United States Department of Labor

Employees’ Compensation Appeals Board

__________________________________________

T.D., Appellant

and

DEPARTMENT OF AGRICULTURE, FOREST

SERVICE, Tonasket, WA, Employer

__________________________________________

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Docket No. 19-1506

Issued: November 4, 2020

Appearances: Case Submitted on the Record

Stephanie N. Leet, Esq., for the appellant1

Office of Solicitor, for the Director

DECISION AND ORDER

Before:

ALEC J. KOROMILAS, Chief Judge

PATRICIA H. FITZGERALD, Alternate Judge

VALERIE D. EVANS-HARRELL, Alternate Judge

JURISDICTION

On July 5, 2019 appellant, through counsel, filed a timely appeal from a January 9, 2019 

merit decision of the Office of Workers’ Compensation Programs (OWCP). Pursuant to the 

Federal Employees’ Compensation Act2(FECA) and 20 C.F.R. §§ 501.2(c) and 501.3, the Board 

has jurisdiction over the merits of this case.3

 

1

In all cases in which a representative has been authorized in a matter before the Board, no claim for a fee for legal 

or other service performed on appeal before the Board is valid unless approved by the Board. 20 C.F.R. § 501.9(e). 

No contract for a stipulated fee or on a contingent fee basis will be approved by the Board. Id. An attorney or 

representative’s collection of a fee without the Board’s approval may constitute a misdemeanor, subject to fine or 

imprisonment for up to one year or both. Id.; see also 18 U.S.C. § 292. Demands for payment of fees to a 

representative, prior to approval by the Board, may be reported to appropriate authorities for investigation.

2 5 U.S.C. § 8101 et seq.

3 The Board notes that following the January 9, 2019 decision, OWCP received additional evidence. However, the 

Board’s Rules of Procedure provides: “The Board’s review of a case is limited to the evidence in the case record that 

was before OWCP at the time of its final decision. Evidence not before OWCP will not be considered by the Board 

for the first time on appeal.” 20 C.F.R. § 501.2(c)(1). Thus, the Board is precluded from reviewing this additional 

evidence for the first time on appeal. Id.
2

ISSUE

The issue is whether appellant has met her burden of proof to establish that the acceptance 

of her claim should be expanded to include the additional conditions of coccydynia and 

temporomandibular joint (TMJ) disorder as causally related to the accepted August 19, 2011 

employment injury. 

FACTUAL HISTORY

On October 5, 2011 appellant, then a 53-year-old temporary full-time lead biological 

science technician (plant), filed a traumatic injury claim (Form CA-1) alleging that on August 19, 

2011 she sustained injuries to her head, neck, left shoulder and elbow, and right little finger when 

a heavy trap door, which did not have a counter balance weight, fell on her as she was trying to 

open it while in the performance of duty. She also alleged that she reinjured her shoulder and back 

on September 21, 2011. OWCP accepted the claim for post-traumatic headache and head 

contusion. Appellant stopped work on March 10, 2013 and has not returned. OWCP paid her

wage-loss compensation on the supplemental rolls commencing March 10, 2013 and on its 

periodic compensation rolls effective October 20, 2013. 

Appellant was first examined by Dr. David Stangland, a family medical specialist, on 

October 20, 2011. In his report dated October 22, 2011, Dr. Stangland reported that on August 19, 

2011 appellant “lifted a trap door at a look out and afterwards, she noticed some twinges of pain 

in her neck and right calf and intermittent head pressure.” On September 7, 2011 appellant was 

opening and closing the same trap door when it smashed her right fifth finger, leaving a hematoma 

under the nail. On September 21, 2011 she felt pain in her left shoulder after attempting to open 

the same trap door, which was stuck in place due to snow and ice. Two days later, appellant was 

unable to straighten her left elbow and experienced popping in the shoulder. Dr. Stangland also 

noted that appellant had recently been tender over her tailbone for unclear reasons. He diagnosed

lumber, upper and lower extremity conditions, and coccydynia of unclear etiology. 

In a March 12, 2012 letter, Dr. Stangland opined that “two separate incidents” of opening 

the heavy trap door by a small woman resulted in medical conditions including coccydynia.

In an April 30, 2012 report, Dr. Steve Hufman, a sports medicine specialist, noted 

appellant’s history of injury as a trapdoor falling onto appellant’s head as she was lowering it into 

place and forcing her down into the stairs. He diagnosed a number of medical conditions, but did 

not note any diagnoses related to appellant’s coccyx or TMJ. In follow-up examinations of

May 30, June 4, and July 2, 2012, Dr. Hufman diagnosed coccydynia. 

