Workers' Compensation Practice: Initial Steps in Representing Claimants, Employers, and Insurers

CHAPTER 12
Workers’ Compensation Practice:

Initial Steps in Representing
Claimants, Employers,
and Insurers
Joseph F. Agnelli, Jr., Esq.
Agnelli Law Offices, PC, Worcester
Scott E. Richardson, Esq.
The Law Offices of Steven B. Stein, Boston
§ 12.1 Initial Steps in Representing Claimants .................................. 12–1

§ 12.1.1 Introduction ................................................................ 12–1
§ 12.1.2 Initial Interview .......................................................... 12–2
(a) General Principles ............................................. 12–2
(b) Background Information ................................... 12–3
(c) Employment and Injury ..................................... 12–5
(d) Medical Information .......................................... 12–8
(e) Insurance Information ....................................... 12–8
§ 12.1.3 Other Considerations in the Initial Interview ............. 12–9
(a) Available Workers’ Compensation Benefits ...... 12–9
(b) Other Available Benefits .................................. 12–11
(c) Attorney Fees .................................................. 12–12
(d) Statute of Limitations Concerns ...................... 12–12
(e) Identifying Potential Third-Party Claims ........ 12–13
(f) Uninsured Employers ...................................... 12–13
(g) Jurisdictional Issues ......................................... 12–15
§ 12.1.4 Filing the Claim ........................................................ 12–15
(a) Preliminary Steps ............................................ 12–15
(b) Filing Procedure .............................................. 12–16
MCLE, Inc. | 6th Edition 2017 12–i

Massachusetts Basic Practice Manual
§ 12.2 Initial Steps in Representing Employers and Insurers ........ 12–18

§ 12.2.1 Introduction .............................................................. 12–18
§ 12.2.2 Initial Contact........................................................... 12–18
§ 12.2.3 Initial Review of File................................................ 12–19
§ 12.2.4 Response Required Within Fourteen Days............... 12–19
§ 12.2.5 Denial of Claim ........................................................ 12–20
§ 12.2.6 Notice Requirements ................................................ 12–22
§ 12.2.7 Factual Follow-Up.................................................... 12–23
§ 12.2.8 Disability .................................................................. 12–24
§ 12.2.9 Past Medical Condition ............................................ 12–24
§ 12.2.10 Health-Care Provider ............................................... 12–25
§ 12.2.11 Independent Medical Exam ..................................... 12–25
§ 12.2.12 Investigation of Postinjury Activity.......................... 12–27
§ 12.2.13 Investigation of Prior Claims ................................... 12–27
§ 12.2.14 Requests for Production of Documents
and Requests to Enter Premises ............................... 12–28
§ 12.2.15 Return to Work in the Case of Partial Disability ...... 12–29
§ 12.2.16 Employability Assessment and Labor Market
Survey ...................................................................... 12–31
§ 12.2.17 Unemployment Benefits in the Case
of Partial Disability ................................................. 12–32
§ 12.2.18 Alternatives to Litigation ......................................... 12–32
CHECKLIST 12.1— Initial Interview ................................................ 12–34
CHECKLIST 12.2—Filing ................................................................... 12–37
EXHIBIT 12A—DIA Form 115 (Third Party Claim/

Notice of Lien)........................................................................................ 12–39
EXHIBIT 12B—Insurance Inquiry Form ........................................... 12–41
EXHIBIT 12C—Insurer Request Certification Form ....................... 12–42
EXHIBIT 12D—DIA Form 114 (Notice of Change/Appearance

of Counsel) ............................................................................................. 12–44
EXHIBIT 12E—DIA Form 110 (Employee’s Claim) ......................... 12–45
12–ii 6th Edition 2017 | MCLE, Inc.

Workers’ Compensation Practice
EXHIBIT 12F—DIA Form 104 (Insurer’s Notification of Denial) .... 12–47
EXHIBIT 12G—DIA Form 126 (Employee’s Earning Report)......... 12–49
MCLE, Inc. | 6th Edition 2017 12–iii

12–iv 6th Edition 2017 | MCLE, Inc.

CHAPTER 12
Workers’ Compensation Practice:

Initial Steps in Representing
Claimants, Employers,
and Insurers*
Joseph F. Agnelli, Jr., Esq.
Agnelli Law Offices, PC, Worcester
Scott E. Richardson, Esq.
The Law Offices of Steven B. Stein, Boston
Scope Note
This chapter addresses the initial issues that need to be addressed
by claimant’s and defendant’s counsel in a workers’ compensation
matter. It begins by discussing the initial client interview, with a re-
view of the available benefits within and outside the workers’ com-
pensation system, attorney fees, statutes of limitations, third-party
claims, uninsured employers, and jurisdictional issues, as well as
additional steps such as obtaining witness statements and identify-
ing correct procedures for filing. The chapter also addresses the
challenges faced by defense counsel, including the initial contact
with the insurer, review of the file, filing of a response, preserving
defenses, engaging in fact gathering and investigations, and work-
ing with vocational consultants to analyze employability assess-
ments and surveys of the labor market.
§ 12.1 INITIAL STEPS IN REPRESENTING CLAIMANTS
§ 12.1.1 Introduction
Typically, when an injured worker, or the widowed spouse of a recently deceased
employee, walks into your office for the first time, he or she is completely unaware
of the rights and obligations afforded under the workers’ compensation system. The
person is usually much more concerned about his or her future, overall physical well-
being, ability to support his or her family, and the prospects of being able to return to
*
Reprinted from chapter 6 and chapter 7 of Workers’ Compensation Practice in Massachusetts
(MCLE, Inc. 3d ed. 2015) (judicial commentary for the book was provided by the Honorable
Dennis M. Maher and the Honorable Fred A. Taub). Joseph F. Agnelli, Jr., authored the material
in § 12.1; Scott E. Richardson authored the material in § 12.2.
MCLE, Inc. | 6th Edition 2017 12–1

§ 12.1 Massachusetts Basic Practice Manual
a productive lifestyle in the future. This may also be the first time the person has ever
met with an attorney for any reason.
Therefore, you, as the attorney, take on an important role in the claimant’s life and
must be able to provide a clear understanding of all segments of the workers’ com-
pensation system, including a basic explanation of the law, the identity and sources
of all potentially available benefits, the process and procedures for obtaining benefits,
the need for appropriate medical treatment, potential obstacles to obtaining those
benefits, and the likely costs involved (such as attorney fees).
Giving your client a basic understanding of all aspects of his or her case will usually
allow for a smoother handling of the matter and will allay some of his or her imme-
diate concerns.
§ 12.1.2 Initial Interview

(a) General Principles
The initial interview is the most important phase in the handling of a workers’ com-
pensation claim. This is your first (and probably best) opportunity to obtain “fresh”
and accurate information from the claimant and to create a trusting relationship with
him or her.
It is always best to conduct the initial interview yourself and in person. This affords
you and your client that all-important face-to-face contact. A common claimant com-
plaint follows when the first meeting with the attorney happens at a scheduled event
at the Department of Industrial Accidents (DIA). This would indicate that the initial
interview was done either over the phone or by an associate or a paralegal in the of-
fice. Such a practice often leads to embarrassing questions, or even heated argu-
ments, concerning previously unexplained issues at a time when the attorney’s efforts
should be focused on the proceeding at hand.
The initial personal interview also affords the attorney an opportunity to assess the
client’s credibility and to communicate any and all concerns regarding his or her
claim. You can also determine whether any language barriers will require the assis-
tance of an interpreter at all subsequent DIA proceedings, which also may give rise
to issues concerning the proper reporting of injuries to employers, insurers, and med-
ical providers.
A checklist of items to address during the initial interview is set forth as Check-
list 12.1. These items are discussed in detail in § 12.1.2(b) through § 12.1.2(e), be-
low. Obtaining this important information at the outset of the representation will pro-
vide you with a full and complete picture of all issues involved, allowing you to file
the proper claim and thereby avoid any hidden traps or pitfalls during the pendency
of the claim.
12–2 6th Edition 2017 | MCLE, Inc.

Workers’ Compensation Practice § 12.1
Judicial Commentary
At the risk of stating the obvious, the more information one can obtain
about the alleged injury and the prospective client, the better. Since cred-
ibility is always an issue, help the judge get a better sense of just who
your client is in addition to how he or she came to be injured. The more
informed the lawyer is, the greater the opportunity to be persuasive. Par-
ticularly at the Section 10A conference, an informed presentation by the
attorney and an ability to answer the judge’s questions accurately and
with ease can go a long way in creating a good impression of your cli-
ent’s case.
It also makes sense for a lawyer to learn as much as possible about his
or her potential client and the person’s case before taking on the repre-
sentation. A lawyer who has committed to representing a client at the
DIA may not withdraw from that representation without leave of the as-
signed judge (or the senior judge, if no judge has active jurisdiction) un-
less the request occurs with the filing of an appearance of successor
counsel. 452 C.M.R. § 1.18(3).
(b) Background Information

Obtain detailed information in the following categories:
1. Full name. Include any former or maiden names. This is important when obtain-
ing medical records or prior wage and employment records.
2. Complete address (mailing and residential).
3. Marital status and number of children. Identify the name of the claimant’s
spouse and the names and ages of all children under the age of eighteen. General
Laws c. 152, § 35A provides for payment of dependency benefits in the amount
of $6 per week per dependent, including the spouse and all children under the
age of eighteen, either living with the claimant or for whom he or she is under
obligation of support. These benefits are payable only when a claimant’s weekly
compensation rate is less than $150, after which the dependency benefits will
apply until the combined payments reach a maximum of $150 per week (in this
case, ask for copies of all relevant birth certificates).
4. Age and date of birth.
5. Social Security number. It is advisable to also obtain the Social Security num-
bers of the spouse and dependent children.
6. Military service record/status. This is important to obtain as the claimant may

be entitled to certain forms of benefits from local veterans’ services agencies or
medical care from the Veterans’ Administration. This also will help you deter-
mine whether the claimant has any service-connected disability (see G.L. c. 152,
§ 37A).

