SECOND DI VI SI ON
M I LLER, P. J.

, DOYLE, P. J.

, and REESE, J.

N O T IC E : M otions for r e c ons i de r a tion m us t be ph y sic a l ly r e ce iv ed i n our c le r k ’s offic e w ithin te n da y s of the da te of de c is ion to be de e m ed tim e ly file d.

http://w w w .ga a ppe a l s .us /r ule s

M ar ch 6, 2018



# I n th e Co u r t o f

A p p eals o f

G eo r g ia

A1 7 A1 92 3

. BROAD STREET SUPERM AR K E T, INC., et al

. v

. GEORGIA DEPARTM ENT OF PUBLIC HEALTH. DO-0 7 3

D O Y LE , Pres i d i n g J u d g e.

W e g ran t ed a d is cret i on ary ap p l i cat i o n f i l ed b y Bro ad St reet Su p erm ark et

, In c.,

d / b / a M o o n ’ s Su p erm ark et (“ Bro ad St reet ”), s eek in g rev i ew o f t h e s u peri o r co urt ’ s

o rd er affi rm i n g a d eci s io n of t h e Dep art m en t o f Pu b l ic Heal t h (“ DPH”), wh i ch

d i s q u al i fi ed B r o a d St reet ’ s g ro cery s t o res fro m p art i ci p at i n g in t h e fed eral Sp eci al

Su p p l em en t al Nu t ri t io n Pro g ram fo r W o m en , In fan t s , an d Ch i l d ren (“ W IC”) in

Geo rg i a. Fo r t h e reas on s t h at fo l l o w, we rev ers e.

In 2 0 1 4

, Bro ad St reet o b tai n ed W IC au t h o ri zat i on fo r Bro ad St reet ’ s fi rs t s t o re,

M o o n’ s Su p erm ark et ( “ M o o n ’ s ”). On D ecem b er 2 3

, 2 0 1 4

, Bro ad St reet b o u g ht

M o n ti cel l o Fam i l y Fo o ds ( “ M ontic e l lo” )

. M ontic e llo w a s au th o ri zed as a W IC v en d o ru n d er i t s p r e v i o u s o wn ers h i p, b u t Bro ad St reet d i d no t ap p l y i m m ed i at el y fo r n ew

W IC au th o ri zat i o n wh en i t p u rch as ed M o n t i cel l o

.

In Feb ru ary 2 0 1 5, b a s e d o n an au t o m at ic no t i fi cat i on fro m t h e fed eral

g o v ern m en t t hat M on t i cel l o was n o l o n ger a p art i ci p an t i n t h e Un i t ed St at es

D e pa r tm en t o f A g ri cu l t u re’ s Su p p l em en t al Nu t ri t i o n As s i st an ce Pro gr a m ( “ S N A P ” )

, 1

DPH co n d u ct ed an o n -s i te i nv es t i g at i on o f M on t i cel l o

. Du ri n g th e Feb ru ary 1 3

, 2 0 1 5

s i te i n v es t i g at i on , s t o re m an ag er Tracy Gi l m an t o ld t h e i n v es t i g at o rs t hat M o n t i cel lo

“ d i d no t h av e an y W IC v o u ch ers o n h an d,” b u t t h e s t ore s ti l l accep t ed t h e v o u ch ers

an d t h at o w n e r J i m M o rrel l “ co m es i n t o t h e s t o re o n ce a week t o p i ck u p t h e W IC

v o u ch ers .” Lat er t h at d ay , DPH co n t act ed M o rrel l, wh o t o l d an i n v es t i g at o r t h at h e

h ad u s ed M o o n ’ s ven d o r s t am p t o accep t W IC v o uch ers u s ed a t M o n t i cel l o an d

d ep os i t ed t ho s e v o u ch ers in to M o o n ’ s acco u n t aft er Bro ad Str e e t a c q ui red M o n t i cel lo

b ecau s e M o rrel l b el iev ed th at t h e W IC ap p li cat i o n fo r M o n t i cel l o co u ld n o t b e

p ro ces s ed u n ti l M arch o f 2 01 5 ; h e as k ed t h e i n v es t i g a t or wh at h e s h o u l d d o ab o ut

W IC v o u ch ers wh i l e t h e ap p l i cat i o n was p en di n g fo r M o nt i cel l o , an d th e in v es t i g at o r

1 In o rd er to b e a v en d o r i n t h e G eo rg i a W IC p ro g ram , p art i ci p at i o n i n t h e S NAP

p ro g ram i s req u i red

.

