Document: 540 U.S. 20 BARNHART, COMMISSIONER OF SOCIAL SECURITYv.THOMAS No. 02-763. Supreme Court of United States. Argued October 14, 2003. Decided November 12, A person is disabled, and thereby eligible for Social Security disability insurance benefits Supplemental Income (SSI), "only if his physical or mental impairment impairments are such severity that he not only unable to do previous work but cannot, considering age, education, experience, engage in any other kind substantial gainful which exists the national economy." 42 U. S. C. §§423(d)(2)(A), 1382c(a)(3)(B) (emphasis added) (hereinafter §423(d)(2)(A)). After her job as an elevator operator was eliminated, respondent Thomas applied SSI. An Administrative Law Judge (ALJ) found did prevent from performing past relevant operator, rejecting argument she because it no longer significant numbers economy. The District affirmed ALJ, concluding whether Thomas's old irrelevant under Administration's (SSA) regulations. In reversing remanding, en banc Third Circuit held §423(d)(2)(A) unambiguously provides ability perform prior disqualifies Held: SSA's determination can find a claimant disabled where remains physically mentally able work, without investigating economy, reasonable interpretation § 423(d)(2)(A) entitled deference Chevron A. Inc. v. Natural Resources Defense Council, Inc., 467 837. Section establishes two requirements: must render individual "unable work" also preclude him "engag[ing] work." clause "which economy" clearly qualifies latter requirement. issue this case former regulations, create five-step sequential evaluation process determine disability, answer question negative. At step four, SSA will who inquiring Rather, reserves inquiry into economy fifth step, when considers vocational factors determines jobs See CFR §§404.1520(f), 404.1560(c), 416.920(f), 416.960(c). That construction §423(d)(2)(A). Circuit's contrary reading ignores grammatical "rule last antecedent," limiting phrase should be read modify noun immediately follows. Construing accord with rule quite sensible. Congress could have determined analysis claimant's capacity would most cases effective efficient administrative proxy some There good reason use avoid more expansive individualized step-five analysis. proper agency give rise undesirable results instances (which both constructions can), whether, light alternatives, reasonable. Here, authoritative satisfies test. Pp. 23-30. 294 F. 3d 568, reversed. SCALIA, J., delivered opinion unanimous Court. CERTIORARI TO THE UNITED STATES COURT APPEALS FOR THIRD CIRCUIT Jeffrey Lamken argued cause petitioner. With on briefs were Solicitor General Olson, Assistant Attorney McCallum, Deputy Kneedler, William Kanter, Wendy M. Keats, Barbara L. Spivak. Abraham Alter filed brief respondent. JUSTICE SCALIA 1 Under Act, Administration authorized pay persons "disability." benefits, 1382c(a)(3)(B). we decide may 2 * Pauline worked six years until eliminated August 1995. June 1996, at age 53, Title II XVI Act. 49 Stat. 622, amended, 401 et seq. (Title II); added, 86 1465, 1381 XVI). She claimed suffered from, by, heart disease cervical lumbar radiculopathy. 3 denied application initially reconsideration, requested hearing before (ALJ). ALJ had "hypertension, cardiac arrythmia, [and] strain/sprain." Decision 5, Record 15. He concluded, however, "disability" "impairments [her] operator." Id., 6, 16. rejected Appeals Council request review. 4 then challenged ALJ's ruling States New Jersey, renewing due its scarcity. Apfel, Civ. 99-2234 (Aug. 17, 2000). Circuit, sitting banc, reversed remanded. Over dissent three members, statute "substantial 572 (2002). holding conflicts decisions four Courts Appeals. Quang Van Han Bowen, 882 2d 1453, 1457 (CA9 1989); Garcia Secretary Health Human Services, 46 552, 558 (CA6 1995); Pass Chater, 65 1200, 1206-1207 (CA4 Rater 73 796, 799 (CA8 1996). We granted petition certiorari. 537 1187 (2003). 5 As present case, Act defines "inability activity by medically determinable expected result death has lasted continuous period less than 12 months." 423(d)(1)(A). definition qualified, follows: 6 "An shall . ." (emphases added). 