Flowers v. Colvin

Filing 17

MEMORANDUM OPINION. Signed by District Judge Glen E. Conrad on 6/17/16. (eot)

G ERKS OFFI U. DI CC' f'
CE 9. ST . ' ;
' .2
J
AT ROANOKE,
VA
FIED
L

I THE UNI
N
TED STATES DI
STY CT COURT
FOR THE W ESTERN DI
STRI OF VI NI
CT
RGI A
ROANOKE DI SI
VI ON
MI
CHAEL W AYNE FLOW ERS,

JUN 1? 2 1
26
J A
ULI
BK
DEP

, EIF
CL R C
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L
ERK

Ci lA c i N o. 7: 5CV 00243
vi ton
1
Pl ntf ,
ai i f
M EM O R AN DU M O PI O N
NI
CA R OLY N W .COLV I A c i
N, tng
Commisone ofSoc a Se t iy,
si r
il cu t

By:

Ho Gl n E.
n. e Conr
ad
Chi fUnie Stt Diti tJ
e
t d aes src udge

Dee n.
f nda t

Pl i ifha fl d t sa ton c lngi t fnaldec so oft Comm isone ofSoc a
antf s ie hi c i hale ng he i
ii n he
si r
il
Se uiyde ngpli ifscai f s e e a s c iyi omebe ist r heSo a Se urt
ct' nyi antf l m or upplm nt l e urt nc
t
neft mde t
cil c iy

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s me d d 2 S.
38 . e u idcin f hs o r i u s a t o 2 S.
!
1 8 ()3 , ihi o p rtsj2 5 g o teSo il cziyAc, 2U.. j40 () Thi c u t
3 3 c()wh c nc r o ae 0 () fh ca Se l t t4 SC. 5 g . s o r'
r
s
r viw i lmie t a dee mi ton a t whehe t r i s tnta e de e t s ppor t
e e s i td o
t r na i s o
t r he e s ubsa i l vi nc o u
t he
Commi so rsc l i nt t aitf f ie t me tt c tonsf e ilm e esa ihe
s i ne ' oncuso ha pl n if al d o e he ondii or ntte nt t bls dby
a ptr ua t t Ac .I s h s bsa i le de ee ss t fna de son o t Com misone
nd ls nt o he t f uc u t nta vi nc xit ,he i l cii f he
si r

mu tbea tr d.La v Cee rz e 3 F.d 6 0 (t Ci.1 6 ) Sae b fy, u tn il
s
f me
s
ws . lb e z , 68 2 4 4 h r 9 6 . ttd del s bsa ta
e de eha be n de i a s hr e n e de , nsde i t r c d a awhol ,a mi be
vi nc s e fned s uc elva t vi nce co i rng he e or s
e s ght
f unda uaet s
o
deq t o uppor aco l i
t ncusonby ar as na emi Ri ha ds v. r l s 402U . 389,
e o bl nd. c r on Pe a e ,
S.

4 (9 )
01 1 71.
Thepl ntf , i ha lW . ower , a bo n o br at zl 1 , d e nt lyc pl t
ai i f M c e
Fl
s w s r nFe u y , 965 > ve ua l om e ed

hi hi s hoo e a i M.. owe sas c
s gh c l duc ton. r Fl r lo ompl t d s ve a c s i colege W hiepl ntf
e e e r l our es n l .
l ai if
haswor d fom tm et tm e t Adm i sr tveLa J
ke r i o i , he
nitai
w udgede e m i d t tM r Fl r ha no
t r ne ha . owe s s
pas r e ntwor f pur esofco i r ton ofhi cl m f s eme a s urt i ome
t elva
k or pos
nsde a i
s ai or uppl nt l ec iy nc

