TENNESSEE BUREAU OF WORKERS' COMPENSATION 

IN THE COURT OF WORKERS' COMPENSATION CLAIMS 

AT JACKSON 

BRIAN JACKSON, ) Docket No. 2018-07-0450 

Employee, ) 

v. ) 

PRAXIS INDUSTRIES, INC. ) 

Employer, ) State File No. 7257-2018 

and ) 

ZURICH INS. CO., ) 

Carrier. ) Judge Robert Durham 

EXPEDITED HEARING ORDER GRANTING BENEFITS 

This case came before the Court for an Expedited Hearing on November 21, 2018. 

The primary issue is whether Mr. Jackson is entitled to surgery recommended by his 

authorized physician, Dr. Randall Frazier, for an alleged work injury to his right knee. 

The Court holds the opinions of the utilization review physician and the Bureau's 

medical director are insufficient to overcome the presumption afforded Dr. Frazier as 

authorized physician. 

History of Claim 

On November 7, 2017, Mr. Jackson sprained his left ankle while working for 

Praxis. He reported the injury and later treated with an urgent care clinic, but he did not 

receive a panel of orthopedists from Praxis until January 2018. In the meantime, he 

allegedly developed pain in his right knee due to limping because of his ankle injury. He 

testified he never suffered from knee pain before his ankle sprain. 

Mr. Jackson chose Dr. Frazier from the panel. He noted Mr. Jackson complained 

of "popping or clicking" in his knee and suffered from knee swelling and tenderness 

along the meniscalline. A McMurray test was positive for a possible meniscal tear, and 

Dr. Frazier noted an antalgic gait. He provided steroid injections and ordered physical 

therapy. Although the treatment provided some initial relief, Mr. Jackson soon 

experienced renewed pain as well as "catching and grinding" in his knee. An MRI of the 

right knee revealed severe medial compartment degenerative change with a broad area of 

1 

FILED

Nov 28, 2018

02:47 PM(CT)

TENNESSEE COURT OF

WORKERS' COMPENSATION

CLAIMS
full-thickness chondral loss and associated edema. The MRI also showed "mild 

degenerative free edge fraying of the medial meniscus." 

After reviewing the MRI, Dr. Frazier addressed causation. He stated that while 

Mr. Jackson's right knee arthritis pre-existed his ankle injury, he was asymptomatic 

before that event. Thus, Dr. Frazier gave his opinion to a reasonable degree of medical 

certainty that "at least 75% of his symptoms" were due to an aggravation of his preexisting knee condition caused by the left ankle injury. He recommended an arthroscopy 

to debride and clean out the degenerative areas in Mr. Jackson's knee. 

Praxis then asked orthopedist Gregory Goldsmith for a utilization review as to the 

need for a right knee arthroscopy with partial medial meniscectomy. In his report, Dr. 

Goldsmith cited four criteria from the Official Disability Guidelines (ODG) in 

determining the need for a meniscectomy: ( 1) Conservative care such as physical therapy 

and medication or activity modification; (2) subjective findings of pain, swelling, giveway sensations or popping and clicking; (3) objective findings of a positive McMurray's 

test, joint line tenderness, effusion, or crepitus and, ( 4) meniscal tear on MRI. 

Dr. Goldsmith recommended non-certification. As grounds, he stated that there 

was no evidence of conservative treatment other than a course of physical therapy. In 

addition, he found no evidence of a physical exam, and the MRI report did not identify 

whether it was the right or left knee. Further, meniscectomies are not recommended for 

older patients with degenerative tears and arthritis since it might accelerate the arthritic 

process. Dr. Frazier appealed the non-certification to Dr. Robert Snyder, the Bureau's 

Medical Director. Dr. Snyder agreed with Dr. Goldsmith's opinion. As a result, Praxis 

denied the surgery. 

Following the denial, Mr. Jackson returned to Dr. Frazier. He observed that Mr. 

Jackson's pain was worsening and that he suffered from "catching" in his knee with 

activities and a "give-way" sensation when on stairs. Dr. Frazier felt Mr. Jackson's 

condition was deteriorating, and on July 9 he recommended a chondroplasty before a 

partial arthrotomy became necessary. 

