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IN THE INTERMEDIATE COURT OF APPEALS OF WEST VIRGINIA

ROBERT WORKMAN,

Claimant Below, Petitioner

v.) No. 23-ICA-461 (JCN: 2021025682)

RALEIGH COUNTY SOLID WASTE AUTHORITY,

Employer Below, Respondent

MEMORANDUM DECISION

Petitioner Robert Workman appeals the October 3, 2023, order of the Workers’ 

Compensation Board of Review (“Board”). Respondent Raleigh County Solid Waste 

Authority (“RCSWA”) timely filed a response.1 Mr. Workman did not file a reply. The 

issue on appeal is whether the Board erred in affirming the claim administrator’s order, 

which granted Mr. Workman a 6% permanent partial disability (“PPD”) award. 

This Court has jurisdiction over this appeal pursuant to West Virginia Code § 51-

11-4 (2022). After considering the parties’ arguments, the record on appeal, and the 

applicable law, this Court finds no substantial question of law and no prejudicial error. For 

these reasons, a memorandum decision affirming the Board’s order is appropriate under 

Rule 21 of the Rules of Appellate Procedure. 

On June 23, 2021, Mr. Workman sustained an occupational injury when, as he was 

trying to remove a plastic bag from his work truck, he slipped and fell several feet, and was 

knocked unconscious. By order dated August 6, 2021, the claim administrator held the 

claim compensable for a concussion, an abrasion of the scalp, and a contusion of the right 

shoulder.

Relevant to this appeal, Mr. Workman has an extensive history of concussions, falls, 

and problems with vertigo/equilibrium. Medical records suggest that Mr. Workman has 

sustained as many as fifteen concussions due to various accidents, vehicle wrecks, falls, 

and boxing. Additionally, medical records indicated that Mr. Workman has been suffering 

from a five-year history of cognitive change and there was concern that Mr. Workman had

Creutzfeldt-Jakob disease, a degenerative brain disorder that leads to dementia. Medical 

records dated as recent as February of 2021 indicated that Mr. Workman sought treatment 

1 Mr. Workman is represented by Reginald D. Henry, Esq., and Lori J. Withrow, 

Esq. RCSWA is represented by Steven K. Wellman, Esq., and James W. Heslep, Esq. 

FILED

February 27, 2024

C. CASEY FORBES, CLERK

INTERMEDIATE COURT OF APPEALS

OF WEST VIRGINIA
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for injuries sustained during a fall, and that he had suffered multiple falls that were mainly 

due to bending over and losing his balance.

Returning to the instant injury, when the time came to assess Mr. Workman’s 

permanent impairment related to his compensable injuries, he underwent an independent 

medical evaluation (“IME”), which was performed by Prasadarao Mukkamala, M.D., on 

April 28, 2022. Using the American Medical Association’s Guides to the Evaluation of 

Permanent Impairment (4th ed. 1993) (“Guides”), Dr. Mukkamala recommended 5% 

whole person impairment (“WPI”) for vertigo remaining from the concussion; 0% WPI for 

the abrasion of the scalp;2and 1% WPI for the contusion of the shoulder. In total, Dr. 

Mukkamala recommended 6% WPI. By order dated June 7, 2022, the claim administrator 

granted Mr. Workman a 6% PPD award in accordance with Dr. Mukkamala’s 

recommendation. Mr. Workman protested the order to the Board.

Mr. Workman next underwent an IME performed by Bruce Guberman, M.D., on 

October 20, 2022. Using the Guides, Dr. Guberman placed Mr. Workman in the first 

category of Table 11, which indicated “minimal impairment of equilibrium exists with 

limitation required only of activities in hazardous surroundings.” Table 11 allowed for an 

impairment rating between 1% WPI and 9% WPI, and Dr. Guberman assessed that Mr. 

Workman had 9% WPI given that he almost qualified for the next category. Dr. Guberman 

also assessed 5% WPI for the right shoulder contusion. Dr. Guberman did not apportion 

for either equilibrium or the shoulder contusion and, accordingly, his final recommendation 

was 14% WPI, which represented an additional 8% award. Subsequently, on December 16, 

2022, Michael Kominsky, D.C., performed an IME of Mr. Workman and provided an 

impairment rating that was identical to Dr. Guberman’s rating.

Lastly, Mr. Workman was evaluated by Syam Stoll, M.D., on February 9, 2023.

Using the Guides, Dr. Stoll placed Mr. Workman into the first category of Table 11 and 

assessed 9% WPI. However, Dr. Stoll apportioned the entire 9% to Mr. Workman’s 

extensive prior history of concussions, head injuries, cognitive issues, and falls. Regarding 

the right shoulder contusion, Dr. Stoll assessed 7% WPI. Dr. Stoll opined that such a rating 

was significant and not consistent with a contusion injury. Dr. Stoll stated that, rather, the 

impairment was likely due to the natural progression of Mr. Workman’s prior injuries. As 

such, Dr. Stoll apportioned 4% WPI and attributed 3% WPI to the compensable injury. In 

sum, Dr. Stoll’s final recommendation was 3% WPI.

