Source: https://www.law.cornell.edu/supremecourt/text/397/397
Timestamp: 2019-04-23 16:23:13+00:00

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The present controversy, which involves the compatibility of the New York Social Services Law, McKinney's Consol. Laws, c. 55 (c. 184, L. 1969) with § 402(a)(23) of the Social Security Act of 1935, as amended, 81 Stat. 898, 42 U.S.C. 602(a)(23) (1964 ed., Supp. IV), arises out of a pendent claim originally included in petitioners' complaint bringing a class action challenging § 131a of the same New York statute as violative of equal protection by virtue of its provision for lesser payments to Aid to Families With Dependent Children recipients in Nassau County than those allowed for New York City residents. Pursuant to the recommendation of Judge Weinstein, a three-judge court was convened on April 24, 1969, and a hearing was held. 304 F.Supp. 1350.
Before a decision was rendered New York State amended § 131a to permit the State Commissioner of Social Services to make, in his discretion, grants to recipients in Nassau County equal to those provided for New York City residents. The three-judge panel in a memorandum opinion of May 12, 1969, concluded that the equal protection issue was 'no longer justiciable' and that '(t)he constitutional attack on the provision (§ 131a) as originally adopted has been rendered moot and any attack on the newly adopted subdivision would not be ripe for adjudication * * * until there (had) been opportunity for action by state officials * * *.' 1 That court further held that since there existed 'no reason for continuing the three-judge court,' the 'matter' should be 'remanded to the single judge to whom the complaint was originally presented for such further proceedings as are appropriate.' 304 F.Supp. 1354, 1356. On the same day as the three-judge court dissolved itself, Judge Weinstein issued a preliminary injunction prohibiting respondents from reducing or discontinuing payments of 'regular recurring grants and special grants,' payable under the predecessor welfare law, 304 F.Supp. 1356, and the State's elimination of which from the computation of welfare benefits is the subject matter of the controversy now before this Court.
In the case before us the constitutional claim was declared moot prior to decision by the three-judge court and the question arises whether that circumstance removed not only the obligation but destroyed the power of a federal court to adjudicate the pendent claim. 2 We think not. Jurisdiction over federal claims, constitutional or otherwise, is vested, exclusively or concurrently, in the federal district courts. Such courts usually sit as single-judge tribunals. While Congress has determined that certain classes of cases shall be heard in the first instance by a district court composed of three judges, that does not mean that the court qua court loses all jurisdiction over the complaint that is initially lodged with it. To the contrary, once petitioners filed their complaint alleging the unconstitutionality of § 131a, the District Court sitting as a one-man tribunal, was properly seised of jurisdiction over the case under §§ 1343(3) and (4) of Title 28 and could dispose of even the constitutional question either by dismissing the complaint for want of a substantial federal question, Ex parte Poresky, 290 U.S. 30, 54 S.Ct. 3, 78 L.Ed. 152 (1933), 3 or by granting requested injunctive relief if 'prior decisions (made) frivolous any claim that (the) state statute on its face (was) not unconstitutional.' Bailey v. Patterson, 369 U.S. 31, 33, 82 S.Ct. 549, 551, 7 L.Ed.2d 512 (1962). Even had the constitutional claim not been declared moot, the most appropriate course may well have been to remand to the single district judge for findings and the determination of the statutory claim rather than encumber the district court, at a time when district court calendars are overburdened, by consuming the time of three federal judges in a matter that was not required to be determined by a three-judge court. See Swift & Co. v. Wickham, 382 U.S. 111, 86 S.Ct. 258, 15 L.Ed.2d 194 (1965).
On remand the District Court correctly considered mootness a factor affecting its discretion, not its power, and balanced the policy considerations that have spawned the doctrine of pendency and the countervailing policy of federalism: the extent of the investment of judicial energy and the character of the claim. Not only had there been hearings and argument prior to dismissal of the constitutional claim, but the statutory question is so essentially one 'of federal policy that the argument for exercise of pendent jurisdiction is particularly strong.' 4 United Mine Workers v. Gibbs, 383 U.S. 715, 727, 86 S.Ct. 1130, 1139 (1966).
