Hicks blew 18 penalties in the game in London, most in the first half, with England winning the penalty count 10-8.
“You all saw the game,” Burgess said.
“You watch some of the calls. It was not good enough. I don’t think he was good enough.
“You’ve got to put the whistle away at some point. I’m not blaming it on the result.
“They were a good team but geez it’s international (football). There were 13 or 14 penalties at half-time.
“There was a time there where he was made aware of the penalty count and made sure it was even at half-time.
“I don’t know what agenda he has got there or if he wants to even it up.
“Some of the penalties were — at this level I don’t think the penalties were (warranted) — but that’s my opinion. People will disagree with that.”