Legal Document

535 U.S. 212 BARNHART, COMMISSIONER OF SOCIAL SECURITYv.WALTON. No. 00-1937. Supreme Court of the United States. Argued January 16, 2002. Decided March 27, CERTIORARI TO THE UNITED STATES COURT APPEALS FOR FOURTH CIRCUIT The Social Security Act authorizes payment Title II disability insurance benefits and XVI Supplemental Income to individuals who have an "inability engage in any substantial gainful activity by reason medically determinable ... impairment which has lasted or can be expected last for a continuous period not less than 12 months." 42 U. S. C. § 423(d)(1)(A) (emphasis added); accord, 1382c(a)(3)(A). Administration (Agency) denied respondent Walton, finding that his "inability" only 11 months. District affirmed, but Fourth Circuit reversed, holding 12-month duration requirement modifies "impairment" "inability," statute leaves no doubt similar relates therefore Walton was entitled despite Agency regulations restricting them those unable work court decided further qualified because, prior return work, would been "expected" It conceded had made Walton's actual within months onset date before Agency's decision determinative on this point, 20 CFR §§ 404.1520(b), 1592(d)(2), found conflicted with statute. noted simply counted as part 9-month trial during persons "entitled" may without loss benefits, 422(c). Held: interpretations fall its lawful interpretative authority. Pp. 217-225. (a) reading term is reasonable. requires both providing "reason" adding must determined formal interpretation same amount time. Courts grant considerable leeway agency's own regulations, properly interpreted regulation here. Thus, decide (1) whether unambiguously forbids interpretation, if not, (2) exceeds permissible bounds. Chevron A. Inc. v. Natural Resources Defense Council, Inc., 467 837, 843. First, does forbid regulation. That statute's phrase shows provision says nothing explicitly about "inability's" duration. Such silence normally creates, resolve, ambiguity. Second, construction permissible. supplies requirement, demands, way consistently reconciles statutory language. also reflect longstanding should accorded particular deference, North Haven Bd. Ed. Bell, 456 512, 522, n. 12. Finally, Congress frequently amended reenacted relevant provisions change. claim II's 5-month waiting entitlement protects against claimant chronic, briefly disabling, disease shows, at most, could chosen other reasonable time periods. Moreover, such period, yet offers explanation why identical definitional language differently closely related context. argument disregarded because were recently enacted rejected. E. g., Smiley Citibank (South Dakota), N. A., 517 735, 741. And automatically deprived judicial deference otherwise due it previously reached through means notice-and-comment rulemaking. Chevron, supra, 217-222. (b) Also consistent "[y]ou are period" "you perform you disabled," 404.1592(d)(2) added). ambiguous, treats pre-Agency-decision "can last" question. complexity, vast number claims engenders, consequent need agency expertise administrative experience lead read delegating authority fill matters detail administration. See Schweiker Gray Panthers, 453 34, 43-44. issue matter. 222-225. 235 F. 3d 184, reversed. BREYER, J., delivered opinion Court, Parts I III unanimous, Part joined REHNQUIST, STEVENS, O'CONNOR, KENNEDY, SOUTER, THOMAS, GINSBURG, JJ. SCALIA, filed concurring judgment, post, p. 226. Jeffrey Lamken argued cause petitioner. With him briefs Solicitor General Olson, Assistant Attorney McCallum, Deputy Kneedler, John Hoyle, Mark Davies. Kathryn L. Pryor respondent. her brief James W. Speer.* JUSTICE BREYER Court. 1 disabilities. 49 Stat. 622, amended, 401 et seq. (1994 ed. Supp. V) (Title benefits); 1381 supplemental security income). For types defines key "disability" 2 physical mental result death ed.) II) 1382c(a)(3)(A) ed., XVI). 3 This case presents two questions Administration's definition. 