MARCO A. HERNANDEZ, District Judge.
Plaintiff Michael Gaggia brings this action seeking judicial review of the Commissioner's final decision to deny disability insurance benefits (DIB). This Court has jurisdiction pursuant to 42 U.S.C. § 405(g). I reverse the Commissioner's decision and remand for additional proceedings.
Plaintiff applied for DIB on February 12, 2010, alleging an onset date of October 29, 2007. Tr. 153-54, 167.
Plaintiff alleges disability based on prior back surgeries and degenerative disc disease. Tr. 185. At the time of the hearing, he was sixty-two old. Tr. 38. He is a high school graduate and completed a total of two years of college courses. Tr. 39, 186. He has past work experience as a "person agent" for a social services "brokerage," a program manager in social services, a server at a resort, and a bank teller. Tr. 187. Because the parties are familiar with the medical and other evidence of record, I refer to any additional relevant facts necessary to my decision in the discussion section below.
A claimant is disabled if unable to "engage in any substantial gainful activity by reason of any medically determinable physical or mental impairment which . . . has lasted or can be expected to last for a continuous period of not less than 12 months[.]" 42 U.S.C. §§ 423(d)(1)(A), 1382c(3)(a).
Disability claims are evaluated according to a five-step procedure.
In the first step, the Commissioner determines whether a claimant is engaged in "substantial gainful activity." If so, the claimant is not disabled.
In step three, the Commissioner determines whether plaintiff's impairments, singly or in combination, meet or equal "one of a number of listed impairments that the [Commissioner] acknowledges are so severe as to preclude substantial gainful activity."
In step four, the Commissioner determines whether the claimant, despite any impairment(s), has the residual functional capacity (RFC) to perform "past relevant work." 20 C.F.R. §§ 404.1520(e), 416.920(e). If the claimant can, the claimant is not disabled. If the claimant cannot perform past relevant work, the burden shifts to the Commissioner. In step five, the Commissioner must establish that the claimant can perform other work.
At step one, the ALJ determined that Plaintiff had not engaged in substantial gainful activity since his alleged onset date. Tr. 22. Next, at steps two and three, the ALJ determined that Plaintiff has the severe impairment of back pain status post two prior back surgeries and fusion of L4-5, but that the impairment did not meet or equal, either singly or in combination with other impairments, a listed impairment. Tr. 24.
At step four, the ALJ concluded that Plaintiff has the residual functional capacity (RFC) to perform sedentary work as defined in 20 C.F.R. § 404.1567(a) except he can only occasionally stoop, kneel, crouch, crawl, or climb ramps, stairs, ladders, rope. or scaffolds. Tr. 24. He should also avoid concentrated exposure to heights, hazards, and heavy equipment.
A court may set aside the Commissioner's denial of benefits only when the Commissioner's findings are based on legal error or are not supported by substantial evidence in the record as a whole.
Plaintiff argues that the ALJ erred at step four in concluding that he could perform his past relevant work as a personal agent broker in social services and at step five in concluding that Plaintiff could perform other work in the national economy. The Commissioner concedes that the ALJ erred at step four. Def.'s Brief at 5-6. The Commissioner contends that the error was harmless because the ALJ made the alternative step-five finding. Based on the Commissioner's concession, I do not discuss the ALJ's step-four findings and I consider only the arguments related to step five.
In concluding that Plaintiff could perform other jobs existing in significant numbers in the national economy, the ALJ initially noted Plaintiff's "advanced age" and "closely approaching retirement age" categories, his education level, and his ability to communicate in English. Tr. 28. Next, he found that Plaintiff had acquired work skills from past relevant work (PRW).
Then, relying on the VE's testimony, the ALJ found that considering Plaintiff's age, education, work experience, and RFC, Plaintiff had acquired work skills from PRW that are transferable to other occupations with jobs existing in significant numbers in the national economy.
As noted, the ALJ relied on the VE testimony. Of relevance here, when the ALJ asked the VE about whether Plaintiff would have transferable skills from his prior jobs, the VE responded yes, but indicated that they would be in the financial cashiering arena. Tr. 59. The skills she noted, such as "basic cashiering skills, customer service skills, [and] information imparting skills," were "mostly from the bank teller position."
Plaintiff contends that the ALJ erred in his step-five finding because (1) his bank teller position was not PRW, undermining the ALJ's reliance on that position as a basis for transferable skills; (2) the ALJ made no findings supporting that Plaintiff can transfer to the identified semiskilled jobs with very little vocational adjustment; and (3) even assuming Plaintiff can transfer acquired skills to the identified jobs, he is still disabled because of his age and limitation to no more than sedentary work. I address Plaintiff's arguments in turn.
