This article, co-authored by Bryan Schwartz Law's principal and Eduard Meleshinsky, is reprinted with the permission of Bloomberg BNA’s Health Law Reporter. The original article is available at here.
Nurses on the front lines of patient care have a significantly
greater likelihood of sustaining a workplace
injury than average private sector workers.
The Bureau of Labor Statistics reports that nurses suffer
greater numbers of musculoskeletal injuries than either
firefighters or police patrol officers. Press
Release, Bureau of Labor Statistics, Department of Labor, USDL-14-2246,
Nonfatal Occupational Injuries and Illnesses Requiring Days Away From Work,
2013 (Dec. 16, 2014), available at http://www.bls.gov/news.release/pdf/osh2.pdf. As a result,
health care employers need to be particularly mindful
of their legal obligations under the Americans with Disabilities
Act (ADA) and state disability laws, separate
from the requirements of the Family Medical Leave Act
(FMLA), state medical leave laws, and workers’ compensation
statutes.
I. The ADA Creates Strong Protections for
Nurses
The Americans with Disabilities Act (ADA) ensures
that people with disabilities can “fully participate in all
aspects of society.” 42 U.S.C. § 12101(a). Title I of the ADA, the section addressing
employment, provides that a covered employer
many not “discriminate against a qualified individual
on the basis of disability in regard to job application
procedures, the hiring, advancement, or discharge of
employees, employee compensation, job training, and
other terms, conditions, and privileges of employment.” 42 U.S.C. § 12112(a). Under the act, discrimination includes failing
to make reasonable accommodations to an otherwise
qualified job applicant or current employee unless such
accommodations would constitute an undue hardship
on the covered employer. 42 U.S.C. § 12112(b)(5)(A). Determining whether a reasonable accommodation
creates an undue hardship is a fact-intensive inquiry,
and must include consideration of “the overall financial
resources of the facility making the reasonable accommodation;
the number of persons employed at this facility” and “the overall financial resources, size, number
of employees, and type and location of facilities of the
employer (if the facility involved in the reasonable accommodation
is part of a larger entity),” among other
factors. Equal Employment Opportunity Commission, Notice No.
915.002, EEOC Enforcement Guidance on Reasonable Accommodation
and Undue Hardship Under the Americans with Disabilities
Act (2002) (EEOC Notice), available at http://www.eeoc.gov/policy/docs/accommodation.html. See also 42
U.S.C. § 12111(10)(B); 29 C.F.R. § 1630.2(p)(2). Accordingly, proving a reasonable accommodation
constitutes an undue hardship is a difficult task
for all but the smallest health care employers. See, e.g., Borkowski v. Valley Cent. Sch. Dist., 63 F.3d
131, 142 (2d Cir. 1995) (denying summary judgment because “nothing inherently unreasonable or undue in the burden that
an employer would assume by providing an assistant to an employee
with disabilities”); Garcia-Ayala v. Lederle Parenterals,
Inc., 212 F.3d 638, 649 (1st Cir. 2000) (denying summary judgment
on the basis that unpaid leave for more than one year
was not an undue burden as a matter of law); Garza v. Abbott Labs., 940 F. Supp. 1227, 1241-43 (N.D. Ill. 1996) (summary
judgment denied because $9,500 voice recognition system was
not an undue burden as a matter of law); Equal Employment
Opportunity Commission, Questions and Answers about
Health Care Workers and the Americans with Disabilities Act, at Example 22 (2002) (EEOC Q&A) (presenting hypothetical where purchasing
a $1,500 mechanical patient lifting device is not an undue
hardship for a large hospital seeking to accommodate a nursing
assistant with a back injury), available at http://www.eeoc.gov/facts/health_care_workers.html.
Furthermore, an employer cannot rely on generalized
stereotypes of disabilities in deciding whether to grant
a request for a reasonable accommodation. Instead, an
employer must enter into a good-faith interactive process
with an eligible employee to determine whether
any reasonable accommodations are possible based on
an individualized assessment of the employee’s restrictions
and the essential duties of the job. 49 C.F.R. § 1630.2(o)(3).
II. Consider the Full Range of
Accommodations Nurses May Require
While injury prevention should be every employer’s
goal, nurses likely will continue to account disproportionately
for on-the-job back injuries. Accordingly, hospitals
should design their leave and accommodation
policies to consider the unique facts at issue when nursing
staff is injured.
