Document: 487 U.S. 879 108 S.Ct. 2722 101 L.Ed.2d 749 Otis R. BOWEN, Secretary of Health and Human Services, et al., Petitionerv.MASSACHUSETTS. MASSACHUSETTS, Petitioner v. al. Nos. 87-712, 87-929. Argued April 20, 1988. Decided June 29, Syllabus The federal contribution (referred to as a "reimbursement") State's Medicaid program takes the form advances based on estimate its future expenditures for covered services. Overpayments may be withheld from advances, or, if disallowance dispute develops, retained by State at option pending resolution dispute. After Massachusetts was reimbursed Department Services (HHS) particular services during two time periods, HHS subsequently disallowed reimbursements ground that in question were not statute or regulations. Departmental Grant Appeals Board (Board) affirmed. Unlike orders related compliance proceedings, which are expressly made reviewable regional courts appeals, explicitly judicially statute. Nevertheless, filed suits, each with respect one decisions, Federal District Court, seeking declaratory injunctive relief specifically asking court "set aside" Board's orders. In case, issued judgment agreeing merits, "reversed" decision. second an order earlier Court agreed lacked jurisdiction him pay money State, therefore reversed "money judgment" against him. also held, however, had review decisions grant having prospective effect, affirmed merits. this contends United States Claims over claim, since §§ 702 704 Administrative Procedure Act preclude district review. Held: 1. courts, rather than have final refusing reimburse category under program. Pp. 891-912. (a) Although § denies actions agencies damages," plain meaning language does foreclose Secretary's cases such present. First, insofar complaints sought relief, they damages. Second, most importantly, even monetary aspects damages" term is used 702. ordinary compensatory injury suffered. Here, suits nature equitable action specific reimbursement allegedly already entitled, compensation losses suffered result disallowance. Cf. Maryland Dept. Resources 246 U.S.App.D.C. 180, 763 F.2d 1441 (CADC 1985). Thus, statutory text unambiguous and, given well-settled presumption Congress understands state existing law when it legislates, suggestion words "monetary relief" must substituted could accepted only compelling reasons. fact, legislative history demonstrates conclusively 702's exception should broadened beyond language. 891-901. (b) Section 704—which provides agency "for there no other adequate remedy any court"—does bar doubtful limited available Tucker substitute intended avoid duplication special procedures relating agencies, whereas relates broadly States. deficient several That has power relief. Such appropriate context, cannot assumed categorically naked will always Furthermore, would unable entertain case amount until Government recouped payment, might enter Government, actually expenses yet incurred. addition, controversies typically involve governmental activities much better position understand evaluate single, specialized tribunal headquartered Washington. It anomalous assume channel but intend same kinds context resolved Circuit. 901-908. 2. erred affirming judgments their entirety, reasons set forth above. Moreover, neither Court's judgment," first (followed second) simply decision, did paid purport finding owed. complete 5 U.S.C. 706. 909-912. 816 796 (CA1 1987), part, remanded. STEVENS, J., delivered opinion BRENNAN, MARSHALL, BLACKMUN, O'CONNOR, JJ., joined. WHITE, concurring judgment, post, p. 912. SCALIA, dissenting opinion, REHNQUIST, C.J., KENNEDY, joined, 913. Roy T. Englert, Jr., Washington, D.C., Bowen, Thomas A. Barnico, Boston, Mass., Com. Massachusetts. Justice STEVENS Court. 1 principal presented these whether All Courts confronted precise do cases.1 We implicitly answered way we decided merits Connecticut Income Maintenance Heckler, 471 524, 105 2210, 85 577 (1985). although established 1965, novel proposition exclusive forum judicial type appear been advocated reached Appeals. As shall explain, conclusion supported relevant statutes, history, practical understanding efficient administration. Before turning legal arguments, say few about mechanics financial participation (FFP) States' programs character issue 2 * 1965 authorized adding Title XIX Social Security Act, 79 Stat. 343. "a cooperative endeavor assistance participating aid them furnishing health care needy persons." Harris McRae, 448 297, 308, 100 2671, 2683, 65 784 (1980). Subject standards incorporated regulations, develop own describing conditions eligibility At present, 18 different categories medical authorized. See U.S., 528-529, S.Ct., 2212-2213. 