Under the Medical-Vocational Guidelines (the "grids"), a claimant of advanced age who is a high school graduate but without the ability for direct entry into skilled work, is disabled if the claimant has no skilled or semiskilled transferable skills from previous work experience. 20 C.F.R. Pt. 404, Subpt. P, App. 2, § 201.06. The claimant is not disabled if the claimant has such transferable skills. 20 C.F.R. Pt. 404, Subpt. P, App. 2, § 201.07;
The ALJ expressly determined that Plaintiff's work skills from his bank teller position were "work skills from past relevant work." Tr. 28 (citing 20 C.F.R. § 404.1568). Because the bank teller position is the undisputed basis for the ALJ's "transferability of skills" determination, that position must qualify as PRW. The regulations define "past relevant work" as "work that you have done within the past 15 years, that was substantial gainful activity, and that lasted long enough for you to learn to do it." 20 C.F.R. § 404.1560(b)(1);
Plaintiff was employed at his bank teller position from February to December 2011 and earned a total of $6,748.70. Tr. 160, 195. In determining whether previous work as an employee is SGA, the Commissioner uses various factors that are relevant to the particular work activity. 20 C.F.R. § 404.1574(a). One of the factors is earnings. 20 C.F.R. § 404.1574(a)(1). The regulation expressly states that the Commissioner "will use" earnings to determine if a claimant has engaged in SGA unless the Commissioner has information that shows that not all of the earnings should be counted.
Earnings that "ordinarily" show that the claimant has engaged in SGA are determined, for calendar year 2001, under a formula provided in 20 C.F.R. § 404.1574(b)(2)(ii). Plaintiff represents, and Defendant does not contest, that the amount in 2001 is $740 per month. Plf.'s Op. Brief at 14 (citing to the "Monthly Substantial Gainful Activity Amounts Chart," available at http://www.socialsecurity.gov/oact/cola/sga.html.). Plaintiff states that regardless of whether his bank teller income is divided by ten or eleven months, his earnings are less than $740 per month.
Plaintiff argues that with earnings less than the $740 per month provided for in the regulation, his bank teller position did not constitute SGA. As a result, it cannot be PRW and thus cannot serve as the basis for transferable skills. As the regulations make clear, earnings alone are not determinative. However, the Ninth Circuit has made equally clear that earnings create a presumption even though they are not conclusive.
The regulations further circumscribe what information the Commissioner may rely on in rebutting the presumption. The Commissioner has declared that the Social Security Administration (SSA) "will generally not consider other information in addition to your earnings except in the circumstances described in paragraph (b)(3)(ii) of this section." 20 C.F.R. § 404.1574(b)(3)(i). Under that provision, the Commissioner may consider other evidence in addition to earnings if it indicates that the claimant "may be engaging in substantial gainful activity" or that the claimant is "in a position to control when earnings are paid" or the amount of wages paid. 20 C.F.R. § 404.1574(b)(3)(ii). Examples of the type of information include whether the claimant's work is comparable to that of unimpaired people in the community and the value of the work according to local pay scales. 20 C.F.R § 404.1574(b)(3)(ii)(A), (B);
Defendant argues that because earnings are not determinative and because Plaintiff failed to show his part-time bank teller work was not the kind of work usually done for pay or profit, or that his duties did not require use of his experience, skills or responsibility, or contribute substantially to the business, the ALJ reasonably concluded that Plaintiff's bank teller work was SGA. While Defendant correctly notes that evidence besides earnings is relevant, Defendant ignores that Plaintiff's below-threshold earnings create a presumption that the bank teller work was not SGA and that it is Defendant's burden to overcome this presumption. The ALJ made no findings regarding any of the information relevant to a finding that the bank teller job which is presumptively not SGA, was in fact SGA. This was error.
Claimants like Plaintiff who are age 55 or older and are limited by a severe impairment to sedentary work are considered disabled unless their previous work experience was skilled or semiskilled and those skills are transferable with "very little, if any, vocational adjustment required in terms of tools, work processes, work settings, or the industry." 20 C.F.R. Pt. 404, Subpt. P, App. 2, § 201.00(f);
SSR 82-41 expands on the regulations by adding that individuals subject to these regulations
SSR 82-41, 1982 WL 31389, at *5-6.
Plaintiff argues that the ALJ erred because his finding that Plaintiff could transfer skills to the four semiskilled occupations identified by the VE is not based on the controlling legal standards. As noted above, when the ALJ asked the VE about transferable skills from his prior jobs, the VE responded affirmatively, stating "[t]hey would most be in the financial cashiering arena. And they would be things like basic cashiering skills, customer service skills, information imparting skills, mostly from the bank teller position." Tr. 59. The VE confirmed that the skills would be "highly marketable."