In an October 6, 2014 report, Dr. Greg Grillo, a dentist, noted that in 2011, appellant had a 

traumatic head injury that created a number of chronic complications. He noted that she had 

reported jaw problems and generalized tooth sensitivity since her injury, but that he had been 

unable to draw a direct cause and effect relationship between the two. Dr. Grillo diagnosed 

degeneration of the TMJ and opined that the anatomical shift in her mandible, often seen as a result 

of degeneration of the TMJ and its associated cartilage and space, occurred secondary to trauma. 

He indicated that appellant had developed a three-millimeter shift in her jaw alignment and 

resulting dysfunction since the injury. X-ray pictures of appellant’s jaw alignment pre-2011 and 

2014 were provided.
3

On March 24, 2015 OWCP expanded the acceptance of the claim to include concussion 

without loss of consciousness; anxiety; and sprain of back, lumbar region. 

On November 2, 2015 appellant, through counsel, requested that the acceptance of her 

claim be expanded to include lumbar radiculopathy/sciatica; C5-6 spondylosis; C4-5 disc 

protrusion; TMJ disorder; and coccydynia. OWCP subsequently received a December 5, 2014 

report, wherein Dr. Miranda M. Raiche, Board-certified in family medicine, diagnosed several 

conditions including TMJ syndrome, which she related was “probably” related to appellant’s 2011 

head injury. In a June 20, 2016 report, Dr. Raiche noted that appellant continued to have jaw pain. 

She noted a diagnosis of coccyx pain.

In a development letter dated November 4, 2016, OWCP informed appellant that additional 

medical evidence was needed to expand the acceptance of her claim to include: lumbar 

radiculopathy/sciatica; TMJ; C5-6 spondylosis; C4-5 disc protrusion; and coccydynia. It advised 

appellant to submit additional evidence, including a well-rationalized report from her physician 

explaining how the accepted August 19, 2011 employment injury caused or aggravated the 

additional claimed medical conditions. OWCP afforded her 30 days to respond. 

In response to the development letter, OWCP received Dr. Raiche’s January 31, 2017 notes 

and a work capacity evaluation (Form OWCP-5c). Dr. Raiche diagnosed several medical 

conditions which included acquired cross bite and coccyx pain. She opined that both she and

Dr. Grillo believed that the acquired cross bite was a result of appellant’s head injury. 

By decision dated March 24, 2017, OWCP denied appellant’s request to expand the 

acceptance of her claim, finding that the evidence submitted was of insufficient probative value to 

establish that the accepted August 19, 2011 employment injury had caused or aggravated the 

additional claimed conditions.

On April 10, 2017 appellant requested a telephonic hearing before a hearing representative 

of OWCP’s Branch of Hearings and Review. The hearing was held on October 3, 2017. 

OWCP subsequently received additional evidence. In an August 31, 2017 report,

Dr. Raiche indicated the history of injury as a heavy trap door falling and hitting appellant on the 

head, causing unnatural, sudden and forced hyperflexion of her spine. She opined that the blunt 

force trauma to appellant’s head caused a shift in appellant’s mandible at the TMJ joints, damaging 

the cartilage and causing a cross bite, which happened when the lower jaw was shifted sideways. 

Progress notes and Form OWCP-5c work capacity evaluations were also received. 

In a September 26, 2017 letter, Dr. Grillo continued to opine that appellant’s clinical 

findings of TMJ disorder was consistent with traumatic injury. He explained that chronic 

degeneration of the joint structure may cause a slow shift which continued to worsen over time, 

but sudden shifts were unusual outside of traumatic causes. Dr. Grillo noted that the shift was not 

observed until after examination post-accident in 2014. He further indicated that when he 

examined appellant on September 20, 2017 the position of her jaw remained where it was 

following her accident and had not worsened over time as would be expected from a chronic 

degeneration of the joint.
4

By decision dated December 13, 2017, an OWCP hearing representative affirmed the 

March 24, 2017 denial of the claim with regard to the conditions of coccydynia and TMJ disorder

as the medical evidence was insufficient to support causal relationship.

4

On November 27, 2018 appellant, through counsel, requested reconsideration and 

submitted additional medical evidence. 

In a May 11, 2018 letter, Dr. Raiche reiterated her opinions as set forth in her prior report 

of August 31, 2017. A September 27, 2018 report and Form OWCP-5c from Dr. Raiche were also 

received. Appellant’s history of injury was reported as an 80-pound trap door fell on her crunching 

her in a sudden hyperflexed fetal position. Dr. Raiche indicated that in addition to cervical 

conditions and headache, appellant continued to experience dental pain related to traumatic cross 

bite from the employment injury.