3 referred "reimbursement," stream revenue series huge quarterly advance payments anticipated expenditures.2 estimates periodically adjusted reflect actual experience. event disallowance, dispute.3 4 Two he believes comply either his First: If concludes administration plan "substantial noncompliance" requirements, initiate proceeding pursuant 42 1316(a); termination FFP entire assistance, (theoretically) program.4 Should conclude initial determination incorrect, "he certify restitution forthwith lump sum funds incorrectly otherwise denied." 1316(c). A "United appeals circuit located." 1316(a)(3). Second: "disallow" "any item class items." 1316(d). "In general, . represents isolated highly focused inquiry into operation program."5 provide order. direct Appeals, concluded proceed court. Illinois Public Aid Schweiker, 707 273 (CA7 1983), cited therein. participated continuously 1966. One provision rehabilitative patients intermediate facilities mentally retarded (ICF1 MR services).6 These include matters " 'training "the daily living" (such dressing feeding oneself),' 616 F.Supp. 687, 691 (Mass.1985) (citation omitted) (case below), performed jointly personnel Departments Mental Education, working mental "special education" laws. 796, 798 1987) below). apparently regarded solely Health, auditors classified uncovered educational because part employees Education.7 On August 23, 1982, Regional Administrator Department's Care Financing Administration (HCFA) notified $6,414,964 period July 1, 1978, December 31, 1980. App. Pet. Cert. 97a.8 decision May 1983. Id., 53a.9 6 26, 1983, complaint invoked 28 1331 alleged waived sovereign immunity through requested asked order.10 While pending, 1984, HCFA $4,908,994 ICF/MR audit January 1981, 30, 1982. 92a. March 1985, upheld Board. 5, overturn 89a. 7 27, case. discuss jurisdictional issue. held fact rehabilitative, classification barred Education played role provision. 687 Its dated October 7, disallowing 32a. November 25, relying analysis first, determination. 622 266 entered 2, 1985. 36a. what money, any, owed Massachusetts, nor payment made. 8 challenged subject-matter jurisdiction,11 later memorandum stating matter policy, press defense lack action." 20.12 consolidated appeal First Circuit, reexamined policy argue jurisdiction. argument explained difference between wholly retrospective affected relationship parties follows: 9 "The unlike [Massachusetts Bd. 815 778 ], ongoing significant effect. structure (in 'reimburses' states advance) makes inevitable concern past due. Yet uses implement important policies governing programs. concerned unusual situation effect; challenge 10 "Here, contrast, interpretation announced affects far more education exclusion defines respective roles Commonwealth continuing 11 12 "Prospective both still active issues involved ramifications affect What stake here scope program, just how many dollars received year." F.2d, 799 (emphasis original). 13 lawfully exclude provided labeled part) "educational" help them. holding exclusion" violated rule reimbursable "no evidentiary basis doing so." 804. sum, vacated Secretary, remanded further determinations regarding reimbursable.13 14 petition certiorari, us decide claim.14 cross-petition, relief.15 granted petitions. 