United States Department of Labor

Employees’ Compensation Appeals Board

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G.D., Appellant

and

DEPARTMENT OF THE ARMY, U.S. ARMY 

CORPS OF ENGINEERS, Lake Isabella, CA, 

Employer

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Docket No. 19-1681

Issued: February 20, 2020

Appearances: Case Submitted on the Record

Appellant, pro se

Office of Solicitor, for the Director

DECISION AND ORDER

Before:

PATRICIA H. FITZGERALD, Deputy Chief Judge

JANICE B. ASKIN, Judge

VALERIE D. EVANS-HARRELL, Alternate Judge

JURISDICTION

On July 31, 2019 appellant, filed a timely appeal from a July 16, 2019 merit 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.2

 

1 5 U.S.C. § 8101 et seq.

2 The Board notes that appellant submitted additional evidence on appeal. 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 his burden of proof to establish a left knee injury 

causally related to the accepted December 18, 2018 employment incident.

FACTUAL HISTORY

On January 10, 2019 appellant, then a 56-year-old construction control representative, filed 

a traumatic injury claim (Form CA-1) alleging that on December 18, 2018 he injured his left knee 

while in the performance of duty. He explained that the loose footing down a steep dirt grade 

aggravated a previous work-related injury he sustained to his left knee. Appellant did not stop 

work. 

In a February 7, 2019 medical report, Dr. Healthy Desai, a Board-certified orthopedic 

surgeon, evaluated appellant for left knee pain. He noted that appellant previously injured his left 

knee in a December 2017 workers’ compensation injury where he twisted his knee. Dr. Desai

provided that on December 18, 2018 appellant slid down a hillside while on the job site. Appellant 

described the pain as dull, chronic and constant and noted occasional popping in his knee. An

x-ray of appellant’s left knee revealed osteoarthritis in the lateral compartment and a left knee 

effusion. Dr. Desai explained that appellant’s arthritic pain was most likely an aggravation of his 

underlying condition. In a medical note of even date, he provided that appellant could return to 

work on February 8, 2019 with work restrictions of no prolonged walking or standing and no 

kneeling or climbing of ladders for four weeks. 

In a development letter dated June 14, 2019, OWCP informed appellant that his claim 

initially appeared to be a minor injury that resulted in minimal or no lost time from work and that 

continuation of pay was not controverted by the employing establishment, and thus, limited 

expenses had therefore been authorized. However, formal adjudication was now required. OWCP

explained that it did not have any record of a claim with a December 2017 date of injury related to 

appellant’s left knee and that it only had records of a claim for a left ankle injury related to an 

August 25, 2017 date of injury. It requested a narrative medical report from his physician which 

provided the physician’s rationalized medical explanation as to how the alleged employment 

incident caused or aggravated the diagnosed condition. OWCP afforded appellant 30 days to 

respond.

OWCP received additional evidence. In a May 2, 2019 medical report, Dr. Desai indicated 

that he had administered a cortisone injection to appellant’s left knee in order to treat his 

degenerative arthritis and effusion of the left knee.

In a June 13, 2019 x-ray report of appellant’s left knee, Dr. Lawrence McNutt, a Boardcertified radiologist, noted no evidence of a fracture or dislocation in appellant’s left knee and 

diagnosed a small suprapatellar effusion and moderate osteoarthritis of the left knee joint with 

moderate joint space narrowing laterally and mild joint space narrowing medially. In a medical 

report of even date, Dr. Desai noted the May 2, 2019 cortisone shot was only effective for two 

weeks, but appellant’s left knee pain still remained. He again noted appellant’s left knee 

osteoarthritis and provided that there was a possible lateral meniscus tear. 
3

By decision dated July 16, 2019, OWCP denied appellant’s claim. It found that the medical 

evidence of record was insufficient to establish an injury or condition causally related to the 

accepted work incident. 

