Document: 496 U.S. 414 110 S.Ct. 2465 L.Ed.2d 387 OFFICE OF PERSONNEL MANAGEMENT, Petitionerv.Charles RICHMOND. No. 88-1943. Argued Feb. 21, 1990. Decided June 11, Rehearing Denied Aug. 13, See 497 1046, 111 5. Syllabus Not wishing to exceed a statutory limit on earnings that would disqualify him from continuing receive disability annuity based his years of civilian service with the Navy, respondent Richmond sought advice Navy employee relations personnel and received erroneous oral written information. When Richmond's reliance information caused earn more than permitted by relevant statute, petitioner, Office Personnel Management (OPM), denied six months benefits. The Merit Systems Protection Board petition for review, rejecting contention given should estop OPM bar its finding ineligible benefits under statute. Court Appeals reversed, ruling misinformation estopped Government, estoppel required payment despite provision contrary. Held: Payments money Federal Treasury are limited those authorized Government claimant cannot denying not otherwise law. Pp. 419-434. (a) Although dicta in some recent cases—e.g., Montana v. Kennedy, 366 308, 314-315, 81 1336, 1340-1341, 6 313; INS Hibi, 5, 8, 94 19, 38 7 (per curiam )—have suggested, contrary Court's long-recognized rule, there might be situations which misconduct could give rise against has often summarily, every lower court it reviewed. need not, however, address Government's suggestion that, order avoid confusion this area, adopt flat rule will never lie Government. A narrower ground decision controls type suit presented case. 419-424. (b) claim Public appropriation is prohibited Appropriations Clause Constitution, Art. I, § 9, cl. 7, provides effect such may paid out only as Thus, judicial use equitable doctrine grant remedy Congress authorized. Recognition render nullity if agents Executive were able, their unauthorized or statements citizens, obligate wishes Congress. Where recognize claims estoppel, knows how do so, done statute past. 424-429. (c) This supported precedents, have upheld an money; provisions Tort Claims Act (FTCA) authorize private suits agents' torts, but exclude misrepresentation similar Richmond's; Congress' historical practice reserving itself power hardship arising officials. made general funds pay judgments FTCA other authorizations none encompass, for, claim. invite endless litigation over both real imagined misinformation, imposing unpredictable substantial drain public fisc, prompt liability, cut back impose strict free valuable now public. 429-434. 862 F.2d 294 (CA Fed.1988), reversed. KENNEDY, J., delivered opinion Court, REHNQUIST, C.J., WHITE, BLACKMUN, O'CONNOR, SCALIA, JJ., joined. filed concurring opinion, joined, post, p. 434. STEVENS, judgment, 435. MARSHALL, dissenting BRENNAN, 437. Sol. Gen. Kenneth W. Starr, Washington, D.C., petitioner. Gill Deford, Los Angeles, Cal., respondent. Justice KENNEDY Court. 1 case presents question whether so entitle monetary We hold payments we reverse holding Appeals. 2 * annuity, Charles federal As result he earned eligibility requirements lost Respondent terms. Even assumption much equity subsists respondent's claim, agree authority seeks. 3 was welder at Works Center San Diego, California. He left position 1981 after approved application retirement. determined impaired eyesight prevented performing job eligible 5 U.S.C. 8337(a). Section 8337(a) benefit disabled employees who completed five service. directs, entitlement end retired "restored earning capacity fairly comparable current rate occupied time retirement." 8337(d). 4 rules restoration central Prior 1982, individual deemed restored capacity, rendered "in each succeeding calendar income annuitant wages self-employment . equals least 80 percent immediately before 8337(d) (1976 ed.) (emphasis added). amended 1982 Omnibus Budget Reconciliation Act, Pub.L. 97-253, 96 Stat. 792, change measuring period two one: "Earning any year 8 After taking retirement vision impairment, undertook part-time employment schoolbus driver. From 1985, average $12,494 job, leaving 80% continued payments. In 1986, had opportunity extra working overtime. asked specialist Center's Civilian Department about without exceeding limit. Relying upon terms repealed pre-1982 retain unless exceeded consecutive years, gave incorrect advice. also copy Attachment Manual Letter 831-64, published OPM, stated former 2-year rule. form correct when 1981; respondent, date therefore inaccurate. returned January 1987 again advised error old 9 receiving information, concluded take work driver 1986 while still full long kept previous following below level. $19,936 during discontinued 30, 1987. 