When a nurse suffers a back or other type of injury,
she or he often remains capable of performing the vast
majority of her job duties. If the back injury substantially
limits her in one or more major life activities (personal
care, driving for long periods, lifting, bending, sitting,
working, etc.), she or he will have an ADA-covered
disability. See, e.g., EEOC v. AutoZone, Inc., 630 F.3d 635, 637 (7th
Cir. 2010) (employee sustained an injury to his back that limited
his ability to carry out many activities requiring physical
exertion, such that a reasonable jury could find him substantially
limited in the major life activity of personal care); Norris
v. Allied-Sysco Food Servs., Inc., 948 F. Supp. 1418 (N.D. Cal.
1996), aff’d, 191 F.3d 1043 (9th Cir. 1999), cert. denied 528
U.S. 1182 (2000) (employee with a back injury had an ADA covered
disability because of acute pain and substantial limitations
on driving, lifting, and working in a broad class of jobs). It is incumbent on the employer to perform
an individualized assessment of the injured nurse and
determine whether the nurse can perform her or his essential
job duties with or without reasonable accommodations.
Many health care employers make the mistake
of thinking too narrowly about what constitutes a reasonable
accommodation.
Under the ADA, the following is a nonexhaustive
list of reasonable accommodations:
- Job restructuring,
- Modified or part-time schedule,
- Leave, and, if no other reasonable accommodation
exists,
- Reassignment
See EEOC Notice; See also 42
U.S.C. § 12111(10)(B); 29 C.F.R. § 1630.2(p)(2).
1. Job restructuring
An employer can choose to modify injured nurses’
job duties such that they are not required to perform
certain physically demanding tasks permanently, or
temporarily while recuperating. Healthy nurses can be
assigned more strenuous activities while injured nurses
remain capable of serving many less physically demanding
functions in a hospital or medical facility, such
as calling patients before a procedure and medical coding.
Job restructuring is often a sound business decision
given the costs of training new nurses. Hospital Patient and Health Care Worker Injury Protection
Act, Ch. 554, § 2(d), 2011 Cal. Legis. Serv. (codified at Cal.
Lab. Code § 6403.5) (California Legislature found that the cost “to train and orient each new nurse” was “between sixty thousand
dollars ($60,000) and one hundred forty thousand dollars
($140,000)”).
2. Modified or Part-time Schedule
At times, an injured nurse may be released back to
work by a doctor, but only with a reduced or modified
schedule. Honoring such a schedule is critical for injured
nurses who can return to work, but who, for example,
still require time-intensive physical therapy to
regain physical functioning. Health care employers
must consider allowing a modified or part-time schedule
unless doing so would impose an undue hardship on
operations. See, e.g., Ward v. Mass. Health Research Inst., Inc., 209
F.3d 29, 36 (1st Cir. 2000) (rejecting employer’s “general statements
regarding the snowball effect” of allowing disabled employee
part-time schedule because “[t]he ADA explicitly states
that ‘job restructuring’ and ‘part-time or modified work schedules’
are potential reasonable accommodations”) (citing to 42
U.S.C. § 12111(9)(B)).
3. Leave
Often, a back injury can last more than the 12 weeks
of medical leave guaranteed by the FMLA. However, inflexible
leave policies that apply a one-size-fits-all approach
to injured nurses violate the ADA. Additional
leave should always be considered as a reasonable accommodation
regardless of the injured worker’s FMLA
eligibility, sick time, vacation time, or other benefits. Humphrey v. Mem’l Hospitals Ass’n, 239 F.3d 1128,
1137-39 (9th Cir. 2001) (employer violated ADA by failing to
consider leave of absence in carrying out its “mandatory obligation
under the ADA to engage in an interactive process with
the employee to identify and implement appropriate reasonable
accommodations”); Press Release, Equal Employment
Opportunity Commission, Princeton Healthcare Pays $1.35
Million to Settle Disability Discrimination Suit with EEOC
(June 6, 2014) (EEOC Release), available at http://
www.eeoc.gov/eeoc/newsroom/release/6-30-14.cfm (employer’s
leave policy that “merely tracked the requirements of the
federal Family Medical Leave Act” violated the ADA); Shannon
v. City of Philadelphia, No. CIV.A. 98-5277, 1999 WL
1065210, at *5 (E.D. Pa., Nov. 23, 1999) (reasonable accommodation
may require an employer “to grant liberal time off or
leave without pay when paid sick leave is exhausted and when
the disability is of a nature that it is likely to respond to treatment
[or] hospitalization”) (citing Department of Labor regulations
for disability accommodation law covering federally funded
programs). The EEOC is targeting inflexible leave policies as one of
its regulatory priorities, and has successfully obtained
seven-figure outcomes and injunctive relief against
health care employers for their inflexible leave policies. See EEOC Release. Health care employers should revisit any leave
policies providing for automatic termination following a
fixed period of leave.
