[112]*112WARREN, J.
Claimant seeks review of an order of the Workers’ Compensation Board, affirming the suspension of his temporary total disability benefits under ORS 656.325 and the administrative rules adopted thereunder, because claimant failed to attend a medical examination scheduled for him by SAIF. Claimant contends that the suspension was unlawful, because he had notified SAIF of a valid reason why he would not be able to attend the scheduled examination. He also contends that the procedures employed by the Workers’ Compensation Department (Department) under ORS 656.325 and OAR 436-54-281 and 436-54-283, which allowed it to suspend his benefits without providing him with notice and an opportunity for a hearing before the suspension, violated his right to due process of law under the United States and Oregon Constitutions. We reverse.
In December, 1979, claimant sustained injuries to his spine in the course and scope of his employment. The claim was accepted, and SAIF began paying him temporary total disability compensation on December 17, 1979. Claimant, a Eugene resident, became a patient of a Eugene orthopedic surgeon, who eventually requested that SAIF refer him to another physician because he had missed several appointments. SAIF scheduled an appointment with another Eugene physician, who reviewed the medical records and informed SAIF that he did not want to treat claimant.
On May 16, 1980, SAIF sent claimant a notice of appointment for the examination at issue. The notice informed him that he was scheduled for an examination by Orthopaedic Consultants in Portland on June 5, 1980, and that his failure to keep the appointment without notifying SAIF before the appointment of a valid reason why he could not attend would result in suspension of compensation under ORS 656.325 and OAR 436-54. The purpose of the examination was to determine the type of treatment claimant required, whether he was medically stationary and when he could return to work.
By letter dated May 19, 1980, claimant’s attorney informed SAIF that'claimant’s wife was due to have a baby on June 5 and requested that the appointment be rescheduled for some time after July 1,1980. SAIF told claimant’s attorney by [113]*113phone on June 2,1980, and by letter dated June 5,1980, that it insisted that claimant keep the appointment.
On June 4,1980, claimant’s attorney called SAIF and reported that claimant’s wife was enroute to the hospital to give birth. SAIF responded that, if the baby was born at a reasonable hour on June 4, claimant must keep the appointment. SAIF’s claims representative attempted to verify that claimant’s wife had been admitted to a hospital. Although the claims representative did not know the wife’s name or her obstetrician’s name, she called all of the hospitals in the Eugene area that she believed had obstetrical departments on June 4 and 5, 1980, and was told that no Mrs. Carr had been admitted. On June 5,1980, she verified that claimant did not keep his appointment. On June 6, 1980, the claims representative called claimant’s attorney, who said that he had been unable to contact claimant to determine what hospital his wife had entered and whether she had given birth. The claims representative told the attorney that SAIF intended to petition the Department for suspension of compensation. Later that day, the claims representative tried unsuccessfully to contact claimant.
On June 6, 1980, SAIF petitioned the Department’s Compliance Division for suspension of benefits in a letter that stated most of the facts discussed above. On June 18, 1980, SAIF’s claims supervisor called the attorney to inquire whether claimant’s wife had given birth. He said that she had not. An assistant claims supervisor of the Division processed the petition. Her inquiry consisted of a call to Orthopaedic Consultants to verify that claimant failed to keep his appointment and a call to SAIF on June 24, 1980, to verify that claimant’s wife had not yet given birth.
On the basis of those two calls and the information contained in the petition, the Division decided to suspend compensation. The assistant claims supervisor informed claimant of the decision by a letter dated June 24,1980, which stated, in part:
“On June 4, 1980 your attorney advised State Accident Insurance Fund that your wife was on the way to the hospital to await delivery of her baby.
“State Accident Insurance Fund advises that upon making a check with all of the hospitals in your area there is no record [114]*114for the admittance of your wife to any of the local hospitals. They also advise that your wife has not yet delivered the baby.
“Therefore I find no valid reason available to me to indicate you could not attend the June 5, 1980 examination with Orthopaedic Consultants.
“The Department, pursuant [to] ORS 656.325 and OAR 436.54, [sic] has no alternative but to give State Accident Insurance Fund authorization to suspend your compensation as of June 5, 1980. The suspension may continue until such time as you have notified them of your agreement to be examined, and in fact, submit to an examination by [a] physician designated by them. * * *” (Emphasis supplied.)
On June 27, 1980, claimant requested a hearing on the suspension. On September 5, 1980, a hearing began concerning three issues relevant to claimant’s compensation, including whether the suspension was reasonable. On February 20, 1981, another hearing was held, and by May 8, 1981, the parties filed written arguments on the three issues. On May 22, 1981, the referee issued his opinion and order. He affirmed the Division’s decision to suspend compensation and refused to consider claimant’s constitutional challenge.1 The Board affirmed the referee, and claimant filed this appeal.