b n tt. TR3 0 . uy2 2 1 p anif ie a a p iainf r u plme tl e miyic me
e eis ( 0 ) Onl l 7, 01 , litf fld n p lc to o s p e n a s c t n o
be ft .I s e st e dira i ai f s h be ft ha pr n uns e s ul I flnghi
ne is t e m hat a e pplc tons or uc ne s d ove
ucc s f . n ii s
mos r c ntc am , r Fl r al gb t thebe nmedia e f a 1f r of s t nta ganf
t e e l i M . owe s le d ha
c
s bl d or l o ms ubsa il i ul
e oy e on Jme6,2003,duet pa n i li ba ne k,rg hi a l g;hi bl pr s e
mpl m nt t
o i n ls ck, c i ht p nd e gh ood es ur ,
hit y o pa r a ii ;acd r fux;de es i ,a n e y. Pl i ifnow mai ai t the has
sor f nc e tts i e l
pr son' nd nxit
antf
nt ns ha
r m ane dia e t t pr s nttm e.
e i d s bld o he e e i

M r Fl r cli wasde ed upon i ta co i r ton a r onsde a i
. owe s' a m
ni
niil nsde a i nd ec i r ton. He t n
he

rque t a rceve aéqnovohe dnga rviw beo ea Admi srtveLa J .I a
e sed nd e i d
a
nd e e fr n
nitai w udge n n
opi o da e Fe a y4, 4,heLa J ea s dee ne t tM r Fl r i notdia e f
ni n t d bnz r 201 t
w udg lo tnni d ha . owe s s
s bld or

pu pos ofhi a i ai n f rs e nt ls c liy i m ebe ft . TheLa J
r es
s pplc to o uppl me a e trt nco
neis
w udgef
ound t t
ha
pli ifs f r fo s ve a s r i pa r nt ,ncudi s t eus dior ro t bassof
antf ufe s r m e r l eve e m ime s i l ng ubsanc e s de n he i

cuon cac h l b s ; n raiiion a trlis icu i lmba o c r iaga a h so yo
l i lo o a u e pa ce ttsj it rh aga ,n ldng u g , e vc li, nd itr f
hi slge y;a mi ;hy re i n;r fux/ r as bor ri pe s lt dio de ;a de e so
p tr r ne a pe tnso e l he ni ; de lne r onaiy s r r nd pr s i n.

( 3 0 . I tn o t s q e ta d sbi t a ay i etbl h d f rtea j d c to o s c
TR 0 ) n e ns f he e u nil ia l y n lss sa i e o h du iain f u h
i
s
cams s e20C. R.j416.20,heAdmi srtveLaw J f mdt tpli ifs fr fom a
li , e
F.
9 t
nitai
udge ot ha antf ufes r
lse i ime bas onas ve elm iai n i c nta i a s a e wihhi s t nc a e
it d mpar nt ed
e r i t to n once r ton s ocit d t s ubsa e bus

ds r e . ( 3 6 . Ho v r t e La J g r ld ta M r Flwesd e no s fe fo a
io d rl TR 0 ) we e , h w ud e ue h t . o r o s t u fr ' m
r
dia lt wihi t m e ni oft Ac d t t sdiablng m e alco to be a e hewoul
s biiy t n he a ng he t ue o hi s i
nt ndii n, c us
d

nots frfom a i ime ofdia i sve iyi hea ti dfom t us ofal . (
ufe ' n mpar nt sblng e rt f bsane r he e cohol TR
r

3 9 .I s c a teLa J dg f t ta p an ipsac h ls i ac n rb tn f co mae il
0 ) namu h s h w u e omd h t litf lo oim s o tiu ig a tr tra
1I acl mants f sfom als edi paimentunderAppendi 1t Subpar P oft Adm i sr tve
f ai
uf er r
it m r
x o
t
he
nita i
Regul i Par 404,t cl m anti de eddiabl f a1 f m sofw or w ihoutconsde ton off t s
atons t
he ai
s em
s ed or l or
k t
i ra i
ac or

s ha a e e uc to a p i wor e re e Se 2 C. R. 41 92 d .
uc s g , d a in, nd ror k xpe inc . e 0 F. j 6. 0( )

t t de e m i to ofdia lt t La J
o he t r nai n
s biiy, he w udge pr ee d t c i rwhehe pli tf woul
oc de o onsde
t r a n if
d