1, 1988, since did allowed thus 6-month period, total amount $3,993. 10 appealed denial (MSPB). argued MSPB rejected argument, noting officials misinformed OPM. observed "[h]ad [respondent] directed request presumably, learned law." held "OPM enforcing statutorily imposed requirement eligibility." App. Pet. Cert. 22a. Circuit. 11 divided panel accepting acknowledged longstanding "ordinarily government because asserted nullify prescribed Congress." 294, 296 Fed.1988). Nonetheless, focused statement earlier "we hesitant say no cases " where estopped. Heckler Community Health Services Crawford County, Inc., 467 51, 60, 104 2218, 2224, 42 (1984). then discussed District opinions applied 12 majority decided "[b]ased Supreme acknowledgment foreclosed appeals rulings applying government, our view properly present case." F.2d, 299. reasoned out-of-date "affirmative misconduct" accordance facts case, held, "sufficiently unusual extreme concern warranted exposing treasury broad numerous categories cases." Id., 301. Judge Mayer dissented, stating "a chasm crack open Services," award "contravenes express mandate precedent." 301, 303. 13 granted certiorari, 493 806, 46, 107 15 (1989). II 14 earliest cases, recognized lies litigants. Lee Munroe & Thornton, Cranch 366, L.Ed. 373 (1813), bound mistaken representations agent clear within scope agent's authority. Floyd Acceptances, Wall. 666, 19 169 (1869), compelled honor bills exchange issued Secretary War issuance bills. Utah Power Light Co. United States, 243 389, 408-409, 37 387, 391, 61 791 (1917), dismissed argument States prevent erection houses transmission lines across forest violation statute: "Of enough neither nor acts officers entering into arrangement agreement cause what law does sanction permit." principles these many reiterated Crop Ins. Corporation Merrill, 332 380, 68 92 (1947), leading modern line decisions. farmer insurance Insurance cover wheat farming operations. An entire crop qualified insurance, obtained through Corporation. lost, discovered been error, part farmer's reseeded wheat, applicable regulation. While serious nonetheless deny "not even temptations hard case" provide basis ordering recovery regulation, disregard "the duty all courts observe conditions defined charging treasury." 385-386, S.Ct., 3-4. 16 Despite clarity decisions, suggested possibility situation appropriate. genesis idea appears observation found 313 (1961). petitioner brought declaratory judgment action seeking establish American citizenship. discussing petitioner's length, final consular official's mother she return pregnant having born deprived Our discussion light fact legal obstacle returning 17 "what well-meant advice—'I am sorry, Mrs., you [return States] condition'—falls far short relying foreign birth. situation, stop inquire whether, circumstances citizenship conduct officials." 1340-1341. 18 proposition "stop inquire" Kennedy taken something life own. own mention possibility, course arguments, (1973) ) ("While issue 'affirmative misconduct' 314, 315, 1340, 1341, (1961), sort adverted involved here"); Schweiker Hansen, 450 785, 788, 101 1468, 1470, 67 685 (1981) (denying Social Security supra, observing "has insisting compliance valid regulations governing distribution welfare benefits"); Miranda, 459 14, 103 281, 283, 74 (1982) ("This require us reach reserved affirmative particular immigration laws"); Services, U.S., 2224 ("We past, today"). language decisions spawned courts. MARSHALL dissent "[t]he equitably distinguished inconsistent treatment Courts Appeals, subject considerable ferment." 791, 1472 (citing cases). Since made, accept variety rationales analyses. sum, invitation search appropriate apply yet reversed Indeed, less three most area summary reversals upholding claims. supra; supra. Summary circumstances. extraordinary number dispositions single good indication approach provided inadequate guidance served prolong needless litigation. 