Loving v. US Social Security Administration, Acting Commissioner
Filing
15
///ORDER granting 10 Motion to Reverse Decision of Commissioner; denying 11 Motion to Affirm Decision of Commissioner. Loving's motion to reverse is granted to the extent that the case is remanded to the Acting Commissioner for further proceedings, pursuant to sentence four of 42 U.S.C. § 405(g). The clerk of the court shall enter judgment and close the case. So Ordered by Judge Landya B. McCafferty.(gla)
UNITED STATES DISTRICT COURT
FOR THE DISTRICT OF NEW HAMPSHIRE
Donna Loving
v.
Civil No. 15-cv-336-LM
Opinion No. 2016 DNH 083
Carolyn W. Colvin, Acting
Commissioner, Social
Security Administration
O R D E R
Pursuant to 42 U.S.C. § 405(g), Donna Loving moves to
reverse the Acting Commissioner’s decision to deny her
application for Social Security disability insurance benefits,
or DIB, under Title II of the Social Security Act, 42 U.S.C. §
423, and her application for supplemental security income, or
SSI, under Title XVI, 42 U.S.C. § 1382.
The Acting Commissioner
moves for an order affirming her decision.
For the reasons that
follow, this matter is remanded to the Acting Commissioner for
further proceedings consistent with this order.
I. Standard of Review
The applicable standard of review in this case provides, in
pertinent part:
The [district] court shall have power to enter, upon
the pleadings and transcript of the record, a judgment
affirming, modifying, or reversing the decision of the
Commissioner of Social Security, with or without
remanding the cause for a rehearing. The findings of
the Commissioner of Social Security as to any fact, if
supported by substantial evidence, shall be conclusive
. . . .
42 U.S.C. § 405(g) (setting out the standard of review for DIB
decisions); see also 42 U.S.C. § 1383(c)(3) (establishing §
405(g) as the standard of review for SSI decisions).
However,
the court “must uphold a denial of social security . . .
benefits unless ‘the [Acting Commissioner] has committed a legal
or factual error in evaluating a particular claim.’”
Manso-
Pizarro v. Sec’y of HHS, 76 F.3d 15, 16 (1st Cir. 1996) (per
curiam) (quoting Sullivan v. Hudson, 490 U.S. 877, 885 (1989)).
As for the statutory requirement that the Commissioner’s
findings of fact be supported by substantial evidence, “[t]he
substantial evidence test applies not only to findings of basic
evidentiary facts, but also to inferences and conclusions drawn
from such facts.”
Alexandrou v. Sullivan, 764 F. Supp. 916,
917-18 (S.D.N.Y. 1991) (citing Levine v. Gardner, 360 F.2d 727,
730 (2d Cir. 1966)).
In turn, “[s]ubstantial evidence is ‘more
than [a] mere scintilla.
It means such relevant evidence as a
reasonable mind might accept as adequate to support a
conclusion.’”
Currier v. Sec’y of HEW, 612 F.2d 594, 597 (1st
Cir. 1980) (quoting Richardson v. Perales, 402 U.S. 389, 401
(1971)).
But, “[i]t is the responsibility of the [Acting
2
Commissioner] to determine issues of credibility and to draw
inferences from the record evidence.
Indeed, the resolution of
conflicts in the evidence is for the [Acting Commissioner], not
the courts.”
Irlanda Ortiz v. Sec’y of HHS, 955 F.2d 765, 769
(1st Cir. 1991) (per curiam) (citations omitted).
Moreover, the
court “must uphold the [Acting Commissioner’s] conclusion, even
if the record arguably could justify a different conclusion, so
long as it is supported by substantial evidence.”
Tsarelka v.
Sec’y of HHS, 842 F.2d 529, 535 (1st Cir. 1988) (per curiam).
Finally, when determining whether a decision of the [Acting]
Commissioner is supported by substantial evidence, the court
must “review[ ] the evidence in the record as a whole.”
Irlanda
Ortiz, 955 F.2d at 769 (quoting Rodriguez v. Sec’y of HHS, 647
F.2d 218, 222 (1st Cir. 1981)).
II. Background
The parties have submitted a Joint Statement of Material
Facts.
That statement, document no. 12, is part of the court’s
record and will be summarized here, rather than repeated in
full.