7. Health insurance information. Such information is vital when the workers’

compensation insurer has denied the claim. This will allow the claimant to ob-
tain necessary medical treatment while the claim is litigated. The health insurer
may require the claimant to execute a reimbursement agreement relative to the
workers’ compensation claim. If so, counsel should be cognizant of this fact and
that there may also be a third-party lien (DIA Form 115, included as Exhibit 12A)
filed with the DIA.
8. Short-term/long-term disability insurance information. The claimant may be

entitled to payments under a group (employer-provided) or a private disability
policy. Availability of such benefits is again helpful if the claim has been denied.
Many employers provide for short-term payments (typically for thirteen or twenty-
six weeks) and long-term payments (for up to an additional twenty-four months
or longer, in certain circumstances). Often there will be some form of condition
or provision that the contemporaneous receipt of weekly workers’ compensation
benefits will either offset the payment of the group disability benefits or will ac-
tually exclude those payments. Ask your client to provide a copy of the actual
disability policy, which can be obtained directly from the employer. Also, the
group insurers will frequently file liens with the DIA pursuant to G.L. c. 152,
§ 46A.
9. Educational background. Obtain a complete listing of all schools attended by

the claimant, including years of completion and highest level of formal school-
ing achieved (if the claimant is not a high school graduate, inquire whether he or
she obtained a GED). Inquire whether the claimant attended any postgraduate
programs, such as technical schools, certificate programs, special training
schools, etc.
10. Language skills. Determine whether the claimant is able to speak, read, write,
and understand the English language. Determine whether the claimant is able to
read and write in his or her native tongue. This is important in deciding the need
for interpretation assistance in all proceedings and in assessing the claimant’s
overall vocational picture. It may provide explanations for misunderstandings in
histories provided to employers and medical providers.
11. Prior work experience. Obtain the identity of all previous employers, including
their addresses, the dates of employment, and reasons for termination. Further-
more, it is extremely important in assessing the claimant’s vocational history to
get a detailed description of those jobs, including the physical requirements and
demands of each, if any special training was required, types of tools used, etc.
12. Prior injuries/illnesses or claims. Given the constant barrage of defenses raised
by insurers under G.L. c. 152, § 1(7A), this information is crucial to anticipating
and overcoming those defenses. Therefore, obtain as much information as possi-
ble regarding any and all prior industrial injuries and claims and whether they
occurred with the current employer or prior employers. Obtain dates of injuries,
employer names, descriptions of injuries (including injured body parts), length
of time lost, whether compensation benefits were paid, the names of insurers,

whether a prior claim was settled by lump sum, and the names and addresses of
pertinent medical providers. Do not stop with that inquiry! Determine whether
the claimant had any prior injuries or illnesses involving the same body part that
is the subject of his or her current claim. Specifically, find out whether there
were any prior motor vehicle accidents or non-work-related incidents or illnesses.
Get similar information concerning medical providers, dates of injuries, lost
time from work, when treatment ended, whether there were any residual physi-
cal limitations, etc. Remember, if the previous injury was work-related, there is
no defense under Section 1(7A). However, if not, the claimant bears the burden
of proving that the subject industrial accident remains a major contributing cause
of the claimed disability.
13. Existence of potential liens. Inquire about the receipt of any form of assistance
or any obligations incurred by the claimant. Typical liens include
• welfare liens (the claimant received or is receiving financial assistance or med-
ical coverage (e.g., MassHealth));
• child support liens (frequently, this can be identified by garnishment of the
claimant’s weekly pay or compensation check);
• attorney liens (inquire whether the claimant was previously represented on the
subject claim);
• disability income provider liens (if the claimant received short-term or long-
term benefits subject to any reimbursement agreement executed by the claimant);
• medical provider liens (medical provider [or health insurer] seeking payment
for related medical treatment); and
• veterans’ services liens.
(c) Employment and Injury

Obtain information regarding the employee’s injury and employment circumstances
in the following categories:
1. Employer information. Get the complete name and address of the current em-
ployer. The best source of information is a copy of the claimant’s most recent
paystub. This information is important when attempting to obtain insurance in-
formation or when contacting the employer directly. Also, determine whether the
employer’s name changed recently or whether the employer was purchased or
taken over by another concern. Also, be aware of employee leasing situations,
whereby the claimant is actually employed by, and covered under the compensa-
tion policy of, an employee leasing company or a temporary employment agency.
Knowledge of any special employment relationships may require inquiry and fil-
ing of a claim under G.L. c. 152, § 18.
2. Occupation. Obtain a complete description of the claimant’s job title and job
duties. Have the claimant describe a typical workday, the physical demands and
requirements of the job, any special training involved, the use of any special

tools or machines, description of the work environment, any and all exposures to
chemicals or other toxic substances, and any different jobs held in the past with
this employer.
3. Length of employment. Determine the approximate starting date of employ-

ment. If any breaks in the time of employment exist, get specifics, including the
claimant’s reasons for leaving and when he or she returned to that employment.
This is also important to determine the average weekly wage. Shorter periods of
employment may give rise to questions of seasonal employment or require the
need for obtaining the wage information of a similar/like employee.
4. Average weekly wage. Often, at the initial interview, the claimant will have no
concept of “average weekly wage.” This figure is typically determined through
the preparation by the employer of the fifty-two-week wage schedule and it can
be obtained from the insurer. However, the attorney can approximate the earn-
ings by asking the claimant the hourly wage and number of hours averaged per
week. It is advisable to get copies of all paystubs up to the date of injury and any
tax forms, such as W-2 or 1099 forms. Explain to the claimant how the average
weekly wage is typically determined.
Practice Note
Unemployment compensation benefits received during the fifty-two-week
period prior to the date of injury are not included in the computation of the
average weekly wage. See Mike’s Case, 73 Mass. App. Ct. 44 (2008).
5. Weekly compensation rate. Explain to the claimant that, for all dates of injury
(except in death cases) after December 23, 1991, the weekly benefits under G.L.
c. 152, § 34 (temporary total disability), will be 60 percent of his or her average
weekly wage, up to a maximum equal to the state average weekly wage deter-
mined each October 1. Also, explain the concept of temporary partial benefits
under G.L. c. 152, § 35, which would provide a payment equal to 60 percent of
the difference between the preinjury average weekly wage and subsequent earn-
ing capacity or actual earnings (up to 75 percent of the Section 34 rate).
Furthermore, be aware of the minimum weekly compensation rate. The minimum

rate is 20 percent of the average weekly wage in the Commonwealth, according
to the calculation on or next prior to the date of the injury by the deputy director
of the Division of Employment and Training. G.L. c. 152, § 1(11). Accordingly,
if 60 percent of the claimant’s average weekly wage results in a rate below the
minimum, the claimant is entitled to that minimum rate.
6. Union involvement. Inquire whether the claimant is a member of a union. Often

the claimant will be entitled to benefits supplemental to workers’ compensation
payments. The claimant can make inquiry with the union benefits coordinator or
administrator and can obtain pertinent written policy and benefit information,
which should be reviewed. In addition, many union workers are injured on “pre-
vailing wage” jobs. This could give rise to a claim for a higher average weekly
wage. McCarty’s Case, 445 Mass. 361 (2005). However, fringe benefits generally

are not included in employee earnings for the purpose of calculating average
weekly wages. See G.L. c. 152, § 1.
7. Concurrent employment. Inquire whether the claimant held a second job, ei-
ther full time or part time, on the date of the industrial injury. Obtain all details
of the second job, including the name and address of the employer, length of
employment, wages, job description, whether there is any lost time due to the
current injury, and the identity of the concurrent employer’s workers’ compensa-
tion insurer, if any. See Sellers’s Case, 452 Mass. 804 (2008) (claimant’s wages
from both insured and uninsured employers included in computation of average
weekly wage). Ask the claimant to provide copies of paystubs from the second
job and the name of a contact person at that company. Secure a letter from that
employer setting forth the above information.
8. Date of injury. Identify specifics on the date of injury, including the time and
location of the injury. If the claimant continued working after the date of injury,
get all details regarding subsequent work activities (e.g., light or modified duty,
changes in physical condition, etc.). Identify the last date worked and the claim-
ant’s specific reasons for leaving work. Remember to advise the claimant that
the date of injury typically controls the amount of compensation benefits to be
paid. However, be cognizant of potential issues concerning G.L. c. 152, §§ 35B
(rate in effect on date of subsequent injury or disability), 35C (latent disease or
date of last injurious exposure), and 51A (entitlement to benefits in effect on
date of decision on claim where more than six months elapsed from filing of
claim to date of decision).
9. Nature of injury. Obtain as much detail as possible concerning the claimant’s

injuries, identifying all affected body parts. Often, claimants are vague in de-
scribing the location of their complaints (e.g., “neck,” “back,” “foot”). Have the
claimant point to a specific area or body part and describe the actual symptoms
or sensations (e.g., pain, numbness) from which he or she suffers, and be sure to
record this information in detail. If there are significant visible injuries (e.g.,
amputations, burns, lacerations, etc.), take photographs if possible.
Emotional injuries are usually harder to prove. Be sure to identify the specifics
of the injury, including times and dates of specific identifiable events in the
workplace, names of individuals involved in each event, and a detailed descrip-
tion of the claimant’s symptoms (e.g., depression, lack of concentration, fatigue,
other physical manifestations). Under the 1991 amendments, the claimant must
prove that the predominant contributing cause of an emotional disability is an
event or series of events occurring within any employment. G.L. c. 152, § 1(7A).
Other types of injuries that require close scrutiny include “wear and tear” injuries,
latent diseases (e.g., asbestosis, silicosis, toxic exposures, etc.), and heart attacks.
10. Cause of injury. This is arguably the most important information to decipher in
the initial interview. Have the claimant be as specific as possible in describing
the circumstances surrounding the injury. Missing crucial facts could lead you to

overlook other causes of action outside the scope of the workers’ compensation
system. A full and complete account of the incident will make it easier to spot
potential negligence claims against third parties (e.g., work-related motor vehi-
cle accidents, construction site injuries, defectively designed machines or prod-
ucts, employees of other companies on the job site). Advise the claimant that his
or her employer and coworkers are immune from common law liability for acts
of negligence and gross negligence, due to the exclusivity provisions of the
Workers’ Compensation Act. See G.L. c. 152, § 24. However, the claimant may
be entitled to bring a claim against the employer under G.L. c. 152, § 28 (see
§ 12.1.3(a), below).
11. Reporting of injury. Determine if the claimant reported the injury and, if so,
identify when and to whom it was reported. If the claimant filled out any form of
incident report, get a copy from the claimant or determine who has possession of
the report. Under G.L. c. 152, § 6, an employer must file a first report of injury
(DIA Form 101) with both the DIA and the insurer no later than seven calendar
days, excluding Sundays and legal holidays, after the claimant has lost five days
from work. The claimant may possess a copy of the first report, or it can be ob-
tained from the insurer. On receipt of the first report, the information should be
carefully reviewed and compared to the claimant’s description of the accident.
(d) Medical Information

Obtain contact information for medical providers as well as a signed medical release
authorizing you to obtain your client’s medical records.
1. Doctors’ names and addresses. Obtain the names and addresses of all doctors
who have treated the claimant since the inception of the industrial injury, with
all dates of treatment. It is advisable to identify the name and address of the
primary care physician as that provider’s records may contain important infor-
mation concerning any preexisting or current medical conditions that may be-
come an issue during the pendency of the claim.
2. Other medical providers. Secure the names and addresses of all other facilities
that provided medical treatment as a result of the accident, including hospitals,
clinics, emergency medical facilities, and diagnostic facilities (e.g., MRI, EMG,
bone scans, CT scans, etc.).
3. Signed medical release. Obtain a signed release from the client to allow you to
gather all of the medical documentation you will need to support the claim.
(e) Insurance Information

Obtain information relating to the identity of the insurer, the handling of the claim,
and any independent medical examination conducted with respect to the claimant.
1. Name of insurer. Obtain the name and address of the workers’ compensation
carrier. Prior to the initial interview, the claimant may have been contacted by

the insurer, usually denying the claim. Secure a copy of all written communica-
tions from the insurer, including any filings made with the DIA. If the identity of
the insurer is not available at the interview, it can be obtained by having the
claimant contact the employer directly, or you can make a similar request of the
employer. You can request the name by forwarding the insurance inquiry form to
the Insurance Registry Unit at the Department of Industrial Accidents (included
as Exhibit 12B).
2. File (claim) number. Typically, this can be obtained from any DIA filings made
by the insurer. Otherwise, a request can be made directly from the insurer. It is
important to include the claim number on all correspondence with the insurer.
3. Claims representative. Again, this information is usually contained in any cor-

respondence from the insurer.
4. Insurer’s physician exams. Determine whether the insurer has had the claimant
examined by an independent medical examiner. Ask the claimant to identify the
physician (or physicians) and the examination dates. Be sure to request copies of
all reports, as the opinions contained therein are often the basis of the insurer’s
denial of the claim.
§ 12.1.3 Other Considerations in the Initial Interview

In addition to the preceding list of items to cover in the initial client interview, you
should be prepared to discuss, explain, and consider a number of other important
factors in assessing all of the claimant’s available rights and to assist in the smooth
preparation of the claim. The following will address these additional areas of im-
portance and concern.
(a) Available Workers’ Compensation Benefits

Explain to the client what types of workers’ compensation benefits may be available.
1. Section 34. Temporary total disability benefits will pay the employee 60 percent
of the preinjury average weekly wage (up to the statutory weekly maximum) for
a period of up to 156 weeks (for all injuries after December 23, 1991).
2. Section 35. Temporary partial disability benefits will pay the employee
60 percent of the difference between the preinjury average weekly wage and his
or her postinjury earning capacity (or actual earnings). Be prepared to explain
the concept of “earning capacity” as typically assigned by an administrative
judge after a conference or a hearing. Also, the weekly partial compensation rate
is capped at 75 percent of the Section 34 rate. The maximum payout under Sec-
tion 35 is 260 weeks, which may be extended to 520 weeks under certain cir-
cumstances. However, the employee cannot receive more than 520 weeks, or ten
years, of combined Section 34 and 35 benefits.

