# U ni te d S ta te s Co ur t of A pp ea ls

For the Eig hth Circu it

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No. 1 6- 28 49

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Caro lyn Co m

bs

ll ll ll ll ll ll ll ll ll ll l Pla in ti

ff - App el la nt

v.

Nan cy A. Berryhil l, Acti ng Co m m is si on er, So ci al Secu rit y Adm in is tra ti on 1

ll ll ll ll ll ll ll ll ll ll l Defe nd

an t - Ap pe ll ee

__ __ __ __ __ __
App eal fro m

Uni te d S ta te s Di st ric t Co ur t fo r th e Eas te rn Dis tri ct of Ark an sa s - Hel en a

__ __ __ __ __ __

Su bm it te d: Jan ua ry

11 , 20 17
Fil ed : Au gu st 21 , 20 17

__ __ __ __ __ __

Befo re SM ITH an d KELLY, Circ ui t J ud ge s, an d S IPPEL, Dis tri ct Ju dg e. 2 3

Nan cy A. Be r ry hi ll ha s be en ap po in te d to se rv e as Acti ng Co m m is si on er of 1

So ci al Secu rit y , an d is su bs ti tu te d as ap pe ll ee pu rs ua nt to Fed eral Ru le of App el la te
Pro ced ur e 4 3( c).

The Hon or ab le Lav en s k i R . S m it h be cam e Ch ie f Ju dg e of th e Uni te d St at es 2

Co ur t o f App eal s fo r th e Eig ht Cir cu it on Marc h 1 1, 2 01 7.

The Hon or ab le Ro dn ey W

. Si pp el

, Ch ie f Ju dg e, Uni te d St at es Dis tri ct Co ur t 3

fo r th e Eas te rn Dis tri ct of M is so ur i, s it ti ng by des ig na ti on

.__ __ __ __ __ __

KELLY, Cir cu it Ju dg e.

Caro lyn Co m

bs ap pe al s fro m th e di st ric t co ur t’s or d e r a f fir m in g th e
Adm in is tra ti ve Law Ju dg e’s (ALJ) de ni al of he r ap pl ic at io n fo r di sa bi li ty in su ran ce
be ne fit s an d su pp le m en ta l se cu rit y in co m e. Bec au se we co nc lu de th at th e ALJ fai le d

to fu ll y an d fai rly de ve lo p th e reco rd

, we rev ers e an d rem an d fo r fu rth er fact ua l

fin di ng s.

I. Ba ck gr ou nd

Co m bs ap pl ie d fo r d i s a b i l i t y be ne fit s on Ju ly 2, 20 12

, al le gi ng a di sa bi li ty

on se t da te of May 1 7, 20 12

. Sh e cl ai m s sh e is di sa bl ed as a res ul t of th e co m bi ne d

effe ct s of rh eu m at oi d art hr it is

, os te oa rth rit is

, as th m a, an d ob es it y

. Co m bs was bo rn

o n Decem

be r 24

, 19 61

, an d ha s a ni nt h gr ad e ed uc at io n. Sh e la st wor ke d as a
ho us ek eep er at a nu rs in g h om e an d was fir ed for tal ki ng on he r cel l p ho ne

.

The ALJ h el d a he ari ng on Co m bs ’ ap pl ic at io n on Ja nu ary 9 , 2 01 4, at whi ch

Co m bs an d a Voc at io na l Exp ert (VE) t e st ifi ed

. Co m bs te st ifi ed at th e he ari ng ,
pr ov id in g th e fo ll owi ng in fo rm at io n. Sh e is 5’3” ta ll an d wei gh s 2 40 po un ds

. Sh e

was fir st to ld by a do ct or th at sh e ha d art hr it is in Aug us t 20 11 ; a li tt le la te r, sh e was
di ag no se d wit h rh eu m at oi d art hr it is by a do ct or who pr es cri be d m el ox ic am fo r th e

art hr it is an d tra m ad ol fo r pa in

. The m ed ic at io ns “ eas ed th e pa in whe reas [s he ] can

ba si cal ly de al wit h it a li tt le bi t, bu t it di dn ’t ta ke th e p a i n a w ay , bu t it m ad e it

be arab le a li tt le bi t.” Sh e ha s swe ll in g “ fro m [h er] k ne es a l l t h e w ay do wn to [h er]

fo ot ,” whi ch is wor se ne d by walk in g an d st an di ng

. Sh e can walk f o r a b o u t fiv e

m in ut es at a ti m e, bu t t h e n s h e h as to st op be cau se of th e pa in in he r lo wer ba ck