20 Solicitor General proposes sweeping asks run Government." 2224. bases first sovereign immunity. Noting 'United sovereign, immune save consents sued,' Mitchell, 445 535, 538, 100 1349, 1351, 63 607 (1980), asserts jurisdiction entertain compel act matter context Brief Petitioner 12-13. advances second separation powers. contends misrepresentations Branch force law, thereby invade legislative province rationale, too, supports justify requiring executive involved. 21 "arguments substantial." And clearer analysis know see one." 1473 (MARSHALL, dissenting). But remains true embrace decide leave another day ever succeed sufficient here, appropriation. III 22 that: "No Money shall drawn Treasury, Consequence Law." For explicit decision. law; words, must All parties here seeks direct contravention ultimate rest, 8337. point supporting examined. same subchapter Code requirements, established Civil Service Retirement Disability Fund. 8348(a)(1)(A). That section states pertinent part: "The Fund appropriated subchapter. ." (Emphasis added.) "provided by" subchapter; rather, they specifically denied. It follows seeks, Constitution prohibits "be Treasury" them. 23 underscore straightforward command Clause. "It means simply can Cincinnati Soap 301 321, 57 764, 770, 1122 (1937) Reeside Walker, How. 272, 291, 693 (1851)). Reeside, addressed holder indebtedness ordered enter books debt paid. relief, alternative 24 verdict entered Department, plaintiff Treasurer now. difficulty way want well-known constitutional provision, except art. (1 Large, 15). 25 "However one time, dollar used thing previously sanctioned. Any fiscal dangerous discretion." 291. 26 relief available proceeding funds. exercise branches reservation congressional control Treasury. example, President's pardon remove disabilities convicted treason, extend repay proceeds derived sale convict's forfeited property: 27 "So, also, treasury, right them become vested secured owner property Moneys once withdrawn However large, therefore, possessed President, however extended application, it, powers,—it touch moneys expressly Knote 95 149, 154, 442 (1877). 28 Just override Clause, too Pangilinan, 486 875, 883, 108 2210, 2216, 882 (1988) (" 'Courts law' "). 29 occasion past presenting discuss reasons apparent. Given early 1813 373, more. facts, insufficient. discussed, 423-424, decline today General's across-the-board no-estoppel makes important state settle 30 consistent holdings rationale expressed precedents. evince involving 63, 2225 ("Protection fisc requires seek scrupulous regard law"). jurisprudence shows why: Opinions differed accepted contexts, id., 224 (suggesting Pennsylvania Industrial Chemical Corp., 411 655, 93 1804, 36 567 (PICCO ), grounds); 68, 2228 (opinion J.) case), money. animated concerns prompted Framers include Constitution. Story described Clause: 31 object apparent slightest examination. secure regularity, punctuality, fidelity, disbursements taxes raised people, well revenues sources, discharge expenses, debts, engagements highly proper, congress possess purposes. If otherwise, unbounded purse nation; moneyed resources pleasure. appropriations, constitutes useful salutary check profusion extravagance, corrupt influence peculation. Commentaries 1348 (3d ed. 1858). 32 obvious practical consideration cited adherence necessity, existing ratified, preventing fraud corruption. ago reason entertained stake, refusing "introduce abuse, which, improper collusions, very difficult protect itself." Lee, 370. fundamental comprehensive purpose, directrele vance us. assure spent according letter reached common favor pleas 33 Extended logical conclusion, operation nullity. funds, reposes transferred Executive. If, President displeased new restriction ease burdens (such case) evade them, agency advise citizens restrictions inapplicable. Estoppel 34 opposite result, frustrate intent instructing claimants deprive always expand recoveries rely choose so. contexts concerned significant detrimental agents, relief. See, e.g., Election Campaign 1971, §§ 437f 438(e); Trade Commission 57b-4; Securities 1933, 77s(a); Truth Lending 1640(f); Portal-to-Portal 1947, 259; Employee Income 1974, 1028; Technical Miscellaneous Revenue 100-647, 8018, 102 3794. 