By order dated October 3, 2023, the Board affirmed the claim administrator’s order 

granting Mr. Workman a 6% PPD award in accordance with Dr. Mukkamala’s 

recommendation. Citing this Court’s holding in Duff v. Kanawha County Commission, 247 

W. Va. 550, 882 S.E.2d 916 (Ct. App. 2022), the Board determined that the medical records 

established a reasonable basis to apportion some of Mr. Workman’s concussion-related 

2 None of the evaluators found any impairment for the abrasion of the scalp.
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symptoms to his prior head injuries. The Board noted that Mr. Workman had a history of 

prior concussions, traumatic brain injuries, multiple falls due to losing his balance, and 

vertigo. The Board determined that neither Dr. Guberman nor Dr. Kominsky apportioned 

any of the impairment for Mr. Workman’s concussion-related symptoms and found, 

therefore, that their reports were unreliable. The Board noted that Dr. Mukkamala

“attributed 5% impairment to [Mr. Workman’s] compensable head injury while Dr. Stoll 

apportioned all of the 9% impairment” and, ultimately, affirmed the claim administrator’s 

order granting Mr. Workman a 6% PPD award in accordance with Dr. Mukkamala’s 

recommendation. Mr. Workman now appeals.

Our standard of review is set forth in West Virginia Code § 23-5-12a(b) (2022), in 

part, as follows:

The Intermediate Court of Appeals may affirm the order or decision of the 

Workers’ Compensation Board of Review or remand the case for further 

proceedings. It shall reverse, vacate, or modify the order or decision of the 

Workers’ Compensation Board of Review, if the substantial rights of the 

petitioner or petitioners have been prejudiced because the Board of Review’s 

findings are:

(1) In violation of statutory provisions;

(2) In excess of the statutory authority or jurisdiction of the Board of Review;

(3) Made upon unlawful procedures;

(4) Affected by other error of law;

(5) Clearly wrong in view of the reliable, probative, and substantial evidence 

on the whole record; or

(6) Arbitrary or capricious or characterized by abuse of discretion or clearly 

unwarranted exercise of discretion.

Duff, 247 W. Va. at 555, 882 S.E.2d at 921.

On appeal, Mr. Workman argues that the Board’s decision is clearly wrong, as the 

evidence reveals that he suffers from significant residual impairment from his compensable 

injury which is not adequately compensated by his 6% PPD award. While admitting his 

history of prior concussions, Mr. Workman contends that he has developed dizziness and 

has new limitations on his activities of daily living which were not present prior to the 

injury. According to Mr. Workman, the Board specifically erred in basing its decision to 

affirm the claim administrator’s order on the fact that Drs. Guberman and Kominsky did 

not apportion any impairment for his concussion-related injury. Mr. Workman argues that

contrary to the Board’s findings, this Court’s holding in Duff supports the position that 

apportionment was not necessary in this matter. For example, Mr. Workman contends that 

the Board failed to consider that his prior concussions had no detrimental effect on his work 

or his activities of daily living prior to the compensable injury. Thus, concludes Mr. 

Workman, the reports of Drs. Guberman and Kominsky should not have been dismissed.
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We disagree. Upon review, we find that Mr. Workman failed to demonstrate that 

the Board’s findings and conclusions were clearly wrong. The Supreme Court of Appeals 

of West Virginia has held that “[t]he ‘clearly wrong’ and the ‘arbitrary and capricious’ 

standards of review are deferential ones which presume an agency’s actions are valid as 

long as the decision is supported by substantial evidence or by a rational basis.” Syl. Pt. 3, 

In re Queen, 196 W. Va. 442, 473 S.E.2d 483 (1996). With this deferential standard in 

mind, we are unable to conclude that the Board erred in awarding Mr. Workman a 6% PPD 

award in accordance with Dr. Mukkamala’s recommendation. 

There is significant, overwhelming evidence of Mr. Workman’s prior concussions, 

vertigo issues, falls, and cognitive decline prior to the compensable injury which, contrary 

to his claims, affected his activities of daily living. The Board was not clearly wrong in 

determining that, under the circumstances, the impairment ratings of Drs. Guberman and 

Kominsky were too high and did not accurately reflect impairment attributable to the 

compensable injury. Rather, Dr. Mukkamala’s 6% WPI rating more closely resembled the 

true impairment arising from the compensable injury. Given these circumstances, we 

cannot find clear error in the Board’s findings. 

Accordingly, we affirm the Board’s October 3, 2023, order granting Mr. Workman 

a 6% PPD award in accordance with Dr. Mukkamala’s recommendation.

Affirmed.

ISSUED: February 27, 2024

CONCURRED IN BY:

Judge Charles O. Lorensen 

Judge Daniel W. Greear 

Chief Judge Thomas E. Scarr, not participating