2ad v is ed h i m n o t t o accep t t hem at M o n t icel l o pri o r t o ap pl i cat io n ap p ro v al

. M o rrel l

s u b m i t t ed a W IC v en d o r ap p l i cat i o n fo r M o n t i cel l o t h at s am e d ay

.

DPH s u b s eq u en t l y d is q u al i fi ed M oon’ s f r om W I C pa

r ti ci p at i o n fo r t h ree y ears ,

o n t h e g ro u n d t h at M o o n ’ s h ad en g ag ed in “ [a] p at t ern o f r e cei v in g, t ran s act i n g [,]

an d /o r red eem i n g fo o d i n s t ru m en ts o r cas h-v al u e v o u ch e rs ou t s id e o f au t h o ri zed

ch an nel s,” u n d er 7 CFR § 24 6 .1 2 ( l ) (1 ) (i i i ) (D). 2 An Ad m i ni s t rat i ve L aw J u d g e

(“ ALJ ”) rev ers ed M o o n ’ s d i s q u al i fi cat i o n o n g ro u n d s t h a t : ( i ) t h e reco rd d i d n ot

es t ab l i s h wh en or h o w o ft en M o n t i cel l o h ad accep t ed W IC vo u ch ers ; an d (i i ) DPH

h a d n o t gi v en Bro ad St reet t h e req u i red n o t i ce an d op p ort u n it y to t ak e co rre c t i v e

act i on b efo re d i s q u al i fy i n g M o o n ’ s

. O n ag en cy ap p eal

, t h e ag en cy d i s ag reed wi t h t h e

ALJ o n bo t h gro un d s , rev ers ed t h e d eci s i o n , an d rei n s t at ed M oo n ’ s d i s q u al i fi cat i o n.

Th e ag en cy

s u bs eq u en t l y

d en i ed Bro ad St reet ’ s req u es t fo r reco n s i d erat i o n, an d o n

ap p eal t o t h e s u p eri o r co urt

, t h e ag en cy ’ s d eci s i o n w as affi rm ed

. Th is Co u rt t h ereaft er

g ran t ed Bro ad St reet ’ s ap pl i cat i o n fo r d is cret i o n ary ap p eal

.

1

. Th e Geo rg i a Ad m i n i s t rat i v e Pro ced u re Act

, OCGA § 5 0 -1 3 -1 et seq .,

au t h o ri zes t h e s up eri o r co u rt t o rev ers e o r m o d i fy an ag en cy

d eci s i on o n l y

i f:

2 DPH al s o d en ied M o n t icel l o ’ s W IC ap p l i cat i o n. Si n ce t h at t im e, h o w ev er, Bro ad
St reet so l d Mo n t i cel l o , an d t h e d en i al o f i t s ap p li cat i o n is n o t at i ss u e in t h e i ns t an t ap p eal

.

3s u b s t an t i al ri g h ts o f t h e ap p el l an t h av e b een p reju d i ced b ecau s e th e

ad m i n i s trat iv e fi n d i n gs , i n feren ces , co n cl us i o ns , o r d eci s i o ns are:

(1 ) In v io lat i o n o f co ns t it u ti o n al o r s t at u to ry p ro v i s i o n s ;

(2 ) In ex ces s o f t h e s t at ut o ry au t h o ri ty o f t h e ag en cy ;

(3 ) M ad e u po n u n l awfu l p ro ced u re;

(4 ) Affect ed b y

o th er erro r o f l aw;

(5 ) C l e a r l y erro n eo u s i n v i ew o f t h e rel i ab l e, p ro b at i v e, an d

s u b s t an t i al ev i den ce o n t h e wh o l e reco rd ; o r

(6 ) Arb i trary o r cap ri ci o u s or ch aract eri zed by ab u s e o f d i scret i o n

o r cl earl y u nwarran t ed ex erci s e o f d i s cret i o n

. 3

Th us , co u rt s rev i ew ag en cy fi n di n g s o f fact “ t o d et erm i n e wh et h er t h ey are s u p p o rt ed

b y an y ev i den ce,” wh i l e c o n c l u s i o n s o f l aw are rev i ewed d e n o v o

. 4 “ Up on fu rt h er

d i s c r e t i o nary ap p eal t o t h i s Co u rt

, o u r du t y is n o t t o rev i ew w h et h er t h e reco rd

s u p p ort s t h e s u p eri o r co urt ’ s d eci s i o n b u t wh et h er t h e reco rd s u p p o rt s th e fi n al

d eci s i o n o f t h e ad m i n i s t rat i ve ag en cy

. ” 5

3 OCGA § 50 -1 3 -1 9 (h ). See al s o No r t h A t l a n t a S ca n As so c. v. Dep t

. of Co mmu n i t y Hea l t h , 2 7 7 Ga. Ap p . 5 8 3 , 5 8 3 (6 2 7 SE2 d 6 7 ) (2 0 0 6).