, kn ees , an d feet

. Sh e can on ly s t a n d f o r t w o or th ree m in ut es be fo re ha vi ng to si t

do wn an d pr op up he r le gs , whi ch so m et im es le ss en s th e swe ll in g. Sh e can si t fo r on e

-2

-ho ur bu t sp en ds th e da y ch an gi ng po si ti on s. Her ha nd s so m et im es cram p up so m uc h

sh e can no t us e th em

—“ th ey jus t ge t stu ck .” Sh e ha s pai n da il y , an d ha s res tl es s le g synd ro m e, whi ch di st ur bs he r sl eep

. Sh e is pr es cri be d am it rip tylin e, whi ch he lp s bu t

do es no t el im in at e th e p ro bl em

.

Co m bs ’ da il y act iv it ie s co ns is t m os tl y of si tt in g on he r co uc h or walk in g

aro un d t he ho us e in an effo rt t o k eep he r le gs fro m st iff en in g. Sh e so m et im es go es

to he r da ug ht er’s hou se , bu t beca us e sh e h as tro ub le ge tt in g u p from he r da ug ht er’s

co uc h, sh e pr efer s to si t at ho m e whe re she can be m or e co m fo rta bl e. Sh e can sh op

on ly if a m ot or iz ed cart is av ai la bl e. Sh e can m ak e he rs el f a sa nd wich

, bu t can on ly

co ok fo r he r fam il y if sh e ha s a c h a i r in th e ki tc he n, whe re sh e can si t do wn aft er

st an di ng fo r two or th ree m in ut es

. Sh e so m et im es do es di sh es

. Sh e do es no t ha ve th e

st ren gt h in he r ha nd s to wrin g m op s or wip e su rfac es , an d sh e can no lo ng er pl ay wit h

he r gr an dc hi ld ren

.

Co m bs pr es en te d m ed ic al reco rd s sp an ni ng th e ti m e pe rio d fro m Ju ly 20 11 to Sep te m be r 20 14 fro m S t

. Bern ard s Reg io na l Med ic al Cen te r, AR Care

, Jo ne sb or o
Ch ur ch Heal th Cen te r, an d NEA Bap ti st Cl in ic

. Hen ry All en , M

. D

., of AR Care

, di ag no se d C o m

bs wit h rh eu m at oi d art hr it is in Nov em be r 20 11 an d pr es cri be d

mel o x i c am , cy cl ob en zap rin e, an d tra m ad ol to tre at th e art hr it is an d acco m pa nyin g

pa in

. Co m

bs ha s co nt in ue d tre at m en t wit h va rio us m ed ic al pr ov id ers fo r th is

co nd it io n, in cl ud in g Dr. All en , Bea ta Majews ki

, M.D., an d Je nn ife r Lon g, APN, an d

th es e pr ov id ers co nt in ue to pr es c r i be pa in m ed ic at io n— in cl ud in g to rad ol

, h ydro co do ne , an d tra m ad ol —fo r “ se ve re pa in ” du e to he r rh eu m at oi d art hr it is

. X-rays sh owe d se ve re de ge ne rat iv e ch an ge s in bo th of Co m bs ’ kn ees , na rro win g of

th e joi nt sp ace in he r wris ts an d in th e fi ng ers of b ot h h an ds . Treatment n ot es fro m

Dr. All en , Dr. Majews ki

, an d APN Lon g rep or te d swe ll in g, warm th

, an d te nd ern es s

in Co m bs ’ ha nd s, wris ts , k ne es , a n d a n kl es , a s well as pa in fu l ran ge of m ot io n, bu t

“ no acu te di st res s” an d “ no rm al m ov em en t of al l ex tre m it ie s.” Non e of th es e m ed ic al

-3

-tre at m en t pr ov id ers of fere d an op in io n ab ou t Co m bs ’ ab il it y to fu nc ti on in th e

wor kp la ce.

The on ly m ed ic al op in io ns reg ard in g Co m bs ’ res id u a l fu nc ti on al cap aci ty (RFC ) th at th e ALJ co ns id ered were fro m two S t a t e a ge nc y m ed ic al co ns ul ta nt s:

4

Ro be rt Red d, M.D., who co nd uc te d an in it ia l rev ie w of Co m bs ’ m ed ic al reco rd s, an d

Sh aro n Keit h, M.D., who re v ie wed Co m bs ’ reco rd s at th e reco ns id erat io n le ve l.