In a November 1, 2018 letter, Dr. Grillo noted appellant’s accepted conditions and that he 

had reviewed her medical records, history, and that he examined her clinically multiple times. He

indicated that her TMJ disorder was diagnosed by examination and objective findings of 

measureable misalignment of the teeth. Dr. Grillo opined that appellant’s TMJ disorder was 

caused by the August 19, 2011 employment injury and not from normal aging. He indicated that

prior to appellant being struck on the head with the trap door on August 19, 2011, she had no 

diagnosis of TMJ or problems with teeth alignment. Dr. Grillo explained that, when she sustained 

the impact to her head, it caused her teeth to clamp down suddenly and compressed the jaw joints 

on both sides of her face. The sudden compression of the joints led to a shift in the alignment of 

the teeth. The impact and altered alignment also resulted in inflammation of the membranes and 

surrounding tissues associated with the joint. Dr. Grillo indicated that the five-millimeter shift 

measured in her lower jaw was not there prior to her injury. He opined that this shift was not 

possible without a structural change in the jaw joint complex, which is normally very stable 

without systemic arthritic disease. Dr. Grillo also noted that appellant had not suffered any 

intervening injuries to her jaw.

By decision dated January 9, 2019, OWCP denied modification of its December 13, 2017 

decision. 

LEGAL PRECEDENT

When an employee claims that a condition not accepted or approved by OWCP was due to 

an employment injury, he or she bears the burden of proof to establish that the condition is causally 

related to the employment injury.5

To establish causal relationship between a condition and the employment event or factors, 

the employee must submit rationalized medical opinion evidence based on a complete factual and 

 

4 OWCP’s hearing representative vacated March 24, 2017 decision in part and remanded the case for further 

development with regard to appellant’s request to expand the claim to include lumbar radiculopathy/sciatica, C5-6 

spondylosis, and C4-5 disc protrusion, as such the acceptance of those conditions are in an interlocutory status and 

are not presently before the Board in this appeal. See 20 C.F.R. § 501.2(c)(2).

5 See S.L., Docket No. 19-0603 (issued January 28, 2020); T.E., Docket No. 18-1595 (issued March 13, 2019); T.F., 

Docket No. 17-0645 (issued August 15, 2018); Jaja K. Asaramo, 55 ECAB 200 (2004).
5

medical background, supporting such a causal relationship.6 The opinion of the physician must be 

based on a complete factual and medical background of the claimant, must be one of reasonable 

medical certainty, and must be supported by medical rationale explaining the nature of the 

relationship between the diagnosed condition and the specific employment factors identified by 

the claimant.7

ANALYSIS

The Board finds that appellant has not met her burden of proof to establish that the 

acceptance of her claim should be expanded to accept the additional condition of coccydynia as 

causally related to the accepted August 19, 2011 employment injury. 

With regard to appellant’s coccydynia claim, Dr. Stangland, in his October 22, 2011 report,

provided an accurate history of injury and noted that appellant recently had tenderness over her 

tailbone for unclear reasons. He diagnosed coccydynia with an unclear etiology. While

Dr. Stangland subsequently provided a vague affirmative opinion, citing two separate incidents, 

supporting causal relationship in his March 12, 2012 letter, he did not offer a rationalized medical 

explanation to support his opinion. A mere conclusion regarding causation without supporting 

medical rationale is insufficient to meet appellant’s burden of proof.8 Further, Dr. Stangland 

provided no rationale explaining how, physiologically, the specific movements involved in the

accepted employment incident caused or contributed to the coccydynia. Thus, the Board finds that 

his reports are insufficient to meet appellant’s burden of proof.9 

While Dr. Hufman also diagnosed coccydynia in multiple reports from May 30 to July 2, 

2012, he failed to provide an opinion as to whether the accepted employment injury caused or 

aggravated her condition.

10

 Therefore, his reports are insufficient to establish appellant’s claim.

Dr. Raiche also diagnosed coccydynia in her June 20, 2016 and January 31 2017 reports, 

she did not offer an opinion as to the cause of this condition. Medical evidence which does not 

offer an opinion regarding the cause of an employee’s condition is of no probative value on the 

issue of causal relationship.11 The medical evidence of record is therefore insufficient to establish 

that appellant’s coccydynia condition was causally related to the accepted employment injury. 

The Board further finds that the case is not in posture for decision with regard to whether 

her claim should be expanded to include the additional condition of TMJ disorder. 

 

6 See S.L., id.; S.A., Docket No. 18-0399 (issued October 16, 2018).

7 See M.M., Docket No. 19-0061 (issued November 21, 2019); P.M., Docket No. 18-0287 (issued 

October 11, 2018).

8 See L.G., Docket No. 19-0142 (issued August 8, 2019).

9 M.E., Docket No. 18-0940 (issued June 11, 2019).

10 Medical evidence that does not offer an opinion regarding the cause of an employee’s condition or disability is 

of no probative value on the issue of causal relationship. See L.B., Docket No. 18-0533 (issued August 27, 2018); 

D.K., Docket No. 17-1549 (issued July 6, 2018).

