Document: 488 U.S. 105 109 S.Ct. 414 102 L.Ed.2d 408 PITTSTON COAL GROUP, et al., Petitionersv.James SEBBEN al. Ann McLAUGHLIN, Secretary of Labor, Petitioners v. James DIRECTOR, OFFICE OF WORKERS' COMPENSATION PROGRAMS, UNITED STATES DEPARTMENT LABOR, Petitioner Charlie BROYLES Nos. 87-821, 87-827 and 87-1095. Argued Oct. 3, 1988. Decided Dec. 6, Syllabus The Black Lung Benefits Reform Act 1977 (BLBRA), in 30 U.S.C. § 902(f)(2), provided that, pending the issuance permanent regulations by cases filed or pending, as well certain claims required to be reopened readjudicated, were assessed under "[c]riteria . not more restrictive than criteria applicable a claim on June 30, 1973." As that date, interim established Health, Education, Welfare (HEW), miner could establish presumptive entitlement benefits if he submitted X-ray, biopsy, autopsy evidence pneumoconiosis, showed either 10 years mining service his impairment arose out coal mine employment. In response BLBRA, Labor promulgated an regulation accorded only miners who had experience satisfy one several "medical requirements," including pneumoconiosis identical HEW regulation. No. 87-1095, since neither claimant worked mines, qualified for regulation, their adjudicated stringent originally HEW. Their administratively denied, but Court Appeals reversed, holding unavailability presumption short-term violated 902(f)(2). 87-821 87-827, Appeals, having similarly found invalid reversed District Court's refusal issue writ mandamus compelling readjudicate class previously considered notwithstanding Secretary's decision those become final. Held: 1. violates Pp. 113-120. (a) are latter permitted obtain establishing years' proof was caused employment, whereas is exclusive element second factor. By making proving causation "more restrictive" seek can necessarily applies total disability 113-115. (b) Even "criteria" 902(f)(2) consist solely criteria," asserts, statute. Under unlike claimants submit prove causation, have fewer mine, must addition affirmative disability, which would principally involve submission underlying medical disability. 115-117. 2. 87-1095 properly remanded case Review Board further proceedings. But Appeals' order proper, does lie compel readjudication decided erroneous standards where already final reason claimants' failure pursue administrative remedies appeal directly courts within prescribed time. 121-123. 815 F.2d 475 (CA8 1987), remanded. SCALIA, J., delivered opinion Court, BRENNAN, MARSHALL, BLACKMUN, KENNEDY, JJ., joined. STEVENS, dissenting opinion, REHNQUIST, C.J., WHITE O'CONNOR, joined, post, p. 123. Donald B. Ayer, Washington, D.C., Federal petitioners. Mark E. Solomons, private Paul March Smith, respondents. Justice SCALIA Court. 1 These consolidated call into question Labor's interpretation which, specified categories black lung benefit claimants, provides applied any shall Respondents contend adjudicating claims, see 20 CFR pt. 727 (1988), did comply with this provision. Broyles Director, OWCP, 824 327 (CA4 1987) (No. 87-1095), Fourth Circuit agreed, directed adjudicate pursued respondents Colley less force 1973. See 410.490 (1973). re Sebben, (Nos. 87-827), Eighth We granted certiorari, 484 1058, 108 1011, 98 977 decide statutory issue, subject conflict,1 decide, event we find statute unlawful, whether will appealed time prescribed. 2 * program totally disabled because chronic respiratory pulmonary disease arising from Mullins Coal Co. 135, 141, 427, 431, 450 (1987). Originally enacted Title IV Mine Health Safety 1969 (FCMHSA), Pub.L. 91-173, 83 Stat. 792-798, has consisted two separate parts. original legislation, part B constituted temporary federally financed administered C envisioned operating auspices relying state workers' compensation programs possible. 3 For FCMHSA "shall prescribe determining due pneumoconiosis." 411(b). relevant here "permanent" "interim" components. generally methods elements entitlement. §§ 410.401-410.476 addition, following (and to) 1972, 92-303, 86 150, adopted designed "permit prompt vigorous processing large backlog claims" developed during early phases administering 410.490(a) To deal perceived inadequacy facilities tests, classes presumptions. First, at here, showing "[a] chest roentgenogram (X-ray), establishes existence pneumoconiosis" "[t]he employment." 