Neit he r do ct or ex am in ed Co m bs

. Dr. Red d op in ed th at Co m bs w as ab le to li ft te n

po un d s o c c as io na ll y an d le ss th an te n po un ds freq ue nt ly an d was th eref or e li m it ed

to se de nt ary wor k. In Dr. Keit h’s op in io n, Co m bs was cap ab le of wo rk at th e li gh t

ex ert io na l le vel an d co ul d li ft twen ty po un ds oc cas io na ll y an d te n po un ds freq ue nt ly. 5

Fo ll owi ng th e he ari ng , th e ALJ is su ed a de ci si on on Ju ly 18

, 20 14

, an al y zi ng

Co m bs ’ di sa bi li ty fo ll owi ng th e fiv e-s te p se qu e n t i a l e va lu at io n pr oc es s ou tl in ed in

20 C.F.R. §§ 42 0.1 52 0( a)– (f). At th e fir st an d se co nd st ep s, th e ALJ de te rm in ed th at

Co m bs ha d no t en ga ge d i n s u bs ta nt ia l ga in fu l act iv it y si nc e he r al le ge d di sa bi li ty

“ A cl ai m an t’s RFC is wha t

. . . he or sh e can do de sp it e hi s or he r li m it at io ns .” 4

Pear sa ll v. Mas sa na ri, 27 4 F.3 d 12 11

, 12 17 (8 th Ci r. 20 01 ) (ci ti ng 20 C.F.R. § 4 04 .15 45 ).

Lig ht work in vo lv es : 5

li fti ng no m or e th an 20 po un ds at a ti m e wit h freq ue nt li fti ng or carr y in g of ob jects weig hi ng up to 10 po un ds

. Eve n th ou gh th e weig ht li fte d m ay be ve ry li tt le

, a job is in th i s c a t e g o r y w he n it req ui res a go od de al of
walk in g or st an di ng , or whe n it in vo lv es si tt in g mo s t o f t h e ti m e wit h

so m e pu sh in g an d pu ll in g of arm or le g co nt ro ls

. To b e co ns id ered

cap ab le of pe rfo rm in g a fu ll or wid e ran ge of li gh t wor k, y ou m us t ha ve th e ab il it y

to do su bs ta nt ia ll y

all of t he se act iv it ie s.

20 C.F.R. § 40 4.1 56 7( b)

. To be cap ab le of pe rfo rm in g “ li gh t wor k,” a cl ai m an t m us t al so be ab le to st an d or walk fo r si x ho ur s of an ei gh t-h ou r wor k da y

. Fr a n kl v. Sh al al a, 47 F.3d 93 5, 9 37 (8t h C ir. 1 99 5)

.

-4

-on se t da te

, an d ha d th e fo ll owi ng s e v e r e im pa irments : rh eu m at oi d art hr it is

, fib ro m y al gi a, an d ob es it y

. At st ep th ree, th e ALJ de te rm in ed th at Co m bs di d no t ha ve

an im pa irment or co m

bi na ti on of im

pa irments li st ed in or m ed ic al ly eq ua l t o on e

li st ed in App en di x 1 , Sub pa rt P , Reg ul at io n No . 4.

The ALJ ne xt co ns id ered Co m bs ’ RFC. The ALJ fo un d Co m bs ’ s u b je ct iv e

co m pl ai nt s of pa in no t ent ire ly cred ib le in la rg e pa rt ba se d on tre at m en t no te s m ad e
b y h er m ed ic al pr ov id ers th at sh e was in “ no acu te di st res s” an d “ ha d no rm a l

m ov em en t of al l ex tre m it ie s.” Th e ALJ g av e “ so m e wei gh t” to Dr. Red d’s op in io n
bu t co nc lu de d D r

. Keit h’s op in io n was m or e co ns is te nt wit h th e reco rd as a who le

. Rel y in g on Co m

bs ’ m ed ic al reco rd s an d Dr. Keit h’s op in io n , a s well as th e VE’ s

te st im on y , th e ALJ de te rm in ed Co m bs ha d th e RFC to pe rfo rm li gh t wor k as de fin ed

in 20 C.F.R. § 40 4.1 56 7( b) wit h th e fo ll owi ng li m it at io ns : sh e can on ly freq ue nt ly us e
he r ha nd s to fin ge r an d gr as p; on ly oc cas io na ll y c l i m b la dd ers , ro pe s, sc affo ld s,

ram ps , or st ai rs ; an d on ly oc cas io na ll y ba la nc e, st oo p, kn e e l

, cro uc h, an d crawl

. Bec au se Co m

bs ’ pa st wor k as a ho te l ho us ek eep er di d no t req ui re he r to pe rfo rm an y

wor k- rel at ed act iv it ie s pr ecl ud ed by he r RFC, th e ALJ co nc lu de d Co m bs was cap ab le

of pe rfo rm in g he r pa st rel ev an t wor k an d so was no t di sa bl ed

. Alt ern at iv el y , th e ALJ

fo un d th at Co m

bs co ul d pe rfo rm ot he r job s th at ex is te d in si gn ifi can t nu m be rs in th e

na ti on al eco no m

y , su ch as a cas hi er o r a fas t fo od work er.