The first question is whether the Division’s decision to suspend compensation under ORS 656.325 and OAR 436-54-281 and 436-54-283 was arbitrary or unreasonable. It is clear from the record that SAIF and the Division followed the applicable statutory and regulatory procedures. We do not address the reasonableness of those procedures. The narrow focus of our inquiry is whether, on the basis of the facts the Division had before it through those procedures, the substance of its decision that claimant had no valid reason for missing his appointment was arbitrary or unreasonable. We have reviewed the record and conclude that the Division’s decision was not arbitrary or unreasonable.
The other and quite different issue is whether the procedure used by the Division under ORS 656.325 and OAR 436-54-281 and 436-54-283, which allowed it to suspend claimant’s benefits without providing him with notice and an [115]*115opportunity to be heard before the suspension, deprived him of his right to procedural due process under the Fourteenth Amendment and the “due course of law” provision of Article I, section 10, of the Oregon Constitution. The procedural due process protection of the “due course of law” provision is essentially the same as that of the Fourteenth Amendment. Tupper v. Fairview Hospital, 276 Or 657, 664 n 2, 556 P2d 1340 (1977).2 This issue, therefore, involves three questions: whether claimant had a constitutionally significant interest in his temporary total disability benefits, whether the deprivation of the interest involved government action and whether the procedures employed by the Division were constitutionally adequate.
ORS 656.325(1) provides, in relevant part:
“Any worker entitled to receive compensation under ORS 656.001 to 656.794 is required, if requested by the director, the insurer or self-insured employer, to submit to a medical examination at a time and from time to time at a place reasonably convenient for the worker and as may be provided by the rules of the director. * * * If the worker refuses to submit to any such examination, or obstructs the same, the rights of the worker to compensation shall be suspended with the consent of the director until the examination has taken place, and no compensation shall be payable during or for account of such period.”
OAR 436-54-283(2) requires that SAIF notify a worker ten days before the examination of its purpose, date, time and place and that the notice include the following paragraph in bold-face type:
“ATTENDANCE OF THIS EXAMINATION IS MANDATORY. YOU ARE RESPONSIBLE FOR NOTIFYING [116]*116US PRIOR TO THE DATE OR TIME OF THE EXAMINATION OF ANY VALID REASON WHY YOU CANNOT ATTEND AS SCHEDULED. FAILURE TO ATTEND THIS EXAMINATION, OBSTRUCTION OF SAME, OR AN INVALID REASON FOR NOT ATTENDING SHALL RESULT IN SUSPENSION OF YOUR COMPENSATION BENEFITS PURSUANT TO ORS 656.325 AND OAR 436-54.”
OAR 436-54-281 gives the Division the authority to issue orders of consent to suspend compensation if a worker fails to attend the examination. OAR 436-54-283(5) describes the required contents of SAIF’s application to the Division *for suspension of compensation:
“The insurer or self-insured employer requesting consent to suspension of compensation because of a worker’s failure or refusal to submit to a medical examination, or obstruction of same, shall apply to the Compliance Division. The application in letter form shall contain the following information:
“(a) consent for suspension of compensation is requested pursuant to ORS 656.325 and OAR 436-54;
“(b) what the worker was requested to submit to;
“(c) whether the attending physician was consulted to choose a mutually agreeable examining physician;
“(d) that the worker failed or refused to be examined and did not advise of any valid reason why the examination could not be attended as scheduled; (If a reason was provided but is considered invalid, explain.)
“(e) the date that verification of failure to attend was obtained from the examining physician, facility or their staff; (Any delay in obtaining verification or in requesting consent for suspension of compensation may result in authorization being denied or the date of authorization be modified by the date of actual verification or the date the request is received by the Compliance Division.)
“(f) the date, time and place of any rescheduled examination; and
“(g) any pertinent information that supports the request for suspension of compensation.”
Under the statutory system and the rules, a claimant’s compensation is suspended for the period between the date of the scheduled examination that he does not attend and any rescheduled examination that does take place. If the [117]*117suspension is valid, benefits for that period are forfeited and are not recoverable retroactively.
The first issue is whether claimant had a constitutionally significant interest in his temporary total disability benefits. “The requirements of procedural due process apply only to the deprivation of interests encompassed by the Fourteenth Amendment’s protection of liberty and property.” Board of Regents v. Roth, 408 US 564, 569, 92 S Ct 2701, 33 L Ed 2d 548 (1972). Interests encompassed by the Fourteenth Amendment’s protection of property include interests in tangible property, e.g; Fuentes v. Shevin, 407 US 67, 92 S Ct 1983, 32 L Ed 2d 556 (1972), and certain interests in benefits, Slochower v. Board of Education, 350 US 551, 76 S Ct 637, 100 L Ed 692 (1956) (tenured professor’s interest in continued public employment).