410.490(b)(1)(i), (b)(2). causality first 410.416 410.456, both rebuttable also direct evidence. 410.490(b)(2). (drafted most confusing manner) enables scores ventilatory tests "at least requisite 410.490(b)(1)(ii), (b)(3). Both presumptions working work former employment equivalent. 410.490(c). Miners unable proceed regulations. 410.490(e). term coincided program, expired after 1973, living December 31, survivors' claims. 410.490(b). 4 ceased, shift approved "adequate" standards. 421. If no statutorily existed given State, handle State directly, assigning liability responsible owners. 422(a). Events unfold expected, however. period, Lopatto, Program: A 1983 Primer, 85 W.Va.L.Rev. 677, 688 (1983), became exclusively run Labor. Significantly, section 411(a) title [processed Labor] [part C]." 422(h). Thus, began, 5 This affairs persisted until Congress passed 95-239, 92 95. BLBRA amended 902(f) give authority cases. 902(f)(1). Pending new Department regulations, regime applying different generous than) Moreover, these denied would, upon claimant's request, readjudicated 945. nature such That language giving rise dispute 6 scope accords mines satisfying study 727.203(a) (1988). It central present (§§ (b)(2)), cannot without service. rebuttal provisions mandate "all considered," 727.203(b), permitting grounds available (§ 410.490(c)), basis "the death arise whole employment" not, 727.203(b)(1)-(4). (subsequently issued) depending when adjudicated. 727.4(b) took effect April 1, 1980. 718.2 II 7 One three before us, OWCP Broyles, itself consolidation brought by, respectively, Lisa Kay Broyles. Respondent Colley's father, Bill Colley, respondent 1974 1976, respectively. 945(b), entitled pursuant amendments. applied. Since, however, 727.203, so cases, Administrative Law Judge against (BRB) affirmed. BRB forcing application F.2d, 329-330. 8 other Pittston Group McLaughlin potential consisting 9 "(1) BLBA between 1969, 1980; (2) claimed industry; (3) positive X-ray presence pneumoconiosis; (4) been contained 727.203(a)(1) they ten mines; (5) afforded opportunity 410.490; (6) do currently Labor." 484-485. differ timely Department's adverse decisions courts, while expire. 478, 485. ordered certification appropriately members' 410.490. panel's relied Circuit's earlier Coughlan 757 966 1985), like determined held perfect appeals obstacle suit. III 11 text applicable" respect it this: (see supra, 109) (1) defending maintains ambiguous, her resolution ambiguity reasonable therefore sustained. Chevron U.S.A. Inc. Natural Resources Defense Council, Inc., 467 837, 842-843, n. 9, 104 2778, 2781-2782, 81 694 (1984). disagree. our view, simply bear meaning adopted. 12 "Criteria" "standard[s] judgment may based." Webster's Ninth New Collegiate Dictionary 307 (1983). undisputed current context referred include obtaining distinctive feature precisely its establishment presumptions, fix benchmark reference meaningless. 13 contends, all necessary successful claim. Those essentially three: employment; (defined inability equivalent pneumoconiosis). argues definition dealing "total disability," refers limited bearing element. Total view some extent vocational) factors, circumstances 10-year-employment requirement obviously goes rather 14 premise argument—that means criteria—has considerable merit, though free doubt. Assuming correct, unavailing sustain impose criteria. although categorical bears proximately ultimately well. provided, effect, (pneumoconiosis causation) established, third (total disability) automatically presumed. increase requirements No matter reality. 