).' Syl. pt. 2, West Virginia Public Employees Retirement
System v. Dodd, 183 W.Va. 544, 396 S.E.2d 725 (1990). Syl. Pt. 1,
Robinson v. Charleston Area Medical Center, Inc., 186 W.Va. 720, 414
S.E.2d 877 (1991).
2. ''Where economic
rights are concerned, we look to see whether the classification is a rational
one based on social, economic, historic or geographic factors, whether it bears
a reasonable relationship to a proper governmental purpose, and whether all
persons within the class are treated equally. Where such classification is rational
and bears the requisite reasonable relationship, the statute does not violate
Section 10 of Article III of the West Virginia Constitution, which is our equal
protection clause. Syllabus Point 7, [as modified,] Atchinson v. Erwin,
[172] W.Va. [8], 302 S.E.2d 78 (1983).' Syllabus Point 4, as modified, Hartsock-Flesher
Candy Co. v. Wheeling Wholesale Grocery Co., [174] W.Va. [538], 328 S.E.2d
144 (1984). Syl. pt. 4, Gibson v. West Virginia Department of Highways,
185 W.Va. 214, 406 S.E.2d 440 (1991).' Syl. Pt. 2, Robinson v. Charleston
Area Medical Center, Inc., 186 W.Va. 720, 414 S.E.2d 877 (1991).
3. W.Va.Code,
55-7B-8, as amended, which provides a $1,000,000 limit or 'cap' on the amount
recoverable for a noneconomic loss in a medical professional liability action
is constitutional. It does not violate the state constitutional equal protection,
special legislation, state constitutional substantive due process, 'certain
remedy,' or right to jury trial provisions. W.Va. Const. art. III, §
10; W.Va. Const. art. VI, § 39; W.Va. Const. art. III, §
10; W.Va. Const. art. III, § 17; and W.Va. Const. art. III,
§ 13, respectively. Syl. Pt. 5, Robinson v. Charleston Area Medical
Center, Inc., 186 W.Va. at 720, 414 S.E.2d 877 (1991).
Per Curiam:
Appellant, the estate of Marjorie I. Verba, asks this
Court to revisit its previous decision in Robinson v. Charleston Area Medical
Center, Inc., 186 W.Va. 720, 414 S.E.2d 877 (1991), in which we, acting unanimously,
upheld the constitutionality of the $1,000,000 cap imposed by West Virginia Code
§ 55-7B-8 (2000) on noneconomic damages that are awarded in medical
malpractice cases. Asserting that the cap violates multiple constitutional provisions,
Appellant seeks a reversal of the June 24, 1999, order of the Circuit Court of
Ohio County, granting Appellee David A. Ghaphery's motion to alter or amend the
judgment, through which the jury's award of noneconomic damages was reduced to
$1,000,000. After thoroughly considering the arguments raised, we find no basis
for altering our prior ruling in Robinson, and accordingly, we affirm the
decision of the lower court.
Appellant initiated a medical
malpractice action against Dr. Ghaphery and after hearing the evidence and arguments
regarding the issue of whether Dr. Ghaphery deviated from the accepted standards
of care, the jury found for Appellant. The jury awarded $300,000 for physical
pain, mental pain, and loss of enjoyment of life; $21,000 for medical and funeral
bills; and $2,500,000 to the beneficiaries of Ms. Verba's estate under the wrongful
death statute. See W.Va. Code § 55-7-6 (2000). By order entered
on July 24, 1999, the trial court reduced the judgment to $1,020,510.51, as
required by the medical malpractice cap set forth in West Virginia Code § 55-7B-8.
Based upon its position that the statutory cap at issue is unconstitutional,See
footnote 1 1 Appellant seeks a ruling from this Court that the
reduction of the jury verdict was improper.