That same day, Praxis sent Dr. Frazier's recommendation to Dr. Goldsmith. Upon 

review, Dr. Goldsmith recommended non-certification of the request for right-knee 

chondroplasty. Dr. Goldsmith noted there was no progress note from Dr. Frazier that 

documented a physical examination. He felt the MRI report did not show a chondral 

lesion, but generalized arthritic change. He wrote that the ODG stated that "arthroscopic 

lavage and debridement in patients with osteoarthritis of the knee is no better than 

placebo surgery[.]" However, he also noted the ODG listed four criteria for 

chondroplasty: (1) Failure of conservative care; (2) subjective findings noting joint pain, 

swelling, and mechanical catching; (3) objective findings of swelling, crepitus or limited 

range of motion; and, ( 4) an MRI that showed a large, unstable chondral defect. 

2 
Dr. Frazier appealed to Dr. Snyder, who again agreed with Dr. Goldsmith that the 

medical evidence did not indicate a need for right-knee arthroscopy, chondroplasty and 

debridement. 

Findings of Fact and Conclusions of Law 

Mr. Jackson need not prove every element of his claim by a preponderance of the 

evidence to obtain relief at an expedited hearing. Instead, he must present sufficient 

evidence that he is likely to prevail at a hearing on the merits. See Tenn. Code Ann. § 50-

6-239(d)(1); McCord v. Advantage Human Resourcing, 2015 TN Wrk. Comp. App. Bd. 

LEXIS 6, at *7-8, 9 (Mar. 27, 2015). 

Here, the only issue is whether Mr. Jackson established the likelihood of 

prevailing at trial as to the need for the knee surgery recommended by Dr. Frazier. Praxis 

argued that the opinions in Dr. Frazier's records were too conclusory and vague to justify 

an order requiring surgery and that a deposition was necessary to explore his opinion. 

The Court disagrees. Mr. Jackson's history and physical examination revealed consistent 

knee abnormalities that medication, bracing and physical therapy failed to correct. 

Indeed, the records showed that Mr. Jackson's knee condition rapidly worsened. An MRI 

confirmed significant problems. Dr. Frazier felt that, given the failure of conservative 

treatment, a chondroplasty and debridement were recommended not only to alleviate Mr. 

Jackson's symptoms but also to stave off the need for a partial knee arthrotomy. The 

records containing Dr. Frazier's opinions, and his justification for them, are sufficient for 

the Court to determine the likelihood of Mr. Jackson prevailing as to the need for surgery. 

As the authorized treating physician, Dr. Frazier's opinion concerning treatment is 

entitled to a presumption of correctness. Tenn. Code Ann. § 50-6-204(a)(3)(H). 1 Thus, 

the burden falls on Praxis to rebut his opinion. To meet its burden, Praxis offered Dr. 

Goldsmith's utilization review reports, which clearly conclude that surgery is 

unnecessary, and Dr. Snyder's agreement with those reports. 

The Court "has the discretion to determine which testimony to accept when 

presented with conflicting expert opinions." Bass v. The Home Depot, 2017 TN Wrk. 

Comp. App. Bd. LEXIS 36, at *9 (May 26, 2017). When opinions conflict, a trial court 

may consider, among other things, "the qualifications of the experts, the circumstances of 

their examination, the information available to them, and the evaluation of the importance 

of that information by other experts." !d. 

1 Praxis argued that the definition of authorized treating physician contained within the Bureau's 

regulations could be construed to make the Medical Director an "authorized" physician as well. While 

the argument is novel, Dr. Snyder was not chosen from a panel, nor can the Court consider him to have 

provided treatment. The Court declines to extend the definition of authorized treating physician to 

include Dr. Snyder. 

3 
In this case, a number of factors serve to lessen the weight the Court gives Dr. 

Goldsmith's opinions. First, unlike Dr. Frazier, he did not treat or even examine Mr. 

Jackson. See, Ledford v Mid Georgia Courier, Inc., 2018 TN. Wrk. Comp. App. Bd. 

