United States Department of Labor

Employees’ Compensation Appeals Board

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K.H., Appellant

and

DEPARTMENT OF VETERANS AFFAIRS, 

VETERANS HEALTH ADMINISTRATION,

MINNEAPOLIS VETERANS MEDICAL 

CENTER, Minneapolis, MN, Employer

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Docket No. 20-0650

Issued: October 16, 2020

Appearances: Case Submitted on the Record

Appellant, pro se

Office of Solicitor, for the Director

DECISION AND ORDER

Before:

ALEC J. KOROMILAS, Chief Judge

CHRISTOPHER J. GODFREY, Deputy Chief Judge

VALERIE D. EVANS-HARRELL, Alternate Judge

JURISDICTION

On February 3, 2020 appellant filed a timely appeal from a December 30, 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.

ISSUE

The issue is whether appellant has met his burden of proof to establish a right shoulder 

condition causally related to the accepted March 4, 2019 employment incident.

 

1 5 U.S.C. § 8101 et seq.
2

FACTUAL HISTORY

On May 1, 2019 appellant, then a 53-year-old painter, filed a traumatic injury claim (Form 

CA-1) alleging that on March 4, 2019, when painting door frames, he experienced pain in his right 

shoulder and sustained a muscle strain from repetitive motion while in the performance of duty. 

He did not immediately stop work.

In an April 12, 2019 medical report, Steven S. Williamson, a physician assistant, indicated 

that appellant had right shoulder pain, which began gradually five weeks earlier. He attributed

appellant’s symptoms to multiple injuries, including overuse from his work as a painter.

Mr. Williamson noted that appellant had full active and passive range of motion, normal muscle 

strength, and intact sensation. An x-ray of the right shoulder of even date, revealed intact 

glenohumeral and acromioclavicular (AC) joint spaces, no fracture, and no dislocation. 

Mr. Williamson diagnosed right shoulder pain.

An April 23, 2019 magnetic resonance imaging (MRI) scan of the right shoulder 

demonstrated moderate severity supraspinatus tendon tendinopathy with a focal partial-thickness 

intrasubstance and undersurface tear within the anterior third, mild subscapular tendinopathy 

without tearing, tendinopathy and longitudinal partial-thickness split tearing within the biceps 

tendon, mild hypertrophic change of the AC joint, and no evidence of fracture.

In a medical report dated April 26, 2019, Dr. Jack G. Skendzel, a Board-certified

orthopedist, indicated that appellant presented with a gradual onset of right shoulder pain that he 

attributed to overuse from painting. He reported performing overhead lifting six to eight months 

earlier and felt a tear in his right shoulder, but the pain resolved, only to return six weeks prior to 

the current examination. Dr. Skendzel noted tenderness over the right biceps tendon and mild 

muscle weakness of the supraspinatus. He reviewed the MRI scan findings and diagnosed right 

shoulder pain, high-grade partial-thickness rotator cuff tear, and partial-thickness biceps tendon 

tear. Dr. Skendzel recommended arthroscopic shoulder surgery with right rotator cuff repair.

In an employing establishment work capacity evaluation form dated May 8, 2019,

Dr. Skendzel noted that appellant required surgery for an injury he sustained six to eight months 

prior. He returned appellant to full-time work without restrictions.

OWCP informed appellant in a May 21, 2019 development letter that, when his claim was 

first received, it appeared to be a minor injury that resulted in minimal or no lost time from work, 

and, therefore, payment of a limited amount of medical expenses was administratively approved 

without formal consideration of the merits of his claim. It noted that it reopened his claim for 

consideration of the merits. OWCP advised appellant of the deficiencies of his claim, requested 

additional factual and medical evidence, and provided a questionnaire for his completion. It 

afforded him 30 days to respond.

In response to OWCP’s questionnaire, appellant submitted a May 28, 2019 statement,

indicating his injury occurred while he was repetitively painting overhead doorframes, hall frames, 

ceiling lines, bathroom entry frames, and bases for six hours a day. He reported the immediate 

effect of the injury was pain and numbness when lifting his right arm over his head. Appellant 
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further reported that he did not have similar symptoms prior to the injury and he had not

participated in activities outside of his employment. He noted that he believed the injury would 

heal by itself, but after six weeks he still had symptoms and sought medical attention.

In a letter dated May 31, 2019, Dr. Skendzel noted initially treating appellant on April 26, 

2019, for shoulder pain that had been present for six weeks. Appellant noted that his symptoms 

were the result of overuse while working as a painter. He also reported performing overhead lifting 

six to eight months prior and felt a tear in his right shoulder, but the pain resolved. Dr. Skendzel 

noted on examination that appellant had limited strength of the supraspinatus with pain. He 

diagnosed high-grade partial-thickness rotator cuff tear with partial-thickness tear involving the 

biceps tendon. Dr. Skendzel recommended a rotator cuff repair and biceps tenodesis. He opined 

that the activity that caused this injury was repetitive in nature and a tear of the biceps tendon and 

rotator cuff might be consistent with the tear he experienced six to eight months prior to his visit.