484 1003, 693, 98 645 (1988). basic (APA), 702, 704.16 argues amended 1976, authorize "seeking within 1976 amendment section; satisfied, bars overcome arguments prevail; separately. II 15 Since undisputed broaden avenues eliminating amendment, begin quoting original Prior provided: 16 "A person suffering wrong action, adversely aggrieved statute, entitled thereof."17 17 1975, Welfare, Ninth Circuit County Alameda Weinberger, 520 344 (CA9 1975). difficult "agency action" "adversely affected" that, accordingly, "entitled thereof." contains suggesting disagreed added following sentence broad coverage 702: 19 "An damages claim officer employee thereof acted failed act official capacity color authority dismissed therein denied indispensable party."18 20 There why brought challenging decisions. certainly law. 21 Neither reversal properly characterized award "damages." Either adjustment—and, indeed, usually relatively minor one—in size payable installments. terms "overpayment" "underpayment" describe adjustments open account parties,19 reverses described "restitution" statute.20 22 Our long recognized distinction damages—which victim person, property, reputation—and relief—which providing reinstatement backpay, recovery property monies, ejectment land, injunction directing restraining defendant officer's actions." Larson Domestic & Foreign Commerce Corp., 337 682, 688, 69 1457, 1460, 93 L.Ed. 1628 (1949) added). require party another sufficient reason characterize damages." town parents costs "damages": 23 "Because undoubtedly result, confident empowering 'appropriate' meant retroactive proper 24 Town repeatedly characterizes 'damages,' Reimbursement merely requires belatedly all along borne instance developed IEP." School Committee Burlington 359, 370-371, 1996, 2002-2003, 385 25 Judge Bork's explanation critical quotation full. Columbia (1985),21 wrote: 26 "We turn seeks equivalent 'enjoin[ing] defendants reducing due plaintiffs, imposing sanctions XX violations.' satisfied damages, government. 27 employed. 'money damages,' think, normally refers Damages plaintiff loss, remedies 'are all, attempt give very thing entitled.' D. Dobbs, Handbook Law Remedies 135 (1973). while instances '[o]ccasionally specie remedy.' Id. frequently contract exactly those terms. See, e.g., National Bank Savings Loan Association, 610 164, 171 (3d Cir.1979) (specific performance borrow money); Crouch Crouch, 566 486, 488 (5th Cir.1978) (contrasting lump-sum breach promise monthly support decreeing installments); Joyce Davis, 539 1262, 1265 (10th Cir.1976) bonus royalty contract). present 29 entitles it, losses, whatever be, suffer virtue withholding funds. in-kind benefits altogether evident. pass government (and then, services, beneficiaries) transform sought—specific Clark Library Congress, 750 89, 104 n. 33 (D.C.Cir.1984) (dictum) (describing compel repay improperly 'in essence, relief')." 185, 1446 original) omitted). 30 arguing narrow construction unquestionably asks selected Congress. Given obvious see, Cannon University Chicago, 441 677, 696-697, 99 1946, 1957-1958, 60 560 (1979), justify revision unambiguous. considered supports reading amendment. 31 major piece legislation designed remove "technical" obstacles access courts.22 culmination effort generated scholarly writing association work early 1960's.23 initially opposed proposal, eventually course offered support.24 comment materials relate directly bill passed then refer 1970 Hearing places reliance. 32 propositions perfectly clear. concerns evidence legislator understood common centuries. No suggested functional broader concept proposed familiar one.25 Each Reports damages";26 phrase Report once, intentional juxtaposition "specific relief," indicating drafters mind time-honored relief.27 departure enacted. House Senate indicate amended, "administration grant-in-aid programs."28 included list proceedings Committees wanted sure sovereign-immunity surely strong affirmative members regard agency's 34 writings, find sometimes interchangeably. minimal significance, high caliber scholars who testified, seems encompass drafted proposal differently. involving challenges examples Government's reliance legislation.29 Third, discussed greatest length (1949).30 criticized objection recognition classic monies." 1460. 35 summary especially convincing: 36 "Neither (there Conference Report) intimates damages' shorthand 'whatever forms Act.' To contrary, law, length, see H.R.Rep. No. 1656, supra, 5-8; S.Rep. 996, 94th Cong., 2d Sess. 4-8 (1976), suggests monies context. 'damages' 'specific relief' including latter 'the monies'). 37 "Moreover, reiterating 'suits barred, go [has] now come eliminate acting capacity.' 9; 8, U.S.Code Cong. Admin.News 6129 sweeping declaration strongly defined category. This inference virtually conclusive enumerate continued pose undesirable consideration merits: listing includes 'administration programs.' 