Hunter v. Saul

District Court, S.D. California·Decided March 30, 2022·No. 3:20-cv-01646·Unknown

Opinion

KARENLEE H., Case No.: 20-cv-1646-AGS Plaintiff, ORDER ON PLAINTIFF’S SUMMARY-JUDGMENT MOTION v. (ECF 13) Andrew SAUL, Defendant. This Social Security claimant appeals the denial of her disability benefits. In November 2017, Karenlee H. filed for Social Security disability insurance benefits claiming she had become unable to work in 2015. (AR 172-73.) She alleged she was disabled on account of her left foot fracture and 2015 surgery, shoulder (particularly left shoulder) problems, back pain, osteoarthritis in her knees, hypertension, osteoporosis, obesity, and depression. (See AR 12-13.) The Administration first sent her application to two doctors. They both determined, after review of her medical records, that she was capable of “medium” exertion work (see AR 78, 93), which means she can lift 50 pounds, frequently carry 25 pounds, and walk or stand six hours of an eight-hour day. See SSR 83-10, 1983 WL 31251, at *6. Because there were jobs that she could do with that capability, her disability request was denied. Karenlee then requested a hearing before an Administrative Law Judge to reconsider those denials. (AR 117-18.) While waiting for the ALJ hearing, a CT scan confirmed that her left foot was broken again. (AR 17, 724.) Two months later, she had a second surgery on her left foot. (AR 726-27.) Healing from that surgery took several months, during which she was gradually allowed to place some weight on the foot. (AR 730-35.) Five months post-surgery, she was cleared to “weight bear as tolerated” on her left foot and use a cane. (AR 688.) Less than a month later, the Social Security Administration sent Karenlee to Dr. David T. Easley for an examination. (AR 669-75.) He examined, among other things, her feet, shoulders, back, knees, and gait. (See AR 672-74.) Unlike the last two doctors, Dr. Easley concluded that she was capable of only “sedentary” tasks: sitting for six hours during an eight-hour workday, walking or standing the other two, lifting and carrying 10 pounds occasionally, and less than 10 pounds frequently. (AR 675.) This distinction became critical, because if Karenlee were limited to sedentary work, given her age, the ALJ concluded she would be disabled. (AR 64.) A vocational expert testified that even if she were limited to four hours of standing and four hours of sitting, given her age and other restrictions, Karenlee would still be considered disabled. (AR 62.) But the expert also testified that if Karenlee was restricted, along with her other limitations, to light exertion—“standing or walking, off and on, for a total of approximately 6 hours of an 8-hour workday” and lifting “no more than 20 pounds” with “frequent lifting of objects weighing up to 10 pounds”—she could work and therefore would not be disabled. See SSR 83-10, 1983 WL 31251, at *6; (AR 60-61). The ALJ determined that the medium exertional level found by the state-agency doctors—who reviewed Karenlee’s records before her second foot surgery—was “less restricting than the overall records supports.” (AR 21.) But the ALJ was also concerned Dr. Easley’s one-time evaluation, recommending a sedentary exertional level, may “have been influenced by then-limiting residual effects of the claimant’s recent left foot surgery . . . .” (AR 20.) So the ALJ split the difference and concluded that Karenlee was limited to light work. (AR 15.) Based on the vocational expert’s testimony, he found Karenlee not disabled. (AR 23.) Karenlee appeals, arguing that the ALJ: (1) provided insufficient reasons for rejecting the sedentary exertion level recommended by Dr. Easley, (2) did not sufficiently support his light-exertion conclusion, and (3) inappropriately discounted her testimony. A. Dr. Easley’s Recommended “Sedentary Work” Restriction Before considering the ALJ’s treatment of Dr. Easley’s opinion that Karenlee was restricted to sedentary work, the Court must clarify the current state of the law regarding medical-opinion evidence. 1. The Evolving Law on Medical-Opinion Evidence For decades, the Social Security Administration considered medical opinions under what became known as the “treating-physician rule,” see 20 C.F.R. § 404.1527, and interpretations of that regulation led to a large body of case law. See, e.g., Trevizo v. Berryhill, 871 F.3d 664, 675-77 (9th Cir. 2017); Arakas v. Comm’r of Soc. Sec., 983 F.3d 83 (4th Cir. 2020); Jones v. Astrue, 647 F.3d 350 (D.C. Cir. 2011); Calvert v. Firstar Finance, Inc., 409 F.3d 286 (6th Cir. 2005); Gilbertson v. Allied Signal, Inc., 328 F.3d 625 (10th Cir. 2003); Hackett v. Barnhart, 395 F.3d 1168 (10th Cir. 2005); Leggett v. Chater, 67 F.3d 558 (5th Cir. 1995). But for claims filed after March 2017, like this one, that regulation was replaced with 20 C.F.R. § 404.1520c. The new regulation streamlined the consideration of medical opinions, removing the old rule’s medical-provider hierarchy and increasing ALJ discretion by cutting down the number of considered factors. Karenlee argues that the change in regulations should have little-to-no effect on how this Court reviews Social Security cases. (ECF 16, at 2.) And some courts agree. See, e.g., Shawn H. v. Comm’r of Soc. Sec., No. 19-CV-113 (JMC), 2020 WL 3969879, at *6 (D. Vt. July 14, 2020) (“Even though ALJs are no longer directed to afford controlling weight to treating source opinions[,] . . . the regulations still recognize the ‘foundational nature’ of the observations of treating sources, and ‘consistency with those observations is a factor in determining the value of any [treating source’s] opinion.’” (quoting Barrett v. Berryhill, 906 F.3d 340, 343 (5th Cir. 2018)). The Commissioner, however, argues that the regulations shift how medical opinions are considered by the ALJ, so the review of those decisions should also change. (ECF 15, at 9-17.) The Commissioner is correct. The Administration is required by regulation to seek out and consider medical opinions, see 20 C.F.R. § 404.1512(b)(1), and how it then considers those opinions is left by statute to the Administration’s rulemaking authority. See 42 U.S.C. § 405(a). The purpose in changing the regulation—removing the hierarchy of different kinds of medical opinions and reducing the number of required factors—was to reduce the automatic deference paid to some medical opinions and thereby increase the discretion left to the ALJ in how to consider each medical opinion. See Social Security Administration, Revisions to Rules Regarding the Evaluation of Medical Evidence, https://www.ssa.gov/disability/professionals/bluebook/revisions-rules.html (last visited March 29, 2022) (“For claims filed on or after March 27, 2017, our rules about how we consider medical opinions will change. First, we will no longer give any specific evidentiary weight to medical opinions; this includes giving controlling weight to any medical opinion. Instead, we will consider the persuasiveness of medical opinions using the factors specified in our rules.”). The Court is required to give effect t

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