2009 Annual Report of the SSI Program

 

C. HISTORICAL ALLOWANCE DATA

At the end of 2008, 84 percent of SSI recipients were receiving benefits based on a determination of dis­ability or blindness. Claims are filed at a local Social Security office and claims requiring an evaluation of disability are sent to the State DDS for a decision. Initial DDS decisions that are unfavorable to the appli­cant may be appealed. Historically, all appeals were initiated at the DDS level with a request for reconsid­eration of that initial denial. Persons denied at the reconsideration level could then request a hearing before an administrative law judge (ALJ), and if dissatisfied with the hearing decision could request a review by the Appeals Council. Those dissatisfied with the Appeals Council’s action could seek further relief via the Federal court system. This appeals process is still in effect for the majority of new applicants.¹ However, since the mid-1990s SSA has conducted small pilots testing revisions to this process and introduced a modification of this process that has been utilized in 10 States for applications filed on or after October 1, 1999. Under this revised process, the first level of appeal of an initial determination is a request for hear­ing before an ALJ, thereby eliminating the reconsideration step.

Such a process of application and appeal can, in some cases, span several years. However, before 1993, the only data available on the disability determination process resided in files compiled at each separate stage of the process and only captured various point-in-time snapshots. A complete picture of the disabil­ity determination process can be fully understood only by compiling a longitudinal database from adminis­trative records at all levels of appeal. Beginning in 1993, such a longitudinal database (the “Disability Research File”) was constructed by SSA’s Office of Disability Programs to assist the agency in under­standing and managing this process. In constructing this database, some problems were encountered due to inconsistencies in the data collected from all the respective levels of appeal. The following sections present some additional details and qualifications essential to a complete understanding of the resulting data. Following these technical notes are tables based on the Disability Research File which show the lat­est available summary of results on disability determinations under title XVI.

1. Technical Notes on the Disability Research File

Methods used to build the title XVI Disability Research File—The “base” file for the title XVI research file is the Supplemental Security Record (SSR). This “base” file is matched against records from various other administrative sources, including transactions from the disability determination (SSA-831) files, Social Security number identification records and earnings data, and ODAR case control data.

The process used to build this research file is cumbersome, involving about 200 steps, and generally requiring 2 to 4 months to complete. Much of this complexity flows from the fact that the file is assembled based on filing date cohorts, even though many of the source files do not contain a filing date. The three most recent calendar year cohorts are completely reassembled from the basic data sources. Older calendar year cohorts are updated to reflect activity since the last time the file was built. Since the process is so time consuming, the research file is updated only annually (usually beginning in July). Therefore, research file data are not yet available for claims filed in 2008.

Methods used for estimating results (through February 2009) for claims filed in 2008—Although decision counts are available for 2008 filers (from many of the “source” files), those counts do not translate directly into the claims/appeals counts included in the following tables, due to the consolidation of multiple trans­actions (and application of claims-based tolerance rules) which occurs when the research file is built.

To prepare preliminary estimates of results (through February 2009) for 2008 filers, we started from the latest available transaction data, such as the SSA-831 data, and took into account recent years’ experience of the relationship between corresponding earlier transaction data and the resulting claims/appeals data in completed research files. Estimates of ODAR appeals activity are taken from a file which tracks individual claimants, rather than individual claims. Therefore, this may result in a slight undercount of ODAR activ­ity.

While we believe that the methods used are reasonable, it must be emphasized that the resulting estimates may prove to be of limited reliability, especially in light of the fact that the estimates give results only through February 2009, whereas the final research files will reflect information through June 2009. Actual data for 2008 will be available to replace these estimates in the 2010 Annual Report.

2. General Considerations

Some general points that apply to tables V.C1 and V.C2 are as follows:

•	Data for 1988-2007 filers are as of August 2008 for decisions at the DDS and OFedRO levels. Results for those years’ filers have been updated to include results at the hearing and Appeals Council levels and Federal courts through August 2008.

•

Data for 2008 filers are preliminary estimates as of February 2009, and reflect larger numbers of claims still pending. February 2009 data on number of claims appealed may be too low because larger numbers of claimants are still within the period allowed for filing an appeal (i.e., larger numbers of recently denied claimants who have not yet filed an appeal may appeal before the time limit runs out).

•	Remaining appeals will affect the results. Since allowances are generally processed more quickly than denials, we expect that the percent allowed will ultimately be lower as all cases are processed.

•

In certain pilot activities and under the revised process introduced October 1, 1999 in 10 States, initial denials can be appealed directly to ODAR without a separate reconsideration step. As a result the appeals of initial denials shown in these tables include cases which will not receive a decision at the reconsideration level.

