Laura Castagna v. Board of Review ( 2024 )

NOT FOR PUBLICATION WITHOUT THE
APPROVAL OF THE APPELLATE DIVISION
This opinion shall not "constitute precedent or be binding upon any court ." Although it is posted on the
internet, this opinion is binding only on the parties in the case and its use in other cases is limited. R. 1:36-3.
SUPERIOR COURT OF NEW JERSEY
APPELLATE DIVISION
DOCKET NO. A-2835-21
LAURA CASTAGNA,
Appellant,
v.
BOARD OF REVIEW,
DEPARTMENT OF LABOR,
and SNOW OPERATING LLC,
Respondents,
__________________________
Submitted October 25, 2023 – Decided January 18, 2024
Before Judges Vernoia and Gummer.
On appeal from the Board of Review, Department of
Labor, Docket No. 252748.
Laura Castagna, appellant pro se.
Matthew J. Platkin, Attorney General, attorney for
respondent Board of Review (Sookie Bae-Park,
Assistant Attorney General, of counsel; Gina Marie
Labrecque, Deputy Attorney General, on the brief).
PER CURIAM
Petitioner Laura Castagna appeals from an April 7, 2022 final decision of
the Board of Review. In that decision, the Board affirmed an Appeal Tribunal
determination that petitioner was obligated to refund the Division of
Unemployment Insurance $13,272 in Pandemic Emergency Unemployment
Compensation (PEUC) benefits the Division had paid to petitioner before it
learned she had failed to exhaust her right to regular unemployment benefits in
New York. Based on our review of the record, petitioner's arguments, and the
applicable legal principles, we affirm in part and remand in part for further
proceedings consistent with this decision.
I.
On March 27, 2020, Congress enacted the Coronavirus Aid, Relief, and
Economic Security Act (CARES Act), 15 U.S.C. §§ 9001 to 9141. Under the
CARES Act, states were able to enter into agreements with the United States
Secretary of Labor to provide PEUC benefits to individuals who:
(A) have exhausted all rights to regular compensation
under the State law or under Federal law with respect
to a benefit year (excluding any benefit year that ended
before July 1, 2019); (B) have no rights to regular
compensation with respect to a week under such law or
any other State unemployment compensation law or to
compensation under any other Federal law; (C) are not
receiving compensation with respect to such week
under the unemployment compensation law of Canada;
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and (D) are able to work, available to work, and
actively seeking work.
[Id. at § 9025(a)(2)(A)-(D).]
According to the United States Department of Labor, "[a]ll states voluntarily
signed an 'Agreement Implementing the Relief for Workers Affected by
Coronavirus Act' . . . with the Secretary in March 2020 to administer the . . .
PEUC program . . . ." Dep't of Lab., Unemployment Insurance Program Letter
UIPL No. 05-24, Application of State Finality Laws Regarding Temporary
Unemployment Compensation (UC) Programs under the Coronavirus Aid,
Relief, and Economic Security (CARES) Act 2 (Dec. 29, 2023).
New Jersey's Unemployment Compensation Law, N.J.S.A. 43:21-1 to
-24.30, provides:
During an emergency unemployment benefit period, an
exhaustee who otherwise continues to meet the
eligibility requirements for regular benefits pursuant to
the provisions of the "unemployment compensation
law," [N.J.S.A.] 43:21-1 [to -24.30], and who is not
eligible for any other unemployment benefits, including
benefits provided for by any federal law extending
benefits beyond those provided for as regular benefits
or extended benefits, may receive weekly emergency
unemployment benefits.
[N.J.S.A. 43:21-24.27 (emphasis added).]
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"Exhaustee" is defined as "an individual who exhausted all of the regular
benefits that were available to the individual pursuant to the 'unemployment
compensation law,' [N.J.S.A.] 43:21-1 [to -24.30]." N.J.S.A. 43:21-24.26.
II.
Before the COVID-19 pandemic, petitioner earned wages in New Jersey
and New York. Her New Jersey job ended due to the pandemic before her New
York job ended. On March 8, 2020, she filed a claim for regular unemployment
benefits in New Jersey. According to petitioner, during a telephone call in April
2020, she informed a New Jersey unemployment insurance representative that
she potentially could have an unemployment claim in New York because that
employer had not yet shut down. The representative informed her she could file
a combined wage claim or could file separately in New York if she lost her job
there.1
Petitioner chose not to submit a combined wage claim but to proceed with
her claim for benefits regarding the loss of her New Jersey job. In connection
1
Individuals typically may file combined wage claims for unemployment
benefits in one state based on their combined earnings in multiple states. See
Before You Apply for Unemployment Frequently Asked Questions, New York
State Department of Labor, https://dol.ny.gov/you-apply-unemployment-
frequently-asked-questions (last visited Jan. 5, 2024).
