In this case we must decide whether the presumption of compensability applicable in workers' compensation cases pursuant to AS 23.30.120(a) of the Alaska Workers' Compensation Act
FACTS AND PROCEEDINGS.
The medical experts agree that Carter suffers from a form of degenerative disc disease. It is also undisputed that this condition is work-related. After a period of treatment by various chiropractors, Carter sought to obtain at his employer's expense as-needed chiropractic care and a hot tub.
Carter sought the Board's review of these determinations. Under AS 23.30.095(a), the Board has authority to require that an employer pay for continuing care
Carter appealed, and the superior court reversed the Board's decision. The sole ground for the superior court's reversal was that the Board had not applied the presumption established by AS 23.30.120(a)
The Municipality of Anchorage petitioned this court for review of the superior court's decision. We granted the petition.
A. Whether the Presumption of Compensability Applies to Claims for Continuing Care Under AS 23.30.095(a).
Whether the presumption of compensability of AS 23.30.120(a) applies to shift the burden of production to the employer in proceedings to determine the compensability of continuing care under AS 23.30.095(a) is a legal question subject to de novo review by this court. See, e.g., Miller, 577 P.2d at 1046.
Alaska Statute 23.30.095(a) does not require the Board to provide continuing rehabilitative or palliative care in every instance. Rather, the statute grants the Board discretion to award such "indicated" care "as the process of recovery may require." Id. (see supra note 2). While we have not previously addressed whether the presumption provided for in AS 23.30.120(a) may be raised by an injured employee claiming a continuing, medically indicated need for care and treatment under AS 23.30.095(a),
We do not view this construction of the presumption as inconsistent with the discretion accorded the Board under AS 23.30.095(a). The presumption shifts only the burden of going forward, not the burden of proof. See, e.g., Kodiak Oilfield Haulers v. Adams, 777 P.2d 1145, 1150 (Alaska 1989). The presumption will drop out if an employer adduces "such relevant evidence as a reasonable mind might accept as adequate to support a conclusion" that continued care is either not indicated, or not indicated as the employee contends. Id. at 1150 (citing Miller v. ITT Arctic Services, 577 P.2d 1044, 1046 (Alaska 1978)). The employee then must meet her burden of proof by carrying a burden of persuasion without aid of any presumption or construction in favor of recovery. See 1988 SLA ch. 79 § 1(b). Finally, the Board retains discretion not to award continued care or treatment or to authorize care or treatment different from that specifically requested based on the requirements demonstrated either by the employee's raised and unrebutted presumption, or by the preponderance of the evidence, as further informed in each case by the "Board's experience, judgment, observations, unique or peculiar facts of the case, and inferences drawn from all of the above." Kodiak Oilfield Haulers, 777 P.2d at 1151.
B. Whether AS 23.30.095(a) Precludes an Award for Purely Palliative Care.
The Board held that AS 23.30.095(a) prohibits requiring the employer to pay for Carter's chiropractic care and hot tub because these measures are purely "palliative," not "necessary to the process of recovery," and thus not within the scope of AS 25.30.095(a). Specifically, the Board stated that "`process of recovery' signifies long term improvement." Because there was no proof that Carter's degenerative disc disease could be cured by chiropractic care or use of a hot tub, the Board held that the statute prohibited it from requiring the employer to pay for such care, even though there was evidence before the Board tending to show that the proposed treatments alleviated Carter's condition.
We decline to read the "process of recovery" language so narrowly. A substantial number of jurisdictions provide compensation for purely palliative measures offering no hope of a permanent cure.
In DiGiorgio, the Florida Supreme Court reasoned that the recurrent effect of certain injuries warrants a construction of the "process of recovery" language to mean "a recovery from the [recurring] attacks." Id. at 603. We find this
AFFIRMED as MODIFIED with instructions to REMAND to the Board for further proceedings consistent with this opinion.
COMPTON, J., dissents in part.
MOORE, J., dissents.
COMPTON, Justice, dissenting in part.
AS 23.30.095(a) provides in part:
The court holds: 1) the presumption of compensability provided by AS 20.30.120(a) will satisfy the employee's burden of proof as to whether continued treatment or care is indicated, absent substantial evidence to the contrary; 2) if the presumption is unrebutted or the employee proves following rebuttal of the presumption that treatment or care is indicated, the board retains discretion not to award treatment or care, or to award treatment or care different from that requested; and 3) the phrase "process of recovery" includes palliative care.
The superior court noted that the "real issue is whether [Carter] is entitled to further chiropractic treatment even if it does not cure him or assist in his return to work." Although irrelevant to this issue, the superior court went on to remark that the board had not applied the statutory presumption contained in AS 23.30.120(a) to Carter's claim for continued treatment or care. The court remanded the case with directions that the board apply the presumption to Carter's claim.
The superior court's statement of the issue is correct, and indeed this court eventually addresses that issue. In the process it decides two issues that are not raised by Petitioners and that are irrelevant to the issue noted by the superior court.
Petitioners never argue that continued treatment or care was not indicated.
