United States Department of Labor

Employees’ Compensation Appeals Board

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M.M., Appellant

and

U.S. POSTAL SERVICE, POST OFFICE,

Letcher, SD, Employer

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Docket No. 20-0574

Issued: August 19, 2020

Appearances: Case Submitted on the Record

Appellant, pro se

Office of Solicitor, for the Director

DECISION AND ORDER

Before:

CHRISTOPHER J. GODFREY, Deputy Chief Judge

JANICE B. ASKIN, Judge

PATRICIA H. FITZGERALD, Alternate Judge

JURISDICTION

On January 18, 2020 appellant filed a timely appeal from a November 1, 2019 merit 

decision and a December 4, 2019 nonmerit decision of the Office of Workers’ Compensation 

Programs (OWCP). Pursuant to the Federal Employees’ Compensation Act1(FECA) and 20 

C.F.R. §§ 501.2(c) and 501.3, the Board has jurisdiction over the merits of this case.

ISSUES

The issues are: (1) whether appellant has met his burden of proof to establish a hearing 

loss causally related to the accepted August 2, 2019 employment incident of exposure; and 

(2) whether OWCP properly denied appellant’s request for reconsideration of the merits of his 

claim pursuant to 5 U.S.C. § 8128(a).

 

1 5 U.S.C. § 8101 et seq.
2

FACTUAL HISTORY

On August 17, 2019 appellant, then a 46-year-old postal support employee, filed a 

traumatic injury claim (Form CA-1) alleging that on August 2, 2019 he was injured when a weather 

siren went off as he was walking outside of the employing establishment while in the performance 

of duty. He indicated that he could feel his eardrums expand in his head and that he experienced 

constant ringing in his left ear and bad headaches as a result. On the reverse side of the claim form 

appellant’s supervisor checked a box marked “No” to indicate her belief that appellant was not in 

the performance of duty when his injury occurred and reasoned that “He was done working for the 

day -- Outside work factor” at the time of his injury. Appellant did not stop work.

In an August 12, 2019 medical report, Dr. William Graham, a Board-certified 

otolaryngologist, evaluated appellant for acoustic trauma and left ear tinnitus related to the 

August 2, 2019 employment incident in which he was exposed to a loud siren at work. Appellant 

denied a prior history of hearing loss or acoustic trauma. Dr. Graham also noted that he had 

previously evaluated appellant in 2014 for decreased hearing in the left ear and tinnitus. He 

diagnosed tinnitus laterally left, hearing loss in the left ear, unspecified, and occupational exposure 

to noise.

In an August 19, 2019 letter, the employing establishment controverted appellant’s claim

contending that his injury was not work related because he was off the clock and he “could have 

been anywhere else” when the sirens went off and had the same thing happen. It also observed 

that appellant was seen by Dr. Graham in 2014 with complaints of decreased hearing in his left ear 

and tinnitus.

In an undated statement, appellant explained that on the afternoon of August 2, 2019 he 

was finishing work for the day at the employing establishment’s facility in Alexandria, where he 

was assigned to work that afternoon because the employing establishment was in the process of 

hiring a new employee for that office. As appellant walked outside, a loud and high-pitched 

weather alarm went off. He stated that when the alarm was in his direction he could feel his 

eardrums expand in his head. Appellant ran to his car to try and block out some of the noise and 

waited several minutes for the alarm to stop before he left. He explained that he immediately 

experienced pain in both ears and had a ringing or buzzing sensation mostly in his left ear. 

Appellant indicated that he has experienced ringing in his ear since the alarm went off.

In a development letter dated August 20, 2019, OWCP advised appellant of the factual and 

medical deficiencies of his claim. It informed him of the type of evidence necessary to establish 

his claim and provided a questionnaire for his completion regarding the circumstances of his 

claimed injury. OWCP also requested a narrative medical report from appellant’s treating 

physician, which contained a detailed description of findings and diagnoses, explaining how the 

alleged incident caused, contributed to, or aggravated his medical conditions. In a separate 

development letter of even date, it requested that the employing establishment provide additional 

information regarding appellant’s traumatic injury claim. OWCP afforded both parties 30 days to 

respond.