Loving’s employment history includes work as a bus driver,
mail room clerk, machinist, warehouse supervisor, and warehouse
order selector.
3
In 2007, Loving was diagnosed with mild spondylosis1 in her
cervical spine and mild degenerative changes in her lumbar
spine.
She received conservative treatment for those
conditions, upon her initial complaints about them, and appears
not to have complained to health-care providers about either
condition more than once.
of her heels.
fibroids.
In 2012, Loving had surgery on both
She has also been diagnosed with uterine
In 2013, she had hernia-repair surgery.
On November 5, 2013, Loving saw physical therapist Megan
Jensen who performed two hours of testing and prepared an 11page document titled “Physical Therapy Initial Evaluation/Plan
of Care.”
Administrative Transcript (hereinafter “Tr.”) 500.
Among other things, Jensen administered a “6 Minute Walk Test”
to “assess [Loving’s] general walking ability and endurance
level.”
Tr. 508.
Under the heading “Endurance Testing,” Jensen
explained:
Endurance testing is based on the client’s performance
on the 6 minute walk test (6MWT) and [is] used to gain
information about an individual’s ability to work an 8
hour work day. Generally, if the client’s VO2 level
is calculated to be greater than 60%, the client will
not be able to sustain this level of work activity for
8 hours/day. The person will however be able to
perform at this intense level for brief periods,
occasionally throughout the work day.
Spondylosis is a “degenerative spinal change[] due to
osteoarthritis.” Dorland’s Illustrated Medical Dictionary 1754
(32nd ed. 2012).
1
4
Tr. 509.
Based upon Loving’s results on the 6 Minute Walk Test,
Jensen determined that she had a VO2 level of 66%,2 a maximum
endurance level of 4.5 METS,3 and an average endurance level of
1.5 METS.
In addition to reporting a variety of test results,
Jensen’s evaluation form includes a section titled “Summary of
Functional Abilities.”
In that section, Jensen described seven
different aspects of Loving’s lifting ability and described her
capacities to perform ten different postural activities.
Jensen
also reported that Loving had a capacity to sustain 1.5 METS
over the course of an eight-hour work day.
Finally, the Summary
of Functional Abilities includes a key that translates endurance
levels into the strength ratings used by the United States
Department of Labor and the Social Security Administration
(“SSA”).
According to that key: (1) sedentary work, which
involves lifting 10 pounds occasionally and negligible amounts
frequently, requires an endurance level of 1.5 to 2.1 METS; and
(2) light work, which involves lifting 20 pounds occasionally
and 10 pounds frequently, requires an endurance level of 2.2 to
“VO2 . . . is an estimation of the body’s ability to use
oxygen for energy.” Thoreson v. Astrue, Civ. No. 11-2910
(JNE/SER), 2013 WL 869375, at *11 n.26 (D. Minn. Jan. 29, 2013).
2
MET is an “[a]bbreviation for metabolic equivalent.”
Stedman’s Medical Dictionary 1192 (28th ed. 2006).
3
5
3.5 METS.
Based upon Loving’s average endurance level of 1.5
METS, Jensen characterized her as being limited to sedentary
work, i.e., work that involves lifting 10 pounds occasionally
and negligible amounts frequently.
About two weeks after Jensen evaluated Loving, she
completed a Medical Source Statement of Ability to do WorkRelated Activities (Physical) on Loving.
In it, she opined that
Loving could lift and carry 20 pounds occasionally and 10 pounds
frequently, and that she could stand and/or walk for less than
two hours in an eight-hour workday.
At several points in her
Medical Source Statement, Jensen included the following
notation: “See full report for details.”
Tr. 512.
The court
presumes that the “full report” to which Jensen referred is the
evaluation form that she had completed two weeks before she
completed her Medical Source Statement.4
After the SSA denied Loving’s claims for DIB and SSI, she
was given a hearing before an Administrative Law Judge (“ALJ”).
At that hearing, the ALJ described the following hypothetical
worker to a vocational expert (“VE”):
While the record includes Jensen’s Medical Source
Statement, it includes neither a Medical Source Statement from a
treating source who is an acceptable medical source, i.e., a
licensed physician, see 20 C.F.R. §§ 404.1513(a)(1) &
416.913(a)(1), nor an assessment of Loving’s residual functional
capacity performed by a state agency consultant, see Tr. 78.
