COURT OF APPEALS OF VIRGINIA 

Present: Judges AtLee, Malveaux and Senior Judge Annunziata 

Argued at Fredericksburg, Virginia 

FOOD/BEV SERV-CRYSTAL CITY AND 

 HYATT CORPORATION

 MEMORANDUM OPINION* BY 

v. Record No. 0215-17-4 JUDGE RICHARD Y. ATLEE, JR. 

 AUGUST 8, 2017 

TAHSSIN AL-BOARAB 

 FROM THE VIRGINIA WORKERS’ COMPENSATION COMMISSION 

Michael S. Bliley (Andrew M. Alexander; Siciliano, Ellis, Dyer & 

Boccarosse PLC, on brief), for appellants. 

Michael Herdman (ChasenBoscolo Injury Lawyers, on brief), for 

appellee.

Food/Bev Serv-Crystal City and Hyatt Corporation (collectively “employer”) asked the 

Commission to terminate an existing award of temporary total disability benefits, and to credit 

portions of the award already paid, alleging that Tahssin Al-Boarab (“claimant”) “failed to 

cooperate with vocational rehabilitation efforts.” Following a hearing, the deputy commissioner 

denied employer’s request. The full Commission then unanimously affirmed that decision. 

Employer now appeals, alleging that the Commission erred when it determined that claimant 1) 

“was totally disabled, and was entitled to a resumption of temporary total disability benefits”; 

and 2) “cooperated with vocational rehabilitation efforts, for the entire duration of his working 

with his vocational rehabilitation counselor.” We find no error, and affirm the Commission’s 

decision. 

 *

 Pursuant to Code § 17.1-413, this opinion is not designated for publication. 

UNPUBLISHED 
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I. BACKGROUND 

 On appeal of a decision of the Commission, “the evidence and all reasonable inferences 

that may be drawn from that evidence are viewed in the light most favorable to the party 

prevailing below.” UPS v. Prince, 63 Va. App. 702, 704, 762 S.E.2d 800, 801 (2014) (quoting 

Snyder v. City of Richmond Police Dep’t, 62 Va. App. 405, 408, 748 S.E.2d 650, 652 (2013)). 

“We do not retry the facts before the Commission nor do we review the weight, preponderance 

of the evidence or the credibility of witnesses.” Bd. of Supervisors v. Taylor, 1 Va. App. 425, 

431, 339 S.E.2d 565, 568 (1986) (quoting Caskey v. Dan River Mills, Inc., 225 Va. 405, 411, 

302 S.E.2d 507, 510 (1983)). 

 In 2014, claimant injured his left shoulder while working for employer. Later that year, 

the Commission entered an agreed award of medical benefits and temporary total disability 

benefits. In the spring of 2015, claimant’s treating physician, Dr. Michael Chung, released him 

to “limited work status.” Claimant had an appointment to meet with his assigned vocational 

rehabilitation counselor (“the counselor”) on June 23, 2015. Unfortunately, his mother’s illness 

and subsequent death required claimant to return to Iraq,1 where he remained for approximately 

six weeks. By agreement with the counselor, claimant’s first appointment was rescheduled, first 

for August 4, 2015, then for August 11, 2015. Claimant met with the counselor on August 11, 

2015, the first of eleven meetings during the late summer and fall of 2015. The counselor 

testified before the deputy commissioner that throughout these meetings, claimant was generally 

unenthusiastic and unmotivated, in addition to being late on more than one occasion. 

 On August 5, 2015, claimant met again with Dr. Chung. (Claimant continued to meet 

with Dr. Chung approximately once a month during the remainder of 2015.) Dr. Chung 

recommended that claimant undergo a Functional Capacity Evaluation (“FCE”) and found that 

 1

 Born and raised in Iraq, claimant arrived in the United States as a refugee in 1994. 
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claimant was “not able to return to work at this time due to significant decrease in ROM [range 

of motion] of left shoulder, chronic pain and reached MMI [maximum medical improvement].” 