Respondents analogize dismissal for mootness to dismissal for want of a substantial claim and rely on language in United Mine Workers v. Gibbs, to the effect that a federal court should not pass on a state claim when the federal claim falters at the threshold and is 'dismissed before trial.' 5 383 U.S., at 726, 86 S.Ct., at 1139. The argument would appear to be that once a federal court loses power over the jurisdiction-conferring claim, it may not consider a pendent claim. They contend that mootness, like insubstantiality, is a threshold jurisdictional defect.
Whether or not the view that an insubstantial federal question does not confer jurisdictiona maxim more ancient than analytically soundshould now be held to mean that a district court should be considered without discretion, as opposed to power, to hear a pendent claim, we think the respondents' analogy fails. Unlike insubstantiality, which is apparent at the outset, mootness, frequently a matter beyond the control of the parties, may not occur until after substantial time and energy have been expended looking toward the resolution of a dispute that plaintiffs were entitled to bring in a federal court.
A further reason given to support the contention that the District Court should have declined to exercise jurisdiction is that the Department of Health, Education, and Welfare was the appropriate forum, at least in the first instance, for resolution on the merits of the questions before us, and that at the time thi action came to Court HEW was 'engaged in a study of the relationship between Section 602(a)(23) and Section 131a.' 414 F.2d, at 176 (opinion of Judge Hays). 8 Petitioners answer, we think correctly, that neither the principle of 'exhaustion of administrative remedies' nor the doctrine of 'primary jurisdiction' has any application to the situation before us. Petitioners do not seek review of an administrative order, nor could they have obtained an administrative ruling since HEW has no procedures whereby welfare recipients may trigger and participate in the Department's review of state welfare programs. Cf. Abbott Laboratories v. Gardner, 387 U.S. 136, 87 S.Ct. 1507, 18 L.Ed.2d 681 (1967); K. Davis, Administrative Law § 19.01 (1965); L. Jaffe, Judicial Control of Administrative Action 425 (1965).
The general topography of the AFDC program was mapped in part by this Court in King v. Smith, 392 U.S. 309, 88 S.Ct. 2128, 20 L.Ed.2d 1118 (1968); and several lower court opinions, in addition to the opinion below, have surveyed the pertinent statutory and regulatory provisions. 11 While participating States must comply with the terms of the federal legislation, see King v. Smith, supra, the program is basically voluntary and States have traditionally been at liberty to pay as little or as much as they choose, and there are, in fact, striking differences in the degree of aid provided among the States.
There are two basic factors that enter into the determination of what AFDC benefits will be paid. First, it is necessary to establish a 'standard of need,' a yardstick for measuring who is eligible for public assistance. Second, it must be decided how much assistance will be given, that is, what 'level of benefits' will be paid. On both scores Congress has always left to the States a great deal of discretion. King v. Smith, 392 U.S., at 318, 88 S.Ct., at 21332134. Thus, some States include in their 'standard of need' items that others do not take into account. Diversity also exists with respect to the level of benefits in fact paid. 12 Some States impose so-called dollar maximums on the amount of public assistance payable to any one individual or family. Such maximums establish the upper limit irrespective of how far short the limitation may fall of the theoretical standard of need. Other States curtail the payments of benefits by a system of 'ratable reductions' whereby all recipients will receive a fixed percentage of the standard of need. 13 It is, of course, possible to pay 100% of need as defined. New York, in fact, purports to do so.
While we do not agree with the broad interpretation given § 402(a)(23) by the District Court, 17 we cannot accept the conclusion reached by the two-judge majority in the Court of Appealsthat § 42(a)(23) does not affect New York. 18 It follows from what we fathom to be the congressional purpose that a State may not redefine its standard of need in such a way that it skirts the requirement of re-evaluating its existing standard. This would render the cost-of-living reappraisal a futile, hollow, and, indeed, a deceptive gesture, and would avoid the consequences of increasing the numbers of those eligible and facing up to the failure to allocate sufficient funds to provide for them.