By decision dated June 27, 2019, OWCP denied appellant’s traumatic injury claim finding 

that the medical evidence submitted was insufficient to establish causal relationship between his 

diagnosed medical condition and the accepted March 4, 2019 employment incident.

OWCP continued to receive evidence. In an employing establishment work capacity 

evaluation form dated July 15, 2019, Dr. Skendzel noted that appellant was injured in March 2019 

while working as a painter. He recommended surgical intervention and returned appellant to fulltime work without restrictions.

Appellant submitted an August 12, 2019 report from Emily C. Petersen, a physician 

assistant, who provided treatment for progressively worsening right shoulder pain, limited motion, 

and weakness from overuse as a painter. Ms. Petersen noted the presence of a high-grade partialthickness rotator cuff tear and partial-thickness biceps tendon tearing on a right shoulder MRI scan. 

Appellant reported that his pain began in March 2019 when he was working on a project, which 

required painting 50 door frames. He believed the continuous back and forth motion of painting 

caused the right shoulder pain. Ms. Petersen diagnosed tear of the right rotator cuff and provided 

work restrictions.

On October 7, 2019 appellant requested reconsideration.

By decision dated December 30, 2019, OWCP modified the prior decision finding that the 

evidence of record was insufficient to establish a diagnosed medical condition in connection with 

the accepted employment incident. It found, therefore, that the claim remained denied because the 

medical component of appellant’s claim was not established as he submitted a report from a 

physician assistant who was not recognized as a physician under FECA.2 Consequently, OWCP 

concluded that the requirements had not been met to establish an injury as defined by FECA.

 

2

Id.
4

LEGAL PRECEDENT

An employee seeking benefits under FECA3 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 filed within the applicable time 

limitation of FECA,

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that 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.5 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.6

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

performance of duty, it first must be determined whether fact of injury has been established.7 Fact 

of injury consists of two components that must be considered in conjunction with one another. 

The first component is whether the employee actually experienced the employment incident that 

allegedly occurred.8 The second component is whether the employment incident caused a personal 

injury.9 

Causal relationship is a medical question that requires rationalized medical opinion 

evidence to resolve the issue.10 A physician’s opinion on whether there is a causal relationship 

between the diagnosed condition and the accepted employment incident must be based on a 

complete factual and medical background.11 Additionally, the physician’s opinion must be 

expressed in terms of a reasonable degree of medical certainty, and must be supported by medical 

rationale, explaining the nature of the relationship between the diagnosed condition and the 

specific employment incident.12

 

3

Id. 

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

153 (1989).

5

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

ECAB 312 (1988).

6 K.M., Docket No. 15-1660 (issued September 16, 2016).

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

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

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

10 T.H., 59 ECAB 388, 393 (2008); Robert G. Morris, 48 ECAB 238 (1996).

11 M.V., Docket No. 18-0884 (issued December 28, 2018).

12 Id.; Victor J. Woodhams, 41 ECAB 345, 352 (1989).
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ANALYSIS

The Board finds that appellant has met his burden of proof to establish a diagnosed medical 

condition. 

Dr. Skendzel, in his report dated April 26, 2019, indicated that appellant presented with a 

gradual onset of right shoulder pain that he attributed to overuse from painting. He diagnosed right 

shoulder pain, high-grade partial-thickness rotator cuff tear, and partial-thickness biceps tendon 

tear. Similarly, on May 31, 2019 Dr. Skendzel diagnosed high-grade partial-thickness rotator cuff 

tear with partial-thickness tear involving the biceps tendon. Additionally, in a work capacity 

evaluation dated July 15, 2019, he noted that appellant was injured in March 2019 while working 

as a painter. Therefore, the Board finds that the evidence of record establishes diagnosed medical 

conditions.

The Board further finds, however, that the case is not in posture for decision as to whether 

appellant’s diagnosed medical condition is causally related to the accepted March 4, 2019 

employment incident.

OWCP has not reviewed the medical evidence of record regarding the issue of whether the 

established diagnoses are causally related to the accepted March 4, 2019 employment incident. 

Therefore, the case will be remanded to OWCP for consideration of the medical evidence on the 

issue of causal relationship. Following such further development as deemed necessary, OWCP 

shall issue a de novo decision.

CONCLUSION

The Board finds that appellant has met his burden of proof to establish a diagnosed medical 

condition. The Board also finds, however, that the case is not in posture for a decision as to 

whether his diagnosed medical conditions are causally related to the accepted March 4, 2019

employment incident.
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ORDER

IT IS HEREBY ORDERED THAT the December 30, 2019 decision of the Office of

Workers’ Compensation Programs is set aside and the case is remanded for further proceedings 

consistent with this decision of the Board.

Issued: October 16, 2020

Washington, DC

Alec J. Koromilas, Chief Judge

Employees’ Compensation Appeals Board

Christopher J. Godfrey, Deputy Chief Judge

Employees’ Compensation Appeals Board

Valerie D. Evans-Harrell, Alternate Judge

Employees’ Compensation Appeals Board