6129. Specific will, course, often treasury. us, signification hold Maryland's claims albeit monetary, 'relief waiver section 702." U.S.App.D.C., 186-187, 1447-1448. 38 combined effect demonstrate suit enforce 1396b(a) "shall pay" certain amounts damage sustained failure mandated; rather, mandate itself, happens money.31 confused circumstances, bears repeating: 39 "[The State] [the 1446. III 40 submission rejected brief purpose buttresses conclusion. 41 enacted 1946 10(c) APA. pertinent "Every every subject review." 243.32 Earlier drafts became "only actions, rules, orders, review," "[e]very court, review."33 Professor widely respected administrative scholar, written "has almost completely ignored opinions,"34 704's "adequate remedy" elsewhere restatement "[o]ne need exhaust inadequate."35 43 However, primary thrust codify exhaustion requirement, clear general APA duplicate action. Attorney General put year, "does additional situations where procedures."36 enacted, number statutes creating followed reviewing action; example, Trade Commission Labor Relations appeals,37 Interstate specially constituted three-judge courts.38 When authorization previously agencies. 44 construed defeat central spectrum our leading explaining significance provision, Harlan 45 '[a]gency statute' 'final court,' 704. material elucidating seminal manifests congressional intention cover echoed theme noting Act's 'generous provisions' 'hospitable' interpretation." Abbott Laboratories Gardner, 387 136, 140-141, 87 1507, 1511, 681 (1967) (footnote 46 restrictive unquestionably, Black, "run counter Act. Their statutes. ." Shaughnessy Pedreiro, 349 48, 51, 75 591, 594, 868 (1955). 47 restrictive—and unprecedented plainly kind procedure" oust normal APA.39 availability doubtful. 48 powers Indeed, stated relief."40 facts illustrate, interaction responsibilities approved regulations make culminate entry modify practices. willing assume, categorically, fashioned light complex parties.41 49 some perhaps States, least doubtful.42 Regarding former dilemma: elects retain completion Board, 1396b(d)(5); 3, able file after payment. answer suggest harmed retains interest planning groups trained ICF's pressing seek motion preliminary injunction—as promptly possible becomes final. so side ledger (assuming exhausted); can 905, fashion offset supra.43 problem: incurred arguable concerning status entitlement owes it.44 50 Further, rise single settled firm deferring law.45 applies force expertise considering state-law disallowances nothing less remarkable questions federal-state reviewed Claims. More specifically, 1316(a)(3); 885, arising Circuit.46 IV 51 agree advanced cross-petition—that entirety—for independent held. second, Part I, supra ) "decision Decision 438 (May 1983)."47 true describes paid, amount, money. Granted, tells disallow grounds given, thus likely abide sum. But extent engenders outcome mere by-product court's function 52 II, excepted 704, III, supra. is, (they undo refusal State) substitutes ought done) immunity. possibility purely supra.48 53 governed 706.49 court," "hold unlawful aside found "not accordance law." required split parts.50 54 APA, Dean Cramton endorsed view 'today doctrine [of immunity] satisfactory technicians persons whose main justice. trouble interferes matters, transforms everything play words.' "51 fair "practical matters" Accordingly, entirety. 55 affirm reverse remand consistent opinion. 56 ordered. 57 judgment. 58 construes I am prepared accept did, view. 59 circumstances here, prayer unprepared aspect hence concur reaches correct being 61 whom THE CHIEF JUSTICE KENNEDY join, dissenting. 62 holds finds disagree propositions, respectfully dissent. 63 Union, like entities, suing absence express Congress." Block North Dakota ex rel. Univ. Lands, 461 273, 280, 103 1811, 1816, 840 (1983). For waiver, (hereafter respondent) relies (APA) 1976: 64 party." respondent's lawsuits unavailing. 66 parlance, "damages" awarded reparation resulting duty. Webster's Third New International Dictionary 571 (1981); Black's 351-352 ed. 1979); 3.1, (1973); W. Hale, (Cooley 1912). Thus something redundancy, nonetheless, usage common-law system. other, denominated relief." Whereas compensate prevents undoes loss ordering return wrongfully taken, enjoining acts plaintiff's property. 