Substantial Evidence and Harmless-Error Doctrine Affirmed in Alaska Workers’ Compensation Appeals

Introduction

This commentary examines the Supreme Court of Alaska’s April 23, 2025 Memorandum Opinion in Jennifer Fletcher v. Pike’s on the River, Inc. and Republic Indemnity Company of America. That decision concerns an injured restaurant server’s claim for continued medical coverage and disability benefits under Alaska’s workers’ compensation statutes. Fletcher injured multiple joints when she fell down stairs in 2013, sought ongoing physical therapy and other care for over five years, and then attempted to recover those costs from her employer and its insurer. The Workers’ Compensation Board denied her claims and the Appeals Commission affirmed. On appeal to the Supreme Court, the key issue was whether the Board’s factual findings were supported by substantial evidence and whether any procedural errors were harmless.

The parties are Jennifer Fletcher (Appellant, pro se), Pike’s on the River, Inc. (Employer), and Republic Indemnity Company of America (Insurer). The Board and the Commission both ruled against Fletcher. The Supreme Court, in a memorandum decision (which by rule does not create binding precedent), affirmed because it found substantial evidence supported the Board’s denial of benefits and any discovery/evidentiary rulings were harmless.

Summary of the Judgment

The Supreme Court’s opinion summarizes the procedural history and factual background, then applies the substantial evidence standard to uphold the Board’s decision. Key holdings include:

The Board acted within its discretion under 8 AAC 45.120 by admitting and weighing Dr. John Swanson’s orthopedic Independent Medical Examination (EME) report. The Appellant’s request to “preclude” that evidence was properly denied.
Fletcher’s motion to compel production of Dr. Swanson’s other case files failed because those documents were not in the employer’s possession, custody, or control.
Substantial evidence—primarily the opinions of Dr. Swanson and employer‐selected SIME Dr. Marvin Zwerin—supported the Board’s finding that Fletcher’s work‐related injuries reached medical stability by mid-2014 and that further therapy was palliative, not compensable.
Any procedural errors in discovery or exclusion requests were harmless because Fletcher had ample opportunity to cross‐examine Dr. Swanson and the Board still credited his opinions as the most credible.

Analysis

Precedents Cited

State v. Jacob, 214 P.3d 353 (Alaska 2009) – reviewed de novo the waiver rule for failure to preserve requests for enhanced fees, applied here in analyzing procedural preservation.
Mitchell v. United Parcel Service, 498 P.3d 1029 (Alaska 2021) – clarified that this Court reviews Commission decisions independently but defers to factual findings supported by substantial evidence; cited to frame standard of review.
Smith v. CSK Auto, Inc., 204 P.3d 1001 (Alaska 2009) – substantial evidence standard in workers’ compensation appeals.
Smallwood, 550 P.2d 1261 (Alaska 1976) – right to cross‐examine authors of medical reports; cited indirectly in analyzing admissibility under 8 AAC 45.120 and cross‐examination rights.

Legal Reasoning

The Court applied these principles:

Admissibility vs. Weight. Under 8 AAC 45.120(e), “any relevant evidence is admissible if it is the sort of evidence on which responsible persons are accustomed to rely.” Dr. Swanson’s EME report plainly met that test. Any dispute over his expertise or minor factual errors went to weight, not admissibility.
Possession, Custody, or Control. Civil Rule 34(a) limits document requests to those in the party’s possession. The Board reasonably denied Fletcher’s motion to compel production of Dr. Swanson’s other case files because Pike’s did not control those records.
Substantial Evidence. The only significant conflict between Dr. Swanson and Dr. Zwerin concerned the date of medical stability—one year vs. two years post-injury—but both concluded the injury was medically stable well before 2022 and further treatment was palliative. The Board credited that view and denied compensable medical benefits after mid-2014. Substantial evidence supports that finding.
Harmless Error. Even if the Board had made technical missteps in prehearing rulings, Fletcher had a full opportunity to confront her critics in live testimony. Any error could not have affected the outcome under the harmless-error doctrine.

Impact

Although this is a memorandum decision without binding precedential effect, it underscores important lessons for Alaska workers’ compensation practice:

Parties may not exclude expert medical reports simply by labeling portions as beyond expertise or unsupported—those are weight issues for the Board to resolve.
Discovery in workers’ compensation is confined to materials within a party’s custody or control. Third- party records remain beyond reach.
The substantial evidence standard remains stringent: a reasonable mind could accept the opinions of employer‐selected examiners as a basis for denial of benefits.
Harmless-error analysis protects final decisions from reversal when any procedural misstep did not prejudice an appellant’s rights.

Complex Concepts Simplified

Substantial Evidence: Evidence that a reasonable mind might accept as adequate to support a conclusion. It is a low threshold requiring only “some evidence” rather than proof beyond a reasonable doubt.
Medical Stability: The point after which no further objectively measurable improvement is expected from additional treatment for the work‐related injury. In soft-tissue cases, stability is often presumed after 45 days, and examiners may rebut with clear and convincing evidence.
Palliative Care: Treatment intended only to reduce pain temporarily, not to cure or permanently alleviate the underlying condition. After medical stability, employers owe only palliative care, which may be limited by statute.
EME & SIME: Employer’s Medical Examination (EME) and Second Independent Medical Examination (SIME) are statutorily authorized evaluations by physicians chosen by the employer or jointly. Their reports often drive contested workers’ compensation disputes.

Conclusion

The Supreme Court of Alaska’s memorandum opinion in Fletcher reaffirms the broad discretion of the Workers’ Compensation Board in weighing conflicting medical evidence, confines discovery to a party’s own files, and applies a harmless-error analysis to procedural rulings. While not binding precedent, the decision offers valuable guidance on how Alaska’s workers’ compensation tribunals evaluate expert reports, enforce the possession-custody-control standard, and sustain denials of ongoing benefits when employer‐selected examiners find medical stability. Practitioners can rely on these principles to frame future benefit disputes, anticipate evidentiary challenges, and manage effective cross-examination of experts.

Substantial Evidence and Board Discretion in Alaska Workers’ Compensation Appeals