3. Section 34A. Permanent and total disability benefits. Typically, these benefits
are paid after the expiration of either Section 34 or Section 35 benefits. An em-
ployee is entitled to receive two-thirds of the preinjury average weekly wage.
There is no aggregate maximum payout for this benefit. When applying for this
benefit, it is advisable to file the claim far enough in advance of the expiration of
the Section 34 or Section 35 benefits to allow for timely proceeding before the
DIA and avoid any “gap” in the receipt of benefits.
4. Section 36. Explain the various forms of losses of function and disfigurement
(“scar-based” and deformity-based). Bear in mind that “scar-based” disfigure-
ment is recoverable only if it exists on the face, hands, or neck for dates of injury
after December 23, 1991. Typically, the employee must be at maximum medical
improvement in order to recover these benefits.
5. Medical benefits. General Laws c. 152, §§ 13 and 30 provide that the employee
is entitled to receive, and the insurer is obligated to pay for, all medical treat-
ment that is reasonable, medically necessary, and causally related to the indus-
trial injury. Such treatment includes doctor visits, hospital visits, diagnostic stud-
ies, physical therapy, medications, etc. The claimant should be advised that he or
she is entitled to be reimbursed for all out-of-pocket medical expenses, such as
prescription medication, over-the-counter medication, travel (mileage, parking,
and tolls) to and from medical visits, and orthopedic devices.
The claimant should also be educated about the utilization review process. The
need to obtain approval prior to undergoing any medical treatment should be
discussed. Insurers are required to provide the claimant with a utilization review
card, which sets out the name and address of the insurer, the claim number, and
the telephone number of the appropriate utilization review provider. The attorney
should obtain a copy of that card for the file.
6. Vocational rehabilitation benefits. In certain circumstances, the claimant may

be entitled to vocational rehabilitation services provided, and paid for, by the in-
surer. In order to be eligible for these benefits, the claimant must be deemed
“suitable” by a member of the Office of Education and Vocational Rehabilitation
of the Department of Industrial Accidents. Typically, these benefits are available
only in accepted claims. See G.L. c. 152, §§ 30E–30I.
7. Cost-of-living allowance (COLA) adjustments. The receipt of certain benefits

under Chapter 152 will provide for the application of COLA adjustments. Sec-
tion 34B provides for the institution of such increases for claimants who are re-
ceiving Section 34A (permanent and total disability) benefits and Section 31
(survivors’) benefits. For Section 34A claimants to be eligible, their date of injury
must be at least two years prior to the applicable “review date,” which is each
October 1. After each October 1, the DIA issues a circular letter setting forth the
applicable multipliers under Section 34B. Claimants receiving Section 35 (tem-
porary partial disability) benefits whose date of injury was before December 23,
1991, are entitled to COLA adjustments under Section 35F (repealed Decem-
ber 23, 1991).

8. Section 31 benefits. Dependents of workers who die as the result of an industrial

accident are entitled to weekly benefits under this section. In the initial inter-
view, it is important to obtain as much detail as possible concerning the facts
surrounding the employee’s death. As in all claims, the burden of proof rests
with the claimant (usually the surviving spouse). Determine the status of all po-
tential dependents, including the spouse, children under the age of eighteen liv-
ing with, or supported by, the deceased employee, physically and/or mentally
disabled children over the age of eighteen, dependent parents, and “dependents-
in-fact.” General Laws c. 152, § 32 lists those individuals who are “conclusively
presumed” dependents of the employee. Typically, the claimant is entitled to re-
ceive two-thirds of the employee’s preinjury average weekly wage, subject to the
state maximum rate, but not less than $110 per week. G.L. c. 152, § 31. Also, it
is advisable to be familiar with the provisions of G.L. c. 152, § 7A, which deal
with employees who are found dead in the workplace, or who suffer from a
physical or mental inability to testify (which inability must be causally related to
the workplace injury).
9. Section 28 claims. Frequently, a claimant will question his or her rights to bring
a claim directly against the employer, believing that he or she can “sue” the em-
ployer for acts of negligence in causing the injury. It is important that, at the first
meeting with the claimant, he or she be made aware that there is no common law
action against the employer or coworkers for negligence in the workplace. Fur-
ther, the claimant should be informed that Chapter 152 does not provide recov-
ery for “pain and suffering.” However, in the initial analysis, attention should be
given to the circumstances surrounding the subject accident to determine whether
the client’s injury was caused by the serious and willful misconduct of the em-
ployer or persons in position of superintendence over the injured worker. In cases
of such misconduct, Section 28 provides for the payment of “double” the
amount of all compensation benefits to which the claimant is entitled. These
claims are often difficult to prove and even more difficult to win, and close scru-
tiny to the facts is necessary in determining if such a cause of action lies. Infor-
mation about similar past accidents, and the identity of all witnesses and persons
in a supervisory capacity, should be gathered at the first meeting.
(b) Other Available Benefits

Explain to the client what types of benefits may be available in addition to those au-
thorized under the Workers’ Compensation Act.
1. Social Security Disability Insurance Benefits (SSDIB). The claimant may be

entitled to receive disability insurance benefits from the Social Security Admin-
istration. Individuals who are (or are expected to be) totally disabled for at least
twelve consecutive months should apply for these benefits with their local Social
Security office.
2. Supplemental Security Income (SSI). Another benefit available through the

Social Security Administration is Supplemental Security Income. Unlike SSDIB,

SSI is need-based, and certain financial criteria must be met, in addition to the
level of disability.
3. Short-term and long-term disability. As previously discussed, the claimant’s

eligibility for benefits under both group and private disability income policies
should be explored.
4. Welfare benefits. Often, by the time of the initial meeting with the claimant, the
claim has been denied by the insurer and he or she has been without any income
for several weeks. If it is anticipated that the insurer will maintain its denial
through the initial stages of the DIA process, the practitioner should advise ap-
plying for financial assistance through the Department of Transitional Assistance
(DTA), which will allow the claimant to receive some income until the claim can
be resolved. Of course, the DTA will usually file a lien with the DIA, which
must be subsequently discharged.
5. Veterans’ Services benefits. Veterans who are physically disabled may qualify
for financial relief through the veterans’ services office in the town in which they
live. Again, this is a valuable source of income for a claimant whose claim has
been denied. This agency will usually file a lien for repayment of benefits paid.
(c) Attorney Fees

Explain to the client how attorney fees will be handled.
1. G.L. c. 152, § 13A. This section governs the payment of attorney fees in work-
ers’ compensation cases. All subsections in Section 13A should be reviewed and
explained to the claimant. Typically, insurers are responsible for the payment of
fees when an employee has prevailed. Since the 1991 amendment to the Work-
ers’ Compensation Act, an insurer that has paid an attorney fee as the result of a
“cash award” to an employee may reduce an employee’s future weekly benefits
as set forth in Section 13A(10). Furthermore, if the claimant loses the case, he or
she remains responsible for the payment of costs incurred in the pursuit of the
claim.
2. Lump-sum settlement fees. Attorney fees payable under the terms of a lump-
sum settlement, entered into under the provisions of Section 48, are set out in
G.L. c. 152, § 13A(8)(a) and (b). For settlements in which an insurer is not ac-
cepting liability, the attorney fee is 15 percent of the gross amount of the settle-
ment. If an insurer is accepting liability as part of the settlement, the fee is
20 percent of the amount of settlement.
(d) Statute of Limitations Concerns

General Laws c. 152, § 41 provides the applicable statute of limitations on the filing
of claims for workers’ compensation benefits. Essentially, the Workers’ Compensa-
tion Act states that a claim for benefits must be filed within four years from the date
of injury, or from the date the employee first became aware of the causal relationship

between disability and employment. The four-year limitation also applies to any
claim involving a death that results from an industrial injury, with the time running
from the date of death. Section 41 also provides that the statute of limitations shall be
tolled if any compensation benefits have been paid by an insurer under Chapter 152.
The Appeals Court has ruled that any payment of compensation under Chapter 152
will also toll the applicable statute of limitations with regard to claims filed under
Section 28. Green’s Case, 46 Mass. App. Ct. 910 (1999).
(e) Identifying Potential Third-Party Claims

During the interview, obtaining all of the details surrounding the claimant’s accident
will assist the practitioner in assessing whether a cause of action for negligence lies
against a third party. Typical cases involve motor vehicle accidents occurring in the
performance of employment, slip-and-falls on the job (e.g., while making deliveries
or performing services for a customer or client), injuries involving machines or tools,
and accidents occurring on construction sites due to the actions and/or inactions of
those responsible for safety or of other employers’ workers.
The claimant should be apprised of the right to pursue such a claim and that the
claim involves a cause of action that is completely separate and distinct from the
workers’ compensation claim. Such an action will entitle the claimant to receive
payment for “pain and suffering,” which is not recoverable in the workers’ compen-
sation matter.
The attorney should explain the workings of the statutory lien that the workers’ compen-
sation insurer will have against any third-party recovery, pursuant to G.L. c. 152, § 15.
(f) Uninsured Employers

Question the client regarding circumstances in which workers’ compensation insur-
ance coverage appears to be unavailable through the employer.
1. Claims in general. Often a claimant will indicate that he or she worked for a
small business and was told by the owner that he or she would be paid as an in-
dependent contractor. In those instances, the claimant was given a paycheck every
week but had no taxes deducted therefrom. At the end of the year, he or she was
given an IRS Form 1099. After the industrial accident, he or she was told by the
owner that he or she was not covered for workers’ compensation because of the
independent contractor status.
Under these circumstances, questioning should center on several areas and fac-
tors. These should include the following:
a. the nature of the work performed;
b. whether the owner provided tools and materials;

c. hours of work—regularly scheduled hours;
d. manner of payment—hourly or by the job;
e. where the work was performed;
f. whether the owner maintained control over the manner in which the work
was performed; and
g. whether the claimant holds himself or herself out as operating an individual

business.
If all or most of the above factors indicate that the claimant works exclusively
under the control of the business owner, an argument can be made that the
claimant is an employee of that concern and is entitled to workers’ compensa-
tion protection. Inquiry of the company should then be made as to the identity of
its compensation carrier. If the claimant has been told he or she is an independ-
ent contractor, the employer is typically not insured.
2. Workers’ Compensation Trust Fund. If it is discovered that coverage was not

provided by the employer, a claim can be brought against the Workers’ Compen-
sation Trust Fund, pursuant to G.L. c. 152, § 65. The trust fund stands in the
same position as an insurer and will pay benefits in accordance with the Work-
ers’ Compensation Act. The trust fund is administered by and is located at the
Department of Industrial Accidents in Boston. In order to file a claim against the
trust fund, counsel must obtain certification, on a prescribed form from the Of-
fice of Insurance at the Department of Industrial Accidents, stating that the sub-
ject employer was uninsured on the date of injury. (A copy of the form is included
as Exhibit 12C, with instructions on submission procedure.)
3. Section 18. Under G.L. c. 152, § 18, in cases involving an uninsured employer, a
claim may be brought against an insured general contractor. Therefore, it is im-
portant to inquire into any contractual relationships between the claimant’s im-
mediate employer (who may have contracted to perform certain work on a con-
struction site) and the general contractor. If such a relationship existed, the name
and address of the general contractor should be obtained, as well as the identity
of its workers’ compensation insurer. A claim can be filed against that insurer,
which will be required to respond and bear the same responsibility as if it directly
insured the immediate employer. In order for a Section 18 claim to sustain, it
must be shown that
a. the work performed by the uninsured subcontractor was not ancillary and
incidental to the trade or business of the insured general contractor; and
b. the injury occurred either on or about the premises on which the uninsured
subcontractor agreed to work for the general contractor or was under the
control of the general contractor.

