At the time that New Crosset purchased the foreclosed assets of Old Crosset, R.C. 4123.32 provided:
"The administrator of workers' compensation shall * * * adopt rules with respect to the collection, maintenance, and disbursements of the state insurance fund among which rules shall be the following:
"* * *
"(D) Such special rules as the administrator considers necessary to safeguard the fund and as are just in the circumstances...
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