4. Reassignment
Reassignment to a vacant position is an often misunderstood
form of reasonable accommodation, though it
is required under the ADA. 42 U.S.C. § 12111(9)(A). Reassignment should be
used as an accommodation of last resort after the employer
and employee agree that no reasonable accommodation
is possible in the employee’s current position
either long-term or permanently. If a nurse’s injury is so
severe as to render her or him unable to safely handle
patients or otherwise limits performing essential job
functions, and no other reasonable accommodations
exist, the health care employer must consider reassignment.
If any vacant position is available for which the
injured nurse is qualified, then the employer must reassign
the nurse without a competitive application process. Smith v. Midland Brake, Inc., 180 F.3d 1154, 1164 (10th
Cir. 1999) (“ ‘reassignment’ must mean something more than
the mere opportunity to apply for a job with the rest of the
world.... ‘reassign’ must mean more than allowing an employee
to apply for a job on the same basis as anyone else. An
employee who on his own initiative applies for and obtains a
job elsewhere in the enterprise would not be described as having
been ‘reassigned. . . .’ ”). However, the ADA does not require
preferential reassignment if the vacant position would
constitute a promotion. See EEOC Notice, at Question 24. Reassignment must be considered not just in the
single facility in which the injured nurse previously
worked, but at all of the employer’s locations. EEOC Notice, at Question 27 (employer’s obligation to reassign
is not “limited to those vacancies within an employee’s office,
branch, agency, department, facility, personnel system (if
the employer has more than a single personnel system), or
geographical area”). Disabled nurses still have a wide range of skills that
can be deployed in a variety of positions such as medical
coding, auditing, patient interviewing (including
pre-visit calls), training other health care workers, quality
assurance, supply management, infection control,
and many more. In addition to the medical skills mentioned
above, hospitals have many stationary (e.g., administrative)
positions that an injured nurse could perform
effectively. Frequently, employers do not consider
all of these potential positions that a disabled nurse can
successfully occupy.
One overlooked position is case manager, with duties
such as providing day-to-day case management to patients
by “documenting the costs of care, preparing reports
regarding a plan of care, and identifying and
implementing medical services to meet the needs of” patients. Rieve v. Coventry Health Care, Inc., 870 F. Supp. 2d 856,
864 (C.D. Cal. 2012). A case manager position utilizes nurses’
wealth of medical knowledge and patient interaction
skills without significant physical exertion.
A good-faith effort by health care employers likely
would uncover similar positions within their organizations
should reassignment be necessary. In general, “Employers, who fail to engage in the interactive process
in good faith, face liability for the remedies imposed
by the [ADA] if a reasonable accommodation
would have been possible.” Humphrey, 239 F. 3d at 1137-38 (internal citations and
quotation marks omitted).
III. Workers’ Compensation Compliance
Does Not Equate to ADA Compliance.
Because nurses are frequently injured on the job,
they often file a claim for workers’ compensation benefits
in conjunction with taking a medical leave. A common
mistake committed by health care employers is
substituting compliance with a workers’ compensation
statute for compliance with the ADA. This mistaken belief
can lead to costly liability.
The authors of this article represented a registered
nurse in a disability accommodation action against her
health care employer for failure to timely accommodate
her disability. She injured her back at work and went
on leave. When she returned, she was reassigned because
her physical restrictions prevented her from serving
in her previous position. After three months, however,
she was notified that she would be put on indefinite,
unpaid leave until her restrictions were
determined to be “permanent” by the workers’ compensation
medical examiner—a process that can take
years. Indeed, she was forced out on unpaid leave for 19
months without any attempt by the employer to explore
reasonable accommodations such as reassignment to a
different position.
Conflating ADA obligations with workers’ compensation
obligations, or those under leave laws or other
statutory schemes, can lead to liability. In the case just
discussed, the nurse was forced out of her job without
any consideration of a reasonable accommodation (of
which there were many possible) because of a mistaken
belief that no accommodation was necessary until the
workers’ compensation process had been completed.
IV. Conclusion.
A prudent health care employer will ensure that its
ADA policy is reviewed for compliance with the ADA’s
demanding requirements. If you employ nurses, you
should be helping disabled nurses to keep utilizing their
valuable talents and experience in your service, and in
service of your patients.