Robyn Potter, Relator,

This opinion will be unpublished and
may not be cited except as provided by
Minn. Stat. § 480A.08, subd. 3 (2018).

STATE OF MINNESOTA
IN COURT OF APPEALS
A18-0736

Robyn Potter,
Relator,

vs.

St. Joseph's Medical Center,
Respondent,

Department of Employment and Economic Development,
Respondent.

Filed December 24, 2018
Affirmed
Reilly, Judge

Department of Employment and Economic Development
File No. 36123777-3

Areti Georgopoulos, Harmony Law Firm, PLLC, Minneapolis, Minnesota (for relator)

Lee B. Nelson, Anne Froelich, St. Paul, Minnesota (for respondent, department)

Penelope J. Phillips, Meggen E. Lindsay, Felhaber Larson, Minneapolis Minnesota (for
respondent, employer)

Considered and decided by Schellhas, Presiding J udge; Reilly, Judge; and Florey,
Judge.

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U N P U B L I S H E D O P I N I O N
REILLY, Judge
Relator challenges the determination of an unemployment-law judge (the ULJ) that
she is ineligible for unemployment benefits because she was discharged for employment
misconduct. Because substantial evidence supports the ULJ’s determination that relator
committed employment misconduct when she failed to abide by her employer’s influenza
vaccination policy, we affirm.
FACTS
Relator Robyn L. Potter (Potter) was employed part-time as a registered nurse at St.
Joseph’s Medical Center (SJMC), which is a part of Essentia Health (Essentia) integrated
healthcare system, from August 2013 until her discharge in December 2017. Potter was
discharged from her employment when she refused to receive an influenza vaccination.
Potter argues that the ULJ’s determination violated her constitutional rights because (1) the
ULJ’s decision was arbitrary and capricious since it improperly analyzed the sincerity of
her beliefs; and (2) the ULJ’s decision was unsupported by substantial evidence in view of
the entire record.
In Au gust 2017, Essentia implemented a revised influenza vaccination policy to
“help protect Essentia Health staff, visitors, patients, and families from acquiring and
transmitting seasonal influenza disease.” The policy required that all employees, vendors,
contractors, and volunteers receive the influe nza vaccine unless they qualif ied for a
religious or medical exemption. Essentia required e mployees who sought a religious or
medical exemption from vaccination to complete an exemption request form. The Essentia

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Health Exemption Review Co mmittee ( the c ommittee)—comprised of members from
Essentia’s legal, human resources, and pastoral care teams —reviewed the exemption
requests based upon legal standards and Equal Employment Opportunity Commission
guidelines. E mployees whose exemption requests were denied by the committee could
appeal the decision by submitting a letter to be reviewed by Esse ntia’s senior leadership
team. Essentia terminated the employment of employees who were not vaccinated and did
not receive a medical or religious exemption.
In November 2017, Potter sought a religious exemption from vaccination. Potter’s
exemption request form indicated that she is Catholic and that the “Bible, both the Old and
New Testaments reference keeping [the] body blemish-free so [one] might have abundant
life.” Potter also wrote that the vaccination policy is “discriminating” against her “own
personal beliefs.” After its review of Potter’s exemption request, t he committee denied
Potter’s exemption request be cause the request “[did] not appear to be based upon any
religious reasons.” Potter appealed. I n December 2017 , the senior leadership team
determined that Potter’s request was a “vaccine refusal based on non -religious belief or
personal preference” and t here was a “lack of explanation for conflict between religious
belief and vaccine.” Essentia provided Potter a deadline to receive the influenza
vaccination. Because Potter did not receive the influenza vaccine by December 14, 2017,
Essentia terminated her employment.
Following her discharge from employment, Potter applied for unemployment
benefits with respondent Minnesota Department of Employment and Economic
Development (DEED). In January 2018, DEED determined that Potter was ineligible for

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unemployment benefits because she was discharged for employment misconduct. Potter
appealed DEED’s determination, and the ULJ conducted a telephone hearing.
At the hearing, Potter testified that she no longer takes any type s of medications or
puts any impurities into her body. Potter explained she had previously received the
influenza vaccine during her time in the military , but she had not been vaccinated during
the course of her employment by Essentia. Potter did not dispute that she had received at
least seven other vaccinations between 2009 and 2012. Potter stated that “there’s proof
that vaccinations for other diseases such as polio, measles, mumps, rubella . . . actually
benefit the person receiving them and there’s s trong evidence that supports that they save
lives, and the flu vaccine does not have any documentation that [it] can.” Potter stated that
“nursing journals, peer reviewed articles, things from the CDC” or other scientific proof or
evidence could change her opinion of the efficacy of the influenza vaccine. Potter testified
that her belief that the influenza vaccine is not effective is “a personal belief based on
numbers from the government.” Potter was unable to cite to any specific Bible passages
that formed the basis of her belief that she must be “blemish free” and that “blood shall be
kept pure and free from contaminates.” Potter acknowledged that this belief was “not really
a church teaching” but rather her “own faith, person[al] faith belief.”
The ULJ issued a decision concluding that Potter was discharged for employment
misconduct. The ULJ determined that Potter’s refusal to be vaccinated displayed a serious
violation of the standard of behavior that Essentia had a right to reasonably expect. After
Potter filed a request for reconsideration, the ULJ issued an order affirming the prior
decision.