LEXIS 28 at *8 (June 4, 2018). Second, it appears from his April 23 report that Dr. 

Goldsmith did not have all of Mr. Frazier's medical records when he made his 

assessment. He stated the MRI did not specify whether it was the right knee or the left 

knee, but the actual report made it clear that it was the right knee. He also stated that Mr. 

Jackson did not undergo conservative treatment other than physical therapy, but the 

records establish he received braces, steroid injections, and medication. 

Dr. Goldsmith cited ODG criteria to support his non-certification; however, Mr. 

Jackson's situation actually appears to have met those guidelines. For example, he 

underwent every form of conservative treatment listed by the ODG, had popping and 

clicking in his knee, had a positive McMurray's test, and a positive MRI. The Court is 

hard-pressed to see from the record how Mr. Jackson's situation does not fit within the 

ODG criteria. Finally, Dr. Goldsmith does not offer an alternative to surgery to relieve 

Mr. Jackson's symptoms. 

Dr. Goldsmith's primary issue appears to be the possibility that Mr. Jackson's 

underlying osteoarthritis will not be helped, and might actually be exacerbated, by 

surgery. While perhaps a valid point, the Court does not find it sufficient to override Dr. 

Frazier's concern about Mr. Jackson's continuing, debilitating symptoms and the 

possibility he might soon require a partial knee arthrotomy if he does not have the 

recommended surgery. 

Of course, that does not end the query. Dr. Snyder supported Dr. Goldsmith's 

opinions by denying Dr. Frazier's appeals. However, for the reasons stated above, the 

Court cannot find that Dr. Snyder's brief statement of denial, made without elaboration, 

outweighs Dr. Frazier's opinion and the presumption given it, even when combined with 

Dr. Goldsmith's opinion. See Ledford at *8. 

IT IS, THEREFORE, ORDERED that: 

1. Praxis shall authorize Dr. Frazier to provide reasonable and necessary treatment 

for Mr. Jackson's right knee injury, including but not limited to the surgery he 

recommended. 

2. This matter is set for a Scheduling Hearing on January 14, 2018, at 10:00 a.m. 

C.S.T. The parties or their counsel must call 615-253-0010 or toll-free at 855-

689-9049 to participate in the hearing. Failure to call may result in a 

determination of the issues without the party's participation. 

4 
ENTERED November.2!2018. 

~~L JtmGE ROBERT V. DURHAM 

Court of Workers' Compensation Claims 

APPENDIX 

Technical Record 

1. Petition for Benefit Determination 

2. Dispute Certification Notice 

3. Request for Expedited Hearing 

4. Transfer Order 

5. Notice of Expedited Hearing 

Exhibits 

1. Documents submitted by Praxis 

2. Documents submitted by Mr. Jackson 

3. Mr. Jackson's affidavit and attached medical records 

4. Medical records with chronology 

CERTIFICATE OF SERVICE 

I certify that a true and correct copy of the Expedited Hearing Order was sent to 

the following recipients by the following methods of service on November 28,2018. 

Name Certified Email Service sent to: 

Mail 

Edward Martindale X edwardmartindale@gmai l.com 

Rachal Wallace rachalwallace@gmail.com 

Dean Norris X Dean.norris@zurichna.com 

Christi Thomas Christi.thomas~zurichna.com 

__& ))v~ Penn um, Court Clerk 

Court of Workers' Compensation Claims 

5 
Expedited Hearing Order Right to Appeal:

If you disagree with this Expedited Hearing Order, you may appeal to the Workers’ 

Compensation Appeals Board. To appeal an expedited hearing order, you must:

1. Complete the enclosed form entitled: “Expedited Hearing Notice of Appeal,” and file the 

form with the Clerk of the Court of Workers’ Compensation Claims within seven 

business days of the date the expedited hearing order was filed. When filing the Notice 

of Appeal, you must serve a copy upon all parties. 