4
6
Would you please assume generally a range of
light exertion work which would be occasional lifting
of 20 pounds and frequent lifting of 10 pounds; we’ll
say standing and walking for . . . an hour per day in
increments of about 15 minutes at a time; no
limitations in sitting; in terms of pushing and
pulling, up to . . . 80 pounds [occasionally]; in
terms of . . . postural limitations, all occasional,
in terms of . . . climbing, balancing, kneeling,
crouching, crawling, and stooping; no difficulties
with manipulative limitations or visual communication
limitations; and no environmental limitations as well.
. . . [T]here’d be no climbing of ladders or
ropes or scaffolds.
Okay. Now with the . . . lifting and carrying,
would you further please assume, I’m going to make it
a little more specific, floor to waist could be 40
pounds; up to shoulder level would be 20 pounds; and
over the head level would be up to 15 pounds.
Tr. 65-66.
After further limiting the use of foot controls to
“occasional,” the ALJ asked the VE whether there were jobs in
the national economy that could be performed by a person with
the residual functional capacity (“RFC”)5 he had described, and
who had the same age, education, and past work experience as
Loving did.
The VE testified that such a person could perform:
(1) the light-duty, semi-skilled job of companion; (2) the
light-duty, unskilled job of school-bus monitor; and (3)
sedentary, semi-skilled job of telephone solicitor.
“Residual functional capacity” is a term of art that means
“the most [a claimant] can still do despite [her] limitations.”
20 C.F.R. §§ 404.1545(a)(1) & 416.945(a)(1).
5
7
After Loving’s hearing, the ALJ issued a decision that
includes the following relevant findings of fact and conclusions
of law:
5. After careful consideration of the entire record,
I find that the claimant has the residual functional
capacity to perform light work as defined in 20 CFR
404.1567(b) and 416.967(b) allowing for lifting 20
pounds occasionally and 10 pounds frequently; standing
and walking up to one hour in an eight hour workday;
occasionally pushing and pulling up to 80 pounds with
the upper and lower extremities; occasionally climbing
ramps and stairs, balancing, stooping, kneeling,
crouching, and crawling; and no climbing ladders,
ropes, and scaffolds. The claimant can lift and carry
up to 40 pounds to the waist; up to 20 pounds to the
shoulders; and up to 15 pounds overhead. She has no
sitting, manipulative, visual, or environmental
restrictions.
. . . .
6. The clamant is unable to perform any past relevant
work (20 CFR 404.1565 and 416.965).
. . . .
9. Transferability of job skills is not material to
the determination of disability because using the
Medical-Vocational Rules as a framework supports a
finding that the claimant is “not disabled,” whether
or not [she] has transferable job skills (See SSR 8241 and 20 CFR Part 404, Subpart P, Appendix 2).
10. Considering the claimant’s age, education, work
experience, and residual functional capacity, there
are jobs that exist in significant numbers in the
national economy that the claimant can perform (20 CFR
404.1569, 404.1569(a), 416.969, and 416.969(a)).
8
Tr. 18-19, 22.
The ALJ concluded by determining that Loving was
not disabled because she was able to perform the jobs of
companion, school-bus monitor, and telephone solicitor.
III. Discussion
A. The Legal Framework
To be eligible for disability insurance benefits, a person
must: (1) be insured for such benefits; (2) not have reached
retirement age; (3) have filed an application; and (4) be under
a disability.
42 U.S.C. §§ 423(a)(1)(A)-(D).
To be eligible
for supplemental security income, a person must be aged, blind,
or disabled, and must meet certain requirements pertaining to
income and assets.
42 U.S.C. § 1382(a).
The question in this
case is whether Loving was under a disability from June 6, 2012,
through January 27, 2014, the date of the ALJ’s decision.
To decide whether a claimant is disabled for the purpose of
determining eligibility for either DIB or SSI benefits, an ALJ
is required to employ a five-step process.
See 20 C.F.R. §§
404.1520 (DIB) and 416.920 (SSI).