Dr. Chung excused claimant from work from August 5, 2015 to September 5, 2015. On 

September 2, 2015, Dr. Chung opined that there was “[n]o change in patient’s status” and that 

“[s]ame as before, patient is not able to return to work at this time due to significant decrease in 

ROM of left shoulder, chronic pain and reached MMI.” He excused claimant from work from 

September 2, 2015 to October 2, 2015. 

On September 15, 2015, claimant underwent the recommended FCE, the stated purpose 

of which was “to determine [claimant]’s tolerance to perform work tasks.” The physical 

therapist who conducted the FCE concluded that “[a]ll of [claimant’s] worker traits were 

problematic, including Productivity (sub-maximal effort, guarding and multiple pain behaviors, 

arrived late to appointment), Safety (poor biomechanics, severe guarding of left arm and leg) and 

Interpersonal Behavior (non-functional goal-setting).” She found that claimant “did not 

demonstrate objective findings to support his extensive subjective complaints and demonstrated 

level of functional performance. He produced sub-maximal effort within the Sedentary work 

level . . . .” The result of the FCE was a recommendation that claimant seek full time sedentary 

work. 

After seeing claimant on September 30, 2015, Dr. Chung acknowledged the FCE 

recommendations, but observed that claimant had “[n]o range of motion to left shoulder” and 

that the muscle strength in his “[l]eft upper extremity was decreased due to pain.” Dr. Chung 

recommended a “trial of work hardening program”2

 but observed that “[i]f [claimant] fails work 

 2

 Work Hardening: a highly structured, goal-oriented, 

individualized intervention program designed to return the 

patient/client to work. Work Hardening programs, which are 

multidisciplinary in nature, use real or simulated work activities 

designed to restore physical, behavioral, and vocational functions. 
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hardening, recommend placement on permanent disability.” On October 28, 2015, Dr. Chung 

noted that claimant “did work hardening for 3 hours one day and unable to do further due to 

increase in left back and left shoulder pain.” Dr. Chung concluded: “[Claimant] was 

recommended to discontinue work hardening and try work conditioning program,[3

] 5 days per 

week for 4 weeks. If [claimant] fails, consider permanent disability, MMI.” Dr. Chung excused 

claimant from work from October 28, 2015 to November 28, 2015. After seeing claimant on 

November 25, 2015, Dr. Chung noted that claimant had not started the work conditioning 

program and that he “complains of left shoulder pain, severely limited ROM and lower back 

pain.” He recommended that claimant follow up with the work conditioning program, and 

excused claimant from work from November 30, 2015 through January 1, 2016. 

 At Dr. Chung’s deposition in February of 2016, claimant’s attorney asked Dr. Chung: 

“[S]ince you saw [claimant] on September 2nd[, 2015] when you indicate that the range of 

motion of the left shoulder had gotten worse, until now, you’ve never indicated to him that he 

 

Work Hardening addresses the issues of productivity, safety, 

physical tolerances, and worker behaviors. 

American Physical Therapy Association, Orthopaedic Section, Advanced Work Rehabilitation 

Guidelines 3 (adopted July 11, 2011) (italics omitted) 

(www.orthopt.org/uploads/content_files/OHSIG_Guidelines/Work_Rehab_Guideline_Final_Dra

ft_4_1_11.pdf). 

3

 Work Conditioning: an intensive, work-related, goal-oriented

conditioning program designed specifically to restore systemic 

neuromusculoskeletal functions (e.g., joint integrity and mobility, 

muscle performance (including strength, power, and endurance), 

motor function (motor control and motor learning), range of 

motion (including muscle length)[)], and cardiovascular/pulmonary 

functions (e.g. aerobic capacity/endurance, circulation, and 

ventilation and respiration/gas exchange). The objective of the 

work conditioning program is to restore physical capacity and 

function to enable the patient/client to return to work. 