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with her New Jersey claim, she received regular unemployment benefits for the
weeks ending March 14, 2020, through June 27, 2020. Pursuant to a PEUC
claim filed as of June 28, 2020, petitioner then received $8,216 in New Jersey
PEUC benefits for the weeks ending July 4, 2020, through October 3, 2020. She
returned to her New Jersey job from October 4, 2020, to December 31, 2020,
and then received $5,056 in New Jersey PEUC benefits for the weeks ending
January 2, 2021, through February 20, 2021.
On August 3, 2020, petitioner filed a claim for regular New York
unemployment benefits. She received benefits for the period August 3, 2020,
through June 13, 2021, in connection with her New York job.
In a notice mailed on April 14, 2021, a deputy of the Director of the New
Jersey Division of Unemployment Insurance advised petitioner that pursuant to
the New Jersey Unemployment Compensation Law, she was not eligible for
New Jersey PEUC benefits as of June 28, 2020, because she was eligible for
unemployment benefits as of that date in New York and had to pursue that claim.
The notice also advised her she had to submit in writing any appeal of that
determination within seven days after delivery of the notice or ten days after the
date of mailing, which would have been, according to the notice, April 26, 2021.
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On the same day, the Director of the Division issued a "request for refund
of unemployment benefits" totaling $13,272, the amount of PEUC benefits she
had received. In that request, the Director advised petitioner she was not eligible
for those funds and that "[a]ny money collected improperly must be returned
regardless of the reason for the overpayment in accordance with N.J.S.A.
43:21-16(d)." The Director stated, if petitioner disagreed with the determination
she had an obligation to refund and repay those benefits, she had to file a written
appeal within seven calendar days of delivery of the request or ten days of the
mailing of the request. The Director also informed petitioner about the right to
request a waiver.
N.J.A.C. 12:17-14.2 allows for the waiver of recovery
of debt if the debtor is deceased or permanently
disabled and no longer able to work, or if the
overpayment, as determined by the Director, would be
patently contrary to principles of equity. It must be
shown that the claimant did not misrepresent or
withhold a material fact to obtain benefits, and . . . proof
that the recovery of the overpayment would be contrary
to the principles of equity should accompany the waiver
request.
On June 1, 2021, petitioner appealed the deputy's determination she was
not eligible for the PEUC benefits and the Director's determination she had to
repay those benefits. During a June 29, 2021 hearing before the Appeal
Tribunal, petitioner testified she had not received the deputy's notice but had
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received the Director's request for a refund when she collected her mail on May
14, 2021, on her return from a trip. According to petitioner, she did not
immediately file an appeal of the Director's determination because she was
gathering information and determining if the request for the refund was correct.
Petitioner also testified that based on her conversation with the New
Jersey unemployment insurance representative, she had understood that because
she was not claiming combined wages, she could file a claim for benefits in New
York if she lost her job due to the pandemic. When that happened, she filed a
claim in New York. Petitioner conceded she "probably did receive New York
[benefits] at the same time as [she] was receiving New Jersey [benefits]." She
asserted she did not know collecting from both states at the same time was
"incorrect" based on her conversation with the New Jersey unemployment
representative.
During the hearing, petitioner advised the examiner she did not have the
money for the refund "sitting in a box." The examiner told her he understood
she was requesting a waiver of the refund, advised her the waiver "doesn't come
from me," and referred her to "the initial notice if [she was] trying to request a
waiver of . . . the debt." When she asked if making the waiver request was
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"something [she] should've done before this," the examiner told her she could
submit the request after she received the decision on her appeal.
In a June 30, 2021 decision, the Appeal Tribunal dismissed petitioner's
appeal of the Director's refund determination because petitioner had not filed it
timely under N.J.S.A. 43:21-6(b)(1) and had not shown good cause for her late
filing. The Tribunal found her appeal of the deputy's determination timely but,
citing N.J.S.A. 43:21-24.26 and -24.27, held she was ineligible for PEUC
benefits received after June 28, 2020, because she had "not exhaust[ed] all her
regular benefits as she was eligible for a regular claim for benefits in [New York]
as of [June 28, 2020]." Petitioner appealed the Tribunal's decision to the Board,
which affirmed it in an April 7, 2022 decision.