15 still, legislative history leading up enactment actually discloses congressional intention preserve criteria" adoption need canvass detail history, shows focus House Senate debates. law effects explicitly mentioned plainly embraces general application. refer merely use unqualified itself, related provisions. Immediately preceding United States Code 902(f)(1)(D), "Secretary appropriate subsection accurately reflect disability." (Emphasis added.) If, intended word cover (such scores) simultaneously subsections, implausible other.2 16 suggested why should insist restrictive, being utterly indifferent conditions recovery. There assuredly belief particularly precise accurate. Quite contrary, prologue them made very clear rough guesses "in light resources techniques." cite persuasive proposition conclusively employed provision "are basically normal values retired miners." Brief pp. 31-33. seems likely particular motive preserving assure continued liberality awards. Since non equal force, there apparent unnaturally suggests. 17 agreed assertion still conclude violation various go closely—indeed, inextricably—intertwined. configuration nonmedical characteristics effectively determines make prima facie submitting proceeding fall able longer suffices claimants; (regardless then regulations), 410.422-410.426 (1988) (permanent regulations); id., 718.204 regulations). class, restrictive—violating "no claim." 18 increased readily understood transposing substance what occurred commonplace, analogous context. Just considers entitlement, college admissions typically consider academic extracurricular admission. Assume hypothetical traditionally tendered offers admission applicants B+ average, high school student-body presidents football-team captains average. Trustees, concerned about increasing intellectualism institution, issues directive providing committee considering past." Surely say permits terminate practice admitting sure, assert stricter activity averages, just she pneumoconiosis. same raising captains—just 19 remaining arguments require little discussion. She points easily entire meant aspects course (which simple 902(f)(2)) produced result, adopt observes enacting suggesting disabling rarely manifests experience. Though quite true, sit determine ought done it, apply enacted—and, discussed, exclusion finds support petitioners favorable postenactment statements key sponsors BLBRA. possibly informed vote legislators law, conduct polls legislators. Finally, focuses regulation's additional provisions, permit introduction disputing connection conceded validity even drawing line alteration factors addressed Secretary. so, affect determination regarding us clear. Respondents' concession validity, reconcile putative today. (The occasion process petitioners, predicated expansive regulation.) address argument nor, far appears, court extensive litigation—but dissent. dissent believes typographical error drafting 410.490, paragraph (b)(3) subparagraph (b)(1)(ii) (b)(1)(i). revision wrote defended here) sense, hesitate uninvited. fact bring eliminate redundancy shifts another. dissent's (b)(1)(i) (b)(2) last requires requirement, (b)(2), entirely superfluous, (by cross-references 410.456) (To 410.456 presumption, purpose serve substantive requirement.) Nor operative (b)(1)(ii), (without (b)(3)) minimum 21 error, whatever Congress, past Secretaries, aware amend it. agreement understanding produces, voluminous hearings, debates, reports subject, nothing stray remarks Workers official single Representative hearings occurring four Congresses enacted, 147-148—remarks concedes attributable "misread[ing] [of] regulation," 148 12. think justify rewriting (perhaps reasonably) written. 22 Having conclusion below remains propriety orders produced. proceedings accordance opinion. action correct—with clarification, invoking conceded. 23 Sebben 87-827) problematic. There, described earlier, finding instructing readjudicate, correct standard, petition judicial review manner. rationale deceptively simple: 945, initially reasoned never fulfilled duty failed "under proper standard." 482. suffice. 24 extraordinary remedy 28 1361 performance "a nondiscretionary duty." Heckler Ringer, 466 602, 616, 2013, 2022, 80 622 Longshore Harbor Workers' Compensation adjudication 932(a), initial determinations days Board, 33 921(a), persons aggrieved set aside petitioning 60 order, 921(c). Determinations stages. succeed 727.203 reopen determinations. established. 