The steps are: 1) if the [claimant] is engaged in
substantial gainful work activity, the application is
denied; 2) if the [claimant] does not have, or has not
had within the relevant time period, a severe
impairment or combination of impairments, the
application is denied; 3) if the impairment meets the
conditions for one of the “listed” impairments in the
Social Security regulations, then the application is
granted; 4) if the [claimant’s] “residual functional
9
capacity” is such that he or she can still perform
past relevant work, then the application is denied; 5)
if the [claimant], given his or her residual
functional capacity, education, work experience, and
age, is unable to do any other work, the application
is granted.
Seavey v. Barnhart, 276 F.3d 1, 5 (1st Cir. 2001) (citing 20
C.F.R. § 416.920).
The claimant bears the burden of proving that she is
disabled.
See Bowen v. Yuckert, 482 U.S. 137, 146 (1987).
must do so by a preponderance of the evidence.
She
See Mandziej v.
Chater, 944 F. Supp. 121, 129 (D.N.H. 1996) (citing Paone v.
Schweiker, 530 F. Supp. 808, 810-11 (D. Mass. 1982)).
However,
[o]nce the [claimant] has met his or her burden at
Step 4 to show that he or she is unable to do past
work due to the significant limitation, the
Commissioner then has the burden at Step 5 of coming
forward with evidence of specific jobs in the national
economy that the [claimant] can still perform. Arocho
v. Sec’y of Health & Human Servs., 670 F.2d 374, 375
(1st Cir. 1982). If the [claimant’s] limitations are
exclusively exertional, then the Commissioner can meet
her burden through the use of a chart contained in the
Social Security regulations. 20 C.F.R. § 416.969;
Medical-Vocational Guidelines, 20 C.F.R. pt. 404,
subpt. P, App. 2, tables 1-3 (2001), cited in 20
C.F.R. § 416.969; Heckler v. Campbell, 461 U.S. 458 []
(1983). “The Grid,” as it is known, consists of a
matrix of the [claimant’s] exertional capacity, age,
education, and work experience. If the facts of the
[claimant’s] situation fit within the Grid’s
categories, the Grid “directs a conclusion as to
whether the individual is or is not disabled.” 20
C.F.R. pt. 404, subpt. P, App. 2, § 200.00(a), cited
in 20 C.F.R. § 416.969. However, if the claimant has
nonexertional limitations (such as mental, sensory, or
skin impairments, or environmental restrictions such
as an inability to tolerate dust, id. § 200(e)) that
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restrict his [or her] ability to perform jobs he [or
she] would otherwise be capable of performing, then
the Grid is only a “framework to guide [the]
decision,” 20 C.F.R. § 416.969a(d) (2001). See also
Pratts v. Chater, 94 F.3d 34, 39 (2d Cir. 1996)
(discussing use of Grid when applicant has
nonexertional limitations).
Seavey, 276 F.3d at 5 (parallel citations omitted).
B. Loving’s Claims
Loving claims that the ALJ made multiple errors in
determining her RFC and also erred at step five of the
sequential evaluation process.
The court begins with the ALJ’s
RFC finding and then turns to step five.
1. The ALJ’s RFC Finding
Loving makes several arguments concerning the ALJ’s RFC
assessment, but the bottom line is this: the ALJ’s determination
that Loving was capable of light-duty work is not supported by
substantial evidence.
In his decision, the ALJ gave substantial weight to
Jensen’s opinion, stating that he was “persuaded by the
claimant’s physical therapist, Megan Jensen, P.T., who suggested
that the claimant was capable of light exertion work.”
Tr. 21.
In reliance upon Jensen’s opinion, the ALJ concluded that Loving
“retain[ed] the residual functional capacity to perform the
physical requirements of a range of light exertion work.”
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Id.
The problem is that Jensen also opined that Loving did not
have the endurance level necessary to perform light exertion
work.
See Tr. 502.
Moreover, in the Medical Source Statement
in which she stated that Loving did have the capacity for lightduty work, she expressly stated that the opinions expressed in
that statement were based upon the evaluation in which she said
that Loving did not have the capacity for light-duty work.
Those two contradictory opinions from the same medical source
are not evidence that a reasonable mind could accept to support
the conclusion that Loving had the capacity to perform light
work.
See Currier, 612 F.2d at 597.
To be sure, the ALJ is
charged with resolving conflicts in the evidence.
Ortiz, 955 F.2d at 769.
See Irlanda
But here, the ALJ did not mention the
contradiction between Jensen’s two opinions, and, necessarily,
did not explain why he credited the Medical Source Statement
over the evaluation form that the Medical Source Statement
identified as the source of its findings.