These conclusions, if not compelled by the words of the statute or manifested by legislative history, represent the natural blend of the basic axiomthat courts should construe all legislative enactments to give them some meaningwith the compromise origins of § 402(a)(23), set forth above. This background, we think, precludes the more adventuresome reading that petitioners and the District Court would give the statute. See n. 17, supra. This reading is also buttressed by the fact that this construction has been placed on the statute by the Department of Health, Education, and Welfare. 19 While, in view of Congress' failure to track the Administration proposals and its substitution without comment of the present compromise section, HEW's construction commands less than the usual deference that may be accorded an administrative interpretation based on its expertise, it is entitled to weight as the attempt of an experienced agency to harmonize an obscure enactment with the basic structure of a program it administers. Cf. Zuber v. Allen, 396 U.S. 168, 192, 90 S.Ct. 314, 327, 24 L.Ed.2d 345 (1969); Udall v. Tallman, 380 U.S. 1, 85 S.Ct. 792, 13 L.Ed.2d 616 (1965).
Chapter 184 of the Session Laws, the present § 131a, radically altered the New York approach. In lieu of individualized grants for 'recurring' needs to be supplemented by special grants or the flat $100 grant, New York adopted a system fixing maximum allowances per family based on the number of individuals per household. The maximum dollar amounts were established by ascertaining '(t)he mean age of the oldest child in each size family.' See Memorandum of Law in Support of Defendants' Motion for Summary Judgment 910. While these family maximums are exclusive of rent and fuel costs the District Court found that '(s)pecial grants were seemingly not included in these computations. No attempt was made to average them out across the state and then to add that figure to that of the basic recurring grant.' 304 F.Supp., at 1368.
The impact of the new system has been to reduce substantially benefits paid to families of these petitioners and of those similarly situated, and to decrease benefits to New York City recipients by almost $40,000,000. 304 F.Supp., at 13691370. The effect of the new program on upstate cases is less severe, with gains to some families apparently cancelling out losses to others, but the net effect is a drastic reduction in overall payments since New York City recipients compose approximately 72% of the State's welfare clientele. 304 F.Supp., at 1369.
While § 402(a)(23) does not prevent the State from pursuing what is beyond dispute the laudable goal of administrative efficiency, 21 we think Congress has foreclosed them from achieving this purpose at the expense of significantly reducing the content of their standard of need. The findings and conclusions of the District Court, undisturbed by the Court of Appeals and supported by the record, clearly demonstrate that a significant reduction has here occurred. It is conceded by respondents that the present program does not include allowances for the items formerly covered by the so-called 'special' grants.
We reach our conclusions without relying on the finding made by the court below that in § 131a New York was attempting to constrict its welfare payments. Speculation as to legislative and executive motive is to be shunned. Section 402(a)(23) invalidates any state program that substantially alters the content of the standard of need in such a way that it is less than it was prior to the enactment of § 402(a)(23), unless a State can demonstrate that the items formerly included no longer constituted part of the reality of existence for the majority of welfare recipients. We do not, of course, hold that New York may not, consistently with the federal statutes, consolidate items on the basis of statistical averages. Obviously such averaging may affect some families adversely and benefit others. Moreover, it is conceivable that the net payout, assuming no change in the level of benefits, may be somewhat less under a streamlined program. Providing all factors in the old equation are accounted for and fairly priced and providing the consolidation on a statistical basis reflects a fair averaging, a State may, of course, consistently with § 402(a)(23) redefine its method for determining need. A State may, moreover, as we have noted, accommodate any increases in its standard by reason of 'cost-of-living' factors to its budget by reducing its level of benefits. What is at the heart of this dispute is the elimination of special grants in the New York program, not the system of maximum grants based on average age. Lest there be uncertainty we also reiterate that New York is not foreclosed from accounting for basic and recurring items of need formerly subsumed in the special grant category by an averaging system like that adopted in the 1968 New York City experiment with cyclical grants.
In conclusion, we add simply this. While we view with concern the escalating involvement of federal courts in this highly complicated area of welfare benefits, 23 one that should be formally placed under the supervision of HEW, at least in the first instance, we find not the slightest indication that Congress meant to deprive federal courts of their traditional jurisdiction to hear and decide federal questions in this field. It is, of course, no part of the business of this Court to evaluate, apart from federal constitutional or statutory challenge, the merits or wisdom of any welfare programs, whether state or federal, in the large or in the particular. It is, on the other hand, peculiarly part of the duty of this tribunal, no less in the welfare field than in other areas of the law, to resolve disputes as to whether federal funds allocated to the States are being expended in consonance with the conditions that Congress has attached to their use. As Mr. Justice Cardozo stated, speaking for the Court of Helvering v. Davis, 301 U.S. 619, 645, 57 S.Ct. 904, 910, 81 L.Ed. 1307 (1937): 'When (federal) money is spent to promote the general welfare, the concept of welfare or the opposite is shaped by Congress, not the states.' Cf. Lassen v. Arizona ex rel. Arizona Highway Dept., 385 U.S. 458, 87 S.Ct. 584, 17 L.Ed.2d 515 (1967).