4 Ga

. Dep t

. o

f Co m mu ni t

y Hea l t h v. Fu l t o n DeKa l b Ho s p

. Au t h

. , 2 9 4 Ga. Ap p

. 4 3 1 (6 6 9 SE2 d 2 3 3 ) (2 00 8 ) (p u n ct u at i o n o m i tt ed ).

5 (Pu nct u at i o n o m i t t ed .) No r t h At l a nt a S ca n As s o c. , 2 77 Ga. Ap p

. at 5 8 4

.

47 CFR § 2 4 6 .1 2 “ s et s fo rt h d es i g n an d o p erat i o n a l req u i rem en t s fo r fo o d

d el i v ery sy s t em s ,” i ncl u d i ng el ect ro n i c b en efi t t ran s fer s y s t em s, h om e d el iv er y , cas h

v al u e v ou ch ers an d fo o d i n s t ru m en t s , am o n g o t h ers ; an d p ro v i d es a fram ewo rk fo r

s t at es t o au t h o ri ze p ri v at e v en d o rs t o d i s t ri b u t e s u pp l em en t al fo o d u n d er t h e fed eral

SNAP p ro gram

. 6

As d i s cu s s ed ab o ve, DPH d i s q u al i fi ed Mo o n ’ s u n d er 7 CFR § 2 4 6 .1 2 ( l ) (1 )

(i ii ) (D), wh i ch i s p art o f a l arg er s ub s ect io n l i s t i n g “ [m ] an d at o ry v en d o r san ct i o n s .”

Th es e s a n c t i o n s in cl u d e (i ) p erm an en t di s q u al i fi cat i o ns fo r “ t raffi ck i n g i n fo o d

i n s t ru m en t s o r cas h -v al u e v o u ch ers or sel l in g fi rearm s [an d o t h er i t em s ] fo r fo o d

instr um e nt s o r cas h-v al u e v o u ch ers ; ” (i i ) s i x -y ear d i s q u al i fi cat io n s fo r “ one inc ide nc e

o f b uy in g o r s el l i n g fo o d i ns t ru m en ts

, o r cas h -v al ue v o uch ers , fo r cas h

. . . o r fi rearm s

[ o r othe r it em s ] ; ” (i i i ) t h ree-y ear d i s q ual i fi cat i o n s , an d (v i) o n e-y ear disqua lif ic a tions.

Un d er 7 CFR § 2 46 .1 2 ( l ) (1 ) (i i i ),

Th e St at e ag en cy

m u st d i s q u al i fy

a v en d o r fo r t h ree y ears fo r:

(A) On e i nci d en ce o f th e s al e o f a l c o h o l o r al co h o li c b ev erag es o r

t o b acco pro du ct s in e x ch an g e fo r fo o d i n s tru m en t s o r cas h -v al ue

v o u ch ers ;

6 7 CFR § 2 4 6 .1 2 (a).

5(B) A p at t ern o f cl ai m i n g r e i m b u r s em en t fo r t h e s al e of an am o u nt o f

a s p eci fi c s u p p l em en t al fo o d i t em wh i ch ex ceed s t h e st o re’ s doc um e nt ed

i n v en t o ry o f t h at s u p pl em en t al fo o d i t em fo r a s p eci fi c p eri o d o f t im e;

(C) A p at t ern o f v en d o r o v erch arg es ;

(D) A p at t ern o f recei v i n g , t ran s act i n g an d / o r red eem in g fo o d

i n s t ru m en t s o r cas h-v al u e v ou ch ers o ut s i d e o f au t h o ri z e d c h an nel s , i n cl u d i n g t h e u s e o f an u n au t h o ri z e d v e n do r an d / o r an u n au t h ori zed

p ers on ;

(E) A p at t ern o f c h arg i ng fo r s u p p l em en t al fo o d n ot recei v ed b y th e

p art i ci pan t ; o r

(F) A p at t ern o f p ro v i d i n g cred i t o r n o n -fo o d i t em s , o t h er t h an al co h ol

, al co ho l i c b ev erag es , t o b acco pro d u ct s, cas h

, fi rearm s , am m u n i t i o n ,

e x p l o s i v es , o r co n t ro l l ed s u b s t an ces as d efi n ed i n 2 1 USC § 8 0 2, i n

ex ch an g e fo r fo o d i n st ru m en t s o r cas h -v al ue v o uch ers

.