An August 28, 2019 medical report with an illegible signature noted that appellant 

underwent an audiometric evaluation with otoscopic screening in response to the symptoms he 
3

was experiencing since the August 2, 2019 employment incident. The otoscopic viewing was 

noted to be unremarkable bilaterally and appellant’s hearing was found to be within the normal 

limits bilaterally.

In an August 29, 2019 response to OWCP’s questionnaire, appellant indicated that his 

injury occurred on the sidewalk and in the parking lot of the employing establishment. He claimed 

that he was still on the premises performing his duty for a travel assignment when the injury 

occurred. Appellant explained that he had not sustained any other injury at that time or prior to 

the alleged employment incident. He indicated that he had experienced buzzing or ringing in his 

ear since the incident and occasional bad headaches. Appellant also attached photographs of the 

parking lot and surrounding area where the alleged incident occurred.

In a September 10, 2019 statement in response to OWCP’s development letter, the 

employing establishment indicated that appellant reported that at the time of the alleged injury he 

was going home for the day and headed to his car in the employing establishment parking lot.

By decision dated September 30, 2019, OWCP denied appellant’s traumatic injury claim 

finding that the evidence of record was insufficient to establish that his diagnosed conditions were

causally related to the accepted August 2, 2019 employment incident.

In an October 14, 2019 statement, appellant explained that he was seen by Dr. Graham in 

2014 because he had a cold and wax on his eardrum that was removed. He also noted that he had 

suffered from headaches and also sustained a neck injury from the weather siren, and had 

undergone treatment from a chiropractor.

On October 21, 2019 appellant requested reconsideration of OWCP’s September 30, 2019 

decision and submitted additional medical evidence.

In medical reports dated from September 27 to October 24, 2019, Dr. Scott Mullenmeister, 

a Board-certified chiropractic specialist, evaluated appellant for left-sided upper back and neck 

pain that occurred on August 2, 2019 when he jerked his neck after hearing a loud storm siren. 

Appellant also reported experiencing headaches and ringing in his left ear since the incident. 

Dr. Mullenmeister diagnosed segmental and somatic dysfunction of the cervical region, 

cervicalgia, episodic tension headache, segmental and somatic dysfunction of the thoracic region, 

pain in the thoracic spine and segmental, and somatic dysfunction of the pelvic region.

By decision dated November 1, 2019, OWCP denied modification of its September 30,

2019 decision.

On November 20, 2019 appellant requested reconsideration of OWCP’s November 1, 2019 

decision. In an attached statement of even date, he contended that he was not given a straight 

answer on what information was needed from Drs. Graham and Mullenmeister in order to satisfy 

his claim. Appellant further explained that his 2014 visit with Dr. Graham was unrelated and that 

there was no problem with his ear until the August 2, 2019 employment incident.

By decision dated December 4, 2019, OWCP denied appellant’s request for reconsideration 

finding that the evidence submitted was irrelevant or immaterial and thus had no bearing on the 

issue or was inconsequential in regards to the issue.
4

LEGAL PRECEDENT -- ISSUE 1

An employee seeking benefits under FECA has the burden of proof to establish the 

essential elements of his or her claim, including the fact that the individual is an employee of the 

United States within the meaning of FECA, that the claim was timely filed within the applicable 

time limitation period of FECA,2that an injury was sustained in the performance of duty as alleged, 

and that any disability or medical condition for which compensation is claimed is causally related 

to the employment injury.3 These are the essential elements of each and every compensation claim, 

regardless of whether the claim is predicated upon a traumatic injury or an occupational disease.4

To determine whether a federal employee has sustained a traumatic injury in the 

performance of duty it must first be determined whether fact of injury has been established.5 First, 

the employee must submit sufficient evidence to establish that he actually experienced the 

employment incident at the time and place, and in the manner alleged.6 Second, the employee 

must submit sufficient evidence to establish that the employment incident caused a personal 

injury.7

To establish causal relationship between the condition, as well as any attendant disability 

claimed and the employment event or incident, the employee must submit rationalized medical 

opinion evidence sufficient to establish such causal relationship.8 The opinion of the physician 

must be based on a complete factual and medical background, 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.9 