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This certiorari appeal follows.

D E C I S I O N
Unemployment benefits are intended to provide financial assistance to persons who
have been discharged from employment “through no fault of their own.” Stagg v. Vintage
Place, Inc., 796 N.W.2d 312, 315 (Minn. 2011) (quotation omitted). Accordingly, a person
who has been discharged from employment based on “employment misconduct” is
ineligible to receive unemployment benefits. Minn. Stat. § 268.095, subd. 4 (2016); Stagg,
796 N.W.2d at 314. Whether an employee engaged in conduct that disqualifies the
employee from unemployment benefits is a mixed question of fact and law. Stagg, 796
N.W.2d at 315. Determining whether an employee committed a particular act is a question
of fact viewed in the light most favorable to the ULJ’s decision and affirmed if supp orted
by substantial evidence. Skarhus v. Davanni’s Inc. , 721 N.W.2d 340, 344 (Minn. App.
2006). This court will not disturb the ULJ’s factual findings when the evidence reasonably
tends to support those findings. Schmidgall v. FilmTec Corp., 644 N.W.2d 801, 804 (Minn.
2002). Determining whether a particular act constitutes disqualifying misconduct is a
question of law that we review de novo. Id. at 804.
I. The ULJ’s determination did not violate Potter’s constitutional right to free
exercise of religion.

The United States Constitution protects the right to the free exercise of religion.
U.S. Const. amend. I. “The free exercise of religion means, first and foremost, the right to
believe and profess whatever religious doctrine one desires.” Employment Div., Dep’t of
Human Res. of Oregon v. Smith , 494 U.S. 872, 877, 110 S. Ct. 1595, 1599 (1990). The

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United States Supreme Court has held that a state cannot deny unemployment benefits to
applicants who were forced to choose between their religious beliefs and employment
because such a denial violates the Free Exercise Clause of the First Amendment. See, e.g.,
Frazee v. Ill. Dep’t of Employment Sec ., 489 U.S. 829, 834 -35, 109 S. Ct. 1514, 1517 -18
(1989) (holding that applicant could not be disqualified from receiving unemployment
benefits when he refused a position that would have required him to work on Sundays
contrary to his religious beliefs); Hobbie v. Unemployment Appeals Comm’n of Fla ., 480
U.S. 136, 139-41, 107 S. Ct. 1046, 1048 -49 (1987) (holding th at state’s refusal to award
unemployment benefits to applicant discharged for refusing to work on Sabbath violated
the Free Exercise Clause); Thomas v. Review Bd. of Ind. Employment Sec. Div. , 450 U.S.
707, 717 -18, 101 S. Ct. 1425, 1432 (1981) (holding tha t state’s refusal to award
unemployment benefits to applicant discharged for refusing to manufacture weapons
violated the Free Exercise Clause).
Additionally, the Minnesota Supreme Court has interpreted the Freedom of
Conscience Clause of the Minnesota Constitution to afford even greater protection than the
Free Exercise Clause of the United States Constitution. See State v. Hershberger , 462
N.W.2d 393, 397 -98 (Minn. 1990). The Freedom of Conscience Clause provides “[t]he
right of every man to worship God according to the dictates of his own conscience shall
never be infringed . . . nor shall any control of or interference with the rights of conscience
be permitted.” Minn. Const. art. I, § 16.
In order to qualify for unemployment benefits under either the federal or state
standard, an applicant who quits employment must demonstrate that continuing in the

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employment would have burdened the applicant’s sincerely held religious beliefs. See
Frazee, 489 U.S. at 833, 109 S. Ct. at 1517 (“[B]eliefs must be root ed in religion —not
purely secular—to benefit from Free Exercise Clause protection.”); State v. Pedersen, 679
N.W.2d 368, 373 (Minn. App. 2004) ( “[W]e must first determine whether appellant’s
[belief] is a sincerely held religious belief intended to be protected by section 16.”), review
denied (Minn. Aug. 17, 2004).
a. The ULJ did not err in its determination that Potter’s proffered beliefs for
refusing vaccination were not sincerely held religious beliefs.