rman dsbldi heso dusngalohol Se z n.20 C. R.j41 935.Astmi t tMr
e i ia e f tppe i c . e, e .
F.
6.
sz ng ha .
Fl r c s usng a c ,t La J
owe s ea ed i l ohol he w udge f
ound t thi a lte t s t i c
ha s biiis o usan once r ton,
nta i

p ritn e o pa ewo l b o l mo eaey i ie .( 3 9 .Astmigc s ai no ac h l
e sse c , r c u d e n y d rtl mpar d TR 0 ) sz n e s jo f lo o
us ,t La J
e he w udgewe ont a s s M r Fl r 'r sdua f nci na ca ciy a f l w s
nt o s e s . owe s e i l u to l pa t s olo :
W he t efe t oft ca ma ' s t nc us a e f t r out he r a nst
n he f c s he li nts ubsa e e r ac o ed , eti he
r sdua f to lc pact t pe f a r ng oflg wo k a de i d i 20 CFR
e i l unci na a iy o ronn a e i ht r s fne n

41 96749, xc ptt t mus a de tr oha adss ha da r movi
6. 1 e e ha he t voi xposlet z r uc s ngeous ng
mac ne y a c i ng l dde s r pe ,o s afo di Hei f t rlm ie t no
hi r nd lmbi a r , o s r c f l ng. s urhe i t d o
mor t n oc sona e e sve wo k- ac vi a i .Hi me a i ime s
e ha ca i l xc s i
r pl e br tons s nt l mpa r nt ,
a e s tnc us ,lm ihi t wor i vi no i e a tonwiht publc a
bs nt ubsa e e i t m o k nvol ng nt r c i
t he
i , nd
no o et n oc sona i e a tonwih c wo ke s Hec n pero m t kild wo k
r ha ca i l ntr ci
t o- r r . a
f r ms le
r
t ks
as .

( 31 ) Gie s c ar sd lu cin l a a i , nda tr o i eigp an ips g , d c to
TR 0 . v n u h e iua f n to a c p ct a fe c nsd rn litf a e e u ain,
y
a l c o prorwor e re e t La l
nd a k f i
k xpe inc ,he w udger l dt t i pl i ifa t ne f o usngalohol
u e ha ,f antf bsai d r m i c
a ilga d gs hewo dbec pa eofpe f m i s ve als cii lg a s de a ywor r e
nd le l nz ,
ul
a bl
ror ng e r pe fc iht nd e nt r
k ols

e itn i sg t a tn mb ri ten to a e o o
xsig n ini n u e n h ain l c n my. ( 31 ) Ac o dn l, h La J g
k
TR 2 . c r igy t e w ud e
uli e y c l d t tM r Fl r i notdia e and t he i notentted t s e
tmatl onc ude ha . owe s s
s bl d,
hat s
il o uppl ment
al

sc dt n o be eks S e z n.20C. R. j41 .2 4 ) d41 9 5 Th La u g ' o i o
e u yic me n t . e , e , F. j 69 0 g = 6.3 . e wl d e s pnin
wa a ed a t fna de ii oft Co misone by t Soc a Se iy A dm i s r ton'
s dopt s he i l c son
he m s i r
he , i l eurt
nit a i s
A ppe l Counci. Ha nge use ala ia ea nitai r m e e , r Fl r ha a a e
a s ' l vi xha t d l val bl dmi sr tve e dis M . owe s s ppe l d

t t sc t
o hi our.
W hie pli if ma be di a ed f r ce ti f m s of e oy e ,t c ucalf cua
l a ntf y
s bl o ran or
mpl m nt he r i a t l
dee mi toni whehe antf wa dia e f a l or ofs t nta ganfz e oy e .Se
t r na i s t rpli if s s bl d or l f ms ubsa il i t mpl m nt e
l

