FOR PUBLICATION 

 

ATTORNEY FOR APPELLANT: ATTORNEYS FOR APPELLEE: 

 

GEOFFREY S. LOHMAN STEVE CARTER 

Fillenwarth Dennerline Groth & Towe Attorney General of Indiana 

Indianapolis, Indiana 

 ANITA WYLIE 

 Deputy Attorney General 

 Indianapolis, Indiana 

 

 

 

 IN THE 

 COURT OF APPEALS OF INDIANA 

 

 

 

MILDRED WHITESIDE, ) 

) 

Appellant-Claimant, ) 

) 

vs. ) No. 93A02-0703-EX-229 

) 

INDIANA DEPARTMENT OF WORKFORCE ) 

DEVELOPMENT, UNEMPLOYMENT ) 

INSURANCE REVIEW BOARD and DIVISION ) 

OF FAMILY & CHILDREN, ) 

Appellees. ) 

 

 

 APPEAL FROM THE INDIANA DEPARTMENT OF WORKFORCE DEVELOPMENT, 

UNEMPLOYMENT INSURANCE REVIEW BOARD 

 The Honorable Steven F. Bier 

 The Honorable George H. Baker 

The Honorable Sheri L. Clark 

 Cause No. 07-R-263 

 

 



 September 19, 2007 

 

 

 OPINION - FOR PUBLICATION 

 

 

BARNES, Judge 

 

Case Summary 

 Mildred Whiteside appeals the decision of the Review Board of the Indiana 
Department of Workforce Development (“Review Board”) denying her claim for 
unemployment benefits. We affirm. 

Issue 

 Whiteside presents one issue for review, which we restate as whether the denial of 
her claim for unemployment benefits was contrary to Indiana law. 

Facts 

 Whiteside began her career with the Indiana Division of Family and Children 
Services on December 17, 1979. She was a full time employee and voluntarily left her 
employment on September 25, 2006. Whiteside left her employment to provide care to 
her adult son, who is quadriplegic. Prior to leaving, Whiteside requested and was denied 
family medical leave pursuant to the Family and Medical Leave Act (“FMLA”).1 
Whiteside was not eligible for this leave because she had not worked the requisite 1250 
hours in the previous twelve months. Whiteside had previously utilized FMLA leave to 
assist in her son’s rehabilitation. 

1 The FMLA requires covered employers to provide up to twelve weeks of unpaid, job-protected leave to 
eligible employees for certain family and medical reasons, including health conditions of children. See 
generally 29 U.S.C. § 2611. 


 Following her resignation, Whiteside filed a claim for unemployment benefits. 
The Indiana Department of Workforce Development (“Workforce Development”) first 
denied Whiteside’s request for benefits on October 27, 2006. On November 3, 2006, 
Whiteside filed a notice of appeal with Workforce Development regarding the denial. 
Following a hearing on January 2, 2007, an Administrative Law Judge (“ALJ”) affirmed 
the denial of benefits. The ALJ concluded that Whiteside voluntarily left her 
employment without good cause in connection to her work. On January 18, 2007, 
Whiteside appealed the ALJ’s decision to the Review Board. In issuing its decision, the 
Review Board affirmed the ALJ and adopted the ALJ’s findings of fact and conclusions 
of law. This appeal followed. 

Analysis 

 Whiteside contends the Review Board’s finding are contrary to law. Specifically, 
she argues the Board erred by failing to apply Indiana Code Section 22-4-15-1(c)(2). 
Whiteside contends this statutory subsection should grant her unemployment benefits by 
taking into account her son’s disability. 

When a decision of the Review Board is challenged as contrary to law, as here, we 
utilize a two-part inquiry into the sufficiency of the facts sustaining the decision and the 
sufficiency of the evidence sustaining the facts. McHugh v. Review Bd. of Ind. Dep’t of 
Workforce Dev., 842 N.E.2d 436, 440 (Ind. Ct. App. 2006) (citing Ind. Code § 22-4-17-
12(f)). In doing so, we consider determinations of basic underlying facts, conclusions or 
inferences from those facts, and conclusions of law. Id. The Review Board’s findings of 
fact are subject to a substantial evidence standard of review. Id. “Any decision of the 


review board shall be conclusive and binding as to all questions of fact.” I.C. § 22-4-17-
12(a). We do not reweigh the evidence or assess the credibility of witnesses. McHugh, 
842 N.E.2d at 440. Regarding the Board’s conclusions of law, we assess whether the 
Board correctly interpreted and applied the law. Id. Questions of statutory interpretation 
are questions of law reserved for the courts. GPI at Danville Crossing, L.P. v. West Cent. 
Conservancy Dist., 867 N.E.2d 645, 653 (Ind. Ct. App. 2007). 