We turn to the question of whether Potter’s beliefs are sincerely held religious
beliefs. The determination of what is a religious belief or practice is “a difficult and
delicate task.” Thomas, 450 U.S. at 714, 101 S. Ct. at 1430. The “narrow function” of an
appellate court is to determine if petitioner’s termination resulted from “ an honest
conviction that such work was forbidden by his religion.” Id. at 726, 101 S. Ct. at 1436.
When reviewing a ULJ’s conclusions, this court may affirm the decision, remand for
further proceedings, reverse, or modify the decision if the relator’s substantial rights were
prejudiced because the conclusion of the ULJ violated the constitution, was in excess of
the ULJ’s statutory authority, was based on an unlawful procedure, was affected by error
of law, or was arbitrary or capricious. Minn. Stat. § 268.105, subd. 7(d)(1)-(4), (6) (2016).
In Thomas, the Supreme Court analyzed an individual’s religious beliefs when a
Jehovah’s Witness terminated his employment with a factory because his religious beliefs
prohibited him from manufacturing weapons. 450 U.S. at 709, 101 S. Ct. at 1427 . The
Indiana Supreme Court reasoned that because the religious nature of Thomas’ belief was

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unclear, the belief was a “personal philosophical choice ,” and therefore not protected by
the First Amendment. Id. at 714, 101 S. Ct. at 1430. However, the Supreme Court reversed
the I ndiana court, explaining that the court “should not undertake to dissect religious
beliefs” even when the “beliefs are not articulated with the clarity and precision that a more
sophisticated person might employ.” Id. at 715, 101 S. Ct. at 1430.
While we certainly agree that courts should not undertake to dissect religious
beliefs, we understand that the sincerity of a religious belief is a quintessential fact question
that must be analyzed. This question of sincerity often hinges on credibility and whether
the applicant has been consistent in observing or honoring the belief. See E.E.O.C. v.
Unión Independiente de la Autoridad de Acueductos y Alcantarillados de Puerto Rico, 279
F.3d 49, 56 (1st Cir. 2002) (“Credibility issues such as the sincerity of an employee’s
religious belief are quintessential fact questions.”); Int’l Society for Krishna
Consciousness, Inc. v. Barber, 650 F.2d 430, 441 (2d Cir. 1981) (stating that “an adherent’s
belief would not be ‘sincere’ if he acts in a manner inconsistent with that belief”). This
court defers to the ULJ’s credibility determinations when they are supported by substantial
evidence and the ULJ sets forth a valid reason for crediting or discrediting the witness. See
Ywswf v. Teleplan Wireless Servs., Inc., 726 N.W.2d 525, 533 (Minn. App. 2007); see also
Minn. Stat. § 268.105, subd. 1a(a) (2016) (stating that the ULJ must set forth the reason
for creditin g or discrediting testimony when credibility “has a significant effect on the
outcome of a decision”).
Potter argues that the ULJ’s decision was arbitrary and capricious because the ULJ
analyzed her beliefs by imposing his own view of logical religious obj ection. This court

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interpreted the sincerity of an appellant’s religious beliefs in Pedersen, where the defendant
asserted that the statute precluding possession of marijuana violated her constitutional right
to free exercise of religion. 679 N.W.2d at 371. Pedersen testified that medical use of
marijuana was consistent with her religious beliefs as a Messianic Jew and that marijuana
alleviated physical symptoms of her medical conditions. Id. at 371-72. Pedersen, a teacher
of ministry studies , citied to specific Bible passages to support her use of marijuana for
religious reasons. Id. at 372. However, this court concluded that Pederson “failed to
provide any evidence that establishes a connection between the practice of her religion and
the medicinal use of marijuana.” Id. at 376. This court ultimately concluded that
Pederson’s “belief in the medicinal use of marijuana is a personal, secular belief, driven
more by her medical needs than any philosophical principle or religious tenet.” Id.
Applying the analysis in Pedersen1 to this case, we conclude that the ULJ did not
err when it determined that Potter was driven by a personal, secular belief . Potter was
unable to provide any evidence supporting a connection between the practice of her religion
and abstinence from the influenza vaccination. Unlike Pedersen, Potter was unable to cite
to any specific Bible verses to support her personal belief. Id. at 371-72. Though we
recognize that whether all members of a religious sect share a belief is not determinative,
Potter admitted that her belief was not a teaching of her church . See Thomas, 450 U.S. at
708, 101 S. Ct. at 1427. Potter testified:

1 We recognize that Pederson involved a criminal prosecution for a felony controlled -
substance crime. 679 N.W.2d 368 . However, because Pederson’s defense was that her
medical use of marijuana was protected by the Freedom of Conscience C lause of the
Minnesota Constitution, we find this court’s analysis persuasive.

