Estate of Elmer Gordon Waggoner v. Anonymous Health System, Inc.

CourtIndiana Supreme Court
DecidedMarch 4, 2026
Docket26S-CT-00071
StatusPublished
AuthorJustice Goff

This text of Estate of Elmer Gordon Waggoner v. Anonymous Health System, Inc. (Estate of Elmer Gordon Waggoner v. Anonymous Health System, Inc.) is published on Counsel Stack Legal Research, covering Indiana Supreme Court primary law. Counsel Stack provides free access to over 12 million legal documents including statutes, case law, regulations, and constitutions.

Bluebook
Estate of Elmer Gordon Waggoner v. Anonymous Health System, Inc., (Ind. 2026).

Opinion

FILED Mar 04 2026, 2:04 pm

CLERK Indiana Supreme Court Court of Appeals and Tax Court

IN THE

Indiana Supreme Court Supreme Court Case No. 26S-CT-71

Shantel Waggoner, Individually and as Executrix of the Estate of Elmer Gordon Waggoner, Appellant (Plaintiff below),

–v–

Anonymous Health System, Inc., et al., Appellees (Defendants below).

Argued: September 25, 2025 | Decided: March 4, 2026

Appeal from the Vanderburgh Superior Court No. 82D01-2308-CT-3727 The Honorable Leslie C. Shively, Judge

On Petition to Transfer from the Indiana Court of Appeals No. 24A-CT-469

Opinion by Justice Goff Chief Justice Rush and Justices Massa, Slaughter, and Molter concur. Goff, Justice.

In response to the COVID-19 pandemic, our state and federal governments declared a state of emergency to prevent the spread of the virus. To protect healthcare workers at the frontlines, the legislature enacted statutes to immunize them from civil liability in certain cases where a patient’s injury arose from actions taken in response to COVID- 19. Here, a patient was medically immobilized and placed on a ventilator as part of his COVID-19 treatment. He developed a bed sore and ultimately died from the wound. His estate filed a proposed complaint under the Medical Malpractice Act (MMA) against over eighty Healthcare Providers (or just the Providers), alleging negligence. In response, the Providers argue they are immune from liability under statute. The issues here are (1) whether the trial court can make a preliminary determination on immunity without expert opinion from a medical-review panel, and (2) whether the Providers are entitled to statutory immunity. Concluding that the court can make a preliminary determination on immunity and that Providers are immune here, we affirm the trial court’s entry of summary judgment for the Providers.

Facts and Procedural History On March 6, 2020, Governor Eric Holcomb issued Executive Order 20- 02, declaring the COVID-19 pandemic a state public-health emergency under Indiana Code subsection 10-14-3-12(a). The emergency was rescinded on March 3, 2022. Exec. Order 22-09. Similarly, the Secretary of the United States Department of Health and Human Services (HHS) issued a federal public-health emergency on March 17, 2020. 85 Fed. Reg. 15198, 15198 (Mar. 17, 2020). The public-health emergency under the Public Health Service Act was rescinded on May 11, 2023, with some liability protections under the Public Readiness and Emergency Preparedness Act (PREP Act) extending longer. 89 Fed. Reg. 99875, 99876, 99882 (Dec. 11, 2024).

In January 2022, while the state and federal health emergencies were still in effect, Elmer Waggoner was hospitalized in Kentucky after testing

Indiana Supreme Court | Case No. 26S-CT-71 | March 4, 2026 Page 2 of 15 positive for the COVID-19 virus and developing pneumonitis. As his symptoms worsened, he was transported to a second Kentucky hospital where he was intubated and put on a ventilator. Then, on January 27, he was transferred to Anonymous Hospital 1 in Indiana where he was medically paralyzed and kept on a ventilator. The ventilator was briefly removed in early February but replaced within four days. On February 10, 2022, Elmer developed a pressure wound, also known as a bed sore, on his lower back and began wound care.