'In
considering the constitutionality of a legislative enactment, courts must exercise
due restraint, in recognition of the principle of the separation of powers in
government among the judicial, legislative and executive branches. [W.Va. Const.
art. V, § 1.] Every reasonable construction must be resorted to by the courts
in order to sustain constitutionality, and any reasonable doubt must be resolved
in favor of the constitutionality of the legislative enactment in question. Courts
are not concerned with questions relating to legislative policy. The general powers
of the legislature, within constitutional limits, are almost plenary. In considering
the constitutionality of an act of the legislature, the negation of legislative
power must appear beyond reasonable doubt.' Syl. pt. 1, State ex rel. Appalachian
Power Co. v. Gainer, 149 W.Va. 740, 143 S.E.2d 351 (1965). Syl. pt.
2, West Virginia Public Employees Retirement System v. Dodd, 183 W.Va.
544, 396 S.E.2d 725 (1990).
Syl. Pt. 1, Robinson, 186 W.Va. at 722, 414 S.E.2d at 879.
We then identified the level
of constitutional scrutiny which is applied to
issues affecting economic rights:
'Where
economic rights are concerned, we look to see whether the classification is
a rational one based on social, economic, historic or geographic factors, whether
it bears a reasonable relationship to a proper governmental purpose, and whether
all persons within the class are treated equally. Where such classification
is rational and bears the requisite reasonable relationship, the statute does
not violate Section 10 of Article III of the West Virginia Constitution, which
is our equal protection clause. Syllabus Point 7, [as modified,] Atchinson
v. Erwin, [172] W.Va. [8], 302 S.E.2d 78 (1983).' Syllabus Point 4, as modified,
Hartsock-Flesher Candy Co. v. Wheeling Wholesale Grocery Co., [174] W.Va.
[538], 328 S.E.2d 144 (1984). Syl. pt. 4, Gibson v. West Virginia Department of Highways, 185 W.Va. 214, 406 S.E.2d 440 (1991).
Syl. Pt. 2, Robinson, 186 W.Va. at 722-23, 414 S.E.2d at 879-80.
After considering essentially
the same constitutional challenges as Appellant raises in this case,See
footnote 2 2 we held that:
W.Va.Code,
55-7B-8, as amended, which provides a $1,000,000 limit or cap on
the amount recoverable for a noneconomic loss in a medical professional liability
action is constitutional. It does not violate the state constitutional equal
protection, special legislation, state constitutional substantive due process,
certain remedy, or right to jury trial provisions. W.Va. Const.
art. III, § 10; W.Va. Const. art. VI, § 39; W.Va. Const.
art. III, § 10; W.Va. Const. art. III, § 17; and W.Va. Const.
art. III, § 13, respectively.
Syl. Pt. 5, Robinson, 186 W.Va. at 723, 414 S.E.2d at 880.
Appellant urges this Court to
reverse its prior determination in Robinson that the medical malpractice
cap is constitutional. See id. The only new arguments, which were
not considered by this Court when Robinson was issued, concern the effects
of inflation on the $1,000,000 cap, the lack of evidence indicating that medical
malpractice reform has lessened either health care costs or malpractice premiums,
and an alleged separation of powers problem. We address these new
arguments in turn.
Appellant looks to dicta in
Robinson which suggested that, if the legislature decided to lower the
$1,000,000 cap, the Court might reconsider its position on the reasonableness
of the cap. See id. at 730, 414 S.E.2d at 887. In making her argument
that inflation has sufficiently affected the reasonableness of the cap,See
footnote 3 3 Appellant overlooks a critical aspect of this Court's
language in Robinson. We did not invite a reconsideration of the reasonableness
of the cap based on inflationary effects; what we did was to state that if the
legislature were to modify (i.e. reduce) the cap, we might find the
reduced amount not to be reasonable. Id. Our analysis of the statutory
cap in Robinson was founded on whether the act of the legislature was
constitutional. Just as it was within the legislature's proper exercise of its
authority in initially setting the cap, it is similarly up to the legislature to make any amendments to that legislation. As we observed
in Robinson, the judiciary may not sit as a superlegislature to
judge the wisdom or desirability of legislative policy determinations made in
areas that neither affect fundamental rights nor proceed along suspect lines.
Id. at 726, 414 S.E.2d at 883 (quoting Lewis v. Canaan Valley Resorts,
Inc., 185 W.Va. 684, 692, 408 S.E.2d 634, 642 (1991)); see Pulliam
v. Coastal Emergency Servs., 509 S.E.2d 307, 318 (Va. 1999) (upholding statutory
medical malpractice cap and finding that no fundamental right or suspect
class is affected by application of the medical malpractice cap).