4 (which we shall call Agency) reads including "12 month" requirement. In view, (to activity) last, least "expected applicable when later determination — where did will assume failed meet look back hypothetically whether, claimant's expired, nonetheless might long. 5 Appeals held these unlawful. We hold, contrary, interpretive 837 (1984). Consequently, reverse. 6 * 1996 Cleveland respondent, applied Income. October 31, 1994, developed serious illness involving schizophrenia associated depression; caused then lose job full-time teacher; (3) mid-1995 he began again cashier; (4) December 1995 working cashier full 7 concluded prevented from engaging significant i. e., "engag[ing] activity," 1994 (when lost teaching job) until end September earned income sufficient rise level "substantial activity"). 404.1574, 416.974 (2001). demanded activity" lasting 12, 11, months, benefits. 8 sought review. affirmed decision, Apfel, 186-187 (2000). said word "impairment," "inability." Id., 189. added "language doubt" there "duration requirement" activity). Ibid. that, "speaks clearly" "unambiguous," receive period. 9 went event, one 189-190. point. 1592(d)(2) But unlawful gave benefit hindsight ground they clear command. 3d, 190. 10 either reason, concluded, became April 1995, five after illness. 423(a)(1)(D)(i), 423(a)(1)(D)(ii) (providing "waiting benefits), 423(c)(2)(A) ed.). legally beside "trial period," grants permits Government certiorari. pointed out Circuit's first conflicts Circuits, compare 189-190, Titus Sullivan, 590, 594-595 (CA8 1993), Alexander Richardson, 451 2d 1185 (CA10 1971). views contrary well-settled law create additional costs $80 billion over years. granted writ. now definition parts. certain kind namely, activity." "physical impairment," provides adds "has what "inability"? Must (or last) time? 13 answered question affirmative. Acting pursuant rulemaking authority, 405(a) II), 1383(d)(1) XVI), promulgated state disabled "regardless [his] medical condition," doing 404.1520(b) mean "within longer prevents 65 Fed. Reg. 42774 legal leeway. Auer Robbins, 519 452, 461 (1997); Udall Tallman, 380 1, 16-17 (1965). here denies 14 us lawful. speaks clearly "to precise issue," "must give effect expressed intent Congress." S., 842-843. If, however, "is silent ambiguous respect specific sustain "based construction" Act. Hence and, reasons, bounds Ibid.; see States Mead Corp., 533 218, 227 15 believed primarily linguistic reason. linguistically speaking, "12-month" extent agree. After all, statute, parallel phrasing, uses words "which death." structurally makes sense reference 16 Nonetheless, point insufficient. silence, creates resolve it. 17 nearby 18 "individual under [is] severity do previous cannot exists national economy." 423(d)(2)(A) II); 1382c(a)(3)(B) 19 words, provisions, specifies severe enough prevent virtually work." concede, nowhere (i. work") fair inference Brief AARP al. Amici Curiae (conceding remain "disabling severity" months). At very respect. And, so, equally latter statement "engage year) virtual equivalent former work" year). rephrases slightly different way. "permissible." terms basic objectives. demands some No permit individual chronic say, high blood pressure qualify illness, while itself year, week, perhaps even day, away job. so 21 addition, interpretation. Ruling 82-52, 106 (cum. 1982) ("In considering `duration,' inability [substantial activity] required period"); Disability Insurance State Manual 316 (Sept. 9, 1965), Lodging, Tab C, ("Duration refers continuously of" impairment); OASI Letter 39 (Jan. 22, 1957), id., A, (duration impairment" "level preclude" accord "longstanding" (1982). 22 Amendments 1965, 303(a)(1), 79 366; Rep. 404, 89th Cong., 1st Sess., pt. I, pp. 98-99 (1965) ("[T]he committee's bill provide[s] insured worker totally throughout calendar months" added)); 98 (rejecting effort provide "shortterm, temporary disabilit[ies]," defined six months); H. R. 92-231, 56 (1971) ("No payable, unless lasted) consecutive 744, 90th (1967) ("The committee believes impairments considered disabling purposes establishing disability"). These circumstances evidence more needed intended understood statutorily Commodity Futures Trading Comm'n Schor, 478 833, 845-846 (1986). 