•	The cases appealed to the OFedRO level under the DSI process are not shown separately, but are included in these tables in the reconsideration counts.

 

 

Table V.C1.—Disabled Adult Claims: Disposition of Applications for SSI Disability Benefits by
Year of Filing a and Level of Decision

Calendar year of filing	Total claims filed	Initial decisions
		Pending	Allowances		Denials		Appeals of initial denials
			Number	Percent b	Number	Percent b	Number c	Percent d
1988	946,603	—	272,204	28.8	674,399	71.2	265,151	39.3
1989	969,218	—	292,044	30.1	677,174	69.9	274,823	40.6
1990	1,099,805	—	347,823	31.6	751,982	68.4	320,207	42.6
1991	1,288,331	—	415,336	32.2	872,995	67.8	383,669	43.9
1992	1,415,624	—	436,888	30.9	978,736	69.1	433,244	44.3
1993	1,503,278	—	416,300	27.7	1,086,978	72.3	485,166	44.6
1994	1,436,958	—	353,995	24.6	1,082,963	75.4	482,533	44.6
1995	1,318,416	—	323,084	24.5	995,332	75.5	439,166	44.1
1996	1,247,926	—	305,351	24.5	942,575	75.5	406,425	43.1
1997	1,110,898	—	292,839	26.4	818,059	73.6	357,973	43.8
1998	1,108,957	—	322,734	29.1	786,223	70.9	339,288	43.2
1999	1,104,975	—	326,607	29.6	778,368	70.4	332,122	42.7
2000	1,139,571	—	344,163	30.2	795,408	69.8	332,503	41.8
2001	1,216,182	—	365,932	30.1	850,250	69.9	355,165	41.8
2002	1,322,683	—	371,233	28.1	951,450	71.9	398,582	41.9
2003	1,403,442	—	378,538	27.0	1,024,904	73.0	424,698	41.4
2004	1,475,930	—	384,208	26.0	1,091,722	74.0	426,986	39.1
2005	1,472,810	—	369,999	25.1	1,102,811	74.9	408,438	37.0
2006	1,500,934	—	363,204	24.2	1,137,730	75.8	416,709	36.6
2007	1,512,117	6,311	364,221	24.2	1,141,585	75.8	413,031	36.2
2008	1,607,355	258,348	412,067	30.5	936,940	69.5	300,800	32.1

 

 

Calendar year of filing	Reconsiderations e						Appeals beyond reconsideration f
	Pending	Allowances		Denials	Appeals of reconsideration denials			Allowances
		Number	Percent b		Number g	Percent d	Pending h	Number	Percent i	Denials j
1988	—	38,385	14.5	226,766	140,663	62.0	—	82,414	58.6	58,249
1989	—	43,505	15.8	231,318	146,082	63.2	—	90,169	61.7	55,913
1990	—	52,055	16.3	268,152	175,520	65.5	—	109,098	62.2	66,422
1991	—	59,157	15.4	324,512	221,816	68.4	—	139,698	63.0	82,118
1992	—	58,819	13.6	374,425	260,554	69.6	—	159,084	61.1	101,470
1993	—	57,938	11.9	427,228	294,801	69.0	—	170,402	57.8	124,399
1994	—	55,822	11.6	426,711	293,448	68.8	—	164,537	56.1	128,911
1995	—	51,697	11.8	387,469	264,270	68.2	—	143,582	54.3	120,688
1996	—	49,263	12.1	357,162	242,407	67.9	—	133,323	55.0	109,084
1997	—	47,573	13.4	306,561	213,969	69.8	—	121,619	55.8	96,189
1998	—	46,507	13.7	292,272	203,767	69.7	—	115,323	56.5	88,953
1999	—	42,135	13.3	274,269	193,497	70.6	—	118,768	56.8	90,447
2000	—	39,522	14.3	237,714	169,112	71.1	—	125,568	56.0	98,811
2001	—	38,987	13.9	241,200	172,082	71.3	1,838	136,050	55.5	109,172
2002	—	40,290	12.9	271,278	193,416	71.3	2,689	153,853	55.4	123,888
2003	—	40,861	12.2	293,433	208,070	70.9	5,134	162,217	55.3	131,123
2004	—	38,858	11.6	295,019	209,106	70.9	12,395	162,039	55.9	127,781
2005	—	36,407	11.4	283,760	201,515	71.0	39,269	143,300	57.2	107,217
2006	—	34,858	10.8	289,047	204,908	70.9	150,230	84,298	57.2	63,184
2007	16,317	28,876	9.5	274,703	171,566	62.5	230,025	21,214	61.2	13,462
2008	66,809	20,144	12.1	146,905	76,109	51.8	136,239	4,987	73.2	1,825

 

 

Table V.C1.—Disabled Adult Claims: Disposition of Applications for SSI Disability Benefits by
Year of Filing a and Level of Decision (Cont.)