For essentially the same reasons that this Court cannot decide to effectively raise the amount of the cap,See footnote 4 4 we similarly are not the body that should examine whether medical malpractice reform is meeting the objectives cited by the legislature in enacting the West Virginia Medical Professional Liability Act,See footnote 5 5 West Virginia Code §§ 55-7B-1 to -11 (2000). Appellant relies on a seemingly outdated 1987 GAO study to support its position that this type of reform does not have a major effect on the cost of malpractice insurance. Conversely, Appellee cites to a more recent law review article which suggests that there is empirical evidence demonstrating that such reform does have an effect on malpractice costs. See W. Kip Viscusi and Patricia Born, Medical Malpractice Insurance in the Wake of Liability Reform, 24 J.Legal Stud. 463 (1995). Notwithstanding the apparent conflict of positions on this issue of whether the objectives sought to be achieved through the enactment of the Medical Professional Liability Act can be met, it is up to the Legislature, and not this Court, to consider and resolve these arguments which concern the wisdom of medical malpractice reform. As we stated in Robinson, W.Va. Code, 55-7B-8, as amended, . . . is an integral part of the comprehensive resolution of the clear social and economic problem reasonably perceived by the legislature in enacting the Act. 186 W.Va. at 729, 414 S.E.2d at 886.
Finally, Appellant suggests that
the medical malpractice cap violates the separation of powers doctrine.
See W.Va. Const. art. V, § 1. With little discussion, Appellant
argues that the cap effectively constitutes a legislative remittitur for any verdict
that exceeds $1,000,000 in noneconomic damages. As in Robinson, this Court
has on many occasions acknowledged the constitutional basis for legislative alteration
of the common law. 186 W.Va. at 727, 414 S.E.2d at 884 (stating that the
general authority of the legislature to alter or repeal the common law is expressly
conferred by article VIII, section 13 of the Constitution of West Virginia)
(quoting Lewis, 185 W.Va. at 694, 408 S.E.2d at 644); accord Gilman
v. Choi, 185 W.Va. 177, 185-86, 406 S.E.2d 200, 208-09 (1990) (stating [c]ertainly
the Legislature can change the common law and the indisputable fact
[is] that the legislature has the power to change the common law of this State),
overruled on other grounds as stated in Mayhorn v. Logan Med. Found., 193
W.Va. 42, 454 S.E.2d 87 (1994); Wallace v. Wallace, 155 W.Va. 569, 580,
184 S.E.2d 327, 333-34 (1971) (recognizing that Article VIII, Section 21
. . . provides in part that 'Such parts of the common law . . . shall be and continue
the law of the State until altered or repealed by the legislature'), overruled
on other grounds as stated in Belcher v. Goins, 184 W.Va. 395, 406 S.E.2d
830 (1990). This power to alter the common law has been recognized to 'necessarily
include[] the power to set reasonable limits on recoverable damages in causes
of action the legislature chooses to recognize.' Edmonds v. Murphy,
573 A.2d 853, 861 (Md. Ct. Spec. App. 1990) (quoting Franklin v. Mazda Motor
Corp., 704 F.Supp. 1325, 1336 (D. Md. 1989)), aff'd, 601 A.2d 102 (Md. 1992).
The Maryland court reasoned, and we agree, 'that if the legislature can,
without violating separation of powers principles, establish statutes of limitation,
establish statutes of repose, create presumptions, create new causes of action
and abolish old ones, then it also can limit noneconomic damages without violating
the separations of powers doctrine. . . .' 573 A.2d at 861 (quoting Franklin,
704 F.Supp. at 1336).
Having addressed those issues
which were not raised at the time of Robinson, and finding no basis for
holding the cap unconstitutional on those novel grounds, we must determine whether
there is any merit to reconsidering the constitutional arguments previously
discussed in Robinson. Rather than offering any basis for declaring this
Court's decision in Robinson to be in error, Appellant simply urges this
Court to adopt the conclusion reached by other courts that caps, such as those
at issue here, violate particular constitutional provisions. See, e.g.
