Document: 127 S. Ct. 638 (2006) 549 U.S. 84 BP AMERICA PRODUCTION CO., successor in interest to Amoco Production Co., et al., Petitioners, v. Rejane BURTON, Acting Assistant Secretary, Land and Minerals Management, Department of the Interior, al. No. 05-669. Supreme Court United States. Argued October 4, 2006. Decided December 11, *641 Michael L. Homeyer, Houston, TX, Steven R. Hunsicker, Counsel Record, Jeffrey A. Lamken, G. Pattillo, Jr., Stephanie Dourado Guillermo, Christensen Baker, Botts L.L.P., Washington, D.C., for Petitioners. David Bernhardt, Solicitor, Geoffrey Heath, Solicitor Federal Indian Royalty, Sarah Inderbitzin, Attorney Advisor, Paul D. Clement, General Sue Ellen Wooldrigde, General, Edwin Kneedler, Deputy Daryl Joseffer, William B. Lazarus, Martin J. Lalonde, John Bryson, Justice, Respondents. Justice ALITO delivered opinion Court. This case presents question whether administrative payment orders issued by Interior's Management Service (MMS) purpose assessing royalty underpayments on oil gas leases fall within 28 U.S.C. § 2415(a), which sets out a 6-year statute limitations Government contract actions. We hold that this provision does not apply these orders, we therefore affirm. I A The Mineral Leasing Act 1920(MLA) authorizes Secretary Interior lease public-domain lands private parties production gas. 41 Stat. 437, as amended, 30 181 seq. MLA lessees are obligated pay at least "12.5 percent amount or value removed sold from lease." 226(b)(1)(A). In 1982, Congress enacted Oil Gas Royalty (FOGRMA), 96 2447, 1701 seq., address concern "system accounting with respect royalties other payments due owing produced such sites [was] archaic inadequate." 1701(a)(2). FOGRMA ordered "audit reconcile, extent practicable, all current past accounts take appropriate actions make additional collections *642 refunds warranted." 1711(c)(1). turn, has assigned duties MMS. CFR 201.100 (2006). Under FOGRMA, responsible first instance accurate calculation royalties. 1712(a). MMS, is authorized audit those determine been overpaid underpaid. §§ 1711(a) (c); 206.150(c), 206.170(d). event an suggests underpayment, it MMS'[1] practice send lessee letter inquiring about perceived deficiency. If, after reviewing lessee's response, MMS concludes owes royalties, issues order requiring due. Failure comply carries stiff penalty: "Any person who (1) knowingly willfully fails any date specified [an] ... shall be liable penalty up $10,000 per violation each day continues." 1719(c). may enforce federal court. 1722(a). An appealed, Director then Board Appeals Secretary. 290.105, 290.108. While filing appeal generally stay order, 218.50(c), will usually suspend order's effect complies applicable bonding financial solvency requirements, 243.8. supplemented scheme enacting Simplification Fairness 1996 (FOGRSFA), 110 1700, FOGRSFA adopted prospective 7-year "judicial proceeding demand" arising under lease. 1724(b)(1). agree applies both judicial ("judicial proceeding]") MMS' ("demand[s]") September 1, 1996. Ibid. not, however, proceedings demands land pre-September 1996, production. 9, 1717, notes following 1701. There no dispute lawsuit court recover owed covered general That section, was 1966, provides relevant part: "Subject provisions section 2416 title, except otherwise provided Congress, every action money damages brought States officer agency thereof founded upon express implied law fact, barred unless complaint filed six years right accrues one year final decisions have rendered required law, whichever later." (Emphasis added.) Whether also governs concerning must decide case. *643 B Petitioner America Co. holds New Mexico's San Juan Basin. BP's predecessor, entered into nearly 50 ago, require minimum 12.5 prescribed For years, calculated percentage moment well. sent directing should based well, but treated meet quality requirements introduction Nation's mainline pipelines.