* Our leading case on pendent jurisdiction is United Mine Workers v. Gibbs, 383 U.S. 715, 721729, 86 S.Ct. 1130, 11361140, 16 L.Ed.2d 218. In line with Gibbs, the courts below distinguished between the power to exercise pendent jurisdiction and the discretionary use of that power. Gibbs abandoned the 'single cause of action' test which had been the controlling standard under Hurn v. Oursler, 289 U.S. 238, 53 S.Ct. 586, 77 L.Ed. 1148, and instead held that pendent jurisdiction exists when '(t)he state and federal claims * * * derive from a common nucleus of operative fact' and 'if, considered without regard to their federal or state character, a plaintiff's claims are such that he would ordinarily be expected to try them all in one judicial proceeding.' 383 U.S., at 725, 86 S.Ct., at 1138.
Yet if the three-judge court had pendent jurisdiction over the statutory claim, it had the power to decide that claim despite the dismissal of the constitutional claim. This Court held in United States v. Georgia Pub. Serv. Comm'n, 371 U.S. 285, 287288, 83 S.Ct. 397, 399, 9 L.Ed.2d 317: 'Once (a three-judge court is) convened the case can be disposed of below or here on any ground, whether or not it would have justified the calling of a three-judge court.' See also Florida Lime & Avocado Growers, Inc. v. Jacobsen, 362 U.S. 73, 8081, 80 S.Ct. 568, 573574, 4 L.Ed.2d 568. There is no rule, however, holding that a three-judge court is required to decide all the claims presented in a suit properly before it, although the practice of a three-judge court remanding a case to the initial district judge for further proceedings seems to have been little used. See Landry v. Daley, D.C., 288 F.Supp. 194.
Moreover, incident to the issuance of a temporary restraining order, prior to the impaneling of the three-judge court, District Judge Weinstein had received and considered substantial testimony, affidavits, and briefs, so that he required no further hearings or testimony prior to issuing his preliminary injunction opinion three days after the case was remanded to him. In light of this fact, considerations of economy, convenience, and fairness all point to the exercise of pendent jurisdiction. See Moore v. New York Cotton Exch., 270 U.S. 593, 608610, 46 S.Ct. 367, 370371, 70 L.Ed. 750.
The fact that the Department of Health, Education, and Welfare is studying the relationship between the contested provision of the New York statute and the relevant section of the Social Security Act is irrelevant to the judicial problem. Once a State's AFDC plan is initially approved by the Secretary of HEW, federal funds are provided the State until the Secretary finds, after notice and opportunity for hearing to the State, that changes in the plan or the administration of the plan are in conflict with the federal requirements. Social Security Act § 404(a), 49 Stat. 628, as amended 81 Stat. 918, 42 U.S.C. 604(a) (1964 ed., Supp. IV).
Whether HEW should withhold federal funds is entrusted to it, at least as a preliminary matter, by § 404(a) of the Social Security Act. 3 Whether the courts have any role to perform beyond ruling on an alleged conflict between the state regulation and the federal law is a question we need not reach.
Under the AFDC program, 42 U.S.C. 601610 (1964 ed., and Supp. IV), the Federal Government provides funds to a State on the condition that the State's plan for supplementing and distributing those funds to needy individuals satisfies the various federal requirements set out in the Social Security Act. By statute, the Secretary of HEW is charged with the duty of reviewing state plans to determine if they comply with the now considerable list of federal requirements. 42 U.S.C. 602 (1964 ed., and Supp. IV), and his approval of such a plan, and only his approval, qualifies the state program for federal financial assistance. 42 U.S.C. 601 (1964 ed., Supp. IV). So that HEW may determine whether the state plan continues at all times to meet the federal requirements, each State is required by regulation to submit all relevant changes, such as new state statutes, regulations, and court decisions, to HEW for its review. 45 CFR § 201.3. If, after affording the State reasonable notice and an opportunity for a hearing, HEW determines that the state plan does not conform to the federal requirements, the federal agency then has a legal obligation to terminate federal aid to which the State would otherwise be entitled. 42 U.S.C. 604, 1316 (1964 ed., Supp. IV); 45 CFR § 201.5. Waiver by the Secretary of any of the federal requirements is permitted only where the Secretary and state welfare officials have together undertaken a 'demonstration' or experimental welfare project. 42 U.S.C. 1315 (1964 ed., Supp. IV). The administrative procedures that the Secretary must afford a State before denying or curtailing the use of federal funds are elaborated in 42 U.S.C. 1316 (1964 ed., Supp. IV), and this section also provides that a State can obtain judicial review in a United States court of appeals of an adverse administrative determination.