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Like I said, this is not really a church teaching. It’ s more of
my personal faith belief and I do not put any type of toxins into
my body. And there is right around six or seven neurotoxins
that are found in the flu vaccine and I’m not willing to take the
chance for something that has not been proven effecti ve.

Potter’s assertion that her faith requires that she not inject herself with impurities is
undercut by her own rationale. Potter stated that if the flu shot was scientifically proven to
be effective she “probably would” receive it. It follows that Potter is unwilling to inject
what she considers scientifically ineffective impurities but is willing to inject what she
considers scientifically effective impurities. This supports the respondents’ assertion that
Potter’s beliefs are not sincerely held religious beliefs, but, rather, “her objection was based
on her medical and scientific views, cloaked under the guise of religion.” The ULJ found:
“[i]t is not logical that a person has a religious objection only to ineffective vaccines. It is
more logica l that a person would have a religious objection to all vaccines. Potter’s
argument about effectiveness suggests that her beliefs are not based in religion.” The ULJ
properly considered the sincerity of Potter’s beliefs.2 Ultimately, we agree with the ULJ’s
determination that Potter’s beliefs were not sincerely held religious beliefs.

2 We recognize that “religious beliefs need not be acceptable, logical, consistent, or
comprehensible to other s in order to merit First Amendment protect ion.” Thomas, 450
U.S. at 714, 101 S. Ct. at 1430. Though the ULJ used the word “logical ,” it is clear that
the ULJ was not making a finding on the reasonableness of Potter’s aversion to vaccination.
Rather, the ULJ was assessing the sincerity of Potter’s beliefs and determining if those
beliefs were proscribed from religion. In determining whether a belief is entitled
constitutional protection, courts must assess whether the beliefs are sincerely held religious
beliefs. Id. 450 U.S. at 717-18, 101 S. Ct. at 1432 (“ Only beliefs rooted in religion are
protected by the Free Exercise Clause.”).

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b. The ULJ’s decision is supported by the record.

Potter argues that this court should reverse the ULJ’s decision because “the
substantial rights of the petitioner were prejudiced because the findings, inferences,
conclusion or decision” are “unsupported by substantial evidence in view of the entire
record as submitted.” Minn. Stat. § 268.105, subd. 7(d)(5) (2016). Potter asserts that she
provided “ample evidence” that her objection to the influenza vaccine was rooted in
religion and therefore the ULJ erred in its determination. But this is a distortion of th e
standard of review. On review, the question is not whether Potter submitted substantial
evidence in support of her position, but whether the ULJ’s findings are supported by
substantial evidence. See Ywswf, 726 N.W.2d at 533. Because there is substantial evidence
in the record to support the ULJ’s findings, the ULJ did not err in denying Potter
unemployment benefits.
II. The ULJ did not err in its determination that Potter’s refusal to receive the
influenza vaccine is employment misconduct.

An applicant who is discharged by an employer for employment misconduct is
ineligible for unemployment benefits. See Minn. Stat. § 268.095, subd. 4. Employment
misconduct is defined as “any intentional, negligent, or indifferent conduct, on the job or
off the job that displays clearly: (1) a serious violation of the standards of behavior the
employer has the right to reasonably expect of the employee; or (2) a substantial lack of
concern for the employment.” Id., subd. 6(a) ( 2016). The legal question of whether the
particular act committed by the employee constitutes employment misconduct is reviewed
de novo. Skarhus, 721 N.W.2d at 344.

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Potter argues that this court should reverse the ULJ’s determination because the
influenza vaccine policy was unreasonable. We disagree for two reasons. First, Potter did
not argue below that the policy was unreasonable, so we need not consider it on appeal.
See Haskins v. Choice Auto Rental, 558 N.W.2d 507, 512 (Minn. App. 1997) (declining to
consider issues on appeal that were not raised below). Second, even if we were to consider
the argument, Essentia’s influenza vaccination policy is reasonable. Essentia’s policy,
requiring all staff not otherwise exempted, to receive the influenza vaccine was based upon
Essentia’s aspiration to “have zero preventable harm for patients and staff.” We agree with
the ULJ’s determination that, because it is a healthcare institution, SJMC reasonably
“requires staff to get flu vaccinations for the maximum protection of patient heath.” The
vaccination policy provided exemption for those employees unable to be vaccinated for
religious or medical reasons. Potter’s argument that the policy is unreasonable because she
did not receive an exemption is not persuasive. The record demonstrates that other
employees requested and received both religious and medical exemptions.
In summary, the ULJ’s determination was not arbitrary or capricious and there are
sufficient facts in the record to support the finding that Potter’s conduct was not based on
the requisite sincerely held religious beliefs.
Affirmed.