35 One example relevance. (1981), failed file timely 1989 providing age, survivors, supplemental security income: "In satisfaction monthly title officer Administration relating individual's title, later [the applicant became apart requirement]." 101-239, 10302, 2481. equities officials' frustrating withhold absence claims, ready Judicial adoption would, hand, vest powerless constrain. (FTCA), 1346(b), 2671 et seq., strong governmental misconduct, suggest considered additional fund advanced here. authorization certain torts committed agents. Yet excludes negligent intentional coverage. 2680(h). misrepresentation, "estoppel" label. create class 39 anomalous official, make extrastatutory crime, punishable fine imprisonment, knowingly spend excess 1350. initiative fairness, bar, official risk prosecution. serves highlight weakness novelty 40 whole history respect reveals impossibility adjudicate forbade delegation adjudicatory functions Cowen, P. Nichols, M. Bennett, Claims, History, 216 Ct.Cl. (1978). business Legislature grown, placed adjudication statutes, contracts, specific Judiciary. Tucker 1346, 1491. founded authority, moral obligation individual." Subcommittee Administrative Law Governmental Relations House Committee Judiciary, Supplemental Rules Procedure Private Bills, 101st Cong., 1st Sess., (Comm. Print 1989). 41 so-called "congressional reference" refers proposed initial determination merits retains 1492, 2509(c). continues employ legislation remedies hardship. Priv.L. 99-3, 4314, 131 Cong.Rec. 9675 (1985) (waiving deadline due officer); 100-37, 4860, H.R.Rep. 100th Sess. (1987) (awarding servicemen joined wrong plan advice). sympathetic arise, cf. 435-436 (STEVENS, judgment), examples show addressed. short, innovation assigned alone, seen fit delegate. has, course, various FTCA. 1304. arise provisions. Rather, enrollment plan, 8337, plan's requirements. (remanding "with instructions withheld Mr. Richmond"). 43 judgments, event, all-purpose disbursement. identifies source confused payment. substantive compensation principle set forth Testan, 424 392, 948, 47 114 (1976). BLACKMUN's Court: 44 "Where defendant suing improperly exacted retained, claim—whether regulation—does damages 'in interpreted mandating damage sustained.' 401-402, 954-955. 45 precedents establishing strictly construed favor, see, Library Shaw, 478 310, 318, 106 2957, 2963, 250 (1986); McMahon 342 25, 27, 72 17, (1951), suggestion, 438-440 dissenting), ignored cases. Here 46 ignore obstacles beneficial effects. unwilling "tamper thought responsive conception enlightened policy." 400, 954. attempts grounds policy suspect collusion policy, acceptance pernicious ignores reality expect able "secure perfect performance hundreds thousands scattered throughout continent." Hansen Harris, 619 942, 954 (CA2 1980) (Friendly, rev'd sub nom. (1981). To door disgruntled fisc. end, burden defending substantial. Also questionable statements, trust instead lawyers, accountants, others, creating wasteful expenses. mistakes occur, assume confidence attempt conscientious duties programs. reliable advice, 788-789, n. 1470-1471, natural consequence liable liability. informational programs public, greatest impact loss fall means, afford Braunstein, Defense Traditional Immunity—Toward Economic Rationale Estopping Rutgers L.J. (1982). inevitable occasional undermine interest citizenry availability hardships remedied instance 48 points precedent today. Whether support address. assertion 49 Reversed. 50 whom BLACKMUN joins, concurring. 51 I join write separately note limitations First, wisely Ante, 423. my view, principally relied estoppel. world difference between PICCO case: PICCO, exercising lawful discretionary whereas violate dispensing own, Kendall ex rel. Stokes, 524, 613, 1181 (1838), authorization. 52 Second, although "[a]ny Treasury," ante, 425, appropriations Compensation Jacobs 290 54 26, 78 142 (1933), encroach powers branch (1877), pardoned criminals, impair pen paper. 53 judgment. reasoning. nothing pension servants Law" product interpretation contemplates programs—not creative text red herring. 