Su b s ect io n ( l ) (1 ) (x ii ) d i s cu s ses “ [m ] u lt i pl e v io lat i on s d u ri n g a s in g l e i n v es t i g at i o n.”

It st at es t h at

[w] h en du ri n g t h e co u rs e o f a s i n g l e i n v es t i g a t i o n t h e St at e ag en cy

d e t erm i nes a v en d or h as co m m i t ted m u l t i p l e vi o l at i o ns (wh i ch m ay

i n cl u d e vi o l at i o ns s u b

j ect t o St at e ag en cy s an ct i o n s ), th e St at e ag en cy

m u s t d i s q u a l i fy t h e v en d o r fo r t h e p eri od co rres po n di n g t o t h e m o s t

s eri o u s m an d at o ry v i ol at i o n

. Ho wev er, t h e St at e ag en cy m u s t in cl u d e al l

6v i o l at i o n s i n th e n o ti ce o f ad m i n i s t rat i o n act i o n

. If a m an dat o ry s an ct i o n

i s n ot u p h e l d o n ap peal

, t h en t h e St at e ag en cy m ay i m po s e a St at e

ag en cy -es t ab l i sh ed s an ct i o n

.

Th e n ot i ce req ui rem en t at i s s u e i s fo u n d i n § 2 4 6 .1 2 ( l ) (3 ), wh ich ex p l ai n s t h at :

Th e St at e ag en cy m

u s t n ot i fy a v en d o r i n w ri t i n g wh en an i n v es t i gat i o n

rev eal s an i n i t i al i n ci d en ce o f a v i o l a t i o n f o r wh i ch a p at t ern o f

i n ci d en ces m

u s t be es t ab l i s hed i n o rd er t o im p o s e a s an c t i o n , b efo re

an o t her su ch i n ci den ce i s d ocu m en t ed

, u n les s t h e St at e ag en cy

d et erm i nes , i n i t s di s cret i o n , o n a cas e-b y -cas e b as i s, t h at n o t i fy in g th e

v en d o r wo u ld co m

p ro m i s e an i n v es t i g at i o n. [ 7 ] Th i s n o t i fi cat i o n

req u irem en t ap p l i es t o t he v io l at io n s s et fo rt h i n p arag rap h s ( l ) (1 ) (i i i )
(C) t h ro u gh ( l ) (1 ) (i ii ) (F),[ 8 ] ( l ) (1 ) (i v ), an d ( l ) (2 ) (i ) o f t h is s ect i on

.

(i ) Pri or t o i m

p o s i n g a s an ct i o n fo r a p at tern o f v i o l at i v e i n ci d en ces , th e

St at e ag en cy m

u s t ei t her p ro v i d e s uch n ot i ce t o th e v en d o r, o r do cu m en t

i n t h e v en d o r fi l e t h e reas o n (s ) fo r d et erm i n i n g t h at s u ch n o t i ce wo u l d

co m p ro m is e an i n v es t i g at i o n .[ 9 ]

7 Th ere i s n o i n d icat i o n i n t h e cu rren t r e c o r d t h at D PH d et erm i n ed t h at p ro v i d i n g
p re-d i s q u al i fi cat io n n o ti ce t o Bro ad St reet o r M o o n’ s wo u l d co m pro m i s e an in v es t i g at i o n

.

8 Ap p l y i n g t o t h e v i ol at i o n at i ss u e.

9 “ T h i s p ro v i s i o n w il l hel p v en d o rs to co m pl y wi t h t h ei r res p o n s i b i l i t i es an d t h u s
p rev en t s an ct i o n s .” 7 1 FR § 4 3 3 7 1 , 4 3 3 7 2 (I).