[2] Consistent guidance, 1997 period January 1989 through cover difference between its lesser appealed disputing interpretation obligations arguing part 2415(a). denied ruled inapplicable. Amoco, together petitioner Atlantic Richfield sought review District Columbia, agreed 2415(a) did govern order. Baca, 300 F. Supp. 2d 21 (2003). Columbia Circuit affirmed, Watson, 410 F.3d 722, 733 (2005), granted certiorari, 547 1068, 126 1768, 164 Ed. 515 (2006), resolve conflict decision contrary holding Tenth OXY USA, Inc. Babbitt, 268 1001, 1005 (2001) (en banc). now II start, course, statutory text. Central Bank Denver, N.A. First Interstate N. A., 511 164, 173, 114 1439, 128 119 (1994). Unless defined, terms interpreted accordance their ordinary meaning. Perrin States, 444 37, 42, 100 311, 62 199 (1979). Read way, text quite clear. imposed when commences "action damages" "complaint" contract, runs point "the accrues." key provision"action" "complaint"are ordinarily used connection judicial, administrative, proceedings. enacted, commonly legal dictionary defined term "right action" "[t]he bring suit; maintain action," "suit" meaning "any justice." Black's Law Dictionary 1488, 1603 (4th ed.1951) (hereinafter Black's). Likewise, initiatory pleading plaintiff *644 civil action."[3]Id., 356. See Unexcelled Chemical Corp. 345 59, 66, 73 580, 97 821 (1953) (holding complaint, sense term, means suit court, initiating proceeding: "Commencement too familiar history us assume mean use words sense"). phrase reinforces reading because "damages" "pecuniary compensation indemnity, recovered courts." 466 (emphasis added). Nothing language intended more broadly On contrary, distinguishes Section "action" commence "within proceedings." Thus, knew how identify manifestly had two separate concepts mind 2415(a).[4] effort show refer well proceedings, petitioners cited numerous statutes regulations that, claim, document usage.[5] These examples, actually undermine petitioners' argument, since none them uses standing alone Rather, example includes modifier some sort, referring "administrative "civil enforcement actions." pattern usage buttresses "action," alone, refers proceeding. Petitioners contend broader supported reference "every *645 contract." But broad "every" "any" do assist petitioners, they broaden "action." argue Pennsylvania Delaware Valley Citizens' Council Clean Air, 478 546, 106 3088, 92 439 (1986), West Gibson, 527 212, 1906, 144 196 (1999), reliance misplaced. Council, construed attorney's fee Water (CWA), "court, issuing pursuant subsection (a) [to] award costs litigation party." 42 7604(d). permitted recovery fees work done subsequent pertinent employ appear issue here. Specifically, CWA referred "litigation," commenced "complaint." Moreover, counsel [in phase case] necessary attainment adequate relief... earlier courtroom obtaining consent decree." U.S., 558, 3088. And expressly reserved judgment "whether there connected recoverable." Id., 560, n. 5, helps even less. There, considered Equal Employment Opportunity Commission (EEOC) could compensatory 717(b) Title VII Civil Rights 1964, 2000e-16(b), EEOC "appropriate remedies," specifically authorize damages, 717(c) against employer agency, 2000e-16(c). 1991, added Rev. 1977A(a)(1), 1981a(a)(1), "[i]n complaining party 706 717 damages." West, respondent employee argued enactment 1981a(a)(1) showed consider remedies" proceeding, opposed aggrieved employee. If wished reasoned, would so 1981a(a)(l), cross-referencing 717(c). rejected doing 1981a(a)(1). simply concluded EEOC's authorization enough encompass damages. 220-221, 1906. reasons, persuaded argument follow issuance C similarly reject suggestion constitutes examples context. See, e.g., 15 *646 45(b) (requiring Trade serve suspected engaging unfair method competition); 29 102.15 (a initiates labor before National Labor Relations Board). occasional describe certain filings alter primary meaning, concerns initiation "a action." if distinction put aside, lacks essential attributes complaint. end result legally binding providing relief, itself imposes obligation issued. As noted, failure can fines day. therefore, plays entirely different role "complaint."[6] D To doubts remain regarding erased rule narrowly government. E.I. Du Pont De Nemours & Davis, 264 456, 44 364, 68 788 (1924). canon rooted traditional quod nullum tempus occurrit regi time run King. Guaranty Trust 304 126, 132, 58 785, 82 1224 (1938). corollary sovereign elects subject limitations, given benefit doubt scope ambiguous. Bowers York Albany Lighterage 273 346, 47 389, 71 676 (1927), contrary. here, limitations. case, "`[n]o collection taxes'" than five return. 348-349, 389. "proceeding" were coterminous, urged further ambiguity resolved favor. recognized canon, restating much above. 