5A Corbin, Contracts 1141, 113 (1964); 135. 67 use (or damages") dealing naturally thought advert distinction. reinforced desirability pari materia 1491, grants Government. authorizing Jones, 131 [9 669, 90] (1889). flows Richardson Morris, 409 464, 465, 629, 630, 647 (1973) (per curiam ); Lee Thornton, 420 139, 140, 95 853, 854, (1975) (Tucker empowers "to relief"); King, 395 89 1501, 1502, (1969) (relief "limited actual, presently States"); Glidden Co. Zdanok, 370 530, 557, 82 1459, 1476, 671 (1962) (Harlan, announcing Court) ("From beginning Claims] relief"). generally turns upon relief,1 sensible, natural), interpret presence Otherwise, gap scheme relief—an utterly irrational gap, believe intended. 68 agrees [were to] centuries," ante, 897, encompasses ibid. concludes, former. theory puts forward "insofar [respondent's] 893, "neither [its] judgment,' 909. (nor think really agrees) reasoning. division reduced absurdity, line drawn substance form. take lawyerly inventiveness convert (damages) reversing pay. surprising, therefore, "in 'murky' area jurisprudence clearly principles pleadings prevail form," Amoco Production Hodel, 352, 361 (CA5 cert. 87-372. my knowledge addressed issue, out 13, unanimous fails pray 778, 783 1987); B.K. Instrument, Inc. 715 713, 727 (CA2 1983); Hahn 757 581, 589 (CA3 1985); Portsmouth Redevelopment Housing Authority Pierce, 706 471, 474 (CA4), denied, 464 960, 392, 78 336 (1983); Alabama Rural Fire Ins. Naylor, 530 1221, 1228-1230 1976); Tennessee Leech Dole, 331, (CA6 1984), 472 1018, 3480, 615 (1985); 596 252, 253-254 1979) Minnesota Noot 718 852, 859, (CA8 Rowe 633 799, 802 1980); Kansas City, 761 605, 608-609 (CA10 Megapulse, Lewis, 217 397, 405, 672 959, 967 (1982); Chula Vista City Dist. Bennett, 824 1573, 1579 (CA Fed.1987). stand obliterates permits prays contrary Circuits Therefore, "independent reaso[n]" conclusion, 909, rests grounds. law," 893; 910. focuses right question: gives answering negatively, mandated," 900, wrong. Respondent (damage) expending resources duty reimburse, contractor's contractor sustains contractual Respondent's precisely fit definition damages.2 true, description giving respondent (money) legally entitled. recognizes, "used meanings well tradition. tradition recover relief; successful obtains decree requiring threat punishment contempt, permitting sheriff seize sell defendant's plaintiff." Farnsworth, Legal Breach Contract, 70 Colum.L.Rev. 1145, 1152 (1970). Those rare resulted executable sheriff) awarded, prevent incalculable greater awarded. 1154; 1142, pp. 117-126 H. McClintock, Principles Equity 60, 149 (2d 1948); Waterman, Performance (1881). available, loan unavailability alternative financing leave injuries value; obligor's payments, obligor consistently refused concededly due, threatened obligee burden bringing multiple actions. Almost invariably, (whether injunction, declaration) money3 traditionally applied, quite usual sort. theory, wrong, produces disastrous consequences theory. above, 913—915, 40, sums "they [Government's] refusal" plaintiff, 910, business. docket fits description. past, typical obtain Ellis 222 Ct.Cl. 65, 760 (1979) (claim 8336(c), entitling enforcement officers firefighters retirement benefits); Friedman 159 30-31, 310 381, 396-397 1201 seq., servicemen disability benefits), sub nom. Lipp 373 932, 83 1540, (1963); Smykowski 227 284, 285, 1103, 1104 (1981) 3796-3796c, granting survivors' death public safety officers). Another large consisted Missouri Medical Organization, 226 274, 277-279, 641 870, 873 (grant Service); Idaho Migrant Council, Cl.Ct. 85, 88 (1985) ("The purposes, undertaken numerous various private organizations. Many hundreds year states, municipalities, schools colleges Obligations [grant] jurisdiction"). tax refunds, Yamamoto 207 (1985), disclosed jurisdiction, money," 900. 71 Most pay." Alas, be. regrettable consequence routinely exercised seller's price. Dairylea Cooperative, 210 46, 535 (1976); Northern Helex 197 118, 455 546 (1972); Paisner 138 420, 150 835 (1957), 355 941, 429, 421 (1958); R.M. Hollingshead Corp. 124 681, 111 285 (1953). since, abandoned. Unfortunately, lie either. contract, (1949), disturbed Spectrum Leasing 258, 260, 262, 764 891, 895 Sea-Land Service, Brown, 600 432-433 American Science Engineering, Califano, 58, 1978). applying logic (which today adopted own, 894-896, 901) sue contract. 