In her merits brief in support of this appeal, petitioner argues she was
entitled to the PEUC benefits she received because she ultimately was deemed
ineligible for New York unemployment benefits. She also asserts she used all
of the PEUC benefit funds in paying her monthly bills. In her reply brief, she
concedes she was not eligible for the $8,216 in PEUC benefits "due to a
concurrent [New York Unemployment Insurance] claim" but asserts she should
not be required to repay the $5,056 she received for the weeks ending January
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2, 2021, through February 20, 2021, because she had intended to apply for
regular unemployment benefits, not PEUC benefits.
III.
"Our scope of review of an administrative agency action is limited and
highly deferential." In re Y.L., 437 N.J. Super. 409, 412 (App. Div. 2014); see
also McKnight v. Bd. of Rev., Dep't of Lab., 476 N.J. Super. 154, 162 (App.
Div. 2023). "[W]e will 'defer to an agency's interpretation of both a statute and
implementing regulation, within the sphere of the agency's authority, unless t he
interpretation is plainly unreasonable.'" Haley v. Bd. of Rev., Dep't of Lab., 245
N.J. 511, 519 (2021) (quoting Ardan v. Bd. of Rev., 231 N.J. 589, 604 (2018)).
"[W]e will disturb an agency's adjudicatory decision only upon a finding that
the decision is 'arbitrary, capricious or unreasonable,' or is unsupported 'by
substantial credible evidence in the record as a whole.'" Sullivan v. Bd. of Rev.,
Dep't of Lab., 471 N.J. Super. 147, 155-56 (App. Div. 2022) (quoting Henry v.
Rahway State Prison, 81 N.J. 571, 580 (1980)). In making that determination,
we "must examine: '(1) whether the agency's decision conforms with relevant
law; (2) whether the decision is supported by substantial credible evidence in
the record; and (3) whether, in applying the law to the facts, the administrative
agency clearly erred in reaching its conclusion.'" In re Y.L., 437 N.J. Super. at
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412 (quoting Twp. Pharmacy v. Div. of Med. Assistance & Health Servs., 432
N.J. Super. 273, 283-84 (App. Div. 2013)).
A party challenging an administrative action bears the burden of
demonstrating the decision was arbitrary, capricious, or unreasonable. In re
State & Sch. Emps.' Health Benefits Comm'n's Implementation of I/M/O Yucht,
233 N.J. 267, 285 (2018). Individuals applying for unemployment benefits bear
the burden of proof to establish their right to unemployment benefits. Makutoff
v. Bd. of Rev., 427 N.J. Super. 218, 223, (App. Div. 2012). Petitioner has not
sustained either burden.
As an initial matter, we conclude the Board did not err in finding untimely
petitioner's appeal of the Director's refund determination. The version of
N.J.S.A. 43:21-6(b)(1) in effect when petitioner submitted her appeal provided
that a decision "shall be final" unless the claimant files an appeal "within seven
calendar days after delivery of notification of an initial determination or within
[ten] calendar days after such notification was mailed." See N.J.S.A.
43:21-6(b)(1) (2017) (amended July 2023).2 The Director's request for the
2
N.J.S.A. 43:21-6 and -16 were amended after the Board issued its decision.
See L. 2022, c. 120. Among other things, N.J.S.A. 43:21-6 was amended to
increase the time for filing an appeal. However, nothing in the amendment
indicates the Legislature intended retroactive application of the amendment. See
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refund was mailed on April 14, 2021. It is not clear when it was delivered, but
petitioner admitted she had received it on May 14, 2021, when she picked up
her mail after she had returned from a trip. She filed her appeal on June 1, 2021,
more than seven days after she received the refund request and more than ten
days after it was mailed. Thus, her appeal was untimely.
Pursuant to N.J.A.C. 12:20-3.1, a late appeal may be considered on its
merits if "the appeal was delayed for good cause," with good cause existing
when "[t]he delay in filing the appeal was due to circumstances beyond the
control of the appellant" or "[t]he appellant delayed filing the appeal for
circumstances which could not have been reasonably foreseen or prevented."
We agree with the Appeal Tribunal and the Board that petitioner did not
demonstrate good cause for her delay in filing her appeal.
Under both the CARES Act and the New Jersey Unemployment
Compensation Law, a person was entitled to PEUC benefits only if he or she
In re J.D-F., 248 N.J. 11, 22 (2021) ("[C]ourts generally will enforce newly
enacted substantive statutes prospectively, unless [the Legislature] clearly
expresses a contrary intent." (quoting Maeker v. Ross, 219 N.J. 565, 578
(2014))). In fact, the Legislature expressly provided the act amending the statute
would "take effect on the 270th day following enactment, . . . [,]" which was
July 31, 2023. See State v. Lane, 251 N.J. 84, 96 (2022) (recognized the Court
has "repeatedly construed language stating that a provision is to be effective
immediately, or effective immediately on a given date, to signal prospective
application").