The Board here adopted the findings of fact and conclusions of law of the ALJ. 
Whiteside does not dispute the findings of fact by the ALJ. Rather, Whiteside contends 
the Board misapplied the law in its reliance on Indiana Code Section 22-4-15-1(a). That 
subsection sets out grounds for disqualification for unemployment benefits and provides 
that “an individual who has voluntarily left the individual’s most recent employment 
without good cause in connection with the work” is ineligible. I.C. § 22-4-15-1(a). This 
statute requires that the employee’s reason for terminating cannot be purely subjective or 
personal. Kentucky Truck Sale, Inc. v. Review Bd. of Ind. Dep’t of Workforce Dev., 725 
N.E.2d 523, 525 (Ind. Ct. App. 2000). There is no question that Whiteside voluntary left 
her employment for a cause unrelated to her work and personal to her. She left on her 
own accord to take care of her son, an admirable decision, yet we conclude the ALJ and 
the Review Board were correct in their findings of fact and application of the law to deny 
unemployment benefits to Whiteside pursuant to Indiana Code Section 22-4-15-1(a). 

Whiteside contends that one of the exclusions for physical disability in the statute 
should have been applied to her to allow receipt of benefits. That section provides: “An 
individual whose unemployment is the result of medically substantiated physical 


disability and who is involuntary unemployed after having made reasonable efforts to 
maintain the employment relationship shall not be subject to disqualification under this 
section for such separation.” I.C. § 22-4-15-1(c)(2). Whiteside argues that this 
subsection should be interpreted to excuse employees not only for their own disability, 
but also for the disability of a family member. We disagree. This subsection does not 
expressly include any language to indicate disability of anyone other than the claimant 
should be considered. This subsection is not ambiguous and giving the words their plain 
and ordinary meaning, it does not include disability of relatives of the claimant. It would 
be necessary to add in additional words, phrases, and elements to read in such an 
expansion of the subsection. We will not engage in re-writing this statute. GPI at 
Danville Crossing, 867 N.E.2d at 653 (“Nothing may be read into a statute which is not 
within the manifest intention of the legislature as ascertained from the plain and obvious 
meaning of the words of the statute.”). 

Taken in context with the entire statutory section, this language relied on by 
Whiteside clearly only refers to “an individual’s” disability. Each subpart within 
subsection “c” of the statute begins with the phrase “an individual.” See e.g. I.C. § 22-4-
15-1(c)(1) (“An individual shall not be subject to disqualification. . .”); I.C. § 22-4-15-
1(c)(3) (“An individual who has left work to enter. . .”); I.C. § 22-4-15-1(c)(5) (“An 
otherwise qualified individual. . .”). Whiteside’s interpretation does not comport with a 
reading of the statute as a whole. Izaak Walton League of America, Inc. v. DeKalb 
County Surveyor’s Office, 850 N.E.2d 957, 965 (Ind. Ct. App. 2006), trans. denied, 


(“Because statutes are examined as a whole, it is often necessary to avoid excessive 
reliance on a strict literal meaning of the words or phrases in the statute.”). 

Even if we were to view this subsection as ambiguous, “we will presume the 
legislature intended its language to be applied logically and consistently with the 
underlying goals and policy of the statute.” State v. Hammans, 870 N.E.2d 1071, __ 
(Ind. Ct. App. 2007). “A statute’s meaning and interpretation are to be ascertained not 
only from the phraseology of the statute but also by considering its nature, design, and 
the consequences that flow from the reasonable alternative interpretations of the statute.” 
Id. The design and phrases of this statute do not contemplate providing unemployment 
benefits to Indiana workers who leave the workforce because of a relative’s disability. 
Whiteside’s interpretation of this subsection would increase the availability of 
unemployment benefits to an undefined class of employees which could include those 
with ailing parents, spouses, siblings, children or other dependants, yet nothing in the 
Unemployment Compensation Act suggests our legislature intended this result. While 
we empathize with Whiteside’s difficult circumstance and find her decision to care for 
her son in a full time capacity commendable, Indiana’s Act does not provide for benefits 
in this instance. Because Whiteside was not personally suffering from a substantiated 
medical disability, the Board had no reason to consider or apply this statutory section in 
reaching its conclusions of law. 

Conclusion 

 Indiana Code Section 22-4-15-1(c)(2) does not include exclusions for disability of 
a claimant’s relative and therefore does apply to make Whiteside eligible for benefits due 


to her son’s disability. The Review Board had no reason to apply this statute and its 
conclusions of law were correct. We affirm. 

 Affirmed. 

KIRSCH, J., and ROBB, J., concur.