As I understand the court's decision, if a claimant who has already been receiving treatment or care for two years brings in a letter from his or her health care provider stating that continued treatment or care is indicated, that will constitute sufficient evidence to establish the preliminary link necessary to raise a presumption that continued treatment or care is indicated. The claimant then is entitled to board review, presumably to prove that continued treatment or care is needed and just what form
I do not disagree that the board retains discretion to continue treatment or care, or to require that it be provided in a manner other than the claimant requests, or to deny it altogether. Also, to the extent that the board believed it was foreclosed from awarding palliative treatment or care, I agree that a remand is necessary. However, no issue was raised regarding Carter's indication of continued treatment or care; thus there is no need to address it. Furthermore, to apply a presumption to whether continued treatment or care is indicated is of no practical significance. The court does not suggest what is to be gained by holding that evidence that continued treatment or care is indicated raises a presumption that continued treatment or care is indicated. Since the reasons for establishing presumptions in workers' compensation law do not exist when all that must be established is that continued treatment or care is indicated, there is no basis for holding that the statutory presumption applies. The presumption is as illusory as it is nonsensical.
MOORE, Justice, dissenting.
Today the court holds that the presumption provided in AS 23.30.120(a)(1) that shifts the burden of producing evidence of work-relatedness from an injured employee to his employer shifts the burden of persuasion on the ultimate question whether a claim should be paid. The court thus requires AWCB "to presume that [an] injured employee has a continuing, medically indicated need" for whatever treatment he might request more than two years after his injury. Majority op. at 664. Because AS 23.30.120(a)(1) is inapplicable to the question of compensability of continuing treatment, and the court today upsets the carefully engineered statutory scheme governing continuing treatment provided in AS 23.30.095, I respectfully dissent.
I agree that the "process of recovery" language of AS 23.30.095(a) does not deny AWCB the power to authorize continued treatment or care, including purely palliative care, providing that it is indicated medically. Although AWCB appears to have believed that it was so constrained, its decision in this case clearly indicates that it also believed that the continued treatment requested by Carter was not indicated medically. That conclusion is reasonable. Because I believe AWCB was correct not to presume that Carter's proposed treatment was indicated medically and that AWCB reasonably found that the treatment was not medically indicated, I would reverse the decision of the superior court and uphold AWCB's decision.
AS 23.30.120(a) provides that "[i]n a proceeding for the enforcement of a claim for compensation under this chapter it is presumed, in the absence of substantial evidence to the contrary, that (1) the claim comes within the provisions of this chapter." This presumption relieves the employee from his initial burden of production of evidence that his injury is work-related. Anchorage Roofing Co. v. Gonzales, 507 P.2d 501, 504 (Alaska 1973). For many years, we have referred to this as "the presumption of compensability." See 507 P.2d at 503. While this name is convenient, the court errs in applying the name but not the statute.
The court ignores the statute by beginning its analysis with the assumption that the name "presumption of compensability"
The presumption of compensability, as understood until today, serves an important purpose, namely, to aid the employee who, while able to show she was disabled while physically present at work, is unable to demonstrate conclusively the cause of her injury.
The court radically transforms the operation of the presumption of compensability. The language of AS 23.30.120 is borrowed from a New York statute. There, the presumption "cannot be used as a substitute for actual proof... . In truth, the presumption has no place in any case once the facts are fully developed; of necessity it fails in the presence of contrary evidence." Wilson v. General Motors Corp., 298 N.Y. 468, 84 N.E.2d 781, 783 (1949). Until today, Alaska had the same rule: "the presumption of AS 23.30.120 places a burden on the employer to go forward with evidence... . Once competent evidence is introduced, the presumption drops out, and the final burden of proof ... as to all essential elements is on the claimant." Anchorage Roofing, 507 P.2d at 504.
In this case, there was no shortage of evidence on whether Carter's proposed treatment was indicated medically. In fact, medical experts were in substantial agreement that limited use of a hot tub might have some palliative effect, although greater use would be detrimental to Carter's condition. Because the record contains substantial evidence, the presumption, if it is applicable at all, should "drop out." I reject the court's holding that the presumption should somehow apply even when there is substantial evidence in the record to support the Board's decision.
The court's holding today is also a direct assault on the compromise between workers' and employers' interests reflected in AS 23.30.095. That section creates a scheme under which employers are required to provide medical care for covered injuries for a period of two years. After two years, AWCB "may authorize continued treatment," provided it is indicated medically, upon petition of the injured employee. The court turns this scheme on its head, requiring AWCB to presume that any continuing care requested by an employee is indicated medically and to order the employer to pay for it unless the employer can prove that the requested treatment is not indicated. I cannot agree with this interpretation.
I do, however, agree with the court's discussion of the "process of recovery" language
Barrington stated that he did not usually recommend heat for the treatment of a spinal condition, but that hot baths would likely reduce Carter's pain, and could be "possibly helpful" to his recovery, although too much warm water bathing could worsen Carter's spinal condition by inflaming his sciatic nerve. Barrington also noted that a hot tub was not strictly necessary for Carter, and would primarily soothe leg cramps Carter was experiencing, apparently unrelated to his back injury.
Larson testified that Carter would probably suffer more without the continued as-needed chiropractic care he seeks. He further testified that the absence of changes in Carter's spinal condition during the period of Larson's chiropractic treatment of Carter suggested that the treatment may have halted Carter's degenerative disc disease, and that hot baths ("hydrotherapy") should be continued since they seemed to relieve Carter's pain.
Dr. James testified that continued chiropractic care was not medically indicated for Carter; he recommended instead that Carter "begin a regular exercise program ... to enhance neck as well as back mobility, strength, and endurance." He concluded that "a hot shower would be adequate for delivery of heat and probably the safest mechanism to do so."