Calendar year of filing	Selected summary case information by decision status: Numbers of cases
	Total claims filed	Initial decisions pending	Total initial decisions	Allowances	Denials
					Appeal decision pending	No appeal pending
1988	946,603	—	946,603	393,003	—	553,600
1989	969,218	—	969,218	425,718	—	543,500
1990	1,099,805	—	1,099,805	508,976	—	590,829
1991	1,288,331	—	1,288,331	614,191	—	674,140
1992	1,415,624	—	1,415,624	654,791	—	760,833
1993	1,503,278	—	1,503,278	644,640	—	858,638
1994	1,436,958	—	1,436,958	574,354	—	862,604
1995	1,318,416	—	1,318,416	518,363	—	800,053
1996	1,247,926	—	1,247,926	487,937	—	759,989
1997	1,110,898	—	1,110,898	462,031	—	648,867
1998	1,108,957	—	1,108,957	484,564	—	624,393
1999	1,104,975	—	1,104,975	487,510	—	617,465
2000	1,139,571	—	1,139,571	509,253	—	630,318
2001	1,216,182	—	1,216,182	540,969	1,838	673,375
2002	1,322,683	—	1,322,683	565,376	2,689	754,618
2003	1,403,442	—	1,403,442	581,616	5,134	816,692
2004	1,475,930	—	1,475,930	585,105	12,395	878,430
2005	1,472,810	—	1,472,810	549,706	39,269	883,835
2006	1,500,934	—	1,500,934	482,360	150,230	868,344
2007	1,512,117	6,311	1,505,806	414,311	246,342	845,153
2008	1,607,355	258,348	1,349,007	437,198	203,048	708,761

 

 

Calendar year of filing	Selected summary case information by decision status
	Numbers as a percentage of total claims filed				Numbers as a percentage of total initial decisions
	Initial decision pending	Allowances	Denials		Allowances	Denials
			Appeal decision pending	No appeal pending		Appeal decision pending	No appeal pending
1988	—	41.5	—	58.5	41.5	—	58.5
1989	—	43.9	—	56.1	43.9	—	56.1
1990	—	46.3	—	53.7	46.3	—	53.7
1991	—	47.7	—	52.3	47.7	—	52.3
1992	—	46.3	—	53.7	46.3	—	53.7
1993	—	42.9	—	57.1	42.9	—	57.1
1994	—	40.0	—	60.0	40.0	—	60.0
1995	—	39.3	—	60.7	39.3	—	60.7
1996	—	39.1	—	60.9	39.1	—	60.9
1997	—	41.6	—	58.4	41.6	—	58.4
1998	—	43.7	—	56.3	43.7	—	56.3
1999	—	44.1	—	55.9	44.1	—	55.9
2000	—	44.7	—	55.3	44.7	—	55.3
2001	—	44.5	0.2	55.4	44.5	0.2	55.4
2002	—	42.7	.2	57.1	42.7	.2	57.1
2003	—	41.4	.4	58.2	41.4	.4	58.2
2004	—	39.6	.8	59.5	39.6	.8	59.5
2005	—	37.3	2.7	60.0	37.3	2.7	60.0
2006	—	32.1	10.0	57.9	32.1	10.0	57.9
2007	0.4	27.4	16.3	55.9	27.5	16.4	56.1
2008	16.1	27.2	12.6	44.1	32.4	15.1	52.5

^a Data for claims filed in 1988‑2007 reflect results as of August 2008. The numbers of total claims filed for 2005-07 are subject to change. Data for claims filed in 2008 are preliminary estimates as of February 2009. The ultimate numbers of allowances and denials are subject to change until all initial decisions have been completed and all appeals are final.

^b Percentage of decisions at this level.

^c Includes certain cases which can be appealed directly to the hearing level.

^d Percentage of denials at this level appealed to next level.

^e Includes cases reviewed by a Federal Reviewing Official (FedRO) as part of the DSI process.

^f Includes cases appealed to the hearing and Appeals Council levels and to the Federal courts.

^g Number of persons appealing beyond the reconsideration level.