7 "[W]ork defined mean "work either region lives several regions country." Ibid. governs indigent persons, employs same used II, including qualification verbatim 423(d)(2)(A). §1382c(a)(3)(B). For simplicity's sake, refer provisions, our applies equally XVI. 8 requirements disability. First, individual's Second, parties agree requirement qualified follows it—"which "previous 9 answered Acting pursuant statutory rulemaking authority, §§405(a) II), 1383(d)(1) XVI), promulgated regulations establishing 404.1520 (2003) (governing claims benefits); 416.920 (parallel regulation governing Income). If finding nondisability made, review claim further. first unless shows working activity." §§ 404.1520(b), 416.920(b). two, "severe impairment," "any combination significantly limits [the claimant's] basic activities." §§404.1520(c), 416.920(c). three, enabled survive list presumed severe enough one disabled; so, qualifies. §§404.1520(d), 416.920(d). list, proceeds assesses work; disabled.1 survives fourth stage, fifth, final, requires consider so-called "vocational factors" (the experience), capable existing 416.960(c).2 10 above description shows, economy; explicitly reserve five. Thus, made perfectly clear does interpret applying work."3 presented accorded deference. 11 837, 843 (1984), speaks hand "must effect expressed intent Congress," "is silent ambiguous" defer charged implementation. that, referring economy," added), indicates species latter. "When," said, "a sentence sets out specific items followed `any other' description, fall within description." 3d, 572. disagree. reasons discussed below, adopted least text therefore given effect. disregards—indeed, precisely to—the according (here, relative economy") ordinarily modifying work"). 2A N. Singer, Sutherland Statutory Construction 47.33, p. 369 (6th rev. ed. 2000) ("Referential qualifying words phrases, intention appears, solely antecedent"). While absolute assuredly overcome indicia meaning, said construing "quite sensible matter grammar." Nobelman American Savings Bank, 508 324, 330 (1993). FTC Mandel Brothers, 359 385 (1959), employed strikingly similar structure 423(d)(2)(A)—a provision Fur Products Labeling 15 69, "`invoice'" "`a written account, memorandum, catalog ... transported purchaser, consignee, factor, bailee, correspondent, agent, engaged dealing commercially fur products furs.'" S., 386 (quoting 69(f)) Like here, Brothers interpreted "`any other'" rendering ("`who commercially'") applicable all specifically listed categories. 389. This unanimously reversed, "limiting antecedent." 389, n. (citing J. Sutherland, 4921 (3d 1943)). 13 example illustrate error perception enumerated "must" treated general reference Consider, example, parents who, leaving their teenage son alone house weekend, warn him, "You punished you throw party damages house." nevertheless throws caught, hardly punishment arguing damaged. proscribed (1) party, (2) house. far appears what they prohibiting home-alone nothing damage house—for instance, risk underage drinking sexual occur. And even concern damage, follow fact interest underlay prohibition proof required both. parents, foreseeing assessment "damaged" disputed son, might wished specifying categorically activity—hosting party—that likely 14 suggested interpreting lead "absurd results." Kolman Sullivan, 925 212, 213 (CA7 1991) rational ground denying benefits"). court conceive "no plausible why wanted deny otherwise simply person, although actually exists." 572-573. But very next page conceived just reason, namely, "in vast majority cases, types 574, 5. conclusion cases" serve exist Such useful cumulative "other" difficult, requiring consideration "each th[e] [vocational] each abilities limitations," Heckler Campbell, 461 458, 460-461, (1983) §§404.1545-404.1565 (1982)). workable avoids observed, "[t]he system `probably largest adjudicative western world.' need efficiency self-evident." 461, (citation omitted). rationale produce "may always true, true case." 576. logic invalidate number procedures state. To generalize imprecise. Virtually every legal (or other) imperfect applications particular circumstances. Cf. Bowen Yuckert, 482 137, 157 (1987) (O'CONNOR, concurring) ("To sure faces task staggering proportions provisions Perfection processing millions annually impossible"). It interpretation, worker severely limited managed easy declining industry penalized troubles later disappears. impaired workers marginal industries cannot refuse return jobs—even though remain open available—and nonetheless draw benefits. (as here rather certainly 16 considered respondent's arguments them merit. 17 18 today compels SSA. suffices conclude, do, require different entirely text. judgment 19 so ordered. Notes: step-four instructions "If make decision based your current medical facts alone, impairment(s), residual functional demands done past. still disabled." §§404.1520(e), 416.920(e) became September 25, 2003, amended certain aspects ways material opinion. referred subsections (e) (f) now (g) embodied established 1978, see 43 Fed. Reg. 55349 (codified, §§404.1520 Even enactment part Amendments 1967, disallowed inability caused "technological changes claimant] worked." §404.1502(b) (1961)

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