4. Common law action against uninsured employer. The claimant has a right to
pursue a common law action against an uninsured employer. General Laws
c. 152, §§ 66 and 67 provide this remedy and state that the uninsured employer
has no common law defenses. The claimant has the right to pursue this remedy
in addition to claims against the trust fund or under Section 18. Of course, the
trust fund or the insurer of the general contractor will have a right to recovery
under Section 15. The statute of limitations for this cause of action is twenty
years.
(g) Jurisdictional Issues

The following factors provide bases for obtaining jurisdiction in Massachusetts:
• occurrence of the injury in Massachusetts, or
• occurrence of the contract of hire in Massachusetts.
Cases often fall under “dual jurisdictions” and are therefore covered under the work-
ers’ compensation laws of more than one state. This will occur, for example, when an
employee is hired in one state but sustains an injury in a second state. In these in-
stances, it is extremely important to gain a working knowledge of the laws and bene-
fits of the compensation system of any potential jurisdictions. In certain states, the
only basis for jurisdiction is the contract of hire; the situs of injury is irrelevant. Fur-
thermore, the payment of any benefits in one state will bar the receipt of benefits in
another state. Understanding these practical issues is important in advising clients
regarding choice of jurisdiction.
§ 12.1.4 Filing the Claim

A checklist of items to address when filing a workers’ compensation claim is set
forth as Checklist 12.2. These items are discussed in detail in § 12.1.4(a) and
§ 12.1.4(b), below.
(a) Preliminary Steps

After conducting the initial interview and obtaining important background infor-
mation from the claimant, the attorney should gather all written documentation to
support the filing of a claim for benefits or to defend against a potential filing by an
insurer to discontinue or modify benefits.
1. Obtain necessary medical documentation. Vital to any and all claims are the
claimant’s medical records. The attorney should request all records concerning
medical treatment rendered to the claimant, including complete hospital records,
physicians’ office notes, and reports of diagnostic examinations. The attorney
should have obtained an executed medical release from the claimant at the initial
interview, which should be used to request the appropriate documentation.
If you are aware of a preexisting injury or physical condition that may support a
potential defense under Section 1(7A), you should obtain all records of treatment

concerning that injury or condition. Request the office notes of the claimant’s
primary care physician, as information concerning underlying conditions often
can be found in such records.
In most instances, in order to file a claim for benefits, it is necessary to request a

narrative report, from either a treating or an examining physician. The narrative
report should set forth the nature of the claimant’s injuries, a diagnosis, a review of
results of diagnostic studies, the extent of disability, and an opinion on the causal
relationship between the disability and the claimed industrial accident or injury.
If the claim seeks benefits after the insurer has terminated benefits, the medical
opinions should address disability and causation after the date of termination.
2. Obtain witness statements. If it is apparent that the claim will be contested by

an insurer on a liability basis, it may become necessary to contact individuals
who witnessed or were immediately aware of the claimant’s industrial accident
or who were familiar with the claimant’s work activities or work environment.
These typically include coworkers, independent bystanders, or medical person-
nel. Identities of such witnesses can be obtained directly from the claimant, from
first reports of injury, or from emergency medical treatment records (e.g., ambu-
lance reports, emergency room reports).
3. Obtain information from insurer. Contact should be made with the insurer to
identify the bases for the denial of the claim. The practitioner can make a written
request for information from the insurer, including copies of first reports of injury,
applicable filings with the DIA (e.g., notification of denial, notification of pay-
ment, notification of termination), statements of the claimant, medical treatment
records, reports of independent medical evaluations, and fifty-two-week wage
schedules. It is urged that the practitioner obtain and carefully review this infor-
mation, as it will provide a clear picture of anticipated defenses and the docu-
mentation necessary to perfect the claim.
The practitioner should also file a request for production of documents on the
insurer, pursuant to 452 C.M.R. § 1.12, seeking to enter on the employer’s prem-
ises for inspection or to obtain all medical records and reports in the insurer’s
possession.
The initial written contact with the insurer should also include a letter of repre-
sentation and an assertion of an attorney fee lien pursuant to G.L. c. 221, § 50.
The attorney should also file a Form 114 (Notice of Change/Appearance of
Counsel) with the DIA and all parties (included as Exhibit 12D).
(b) Filing Procedure

Filing a workers’ compensation matter requires important attention to applicable
statutes and regulations, including recently adopted requirements for online filing.
1. Initial considerations. Pursuant to G.L. c. 152, § 29, no benefits are payable to

an injured worker unless that worker has been incapacitated from earning full

wages for a period of five or more calendar days. Additionally, if an injured

worker is out of work for six or more days but fewer than twenty-one days, ben-
efits are payable only from the sixth day to the date of return to work. No bene-
fits are payable from the first day of disability unless the injured worker is out of
work for twenty-one or more days.
Furthermore, a claim for initial benefits cannot be filed until thirty days have
elapsed from the date of injury, or the employee has received a written notice of
denial from the insurer, whichever occurs earlier.
2. Procedure. General Laws c. 152, § 10(1) provides the statutory requirements for
filing of claims for benefits at the DIA. A practitioner’s failure to comply with
the mandates set forth in that section could result in delays in processing of
claims, return of claims, and possible loss or reduction of attorney fees. Since
Section 10(1) was deemed procedural in the 1991 amendments, these provisions
apply to all claims, regardless of the date of injury.
a. All claims are submitted to the DIA on a prescribed form (DIA Form 110,
included as Exhibit 12E), which must be completed in full. Any missing in-
formation will result in the return of the form and no proceeding will be
scheduled.
b. Copies of all claims must be sent to the insurer by certified mail.
c. All claims for benefits must be accompanied by a medical report containing

a history of the injury, the treatment rendered, the diagnosis, a statement of
the extent of disability, and an opinion causally relating the disability to the
industrial accident.
d. Claims for medical services (either those incurred in the past or prescribed
in the future) must be accompanied by supporting documentation, including
the outstanding bill for services, a description from the health-care provider
of the services rendered or proposed treatment, and a statement that the
treatment is reasonable, medically necessary, and causally related to the in-
dustrial accident. Under the current utilization review procedure, claims for
such benefits require that a prior determination under utilization review be
made (i.e., denial of initial request for approval and denial of subsequent
appeal), and that such written determination also be attached to the claim.
e. Claims under Section 36 must be accompanied by a physician’s report de-

scribing the location and extent of the loss of bodily function and/or disfig-
urement and the specific dollar amount claimed. The report must also indi-
cate that the claimant has reached maximum medical improvement and that
the extent of loss of function is in accordance with the applicable American
Medical Association guidelines for orthopedic disabilities.

3. Online filing. With the implementation of the Document Management System

(DMS) at the DIA, claims for benefits (DIA Form 110, included as Exhibit 12E)
are now filed online, enabling speedier scheduling of conciliations before the DIA.
Practitioners can file claims by accessing their individual DMS docket page and
clicking “Online Forms.” A list of forms will appear. The Form 110 is then
checked, presenting a partially completed document. The remaining fields must
be filled in, setting forth the particular claimed benefits. Once entered, a Trans-
mittal ID number is provided.
Pursuant to 452 C.M.R. § 1.07, supporting medical or other written documenta-

tion must be faxed to the Office of Claims Administration (at the fax number
provided) with the Transmittal ID number. An e-mail is then sent to the filing
party advising that filer that the claim has been processed. The practitioner must
then print out the claim from the docket page on that particular case and send a
copy of the claim with the same supporting documentation to the insurer by cer-
tified mail, return receipt requested.
Detailed information on DIA online filing procedures is available on the DIA

website at http://www.mass.gov/lwd/workers-compensation.
§ 12.2 INITIAL STEPS IN REPRESENTING EMPLOYERS

AND INSURERS
§ 12.2.1 Introduction
This section will discuss the initial steps to be taken by defense counsel representing
employers and insurers to investigate and address issues raised by the workers’ com-
pensation claim and map the course of action to be followed through its administra-
tion through either litigation or resolution.
§ 12.2.2 Initial Contact

Frequently defense counsel will receive inquiries from an insurer long before a case
file is referred to counsel. In these cost-conscious times, the insurer’s claims adjuster
may choose or be directed to refrain from engaging counsel until absolutely neces-
sary. This may result in one or more inquiries about a potential or actual claim, about
which defense counsel know only what they are told by the client.
In order to give an informed, as well as informative, answer to such inquiries, try to

obtain as much information as possible about the facts of the situation before offer-
ing your advice. Discuss as many options as are applicable to the information given
and suggest possible courses to follow for each. If possible, ask for the name of the
employee and the employer and take note of each.

Practice Note
More often than not, when the case is referred to defense counsel, your
assistance will result in the assignment of the case to you or your firm.
Your notes from those initial inquiries will help you to quickly get up to
speed on the issues presented by the case. In addition, you will be able
to see how your advice has already begun to shape the outline of the
administration and defense of the claim.
§ 12.2.3 Initial Review of File

On receipt of a new file, prepare and file an appearance with the Department of In-
dustrial Accidents. See Exhibit 12D. (The DIA now requires a bar-coded coversheet
for all paper filings. This coversheet can be obtained through the Document Man-
agement System available on the DIA website, http://www.mass.gov/dia. The ap-
pearance can also be filed electronically through that site without the need for a co-
versheet.) Next, read the file thoroughly. Every document should be reviewed, no
matter how unimportant it may seem at first. Your review should reveal
• the identity of the parties involved,
• potential witnesses,
• a description of the incident that spawned the claim,
• some basic facts about the employee, and
• issues that were framed by the parties before you became involved.
Even in claims arising out of a disputed incident or injury, more than one issue will
frequently have been raised by the time the case is referred to defense counsel.
In your review, make sure that both the employer and the insurer have met their re-
spective requirements under G.L. c. 152. The employer is required to file a report of
an injury or death allegedly arising during the course of employment within seven
calendar days, not including Sundays and legal holidays, of its receipt of notice that
the injury has resulted in five or more calendar days of either total or partial incapac-
ity to earn full wages, or in death. G.L. c. 152, § 6. This section requires that the re-
port of such an injury shall be on a form prescribed by the DIA, currently “Employ-
er’s First Report of Injury/Fatality,” Form 101, which is available online and can be
filed on the DIA website. The employer can be fined $100 if it fails to comply with
this requirement three times in one calendar year.
§ 12.2.4 Response Required Within Fourteen Days

Once the injury or the death has been reported, the insurer or the self-insurer has an
obligation to either accept or deny the claim within fourteen days of its receipt of
either the employer’s first report of the injury or an initial written claim for weekly
disability benefits. G.L. c. 152, § 7(1). By its language, this section of the law man-
dates a response only where the claim is for weekly benefits—necessarily disability
benefits, as they are the only ones paid on a weekly basis.

