Premise: It is illuminating to speculate how these cases would have been decided if Congress had enacted a504(a)(16) without its proviso (prescribing only the general ban against litigation, lobbying, or rulemaking, involving an effort to reform a Federal or State welfare system), and if the positions of the parties before us here were reversed.

Hypothesis: The case rulings would be reversed if they had acted without its proviso.
Relation: neutral