In sum, the ALJ’s
finding that Loving was capable of light work is not supported
by substantial evidence.
Thus, the court cannot affirm the
ALJ’s determination that Loving had the RFC to perform the
light-duty jobs of companion and school-bus monitor.
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2. Step Five
Loving makes several arguments concerning the ALJ’s stepfive determination.
One of those arguments is dispositive:
under the circumstances of this case, the ALJ erred by failing
to determine whether Loving had any transferable job skills.
In his decision, the ALJ stated that “[t]ransferability of
job skills is not material to the determination of disability
because using the [Grid] as a framework supports a finding that
the claimant is ‘not disabled,’ whether or not [she] has
transferable job skills.”
Tr. 22.
Loving claims that the ALJ
erred by finding that she was capable of performing the jobs of
companion and telephone solicitor without first finding she had
gained skills from her previous employment that were applicable
to those semi-skilled occupations.
The court agrees.
According to guidance promulgated by the SSA on the issue
of transferability of skills:
Transferability of skills is an issue only when an
individual’s impairment(s), though severe, does not
meet or equal the criteria in the Listing of
Impairments in Appendix 1 of the regulations but does
prevent the performance of past relevant work (PRW),
and that work has been determined to be skilled or
semiskilled. . . . When the table rules in Appendix
2 are applicable to a case, transferability will be
decisive in the conclusion of “disabled” or “not
disabled” in only a relatively few instances because,
even if it is determined that there are no
transferable skills, a finding of “not disabled” may
be based on the ability to do unskilled work.
13
Social Security Ruling (“SSR”) 82-41, 1982 WL 31389, at *1
(S.S.A. 1982).
A subsequent SSR elaborates on transferability:
RFC alone never establishes the capacity for skilled
or semiskilled work. Ability to perform skilled or
semiskilled work depends on the presence of acquired
skills which may be transferred to such work from past
job experience above the unskilled level or the
presence of recently completed education which allows
for direct entry into skilled or semiskilled work.
SSR 83-10, 1983 WL 31251, at *3 (S.S.A. 1983).
“Accordingly,
the RFC considered under each rule reflects the presence of
nonexertional capacities sufficient to perform unskilled work at
the pertinent exertional levels.”
Id. (emphasis added).
Finally, “the occupational base considered in each rule [in the
Grids] consists of those unskilled occupations identified at the
exertional level in question.”
Id. (emphasis added).
Returning to the ALJ’s determination that transferability
of job skills was not material, the court agrees that if Loving
was capable of performing the full range of work at any
particular exertion level, and the Grid applied, the applicable
rule would direct a finding of “not disabled” regardless of
whether Loving had transferable job skills.
That is because
Loving would have the RFC to perform several hundred different
unskilled jobs.
But Loving’s ability to perform unskilled work
is not substantial evidence that she can perform the semiskilled occupations of companion or telephone solicitor.
14
In Wilson v. Astrue, Civ. Action No. 08-40228-FDS, 2010 WL
1379889, at *6 (D. Mass. Mar. 30, 2010), Judge Saylor was faced
with a situation similar to the one in this case.
Like the ALJ
in this case, the ALJ in Wilson found that the claimant was not
disabled because she could perform one sedentary semi-skilled
job, one light-duty unskilled job, and one light-duty semiskilled job.
The claimant objected to the ALJ’s determination
that she could perform the two semi-skilled jobs, arguing “that
because the ALJ made no finding as to whether she had
transferable job skills, there [was] insufficient evidence that
she [could] perform those jobs.”
Id.
In response, the
Commissioner contended that the ALJ did not need to make a
finding on transferability because he “relied on the Grid, which
support[ed] a finding of ‘not disabled’ regardless of whether a
claimant with Wilson’s characteristics possesse[d] transferable
skills.”
Id.
Judge Saylor sided with the claimant.
First he noted that
the ALJ
specifically stated that he was prevented from relying
solely on the Grid due to limitations contained in
Wilson’s RFC [and] used the Grid as a guide, but he
also needed to consult a vocational expert to
determine the extent to which [the claimant’s]
limitations erode[d] the unskilled light and sedentary
occupational base.