Acceptance and payment of the claim within the first fourteen days will allow the
insurer or the self-insurer the opportunity to continue payment for up to 180 days
without accepting liability for the alleged injury, or “without prejudice.” The 180
days may be extended to a period not to exceed one year if the employee agrees to
such an extension and it is approved by the DIA prior to the expiration of the initial
180-day period. G.L. c. 152, § 8(6). The DIA has adopted a policy that the agreement
to extend the payment-without-prejudice period must be submitted and approved in
advance of the 173rd day of the initial period. During that time the claim may be
further investigated to determine whether it is in fact viable. The insurer or the self-
insurer has the right to unilaterally discontinue or modify the payment of disability
benefits during this time based on information developed during the payment-
without-prejudice period after giving seven days’ written notice of its intent to do so.
Failure to act within the fourteen-day period will foreclose the opportunity to pay
without prejudice, even if the insurer later accepts and pays the claim. This failure
will also result in a penalty of ascending magnitude based on the passage of time
between the fourteenth day and the date of payment of the claim. G.L. c. 152, § 7(2).
Any payment made after the expiration of the fourteen-day period will have the con-
sequence of conclusively establishing liability.
§ 12.2.5 Denial of Claim

If the insurer elects to deny the claim within this period, it must notify the DIA, the
employer, and, by certified mail, the employee of its denial on a form prescribed by
the DIA. G.L. c. 152, § 7(1). Currently the form is entitled “Insurer’s Notification of
Denial,” Form 104, included as Exhibit 12F, which can be filed with the DIA online
at its website. The statute mandates that “the grounds and factual basis for the refusal
to commence payment of said benefits” shall be specified on the insurer’s notice of
denial. G.L. c. 152, § 7(1). Form 104 provides space for these grounds and factual
bases to be stated on its face. It is permissible to use the back of the form or to attach
an additional sheet of paper to the form to fully state the grounds and factual bases
for the denial.
It is important to be sure that all the grounds available at the time of the denial are
stated to ensure that all possible defenses to the claim are retained. Section 7(1) of
Chapter 152 limits the insurer’s defenses to those specified on Form 104 unless fu-
ture defenses are based on newly discovered evidence. G.L. c. 152, § 7(1).
Judicial Commentary
While it is always the employee’s burden to prove all elements of his or
her case, and “[a]n insurer’s inability to defend on any issue shall not re-
lieve an employee of the burden of proving each element of any case,”
G.L. c. 152, § 7(1), the ability to present evidence and argument to dis-
pute the employee’s position can be essential. An insurer’s defenses to
the claim must be specified or they will be deemed waived. For instance,
except as to newly discovered evidence, “no grounds for refusal to pay
compensation shall be allowed as a defense unless the insurer’s notice
of refusal contains a statement of the factual basis supporting such

grounds.” 452 C.M.R. § 1.04. Also, before the taking of testimony at

hearing, the insurer must state clearly its defenses, since “[o]n all other
issues, the employee’s rights under M.G.L. c. 152 shall be deemed to
have been established.” 452 C.M.R. § 1.11(3).
The form lists seven possible defenses with a box to be checked for those that apply
and an additional box for “other” defenses:
• no personal injury,
• no injury arising out of and in the course of employment,
• no disability,
• no causal relationship between personal injury and disability,
• lack of jurisdiction,
• lack of notice,
• late claim, and
• other.
If the occurrence of the incident or the injury is disputed, emphasis should be placed
on the grounds and factual bases for raising the first two of these defenses. The sub-
stance, if not the detail, of these grounds and bases should be listed. By putting the
employee on notice, you have preserved the defenses that will remain at the core of
the disputed claim.
A lack of disability may be the sole applicable defense in a claim. It may also be one
of several that are applicable at the time the notice of denial is given. The medical
basis for this defense should be referenced in the appropriate space. It is not unusual
for the existence or the extent of disability to be disputed due to a lack of any medi-
cal documentation of it. If so, this is the appropriate grounds to be stated in support
of this defense. This basis may be eroded by the receipt of additional medical records
or reports, but the defense has been preserved as an issue for later consideration.
A dispute as to causal relationship between the claimed injury and disability may
also necessitate the citation of a medical basis, a factual basis, or both. Either basis
may be sufficient depending on the circumstances of the particular claim.
Jurisdiction over a claim for workers’ compensation benefits is established in Massa-

chusetts by the occurrence of the injury within the state or the contract of hire for the
employment being performed at the time of the injury having been made in Massa-
chusetts. If one of these criteria is not met by or cannot be ascertained from the in-
formation available in the fourteen-day period following the receipt of notice of an
injury, jurisdiction can and should be raised as a defense.
Judicial Commentary
Raising “liability” as a defense can have implications for attorney fees at
the Section 10A conference. Under Section 13A, the employee’s attor-
ney would be entitled to a lower fee for prevailing at conference if the

matter did not involve “an initial liability claim.” An insurer would therefore
not necessarily want to always check off all the boxes on the list of its po-
tential defenses. Moreover, an insurer must have “reasonable grounds”
for its defenses or it could be susceptible to Section 14 penalties.
Gonsalves v. IGS Store Fixtures, Inc., 13 Mass. Workers’ Comp. Rep.
21, 23–25 (1999).
Whether an insurer has “reasonable grounds” to defend an issue must

be determined by an objective, reasonable person standard, rather than on
a subjective, “good faith” basis. Adam v. Harvard Univ., 24 Mass. Workers’
Comp. Rep. 193, 197–98 (2010); Gonsalves v. IGS Store Fixtures, Inc.,
13 Mass. Workers’ Comp. Rep. at 24–25. In Gonsalves, the Reviewing
Board departed from its earlier decision in Brown v. MCI–Norfolk, 10
Mass. Workers’ Comp. Rep. 58, 60 (1996), and held that a party need not
show that “fraud, ill will or insincerity [was] exhibited,” only that a “cau-
tious and prudent” insurer would not have raised the defense. Gonsalves
v. IGS Store Fixtures, Inc., 13 Mass. Workers’ Comp. Rep. at 23–25.
§ 12.2.6 Notice Requirements

The requirements for notice and claim are contained in G.L. c. 152, §§ 41 and 44.
Pursuant to Section 41, notice of an inquiry resulting in a proceeding on a claim for
compensation benefits under G.L. c. 152 “shall have been given to the insurer or in-
sured as soon as practicable after the happening thereof.” Failure of the employee to
provide notice will not bar the proceeding “if it be shown that the insurer, insured or
agent had knowledge of the injury, or if it is found that the insurer was not prejudiced
by such want of notice.” G.L. c. 152, § 44.
Practice Note
The key considerations are the practicability of the timing of the notice
given and whether the insurer was prejudiced by the lack of notice. This
defense should be preserved when there is an unexplained gap between
the occurrence of the alleged injury and its having been reported, and ei-
ther the employer or the insurer was prejudiced by the lack of notice.
Prejudice may result from the unavailability of relevant evidence due to the passage
of time or the intervention of the employee. Section 42 allows a claim for compensa-
tion to be filed in “any form of written communication.” G.L. c. 152, § 42. The claim
must be filed within four years from the date of injury or “the date the employee first
became aware of the causal relationship between his disability and his employment.”
G.L. c. 152, § 41. The statute of limitations may not begin to run until a doctor estab-
lishes this causal nexus. This trigger may apply more frequently in occupational dis-
ease cases, repetitive microtrauma injuries, and claims arising from exposure to other
harmful working conditions. “Other defenses” may be listed on the last line of the
notice of denial.
It must be emphasized that it is not advisable merely to check the appropriate box
without stating the grounds and the factual basis for each applicable defense. Some
grounds should be stated, even if it is as simple as a statement that the employee did

not sustain an injury arising out of the course of employment. Often, the investiga-
tion performed within the first fourteen days of the filing of the first report of the
injury or death will not produce much more detailed information than that. At a min-
imum, such grounds will preserve the defense generally, thereby allowing its sup-
plementation with information obtained from the continuing investigation, i.e., “newly
discovered evidence.” To the extent that you are asked to complete the notification of
denial or have input into its completion, be sure that all possible defenses are retained
until such time as it is clear that one or more of them do not apply to your case.
§ 12.2.7 Factual Follow-Up

The materials initially submitted to you by the insurer are rarely complete. Your re-
view of them should generate a list of questions seeking more information that you
believe is necessary for you to provide a fully informed assessment of the issues, the
available defenses, and a defense strategy. If you have been provided with the entire
claims file and information gaps remain, ask the insurance adjuster to either obtain
the information you need or authorize you to address your requests to the employer
directly. If the occurrence of the incident or the injury is disputed, it may be best to
seek permission to contact the employer directly as early in the investigation as
possible.
Practice Note
This direct connection will enable you not only to ask the questions
raised by your initial review of the material but also to establish a rela-
tionship with the employer and assess his or her potential as a witness,
should it be necessary for him or her to testify at a hearing.
The investigation of an initial liability claim may be extensive. It is not unusual for
the investigation to require the questioning of several witnesses and visiting the site
of the alleged occurrence. Again, for reasons of economy, the insurance adjuster may
choose to do most of the investigation himself or herself, or enlist an independent
adjusting company or investigator to perform the initial investigation. If this method
is chosen by the insurer, offer to assist in the investigation by recommending the type
of, if not the specific, questions to be asked and by identifying the person or persons
who should be questioned. Consideration should also be given at this time to whether
there is a basis for a subrogation claim against any third party whose actions or inac-
tions may have resulted in civil liability for the injury under investigation. Note that
the insurer cannot initiate a claim for damages at law until compensation benefits
have been paid and seven months or more have passed since the date of injury. G.L.
c. 152, § 15.
At this point, consideration should also be given to whether there is any basis to be-
lieve that the employee has engaged in any fraudulent behavior in the claim. If there
is evidence of possible fraud, you should discuss this issue with your client and pre-
sent all available options. Once a claim for benefits or a complaint to reduce an em-
ployee’s benefits has been filed, the conduct believed fraudulent may be reported to
the general counsel of the insurance fraud bureau pursuant to Section 14(2). If the

circumstances so warrant, the parties to the fraudulent conduct could be prosecuted

in criminal court.
Whether the conduct at issue is fraudulent or not, if it appears that the employee has
either brought a claim or contested a complaint to reduce his or her benefits without
reasonable grounds, the entire cost of that proceeding could be assessed against ei-
ther the employee or employee counsel, or both, whomever is responsible. G.L.
c. 152, § 14(1). If the conduct is potentially fraudulent and prosecuted as such, the
insurer may still pursue costs in the underlying workers’ compensation claim.
Similarly, be sure that there is an adequate basis for the position taken by your client
in a proceeding within the DIA. Its actions should be examined objectively to ensure
that they have been taken in good faith. The Reviewing Board has emphasized that
Section 14(1) does not require proof of either subjective bad faith or ill will on the
part of the insurer to impose the sanctions prescribed by that section. See Gonsalves
v. IGS Store Fixtures, Inc., 13 Mass. Workers’ Comp. Rep. 21, 23–24 (1999).
§ 12.2.8 Disability
Whether the employer or the insurer has accepted liability for the injury or not, there
are other issues to be considered and addressed. Chief among them is disability. Dis-
ability is both a medical and a vocational concept, though it is most often thought of
only as the former. Assessing whether the employee is physically capable of per-
forming his or her regular employment duties and responsibilities is the best way to
begin the evaluation of disability. All claims for disability benefits are premised on
either a physical or a mental injury. Mental injuries could also be described as emo-
tional, psychological, or psychiatric.
Those medical records in the initial file provided to you should be read closely for
both content and context. Attention should be paid to all information in hospital rec-
ords. If an employee first sought medical care from a hospital emergency facility, the
records may contain a description of the accident that resulted in the injury, the initial
complaints and symptoms expressed by the employee, as well as the insurance in-
formation provided to the hospital before its professional staff would treat the em-
ployee. This one page may provide information that will influence the entire course
of the claim. If an employee lists his or her health insurance provider as the payer for
the treatment provided and fails to clearly identify the injury as work-related at the
time of an emergency admission, this may lead to lively cross-examination at the
hearing. There may also be information about prior admissions, medical history, and
even the employee’s marital status that may be relevant to the claim.
§ 12.2.9 Past Medical Condition