55 dispute made; govern administration made. Once appropriately framed, quickly becomes resolution untenable. Three hypothetical changes illustrate approach. Assume, first, forfeiture permanent rather hiatus. Suppose serviceman, totally incapable productive work, promised unaffected enlisted Reserve forces commitment country. Finally, activated briefly sole purpose enhancing earnings, depriving permanently. Would harsh announces today? think not. Unless unambiguous abrogation principles, forfeiture. doing construe ensure administered manner 56 involve facts. Respondent's temporary, and, adequately compensated stress increased workload, certainly mitigated shortfall favoring position, persuaded 5-to-4 repudiated kind maladministration tolerated. closer (1984), Moser 341 41, 71 553, 729 (1973). Accordingly, concur opinion. BRENNAN dissenting. 58 Respondent, recipient unsure overtime forfeiting went employer answer, questions, answer publication, answer. Unfortunately, publication date, similarly erroneous. bear error. 59 hints unsympathetic treated unfairly, 416, basis. resolves litigant generally forbids appropriation,* resolve Most fundamentally, collection fully estopped, prelitigation conduct, arguing bars recovery. Both construction arguments turn equities, Richmond, 299 dissent. 60 notes, 'has Congress.' (quoting (1937)). acknowledges annuities 8348(a), 424, holds created intended "as 8348(a)(1)(A)). terminates annuitant's "deemed restored" left. paying read inflexibly, however. passes intends assumes implement necessary effectuate schemes implemented, interprets apparently plain words allow obtain face suggests engaging just brand 47, 556, (1951). 40; Reply 7. alien exemption military precluded becoming citizen. 42-43, 553-554, 845, U.S.C.App. 303(a) (1946 ed.)). mean condition neutral exemption; choice citizenship, citizenship." 556. erroneously informed State obtaining Ibid. circumstances, decided, "nothing intelligent waiver [of citizenship] elementary fairness." Moser's 62 aberration. literal produce results desired, statutes exceptions though result. Zipes Trans World Airlines, 455 385, 1127, 234 (1982), Title VII Rights 1964 (Title VII) 90 days alleged unlawful "subject waiver, tolling." 393, 1132 (footnote omitted). Hallstrom Tillamook 20, 304, 309, 237 Similarly, Crown, Cork Seal Parker, 462 345, 2392, 76 628 (1983), VII's notice sue Equal Employment Opportunity tolling notwithstanding exceptions. Burnett New York Central R. Co., 380 85 1050, 941 (1965) (limitations Employers' Liability tolling). Respect purposes system fairness barring Perhaps weigh modifying procedural default petitioners' 'failure minimal steps necessary' preserve claims." Hallstrom, 27-28, 309 Johnson Railway Express Agency, 421 454, 466, 1716, 1723, 295 (1975)). surely reading responsible authorities. Cf. Baldwin County Welcome Brown, 466 147, 151, 1725, 196 (1984) party "where lulled inaction"). 64 exception misled claimant, prevail. appropriation, invariably argument. operate invoking normal refuse consider certiorari. Radio Officers NLRB, 347 37, 35, 323, 334, 98 (1954). customarily applies questions Delta Air Lines, Inc. August, 346, 362, 1146, 1155, 287 These dimension. Holland Illinois, 474, 487, 3, 803, 811, 905 (1990) (refusing equal protection certiorari). raise prevails either certiorari likely refused it. Of Teague Lane, 489 288, 300, 109 1060, 1069, 334 (1989) (deciding "raised amicus brief"). obligated 65 many, courts' refusal parties, fair respond. ibid. (justifying departure brief argument] [another claims]"). Clause's litigants' enforced determines counsel entertaining 66 ones posed answered 421-422 (summarizing cases): barred (and Clause) ineligibility entirely error? refuses question. directly, concluding "unusual extreme" Appeals' ruling. argues unappropriated Such necessary, says majority, "fraud corruption" 427. "displeased" goes, misinform statute's meaning, binding representations. 428. majority's dangers undercut, "Government duties." 433. "open[ing] door" "an fisc." almost unnoticeable persuasive evidence fears overblown. Significant implicated indiscriminate doctrine. such, tailored ensuring injustices avoided seriously endangering smooth schemes. Circuit thorough examination followed fundamentally unjust. 69 reject court's findings rejects theory n., mentioned cf., (considering objections nowhere mentioning Clause), adopted, court. lack surprising speak proper Judiciary Due Process 434-435 (WHITE, concurring) (noting limitation holding).

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