In administering FECA, OWCP must attempt to obtain any evidence which is necessary 

for the adjudication of the case which is not received when the notice or claim is submitted. Some 

initial claims require full-scale medical development because the nature of exposure is in question, 

the diagnosis is not clearly identified, or the relationship of the condition to the exposure is not 

obvious. Certain types of conditions, such as hearing loss and asbestosis claims, require OWCP 

 

2 S.B., Docket No. 17-1779 (issued February 7, 2018); J.P., 59 ECAB 178 (2007); Joe D. Cameron, 41 ECAB 

153 (1989).

3

J.M., Docket No. 17-0284 (issued February 7, 2018); R.C., 59 ECAB 427 (2008); James E. Chadden, Sr., 40 

ECAB 312 (1988).

4 K.M., Docket No. 15-1660 (issued September 16, 2016); L.M., Docket No. 13-1402 (issued February 7, 2014); 

Delores C. Ellyett, 41 ECAB 992 (1990).

5 D.B., Docket No. 18-1348 (issued January 4, 2019); T.H., 59 ECAB 388, 393-94 (2008).

6 D.S., Docket No. 17-1422 (issued November 9, 2017); Elaine Pendleton, 40 ECAB 1143 (1989).

7 B.M., Docket No. 17-0796 (issued July 5, 2018); John J. Carlone, 41 ECAB 354 (1989).

8 K.V., Docket No. 18-0723 (issued November 9, 2018).

9

I.J., 59 ECAB 408 (2008).
5

to refer the claimant for examination by a qualified specialist if the report submitted by the claimant 

does not meet all of its requirements for adjudication.10

ANALYSIS -- ISSUE 1

The Board finds that this case is not in posture for decision.

OWCP accepted that appellant was exposed to a siren on August 2, 2019 while in the 

performance of duty. Consequently, regardless of the specific decibel level of exposure, it must 

consider whether the employment-related noise exposure was sufficiently prolonged to result in 

acoustic trauma.11 Such a question is medical in nature and should be resolved by a Board-certified 

otolaryngologist.12 

While Dr. Graham, in his August 12, 2019 medical report, diagnosed tinnitus laterally left, 

hearing loss in the left ear, unspecified and occupational exposure to noise, his report lacked 

sufficient rationale and thus lacked probative value to establish the claim. However, as a hearing 

loss claim, OWCP was required under its own procedures to refer him for examination by a 

qualified specialist.13 

As OWCP failed to properly develop the evidence, the Board finds that the case must be 

remanded for the required referral to a qualified specialist for a medical evaluation in accordance 

with its procedures.

14

 After this and other further development as may be deemed necessary, 

OWCP shall issue a de novo decision regarding whether appellant’s workplace noise exposure 

caused, contributed to, or aggravated his hearing loss condition.

15

CONCLUSION

The Board finds that this case is not in posture for decision.

 

10 Federal (FECA) Procedure Manual, Part 2 -- Claims, Initial Development of Claims, Chapter 2.800.9 (June 2011). 

See also id. at Part 3 -- Medical, Requirements for Medical Reports, Chapter 3.600 (October 1990).

11 See W.P., Docket No. 15-0597 (issued January 27, 2016).

12 Id.

13 Supra note 10.

14 Id. at Part 2 -- Claims, Causal Relationship, Chapter 2.805.3(b) (January 2013). See also M.W., Docket No. 10-

992 (issued December 9, 2010).

15 In light of the Board’s disposition in Issue 1, Issue 2 is rendered moot.
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ORDER

IT IS HEREBY ORDERED THAT the December 4 and November 1, 2019 decisions of 

the Office of Workers’ Compensation Programs are set aside and the case is remanded for further 

proceedings consistent with this decision of the Board.

Issued: August 19, 2020

Washington, DC

Christopher J. Godfrey, Deputy Chief Judge

Employees' Compensation Appeals Board

Janice B. Askin, Judge

Employees' Compensation Appeals Board

Patricia H. Fitzgerald, Alternate Judge

Employees' Compensation Appeals Board