Records of physicians, chiropractors, or other health-care providers that assess an
employee’s postinjury medical condition may also contain information relevant to
the administration and the defense of the claim about his or her past medical condi-
tion, injuries, habits, or personal background. You should take immediate steps to
procure this information from the employee, the medical provider, the insurer, and

the employer. These records can often be obtained by requests for production, by
subpoena, or by obtaining a signed release from the employee. Revisions to the Code
of Massachusetts Regulations promulgated in 2009 mandate that notice of a subpoena
must be given to counsel for each party at least two business days before it is served.
452 C.M.R. § 1.12(7). Failure to comply with this requirement could result in sanc-
tions under G.L. c. 152, § 14. The time frame for responding to requests for produc-
tion was expanded from five to twenty days by these revisions.
You will want all of this information to determine if there have been any prior inju-
ries or incidents that may affect the claim. This is especially important under the re-
vised regulations. Pursuant to 452 C.M.R. § 1.11(1)(f), the insurer is required to
make an offer of proof when raising a defense under Section 1(7A) contesting that
the claimed injury is a major cause of the alleged disability and/or need for medical
treatment.
§ 12.2.10 Health-Care Provider

The identity of the health-care provider chosen by the injured employee may be sig-
nificant. The names of certain providers will appear frequently as treating physicians
or doctors. If possible, review other files in which the same doctor has served as the
primary treating physician for similarities in treatment, diagnosis, and, of course,
disability opinions. Your insurance adjuster should also have access to additional
records of such physicians. More-experienced attorneys may have deposition tran-
scripts, with effective cross-examination of these physicians, which could prove use-
ful as the claim progresses.
The type of health-care provider chosen by the employee to be the primary care phy-
sician may also be significant. Frequently, an employee who immediately consults a
chiropractor for a work-related injury has already established a treatment relationship
with that doctor. This may also be true when the first consultation is with an orthope-
dic surgeon or other specialist or there has been an inability to obtain specialized care
where it is warranted. References to prior treatment in the records of current treat-
ment may prompt you to pursue the records of the former. The choice of an inappro-
priate medical specialist may raise the question of the need for medical management
services. These services may facilitate an expedited return to work, the identification
of the need for a different medical specialist, or other insights into the treatment of
the injury that may reduce the period or extent of disability.
§ 12.2.11 Independent Medical Exam

The file you receive may contain a report of an independent medical examiner. This
too should be read closely for further insight into the circumstances surrounding the
claimed injury and the alleged disability. Attention should be paid to the report itself
as a potential litigation tool. Review it for accuracy of factual information. Careless
mistakes in describing an employee’s age, weight, or height may provide an oppor-
tunity for the employee to cast the entire report in a negative light when it is later
presented at a DIA proceeding. Be sure that the report contains an adequate history, a
description of the complaints or symptoms described by the employee, a thorough

description of the physical or mental examination, a diagnosis or impression, a prog-

nosis, and a clear opinion on the employee’s disability, if any, including the re-
strictions that the employee should observe on his or her return to work.
The report must also contain the doctor’s opinion on the existence of a causal rela-
tionship between the claimed injury and the condition observed at the examination.
The employer does not have the burden of establishing a nonindustrial cause of an
employee’s disability. If, however, the independent medical examiner finds that there
is no causal relationship between the condition he or she diagnoses and the claimed
work-related injury, the basis for that opinion should be clearly stated and supported
by appropriate references to the history and physical examination. If, on the other
hand, the doctor does find a causal relationship between a disputed medical condition
and the claimed injury, it should be made clear that the opinion is based on the history
provided by the employee and assumes its accuracy only for the purposes of express-
ing that opinion but does not attest to the accuracy of that history. The doctor is not a
fact finder in the claim adjudication process. An employee will seize on an uncondi-
tional opinion on causal relationship as if it were a legal conclusion regardless of the
doctor’s lack of standing to reach such a conclusion. All too often, an administrative
judge may also be seduced by this inartfully expressed opinion. If the report is lack-
ing in any of these respects, consideration should be given to requesting an adden-
dum to the original report or a reexamination to address the omissions in the original
report.
If an independent medical examination has not been performed but is necessary,

communicate the need for this information to the claims adjuster who will make the
appointment for this examination or directly to the doctor, if you have the opportun-
ity. Claims that involve unusual circumstances or issues may warrant the extra step of
specifying particular questions to be answered by the examining physician. Circum-
stances may also warrant providing the examining physician with investigation re-
ports, photographs, video discs, other claims made by the employee, or other infor-
mation relevant to the particular issue raised by the claim, in addition to all the medi-
cal records available at the time of the examination. The doctor’s review of and
comment on these types of materials, while extraordinary, may advance the defense
on more than one level.
Practice Note
In addition to the influence that the material may have on the evaluation
itself, reference to nonmedical materials such as investigation reports,
photographs, and video in the evaluation report may alert an impartial
medical examiner to the existence and content of these materials, which
might otherwise not be available for his or her review until after the ex-
aminer’s report has been issued and he or she has been deposed.
Whether an independent medical exam has already taken place or you are requesting
one for the first time, you must make sure that the doctor has all the employee’s past
medical records and diagnostic test results available at the time of the examination.
This underscores the critical need to get as much as possible of the employee’s medical

treatment history prior and subsequent to the date of injury as soon as you can. The
doctor cannot provide adequate opinions without all relevant information.
§ 12.2.12 Investigation of Postinjury Activity

If an investigation into the employee’s postinjury activities has been performed be-
fore the file is referred to you, consider the injury in issue when reviewing the report,
photographs, DVDs, and other materials produced by the investigation. Most investi-
gations do not reveal injured employees to be gainfully employed in strenuous physi-
cal labor. If they do, the only recommendations you need to make as counsel are to
try to have the investigator observe and record as many instances of this activity as
time and resources will allow. At least forty-five days before a conference, request
that the employee be asked to complete an “Employee’s Earnings Report,” Form 126,
included as Exhibit 12G. This form requests information about postinjury earnings
and can be issued at six-month intervals. The employee has thirty days from receipt
to respond. This will ensure that defense counsel will have a response by the confer-
ence date and can either use the information at that proceeding or ask the administra-
tive judge to compel a response. In the majority of cases in which an investigation
has been performed, the results are much less dramatic. That is not to say that the
absence of an observation of the employee working, playing football, or engaged in
some other activity that is wholly inconsistent with the claimed disability renders the
investigation useless. A video image that shows an employee alleged to be disabled
as the result of a back injury bending at the waist to pick vegetables out of a garden,
shoveling snow, lifting trash barrels, or engaging in any other activities inconsistent
with a back injury has value as a potential litigation tool. Similarly, if the employee
claims to be housebound by injury, observations of the employee simply running
errands out of the house will serve to contradict that allegation and support any med-
ical evidence that disputes the extent of the claimed disability. The value of these
observations will be enhanced the more frequently they are made.
§ 12.2.13 Investigation of Prior Claims

Many insurers and self-insurers are members of claims index services. These ser-
vices maintain records of claims of work-related accidents, motor vehicle accidents,
and other general liability injuries. If provided with the employee’s personal infor-
mation, these services can provide information about prior claims by the employee or
someone with a similar name, such as a family member. The information will often
describe the nature of the claimed injury, the date it occurred, the employer or tort-
feasor, and the insurance company that administered the claim. This information may
be useful if it reveals similar injuries that predate or postdate the one you are defend-
ing. Prior injuries involving the same or similar body parts may give rise to a defense
pursuant to Section 1(7A). Subsequent injuries to the same body parts may serve to
break the chain of causation between the claimed injury and the employee’s medical
condition at the time of the DIA proceedings. The insurer administering another
claim may be of assistance in sharing information that may be relevant to your de-
fense. The option of requesting a subpoena for the production of the claim file is also
opened to you once its existence has been confirmed.

§ 12.2.14 Requests for Production of Documents and Requests

to Enter Premises
One of the few discovery tools available to you in the early stage of a claim is a re-
quest for production of documents pursuant to 452 C.M.R. § 1.12(2). A prerequisite
is the filing of a claim or a complaint to reduce the employee’s benefits. Once the
prerequisite has been met, you can request medical notes and treatment reports from
either the employee or his or her medical provider, as well as information regarding
wages the employee has earned since the date of the accident. The employee can
seek the same information from your client, in addition to employment records, in-
cluding records of wages earned subsequent to the injury at issue in the claim.
Practice Note
It is strongly recommended that you attempt to obtain medical records
through this process before arranging an independent medical examina-
tion if updated records are not otherwise available.
The regulations prescribe how the request for production of documents should be
worded: that a statement of relevance of each of the requested items should be in-
cluded and that the method of inspecting the requested items should be detailed with
specificity. The party receiving the request is allowed twenty days to respond. The
regulations also prescribe the components of the response, including the require-
ments for an objection to a request. An objection and the reason for it must be raised
in the response. 452 C.M.R. § 1.12(3). Specific objections are not identified by the
regulations. The range of objections available should mirror those available in civil
actions, including but not limited to relevance, privilege, and the breadth of the re-
quest. You may be called on to either initiate or respond to such requests. A party’s
failure, refusal, or objection to respond to a request may later be addressed by an
administrative judge once one has been assigned. 452 C.M.R. § 1.12(4)(b). Section
1.12(4)(b) of the DIA’s adjudicatory rules, which was revised in 2009, sets forth pro-
cedures for the filing of discovery motions.
The employee may request permission to enter the employer’s premises to inspect
the area where the injury occurred, including any of the objects that may have been
involved in the incident. 452 C.M.R. § 1.12(1).
Practice Note
Be aware that the inspection is not limited to the investigation of a poten-
tial third-party action. The regulations assume this premise, but there are
no regulatory or statutory prohibitions against using this inspection to de-
velop a claim for double compensation benefits under G.L. c. 152, § 28.
Prior to any inspection requested by the employee, you should consult directly with
the employer about the request, ask to view in advance the site specified by the em-
ployee’s request, and recommend that the employer or his or her designee attend the
inspection as well. If there is reason to suspect that a claim for enhanced benefits
pursuant to Section 28 is being investigated, it is advisable to explain to the employer

the effect of the success of such a claim. The option of having an attorney represent-
ing the employer present at the inspection should be offered.
Judicial Commentary
Judges obtain jurisdiction over cases when they are assigned for confer-
ence, some time after the conciliation and well after the claim or the
complaint has been filed. The parties will have to wait to file discovery
motions until a particular judge is assigned to the case, probably when
they receive notice of the conference. However, the parties need not wait
for the assignment of a judge to serve requests for production on one
another.
If the work-related injury has resulted in a third-party claim, several resources will
help you pursue the complaint, the tracking order, and the discovery documents. The
complaint and the tracking order will be available from the office of the clerk in the
venue chosen by the employee to file the civil action. Discovery documents can be
requested from employee counsel if he or she represents the employee in both fo-
rums. Although such a request is not sanctioned by the regulation discussed previ-
ously, most administrative judges will at least entertain a motion to compel produc-
tion of documents of this type on a showing of relevance or other good cause. The
foundation for such a motion should be laid as early in the proceeding as possible. In
certain types of claims, asbestos-related disease claims for example, civil filings and
discovery documents provide a wealth of relevant information.
If your request is refused by employee counsel, consider making an informal request

to the defendant’s counsel in the third-party action. The circumstances surrounding
the incident will dictate whether such a request is prudent. If there is a dispute over
the occurrence of the incident or the injury, your interests and that of the civil de-
fendant may be substantially similar. However, as a potential beneficiary of the suc-
cessful prosecution of the civil action, the interests of your client may be adverse to
those of the civil defendant. Under those circumstances, careful consideration should
be given to whether or how to obtain information about the developing civil action by
you, the insurer (if applicable), and the employer.
§ 12.2.15 Return to Work in the Case of Partial Disability