'(H)ere, as Judge Hays points out, the federal claim seems more apt for initial resolution by the Department of Health, Education and Welfare, than by the courts. The two issues upon a resolution of which this claim turnsthe practical effect of § 131a and the proper construction of § 602(a)(23) of the Social Security Actboth are exceedingly complex. The briefs and arguments of the parties, and the varying judicial views they have elicited, have demonstrated the wisdom of allowing HEW, with its expertise in the operation of the AFDC program and its experience in reviewing the very technical provisions of state welfare laws, an initial opportunity to consider whether or not § 131a is in compliance with § 602(a)(23). This is HEW's responsibility under the Social Security Act, see 42 U.S.C.A. § 1316 (Supp.1969). I believe that the district court should have declined to exercise its jurisdiction, thus permitting HEW to determine the statutory claim asserted by plaintiffs, for the Department already had initiated review proceedings concerning § 131a.' 414 F.2d, at 181.
A persuasive analogy is to be found in the well-settled rule that a federal court does not lose jurisdiction over a diversity action which was well founded at the outset even though one of the parties may later change domicile or the amount recovered falls short of $10,000. See Smith v. Sperling, 354 U.S. 91, 93 n. 1, 77 S.Ct. 1112, 1113, 1 L.Ed.2d 1205 (1957); St. Paul Mercury Indemnity Co. v. Red Cab Co., 303 U.S. 283, 289290, 58 S.Ct. 586, 590591, 82 L.Ed. 845 (1938); Smithers v. Smith, 204 U.S. 632, 27 S.Ct. 297, 51 L.Ed. 656 (1907); see generally C. Wright, Federal Courts § 33, pp. 9394 (1963).
Since we conclude that the District Court properly exercised its pendent jurisdiction, we have no occasion to consider whether, as urged by petitioners, this statutory claim satisfies the $10,000 amount-in-controversy requirement of the general federal jurisdiction provision, 28 U.S.C. 1331, or whether it could be maintained under 28 U.S.C. 1343(3), which contains no amount-in-controversy limitation, as an action '(t)o redress the deprivation, under color of any State law * * * of any right, privilege or immunity secured by * * * any Act of Congress providing for equal rights of citizens * * *.' See King v. Smith, 392 U.S., at 312 n. 3, 88 S.Ct., at 2130, see generally Note, Federal Judicial Review of State Welfare Practices, 67 Col.L.Rev. 84 (1967).
In order to evaluate this argument, it is necessary to understand the mechanism by which HEW reviews state plans under the AFDC program. States desiring to obtain federal funds available for AFDC programs are required to submit a plan to the Secretary of HEW for his approval. 42 U.S.C. 601 (1964 ed., Supp. IV). Once initially approved, federal funds are provided to the State until a change in its plan is formally disapproved. 42 U.S.C. 604(a) (1964 ed., Supp. IV). The Secretary must afford the State notice of an alleged noncompliance with federal requirements and an opportunity for a hearing. Ibid. If after notice and hearing, the Secretary finds that the State does not comply with the federal requirements, he is directed to make a total or partial cutoff of federal funds to the State. Ibid. 42 U.S.C. 1316 (1964 ed., Supp. IV) describes the administrative procedures that the Secretary must afford a State before cutting off funds, and also provides for review in the courts of appeals of the Secretary's action at the behest of the State. Whether HEW could provide a mechanism by which welfare recipients could theoretically get relief is immaterial. It has not done so, which means there is no basis for the refusal of federal courts to adjudicate the merits of these claims.