25 With effective date yet time, colorable contention imposed reconsider finally And pre-BLBRA 945 new, reopening interprets override principle res judicata once perpetually, requiring re-readjudication (despite rules finality) gets right. interpret command standard perpetual reopening, right, fashion. say, plausibly every conducted complied with. way works. received required: governed benefits, vindicated sought review; chose instead accept incorrect adjudication. They position seeks avoid bar ground wrong. 26 believe Bowen City York, 476 467, 106 90 462 (1986), place principal reliance, secret, internal policy Human Services Social Security equitably tolled limitations periods seeking review. Id., 478-482, S.Ct., 2029-2031. assuming equitable tolling Act, exist. agency taken policy, published see. wished challenge decided. 27 Accordingly, affirm Circuit, reverse remand instructions dismiss mandamus. ordered. 29 whom THE CHIEF JUSTICE, WHITE, O'CONNOR join, dissenting. Pneumoconiosis serious afflicted hundreds thousands spent lives inhaling dust. severity duration miner's underground Although stages (i.e., experience), seldom, ever, unless employee over years. Not surprisingly, participant law-making ever presume miners—even stages—should presumed disabled. fact, draft (HEW) 410.490(b) (1973), 37 Fed.Reg. 18013 (1972), (Labor) case, unambiguously reaching now extends unexplained change scrivener's strikingly unique product incompetent draftsmanship. Nonetheless, today holds receive unreasonable presumption. 31 specific debate used 2(c) (BLBRA). 96; More narrowly, (Secretary) reasonably describe evidentiary adjudicatory Because my reading Secretary's, I reasonable. 32 complex legislation revealed mere ambiguity—that is, concluded construing broadly narrowly—I nevertheless especially deferring administer. See, e.g., K mart Corp. Cartier, 486 281, 1811, 100 313 (1988); 293, 4, 1818, (KENNEDY, J.) ("[T]he threshold ascertaining arguably ambiguous ") (emphasis added); explaining am convinced superficial treatment profoundly wrong, discuss serves point today, Next, explain statute's face yields easy answer, show how reveals After reviewing statistical studies revealing low incidence discussion analysis inconsistent principles deference.1 litigation exists problem: 410.490(b), survivor proved through evidence, disease, result regardless number mines. 1978 once-denied prove, miners, [applied HEW]," legal presented prohibited Parts II-V, infra. 34 Unfortunately, seen fit examine mechanics itself; rather, sides seem assume gap created given, firm starting operated. close inspection genesis reveals, mistake one—not HEW, Congress—has scheme presumes 35 "interim regulation" 1972 concern await development accurate evaluate pneumoconiosis.2 Paragraphs defining appear answer questions: pneumoconiosis? and, employment? disease? Instead entitlement—disease, apparently create plus Let me explain: requirements" (b)(1) regulation.3 kinds: (i) authorized X ray biopsy (or deceased miner) (ii) ailment acceptable "[i]n comparable (b)(1), essence, allowed applicant based ray, autopsy, inference coupled work. 36 15-year noteworthy reasons. reminds important progressive disease. few sometimes contract develop Part IV, Second, rely ventilatory-study source confusion critical Paragraph satisfied words, causation. Disease employment.4 38 regulatory question—whether disability—has peculiar history. drafted, met "presumed (1972). written, triggered 10-year requirement. group miners—those criteria—already probative, drafters alter otherwise namely, 39 Ironically, revision—unexplained promulgation "[m]inor editorial clarifying changes," 20634—made (1)(ii) paragraph," 20646. reads, terms (b)(1)(ii). drafters, trigger dropped (the claimants) wholly irrelevant another claimants), error. 40 assumption plausible character makes human understandable surprising. substitution gives comports abundant includes not. Third, correction made, inconsistency inexplicable. 41 responds fashion "merely shif[t] another," explains rendered superfluous. Ante, 119—120. Three things said response. render disease-causation embodied "redundant" "superfluous." invoke renders superfluous; claim, sense separately, vanishingly requirements. fails note parallelism paragraphs exist, corrected. reads face, requirement), doing Finally—and ignores—the inexplicable unintentional, eliminated correcting states "operative (b)(1)(ii)," ibid.; certainly true (b)(3).) 