42U. C.j1 2c() Theeaef t ee nt o pr whihmus bec i r di ma ngs
S. 38 a . r r otr lme s f oof c
t onsde e n ki uch

a a lss Th s ee n saes mma e a f l ws ( )o j ci eme ia fcsa d ci ia
n nay i. e e lme t r u dz d s ol : 1 b e tv d c l a t n lnc l
o
fn ig ;2 teo no a dc n l ins fr aigph sca s ( ) u j ciee ie c o p y ia
i dn s ( )h piins n o cuso o te tn y iin ;3 s be tv vd n e f h se l
ma ietto so i ar ns a d s rb dt r u hacama t tsi n a ()t cama t
n fsain f mp ime t, s e cie h o g li n' e tmo y; nd 4 he li n'
s
s
e u ain vo aina h soy,e iua s i s a da e Vie v. n h, 3 F.d 1 5 , 1 9 6 (t
d c to , c to l itz r sd l kl , n g . tk Fic 4 8 2 1 7 1 5 - 0 4h
l
Ci. 9 ) Und r o v.kbc f, 9 F.d 8 0, 51(t Ci. 9 2 .
r 1 71; e wo d li io f 2 8 2 5 8 4h r 1 6 )
Afe a r viw o t r c d i t s c e,t c ti c ta ne t c l t tt
tr e e f he e or n hi as he our s onsr i d o onc ude ha he
Commi so r sfnal ii i s
s i ne ' i decson s upporedb s tnta e de e.W ihoutq si d i hos
t y ubsa il vi nc
t
ue ton, urngt e
tm e i whih M r Fl we s us s aco t e es ,he doe notpos es s cint me a or
i s n
c
. o r e l hol o xc s
s
s s ux e
nt l
e i lc pact t e agei a m e ni ul kaci t Ho ver t co t le st tt
motona a iy o ng n ny a ngf wor tviy. we ,he ur bei ve ha he
La J
w udgepr ry de em i t ti pl i ifa t i fo s t nc abus ,hewoul pos e s
ope l t r ned ha f antf bsans r m ubsa e
e
d ss
s ce physc la e i lc pact t e
ux int
i a nd motona a iy o ngag i lghtr f r ofsmpl ,t s led wor
e n i e o ms
i e m kil
k

a tviy. Thus t co ta e t tpli ifss t nc a e dio de i a c rbutng f cor
ci t
, he ur gr es ha a ntf ubsa e bus s r r s onti i a t

mae lot d tr n to o d sbit .S e4 U. C. 1 8 ca( )J.S mpysae , ieMr
tda t he ee miain f ia l y e 2 S. j 3 2 ()3 () i l ttd whl .
i

Flwes x ein e mustos eea c mp an sa dd g n rtv a trtc r c s i lp e ons
o r e p re c s cl k ltl o lit n e e eaie rh i p o e s nmut lj it,
l
i
i
t r i no i c to t thi physc li ime spr ve pe f m a e o lght rf m sofwo k
he e s ndia i n ha s
i a mpar nt e nt ror nc f i e or
r
aci t Ha ng r viwed t media r or t c tfndss t n i le de et s
tviy. vi e e
he
c l ec d, he our i
ubsa ta vi nc o uppor t
t he

La J d esd tr n to t tt e o j cie me ia e ie e smpl fist d cl n t
w u g ' ee miain ha h b e tv d c l vd nc i y al o o l t he
me

e se c o a y ph ia c n iin wl c i s s v r a i p e n pef r nc o lg ta d
xitn e f n ysc l o dto z h s o e ee s o rve t ro ma e f ih n
i
s de a y f r sofe ri I d,when a ke t pr vi s
e nt r o m
xe ton. ndee
s d o o de uppor f rpli tY sa i ton f
t o ani
pplcai or
be ft ,o ofM T Fl w e s t e tng ph i i nsa t VA M e ca Ce e e i ty obs r e t t
ne is ne
. o r 'rai
ys c a t he
di l nt r xplcil
e v d ha

p anifso l p o lm i ac ho d p nd n ea t a het a wok. TR 7 ) W h l p an if
litf ny r be s lo l e e e c nd h t l n r '
c
'( 21. ie litf
alo slf r fo c oni panc e tts whih i de m e t beas oc a e wih li a c
s tfe s r m hr c
r a ii, c s e d o
s i t d t zs l ohola e,a
bus s
4

