Volume 41, Issue 2 (2023)

Injured on the Job: Minnesota Case Presents Opportunity to Address Employment Rights of Medical Cannabis Users

Grace Moore*

The United States Supreme Court seems poised to consider the case of an employee injured in Mendota Heights, Minnesota that could settle a dilemma in employment law that has divided state courts and denied injured workers their employment rights. In Musta v. Mendota Heights Dental Center (“Musta”), the Minnesota Supreme Court determined that the federal Controlled Substances Act (CSA) preempted an order under the Minnesota Workers Compensation Act (MWCA) requiring an employer to reimburse the costs of medical cannabis for an employee who has lived with chronic pain from her work injury for over sixteen years. This reimbursement question has divided the State Supreme Courts who have encountered it. The Minnesota Supreme Court went even further than workers’ compensation in Musta and implicated Minnesota’s medical marijuana antidiscrimination statute, declaring that employers are also not required to provide accommodations for an employee’s state-sanctioned use of medical cannabis. The U.S. Supreme Court and the Department of Justice now have the opportunity to determine the employment rights of injured workers. They could also address the broader untenable tension between the federal prohibition on all marijuana and the majority of state governments that have approved the use of cannabis medically by addressing the schedule status of cannabis under the CSA. The Minnesota Supreme Court has declared that it cannot protect the rights of employees at work who follow state law and use reasonable and necessary means to treat their medical conditions absent federal action, and Minnesotans—and all Americans—living with work injuries and other serious conditions deserve to have their rights protected. The U.S. Supreme Court and the Biden Administration have an opportunity to resolve a state court split that hurts already-injured workers and can seize the chance to change cannabis’ Schedule I status to protect patients and employees across the country.

State-Approved Medical Cannabis Laws at Odds with Federal Prohibitions

Cannabis for medical use was first legalized in California in 1996. Now, thirty-seven states, the District of Columbia, Guam, Puerto Rico and the U.S. Virgin Islands have all legalized medical cannabis. A number of states that have legalized medical marijuana have also adopted antidiscrimination provisions regarding its use, including Minnesota. In the employment context, Minnesota’s antidiscrimination statute provides that an individual’s status as a registered patient on the medical cannabis registry cannot be the basis for hiring, termination, or any other decisions that affect the terms or conditions of employment. However, the statute does not require compliance if doing so would cause an employer to violate federal law or lose federal funding. Despite the majority of states approving of medical cannabis use, marijuana is still classified federally as a Schedule I controlled substance under the CSA, so it remains federally illegal for all uses in the United States.

This disconnect between the federal prohibition against all marijuana and the majority of states’ movements to legalize cannabis for medical—and increasingly recreational—use and protect patients from discrimination has led to countless regulatory quagmires. For workers who were injured on the job and require medical cannabis to treat their conditions, this tension has led to a state court split over whether employers can be required to reimburse the cost of the medical marijuana and what accommodations injured employers can receive. The unresolved conflict between state and federal law has created a murky legal landscape that serves only to hurt injured workers further.

Minnesota Supreme Court Declines to Require Reimbursement, Defers to Legislature

In October 2021, the Minnesota Supreme Court had the chance to choose a side in the emerging split and address the rights of injured workers to receive workers’ compensation reimbursement for their state-sanctioned medical cannabis use. Before Musta v. Mendota Heights (and its companion case Bierbach v. Digger’s Polaris) was decided, six states—including Minnesota—expressly allowed workers’ compensation reimbursement for cannabis. Six states had expressly forbid reimbursement, 14 did not require it, and 10 states as well as the District of Columbia have yet to decide the issue.

In Musta, the Minnesota Supreme Court switched course and determined that state law cannot protect the employment rights of injured workers; employers cannot be forced to reimburse the costs of reasonable and necessary medical marijuana for those who were hurt on the job. Susan Musta was employed as a dental hygienist by Mendota Heights Dental Center when she injured her spine attempting to catch an elderly patient who was falling. For the next 16 years, she sought medical assistance countless times to treat her unrelenting pain, but nothing was effective. Musta was ultimately approved to be placed on the medical cannabis registry. When she requested reimbursement—as was her right under Minnesota’s Workers Compensation Act—her employer agreed that the medical marijuana was reasonable and necessary for her work injury, but they asserted that the CSA preempted an order requiring reimbursement for medical marijuana.

The Minnesota Supreme Court agreed with the employer and denied Musta reimbursement. The court reasoned that it is impossible for employers to comply with both the CSA and the MWCA, as reimbursing the costs of medical marijuana constitutes “aiding and abetting” the possession of marijuana. This would theoretically subject the employer to liability under the CSA. The court considered this “impossibility preemption” and determined that the CSA preempts any such state order. This decision shifted Minnesota onto the side of the state court split that will not protect workers’ rights—even in the face of explicit state support for such rights—absent federal action.