2. You must pay, via check, money order, or credit card, a $75.00 filing fee within ten 

calendar days after filing of the Notice of Appeal. Payments can be made in-person at 

any Bureau office or by U.S. mail, hand-delivery, or other delivery service. In the 

alternative, you may file an Affidavit of Indigency (form available on the Bureau’s 

website or any Bureau office) seeking a waiver of the fee. You must file the fullycompleted Affidavit of Indigency within ten calendar days of filing the Notice of 

Appeal. Failure to timely pay the filing fee or file the Affidavit of Indigency will 

result in dismissal of the appeal.

3. You bear the responsibility of ensuring a complete record on appeal. You may request 

from the court clerk the audio recording of the hearing for a $25.00 fee. If a transcript of 

the proceedings is to be filed, a licensed court reporter must prepare the transcript and file 

it with the court clerk within ten business days of the filing the Notice of 

Appeal. Alternatively, you may file a statement of the evidence prepared jointly by both 

parties within ten business days of the filing of the Notice of Appeal. The statement of 

the evidence must convey a complete and accurate account of the hearing. The Workers’ 

Compensation Judge must approve the statement before the record is submitted to the 

Appeals Board. If the Appeals Board is called upon to review testimony or other proof 

concerning factual matters, the absence of a transcript or statement of the evidence can be 

a significant obstacle to meaningful appellate review.

4. If you wish to file a position statement, you must file it with the court clerk within ten

business days after the deadline to file a transcript or statement of the evidence. The 

party opposing the appeal may file a response with the court clerk within ten business 

days after you file your position statement. All position statements should include: (1) a 

statement summarizing the facts of the case from the evidence admitted during the 

expedited hearing; (2) a statement summarizing the disposition of the case as a result of 

the expedited hearing; (3) a statement of the issue(s) presented for review; and (4) an 

argument, citing appropriate statutes, case law, or other authority.

For self-represented litigants: Help from an Ombudsman is available at 800-332-2667.


ll 

. 

Tennessee Bureau of Workers' Compensation 

220 French Landing Drive, 1-B 

Nashville, TN 37243-1002 

800-332-2667 

AFFIDAVIT OF INDIGENCY 

.. I 

I, , having been duly sworn according to law, make oath that 

because of my poverty, I am unable to bear the costs of this appeal and request that the filing fee to appeal be 

waived. The following facts support my poverty. 

1. Full Name: ___________ _ 2. Address:-------------

3. Telephone Number:--------- 4. Date of Birth:-----------

5. Names and Ages of All Dependents: 

----------------- Relationship:-------------

----------------- Relationship:-------------

---------------- - Relationship:-------------

----------------- Relationship:-------------

6. I am employed by: ------------------------------,-

My employer's address is:-------------------------

My employer's phone number is:-----------------------

7. My present monthly household income, after federal income and social security taxes are deducted, is: 

$ _______ __ 

8. I receive or expect to receive money from the following sources: 

AFDC $ per month beginning 

SSI $ per month beginning 

Retirement $ per month beginning 

Disability $ per month beginning 

Unemployment $ per month beginning 

Worker's Camp.$ per month beginning 

Other $ per month beginning 

LB-1108 (REV 11/15) RDA 11082 
9. My expenses are: ' ; !• 

' 

Rent/House Payment $ per month Medical/Dental $ per month 

Groceries $ per month Telephone $ per month 

Electricity $ per month School Supplies $ per month 

Water $ per month Clothing $ per month 

Gas $ per month Child Care $ per month 

Transportation $ per month Child Support $ per month 

Car $ per month 

Other $ per month (describe: 

10. Assets: 

Automobile $ ____ _ 

Checking/Savings Acct. $ ____ _ 

House 

) 

Other 

11. My debts are: 

Amount Owed 

$ _ ___ _ 

$ ____ _ 

To Whom 

(FMV) - ---------

(FMV) ----------

Describe: _____ _____ _ 

I hereby declare under the penalty of perjury that the foregoing answers are true, correct, and complete 

and that I am financially unable to pay the costs of this appeal. 

APPELLANT 

Sworn and subscribed before me, a notary public, this 

___ dayof _____________ ,20 ___ _ 

NOTARY PUBLIC 

My Commission Expires: _ _ _____ _ 

LB-1108 (REV 11/15) RDA 11082