On Au g us t 6, 20 15

, th e App eal s Co un ci l de ni ed Co m bs ’ req ue st fo r rev ie w.
Sh e so ug ht jud ic ia l rev ie w an d, o n May 25

, 20 16

, th e di st ric t co ur t affi rm ed th e

Co m m is s i o n e r ’s de ni al of Co m bs ’ cl ai m s. In th is ap pe al

, Co m bs ch al le ng es th e

ALJ’s RFC de te rm in at io n.

II . Disc us si on

“ Bec au se th e App eal s Co un ci l de cl in ed rev ie w, th e ALJ’s de ci si on is th e fin al

de ci si on of th e Co m

m is si on er.” Lot t v

. Co lv in , 7 72 F.3 d 54 6, 54 8 (8 th Ci r. 20 14 ).

“ The fin di ng s of th e Co m m is si on er of So ci al Secu rit y as to an y fact

, if su pp or te d by

-5

-su bs ta nt ia l ev id en ce, sh al l be co nc lu si ve .” Id

. (q uo ti ng 42 U.S. C

. § 40 5( g) ). “ W e

rev ie w th e ALJ’s de ni al of di sa bi li ty in su ran ce be ne fit s de no vo to en su re th at th ere

was no le ga l erro r an d th at th e fin di ng s of fact are su pp or te d by su bs ta nt ia l ev id en ce

on th e r e c o r d a s a who le .” Bro wn v. Co lv in

, 82 5 F.3 d 93 6, 93 9 (8 th Ci r. 20 16 ).

“ Su bs ta nt ia l ev id en ce is le ss th an a pr ep on de ran ce, bu t en ou gh th at a reas on ab le m in d

wou ld fin d it ad eq ua te to su pp or t a co nc lu si on .” Id

. W e co ns id er th e reco rd as a
who le

, rev ie win g bo th th e ev id en ce th at su pp or ts th e ALJ’s de ci si on an d th e ev id en ce

th at de tra ct s fr om

it . Id.

Co m bs co nt en ds th e ALJ’s co nc lu si on th at sh e ha d th e RFC to pe rfo rm li gh t

wor k, an d th eref

or e co ul d ret ur n to he r pa st rel ev an t wor k as a ho te l ho us ek eep er, is

no t su pp or te d by su bs ta nt ia l ev id en ce on th e reco rd as a who le

. An ALJ de te rm in es

a cl ai m an t’s RFC “ ba se d on al l th e rel ev an t ev id en ce, in cl ud in g th e m ed ic al reco rd s,
ob se rv at io ns of t reat in g ph y si ci an s an d ot he rs , and an in di vi du al ’s own de sc rip ti on

of [h er] li m it a t i o n s

. ” St ro ng so n v. Barn ha rt, 36 1 F.3 d 10 66

, 10 70 (8 th Ci r. 20 04 )
(q uo ti ng McKi nn ey v. Apf el

, 22 8 F.3 d 86 0, 86 3 (8 th Ci r. 20 00 )). “ Bec au se a
cl ai m an t’s RF C is a m ed ic al qu es ti on , an ALJ ’s ass es sm en t o f it m us t b e su pp or te d
by so me med i c a l ev id en ce of th e cl ai m an t’s ab il it y to fu nc ti on in th e wor kp la ce.”

St eed v. Ast ru e, 52 4 F.3 d 87 2, 87 5 (8 th Ci r. 20 08 ) (q uo ti ng Co x v. Ast ru e, 49 5 F.3 d

61 4, 61 9 (8 th Ci r. 20 07 )). If the m ed ic al reco rd s rece iv ed fro m a tre at in g ph y si ci an

are in ad eq ua te to de te rm in e a cl ai m an t’s di sa bi li ty, th e reg ul at io ns pr ov id e th at th e

Co m m is si on er wil l co nt act th e tre at in g ph y si ci an to cl ari fy

. C o x , 4 9 5 F .3d at 61 9
(ci ti ng 20 C.F.R. § 41 6.9 12 (e))

. The ALJ “ m ay no t si m pl y dr aw hi s own in fere nc es
ab ou t pl ai nt if

f ’s fu nc ti on al ab il it y fro m m ed ic al rep or ts .” St ro ng so n, 36 1 F.3 d at

10 70

.

