Legal Document

461 U.S. 458 103 S.Ct. 1952 76 L.Ed.2d 66 Margaret H. HECKLER, Secretary of Health and Human Services, Petitioner,v.Carmen CAMPBELL. No. 81-1983. Argued Feb. 28, 1983. Decided May 16, Syllabus To be entitled to disability benefits under the Social Security Act a person must not only unable perform his former work but also unable, considering age, education, experience, any other kind gainful that exists in national economy. Prior 1978, cases where claimant was found pursue occupation, so severe as prevent pursuing work, Services (Secretary) relied on vocational experts determine whether jobs existed economy could perform. In improve uniformity efficiency such determinations, promulgated medical-vocational guidelines setting forth rules establish exist. If claimant's qualifications correspond job requirements identified by rule, direct conclusion can exists, is considered disabled. After respondent's application for denied, she requested hearing before an Administrative Law Judge, who, relying guidelines, perform, accordingly concluded Both Appeals Council District Court upheld this determination. But reversed, holding did provide adequate evidence specific alternative respondent absence deprived chance present types therefore determination disabled supported substantial evidence. Held: The Secretary's use right does conflict with nor are arbitrary or capricious. Pp. 465-470. (a) While statutory scheme contemplates hearings will individualized determinations based evidence, bar from rulemaking resolve certain classes issues. exist having requires factual issue unique each may resolved fairly through introducing testimony at hearing. require relitigate existence would hinder already overburdened agency. 465-468. (b) principle administrative law when agency takes official notice facts, litigant given opportunity respond, inapplicable where, case, has valid regulations. When accuracy facts been tested during rulemaking, proceeding itself provides sufficient procedural protection. Pp.468-470 665 F.2d 48 (10th Cir., 1981), reversed. John Garvey, Lexington, Ky., petitioner. Ruben Nazario, Brooklyn, N.Y., respondent. Justice POWELL delivered opinion Court. 1 rely published benefits. 2 * defines "disability" terms effect physical mental impairment person's ability function place. It persons who "to engage activity reason medically determinable impairment." 42 U.S.C. § 423(d)(1)(A). And it specifies "not [be] do previous [must unable], [to] which economy, regardless immediate area he lives, vacancy him, hired if applied work." 423(d)(2)(A). 3 regulations implementing definition. See 43 Fed.Reg. 55349 (1978) (codified amended 20 CFR pt. 404, subpt. P (1982)). recognize impairments they work. 404.1520(d) (1982) (referring listed P, app. 1). A establishes suffers one these without further inquiry. Ibid. less impairment, retains either some demanding employment. 404.1520(e). cannot, capacity 404.1520(f)(1). 4 divide last inquiry into two stages. First, assess qualifications. consider factors Congress relevant: ability, education experience.1 423(d)(2)(A); 404.1520(f). Second, 404.1520(f); §§ 404.1566-404.1569. 5 suitable limitations abilities had determined hearing, expert ordinarily testify Although often standardized guides, see 9286 (1978), frequently were criticized their inconsistent treatment similarly situated claimants. Santise v. Schweiker, 676 925, 930 (CA3 1982); J. Mashaw et al., Hearings 78-79 (1978). both efficiency2 determination, part 1978 (1982). 6 These relieve need establishing numbers They consist matrix four Congress—physical experience3—and set identify requiring combinations significant economy.4 Where rule,5 II 7 1979, Carmen Campbell because back condition hypertension prevented her continuing hotel maid. de novo Judge.6 He problem enough find inquiry, retained past strenuous job. App. Pet. Cert. 28a. even though Campbell's returning maid, light accordance regulations, 52-years old, employment consisted unskilled limited education. Id., 28a-29a. noted Campbell, born Panama, experienced difficulty speaking writing English. She able, however, understand read English well. 42. Relying Judge number Accordingly, disabled.7 29a. 8 This Council, id., 16a, Eastern New York, 15a. Second Circuit HHS, (CA2 1982). accepted Judge's suggest classified experience incorrectly. court noted, 9 "has consistently required 'the occupations available claimant' 'these "a description clarifying nature job, [and] demonstrating require" exertion skills possessed claimant.' " 53 (quotingDecker Harris, 647 291, 298 1981)). 10 previously required. explained showing, "the real showing cannot fact administratively noticed guidelines." failed introduce existed, 54. 