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No. 34620 - Robert J. Zaleski, M.D. v. West Virginia Mutual Insurance Company,
formerly known as West Virginia Physicians Mutual Insurance Company, a
Ketchum, J., concurring:
I concur because we are bound by the law of the case as set out in Zaleski v.
West Virginia Physicians' Mut. Ins. Co., 220 W.Va. 311, 647 S.E.2d 747 (2007) (Zaleski
However, Zaleski I was plainly wrong. It held that West Virginia Mutual
Insurance Company (W.Va. Mutual) is a state actor and, therefore, Dr. Zaleski was entitled
to a due process hearing concerning the December 22, 2004 non-renewal of his malpractice
W.Va. Mutual was authorized and created by statute as a private corporation. It
initially borrowed State money, and the State temporarily exercised some control over the
company. However, the State gave up all control over the company as of June 30, 2004. W.Va.
Code, 33-20F-5(d)  provides that, as of July 1, 2004, the provisional board of directors
shall be replaced by a permanent board of directors which are not appointed by the State, but
are rather chosen in accordance with the articles of incorporation and bylaws of the
company. Further under W.Va. Code, 33-20F-4(a) , W.Va. Mutual is a domestic
mutual insurance company owned by its policyholders; the only policyholders are physicians
licensed to practice medicine in this State.
Plainly, the State has had no control over W.Va. Mutual since June 30, 2004, and
had no control when Dr. Zaleski's policy was not renewed in December 2004.
Zalenski I is not only contrary to the views of various legal commentators, but
is also contrary to the U.S. Supreme Court decision in Lebron v. National R.R. Passenger
Corp., 513 U.S. 374 (1995). This case holds that when a corporation is created by legislation
for government objectives, it is not a state actor if the government does not retain permanent
authority to appoint a majority of its board of directors. Federal courts have consistently held
that, for due process purposes, private activity will generally not be deemed 'state action'
unless the state has so dominated such activity as to convert it to state action[.] Philips v. Pitt
County Memorial Hosp., 572 F.3d 176, 181 (4th Cir. 2009) (quoting Wahi v. Charleston
Area Medical Center, Inc., 562 F.3d 599, 616 (4th Cir. 2009) (quoting DeBauche v. Trani,
191 F.3d 499, 507 (4th Cir.1999)).
Because W.Va. Code, 33-20F-1, et seq., created a domestic private corporation
which the State does not control, the due process hearing requirements imposed on W.Va.
Mutual by Zaleski I are improper. The only process due to a doctor for termination of a
malpractice insurance policy is spelled out in W.Va. Code, 33-20C-1, et seq., regarding the
cancellation or non-renewal of malpractice insurance policies. Zalenski I's requirement of
a separate due process procedure for cancellation or non-renewal of W.Va. Mutual's
malpractice insurance policies is clearly wrong.
In the future, I believe the Court should revisit Zalenski I, strictly apply our law
creating W.Va. Mutual (as set forth in W.Va. Code, 33-20F-1, et seq.), and consider overruling