Smith v. Schulte, 671 So.2d 1334 (Ala. 1995), cert. denied,
517 U.S. 1220 (1996); Best v. Taylor Mach. Works, 689 N.E.2d 1057 (Ill.
1997); Martin v. Richey, 711 N.E.2d 1273 (Ind. 1999); State ex rel.
Ohio Academy of Trial Lawyers v. Sheward, 715 N.E.2d 1062 (Ohio 1999). Critically,
however, each of those cases cited by Appellant involved constitutional challenges
raised in the first instance. Because this Court has previously ruled on the
multiple constitutional challenges raised here by Appellant, and found no constitutional
impediment to enforcement of the provisions of the medical malpractice cap, this Court's
prior ruling is subject to the judicial doctrine of stare decisis.
In Booth v. Sims, 193 W.Va. 323, 456 S.E.2d 167 (1995), we discussed
this doctrine:
The doctrine of stare
decisis rests upon the principle that law by which men are governed should be
fixed, definite, and known, and that, when the law is declared by court of competent
jurisdiction authorized to construe it, such declaration, in absence of palpable
mistake or error, is itself evidence of the law until changed by competent authority.
Id. at 350 n.14, 456 S.E.2d at 194 n.14 (Miller, J., dissenting and concurring)
(quoting In re Proposal to Incorporate Town of Chesapeake, 130 W.Va.
527, 536, 45 S.E.2d 113, 118 (1947)). Like the Virginia Supreme Court in Pulliam,
we find that the doctrine of stare decisis prevents this Court
from overturning our initial decision in Robinson upholding West Virginia
Code § 55-7B-8 on constitutional grounds. 186 W.Va. at 723, 414 S.E.2d
at 880, syl. pt. 5; Pulliam, 509 S.E.2d at 321 (refusing to find statutory
cap on medical malpractice damages unconstitutional under doctrine of stare
decisis).
Based on the foregoing, the
decision of the Circuit Court of Ohio County is hereby affirmed.
Affirmed.
The
Legislature hereby finds and declares that the citizens of this state are entitled
to the best medical care and facilities available and that health care providers
offer an essential and basic service which requires that the public policy of
this state encourage and facilitate the provision of such service to our citizens:
That
as in every human endeavor the possibility of injury
or death from negligent conduct commands that protection of the public served
by health care providers be recognized as an important state interest;
That
our system of litigation is an essential component of this state's interest
in providing adequate and reasonable compensation to those persons who suffer
from injury or death as a result of professional negligence;
That
liability insurance is a key part of our system of litigation, affording compensation
to the injured while fulfilling the need and fairness of spreading the cost
of the risks of injury;
That
a further important component of these protections is the capacity and willingness
of health care providers to monitor and effectively control their professional
competency, so as to protect the public and ensure to the extent possible the
highest quality of care;
That
it is the duty and responsibility of the Legislature to balance the rights of
our individual citizens to adequate and reasonable compensation with the broad
public interest in the provision of services by qualified health care providers
who can themselves obtain the protection of reasonably priced and extensive
liability coverage;
That
in recent years, the cost of insurance coverage has risen dramatically while
the nature and extent of coverage has diminished, leaving the health care providers
and the injured without the full benefit of professional liability insurance
coverage;
That
many of the factors and reasons contributing to the increased cost and diminished
availability of professional liability insurance arise from the historic inability
of this state to effectively and fairly regulate the insurance industry so as
to guarantee our citizens that rates are appropriate, that purchasers of insurance
coverage are not treated arbitrarily, and that rates reflect the competency
and experience of the insured health care providers.
Therefore,
the purpose of this enactment is to provide for a comprehensive resolution of
the matters and factors which the
Legislature finds must be addressed to accomplish the goals set forth above.
In so doing, the Legislature has determined that reforms in the common law and
statutory rights of our citizens to compensation for injury and death, in the
regulation of rate making and other practices by the liability insurance industry,
and in the authority of medical licensing boards to effectively regulate and
discipline the health care providers under such board must be enacted together
as necessary and mutual ingredients of the appropriate legislative response.
W.Va. Code § 55-7B-1.