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already had collected all other available regular unemployment benefits. See
15 U.S.C. § 9025(a)(2)(A)-(B) (PEUC was available to individuals who "have
exhausted all rights to regular compensation under the State law . . . with respect
to a benefit year" and "have no rights to regular compensation with respect to a
week under such law or any other State unemployment compensation law
. . . ."); N.J.S.A. 43:21-24.26 to -24.27 (emergency unemployment benefits are
available to an "exhaustee," defined as "an individual who exhausted all of the
regular benefits that were available to the individual . . . ."). Substantial credible
evidence in the record supports the finding of the Appeal Tribunal and Board
that petitioner had not exhausted the regular unemployment benefits available
to her in New York when she applied for and received the New Jersey PEUC
benefits. And petitioner now concedes she was not eligible for the $8,216 in
PEUC benefits "due to a concurrent [New York Unemployment Insurance]
claim."
Petitioner makes two arguments on appeal that she apparently did not
make before the Appeal Tribunal or the Board. We need not consider those
arguments. See Alloco v. Ocean Beach & Bay Club, 456 N.J. Super. 124, 145
(App. Div. 2018) (applying "well-settled" principle that appellate court will not
consider an issue that was not raised before the trial court). But considering
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them, we conclude they lack merit. In her merits brief, petitioner asserts she
ultimately was deemed ineligible for New York unemployment benefits and,
thus, was entitled to the PEUC benefits she received. The New York
unemployment insurance documents she submitted in support of that assertion
demonstrate she was unemployed in New York when she received the PEUC
benefits, and she was deemed ineligible for New York unemployment benefits
for a time period beginning on October 4, 2021, when she was not receiving
PEUC benefits.
In her reply brief, petitioner asserts she intended to apply for regular
unemployment benefits, not PEUC benefits, for the weeks ending January 2,
2021, through February 20, 2021, and contends she should be able to retain the
benefits she received during that period. "[R]aising an issue for the first time in
a reply brief is improper." Berardo v. City of Jersey City, 476 N.J. Super. 341,
354 (App. Div. 2023) (quoting Borough of Berlin v. Remington & Vernick
Eng'rs, 337 N.J. Super. 590, 596 (App. Div. 2001)). Moreover, whatever
petitioner intended, the record in the evidence demonstrates she received PEUC
benefits, not regular unemployment benefits, for the weeks ending January 2,
2021, through February 20, 2021, and that she was not entitled to those benefits.
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The version of N.J.S.A. 43:21-16(d) in effect when the Director issued the
refund request and when the Appeal Tribunal and Board issued their decisions
required the repayment of erroneously-paid unemployment benefits regardless
of whether the recipient had engaged in fraud, the recipient unknowingly had
made a misrepresentation or had failed to disclose a material fact, or "for any
other reason." N.J.S.A. 43:21-16(d) (2017) (amended July 2023); see also Orzel
v. Bd. of Rev., Dep't of Lab., 386 N.J. Super. 338, 342 (App. Div. 2006) (finding
N.J.S.A. 43:21-16(d) "has been construed . . . to require reimbursement of
benefits erroneously paid, regardless of the intent of the recipient"); Bannan v.
Bd. of Rev., 299 N.J. Super. 671, 674 (App. Div. 1997) (finding N.J.S.A.
43:21-16(d) "require[d] the full repayment of unemployment benefits received
by an individual who, for any reason, regardless of good faith, was not actually
entitled to those benefits"). Because the Appellate Tribunal and the Board
correctly applied the law in place when they rendered their decisions and
because substantial credible evidence in the record supports their conclusion that
petitioner, having failed to collect all other available regular unemployment
benefits, was not entitled to the PEUC benefits she had received, we see no basis
to disturb the Board's decision and, accordingly, affirm it.
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The Board in its decision, however, did not address petitioner's request for
a waiver pursuant to N.J.A.C. 12:17-14.2. Petitioner made a request for a waiver
in her testimony before the Tribunal and again in her appellate submissions. The
question of a refund waiver "should be decided in the first instance, by the
Division, applying its expertise." Mullarney v. Bd. of Rev., 343 N.J. Super. 401,
410 (App. Div. 2001). We, therefore, remand this matter to the Director of the
Division for consideration of petitioner's waiver request, with an enhanced
record, if necessary.
Affirmed in part and remanded in part to the Division for consideration of
petitioner's request that the demand for reimbursement of benefits be waived.
We do not retain jurisdiction.
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