Co m bs as se rts th e ALJ’s RFC de te rm in at io n is no t su pp or te d by s u b s t a nt ia l

ev id en ce on th e reco rd as a who le be cau se th ere is no ev id en ce fro m a tre at in g or

ex am in in g m ed ic al pr ov id er to sh ow ho w he r im pa irments affe ct he r ab il it y to

fu nc ti on in th e wor kp la ce. Co m bs co nt en ds th e ALJ dr ew hi s own in fere nc es ab ou t

he r fu nc ti on al ab il it y fro m he r m ed ic al rep or ts an d th en rel ie d on th os e in fere nc es to

-6

-ch oo se be twee n th e co nf li ct in g op in io ns of no n- tre at in g, no n- ex am in in g ph y si ci an s,
who m erel y rev ie wed th e rep or ts of he r tre at in g ph y si ci an s to fo rm an op in io n of he r

R FC. Face d wit h th es e co nf li ct in g op in io ns , Co m

bs as se rts

, th e ALJ sh ou l d h a v e

so ug ht cl ari fic at io n ab ou t he r wor k- re l a t e d li m it at io ns , ei th er fro m a pr io r tre at in g
do ct or or fro m a co ns ul ta ti ve do ct or

. Bec au se th e ALJ fai le d to do so , Co m bs arg ue s,
he di d n ot sat is fy

hi s d ut y to ful ly and fai rly dev el op th e rec or d.

“ W el l-s et tl ed pr eced en t co nf irms th at th e ALJ be ars a res po ns ib il it y to de ve lo p

th e reco rd fai rly an d fu ll y , i nd ep en de nt of t h e cl ai m an t’s bu rd en to pr es s hi s cas e.”

Vos se n v

. Ast ru e, 61 2 F .3d 10 11 , 10 16 (8t h C ir. 2 01 0) (qu ot in g S ne ad v. Ba rn ha rt,

36 0 F.3 d 83 4, 83 8 (8 th Ci r. 20 04 )). “ The op in io ns of no n- tre at in g pr act it io ne rs who

ha ve at te m

pt ed to ev al ua te th e cl ai m an t w i t h o ut ex am in at io n do no t no rm al ly

co ns ti tu te su bs ta nt ia l ev id en ce on th e rec or d as a who le .” Id

. (q uo ti ng Sh on to s v.

Barn ha rt, 32 8 F.3 d 41 8, 42 7 (8 th Ci r. 2 0 0 3 ) )

. “ Lik ewis e, th e te st im on y of a

vo cat io na l ex pe rt who res po nd s to a hyp o th et ic al ba se d on su ch ev id en ce is no t

su bs ta nt ia l ev id en ce up on whi ch to ba se a de ni al of be ne fit s.” Nev la nd v. Apf el

, 20 4

F.3 d 85 3, 85 8 (8 t h C i r

. 2 0 0 0 )

. On th e ot he r ha nd

, “ [t]he op in io n of a tre at in g ph y si ci an is acco rd ed sp eci al de fere nc e un de r th e so ci al se cu rit y reg ul at io ns ” an d is

“ no rm al ly en ti t l e d t o g r e at weig ht .” Vos se n, 61 2 F.3 d at 10 17 (q uo ti ng Pro sc h v. Apf el , 20 1 F .3d 10 10 , 10 12 (8t h C ir. 2 00 0) ). 6

W hi le we reco gn iz e th at an A LJ do es no t “ ha ve to se ek ad di ti on al cl ari fy in g

st at em en ts fro m a tre at in g ph y si ci an un le ss a cru ci al is su e is un de ve lo pe d,” Vos se n,

61 2 F.3 d at 10 16 (em

ph as is om it te d) (q uo ti ng St or m o v. Barn ha rt, 37 7 F.3 d 80 1, 80 6
(8 th Ci r. 20 04 )), he re, th ere is no op in io n fro m a tre at in g p h ys i c i a n on th e “ cru ci al

Thi s c o n t i nu es to be tru e fo r Co m bs ’ cl ai m be cau se it was fil ed be fo re 6

Mar ch 27

, 20 17

. See 20 C.F.R. § 40 4.1 52 7 (“ Fo r cl ai m s fil ed

. . . be fo re March 27

, 20 17

, th e ru le s in th is se ct io n ap pl y .”); id

. § 40 4.1 52 7( c)(1 ) (“ Gen eral ly, we gi ve

m or e weig ht to th e m ed ic al op in io n of a so ur ce who ha s ex am in ed y ou th a n t o t h e

m ed ic al op in io n o f a m ed ic al so ur ce wh o h as no t ex am in ed y ou .”).