Where an employee has been determined to be partially disabled by his or her treat-
ing physician, an inquiry should be made to the employer as to whether it would be
possible for the employee to return to work in a lesser capacity until the employee is
ready to return to his or her former duties. The availability of the employee’s former
position or an alternative one should be determined when the treating physician re-
leases the employee to his or her former or modified duties. In the event such options
are available, a written job description must be obtained from the employer. On
receipt, it should be reviewed to see if it generally fits within the restrictions recom-
mended by the treating physician. If so, the insurer may be able to unilaterally mod-
ify or discontinue weekly disability benefits pursuant to Section 8(2)(d). The prereq-
uisites for this step at the preliminary level are

[1] possession of . . . a medical report from the treating physi-

cian . . . [which] indicates that the employee is capable of re-
turn to the job held at the time of injury, or other suitable job
pursuant to section thirty-five D consistent with the employ-
ee’s physical and mental condition as reported by said physi-
cian and . . .
[2] a written report from the person employing said employee

at the time of the injury indicating that such a suitable job is
open and has been made available, and remains open to the
employee.
G.L. c. 152, § 8(2)(d)(i), (ii).
For this offer to be effective, the employer must be willing and able to take the em-
ployee back to work. Whether the employer can continue to offer the alternative posi-
tion to the employee for more than a fixed term will also be a consideration if a dis-
pute arises from a reduction or discontinuance of the employee’s benefits, even
though the statute makes no reference to the duration of a suitable job. The statute
does, however, state that if an employee accepts the offered position but cannot sus-
tain its duties and responsibilities, the employee’s compensation benefits must be
reinstated at their former rate if the return to work lasts less than twenty-eight calen-
dar days and the employee notifies the employer by certified mail within twenty-one
days of leaving the job that the disability from the original injury has left him or her
unable to perform even the modified duties assigned. G.L. c. 152, § 8(2)(c), (d). Ad-
ministrative judges have been skeptical of offers of transitional work of temporary
duration as the basis for unilateral reductions of disability benefits. Ensure from the
outset that the parameters of the position to be offered meet not only the statutory
requirements but also these practical considerations.
Keep in mind that Section 8(2) states that “any termination of an employee within
one year of resumption of work with his prior employer will be presumed to be for
the reason that the employee was physically or mentally incapable of performing the
duties required by the job or that the job was unsuitable for the employee.” The bur-
den of proof to overcome this presumption lies with the employer.
If there is any uncertainty as to whether the job offered comports with the restrictions
recommended by the treating physician, ask the treating physician to review the job
description and give an opinion on its suitability for the patient. If the physician re-
sponds affirmatively, the employer will need to make a written offer of the position to
the employee, if it has not already done so. It is recommended that the offer be sent
by certified mail, return receipt requested. It should be extended for a reasonable
time but with a fixed date by which a response must be received. If the employee
rejects the offer or fails to respond to it by the specified date, the reduction or discon-
tinuance of the disability benefits being paid to the claimant can be implemented.
This action must be reported to the DIA by completion and filing of Form 107 or
108, depending on whether the payments being modified or terminated were being

made without prejudice as defined in Section 8(1) and discussed in § 12.2.4, above.
(Forms 107 and 108 are available online at the DIA’s website.)
Practice Note
If the treating physician fails to respond to the request to comment on the
suitability of the position offered, the efficacy of the request can be en-
hanced by having it reviewed by an independent medical examiner for
endorsement.
The employer may not be willing or able to accommodate the employee’s return. An
employer may not wish to have the injured worker return to its employ. It is not un-
common for ill will to develop between employer and employee over a contested
issue, whether it be the occurrence of an injury or the extent of disability, if any. This
may remove the option of offering alternative duties to the employee from the de-
fense. An employer simply may not be able to offer alternative employment to the
injured employee. The size of the business, seasonal staffing needs, collective bar-
gaining agreements, and other factors may constrain an employer’s ability to offer
work within an employee’s postinjury physical limitations.
Not all employees who are injured during the course of their employment immedi-
ately or necessarily lose their job. This will vary from employer to employer. Section
75A is not a guarantee that the employee’s former position will remain available to
him or her in perpetuity. The application of this section is limited to those who have
“lost a job as a result of an injury compensable under [G.L. c. 152].” The remedy
available to the employee is preference over an applicant for the same position who
has not worked for that employer before. The preference to be extended to the in-
jured former employee is for a “suitable job,” not simply a job. The meaning of the
term “suitable” will certainly be open to differing interpretation by employer and
employee. This issue should not be a component of a dispute within the Department
of Industrial Accidents, as the forum to address such claims is the Superior Court
Department, as prescribed by statute.
§ 12.2.16 Employability Assessment and Labor Market Survey

If it appears that the employee has restrictions that may be permanent or may have an
indefinite effect on his or her earning capacity, an employability assessment and la-
bor market survey may be needed to mitigate the potential exposure to future disabil-
ity benefits. The results of these two procedures usually will produce a list of suitable
alternative employment options for the employee and the basis for choosing them.
A comprehensive survey should contain information on potential earnings, which can
later be used as evidence to establish a theoretical earning capacity.
In order to have an effective employability assessment and, thus, an equally effective

labor market survey, the vocational consultant selected for this task must be given as
much information as possible about the employee. At a minimum, the consultant will
need the employee’s age, educational and employment histories, and those medical
reports that define the disability or restriction he or she is under at the time of the
referral. The employer may be a source of this information if it is not in the claims

file. Ideally, the consultant should interview the employee to obtain details of his or
her vocational background. Interviews of this kind are rare since the end product of
the employability assessment and labor market survey will be used to establish the
basis for the imposition of an earning capacity, which the employee will, in all likeli-
hood, contest. At a minimum, the consultant should personally request permission
for an interview from the employee or the attorney, if one has been retained. This
will enable the consultant to include the response in his or her report and testify
about it at a hearing, if necessary.
Alternative vocational information can come from the records of any ongoing voca-
tional rehabilitation. Caution must be exercised to keep these two vocational analyses
completely independent. The insurer is prohibited by statute from using the fact that
an employee is participating in a vocational rehabilitation program as a basis for re-
ducing his or her compensation benefits. G.L. c. 152, § 35D(5). Information generated
by the employee’s participation in a vocational rehabilitation program is reported to
the insurer who pays for the program. Since only the basic vocational information
from that program is needed to establish a starting point for a separate and independ-
ent employability analysis, the insurer is within the bounds of the law to release it to
a vocational consultant. However, the two processes must remain independent. They
should be undertaken by different providers who should not collaborate on any part
of their analyses. If, for example, the vocational rehabilitation provider should be
asked by the Office of Education and Vocational Rehabilitation to assist the employee
in job placement, the results of that task should not be incorporated into the employ-
ability assessment or the labor market survey.
§ 12.2.17 Unemployment Benefits in the Case of Partial Disability

Where an employee is already receiving partial disability benefits pursuant to Section
35, the insurer may request that he or she apply for unemployment benefits. On re-
ceipt of such a written request, the employee must apply within sixty days or risk
suspension of benefits. The insurer is allowed to take credit for unemployment bene-
fits received during a period of time in which partial disability benefits had already
been paid. G.L. c. 152, § 36B(2).
§ 12.2.18 Alternatives to Litigation

Even at these early stages of a proceeding, alternatives to litigation should consid-
ered. The evaluation of a claim or a complaint to reduce an employee’s benefits may
suggest opportunities for agreement or compromise of issues that were revealed by
your initial evaluation of the dispute. Opportunities to narrow the issues in dispute
should be fully explored to evaluate their viability and desirability to your client. A
dispute that can be adjusted in an agreeable manner at the initial stage of a proceed-
ing may ultimately prove to be the most cost-effective solution. If there is sufficient
information available on which to base a recommendation for such an alternative, the
fact that a proceeding has only just commenced should not be an impediment to its
creative adjustment or resolution. Identifying those options is a skill that will be

developed as your knowledge of the law and practice experience grow with each
claim defended.
Agreements made under the terms of Section 19 may enable the employer to reach a
compromise that satisfies the employee yet retains some protection for the employer.
An employer who has met the requirements of Section 8(1) may agree to pay the
compensation benefits claimed without accepting liability for the work-related injury.
This option may extend to agreements that are reached after an employer that has
complied with Section 8(1) subsequently terminates or modifies the payment of ben-
efits pursuant to that section. Conceptually, this option extends through the filing of a
conference order finding liability, so long as that order is timely appealed. If ap-
proved by the DIA, a Section 19 agreement may enable the employer to avoid liabil-
ity for the full range of benefits that could have been available to the employee if the
claim had been accepted or if liability had been conclusively established by adjudica-
tion within the DIA.
Agreements on the amount or type of benefits to be paid may be effective in certain

circumstances even though they may not foreclose future claims for additional bene-
fits. For example, it may be possible to compromise a claim for past medical treat-
ment by agreement. It is not possible to foreclose a future claim for the same type of
treatment, however. Similarly, the parties may agree to an employee’s earning capac-
ity. Nevertheless, either party is free to seek modification of the agreed earning ca-
pacity subsequent to the agreement’s approval.
Drafting agreements that seek to limit or foreclose the right of the employee to claim
future benefits is challenging. The agreement can neither contravene Section 7 nor
violate Section 48. There remains a wide range of issues that can be creatively ad-
dressed by a Section 19 agreement within these parameters. The key to obtaining
DIA approval is supporting the basis for the agreement in written form and incorpo-
rating documents that lend credence to the compromise reached by the parties.
Judicial Commentary
Parties should always be mindful of the opportunities they have to volun-
tarily resolve their disputes. Exploring such opportunities and explaining
to the clients the benefits of controlling the outcome of the case through
a negotiated resolution are important aspects of a lawyer’s representa-
tion of his or her client. These efforts can be undertaken at all junctures
in the litigation process.