Based on the VE's testimony, the ALJ concluded that Plaintiff had acquired work skills from his PRW, meaning the bank teller position, that are transferable to other occupations with jobs existing in significant numbers in the national economy. Tr. 29. He then made an express finding that the "jobs listed by the [VE] are so similar to the claimant's previous work that the claimant would need to make very little, if any, vocational adjustment in terms of tools, work processes, work settings, or the industry."
Despite this finding, which repeats the legal standard verbatim, Plaintiff argues that it is insufficient because the ALJ failed to ask the VE to address whether the four semiskilled jobs she identified are so similar to Plaintiff's previous work that he would need very little, if any, vocational adjustment in the relevant contexts. Additionally, the ALJ failed to ask the VE to address whether Plaintiff could perform these semiskilled jobs at a high degree of proficiency with a minimal amount of job orientation. Instead, the ALJ asked an irrelevant question about marketability. Plaintiff contends that the record does not support the ALJ's finding. He notes that all four occupations are in different industries. There is no evidence in the record showing that they use the same or similar tools or work processes as Plaintiff's bank teller job. And, there is no evidence that any have the same or similar work settings. Because the finding is not supported by substantial evidence, Plaintiff argues that the ALJ erred.
Defendant argues that Plaintiff's skills were clerical and administrative in nature because he performed check cashing services, took deposits, and escorted customers to their safe deposit boxes. Tr. 197. These skills applied to what the VE determined were three jobs "clustered together." Tr. 59 (listing check cashier, food checker, and auction clerk). As such, Defendant contends, the ALJ reasonably concluded that Plaintiff would require little if any vocational adjustment to perform the identified semiskilled jobs.
I disagree. While the ALJ recites part of the proper standard in his decision by stating that the identified jobs are so similar to Plaintiff's previous work that "very little, if any, vocational adjustment in terms of tools, work processes, work settings, or the industry" would be required, he failed to acknowledge that the jobs must be "so closely related to other jobs they can perform that they could be expected to perform these other identified jobs at a high degree of proficiency with a minimal amount of job orientation." Additionally, the basis for the ALJ's determination that the jobs are "so similar" that they would require "little, if any vocational adjustment," is unclear. The VE testified that Plaintiff's skills would be transferable in the "financial cashiering arena," but none of the identified jobs appear to be in that industry. And although the VE noted some specific skills that Plaintiff likely obtained from the bank teller job, there was no testimony that Plaintiff's skills are properly considered "clerical, professional, administrative, or managerial," or testimony about the amount of adjustment that Plaintiff would need. While the ALJ expressed a finding consistent with the correct legal standard, it was incomplete and absent explanation of the supporting substantial evidence. Without elaboration, the VE's testimony is too vague to support the ALJ's finding. Accordingly, I agree with Plaintiff that the ALJ erred.
In support of his third argument, Plaintiff relies on a rule directed to those limited to light work. Specifically, the rule states that
20 C.F.R. Pt. 404, Subpt. P, App. 2, § 202.00(c) (emphasis added). Focusing on the phrase "a significant range of semi-skilled or skilled work," Plaintiff argues that the four semiskilled jobs identified by the VE are not a "significant range of work."
Plaintiff relies on a 2006 Ninth Circuit case which addressed the applicability of Rule 202.00(c).
After first concluding that the ALJ erred by consulting a VE and not relying solely on the grids for the disability determination
The court rejected the Commissioner's position that "`work' refers to individual jobs, and the phrase `significant range' only requires [the claimant] to adjust to other work existing in significant numbers in the national economy in one or more occupations."
Plaintiff argues that the
As Defendant notes, however, Rule 202.00(c) appears in the section of the grids governing "light" work, not "sedentary" work, the capacity of work at issue here. Importantly, the Ninth Circuit has rejected a similar argument brought by a Plaintiff also limited to sedentary work. In
The claimant argued that the ALJ's step-five determination was error under
The claimant in
The court rejected this argument. It explained that
Additionally, the court noted, the grid rules relating to sedentary work exertion do not contain the language of Rule 202.00(c).
Although the ALJ erred, this case should be remanded for additional proceedings and not for a determination of benefits. The ALJ erred by failing to provide evidence to overcome the presumption, created by Plaintiff's low earnings, that the bank teller position was not SGA. As a result, his determination that the position was PRW and provided the basis for transferable skills was error. Because the wages Plaintiff earned from the bank teller position create only a presumption that it was not SGA and are not determinative, remanding to allow the ALJ to review the record is the appropriate. The ALJ also erred by not obtaining VE testimony regarding Plaintiff's transition to other work and whether more than "very little" adjustment is needed. Additional VE testimony on this issue is required. Thus, remand for additional proceedings is the proper disposition.
The Commissioner's decision is reversed and remanded for additional proceedings.
IT IS SO ORDERED.