State v. Ruud

259 N.W.2d 567, 1977 Minn. LEXIS 1354
CourtSupreme Court of Minnesota
DecidedOctober 21, 1977
Docket47030
StatusPublished
Cited by56 cases

This text of 259 N.W.2d 567 (State v. Ruud) is published on Counsel Stack Legal Research, covering Supreme Court of Minnesota primary law. Counsel Stack provides free access to over 12 million legal documents including statutes, case law, regulations, and constitutions.

Bluebook
State v. Ruud, 259 N.W.2d 567, 1977 Minn. LEXIS 1354 (Mich. 1977).

Opinion

PETERSON, Justice.

Defendants, Norma Ruud, her husband Royce Ruud, and Willmar Nursing Home, Inc., appeal from conviction by a jury for theft, Minn.St. 609.52, subd. 2(3); 609.05, and presenting false claims to a public body, Minn.St. 609.465; 609.05. Norma and Royce were each fined $7,500 and placed on probation. The nursing home was fined $10,000. We affirm.

Defendants Norma and Royce Ruud own and operate defendant Willmar Nursing Home. Royce Ruud is president of the nursing home; Norma is secretary-treasur *570 er and administrator. The cost of nursing home care for eligible welfare recipients is subsidized by the Medical Assistance Program which is governed by Title XIX of the Federal Social Security Act and Minn.St. c. 256B, and administered in Minnesota by the Department of Public Welfare (DPW). DPW reimburses nursing homes, such as defendants’, for each eligible patient at a “welfare per diem rate,” calculated by dividing “reasonable” costs of patient care by “adjusted patient days.” 1 Actually, the rate is determined by a complex formula embodied in Minn.Reg. DPW 49 (hereafter Rule 49), which was promulgated in 1972. A Rule 49 cost report must be submitted to the DPW by each participating nursing home each fiscal year. This multipage report lists various patient-day statistics but is devoted primarily to the itemization of patient-care costs categorized in Rule 49 as nursing, dietary, laundry and linen, housekeeping, plant operation and maintenance, or administration expenses. The cost accounting required by the Rule 49 report is an exhaustive one, covering everything from daily operating costs, such as salaries, to depreciation on capital assets.

DPW has issued regulations governing what costs may be considered patient-care related and thus may be included in determining the reimbursement rate. Minn.Reg. DPW 49, IV. A. 1 (§ 4931a) provides: 2

“Reasonable costs. Costs to be allowable for rate setting purposes must satisfy the following over-all criteria:
a. They must be necessary and ordinary costs related to patient care.
b. They must be costs that prudent and cost-conscious management would pay for a given item or service.”

The regulations explicitly disallow as allowable costs the “[pjersonal expenses of owners or employees, such as homes, boats, airplanes, vacation expenses, etc.” Minn.Reg. DPW 49, IV. C. 4 (§ 4933d). As a general rule, the higher the reported costs, the higher the reimbursement rate. The regulations do provide an incentive for rate-cutting, however, by imposing a ceiling on some allowable costs and establishing a maximum state-wide rate.

On December 30, 1974, Willmar Nursing Home submitted a Rule 49 cost report for its fiscal year 1973-74 which ended July 31, 1974. The report was signed by Norma Ruud and prepared by accountant Oiva Penttila. Beginning in February 1975, DPW made monthly payments to the nursing home based upon the new reimbursement rate calculated in that report. Although the new rate became effective in February, it remained subject to adjustment for errors or omissions which might be determined through a subsequent audit. All reports are subject to desk audit by DPW and may, additionally, be subject to field audit, i. e., examination of supporting records. Adjustments are generally limited to 3 complete fiscal years preceding the date a field audit commences.

On December 10, 1974, 3 weeks before Willmar Nursing Home submitted its 1973-74 Rule 49 cost report, DPW auditor Raymond Otto was assigned to do a field audit of Willmar Nursing Home’s records for fiscal year 1972-73. Otto worked several weeks with the home’s poorly organized recordkeeping system and identified what he felt were numerous questionable items, primarily items that appeared to be personal expenses, paid by nursing home checks and included in the Rule 49 report. After Otto had been at the nursing home about 15 working days, considerably longer than the average time spent on an audit, Norma Ruud asked him to leave. Otto reported his findings to Robert Rau, audit director of *571 the DPW audit division. On February 3, 1975, Rau submitted certain questions to Norma Ruud about some of the questioned expenditures. Upon the suggestion of accountant Penttila, Rau asked that Norma respond by affidavit. Copies of the questions were sent to Norma’s attorney and to Penttila. Norma’s attorney responded pledging her willingness to answer any further questions.

• Upon receipt and examination of Norma’s answers to the submitted interrogatories, Rau and Otto believed a number of the responses were false and inconsistent with the underlying documentation, mainly charge slips and invoices, which Otto had examined during his field audit. Rau submitted the matter to the attorney general’s office, and several weeks later a deputy attorney general secured warrants to search the record storage areas of both the nursing home and the Ruud residence located across the street. The search commenced at approximately 6:30 p. m., August 28, 1975.

Evidence obtained in the search was submitted to the grand jury. Based upon the 1973-74 Rule 49 cost report, the grand jury indicted Norma Ruud, Royce Ruud, and Willmar Nursing Home, Inc., for presenting false demand for audit to a public body. For the excess reimbursement paid by DPW in reliance upon the false report to the nursing home between March 1, 1975, and August 31, 1975, the grand jury indicted them for theft of more than $2,500.

According to the state’s evidence, defendants’ 1973-74 Rule 49 report included a total of $40,049.36 in expenses improperly claimed as patient-care costs. This resulted in overpayment of $15,723.68 between March 1, 1975, and August 31, 1975. The expenses challenged by the state included $24,050 in salaries paid by the nursing home during the 1973-74 fiscal year to the four Ruud children. The payroll ledger reflected that the children worked 80 hours biweekly, although, unlike other payroll employees, they kept no time cards and worked no regular shifts for these salaries. 3 One daughter receiving a salary for full-time nursing home employment was a full-time student at Macalester College in St. Paul during the year at issue. Of the two sons, one was in the United States Air Force and stationed in Rapid City, South Dakota. The other owned and operated a farm outside Willmar. Additional expenses challenged by the state included $1,582.24 recorded as “laundry and linens” on the nursing home books and paid to a Minneapolis department store for clothing and personal items purchased by the two Ruud daughters for their own use; over $2,000 paid in salaries to two housekeepers, one at the Ruud residence and one at a lake cabin; a $50.86 high school class ring for one daughter and a $275 accuquartz watch for Royce Ruud, both recorded on the nursing home books as “general and administration” costs. Defendants did not deny that some expenses were improperly included on the Rule 49 report, but they attributed this to “sloppy” bookkeeping, not an intent to steal.

The issues raised by defendants on their consolidated appeals are:

1.

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Bluebook (online)
259 N.W.2d 567, 1977 Minn. LEXIS 1354, Counsel Stack Legal Research, https://law.counselstack.com/opinion/state-v-ruud-minn-1977.