ü CHECKLIST 12.1
Initial Interview
1. Background Information
q Full name
q Complete address
q Marital status and number of children
q Age and date of birth
q Social Security number
q Military service record/status
q Health insurance information
q Short-term/long-term disability insurance Information
q Educational background
q Language skills
q Prior work experience
q Prior injuries/illnesses or claims
q Existence of potential liens
2. Information Regarding Current Injury
q Employer information
q Occupation
q Length of employment
q Average weekly wage
q Weekly compensation rate
q Union involvement
q Concurrent employment

q Date of injury
q Nature of injury
q Cause of injury
q Reporting of injury
3. Medical Information
q Doctors’ names and addresses
q Other medical providers
4. Insurance Information
q Name of insurer
q File (claim) number
q Claims representative
q Insurer’s physician exams
5. Other Considerations
q Available workers’ compensation benefits
q Section 34
q Section 35
q Section 34A
q Section 36
q Medical benefits
q Vocational rehabilitation
q Cost-of-living Allowance (COLA) adjustments
q Section 31
q Section 28
q Other available benefits
q Social Security Disability Insurance
q Supplemental Security Income

q Short-term/long-term disability
q Welfare (i.e., Transitional Assistance)
q Veterans’ Services
q Attorney fees
q Statute of limitations
q Potential third-party claims
q Uninsured employers
q Jurisdictional issues

ü CHECKLIST 12.2
Filing
1. Preliminary Process
q Obtain necessary medical documentation
q Hospital records
q Office notes
q Reports of diagnostic studies
q Witness statements
q Obtain information from insurer file
q First Reports of Injury
q Applicable DIA filings
q Signed/recorded statements of employee
q Independent medical exam reports
q Wage schedules
q Request for Production of Documents
2. Filing the Claim
q Initial considerations
q At least five days of lost earnings
q Less than twenty-one days of disability—paid from sixth day to date of

return to work
q Twenty-one days or over—paid from first day of disability
q File claim after thirty days from date of injury or after receipt of denial
from insurer
q Procedure
q Form 110

q Copy to insurer by certified mail
q Claim for benefits accompanied by supporting medical documentation
q Claim for medical services accompanied by supporting medical docu-

mentation and notice of Utilization Review denial
q Claim for Section 36 benefits accompanied by medical documentation

and specific dollar amount claimed

EXHIBIT 12A—DIA Form 115 (Third Party Claim/

Notice of Lien)

THIRD PARTY CLAIM / NOTICE OF LIEN
INSTRUCTIONS AND DEFINITIONS
Pursuant to M.G.L. c. 152:
LIEN - a lien may be filed by any party, business, organization or governmental

agency that is owed monies for the following reasons including, but not limited to,
unpaid legal bills, non-payment for services rendered, unpaid taxes, cash assistance
for medical payments related to a compensable injury by the Division of Medical
Assistance, and back child support.
CLAIM (THIRD PARTY) - A Third Party Claim may be filed by a medical profes-
sional or other service provider when payment for services directly related to a com-
pensable injury has been denied by an insurer.
INSTRUCTIONS - This form should be filled out by third parties only when
monies are owed under the definitions stated above. You must fill out the boxes
in the “Third Party” and “Employee” sections to the best of your knowledge,
but the employee name and address are required. If a lien is necessary, you
should fill out box 13 only under the “Benefits or Services” section. If you are
filing a third party claim, you should fill out box 14 only under the “Benefits or
Services” section. DO NOT FILL OUT BOTH BOXES!
Please note: A hearing pursuant to M.G.L. c 152 §46A must be scheduled, and
approved, at the DIA for final lien discharge.
10 (1) states for an attorney fee to be due under Sec. 13A “such claim shall have
been sent to the insurer by certified mail”. Also in order for any attorney’s fee to
be due for services involving a claim for health care services, such claim shall
include a copy of any relevant bill and a description from the health care pro-
vider of the services rendered.

EXHIBIT 12B—Insurance Inquiry Form

THE COMMONWEALTH OF MASSACHUSETTS
EXECUTIVE OFFICE OF LABOR & WORKFORCE DEVELOPMENT
DEPARTMENT OF INDUSTRIAL ACCIDENTS
DEVAL L. PATRICK OFFICE OF INSURANCE GEORGE E. NOEL

Governor INSURANCE REGISTER Director
(617) 626-5480 or (617) 626-5481
RACHEL KAPRIELIAN
Secretary INSURANCE INQUIRY FORM
Use this version for a mailed in or faxed (617-624-0985) submission. Responses to faxed re-
quests cannot be faxed back. Use the online version if your e-mail account does not have an
attachment filter. (Revised 11/2014)
Please fill out this form legibly, and remember to enter your mailing address at the bottom to
receive our researched response.
If the employer name is incorrect, insurance information may not be found. Take the employer
name from a payroll, income tax or social security document issued during the calendar year
within which the injury occurred.
COMPANY NAME(s)
ADDRESS
WHAT IS ANOTHER NAME UNDER WHICH THE COMPANY COULD BE

OPERATED?
DATE OR PERIOD OF INJURY
HOW LONG HAS THE COMPANY BEEN IN BUSINESS?

WORKERS COMPENSATION INSURANCE INFORMATION SHOULD BE
REQUESTED FROM THE EMPLOYEE'S COMPANY FIRST. CALL AND ASK TO
SPEAK WITH THE APPROPRIATE PERSON AT THE COMPANY WHO WOULD HAVE
THE KNOWLEDGE OF THIS INFORMATION
IF INSURANCE INFORMATION CANNOT BE FOUND FOR THE EMPLOYER NAME

SUBMITTED, SUCH A FINDING DOES NOT NECESSARILY MEAN THAT THE
ENTITY WAS NOT OR IS NOT INSURED.
YOUR NAME AND ADDRESS (TO MAIL BACK THIS FORM TO YOU):

EXHIBIT 12C—Insurer Request Certification Form

THE COMMONWEALTH OF MASSACHUSETTS
EXECUTIVE OFFICE OF LABOR & WORKFORCE DEVELOPMENT
DEVAL L. PATRICK GEORGE E. NOEL

Governor Director
RACHEL KAPRIELIAN
Secretary
PROCESS FOR SUBMITTING

INSURER REQUEST CERTIFICATION FORM
Use this version for a mailed in or faxed (617-624-0985) submission. Responses to

faxed requests cannot be faxed back. Use the online version if your e-mail account
does not have an attachment filter. Also be advised that any returned online version in
need of adjustment requires that a new online form be completely filled out and sub-
mitted with the requested adjustment incorporated into it.
1. Print and then fill out the Insurer Request Certification Form that follows.
2. Forward that form to Thomas Finneran at the address indicated at the bottom of
the form, or fax it to his attention.
3. If the form has been completed correctly and no coverage is found for the submit-
ted employer name, then a letter will be sent to the submitter’s office certifying that
name as uninsured, along with an Affidavit of Employee In Application For Trust
Fund Benefits document for the employee/claimant to fill out.
4. Attach the Certification Letter, the completed Affidavit (Form 170) and the original
(or a completed) Employee Claim (Form
110) and forward to:
OFFICE OF CLAIMS ADMINISTRATION

1 CONGRESS STREET, SUITE 100
BOSTON, MASSACHUSETTS 02114-2017
1 Congress Street, Suite 100, Boston MA 02114

Tel. # (617) 727-4900 - www.mass.gov/dia

INSURER REQUEST CERTIFICATION

1
I, , certify that the following attempts were made to
(Employee Attorney)
to obtain insurer information
(Employer & Employer’s Address)
regarding the claim of , an employee of that organization,
(Employee)
and that to the best of my knowledge no insurance coverage was in force for that
company on
(Date of Injury)
2
The following corporate officers/owners were contacted:
NAME/TITLE PHONE DAY/DATE/TIME
3
( ) I did approach the place of business.
( ) I did not approach the place of business. Why not?
4
( ) The employee requested the information from his/her employer.
What was he/she told?
By whom?
( ) The employee did not request the information from his/her employer.
Why not?
All sections of this form must be completed. Any exclusions and/or deletions will be
cause for return of the claim application and delay in processing.
5.
Employee Attorney
Attorney Address & Telephone Number
Claimant

EXHIBIT 12D—DIA Form 114 (Notice of Change/

Appearance of Counsel)

EXHIBIT 12E—DIA Form 110 (Employee’s Claim)


EXHIBIT 12F—DIA Form 104 (Insurer’s Notification

of Denial)

INSURER’S NOTIFICATION OF DENIAL
FILING INSTRUCTIONS
1. WHEN TO FILE: File this form within 14 days of the Insurer’s receipt of the
Employer’s First Report of Injury (Form 101) or a written claim for weekly benefits
on a form prescribed by the Department (Form 110) pursuant to M.G.L. c. 152,
§7(1).
2. WHERE TO FILE: This form should be mailed to the DIA at the address shown
on the front of the form. Copies of this form must be provided to the Employer, and
sent to the Employee via certified mail.

EXHIBIT 12G—DIA Form 126 (Employee’s Earning

Report)


Workers' Compensation Practice: Initial Steps in Representing Claimants, Employers, and Insurers

Uploaded by

Document Information

Original Description:

Original Title

Copyright

Available Formats

Share this document

Share or Embed Document

Sharing Options

Did you find this document useful?

Is this content inappropriate?

Copyright:

Available Formats

Workers' Compensation Practice: Initial Steps in Representing Claimants, Employers, and Insurers

Uploaded by

Copyright:

Available Formats

CHAPTER 12

Workers’ Compensation Practice:

§ 12.1 Initial Steps in Representing Claimants .................................. 12–1

MCLE, Inc. | 6th Edition 2017 12–i

§ 12.2 Initial Steps in Representing Employers and Insurers ........ 12–18

CHECKLIST 12.1— Initial Interview ................................................ 12–34

CHECKLIST 12.2—Filing ................................................................... 12–37

EXHIBIT 12A—DIA Form 115 (Third Party Claim/

EXHIBIT 12B—Insurance Inquiry Form ........................................... 12–41

EXHIBIT 12C—Insurer Request Certification Form ....................... 12–42

EXHIBIT 12D—DIA Form 114 (Notice of Change/Appearance

EXHIBIT 12E—DIA Form 110 (Employee’s Claim) ......................... 12–45

12–ii 6th Edition 2017 | MCLE, Inc.

EXHIBIT 12F—DIA Form 104 (Insurer’s Notification of Denial) .... 12–47

EXHIBIT 12G—DIA Form 126 (Employee’s Earning Report)......... 12–49

MCLE, Inc. | 6th Edition 2017 12–iii

12–iv 6th Edition 2017 | MCLE, Inc.

Workers’ Compensation Practice:

§ 12.1 INITIAL STEPS IN REPRESENTING CLAIMANTS

MCLE, Inc. | 6th Edition 2017 12–1

§ 12.1.2 Initial Interview

12–2 6th Edition 2017 | MCLE, Inc.

(b) Background Information

2. Complete address (mailing and residential).

4. Age and date of birth.

6. Military service record/status. This is important to obtain as the claimant may

MCLE, Inc. | 6th Edition 2017 12–3

7. Health insurance information. Such information is vital when the workers’

8. Short-term/long-term disability insurance information. The claimant may be

9. Educational background. Obtain a complete listing of all schools attended by

12–4 6th Edition 2017 | MCLE, Inc.

(c) Employment and Injury

MCLE, Inc. | 6th Edition 2017 12–5

3. Length of employment. Determine the approximate starting date of employ-

Furthermore, be aware of the minimum weekly compensation rate. The minimum

6. Union involvement. Inquire whether the claimant is a member of a union. Often

12–6 6th Edition 2017 | MCLE, Inc.

9. Nature of injury. Obtain as much detail as possible concerning the claimant’s

MCLE, Inc. | 6th Edition 2017 12–7

(d) Medical Information

(e) Insurance Information

12–8 6th Edition 2017 | MCLE, Inc.

3. Claims representative. Again, this information is usually contained in any cor-

§ 12.1.3 Other Considerations in the Initial Interview

(a) Available Workers’ Compensation Benefits

MCLE, Inc. | 6th Edition 2017 12–9

6. Vocational rehabilitation benefits. In certain circumstances, the claimant may

7. Cost-of-living allowance (COLA) adjustments. The receipt of certain benefits

12–10 6th Edition 2017 | MCLE, Inc.

8. Section 31 benefits. Dependents of workers who die as the result of an industrial

(b) Other Available Benefits

1. Social Security Disability Insurance Benefits (SSDIB). The claimant may be

2. Supplemental Security Income (SSI). Another benefit available through the

MCLE, Inc. | 6th Edition 2017 12–11

3. Short-term and long-term disability. As previously discussed, the claimant’s

(c) Attorney Fees

(d) Statute of Limitations Concerns

12–12 6th Edition 2017 | MCLE, Inc.

(e) Identifying Potential Third-Party Claims

(f) Uninsured Employers

a. the nature of the work performed;

b. whether the owner provided tools and materials;