In Roth, the Court analyzed the nature of these interests in benefits that are protected by the Fourteenth Amendment:
“* * * To have a property interest in a benefit, a person clearly must have more than an abstract need or desire for it. He must have more than a unilateral expectation of it. He must, instead, have a legitimate claim of entitlement to it.
“Property interests, of course, are not created by the Constitution. Rather, they are created and their dimensions are defined by existing rules or understandings that stem from an independent source such as state law — rules or understandings that secure certain benefits and that support claims of entitlement to those benefits. * * *” 408 US at 577.
Using this analysis, the Court has held that the requirements of procedural due process apply to the termination of Social Security disability benefits, Mathews v. Eldridge, 424 US 319, 96 S Ct 893, 47 L Ed 2d 18 (1976), and welfare benefits, Goldberg v. Kelly, 397 US 254, 90 S Ct 1011, 25 L Ed 2d 287 (1970), because the recipients’ claims of entitlement to the benefits were grounded in the statutes defining eligiblity for them.
The nature of claimant’s interest in workers’ compensation benefits here differs in one respect from the recipients’ interests in Mathews and Goldberg, where the benefits were paid directly by the government. Claimant’s entitlement [118]*118to workers’ compensation benefits derives from the requirement of state law directing that employers provide specific benefits for injured workers. ORS 656.017. Eligibility for such benefits is defined by state law. There is no dispute that claimant incurred a “disabling compensable injury” under ORS 656.005(8) and was entitled to “temporary total disability” benefits under ORS 656.210. He was entitled to receive those benefits until it was determined that his disability was permanent, ORS 656.268, or no longer total, or that his benefits could be suspended under ORS 656.325. Therefore, even though the benefits are paid by the employer, SAIF or another insurer rather than the state, claimant’s right to continuing benefits, derived from state law, is a property interest encompassed by the Fourteenth Amendment.
A person’s constitutionally significant property interest is protected by the Fourteenth Amendment against governmental rather than private infringement. Flagg Brothers, Inc. v. Brooks, 436 US 149, 156, 98 S Ct 1729, 56 L Ed 2d 185 (1978). The procedural protections of the Fourteenth Amendment apply if the government is overtly involved in a private deprivation of protected property rights. 436 US at 157. See also Fuentes v. Shevin, supra. Under ORS 656.325 and OAR 436-54-281 and 436-54-283, the Workers’ Compensation Department, a state agency, investigates an insurer’s request for suspension of benefits, decides whether suspension is appropriate, and informs the claimants of its decision. The deprivation here is clearly governmental. Because claimant’s interest in his benefits are encompassed by the Fourteenth Amendment, the state, through the Division, could not lawfully deprive him of them without due process of law.
Having decided that due process applies, the question remains what process is due. Except in unusual circumstances,3 due process requires, at a minimum, that a [119]*119governmental deprivation of a property interest be preceded by some form of notice of the contemplated action and some opportunity to be heard informally if the action is contested. Mathews v. Eldridge, supra; Goss v. Lopez, 419 US 565, 95 S Ct 729, 42 L Ed 2d 725 (1975); Goldberg v. Kelly, supra; Tupper v. Fairview Hospital, supra; Hammer v. OSP, 276 Or 651, 556 Pd 1348 (1976). The form of the notice and an opportunity to be heard which is required varies from case to case, depending on the circumstances and interests involved.
“* * * [Identification of the specific dictates of due process generally requires consideration of three distinct factors: first, the private interest that will be affected by the official action; second, the risk of an erroneous deprivation of such interest through the procedures used, and the probable value, if any, of additional or substitute procedural safeguards; and finally, the Government’s interest, including the function involved and the fiscal and administrative burdens that the additional or substitute procedural requirement would entail. * * *” Mathews v. Eldridge, supra, 424 US at 335; see also Tupper v. Fairview Hospital, supra, 276 Or at 662.