11 We granted certiorari among Courts Appeals.8 Schweiker --- ----, 102 2956, 73 1348 now reverse. III 12 argues Appeals' effectively prevents guidelines. By every rendered useless. An examination language its legislative history clearly demonstrates proceed regulation response misperceived holding. reads decision give claimants concrete examples kinds making. requirement defeat guidelines' purpose; ensures appropriate. we address validity. A. 13 held "[i]n failing show Ms. finding 'not disabled' evidence." F.2d, thus rejected proposition occupation," 53, remanded put "particular capabilities Campbell," court's additional introduced putting intended implicitly calls validity question.9 think below us appropriate cases. 14 directs "adopt reasonable proper regulate extent proofs method taking furnishing same" 405(a). As have recognized, "conferred exceptionally broad authority prescribe standards applying sections [Social Security] Act." Gray Panthers, 453 34, 43, 101 2633, 2640, 69 460 (1981); Batterton Francis, 432 416, 425, 97 2399, 2405, 448 (1977). Where, here, statute expressly entrusts responsibility provision regulation,10 our review determining exceeded Herweg Ray, 455 265, 275, 1059, 1066, 71 137 (1982); supra, U.S., 44, S.Ct., 2640. 15 reliance Act. true adduced 423(d)(2)(A) (specifying consideration individual's condition); 405(b) (1976 ed., Supp. V) (disability hearing). recognized agency's enabling hold issues case-by-case consideration. FPC Texaco, Inc., 377 33, 41-44, 84 1105, 1110-1112, 112 (1964); United States Storer Broadcasting Co., 351 192, 205, 763, 771, 100 L.Ed. 1081 (1956). contrary continually established efficiently single proceeding. 1112. 16 consistent Texaco Storer. above, make determinations. individual then first involves historic properly findings basis note afford ample relating own offer apply them.11 second claimant—the type general American Airlines, Inc. CAB, 123 U.S.App.D.C. 310, 319, 359 624, 633 (1966) (en banc). 17 argued, brings perceived lacking. needlessly conclude statute, say record B 18 argument specify jobs. contends informs regulation, 404.944 (1980), Due Process Clause. 19 referring 53-54, invites interpretation said raises.12 violation Clause designed implement it. (requiring "reasonable hearing"). Nor violated duty imposed regulation. "loo[k] fully issues"). Rather reference respond appears respond.13 556(e); McDaniel Celebrezze, 331 426 (CA4 1964). inapplicable, Its purpose safeguard: ensure notice. those protection.14 See, e.g., Rivers 684 1144, 1156 (CA5 Broz 677 1351, 1362 (CA11 Torres 167, 169 (CA1 IV 21 limit severely reasonably choose rather than case. judgment 22 Reversed. 23 BRENNAN, concurring. 24 I join Court's opinion. merits comment, received, ante, 462-463, way indicative standard practice, reflects poorly adherence what Chief Godbold called "duty inquiry": 25 "[T]here 'basic obligation' ALJ nonadversarial proceedings develop full fair record, obligation rises 'special . scrupulously conscientiously explore all relevant facts' unrepresented waived counsel. include, case decided grids, inquire possible nonexertional exertional range 1364 1982).1 26 brief Court, acknowledges embody relies upon answering contentions. Brief Petitioner (citing supra ); 468, n. 12. inquire" special urgency little fluency English, and, cost minimal. 27 order disabled, "light work," compare 2, 201.10 (1982), 202.10, capable frequent lifting carrying objects weighing up pounds sometimes pounds, 404.1567(b) included disinterested doctor's report medical unexplained statement "Patient return light-duty 11, subsequent doctor stating lift carry "up pounds," 32. "without basis." Cert.App. 23a-25a. Yet entirely adduce At several points stated things, question subject all,2 "light-duty work" meant same thing term 28 besides strength, combined impairments, 200.00(e)(2); 462, 5. Apparently dispositive us: since 463, 7, emotional complications explored led petition case.3 29 presented Appeals, passed 468-469, ensuring accurate claims, placed Judges poor substitute good-faith performance inquiry" have. federal courts successful enforcing past, 1, respectfully insist faithful future 30 MARSHALL, concurring dissenting part. 31 agree valid, believe presents judge fulfilled issues." Richardson Perales, 402 389, 410, 91 1420, 1431, 842 (1971) (at "ac[t] examiner charged developing facts"). remand proceedings. 32 adequacy judge's clear, demonstrate follows: 33 'The key challenge suitability noticed. .' [O]ur major concern demands allegedly available. Absent notice, particularly gave no indication 'light work' performing. ." 48, 53-54 quoting Decker 1981).1 34 listing particular Campbell." 