Indeed, the Musta court went even farther than workers’ compensation in denying protections to injured workers. Employees who use medical marijuana to treat their medical conditions are likely not protected by federal anti-discrimination legislation; the Americans with Disabilities Act (ADA) prohibits discrimination based on an individual’s disability, but the argument that discrimination on the basis of medical marijuana use is discrimination on the basis of disability has yet to succeed in court. What protections employees receive, they must get from state antidiscrimination statutes. The Musta court declared that “the state cannot force an employer to facilitate an employee’s unlawful possession of cannabis, either through work accommodations or reimbursement for its purchase” (emphasis added). The court does not explicitly discuss Minnesota’s medical cannabis antidiscrimination statute, though it implicitly answers the question of whether refusing to provide an accommodation for an employee’s use of medical cannabis could constitute discrimination on the basis of the employee’s disability in the negative. The majority declared—though seemingly in dicta—that employers cannot be required to provide accommodations, so they would plainly not consider the refusal to do so as discrimination. The court seemed to signal that the exception in Minnesota’s antidiscrimination statute now likely swallows the rule; employers do not have to comply if doing so would cause them to violate federal law, and the court has chosen a broad interpretation of “aiding and abetting” liability that would allow noncompliance, at least in reimbursement contexts. Employees who are patients legally registered in Minnesota’s medical cannabis program cannot expect the courts to protect their state-supported participation in it.

Justice Chutich, in a strong dissent in Musta, argued that there was no conflict preemption and the majority had an “unduly expansive view of aiding and abetting liability, with the result of  denying injured employees reasonable and necessary medical treatment.” The majority even tacitly acknowledged that their decision hurts injured workers, but they emphasized the court will not uphold medical cannabis provisions in the absence of federal congressional action. The court concludes, “we note the argument by the dissent that preemption here frustrates the intention of the Legislature to make medical cannabis available to patients suffering from intractable pain. We agree that if the result here is not beneficial to the employee, the remedy is for Congress to pass, and the President to sign, legislation that addresses the preemption issues created by the conflict between federal and state law.”

Susan Musta is now hoping the U.S. Supreme Court will hear her case. The Court is being urged to end the state court split that has left injured workers unsure of their protections in the workplace, and an amicus brief has been filed calling for the Court to use this opportunity to estop cannabis’ designation as a Schedule I substance altogether. While Justice Thomas recently criticized  the federal government’s approach to cannabis law in a denial of cert and indicated that “a prohibition on intrastate use or cultivation . . . may no longer be necessary or proper,” it is unclear how the current conservative Supreme Court would rule on a case like Musta.

Conclusion

The Supreme Court seems poised to take action on Susan Musta’s appeal. On February 23, 2022, the Court asked the Department of Justice to file the executive branch’s position on the case. Biden’s Administration now has the chance to weigh in on the rights of patients in a country where the majority of states have expressed their approval of medical marijuana. Workers like Susan Musta must have their employment rights protected, and the thousands of participants in medical marijuana programs must also have their rights vindicated federally. Many Americans have expressed their approval and desire for legal marijuana. Over 30,000 patients are currently enrolled in Minnesota’s medical cannabis program. Though the Minnesota legislature has sought to protect individuals who use medical cannabis to treat their medical condition, the Minnesota Supreme Court and multiple other states have declared they cannot—or will not—protect them in the workplace. The Supreme Court and the Department of Justice must take this opportunity to vindicate the rights of injured workers and solve the untenable tension between state and federal law caused by cannabis’ Schedule I status.

*J.D. Candidate, University of Minnesota Law School Class of 2023, JLI Vol. 40 Staff Member

Discriminating Against Survivors of Domestic Violence as Sex-Based Discrimination Under Title VII

By Kendra Saathoff*

 

Discriminating against a woman for being a victim of domestic violence is sex discrimination under Title VII of the Civil Rights Act. Domestic violence is a workplace issue, whether from an abuser threatening an office and the workers in it or because a survivor needs to miss work to ensure she obtains an Order for Protection. Though Title VII of the Civil Rights Act of 1964 does not explicitly prohibit discrimination against applicants or employees who experience domestic violence, it does explicitly prohibit discrimination based on sex. Therefore, survivors can arguably still gain protection against discrimination under Title VII by arguing that discrimination against them because of their status as a victim of domestic violence is sex discrimination.