-7

-is su e” of whe th er Co m bs was li m it ed to se de nt ary wor k or co ul d pe rfo rm li gh t wor k.

If t he ALJ ha d acce pt ed Dr. Red d’s op in io n reg ard in g Co m bs ’ RFC, C om

bs wou ld

ha ve be en fo un d di sa bl ed un de r ru le 20 1.0 9 of th e m ed ic al

- v o c a t io na l gu id el in es

. See 20 C.F.R. Pt

. 40 4, Su bp t. P, App

. 2, ru le 20 1.0 9. In st ead

, ba se d on hi s

in te rp ret at io n of m ed ic al te rm s in Co m bs ’ m ed ic al reco rd s an d Dr. Keit h’s op in io n,

th e ALJ co nc lu de d C om

bs was c ap ab le of l ig ht work , and th us no t d is ab le d.

W e co nc lu de th e A LJ e r r e d in rel y in g on hi s own in fere nc es ab ou t wha t

Co m bs ’ m ed ic al pr ov id ers m ean t whe n th ey no te d in he r m ed ic al reco rd s th at sh e was

in “ no acu te di st res s” an d ha d “ no rm al m ov em en t of al l e x tre m it ie s” to de te rm in e

Co m bs ’ RFC. The Co m

m is si on er con ced es in he r br ie f th at th e no ta ti on “ ‘no acu te

di st res s’ [is no t] of pa rti cu la r si gn ifi can ce wit h a ch ro ni c co nd it io n su ch as [Co m bs ’]

rh eu m at oi d art hr it is .” The Co m m is si on er in st ead arg ue s th at th e fin di ng of “ no rm al

m ov em en t of al l ex tre m it ie s” is in co ns is te nt wit h Co m bs ’ co m pl ai nt s of pa in

. Bu t th e
rel ev an ce of th is f

i n d i n g i n te rm s of Co m

bs ’ ab il it y to fu nc ti on in th e wor kp la ce is

no t cl ear: Alt ho ug h Co m bs ’ m ed ic al pr ov id ers co ns is te nt ly no te in th ei r tr e a t m en t

reco rd s th at Co m

bs ha s a no rm al ran ge of m ot io n, th ey li ke wis e co ns is te nt ly di ag no se
he r wit h rh eu m at oi d art hr it is

, pr es cri be m ed ic at io ns fo r “ se ve r e p a i n , ” an d no te

“t r i g g e r p oi nt ” an d “

joi nt pa in wit h” ran ge of m ot io n. By rel y in g on hi s own

in te rp ret at io n of wha t “ no acu te di st res s” an d “ no rm al m ov em en t of al l ex tre m it ie s”

m ean t in te rm s of Co m

bs ’s RFC— in st ead of se ek in g cl ari fic at io n fro m C o mb s ’

m ed ic al pr ov id ers —t he ALJ fai le d to sa ti sf y hi s du ty to fu ll y an d fair ly de ve lo p th e

reco rd

. Acco rd in gl y , we co nc lu de rem an d is ne ces sa ry so t h e A LJ may co nd uc t

fu rth er in qu iry as to wha t rel ev an ce Co m bs ’ be in g in “ no acu te di st res s” an d ha vi ng

“ no rm al m ov em en t of al l ex tre m it ie s” ha s i n t erm s o f Co m bs ’ ab il it y to fu nc ti on in

th e wor kp la ce.

II I. Co ncl us io n

Acco rd in gl y , we rev ers e an d rem an d t he cas e to th e di st ric t co ur t wit h

in st ru ct io ns to rem an d to th e ALJ fo r fu rth er pr oc eed in gs co ns is te nt wit h th is op in io n.

-8

-SMI TH, Circ ui t J ud ge , di ss en ti ng

.

The m ajor it y ho ld s t h a t th e ALJ fai le d to fu ll y an d fai rly d ev el op th e reco rd

. Sp eci fic al ly, th e m ajor it y ho ld s th at th e ALJ fa i l e d t o ( 1) se ek cl ari fic at io n of th e

te rm s “ no acu te di st res s” an d “ no rm al m ov em en t o f al l ex tre m it ie s,” a nd (2 ) ob ta in

a tre at in g or co ns ul ta ti ve ph y si ci an ’s o pi ni on on Co m bs ’s a bi li ty t o fu nc t i o n i n t h e

wor kp la ce. Be cau se th is ho ld in g m is ap pl ie s o ur pre ced en t, I re sp ect fu ll y di ss en t.