As we observed in Southwestern Sugar & Molasses Co., Inc. v. River Terminals Corp., 360 U.S. 411, 420, 79 S.Ct. 1210, 1216, 3 L.Ed.2d 1334 (1959), that an issue is 'one appropriate ultimately for judicial rather than administrative resolution. * * * does not mean that the courts must therefore deny themselves the enlightment which may be had from a consideration of the relevant * * * facts which the administrative agency charged with regulation of the transaction * * * is peculiarly well equipped to marshal and initially to evaluate.' See also Far East Conference v. United States, 342 U.S. 570, 574575, 72 S.Ct. 492, 494495, 96 L.Ed. 576 (1952).
The four categorical assistance programs are the Old Age Assistance (OAA), 42 U.S.C. 301 et seq.; Aid to Families With Dependent Children (AFDC), 42 U.S.C. 601 et seq.; Aid to the Blind (AB), 42 U.S.C. 1201 et seq.; Aid For the Permanently and Totally Disabled (APTD), 42 U.S.C. 1351 et seq.
'The House bill does nothing to improve the level of State public assistance payments. As things stand today, the States are required to set assistance standards for needy persons in order to determine eligibilitybut they need not make their assistance payments on the basis of these standards. The result is that welfare payments are much too low in a good many State. That is a widely accepted fact among all who are concerned with these programs; indeed it is probably the most widely agreed-upon fact among welfare experts today.
'We strongly urge you to adopt the administration's proposal requiring States to meet need in full as they determine it in their own State assistance standards, and to update these standards periodically to keep pace with changes in the cost of living.' Hearings before the Senate Committee on Finance on H.R. 12080, 90th Cong., 1st Sess., pt. 1, p. 216 (1967). See also testimony of Undersecretary Cohen. Id., at 255259.
'States would be required to price their standards used for determining the amount of assistance under the AFDC program by July 1, 1969 and to reprice them at least annually thereafter, adjusting the standards and any maximums imposed on payments to reflect changes in living costs.' S.Rep. No. 744, 90th Cong., 1st Sess., 169170 (1967); see also id., at 293; U.S.Code Cong. & Admin.News 1967, pp. 30063007.
New York points to the preamble to § 131a which sets forth as its purpose the streamlining of administration of the welfare grant system and relies on that part of the HEW program that invites the States to adopt administrative programs that curtail unnecessarily burdensome calculations and paperwork.
'(T)he Secretary shall notify such State agency that further payments will not be made to the State (or in his discretion, that payments will be limited to categories under or parts of the State plan not affected by such failure) until the Secretary is satisfied that such prohibited requirement is no longer so imposed, and that there is no longer any such failure to comply. Until he is so satisfied he shall make no further payments to such State (or shall limit payments to categories under or parts of the State plan not affected by such failure).' 42 U.S.C. 604(a) (1964 ed., Supp. IV).
Brenda E. WRIGHT, Geraldine H. Broughman and Sylvia P. Carter, Petitioners v. CITY OF ROANOKE REDEVELOPMENT AND HOUSING AUTHORITY.
L. Douglas WILDER, Governor of Virginia, et al., Petitioners v. VIRGINIA HOSPITAL ASSOCIATION.
Barry VAN LARE, etc., et al., Appellants, v. Rose HURLEY, etc., et al. Annie TAYLOR, etc., et al., Petitioners, v. Abe LAVINE, etc., et al.
Arthur F. QUERN, etc., et al., Petitioners, v. Venus MANDLEY et al. Joseph A. CALIFANO, Jr., Secretary of Health, Education, and Welfare, Petitioner, v. Venus MANDLEY et al.
Richard S. SCHWEIKER, Secretary of Health and Human Services, Appellant v. George HOGAN, et al.
CALIFORNIA DEPARTMENT OF HUMAN RESOURCES DEVELOPMENT et al., Appellants, v. Judith JAVA et al.
Georgia TOWNSEND, et al., Appellant, v. Harold O. SWANK, Director, Department of Public Aid of Illinois, et al. Loverta ALEXANDER et al., Appellants, v. Harold O. SWANK, Director, Department of Public Aid of Illinois, et al.
Ruth J. JEFFERSON et al. v. Burton G. HACKNEY, Commissioner, Department of Public Welfare of Texas, et al.
Shirley LAMPTON et al. v. Garland L. BONIN et al.
George K. WYMAN, etc., et al., Appellants, v. Edna ROTHSTEIN et al.

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