 

I. Domestic Violence is a Workplace Issue

Domestic violence is insidious. One in four women and nearly one in ten men have experienced physical violence, sexual violence, and/or stalking during their lifetime, and over 43 million women and 38 million men have experienced psychological aggression by an intimate partner in their lifetime. Leaving an abusive relationship is the most dangerous time for survivors. Domestic violence is a workplace issue because this danger can extend to the victim’s workplace—such as when an abuser comes to the victim’s workplace and puts others in danger. There are other workplace impacts on survivors of domestic violence, including missed work to go to court and obtain an order for protection, interference by the abuser with work, and harassment at the workplace. 19 percent of organizations in a Society for Human Resource Management survey had a domestic violence incident in the past year. Another survey estimates that survivors of domestic violence who are bothered in some way by their abusers at work (e.g. through harassing phone calls) range from 36 to 74 percent, and that domestic violence can also impact a survivor’s ability to get to work (e.g. through physical restraint), and can even lead to job loss for 5 to 27 percent of survivors. Despite the pervasiveness of domestic violence impacts on the workplace, victims of domestic violence can still be legally fired from their jobs for being victims in most of the U.S.

 

II. How the Law Can Help

The law can help by ensuring survivors keep their jobs and preventing them from being negatively impacted at work. Because domestic violence mainly affects women, and is associated with survivors losing their jobs, there is an argument that employers firing employees for being victims of domestic violence is sex-based discrimination under Title VII of the Civil Rights Act. 

Title VII of the Civil Rights Act of 1964 prohibits discrimination based on race, color, sex, religion, or national origin. It does not explicitly prohibit discrimination against applicants or employees who experience domestic or dating violence, sexual assault, or stalking, therefore potential employment discrimination and retaliation against these individuals may be overlooked.

How could Title VII’s prohibition of sex discrimination include prohibition of discrimination against someone because they are a victim of domestic violence? There could be two avenues. The first argument is that victims are disproportionately women and therefore discriminating against victims of domestic violence is discriminating against women and therefore sex discrimination. A victim would have to statistically demonstrate that a facially neutral practice of terminating any employee in a domestic violence incident impacts more women than men. Similarly, even if there is not a workplace incident of DV, if an employer were to fire anyone with a protection order, a plaintiff would need statistical evidence to support a claim that a policy requiring the termination of all employees who hold orders of protection disproportionately affects women. Though the cited article takes for granted that discrimination of domestic violence is sex discrimination, stating that “[g]iven the existing gender asymmetry of domestic violence, plaintiffs should be able to easily demonstrate that any practice predicated on an employee’s condition as a victim of domestic abuse will disproportionately affect women,” courts have struggled to recognize that as fact—see the discussion of Taylor v. Children’s Vill. and Johnson v. All Metro Home Care Servs. below.

The second possible argument for why employment discrimination against survivors of domestic violence is sex discrimination under Title VII is that it is sex-stereotyping. Title VII of the Civil Rights Act “prohibits an employer from treating you differently, or less favorably, because of your sex, which is defined to include pregnancy, sexual orientation, and gender identity. This law also prohibits employment decisions based on stereotypes (unfair or untrue beliefs) about abilities and traits associated with gender.” There could be an argument that firing someone for being a victim of domestic violence relies on sex stereotypes, for example instead of firing a survivor because their abuser has threatened the workplace, an employer fires a survivor for fear of the “drama” women who’ve experienced DV can bring to the workplace. Arguing that employment discrimination against survivors of domestic violence is sex discrimination because of sex-based stereotypes would also include discriminating against male survivors of domestic violence, for example a hiring manager could believe that men cannot be victims of domestic violence because they should be able to protect themselves, and therefore does not select a male applicant when the manager learns that the applicant obtained a protection order against a partner.

 

III. Counterarguments

Many courts have found that being a survivor of domestic violence is not a protected class under Title VII and therefore there is little recourse for survivors who lose their jobs because of the domestic violence they have faced. The court in Taylor v. Children’s Vill. (S.D.N.Y. Apr. 21, 2021) stated “. . .being a survivor of domestic violence or human trafficking is not a protected class under Title VII.” And in Johnson v. All Metro Home Care Servs. (N.D.N.Y. Nov. 7, 2019) the court stated that the plaintiff failed “to allege facts plausibly suggesting that, as a ‘survivor of domestic violence,’ she was a member of a protected class pursuant to Title VII.”

Further, not all domestic violence survivors are women. Can a practice that discriminates against both women and men, but more women, be deemed sex discrimination under Title VII? That will be a challenge for survivors who seek recourse under Title VII. It would also make it difficult for survivors who are men to seek recourse against discrimination under Title VII. And for survivors who are nonbinary or gender nonconforming, it could be challenging for them to find protection from discrimination based on their status as survivors under Title VII’s sex-based discrimination as well.

Finally, abusers often do pose a threat to workplaces of victims, and therefore employers have a right to do what they can to protect their employees. Is it discrimination if employers are acting in the interest of safety of themselves and the organization?

 

IV. Conclusion

There are many obstacles survivors face in seeking legal protection from discrimination under Title VII of the Civil Rights Act. This is an area without much legal precedent but could be an avenue through which survivors seek recourse in the future against discrimination based on their status as a survivor of domestic violence.

 

*Kendra Saathoff, J.D. Candidate, University of Minnesota Law School Class of 2022, JLI Vol. 40 Note & Comment Editor