^h Includes cases remanded to SSA from the Federal courts.

ⁱ Percentage of decisions at this level. For years in which decisions are still pending, the preliminary percentage shown is expected to ultimately be lower as all cases are processed. This occurs because allowances are generally processed more quickly than denials.

^j Includes denied claims where the final administrative action was a dismissal of an appeal request (e.g., the appeal was not filed timely or the applicant failed to appear at the scheduled hearing).

 

Table V.C2.—Disabled Child Claims: Disposition of Applications for SSI Disability Benefits by
Year of Filing a and Level of Decision

Calendar year of filing	Total claims filed	Initial decisions
		Pending	Allowances		Denials		Appeals of initial denials
			Number	Percent b	Number	Percent b	Number c	Percent d
1991	250,962	—	148,220	59.1	102,742	40.9	24,702	24.0
1992	372,971	—	189,079	50.7	183,892	49.3	49,297	26.8
1993	496,131	—	212,268	42.8	283,863	57.2	75,967	26.8
1994	525,013	—	172,219	32.8	352,794	67.2	92,093	26.1
1995	487,730	—	144,231	29.6	343,499	70.4	86,841	25.3
1996	453,473	—	127,416	28.1	326,057	71.9	75,013	23.0
1997	332,032	—	106,528	32.1	225,504	67.9	51,493	22.8
1998	335,732	—	123,249	36.7	212,483	63.3	50,110	23.6
1999	342,153	—	128,543	37.6	213,610	62.4	49,573	23.2
2000	349,288	—	136,989	39.2	212,299	60.8	48,091	22.7
2001	367,751	—	151,288	41.1	216,463	58.9	49,089	22.7
2002	402,130	—	163,772	40.7	238,358	59.3	55,863	23.4
2003	425,365	—	171,183	40.2	254,182	59.8	59,431	23.4
2004	435,629	—	173,163	39.8	262,466	60.2	58,135	22.1
2005	425,139	—	162,084	38.1	263,055	61.9	54,544	20.7
2006	433,132	—	159,577	36.8	273,555	63.2	57,672	21.1
2007	435,062	890	160,725	37.0	273,447	63.0	56,937	20.8
2008	449,364	62,159	168,434	43.5	218,771	56.5	41,084	18.8

 

 

Calendar year of filing	Reconsiderations e						Appeals beyond reconsideration f
	Pending	Allowances		Denials	Appeals of reconsideration denials			Allowances
		Number	Percent b		Number g	Percent d	Pending h	Number	Percent i	Denials j
1991	—	5,605	22.7	19,097	9,196	48.2	—	3,884	42.2	5,312
1992	—	9,463	19.2	39,834	19,770	49.6	—	7,523	38.1	12,247
1993	—	11,338	14.9	64,629	31,193	48.3	—	10,638	34.1	20,555
1994	—	11,332	12.3	80,761	38,433	47.6	—	12,954	33.7	25,479
1995	—	10,287	11.8	76,554	35,592	46.5	—	10,924	30.7	24,668
1996	—	9,355	12.5	65,658	27,920	42.5	—	8,853	31.7	19,067
1997	—	8,266	16.2	42,705	18,916	44.3	—	7,027	36.2	12,411
1998	—	7,799	15.6	42,237	18,762	44.4	—	7,034	37.3	11,802
1999	—	7,196	15.5	39,377	17,836	45.3	—	7,833	37.6	13,003
2000	—	6,932	18.3	31,051	14,353	46.2	—	8,928	36.5	15,533
2001	—	6,807	18.7	29,643	13,576	45.8	131	9,338	35.8	16,746
2002	—	7,426	17.9	34,024	15,329	45.1	174	10,418	35.2	19,150
2003	—	7,690	17.1	37,211	16,374	44.0	311	10,682	34.9	19,911
2004	—	7,123	16.2	36,776	15,906	43.3	968	10,344	35.5	18,830
2005	—	7,199	17.1	34,800	15,193	43.7	3,870	8,846	37.1	15,022
2006	—	7,281	16.4	37,235	16,385	44.0	16,306	5,172	39.1	8,063
2007	1,655	6,754	16.0	35,497	14,175	39.9	24,142	1,440	47.0	1,624
2008	7,932	3,156	13.2	20,814	6,589	31.7	15,273	169	33.9	329

 

 

Table V.C2.—Disabled Child Claims: Disposition of Applications for SSI Disability Benefits by
Year of Filing a and Level of Decision (Cont.)