15
Wilson, 2010 WL 1379889, at *7 (internal quotation marks and
citation to the record omitted).
Under those circumstances,
Judge Saylor ruled, the ALJ was obligated to make findings on
transferability of skills.
See id. at *7-8 (citing Bray v.
Comm’r of SSA, 554 F.3d 1219, 1224-26 (9th Cir. 2009); Draegert
v. Barnhart, 311 F.3d 468, 475-77 (2d Cir. 2002); Vasquez v.
Sec’y of HHS, 683 F.2d 1, 4-5 (1st Cir. 1982); Rivera v. Astrue,
No. 6:08-CV-075-C ECF, 2010 WL 711717, at *4-5 (N.D. Tex. Mar.
2, 2010)).
Judge Saylor reasoned that such findings by the ALJ
were “necessary to provide [it] with a sufficient record to
determine whether or not the ALJ’s decision [was] supported by
substantial evidence.”
2010 WL 1379889, at *7.
Other courts, however, have gone the other way.
See, e.g.,
Simcoe v. Colvin, No. 1:14-cv-01488-SEB-MJD, 2015 WL 3960964
(S.D. Ind. June 29, 2015).
Simcoe, like Wilson (and this case),
involved a claimant with an RFC that “varie[d] to some degree
from the exertional levels captured by the grids.”
3960964, at *3.
2015 WL
Simcoe also involved a claimant, like the
claimant in Wilson and the claimant in this case, for whom the
grid rules “direct[ed] a result of not disabled regardless of
previous work experience and transferability of skills.”
*4.
In Simcoe, Judge Barker ruled that “the ALJ correctly
determined that while Plaintiff’s additional RFC factors
16
Id. at
limit[ed] the range [of] available positions, they [did] not
alter the guidelines’ conclusion that transferability [was] not
an issue for a person with Plaintiff’s demographic profile.”
Id.
That ruling stands in contrast with the result in Wilson,
in which Judge Saylor ruled that the ALJ could not determine
that the claimant was capable of performing certain jobs above
the unskilled level without making findings on transferability
of skills,
As one would expect, claimant relies on Wilson, while the
Acting Commissioner asks the court to reject Wilson and adopt
Simcoe.
As between Wilson and Simcoe, this court is persuaded
by the reasoning of Wilson.
The problem with Simcoe is that it
does not acknowledge, much less account for, the fact that a
finding of “not disabled” based on the Grids means only that
there are a significant number of unskilled jobs available to
the claimant in question.
That there are unskilled jobs
available to a claimant with Loving’s vocational profile says
nothing about whether she is capable of performing the two semiskilled jobs the ALJ said she could do.
Accordingly, this court
chooses to follow Wilson rather than Simcoe.
Based upon the
reasoning articulated in Wilson, the ALJ’s determination that
Loving could perform the semi-skilled jobs of companion and
17
telephone solicitor is not supported by substantial evidence
and, as a consequence, cannot be affirmed.
3. Summary
The ALJ based his determination that Loving was not
disabled on findings that she could perform one light-duty semiskilled job (companion), one light-duty unskilled job (schoolbus monitor), and one sedentary semi-skilled job (telephone
solicitor).
However, the ALJ’s finding that Loving was capable
of light work is not supported by substantial evidence, which
eliminates the jobs of companion and school-bus monitor.
And
absent a finding that she has transferable job skills, the ALJ’s
finding that Loving was capable of two semi-skilled jobs that
she had not previously performed is not supported by substantial
evidence, which eliminates the jobs of companion and telephone
solicitor.
Because the ALJ’s decision rests on his
determination that Loving could perform the jobs of companion,
school-bus monitor, and telephone solicitor, and none of those
determinations is supported by substantial evidence, remand is
required.
IV. Conclusion
For the reasons given, the Acting Commissioner’s motion for
an order affirming her decision, document no. 11, is denied, and
Loving’s motion to reverse that decision, document no. 10, is
18
granted to the extent that the case is remanded to the Acting
Commissioner for further proceedings, pursuant to sentence four
of 42 U.S.C. § 405(g).
The clerk of the court shall enter
judgment in accordance with this order and close the case.
SO ORDERED.
__________________________
Landya McCafferty
United States District Judge
April 21, 2016
cc:
Penelope E. Gronbeck, Esq.
T. David Plourde, Esq.
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