42 sum, proposed conditioned Had eliminating entirety. absurd deliberately accomplished objective obscure "clarifying change" equally senseless perpetuated etching stone turn. 43 procedural supported foregoing discussion, begin text. 44 primarily phrase mean criteria, nonmedical, written instead. end, 902(f)(1)(D) expressly instructed "criteria tests" regulations; expressio unius est exclusio alterius, knew narrow field desired, unadorned medical.5 45 proves too little. understand text, words chose.6 works, combined sentence, rephrased follows: "The normal—in mark good writer—to shorthand "criteria"—meaning, tests"—the second. alterius applies, (and, III, cases) unmodified synonym bulkier tests."7 46 careful leaves doubt Members criteria—not system utilized—were lenient stringent. reached judges thorough investigation background Strike 817 395, 400-406 (CA7 (Cummings, J.); Halon 713 21, 25-30 (CA3 1983) (Weis, part). fully certainty closely debates Committee Reports 47 respects. amendments, followed concerns HEW's claims-approval rate, explained Report Public Welfare: 48 "[T]he B] procedures. handled techniques. 49 "Accordingly, expects evaluation consistent intent Such full consideration handicap age provide claim[s] breathing feasible practicable physical type [by HEW]." S.Rep. 92-743, 18-19 U.S.Code Cong. & Admin.News 2305 added). 50 clearly distinguishes (20 410.490) distinction rules. describes rules" follow match Report's "evidentiary "disability criteria": 51 "In noted generated presently stated expectancy amendments tests. take account expectation many instances function testing measure individual's impairment, transfer oxygen alveoli cellular level exist individual (X-ray) normal." 52 rate rose 1975 served precursor Education bind, offered assistance: 53 "For reason, [HEW], exercising literally saddled [Labor] rigid difficult measuring eligibility program. so-called 'permanent' much demanding 'interim' 'substantial reasons' July assertedly 'substantial' arises accompanying actual completely misplaced emphasis Report. regard spoke 'the procedures.' (S.Rept. 18) explicit condition underscoring interpretation, developments somehow magically onset intend adopting initiative, unequivocally approach suddenly termination filings. hardly intimate 'new facilities' procedures ' referenced specifically have, 54 "This bill justified procedures,' future determination." H.R.Rep. 94-770, 13-14 (1975) 55 standards" "standards" interchangeably Report; distinguish standards," style repetition. 56 Testifying President Arnold Miller America standards: ideal. Nearly miners' criticized blood gas overreliance test score. However, base point, urge guarantee developing utilize formation I. L. O." Oversight Administration Program, Hearings Subcommittee Resources, 95th Cong., 1st Sess., 49-50 (1977). 57 strong supporter liberalized carefully medical—specifically, relate ("blood standards"; "breathing score"; "lung standards")—is fortiori, reasonable).8 interesting ensuing adding "[b]lood studies" "[o]ther evidence" 727.203(a)(3) 58 returned 1977. 95-151, 1978, 237. Throughout uses "screening borrow. 15, 16, 28, 251, 252, 264. claims—whether filed, once-denied, later filed—pursuant 59 write aegis "to 95-209, clarified Senate's desire leeway standards." 13-14. Workers, thought stringent, capacity; mention 13. Further, Congressional Budget Office survey, assumed maintained "will 25.9 conferees resolve differences bills, compromise. H.R.Conf.Rep. 95-864 (1978), Conference desires, promulgate "new tests," accord House's wishes, reviewed promulgates cases." 309. clearer carry govern later. resulting adds Ibid. indicates considered; concern, attached clause end sentence implies ones. 61 dramatic Houses criteria." Senator Randolph West Virginia, manager bill, explained: "Under conference report, future. prior Amendments 1972." 124 Cong.Rec. 2331 (1978). Javits York consideration: 62 "I throughout dual responsibilities exercised manner fair concerned. agencies act, revised best information available, newly 63 B, highly controversial widely criticized. example, September 1977, stated: 64 " 'The medically sound deserving individuals.' 