we lm a hit y of pa r tc ps udoc t ,t r i no i c ton t tt s pr e s pr ve
l s
sor
nc eai e
yss he e s
ndia i ha he e oblm
e nt
pe f m a o r ul ra tviy durng t s pe i i whih M r Fl we si a tne . Ge r ly,
ror nce f eg a c i t
i ho e rods n c
' . o r s bsi nt ne al
t c talo fndss t nta e de et s
he our s i
ubsa i l vi nc o uppo tt La J e' dee m i ton t tpli i s
r he w udg s t r na i ha a ntc

s b e tv c mplit ae o to p o o t n t t me ia e ie c i t e c s ,i panifs
u j cie o an s r u f r p ri o he dc l vd n e n h a e f litf
o
s t nc a ei notc i r
ubsa e bus s
onsde ed.
M r Fl we s e otonal obl pr s ntas wha c os rque to Aspr vi usyno e
. o r ' m i pr ems e e
ome t l e
si n.
e o l t d,
t Admi sr tveLaw J
he
nita i
udgede e i dt t antf s f r fom de es i a e y, ndt thi
t = ne ha pl i i ufe s r
pr son/nxit a ha s

i ime ti c e r to i s s ve ea t r rhi dia e dtrngpe i ofc oni a c
mpar n n onc ntai n s o e r s o ende m s bld li
rods hr c l ohol
a e. Howe r t La J
bus
ve , he w udgewe on t fnd t tpli ifsa lt t s t i c
nt o i ha antf biiy o usan once r ton,
nta i
pe sse e orpa i onl ode a eyi ie durngt epe i i whihhei s r TheLa
r itnc ,
ce s ym r t l mpa r d i hos rods n c
s obe .
w
J
udgede e mi t tt sm ode a el ve ofi nne i nots h ast pr ve pe f manc of
t r ned ha hi
r t e l mpai nt s
uc
o e nt ror
e
t smpl t kil d wo k r esf rwhi h t voc to le r c i r M r Fl r t be
he i e, ms le
r ol o
c he a i na xpe t onsde ed . owe s o
ot t s c pa e.Thecour mus c l t tt sfndi i s
he wie a bl
t t oncude ha hi
ng s upporedby s t nta e de e.
t
ubsa il vi nc
The La J
w udge obs r d t t d li t e pe i i whi h he i fe of a c ,pl i ifs
e ve ha , trng hos rods n
c
s re
l ohol antf '
i par nt nco nkai n, r it nce o
m ime i nce to pe sse , rpac e uls9om l om ec oni i e a e s ue 'a
er s t
G
s
hr cpanr l t di s s' nd
t ts h ma f sa i c d r s bl bem ii t i pli tf pe f r lght rwor aci te
ha uc
nie ttons oul ea ona y
tgaed f a n if r o ms i e
k tvii s

o asmpl a t k l dnaue ( 3 9 .Th c u t eive t a tlsd tr nain
f i e nd ms il tr . TR 0 ) e o r b l s h t l eemi to
e
e
i
i c itntwiht e t t sa eag nc yc og s whoas e s hevoc tonal i t a e
s onsse
t her por of he tt e yps hol it
s s edt
a i sgnik nc
o pl ntf snone r i l m pa nne s I
f ni i f
xe tona i i nt . naps hol c a s s m e tcô pl t d onD e e be 1
yc ogi al s e s n m e e
c m r 2,
2011 D r Lo s Pe r tnot m ode a e lm ia i i t r s of pl ntf ' c pac t t m a nt i
, . ui r ot ed
r t i t tons n e m
ai i f s a iy o i a n

a tnton, once tai a pac ( 355)
te i c nrton, nd e. TR
.Hpwe r bas ont e de eofr c dasoft
ve, ed he vi nc e or
he
da eofhi ps hol c r vi w,Dr Per t o ne t tpli ifs dbec i r d ca bl of
t
s yc ogial e e
. ro t pi d ha antf houl
onsde e pa e
5