The factors to be weighed here are similar to those weighed in Mathews, which involved the termination of disability benefits under the Social Security Act. In 1968, Eldridge began receiving disability benefits, because he could not engage in substantial gainful activity as a result of physical and mental impairment. In 1972, he responded to a detailed questionnaire from the agency administering the Act regarding his condition at that time. On the basis of the questionnaire and reports from Eldridge’s physician and a psychiatric consultant, the agency made a tentative determination that his disability had ceased. Pursuant to administrative rules, the agency sent Eldridge a letter informing him of the proposed termination of benefits, providing a summary of the evidence on which the proposed termination was based and informing him of his rights to review the medical reports and his file and to respond in writing and submit additional evidence. After Eldridge refused to submit additional evidence, the agency made a final determination to terminate benefits. Eldridge brought an action, arguing that due process required a trial-type hearing prior to termination of his benefits. The Court balanced the three factors quoted above and held “that an evidentiary hearing is not required prior to the termination of disability benefits and that the present [120]*120administrative procedures fully comport with due process.” 424 US at 349.
As to the first factor, the Court reasoned that, because the Act provided that a recipient whose benefits were terminated was entitled to full retroactive relief if he ultimately prevailed, his sole interest was in the uninterrupted receipt of his benefits pending final administrative decision on his claim. The Court found that interest to be significant, because a disabled recipient would be unable to ameliorate the interim loss through temporary employment and the delay between termination of benefits and final decision after a post-termination evidentiary hearing exceeded one year. 424 US at 340.
In the case at bar, claimant’s interest in the uninterrupted receipt of temporary total disability benefits is the same as that of the recipient in Mathews, except in one respect. In Mathews, recipients could potentially be without benefits until after final administrative review over one year after termination; here, suspension of benefits lasts only until claimant attends a rescheduled examination. ORS 656.325(1). Although the evidence shows that it was unusually difficult for SAIF to schedule appointments for this claimant, it rescheduled him for an examination only six weeks after the effective date of his suspension. Therefore, although the interest of claimant in temporary total disability benefits is significant, it is generally less than the interest of a recipient in Mathews.
Claimant’s interest in continued benefits is analogous to that of the utility customers in Memphis Light, Gas & Water Div. v. Craft, 436 US 1, 98 S Ct 1554, 56 L Ed 2d 30 (1978), whose utility services were terminated due to nonpayment of a disputed billing charge. The ratepayers were notified before termination that failure to pay the bill by a certain date would result in termination of services. They were not notified of any available pretermination administrative procedure for contesting the proposed termination. In holding that the utility’s actions in terminating service deprived the ratepayers of a property interest without due process, the United States Supreme Court said:
“Utility service is a necessity of modern life; indeed, the discontinuance of water or heating for even short periods of time may threaten health and safety. * * *” 436 US at 18.
[121]*121Here, temporary total disability benefits are designed to provide a substitute for income lost due to a worker’s temporary inability to otherwise provide for himself. Deprivation of compensation, even for a relatively brief period of time, and the resulting possible loss of ability to acquire essential goods and services, may threaten the health and safety of the worker and his dependents.
Concerning the second factor, the Court in Mathews concluded that the risk of an erroneous determination to terminate benefits under the agency’s pretermination procedures was not great. The Court emphasized several bases for that conclusion. First, the determination was based on medical reports written by experts, and generally questions of veracity and credibility were not present. Second, because the notice of the proposed termination contained a summary of the relevant evidence and the recipient had the right to review his file, he could mold his arguments to the precise issues that the decisionmaker regarded as crucial. Third, the recipient’s opportunity to present additional evidence and arguments before termination allowed him to challenge both the accuracy of the information in his file and the correctness of the agency’s tentative conclusion. 424 US at 344.
Like the recipients in Mathews, claimants are entitled to a post-suspension evidentiary hearing. ORS 656.325(6).4 Unlike the extensive pretermination procedures in Mathews that minimized the risk of an erroneous decision to terminate benefits, however, virtually no presuspension procedural safeguards applied to the suspension of benefits here. The only provision for presuspension notice to claimants [122]*122under ORS 656.325 and OAR 436-54-283 is the paragraph in the notice of appointment informing a claimant that failure to attend the examination for an invalid reason will result in the suspension of benefits. OAR 436-54-283(2). No statute or rule requires the insurer to inform claimants that it considers their reasons to be invalid or requires the Division to inform claimants that the insurer has petitioned to suspend benefits.
Here, SAIF informed claimant on June 6, 1980, that his reason for failing to attend his June 5,1980, appointment was invalid and that it would petition the Division for suspension of his benefits. However, claimant was never notified by SAIF or the Division that SAIF had, in fact, petitioned for suspension or that the Division was considering suspension. Further, claimant could reasonably have inferred from SAIF’s June 18, 1980, call to his attorney, inquiring about his wife’s condition, that SAIF had not petitioned for suspension. Thus, the notice claimant received did not achieve the goal of adequate notice to inform one whose interests may be affected that the suspension was pending so he could choose whether to contest it before suspension. Goss v. Lopez, supra, 419 US at 579; Tapper v. Fairview Hospital, supra, 276 Or at 664-65; Hammer v. OSP, supra, 276 Or at 654-55.