Calendar year of filing	Selected summary case information by decision status: Numbers of cases
	Total claims filed	Initial decisions pending	Total initial decisions	Allowances	Denials
					Appeal decision pending	No appeal pending
1991	250,962	—	250,962	157,709	—	93,253
1992	372,971	—	372,971	206,065	—	166,906
1993	496,131	—	496,131	234,244	—	261,887
1994	525,013	—	525,013	196,505	—	328,508
1995	487,730	—	487,730	165,442	—	322,288
1996	453,473	—	453,473	145,624	—	307,849
1997	332,032	—	332,032	121,821	—	210,211
1998	335,732	—	335,732	138,082	—	197,650
1999	342,153	—	342,153	143,572	—	198,581
2000	349,288	—	349,288	152,849	—	196,439
2001	367,751	—	367,751	167,433	131	200,187
2002	402,130	—	402,130	181,616	174	220,340
2003	425,365	—	425,365	189,555	311	235,499
2004	435,629	—	435,629	190,630	968	244,031
2005	425,139	—	425,139	178,129	3,870	243,140
2006	433,132	—	433,132	172,030	16,306	244,796
2007	435,062	890	434,172	168,919	25,797	239,456
2008	449,364	62,159	387,205	171,759	23,205	192,241

 

 

Calendar year of filing	Selected summary case information by decision status
	Numbers as a percentage of total claims filed				Numbers as a percentage of total initial decisions
	Initial decision pending	Allowances	Denials		Allowances	Denials
			Appeal decision pending	No appeal pending		Appeal decision pending	No appeal pending
1991	—	62.8	—	37.2	62.8	—	37.2
1992	—	55.2	—	44.8	55.2	—	44.8
1993	—	47.2	—	52.8	47.2	—	52.8
1994	—	37.4	—	62.6	37.4	—	62.6
1995	—	33.9	—	66.1	33.9	—	66.1
1996	—	32.1	—	67.9	32.1	—	67.9
1997	—	36.7	—	63.3	36.7	—	63.3
1998	—	41.1	—	58.9	41.1	—	58.9
1999	—	42.0	—	58.0	42.0	—	58.0
2000	—	43.8	—	56.2	43.8	—	56.2
2001	—	45.5	k	54.4	45.5	k	54.4
2002	—	45.2	k	54.8	45.2	k	54.8
2003	—	44.6	0.1	55.4	44.6	0.1	55.4
2004	—	43.8	.2	56.0	43.8	.2	56.0
2005	—	41.9	.9	57.2	41.9	.9	57.2
2006	—	39.7	3.8	56.5	39.7	3.8	56.5
2007	0.2	38.8	5.9	55.0	38.9	5.9	55.2
2008	13.8	38.2	5.2	42.8	44.4	6.0	49.6

^a Data for claims filed in 1991‑2007 reflect results as of August 2008. The numbers of total claims filed for 2005-07 are subject to change. Data for claims filed in 2008 are preliminary estimates as of February 2009. The ultimate numbers of allowances and denials are subject to change until all initial decisions have been completed and all appeals are final.

^b Percentage of decisions at this level.

^c Includes certain cases which can be appealed directly to the hearing level.

^d Percentage of denials at this level appealed to next level.

^e Includes cases reviewed by a Federal Reviewing Official (FedRO) as part of the DSI process.

^f Includes cases appealed to the hearing and Appeals Council levels and to the Federal courts.

^g Number of persons appealing beyond the reconsideration level.

^h Includes cases remanded to SSA from the Federal courts.

ⁱ Percentage of decisions at this level. For years in which decisions are still pending, the preliminary percentage shown is expected to ultimately be lower as all cases are processed. This occurs because allowances are generally processed more quickly than denials.

^j Includes denied claims where the final administrative action was a dismissal of an appeal request (e.g., the appeal was not filed timely or the applicant failed to appear at the scheduled hearing).

^k Less than 0.05 percent.

 

 

---

1

Implementation of the Disability Service Improvement (DSI) process began in the Boston region in August 2006. The DSI process eliminated reconsider­ation as the first level of appeal of an initial disability determination and introduced review by the Office of the Federal Reviewing Official (OFedRO) in its place. By final rule published in the Federal Register (73 FR 2411) SSA suspended new claims to the OFedRO level; this change was effective March 23, 2008 (73 FR 10381). For those initial disability appeals that had not been transferred to OFedRO on or before the effective date, the procedure for the first level of appeal reverted to that which was in place prior to August 2006; i.e., reconsideration. The DSI regulations also modified administrative appeal of an ALJ’s decision or dismissal. These modifications remain in effect in the Boston region.