Id. 
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can return to work, correct, since September?” Dr. Chung confirmed that this was accurate. In 

its opinion affirming the decision of the deputy commissioner, the Commission found: 

the claimant met his burden of proving that he was totally disabled 

from August 5, 2015 through September 29, 2015 and from 

October 28, 2015 through the present and continuing. At this time, 

we find Dr. Chung was in the best position to evaluate the 

claimant’s ability to work, and we rely upon his opinion that the 

claimant was totally incapable of work based upon his assessment 

of the severe limitations shown in the claimant’s FCEs. There is 

no physician opinion in the record to the contrary. As a result, 

. . . the claimant did not have an obligation to work with vocational 

rehabilitation from August 5, 2015 through September 29, 2015 

and from October 28, 2015 through the present and continuing. 

Al-Boarab v. Food/Bev Serv-Crystal City and Hyatt Corp., JCN VA00000896222, 2017 

VA Wrk. Comp. LEXIS 8, at *8 (Va. Wrk. Comp. Jan. 3, 2017). Employer then appealed. 

II. ANALYSIS 

A claimant before the Commission “must prove his case by a preponderance of the 

evidence.” Pro-Football Inc. v. Paul, 39 Va. App. 1, 10, 569 S.E.2d 66, 71 (2002) (quoting 

Bergmann v. L & W Drywall, 222 Va. 30, 32, 278 S.E.2d 801, 802 (1981)). 

Furthermore, “decisions of the [C]ommission as to questions of 

fact, if supported by credible evidence, are conclusive and 

binding on this Court.” Allen & Rocks, Inc. v. Briggs, 28 

Va. App. 662, 672, 508 S.E.2d 335, 340 (1998). Evidence to the

contrary in the record “is of no consequence if there is credible 

evidence to support the [C]ommission’s findings.” Russell 

Loungewear v. Gray, 2 Va. App. 90, 95, 341 S.E.2d 824, 826 

(1986). The consideration and weight to be given to the evidence, 

including medical evidence, are within the sound discretion of the 

[C]ommission. 

Id. at 10-11, 569 S.E.2d at 71. 

A. Was Claimant Totally Disabled? 

 Employer first challenges the finding that claimant “was totally disabled, and was entitled 

to a presumption of temporary total disability benefits.” In support of its position on appeal, 

employer asserts that “Dr. Chung improperly acted in removing [claimant] from work.” 
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Appellants’ Br. at 8. Further, argues employer, Dr. Chung’s “conclusion that [claimant] was 

unable to work is outweighed by the two Functional Capacity Evaluations.[4]” Id. We disagree. 

 Although the physical therapist who conducted the FCE in September of 2015 believed 

claimant to be capable of sedentary work, Dr. Chung, a physician, saw claimant much more 

frequently. We agree with the Commission that “Dr. Chung was in the best position to evaluate 

the claimant’s ability to work, and we rely upon his opinion that the claimant was totally 

incapable of work.” Al-Boarab, 2017 VA Wrk. Comp. LEXIS 8, at *8. As the Commission 

correctly pointed out, “[t]here is no physician opinion in the record to the contrary.” Id. When 

we assess the Commission’s conclusion, “[e]vidence to the contrary in the record ‘is of no 

consequence if there is credible evidence to support the [C]ommission’s findings.’” Pro-Football 

Inc., 39 Va. App. at 10, 569 S.E.2d at 71 (quoting Russell Loungewear, 2 Va. App. at 95, 341 

S.E.2d at 826). As such, we agree that claimant was totally disabled. 

B. Did Claimant Unjustifiably Refuse to Cooperate with the Counselor? 

 The Virginia Workers’ Compensation Act requires an employer to furnish an injured 

employee with “reasonable and necessary vocational rehabilitation services.” Code 

§ 65.2-603(A)(3). The injured employee, in turn, is required to accept such services. Any 

unjustified refusal to do so “shall bar the employee from further compensation until such refusal 

ceases and no compensation shall at any time be paid for the period of suspension unless, in the 

opinion of the Commission, the circumstances justified the refusal.” Code § 65.2-603(B). This 

 4

 In its deposition of Dr. Chung, in its written statement to the Commission, and in its 

brief, employer references two FCEs: one conducted in September of 2015 and another 

conducted in December of 2015. Because the only FCE included in the appendix is the 

