Opinion ID: 771754
Heading Depth: 2
Heading Rank: 4

Heading: Commissioner's Application of Appropriate Legal Standards

Text: 24 In addition to challenging the Commissioner's factual findings, appellant also argues that the Commissioner erred in applying Wisconsin law. As we alluded to above, the Commissioner's conclusions of state law are not entitled to deference. Therefore, if the Commissioner commits an error of law, reversal is required without regard to the volume of evidence in support of the factual findings. Binion, 108 F.3d at 782. 25 Appellant's primary contention regarding legal error by the Appeals Council is that by not appointing a guardian ad litem to represent the interests of the children, the Commissioner incorrectly applied Wisconsin law. In support of this argument, appellant cites Wis. Stat. sec. 891.39 which states that in all actions in which the presumption that the husband is not the father is being challenged, [t]he court or judge in such cases shall appoint a guardian ad litem to appear for and represent the child whose paternity is questioned. Appellant's argument is unconvincing for numerous reasons. First, we note that this argument was not raised at the district court level and as such we believe that it has been waived. See Andreas, 150 F.3d at 769. Appellant recognizes that the guardian ad litem issue was not directly presented below, but urges this Court to consider the claim as being encapsulated within the general challenge to the appropriate application of Wisconsin law. However, the legal challenges presented below did not center around the appointment of a guardian ad litem, but rather around whether it was proper for the Appeals Council to reopen, reexamine, and reverse the decision of the ALJ. Nonetheless, giving the appellant a degree of latitude and assuming arguendo that the claim has not been waived, we still fail to see error in this instance. 26 The Social Security Act does not mandate that a guardian ad litem be appointed to protect a minor's interest, and appellant has not provided any case law to suggest otherwise. Rather, the appellant claims that determining whether an applicant for benefits should be considered the child of an insured individual demands that the Commissioner here apply Wisconsin law governing intestate transfers. 42 U.S.C. sec. 416(h)(2)(A). Since Wisconsin law requires such an appointment, the fact that one did not occur in this instance requires reversal of the Commissioner's decision. 6 27 We disagree that Wisconsin law requires such an appointment. As the appellant notes, the requirement of appointing a guardian ad litem applies in limited circumstances, such as when custody is at issue--as is contemplated under Wis. Stat. sec. 891.39. See e.g., Bahr v. Bahr, 240 N.W.2d 162, 164 (1976) (holding that it is reversible error for the trial court to fail sua sponte to appoint a guardian ad litem before deciding contested custody issues, even if neither party has requested the appointment of a guardian ad litem). Appellant recognizes that the Commissioner's adjudication here does not fall within that limited category, and therefore points out that beyond custody cases, courts have discretion to determine whether concern is 'special' so as to require appointment of a guardian ad litem. See deMontigny v. deMontigny, 233 N.W.2d 463 (1975). 7 Thus, the appellant attempts to pigeonhole this case within the limited categories of Wis. Stat. sec. 767.045(1)(a)(1) (where the court has reason for special concern for the welfare of the child), and Wis. Stat. sec. 803.01(3) (where the interests of the minor are adverse to that of the general guardian). 28 In support of the notion that Sheryl's interests conflicted with that of the children, appellant suggests that Sheryl had motivation to maintain that the children were the product of artificial insemination, in order to keep Clay from divorcing her. 8 Taken at face value, this assertion would only be relevant to the statement contained within the separation decree that Charles was not the son of Clay. Since a guardian was not appointed for those separation proceedings, it is clear that the statement contained in the decree is not a binding declaration of Charles' paternity. It is well established that an infant is not bound by a judgment unless he is represented by a guardian ad litem at the time of its entry. In re Will of Brandstedter, 224 N.W. at 736. Thus, Charles would be free to litigate the issue of paternity, as provided by Wisconsin law. However, that failure to appoint a guardian, in an unrelated procedure over 20 years ago, does not require reversal of the Commissioner's decision in this matter. That Sheryl may have had a motivation to prevaricate in 1980 goes to the credibility of the statement in the separation decree, and does not show that Sheryl's interests conflicted with that of her children during the proceedings before the ALJ. The statement contained in the separation agreement is not being employed as a conclusively binding declaration of paternity, but rather as one of a number of reasons for rebutting the presumption that Clay is Charles' natural father. While there was a possible conflict of interest during the separation proceedings, that conflict (and the failure to appoint a guardian ad litem) in that instance works only to cast doubt on the credibility of the statement contained in the agreement. But, as we have stated numerous times in this opinion, we will not review the Commissioner's credibility determinations. Williams, 179 F.3d 1071-72. 29 In the proceedings before the ALJ, Sheryl had no motivation--other than to tell the truth--to suggest that Mandeville was the children's biological father. At that point, Clay was deceased and the stability of their marriage moot. As the Commissioner correctly points out, at that time, Sheryl's interests were squarely in line with those of her children. The only way by which Sheryl could obtain mother's benefits would be if the children were determined to be entitled to child's benefits. In fact, since it was uncontested that Sheryl would be entitled to her mother's benefits if the children were entitled to their benefits, in reality, the only interest Sheryl was representing at the hearing was that of the children. Therefore, even assuming that appellant's guardian ad litem argument was raised below, we find no conflict that would have necessitated the appointment of a guardian ad litem. 9 30 Finally we note that throughout appellant's brief, there is also a suggestion of legal error in that the Commissioner did not create a complete factual record. To the extent that appellant articulates this argument fully, it appears to be based on the failure of the Commissioner to conduct paternity tests. As we have noted above, while we believe that DNA or blood tests could resolve the paternity issue conclusively, it has been and continues to be within Sheryl Schoenfeld's power, as guardian of those children, to have those tests carried out. While tests were not requested by the Commissioner, even appellant notes that it is questionable whether such requests would have to be honored. Appellant has failed to point to any specific evidence that the Commissioner excluded, or explain how appellant was prejudiced by the record that was created. Mere conjecture or speculation that additional evidence might have been obtained in the case is insufficient to warrant a remand. Binion v. Shalala, 13 F.3d 243, 246 (7th Cir. 1994). Thus, we hold that the Commissioner developed a fair and complete record.