On March 3, 2022, Elmer was still on a ventilator but was not testing positive for the COVID-19 virus when he was transferred to Anonymous Hospital 3, also in Indiana. The same day, Governor Holcomb rescinded the COVID-19 state of emergency. The federal public-health emergency was still in effect. Elmer’s bed sore continued to worsen and showed signs of necrosis. On March 17, Elmer was transferred back to Anonymous Hospital 1 where he died twelve days later.

Elmer’s death certificate listed his cause of death as cardiopulmonary arrest with the following conditions leading to the arrest: acute hypoxic and hypercapnic respiratory failure, sepsis, and necrotizing fasciitis. When he died, Elmer’s bed sore spanned from the outside of his left thigh to his lower back.

In March 2023, Elmer’s wife and the executrix of his estate, Shantel Waggoner (the Estate), filed a proposed complaint with the Indiana Department of Insurance. The Estate alleged that over eighty proposed defendants, including hospitals and doctors, had committed medical malpractice while treating the bed sore. In May 2023, the federal government rescinded its declaration of a public-health emergency for COVID-19. In July 2023, one of the Providers requested the formation of a medical-review panel. In August 2023, before the panel could be established, Providers filed a petition for preliminary determination and motion for summary judgment, arguing that they were immune from liability under Indiana Code chapter 34-30-13.5 (the Healthcare Immunity Act), Indiana Code chapter 34-30-32 (2022) (expired December 31, 2024) (the Premises Immunity Act), and 42 U.S.C. section 247d-6d (the PREP Act) (collectively, the Immunity Statutes). Providers argued they were

Indiana Supreme Court | Case No. 26S-CT-71 | March 4, 2026 Page 3 of 15 immune from liability because they provided medical care to Elmer during the COVID-19 emergency, and all his care was in treatment of his COVID-19 infection and its complications.

The Estate moved to dismiss or stay the Providers’ petition, arguing that the trial court lacked subject-matter jurisdiction to make a preliminary decision on immunity. The Estate argued that the Providers’ motion for summary judgment required the trial court to address medical causation, which falls within the medical-review panel’s subject-matter jurisdiction under the MMA.

The trial court issued an order granting Providers’ motion for summary judgment and dismissing the complaint with prejudice after finding the Providers entitled to statutory immunity. The trial court found that immunity was an issue for the court, not the medical-review panel. The trial court then determined the Providers were immune under the Immunity Statutes because Elmer’s care arose from the COVID-19 emergency, even though he received some care after the state-emergency order expired. The Estate appealed.

In a unanimous, published opinion, the Court of Appeals reversed, holding that whether the Providers are entitled to immunity is an issue reserved for the medical-review panel. Waggoner v. Anonymous Healthcare Sys., Inc., 250 N.E.3d 1091, 1094 (Ind. Ct. App. 2025). Although Elmer was originally hospitalized and treated for his COVID-19 symptoms, the court explained, the Estate’s expert opined that Elmer’s death was caused by inadequate treatment of the pressure wound, not by his COVID-19 symptoms. Id. at 1099. Therefore, the court concluded that “the question of causation should be left to the medical review panel,” and it was “too early in the proceedings to determine” whether the Immunity Statutes immunized the Providers. See id. at 1100. The Governor also rescinded the state disaster emergency during Elmer’s treatment, so the court concluded the Healthcare Immunity Act did not immunize treatment after that date. Id. at 1099.

Providers petitioned for transfer, which we now grant, vacating the opinion of the Court of Appeals. See Ind. Appellate Rule 58(A).

Indiana Supreme Court | Case No. 26S-CT-71 | March 4, 2026 Page 4 of 15 Standards of Review We will grant summary judgment when “there is no genuine issue as to any material fact and that the moving party is entitled to a judgment as a matter of law.” Ind. Trial Rule 56(C). We will draw all reasonable inferences in favor of the non-moving party. Hughley v.

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