23 points reply stating "under beginning month after" "five which" disability." 423(c)(2)(A). He assures lengthy applicant (who disability" throughout) work. thereby ironclad protection suffers disease, our earlier example. 219. help periods matter disputed. Regardless, II, XVI. though explain interpret contexts. Department Revenue Ore. ACF Industries, 510 332, 342 (1994) ("`[I]dentical used parts act meaning'" (quoting Sorenson Secretary Treasury, 475 851, 860 (1986) (some internal quotation marks omitted)). 24 asks disregard response litigation. rejected arguments. 741 (1996); Morton, 822, 835-836, 25 long standing. 220. fact "notice comment" rulemaking, 553, deprive due. Cf. 843 (stating, delineation means, "`power administer congressionally created program necessarily formulation policy'" Morton Ruiz, 415 199, 231 (1974))). If Court's Christensen Harris County, 529 576 (2000), suggested absolute rule 218 (2001), suggestion. 230-231 want notice comment "does case"). Indeed, instances emerge (citing NationsBank C., Variable Annuity Life Ins. Co., 513 251, 256-257 (1995)). indicated depends upon method nature issue. 229-231. discussed length require present discussion superfluous presence absence dispositive. 231-234. 26 case, interstitial question, Agency, importance administration complexity administration, careful consideration given all indicate appropriate lens view legality supra; cf. K. Davis & Pierce, Administrative Law Treatise 1.7, 3.3 (3d 1994). 27 find 28 second complex. making claim, assumes just decided, requirements apply requirements. concedes returned count adds, "entitle[d]" 29 To illustrate argument, simplify circumstances. imagine: On Year One, impairment, work; Eleven (not twelve) later, July Two, adjudicated, denied, argues looked matter, ex looking conclude 423(d)(1)(A). consequently satisfied turn period; subsequent cashier, being work," him. 30 plainly reject They "You impairment(s) disabled." deciding work) One ask 31 Appeals, accepting not. rules permitting use reviewing inconsistent plain language, 191. here, courts agreed. Salamalekis Commissioner Soc. Sec., 221 828 (CA6 2000); Newton Chater, 92 688 1996); Walker Health Human Servs., 943 1257 1991); McDonald Bowen, 818 559 (CA7 1986). 32 believe ambiguous. how adjudicates treat Its 423(d)(1)(A), say measures "expectation." perspective, expected" foresees decisionmaker into future, past order "was," "could be," been" expected. context, purpose award denying hindsight. Reg., 42780; 99. 33 time, seems reasonable, hence permissible, e. expectation Two's hindsight, "can" "be avoids Two answer highly unwieldy grammarians pluperfect future tense. 34 Of course, administrators judges capable answering hypothetical kind. concerns contrary-to-fact speculation future. however often raised, rarely prove easy resolve. demand resolution. why, things equal, returns too early ordinarily if, surprise. says, encourage discourage) generally 1856, 86th 15-16 (1960). make desirable overriding principle. recognized addressed problem disincentives ways. See, 404.1574(c), 404.1575(d) 35 in, 43-44 (1981). 36 37 judgment 38 Reversed. Notes: Rochelle Bobroff, Michael Schuster, Robert Rains amici curiae urging affirmance. judgment. join agree owed (SSA) interpreting "disability," V). As acknowledges, recency irrelevant, seeante, 220-221 (1984)). go on, does, ante, 219-222, address SSA's 1982 Ruling, 1965 Manual, 1957 Letter. believe, begin with, "particular deference" `longstanding' duration,"ante, notion anachronism relic pre-Chevron days, thought "correct" text. A particularly dated origins likely single correct meaning. Watt Alaska, 259, 272-273 once accepted, range interpretations, free move another, most recent antiquity difference. Rust 500 173, (1991); 863-864 wish credit giving position relying congressional reenactment presumed knowledge position, 219-220 think authoritative whatever-else-enough requires) deference. course noticeand-comment qualifies, 221-222, concession alone validate (Only two, out, antedate reenactments relies.) emerged merit said.

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