SAIF argues that ORS 656.325(6) and 656.283, which give claimants the right to a hearing on any question involving the reasonableness of the scheduled time for an examination, minimize the risk of an erroneous suspension. We disagree for two reasons. First, because there is no provision that a claimant receive notice that the insurer has petitioned for suspension, he would have to request a hearing and spend time and money preparing his case before he knows whether his benefits are in jeopardy. Second, no statutes or rules require that a claimant be given an opportunity to be heard informally before benefits are suspended.
Under the existing presuspension procedures, there is a significant risk of an erroneous decision to suspend benefits. The determination whether a reason for failing to attend an examination is valid will often turn on information solely in the possession of a claimant and the claimant’s veracity and credibility. However, the applicable statutes and rules do not require the Division to contact claimants prior to suspension. The Division’s assistant claims supervisor testified that a suspension decision is usually made on the basis of the [123]*123petition and contacts with the insurer and that she processed approximately 1500 petitions between 1977 and 1980 but contacted claimants in only two or three of those.
The facts of this case illustrate the risk of an erroneous decision to suspend benefits under the existing presuspension procedures. The issue was whether claimant had a valid excuse for missing his June 5,1980, appointment. Claimant’s attorney notified SAIF on June 4 that claimant’s wife was enroute to the hospital to give birth. SAIF’s claims representative concluded that this reason was invalid, because she could not verify that claimant’s wife had been admitted to a hospital. She admitted, however, that she called only the hospitals in the Eugene area that she believed had obstetrical departments and that she did not know the names of claimant’s wife or her obstetrician.
The Division’s assistant claims supervisor testified that claimant’s reason would have been valid if his wife had been in false labor or her obstetrician had told claimant to stay with her at home. Nevertheless, without contacting claimant, she concluded on the basis of SAIF’s petition that the reason was invalid. Under these circumstances, the potential for an erroneous suspension were significant. It is possible that SAIF could not verify that claimant’s wife was admitted to a hospital because she went to a hospital outside of the Eugene area, because she went to a hospital without an obstetrical department due to an emergency, because she went to a hospital in the Eugene area with an obstetrical department that the claims representative was unaware of, because her last name was different from that of her husband, because she went to her obstetrician’s office rather than a hospital or a myriad other reasons.
Regarding the third factor, the Court in Mathews concluded that the government’s interest was substantial because of the increased administrative burden and expense of providing pretermination trial-type hearings and the expense of benefits to ineligible recipients. 424 US at 347. Although the expense of paying benefits to ineligible claimants is like that in Mathews,5 the Division’s burden of providing some [124]*124sort of presuspension notice and an opportunity to be heard would be minimal. By simply sending a claimant a copy of the insurer’s application for suspension, the Division would give him adequate notice that the insurer had petitioned for and the Division was considering suspension, notice of the charges against him and notice of evidence on which the insurer relies. The Division could then give a claimant an opportunity to respond informally, orally or in writing. The risk of erroneous suspension would be significantly reduced if claimants were provided these minimal presuspension procedural safeguards, because they could inform the Division of facts solely in their possession that may be essential to a fully informed decision.
On the basis of Mathews v. Eldridge, supra, and our balancing of the three factors, we conclude that, in addition to the right to a post-suspension evidentiary hearing, claimant was entitled to the following presuspension procedural safeguards: (1) notice that SAIF had petitioned for and the Division was considering suspension of his benefits; (2) notice of the basis on which SAIF contended that benefits should be suspended and of the evidence SAIF relied on; and (3) an opportunity informally to respond to SAIF’s contentions either orally or in writing. See Tupper v. Fairview Hospital, supra, 276 Or at 665.6
Because none of these procedural safeguards were provided, we hold that the procedures employed under ORS 656.325 and OAR 436-54-281 and 436-54-283 to suspend claimant’s benefits did not comply with the procedural due process guarantees of the Fourteenth Amendment and Article I, section 10, of the Oregon Constitution. Because his suspension was invalid, claimant was entitled to receive temporary total disability benefits until he was suspended pursuant to procedures that complied with due process or he was no longer medically eligible, whichever came first. The uncontroverted medical evidence shows that on July 25, 1980, claimant became medically stationary and was released for work with limitations due to a permanent impairment. Therefore, he was entitled to temporary total disability benefits until that date.
[125]*125Reversed and remanded for entry of an order awarding claimant temporary total disability benefits at the rate determined by the referee from June 5, 1980, until July 25, 1980.