11 A.P., Docket No. 18-1690 (issued December 12, 2019); J.H., Docket No. 19-0383 (issued October 1, 2019); L.B.,

id.; D.K., supra note 10.
6

In his November 1, 2018 letter, Dr. Grillo related that prior to appellant being struck on the 

head with the trap door on August 19, 2011 she had no diagnosis of TMJ or problems with teeth 

alignment. He opined that appellant’s TMJ was not due to the aging process and he explained 

how, physiologically, the accepted employment incident could have caused or contributed to a 

shift in the alignment of the teeth and TMJ. Dr. Grillo explained with specificity that when 

appellant sustained the impact to her head, it caused her teeth to clamp down suddenly and 

compressed the jaw joints on both sides of her face. The sudden compression of the joints led to 

a shift in the alignment of the teeth. The impact and altered alignment also resulted in 

inflammation of the membranes and surrounding tissues associated with the joint. Dr. Grillo

opined that this shift was not possible without a structural change in the jaw joint complex, which 

is normally very stable without systemic arthritic disease. The Board finds that this report from

Dr. Grillo, is sufficient to require further development of the medical evidence.12 Dr. Grillo is a 

dentist who is qualified in his field of medicine to render rationalized opinions on the issue of 

causal relationship and he provided a comprehensive understanding of the medical record and case 

history. His report provides a pathophysiological explanation as to how the accepted employment 

incident could have caused or contributed to a shift in the alignment of appellant’s teeth and TMJ.13 

The Board also notes that Dr. Raiche’s reports provide further support for Dr. Grillo’s conclusion

that appellant’s TMI disorder was causally related to her accepted employment incident. In her 

January 31, and August 31, 2017 and September 27, 2018 reports, Dr. Raiche explained that 

appellant’s acquired cross bite was a result of her head injury. 

The Board has long held that it is unnecessary that the evidence of record in a case be so 

conclusive as to suggest causal connection beyond all possible doubt. Rather, the evidence 

required is only that necessary to convince the adjudicator that the conclusion drawn is rational, 

sound, and logical.14 Accordingly, as Dr. Grillo’s medical opinion, as supported by Dr. Raiche’s 

findings, is well rationalized and logical, it is therefore sufficient to require further development 

of appellant’s claim.15

It is well established that proceedings under FECA are not adversarial in nature and, while 

appellant has the burden of proof to establish entitlement to compensation, OWCP shares 

responsibility in the development of the evidence.16 OWCP has an obligation to see that justice is 

done.17

On remand OWCP shall refer appellant, a statement of accepted facts, and the medical 

record to an appropriate specialist. The chosen physician shall provide a rationalized opinion as 

 

12 See R.M., Docket No. 20-0342 (issued July 30, 2020). 

13 See T.L., Docket No. 18-1187 (issued March 10, 2020). 

14 See S.M., Docket No. 19-1634 (issued August 25, 2020); W.M., Docket No. 17-1244 (issued November 7, 2017); 

Kenneth J. Deerman, 34 ECAB 641, 645 (1983) and cases cited therein.

15 S.M., id.; J.H., Docket No. 18-1637 (issued January 29, 2020); D.S., Docket No. 17-1359 (issued May 3, 2019); 

X.V., Docket No. 18-1360 (issued April 12, 2019); C.M., Docket No. 17-1977 (issued January 29, 2019); William J.

Cantrell, 34 ECAB 1223 (1983).

16 See S.M., supra note 14; see also A.P., Docket No. 17-0813 (issued January 3, 2018); Jimmy A. Hammons, 51 

ECAB 219, 223 (1999); John J. Carlone, 41 ECAB 354 (1989).

17 Id.
7

to whether the diagnosed TMJ and cross bite conditions are causally related to the accepted factors 

of appellant’s federal employment. If the physician opines that the diagnosed conditions are not 

causally related, he or she must explain, with rationale, how or why the opinion differs from that 

of Drs. Grillo and Raiche. Following this and such other further development as deemed 

necessary, OWCP shall issue a de novo decision regarding the expansion of appellant’s claim to 

include TMJ.

CONCLUSION

The Board finds that appellant has not met her burden of proof to establish that the 

acceptance of her claim should be expanded to include the condition of coccydynia as causally 

related to the accepted August 19, 2011 employment injury. The Board further finds that the case 

is not in posture for decision with regard to whether appellant’s claim should be expanded to 

include the additional condition of TMJ disorder. 

ORDER

IT IS HEREBY ORDERED THAT the January 9, 2019 decision of the Office of 

Workers’ Compensation Programs is affirmed in part and set aside in part and the case is remanded 

for further proceedings consistent with this decision of the Board.

Issued: November 4, 2020

Washington, DC

Alec J. Koromilas, Chief Judge

Employees’ Compensation Appeals Board

Patricia H. Fitzgerald, Alternate Judge

Employees’ Compensation Appeals Board

Valerie D. Evans-Harrell, Alternate Judge

Employees’ Compensation Appeals Board