In Bailey v. SAIF, 296 Ore. 41, 672 P.2d 333 (1983), the court interpreted ORS 656.295(5) to require a two-step process: "First, the Board reviews the record, as defined, and determines whether the case has been 'improperly, incompletely or otherwise insufficiently developed.' Second, if this question is resolved in the affirmative, the Board exercises its discretion to determine whether to remand the case." Id. at 44.