35 amply justified conducted central performing work."2 shown afforded never apprised advance represented counsel, entailed. Moreover, although inquired length problems, problems complete questioning concerning daily essential resolving manner.3 36 above-quoted portions my satisfaction received raised below. well within 405(g) new conduct inquiry.4 That just fulfill elicit giving few allowing explain why state assessment limitations. 404.1545-404.1565 cf. 404.944. consider, example, tasks stand long periods time impaired. 404.1545. system "probably largest adjudicative western world." p. xi Approximately 2.3 million claims filed fiscal year 1981. Department Annual Report Fiscal Year 1981, pp. 32, More quarter Judge. 38. self-evident. Each divided defined categories. tasks, categorized according necessary varying jobs—i.e., sedentary, light, medium, heavy, very heavy 404.1567. categories places worker, weight extensive movement arm leg controls For rule 202.10 closely approaching advanced literate communicate whose unskilled. describe "major functional patterns." 200.00(a). described accurately clear considered. 200.00(a), (d). Additionally, declare age "mechanically borderline situation," 404.1563(a), possess factored 200.00(e). Thus, accurately. V); 421(d). exercise right. 404.929-404.930. accept claim constituted impairment. documented current medication appeared keep blood pressure control. 27a. later reapplied January 8, 7. moot claiming entitlement prior Every addressing 1157-1158 McCoy 683 1138, 1144-1146 (CA8 934-936 Cummins 670 81, 82-83 (CA7 Kirk 667 524, 529-535 (CA6 1981); Frady 646 143, 145 1981). One agreed respect arbitrary. 1359-1361 1982), cert. pending, 82-816. instant addressed Broz. invalidating 1145; 169; 937, 25. Since 1954 benefits, Pub.L. 761, 106, 68 Stat. 1079, repeatedly suggested promulgate defining criteria evaluating disability. Subcommittee Administration Laws House Committee Ways Means, 86th Cong., 2d Sess., Disability Insurance Program: Preliminary 17-18 (Comm.Print 1960) (requesting "specific nonmedical evaluation disability"); 93d Staff Program (1974) (recommending ease accelerating load); H.R. 8076 95th 1st Sess. 1977) (comments Rep. Burke) (noting approval promised define disability). sources original congressional intent, indicate Congresses statute. 40, 1109, (1964), 1087 (1956), careful allowed applicant should him. here equal greater protection contained fail 5, supra. Respondent raise due process regulatory Appellant 81-6908 (CA2); Tr. Oral Arg. 30. cross-petition. prevailed below, grounds supporting different rested decision. Dandridge Williams, 397 471, 475-476, 6, 90 1153, 1156-1157, 491 (1970). ground "only exceptional cases." McGoldrick Compagnie Generale Transatlantique, 309 430, 434, 60 670, 672, 849 (1940). Alternatively, suggests concedes 42, undertaken satisfied duty. Again decline reach here. imposing earlier 291 Decker, source more clearly. stated: "This specificity assures providing him rebuttal generally K. Davis, Treatise 15.18, 198-206 (2d ed. 1980)." 298. 15.18 treatise, Professor Davis addresses material respond. states take emphasizes, "[a] quick remark availability unfair lack specificity. identified, characteristics stated. 204 (emphasis added). Decker's treatise makes derives law. itself, accorded issues, limitations, 462-463. Accord, Thompson 936, 941 (CA9 Ware 651 408, 414 Diabo Secretary, 627 278, 282 (CADC 1980); Cox Califano, 587 988, 991 1978); Smith 857, 860 Gold 463 38, 1972). claimants' basic constitutional adjudication including Mathews Eldridge, 424 332-335, 339, 96 893, 901-903, 904, 47 (1976); 402-404, 1427-1428, (1971). Goldberg Kelly, 254, 262-263, 1011, 1017-1018, 287 Inherent concept decisionmaker's inform himself about learn version facts. Goss Lopez, 419 565, 580, 95 729, 739, 725 (1975). following colloquy record: "Q. Can you bend? "A. bend. warned me weights. Uh-huh. And— stood times you've here." 50 point much ask how shopping, might elicited information crucial regularly lift. App., 2a-3a. similar except took "an obese, sad individual, marked difficulties sitting, standing, walking," disorder "complicated overlay." 3a. certainly anticipated procedure "would [the Secretary's] guidelines," 470, "rende[r] useless." Ante, 465. simply "if there [approximately 1,600 work'] available, too great burden incapable stress specified issue." "Light "(b) Light pounds. Even lifted little, category good deal walking sitting most pushing pulling controls. wide substantially activities." disability, herself. "[I]f functioning impaired conditions, almost come himself, people contact life. activities, interest success claim, imperative ALJs draw out claimants, detail, arena credibility judgments ALJs. seems necessarily made, situation ALJ." Judges: Survey Issue Paper, 96th 1979). Currier Health, Education Welfare, 612 594, 598 Veal 610 495, 497-498 1979); 990-991 Copley Richardson, 475 772, 773-774 1973).

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