Fi rs t, Co m

bs arg ue s th at th e ALJ fai le d t o fu ll y an d fa irl y

de ve lo p t he reco rd

be c au se he fai le d to se ek cl ari fic at io n of th e te rm s “ no acu te di st res s” an d “ no rm al

m ov em en t of al l ex tre m it ie s” an d im pr op erl y rel ie d on hi s own in t e r p r e t at io ns of

th es e te rm s. Co m

bs es se nt ia ll y arg ue s th at th es e te rm s were un cl ear an d th at th e ALJ

was du ty-bo un d to as k th e tre at in g ph y si ci an s fo r m or e in fo rm at io n. “ The ALJ’s du ty

to de ve lo p t he reco rd , ho wev er, d oe s n ot ex te nd so far” as t o n eces sa ril y req ui re an

ALJ to se ek m or e in fo rm at io n whe n an op in io n is arg ua bl y un cl ear. Se e St or mo , 37 7

F.3 d at 80 6. “ The ALJ m

us t ne ut ral ly de ve lo p th e fact s. He do es no t, ho wev er, ha ve

to se ek ad di ti on al cl ari fy in g st at em en ts fro m a tre at in g ph y si ci an un l e s s a cru ci al

is su e is un de ve lo pe d.” Id

. (ci ta ti on om it te d)

. The m ed ic al reco rd co nt ai ns do zen s of

tre at m en t no te s de ta il in g Co m bs ’s ph y si cal li m it at io ns

. In th is cas e, no cru ci al is su e

was un de ve lo pe d as to crea te a du ty to se ek ad di ti on al in fo r mat i o n f r om Co m bs ’s

tre at in g ph y si ci an s. Se e KKC ex re l. St on er v. Co lv in

, 81 8 F.3 d 3 6 4

, 37 2 (8 th Ci r.

20 16 ).

Seco nd

, Co m

bs arg ue s th at th e ALJ fai le d to fu ll y an d fai rly de ve lo p th e reco rd

be cau se he di d no t ob ta in a tre at in g or co ns ul ta ti ve ph y si ci an ’s op in io n on Co m bs ’s

ab il it y to fu nc ti on in th e wor kp la ce. Th u s , C o mb s arg ue s th at th e RFC is no t

su pp or te d by su bs ta nt ia l m ed ic al ev id en ce. “ Thi s m is st at es th e go ve rn in g pr in ci pl e.”

Se e H a r vey v. Co lv in

, 83 9 F.3 d 71 4, 71 7 (8 th Ci r. 20 16 ). “ The ALJ de te rm in es a
cl ai m an t’s RFC ba se d on al l rel ev an t e v i d en ce, in cl ud in g m ed ic al reco rd s,
ob se rv at io ns of t reat in g p hysic ia ns an d o th ers , and th e cl ai m an t’s o wn d es cri pt io ns

of hi s or he r li m it at io ns .” Eich el be rg er v. Bar n ha rt

, 39 0 F.3 d 58 4, 59 1 (8 th Ci r.

-9

-20 04 ). W hi le th e RFC as se ss m en t m us t be su pp or te d by so m e m ed ic al ev id en ce,

“ th ere is no req ui rem en t th at an RFC fin di ng be su pp or te d by a s pe ci fic m ed ic al

op in io n.” Hen sl ey v

. Co lv in

, 82 9 F.3 d 92 6, 93 2 (8 th Ci r. 20 16 ). “ In th e ab se nc e of

m ed ic al op in io n ev id en ce, ‘m ed ic al reco rd s pr ep ared by th e m os t rel ev an t tre at in g ph y si ci an s [can ] pr ov id e affi rm at iv e m ed ic al ev id en ce su pp or ti ng th e ALJ’s res id ua l

fu nc ti on al cap aci ty fin di ng s.’” Id

. (al te rat io n in or ig in al ) (q uo ti ng Jo hn so n v. Ast ru e , 62 8 F .3d 99 1, 9 95 (8t h C ir. 2 01 1) ).