349, application statute, unlike applied clearly separately "suits" "proceedings," saw reason give same 349-350, E come interpreting applying only render (i) superfluous. Subsection follows: "The prevent collecting claim offset, *647 3716 title 31." 2415(i). offset mechanism withholds debt another recoup Government. 31 3701(a)(1). (i), via pursuing need 2415(i)'s protecting particular (i.e., offset) set (a). Invoking way makes redundant, see, TRW Andrews, 534 19, 31, 122 441, 151 339 (2001), shows meant disagree. rather 16 later Debt Collection 1982. 1749. followed Office Comptroller head named Accounting (GAO), Justice's Legal (OLC) over where recoupment already barred. 1978, response Commission, OLC opined reached conclusion believed generally,[7] offset. "Where [a] reduced judgment," stated, "an merely pre-judgment attachment device." Memorandum M. Harmon, OLC, Alan K. Campbell, Chairman, Re: Effect Statute Limitations Administrative Claims 3 (Sept. 29, 1978), Joint Lodging. prejudgment device exists preserve funds satisfy creditor subsequently obtains. 4 (citing cases). foreclosed functional equivalent pretrial unavailable. 3. GAO disagreed. re DebtsStatute Setoff, Comp. Gen. 501, 504-505, 1979 WL 14962 view, answered suits debts bar remedy (the suit) discharge extinguish, impair, obligation, either avail himself lawful realizing obligation. Mascot *648 70 Cl. 246, F.2d 309 (1930), affirmed 282 434, 51 196, 75 444; 33 1953 526 (1953). Ready-Mix Concrete 131 204, 130 390 (1955)." remedy, limit remedy. OLC-GAO reveals (a)the adoptingthat considers mere surplusage. It clarifies offsets viewed adjunct action. accept hand, 1966 extended reach clear refutes propositions, accepting latter conclude 1982 elected enlarge 2415 inserting excluding single vehicle statute's reach. unrealistic suggest proceed oblique cryptic route. III results peculiarities intended. example, note while records seven 1724(f), permits back further. mindful fact read possible effecting "`symmetrical coherent regulatory scheme,'" FDA Brown Williamson Tobacco Corp., 529 120, 133, 120 1291, 146 121 (2000), here alternative disharmony. instance, FOGRSFA, prospectively land. Consequently, relating shorter 6-year) similar (which governed FOGRSFA's new statute). Particularly light Congress' exhortation "aggressively carry his trust responsibility administration gas," 1701(a)(4), seems unlikely impose lands. contend, finally, frustrate purposes repose, ensuring evidence fresh, lightening recordkeeping burdens, pressuring agencies assert rights promptly. certainly cogent policy arguments, perspective. thing, overstate problem, *649 course enact specific 5205(a)(1) (statute made state governments disaster emergency assistance). Indeed, just limitation non-Indian land, oil, claims. Second, fundamentally, consequences limited exempting bar. always arguments affording special treatment, like this, far go Government, expansive somewhat beside point. inquiry, instead, question. Here prior 785. Absent congressional changing rule, remains betrays intent change analysis, appreciate insufficient overcome plain involved * affirmed. ordered. CHIEF JUSTICE BREYER took consideration NOTES [1] auditing body, delegate authority host State tribe. 1732, 1735. [2] implement regulations, "to place marketable condition cost agreement." 206.152(i) (1996). [3] definitions changed substance 1966. (8th ed.2004) defines "[a] criminal proceeding" initial starts states basis court's jurisdiction, plaintiff's demand relief." 303. [4] [5] action[s] payment[s] local government assistance"); 12 1441a(b)(11)(G) Resolution Corporation staff "cases, claims, actions"); 78u(h)(9)(B) (Securities Exchange 1934 noting "[f]inancial . disclosed civil, action"). 7 3018.400(c) (Department Agriculture regulation imposition penalty" file disclosure forms); Fed.Reg. 7407 (to codified 1412.2(l)(1)) (Farm Credit System Insurance defining "prohibited indemnification payment" include reimbursement resulting instituted Farm Administration); 10 pt. 820, App. A, IX-b ("Administrative actions, determination [Department Energy] contracts provide determinations, penalties Enforcement Policy"). [6] oral might constitute advance neither nor letter. Tr. Oral Arg. 7-9. part, observed request information, yet decided claim. 28. [7] what emerges strikingly OLC's 1978 time GAOeven contemplated procedures instance. Nor pointed source demonstrating otherwise.

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