7(i i) Th e St at e ag en cy m ay u s e t h e s am e m et ho d o f n o t i fi cat i o n wh i ch th e

St at e ag en cy u s es t o p ro v i d e a v en d o r wi t h ad eq uat e ad v an ce n o ti ce o f

t h e ti m e an d p l ace o f an ad m in i st rat i v e rev i ew in acco r d a n ce w i t h §

2 4 6 .1 8 (b ) (3 ).

(i ii ) If n o t ifi cat i o n i s p ro v i ded

, t h e St at e ag en cy m a y c o n t in u e i t s

i n v es t i gat i o n aft er t h e n o t i ce o f vi o lat i o n is recei v ed b y t h e v en d o r, o r

p res um ed t o be recei v e d b y t he v en do r, co n si s t en t wi t h t h e St at e

ag en cy ’ s p ro ced u res fo r p ro v i d i n g s uch n o t i ce.

(i v) Al l o f t h e i n ci d en ces o f a v i o l at i o n o ccu rri ng d u ri n g t h e fi rs t

co m p li an ce b u y v i s i t m

u s t co n s ti t ut e o n l y o n e i n ci den ce o f t h at vi o l at i o n

fo r t h e p u rp o s e o f es t ab l i s h i n g a p at t ern o f i n ci d en ces

.

(v ) A s i n g le v i ol at i v e i n ci d en ce m ay o n l y b e u s ed t o es tab l is h th e

v i o l at i o n s s et fo rt h i n p arag rap h s ( l ) (1 ) (i i ) (A), ( l ) ( 1 ) (i i ) (B), an d ( l )
(1 ) (i i i) (A) o f t h i s s ect i o n

. 1 0

Th e ALJ det erm i n ed t hat

, u n d er § 2 4 6 .1 2 ( l ) (3 ), wh en DPH fi rs t l earn ed t h at

M o o n’ s h ad red eem ed W IC v o u ch ers recei v ed by M o n t i cel l o, DPH w as req u i red to

n o t i fy Bro ad St r e et t h at a v i o l at i o n h ad b een rev eal ed b efo re d o cu m en t i n g an o t h er

v i o l at i o n fo r p u rp o s es o f es tab l i s h i n g t h e p at t ern t h at wo u l d s u p po rt a t h ree-y ear

d i s q u al i fi cat i o n

. On rev i ew, t he ag en cy an d t h e s u p eri o r co u rt d i s ag reed

, co n cl u d i n g

1 0 7 CFR § 2 4 6

. 1 2 ( l ) (3 ).

8t h at n o n o t i ce w as req u i red b ecau s e (i ) th e i n i t i al i n v es ti g at i o n rev eal ed a p at t ern o f

v i o l at i o n s; an d (i i ) t h e v io lat i o n s were n o t d i s co v ered d u ri n g a “ co m pl i an ce b uy

v i s i t ,” m ean i n g t h at 7 CFR § 2 4 6 .1 2 ( l ) (3 ) (i v ) d i d n o t ap p l y

.

W e ag ree w i th Bro ad St reet t hat DPH’ s i n t erp ret at i o n of t h e n o t i ce reg u l at i o n

i s i n co rrect

. 1 1 Un d er D PH’ s i n t erp ret at i o n , th e in i t i al d i s co v ery of m u l t i p l e i n ci d en ces

o f v i o l at i o n s o f § 2 4 6 .1 2 ( l ) (1 ) (i i i) (D) d u ri n g a “ co m p l i an ce b u y ” 1 2 (an u n derco v er

p u rch as e) wo u l d req u i re n o t i ce an d ev i d en ce o f s u b s eq u en t i n ci den ces o f v io l at i on s

i n o r d e r t o es tab l i s h t h e n eces s ary p at tern o f vi o l at i o ns p ri o r t o di s q ual i fy i n g a

v en do r, wh ereas t h e d i s co v ery o f m u l t i p l e i n ci d en ces o f a v i o l at i o n d u ri n g an o v ert

m o ni t o ri n g v i s it (s u ch as t he v i s i t h ere) wo u l d au th o ri ze i m m ed iat e di s q ual i fi cat i o n

. 1 3

Th i s i n t erp ret at i o n wo u l d ev i s cerat e t h e n ot i ce req u i rem en t i n m an y cas es t o wh i ch

1 1 See Ea g le W

es t, LLC v. Ga

. D ep t

. o

f Tr a ns p

. , 3 1 2 G a. Ap p

. 8 82

, 8 8 8 (7 2 0 SE2 d
3 1 7 ) (2 01 1 ) (“ [P] art icu l ar wo rd s o f s t at u t es are no t i n t erp ret ed i n i s ol at i o n ; i ns t ead

, co u rt s

m u s t co n s t ru e a s t at u t e t o g i v e s en s i b l e an d i n t el l i g en t effect t o al l o f it s p ro v i s i o ns , an d

m u s t co n s i d er t h e s t at u te i n rel at i o n t o o th er s t at u t e s of wh ich i t i s p art .”) (p u n ct u at i o n

o m i t t ed ).