895. performance, addition leaving without docket, leaves forum. 72 sure, judges contractors worry. possibly mean says today—except, leaves, unfortunately, reason. 73 An wrongful occurred. Testan, 424 403, 96 948, 955, 114 (1976) (distinguishing "between reclassification, hand, reclassification other"). 74 agree, pursue to, provisions "Actions reviewable," reads part: "Agency 76 establish procedures." General's Manual 10(c), (1947); Estate Watson Blumenthal, 586 925, 934 1978); Insurance 1230; Engineering Richardson, 167 396, 512 573, 580 (1975); Warner Cox, 1301, 1304 1974); Mohawk Airlines, CAB, 117 326, 329 894 Ove Gustavsson Contracting Floete, 278 912, 914 1960); K. 211, 720 (1951). (1) (2) seeks. 77 "jurisdiction render founded Constitution, regulation executive department, implied liquidated unliquidated sounding tort." 1491(a)(1). identified branches recited under. instruments, formal contracts, enforceable obligations analogous contracts. Ct.Cl., 278, 873; Cl.Ct., 89. itself analogized unilateral offer contract—offering specified inviting performance. regardless propriety invoking assert "founded [an] Congress," wit, mandating (except section) subchapter" formula. create cause unless 'can fairly interpreted sustained.' 400, 954, Eastport S.S. 178 599, 607, 372 1002, 1009 (1967). not, words, commanding impliedly authorizes (absent indication) defaulted amount. Bell 366 393, 398, 81 1230, 1233, 365 (1961) captured soldiers receive" amounts); Sullivan 70, (1983) 5595(b)(2), severance amounts), aff'd, 742 628 Fed.1984) officers); Biagioli 304, 306-307 5596, unjustified backpay); 406, 957 (dicta) ("Congress Back Pay [5 5596] deprivation pay"). 80 conclude, bring 1396b(a). "[i]t 'shall pay' self-enforcing—i.e., remedy—it similar right, knowing sort Ante, 906, 42. fail reasoning, reasoning unsupported treating differently identical knew "that [i.e., denial Medicare reimbursement]." Ibid. distinguish effective, bases remains allocation, Like "damages," recent coinage. established, centuries-old, relief—to whole. Holdsworth, History English 457 (7th 1956) (by 18th century "it equity remedy"). though prefer harmful omission before occurs, extraordinary cases. Schoenthal Irving Trust Co., 287 92, 94, 50, 185 (1932); Gaines Miller, 395, 397-398, 426, 427, 466 (1884); 1136, 95-96, 117-120 Hunter, Modern Contracts: Breaches ¶ 6.01[3], 6-7 6-8 (1986); cf. Ruckelshaus Monsanto 467 986, 1017, 2862, 2880, (1984). remedy. prove deny bad faith, forcing commence new disputed period, lie. Franklin Telegraph Harrison, 145 459, 474, 776 (1892). Or wished up reimbursement, lie, necessary irreparable forgoing mistakenly reimbursed. absent precludes remedy." omitted); 1304; 914; Monsanto, 1019, 2881 (equitable enjoin taking remedy").4 immediately effectively rights allegation honor precedential collateral-estoppel Montana 440 147, 157-158, 162-163, 970, 975-976, 978-979, ability effective well. Rather trying inadequate declares footnote "[s]ince, 'improper disallowances' adequately remedied jurisdictional, threshold matter, court." 907, 43. approach ignores well-established remedy," adequacy average emphasizes according appears forget prescription equally ancient Evidently, invoke "ordinary understanding" depends task hand. event, rationale taken seriously, (like 702) divest bulk docket. "always Court." Nor categorical justifiable (not some) required, bright-line rule. traditional common-sense presumption) obligate ordinarily aware empirical rebut Medicaid. Among reported none asserted 84 singled treatment group because, declares, "[m]anaging relationships occur constantly shifting balance sheets process" 904 39, "complex governs intricate, Government," 901, 31. assertion foundation. Medicaid, indistinguishable purposes areas handles. than, income taxation procurement, intricate sheet corporate taxpayers perpetual audit. And imagine adjudicating apply "manag[e] Governments." Just adjudicate concrete cases, time, discrete factual disputes. Finally, suitably heard "state-law aspects" grasp, 908, ibid, (3) "highly unlikely designate Article policy," 46. points anything cases), seem me Adjudicating implicate involves suppose conceivable relevant—for contend was, expenditure third contain incidental references adjudicated share never exercises body types claims. disputes "questions policy" business appellate determine policy. norm judge, resolving (to adjudication rulemaking), stop Circuit—where, legality pronounced. Ordinarily, creates mechanism using get facts, unconstitutional 405(g). 