September 2015 FCE, we consider only that FCE in our analysis. See Rule 5A:25(h) (noting 

that, although we may “consider other parts of the record,” we “assume[] that the appendix 

contains everything germane to the assignments of error”). 
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is so because “a person receiving workers’ compensation has a duty to cooperate in efforts to get 

him a job he is capable of performing.” Johnson v. Clifton Forge, 9 Va. App. 376, 377, 388 

S.E.2d 654, 655 (1990). “Whether the employee unjustifiably has refused to cooperate with 

vocational rehabilitation services is a question of fact to be determined from the totality of the 

evidence.” Anderson v. Anderson, 65 Va. App. 354, 362, 778 S.E.2d 132, 136 (2015). 

 We will analyze claimant’s cooperation with the counselor during two distinct periods. 

First, we will look at the period from June 23, 2015 to August 5, 2015. Next, we will examine 

the period after August 5, 2015. We conduct this two-stage analysis because before August 5, 

2015, Dr. Chung had cleared claimant to work with certain limitations. From August 5, 2015 

onward, Dr. Chung declared claimant totally disabled. 

1. June 23, 2015 to August 5, 2015 

 Initially scheduled to meet with the counselor on June 23, 2015, claimant rescheduled 

this meeting. He did not meet with the counselor until August 11, 2015. At the time claimant 

was first scheduled to meet with the counselor, Dr. Chung had cleared him for “limited work 

status.” The cause for this delay was claimant’s travel to Iraq as a result of the death of his 

mother. The Commission found that 

[g]iven the evidence that the initial meeting was voluntarily 

rescheduled by the parties prior to the original June 23, 2015 

meeting date, and the claimant attended this rescheduled meeting, 

we do not find the circumstances sufficient to show the claimant 

unjustifiably failed to cooperate with vocational rehabilitation 

efforts prior to August 5, 2015. 

Al-Boarab, 2017 VA Wrk. Comp. LEXIS 8, at *7. This finding is supported by credible 

evidence, and is thus binding on this Court. 

2. After August 5, 2015 

 After August 5, 2015, claimant was totally disabled, per Dr. Chung. We find that 

credible evidence supported this finding. See supra, Part II.A. The parties and the Commission 
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agree that total disability obviates the need to comply with vocational rehabilitation. See 

Appellants’ Br. at 7 (“If Appellee was properly within total disability status, then he was justified 

in refusing to accept vocational rehabilitation.”); Appellee’s Br. at 5 (asserting that injured 

workers are “not obligated to perform vocational rehabilitation until they are medically released 

to return to selective employment” (citing Gardner v. Legum Home Health/Home I.V. Care and 

Nutritional Serv., 74 O.W.C. 97 (1995)); Al-Boarab, 2017 VA Wrk. Comp. LEXIS 8, at *8 

(observing that claimant “did not have an obligation to work with vocational rehabilitation” 

counselor during periods of total disability); cf. Ilg v. UPS, Inc., 284 Va. 294, 304, 726 S.E.2d 

21, 27 (2012) (holding that “the Court of Appeals erred in determining that [the injured worker] 

was precluded from asserting that his refusal of vocational rehabilitation was justified because he 

remained fully disabled by his hand injury related to the industrial accident for which he was 

receiving benefits for his compensable knee injury”). 

Notwithstanding claimant’s total disability after August 5, 2015, he still met with the 

counselor eleven times over the course of approximately three months. The Commission found 

that claimant did not unjustifiably refuse to cooperate with his counselor after August 5, 2015. 

Viewing the evidence in its totality, we find that evidence credible. As such, the Commission’s 

finding is “conclusive and binding on this Court.” Pro-Football Inc., 39 Va. App. at 10, 569 

S.E.2d at 71 (quoting Allen & Rocks, Inc., 28 Va. App. at 672, 508 S.E.2d at 340). 

III. CONCLUSION 

 For the preceding reasons, we affirm the Commission’s decision. 

Affirmed.