ii l, o tn , o -te s'lwo k r q i l td s ca i tr ci n' ( 3 6 . Th c u t
t mpe r u ie n n srs f
s
u r e udng i e o il nea to . TR 5 ) e o r
mi
'
bei ve t tt La J
le s ha he w udgem i tr s na y r l on Dr Pe tsa s s m e i ma ng fndi s
gh ea o bl ey
. aot' s e s nt n ki i ng
a t pli tf sr sdua fmci lca ciy.
s o a n if e i l t tona pa t
I s ta trf c o out hevpc tonalmpa tofpl ntf ' c oni a c
n hor, fe a t dng t
ai i c
ai ifs hr c l ohol e t c t
us , he our
fndst tt La J
i ha he w udge' hy t tc que to t t vocai na e r c pt r d a 1ofpli if s
s po he ial si n o he
to l xpe t a u e 1
a ntf
ph i la e i llm ia i r a ona y s ppore by t m e ca r or I f l t tt
ysca nd motona i ttons e s bl u
td he di l ec d. t olows ha he

La J e pr pe l r le on t vocai na e r' i i dee i zi t tM r Fl r i no
w udg o ry e id he
to l xpe ts nput n trnilng ha . owe s s t
dia e f r a 1f ms of s t n i lga nfl e oyme . Thus t co tc l s t t t
s bld o 1 or
ubsa ta i ll mpl
nt
, he ur onc ude ha he
Co mi so r sfnalde son i t sc ei s
m s i ne ' i
cii n hi as s uppore by s tnta e de e.
td
ubsa i l vi nc

On a alt txs c t pl i if a g s t tt La J
ppe o li our, antf r ue ha he w udge i o ry dic t t
mpr pe l s oun ed he
vo to l i sc nc of ode a elm iai nsi s i lfz tozi co e r to p'r itnce a
cai na sgni a e m r t i t to n oc a l i zng, nc ntai n, e sse , nd
nc
pa e.Cii amuliudeofde ii ,ncudi t toft sc ti Se onv. vi 21F.
c
tng
tt
c sons i l ng ha hi our n xt
Col n,
supp.
3d

6 9( . Va 2 4 a dt a o t eUntdSae Co r o Ap e l f rheFo rhCic ii M a co
3 W D. . 01 ) n h t f h ie tt s u t f p as o t u t rutn s i
v. vi 78 F. 63 ( hCi.
Col n, 0 3d 2 4t r 2015)pl nifague t tt La J
, aitf r s ha he w udge' fndi o almiain
s i ng f i tto
t smpl , l l wor doe no ne es a y i y, tkei o a comt mode aelm ia i i
o i e unsdled k s t c s dl mpl or a nt c t ,
r t i ttons n

c e r ton, r it nc orpa e.W liet c lt le t tpli ifha c r c l i e pr t d
onc ntai pe sse e,
c
ll he otr bei ves ha antf s ore ty ntr ee
t hol i i M a ci a Se on,hec t sno le t t her tonaeoft s c esa i
he d ngs n s o nd xt t our doe tbei ve ha t a i l he e as pples
t A .Fl v r c ar I M as o a Se on,t c am a s pr e s wih c e r ton,
o 4r oq e s' l in. n
ci nd xt
he l i nt ' oblm
t onc nta i
pe sse ,a pa we e a s i t d prm a y wih e i lpr e s Asnot d by t La
r it nce nd ce r s oc a e i dl t motona obl m .
e
he w
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s p a Op n i v. n h, 9 F.d3 6(t Ci. 9 4 .Fo t ra o sae ,h c u tid t e
u r ; pe hem Fic 4 5 2 9 4 h r 1 7 ) rhe e s ns tt d t e o r fn s h
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DATED :Thi I
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2I connectonw ih hi r
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a dt the o frn hi n w. na muc a t ne r po t a eme eyc mua i ,h c urfnds c us
n ha t y fe pt ny e I s h s he w e rs r r l u ltve t e o ti no a e
f rrma df c sd rto o t n w e d nc Se Bor e sv. c e , 7F. 95 (t Ci.1 5) nd
o e n or on le aln f he e vie e. e d r He klr77 2d 4 4 h r 98 a
M e rv. tu , 2F. 70 (t Ci. )
ye Asr e 66 3d 0 4 h r 2011.
8