86 Nothing wasteful litigation litigate, particularly options system Today's potential cornucopia waste. leads, thrown chaos. opinion's strength. lower sense leads nowhere, limit us. Even so, justification differently, Five below); (action moneys exception; cognizable XX, 867, 1397, State); 852 1983) (District upheld, vacated); (district 1316(d); addressed); 1975) (disallowances Welfare overpayments California Titles X, XIV 1316(d) review; addressed). bar, resolve appeals. 1573 (1987) misconstrued funding local school districts, increased district, Court), 1042, 774, 861 1396b(d) (1982 ed., Supp. V) provides, "(d) Estimates entitlement; installments; underpayments; adjustment; uncollectable discharged debts; obligated appropriations; "(1) quarter, subsections (A) report containing total expended quarter subsections, appropriated political subdivisions proportionate estimated expenditures, source sources expected derived, (B) investigation necessary. "(2)(A) installments determine, estimated, overpayment underpayment determines prior adjustment subsection." 1396b(d)(5) provides: "(5) title, controversy shall, recovered disallowed, chose controversy, offset, subsequent subchapter, equal plus date ending rate (determined Secretary) bond weekly 90-day treasury auction rates period." 82-169, 438, 78a. "intermediate facility" "an institution licensed provide, regular basis, health-related individuals degree hospital skilled nursing facility physical condition (above level room board) institutional facilities." 1396d(c)(1). 'Intermediate services' if—(1) individuals. 1396d(d)(1). contributed $546 million years 1978-1982. Letter Anthony Parker, Statistician, Division Statistics, 14, 1988 (available Clerk file). fraction years—which amounted nearly $5 billion, ibid.—it apparent noted, proportionally small amount" subsidy. App 80a. 802; 693-695 record tell elected 1396b(d)(5), notification informed month Record 363. later, silent retention. id., 356-359. Thereafter, withhold next Whether commenced order, record. relief: "Wherefore, requests "1. Enjoin failing recovering eligible residents retarded. "2. Set 438. "3. deems just." 98a-99a. 19, 12, infra, indicates 28, papers certified concluded, though, cases: 1316 decision; claims, $10,000." 22. explained: "On send back persist inconsistent Commonwealth's collaterally estopped raising here." 800. certiorari "Whether civil $10,000 lawsuits, (I). cross-petition 1331, 701 rendered citizens." 87-929, i. Certain longer pressed party. noncompliance acknowledges procedure covering entirely contained seq. forecloses committed discretion Secretary. 1331. 94-996, 19-20 (S.Rep.). named States: Provided, mandatory specify name title), successors office, personally responsible compliance. herein limitations dismiss ground; confers consent forbids sought." 1396b(d); n.2, 1316(c); 885. recently reaffirmed Assn. Counties Baker, 268 373, 842 369 94-1656, (H.R.Rep.); S.Rep., (same), 6121. Byse, Proposed Reforms "Nonstatutory" Judicial Review: Sovereign Immunity, Indispensable Parties, Mandamus, Harv.L.Rev. 1479 (1962); Cramton, Nonstatutory Review Action: Need Statutory Reform Matter Jurisdiction, Parties Defendant, Mich.L.Rev. Immunity: S. 3568 Subcommittee Practice Judiciary, 91st Sess., 255-257 (1970) Hearing) (letter William Ruckleshaus, Assistant General, Sen. Kennedy, 1970) bad"); H.R.Rep., 4, 6, 25-30 Scalia reconsidered endorse amendment); 24-29 (same). technical changes object H.R. Rep., 27-28; 26-27 11, 25; 10, 6131 sentences nonaction, explicit abolished (injunction, etc.))"; passage 'monetary interchangeably oppos[ing] relief.' 782 (1987). interchangeably, excluded Reading "oppos[ing] assumes 893-896. above synonym 4-5, specific, equitable, relief); Hearing, 121 (Cramton, Memorandum recommendation reform doctrine) (citing 263 (SC1967) Dermott Special (ED Ark.1968), "challenge HEW deferral district"). 