NEUMAN, Justice.
This appeal by an employee challenges a judicial review decision that affirmed the industrial commissioner's denial of additional workers' compensation benefits following a second review-reopening hearing under Iowa Code section 86.14(2) (1989). We transferred the case to the court of appeals, which affirmed on a two-to-one vote. Because we are convinced the commissioner's decision is unsupported by the record made before the agency, we vacate the...
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