At st ep fo ur of th e di sa bi li ty an al y si s— th e st ep at whi ch th e ALJ de ci de d th is

cas e—a di sa bi li ty cl a i man t ha s th e bu rd en to es ta bl is h he r RFC. Eich el be rg er , 3 90

F.3 d at 59 1. Co nt rary to Co m bs ’s as se rti on , an d th e m ajor it y ’s ho ld in g, an ALJ is no t

req ui red to ob ta in a tr ea ti ng or co ns ul ta ti ve ph y si ci an ’s op in io n to de te rm in e whe th er

th e cl ai m an t ha s th e RFC to pe rfo rm pa st rel ev an t wor k. In st ead

, ou r pr eced en t

pe rm it s an ALJ to rel y “ on a rev ie win g ph y si ci an ’s rep or t at s te p fo ur whe n th e
bu rd en is on th e c l a i man t t o es ta bl is h an in ab il it y to do pa st rel ev an t wor k.” Ca se y

v. Ast ru e , 5 03 F.3 d 68 7, 69 7 (8 th Ci r. 20 07 ) (rejec ti ng th e as se r t i o n t h a t RFC m us t

be su pp or te d by a tre a t i n g or co ns ul ti ng ph y si ci an ’s op in io n, an d up ho ld in g RFC

su pp or te d by rev ie win g ph y si ci an ’s rep or t, ot he r m ed ic al reco r d s, an d su bjec ti ve

rep or ts of cl ai m an t’s m ot he r an d fo rm er em pl oyer); se e al

so Eich el be rg er , 39 0 F.3 d

at 59 1– 92 (h ol di ng rev ie win g p h ys ic ia n’s op in io n su ffi ci en t to up ho ld RFC at st ep

fo ur be cau se ou r ho ld in g in Nev la nd , 20 4 F .3d 85 3, wh ic h re jecte d R FC t ha t re li ed

on ly on rev ie win g ph y si ci an s’ rep or ts

, do es no t ap pl y at st ep fo ur ); Hen sl ey , 82 9 F.3 d

at 93 2 (rejec ti ng arg um en t th at ALJ m us t “ or de r a co ns ul ta ti ve ex am in at io n

. . . to

co rrec t [a] la ck of di rect op in io n ev id en ce” fro m a tre at in g so ur ce); cf

. Mas te rs on v.

Bar nh ar t

, 36 3 F.3 d 73 1, 73 7– 38 (8 th Ci r. 20 04 ) (h ol di ng ALJ pr op erl y rel ie d on no nex am in in g ph y si ci an ’s op in io n, co ns ul ti ng ph y si ci an ’ s opi nio n, cl ai m ant’s su bjec ti ve

co m pl ai nt s, an d reco rd s fro m tre at in g ph y si ci an s in de te rm in in g RFC)

. Th u s, th e

m a jori ty’ s ho ld in g th at th e ALJ m us t ob ta in a m ed ic al op in io n “ ab ou t [Co m bs ’s]

wor k- rel at ed li m it at io ns , ei th er fro m a pr io r tre at in g do ct or or fro m a co ns ul ta ti ve
do ct or ” d ire ct ly con fli ct s wi th ou r pr eced en t.

-1 0-“ [T]he bu rd en of pe rs ua si on to pr ov e di sa bi li t y a n d to de m on st rat e RFC

rem ai ns on th e cl ai m an t. Here, no cru ci al is su e was le ft un de ve lo pe d; rat he r, [Co m bs ]

si m pl y fai le d to sh ow th at sh e was un ab le to pe rfo rm he r pa st wor k

. ” S e e
Eich el be rg er , 39 0 F.3 d at 59 2 (c i t a t i o n om it te d)

. In de te rm in in g th at Co m bs is

cap ab le of pe rfo rm in g li gh t wor k, th e ALJ rev ie wed an d co ns id ered y ears of m ed ic al

reco rd s, Co m

bs ’s su bjec ti ve te st im on y , m at eri al s fro m Co m bs ’s tre at in g ph y si ci an s,

th e rev ie win g ph y si ci an s’ op in io ns , an d th e te st im on y of th e VE. As th e di st ric t co ur t

no te d, th is ev id en ce is cap ab le of m or e th an on e acce pt ab le ch arac te riz at io n. Bec au se

I fin d it “ po ss ib le to dr aw tw o in co ns is te nt po si ti on s fro m th e ev id en ce an d on e of

th os e po si ti on s rep res en ts th e Co m m is si on er’s fin di ng s,” Ch an ey v. Co lv in

, 81 2 F.3 d

67 2, 67 6 (8 th Ci r. 20 16 ) (q uo ti ng Dixo n v. Bar nh ar t

, 35 3 F.3 d 60 2

, 6 0 5 ( 8 t h C ir.

20 03 )), I wou ld ho ld th at “ th e ALJ’s co nc lu si on un de r st ep fo ur is su pp or te d by

su bs ta nt ia l ev id en ce,” Eich el be rg er , 39 0 F .3d at 5 91 , and I wou ld affi rm th e ALJ’s

de ci si on

.

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