102-109, 111-115, 120, 125-126, 132-133. are, 42, infra. define limits labors; bear procedures" away courts. 903-905, 39. "[a]gency Act: Legislative History, S.Doc. 248, 145, 154, 160, 176, 179, 335 (Comm. Print 1946) Leg. Hist.) (emphases Judiciary 1945 explanatory column read "Subsection (c), defining acts, negative procedural rule." Hist. 37. addressing finality concerns. shows thereby ripeness remedies"). Law, 26:12, 468 1983). 26:11, 464. titled reviewable" discusses, follow today, finality. enacting ensure nonfinal later. (1947). noted Clark's statement rules finality, administrative-level litigants coming 45(c) (1940 ed.); 160(f) (1946 ed.). remain today's Code. 45(c); 160(f). 219 (1913). repealed. U.S.C.App. (1988 Cases panels Pennsylvania 323 588, 543, 478 (1945), Chesapeake Ohio 283 35, 337, (1931). needed labors compensation. Managing process. tailored situation; also, (opinion Harlan, J.) litigation, 1491(a)(2)-(3), statements applicable 789 (suit unique court-ordered abortions outside APA's "is States") (Coffin, concurring). 1491(a)(1), claim. bring, "claim ibid., "one ask claimant cites sustained." 1009, 599 (cited approval (1976)). Statutes "interpreted sustained," 5596(b), 956, 242 (1958 ed.) (repealed, 498 (1962)), prisoners war, (1961). laws labors. directs subsidize expenditures. 900-901; Mottaz, 476 834, 850-851, 106 2224, 2234, 90 841 (1986) buy interests viewed "representing essence created construe old 242, page, "mandating imply touchstone provide. Thompson Thompson, 174, 513, (1988); Cort Ash, 422 66, 2080, (1975). remember outset. Since, "improper disallowances" Then, judge offsetting advances. 1396b(d)(2). determined instant Blumenfeld once filed, 'promptly restore setoff taken.' 557 [1077,] 1091 [ (Conn.1983) ]. Again, done so. matter." 731 1052, 1055, Brockett Spokane Arcades, Inc., 491, 499-500, 2794, 2799-2800, 394 Bishop Wood, 426 341, 345-346, 2074, 2077-2078, 684 73, 2085, Delaware Div. 665 1104, 1117, (Del.1987) (pointing anomaly). remembered Improvement replace Claims, powers. 171(a). judges, life-tenured sit serve years. 172(a). arise these. rejecting plea Wright importance action": "[T]he precedence conflict statutorily strictly construed. "Much academic theoretical grounded constraining exercise discretionary legitimized promotes fidelity intent ambiguous, increases likelihood regulatory process discretion. treated F.Supp., 1117-1118 (citations full "For 1985 Order, hereby ordered adjudged 1396 reversed. "Dated 7th day October, 1985." $10,000. (Title 1346(a)(2) concurrent $10,000.) assumption Rather, "exclusive" hear If, relief—other damages"—as incident "To presented, constitutional provisions, applicability shall— unlawfully unreasonably delayed; "(2) findings, conclusions be— "(A) arbitrary, capricious, abuse discretion, law; "(B) power, privilege, immunity; "(C) excess authority, limitations, short right; "(D) observance "(E) substantial sections 556 title hearing statute; "(F) unwarranted trial de novo making foregoing determinations, whole parts party, prejudicial error." 1117 ("[B]ifurcated add layer complexity arena straining baggage weightiness"). 115 (quoting Carrow, Immunity Law—A Diagnosis, J.Pub.L. (1960) letter Walter Gellhorn)). 1972 "orders restoration office position, placement status, correction records," "[i]n direction deem 1491(a)(2). 1982 again "on awarded." 1491(a)(3). 'restitution' [42 1316(c) ]." 893. doubt art, here. means otherwise, point commonly consists E. 12.20, 911 (1982). Acme Process Equipment 324, 357-358, 347 509, 529 (1965), restitution, holding, ourselves contract." 138, 350, 249 (1966). restitutionary Kurz Root 522, 531-532 Arizona 216 221, 237-238, 575 855, 864-865 (1978). Suit distinguished currency coins possessory interest. replevin detinue, generally, 5.13, 399 J. Cribbett, Materials 94-116 (1954), (for collection coins) "unique" value. obviously fungible funds, notes Treasury. Of reach rubric statute." e.g. 405(g) (Social 1395oo (f) (reimbursement providers). exists, vast majority specific-relief unaffected "other application drug-labeling regulations).

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