LEGAL PRECEDENT

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,3that 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.4 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.5

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.6 First, 

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

employment incident at the time, place, and in the manner alleged.7 Second, the employee must 

submit sufficient evidence to establish that the employment incident caused a personal injury8. 

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.9 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.10 

 

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

153 (1989).

4

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

ECAB 312 (1988).

5 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).

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

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

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

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

10 I.J., 59 ECAB 408 (2008).
4

ANALYSIS

The Board finds that appellant has not met his burden of proof to establish a left knee 

condition causally related to the accepted December 18, 2018 employment incident.

In his February 7, 2019 medical report, Dr. Desai related that appellant injured his left knee 

when he slid down a hillside while on the job site. Based on an x-ray of even date, he diagnosed 

appellant with left knee osteoarthritis in the lateral compartment and a left knee effusion. Dr. Desai 

noted that appellant previously injured his left knee in a December 2017 workers’ compensation 

injury where he twisted his knee and explained that his arthritis pain was “most likely” an 

aggravation of his underlying conditions. While he provided an affirmative opinion on causal 

relationship, Dr. Desai’s opinion is insufficiently rationalized as he failed to explain the 

pathophysiologic mechanism by which the accepted employment activity caused, aggravated or 

accelerated appellant’s injuries.11 Moreover, he opined that appellant’s injury “most likely” was 

an aggravation of his underlying conditions. The Board has held that opinions that are speculative 

or equivocal in character are of diminished probative value.12 For these reasons, Dr. Desai’s 

February 7, 2019 medical report is insufficient to meet appellant’s burden of proof.

In medical reports dated May 6 and June 13, 2019, Dr. Desai described his administration 

of a cortisone injection to appellant’s left knee in order to treat his degenerative arthritis and 

effusion of the left knee. He provided that the cortisone shot was effective for two weeks and 

noted appellant’s left knee osteoarthritis, effusion and possible lateral meniscus tear. However,

Dr. Desai offered no opinion regarding the cause of appellant’s medical conditions. The Board 

has held that medical evidence that does not offer an opinion regarding the cause of an employee’s 

condition is of no probative value on the issue of causal relationship.13 For this reason, Dr. Desai’s 

medical reports are insufficient to establish the claim.

Appellant also submitted a diagnostic report from Dr. McNutt. The Board has held that 

diagnostic tests lack probative value as they do not provide an opinion on causal relationship 

between appellant’s employment duties and the diagnosed conditions.14 Accordingly, this 

diagnostic report is also insufficient to establish the claim. As appellant has not submitted 

rationalized medical evidence establishing that his left knee condition is causally related to the 

accepted December 18, 2018 employment incident, the Board finds that he has not met his burden 

of proof to establish his claim.

Appellant may submit new evidence or argument with a written request for reconsideration 

to OWCP within one year of this merit decision, pursuant to 5 U.S.C. § 8128(a) and 20 C.F.R. 

§§ 10.605 through 10.607.

 

11 See A.P., Docket No. 19-0224 (issued July 11, 2019).

12 See D.D., 57 ECAB 734 (2006).

13 R.Z., Docket No. 19-0408 (issued June 26 2019); P.S., Docket No. 18-1222 (issued January 8, 2019).

14 See J.M., Docket No. 17-1688 (issued December 13, 2018).
5

CONCLUSION

The Board finds that appellant has not met his burden of proof to establish a left knee 

condition causally related to the accepted December 18, 2018 employment incident.

ORDER

IT IS HEREBY ORDERED THAT the July 16, 2019 decision of the Office of Workers’

Compensation Programs is affirmed.

Issued: February 20, 2020

Washington, DC

Patricia H. Fitzgerald, Deputy Chief Judge

Employees’ Compensation Appeals Board

Janice B. Askin, Judge

Employees’ Compensation Appeals Board

Valerie D. Evans-Harrell, Alternate Judge

Employees’ Compensation Appeals Board