1 2 “ Co m p l i an ce b u y m ean s a co v ert

, o n -s i te i n v es t i g at i o n in wh i ch a rep res en t at i v e

o f th e Pro g ram po s es as a p art ici p an t

, p aren t o r caret ak er o f an i n fan t o r ch i l d p art i ci p an t,

o r p ro xy , t r a n s a c t s on e o r m o re fo o d i n s t ru m en ts o r cas h -v al u e v o u ch ers , an d d o es n o t

rev eal d u ri n g t h e v is i t t h at h e o r s h e i s a p ro g ram rep res en t at i v e.” 7 CFR § 2 4 6 .2

.

1 3 “ R o u t i n e m o n i t ori ng m ean s o v ert

, o n -s it e m o n i t o ri n g d u ri n g wh i ch p ro g ram
rep res en t at i v es i d en t i fy

t h em s el v es t o v en d o r p ers o n n el .” 7 CFR § 2 4 6 .2

.

9t h e m ai n p arag rap h o f § 2 4 6

. 1 2 ( l ) (3 )

— t h e no t i ce req u i rem en t

, w h i ch e x p l i c i t l y

ap p li es t o v i o l a t i o n s of § 2 4 6 .1 2 ( l ) (1 ) (i i i ) (D)

— o t h erwi s e w o u l d ap p l y

. 1 4

M o reo v er, i t l ead s t o an ab s u rd res u l t i n wh i ch v en d o r s t h at h id e v i o l at i o n s fro m

i n v es t i g at o rs m ak in g ro u t i n e v i s i t s are p ro t ect ed wh i l e t h o s e v en d o rs wh o ad m i t to

s u ch v i ol at i o n s are pu n i s h ed

. Acco rd i n g l y , b ecau s e t he DPH fai l ed t o c o m p l y wi th

fed eral n o t i ce req u i rem en t s b efo re i m p o s i n g a t h ree-y ear s an ct i o n fo r t h e vi o l at i o n s ,

we rev ers e t h e s u p eri o r co u rt ’ s o rd er affi rm i n g t h e ag en cy ’ s d eci s i o n

. 1 5

2

. Bas ed o n o u r co n cl u s i o n i n Di v i si o n 1

, we d o no t a d d r e s s Bro ad St reet ’ s

rem ai n i n g en um erat i o n s o f erro r.

Ju d g men t r ever sed . Mi l l er

, P. J., a nd

Rees e, J., co n cu r

.

1 4 See 7 1 FR § 4 3 3 7 1

, 4 3 3 7 6 -4 3 37 7 (II) (1 ) (b ) (ex p l ai n in g i m p lem en t at i o n o f t h e
p ro p o s ed reg u l at o ry ch an g e res u l t i n g i n t h e cu rren t fo rm o f 7 CFR § 2 4 6 .1 2 ( l ) (3 ) an d t h e

res u l t t h at s t at es are r e q u i r ed t o i s s u e no t i fi cat i o n t o v en d o rs fo r v i ol at io n s p ri o r t o

s an ct i o n s ev en i f ev i d en ce o f a p at t ern i s u n co v ered d u ri ng t h e fi rs t co m p l i an ce b u y ).

1 5 Cf. Ra mz i

, In c. v. Dep t

. o f Pu b l i c Hea lt h

, 8 5 M as s

. Ap p

. Ct

. 3 5 3

, 3 5 9 -3 6 0 (1 ) (d ) (1 0 NE3 d 1 3 9 ) (2 0 14 ) (h o ld i n g t h at t h e ag en cy fai l ed t o p ro v i d e ap p ro p ri at e n o t i fi cat i o n b efo re i m p o s i t i o n o f a s an ct i o n, an d t h erefo re, o v ert u rn in g t h e s an ct i o n s at i s s u e).

10