65 requested statement managers 'all evidence' interim' [902(f)(2) ] act bill. expect administer accomplishment allowing claims.' heading 'Review.' 2333-2334 66 Senators referring 67 similar clarity understanding. Perkins Kentucky, bill's manager, 68 ". part, prevailed evaluated according continue well, him responsibility remain applicable, HEW-part thereunder, unalterably area address, restrictively past, methodology Register." Rec. 3426 (1978) 69 Representatives Simon, Illinois, engaged colloquy: 70 "Mr. SIMON. Mr. Speaker, ask Chairman Perkins, chairman committee, 435 reconsideration program? 71 PERKINS. gentleman report joint explanatory lead speaks issue; All old legislation. Department, C, him. recognize fulfills duties. past. 72 add alter, adjust, promulgation. Insofar restrictive. 73 thank His views own 74 75 pleased crystal formally known standards, [SSA] 76 [He quotes 902(f)(2).] 77 "It possible misconstrue language. 78 An example International Labour Organization's form included Report.] 79 "So confined social security 3431 occasionally "criteria," Simon times comments read leave viewed quoted length supposedly "plain" plain all. compromise: authorizing ensuring undertaken understood, intentions natural culmination phrases throughout.10 expresses disbelief contextual attributing unbelievable proposition. compromise reveal, utilized 82 body only: data demonstrate rarely, saying "we it," ante, 118 added), comprehending help did.11 During gave supporters subjected rigorous long-term miners. H.R. 3476, 8834, 8835, 8838, General 93d 2d 367 (hereinafter Hearings) (Director Appalachian Research Fund experience, suggests might meet years, perhaps, standard"). burden-shifting coal-mining 353 (statement Bedford W. Bird, Deputy Occupational Workers); 395 (question Kentucky).12 84 Study stark, fact: suffer all, earliest, nondisabling stage. Appendix lists concerning 30-38, 266-274. earliest Lainhart, Prevalence Miners' Bituminous Miners, 52, (1969) (526 536 suspect (98%); definitely underground, occurrence roentgenographic definite appeared spotty among trend. greater linear prevalence underground"); Hyatt, Kistin, Mahan, Respiratory Southern Virginia 89 American Rev. 387, 389 (1964) (33 (94.3%); pneumoconiosis); Morgan, Burgess, Jacobson, O'Brien, Pendergrass, Reger, Shoub, Archives Environmental 225 (1973) (3,064 3,450 (88.8%); 385 (11.2%); pneumoconiosis).13 Given overwhelming surely reject contracted "is regarded physicians seldom productive significant impairment." Usery Turner Elkhorn Mining Co., 428 7, 96 2882, 2888, 752 (1976). V Deference construction levels analysis. sections reveal almost insists encompass deference stronger. interpretive becomes technical, expertise charged administration importing appropriate. U.S., 864-866, 2792-2793; Aluminum Central Lincoln Peoples' Utility District, 380, 390, 2472, 2479, 301 define away problem hypotheticals overcome common-sense medical—ventilatory values, rays read, etc.—and extended second-level concerns—e.g., someone former, do, sufficient 87 sanction departure scheme, something thinks meant. consistently enforced Secretaries Labor.14 delegated task implementing costly piece office exceeded bounds powers her. respectfully Besides Circuits, federal impermissibly "restrictive" Kyle 819 139 (CA6 1987); 1983). Seventh contrary. 404-405 asserts "shorthand" satisfaction recasting obvious. 133 134. argue different. occur indeed parallel sentences (one subparagraph, next beginning paragraph), naturally suggest ellipsis. immediately lengthier 902(f)(1)(C), 223(d) Act." interpreted appeared, twice, apart, meanings. 902(f)(1)(C) pre-existing provision, added BLBRA; attribute draftsmen produces peculiarity Code. agree availability relief case. forth infra, 135—136. "(b) Interim files dies January 1974, death, be, if: met: "(i) 410.428); "(ii) meets 410.412(a)(2)) demonstrated table: Equal FEV MVV 67" 2.3 68" 2.4 69" 70" 2.5 71" 2.6 72" 2.7 "(2) 410.456). "(3) section, alternative method cross-referenced "Sec. Section 402(b) 'Act') '(b) "pneumoconiosis" dust sequelae, impairments, employment.' 402(d) '(d) "miner" works around preparation facility extraction coal. transportation exposed "(c) 402(f) '(f)(1) disability" title, subsections (d) 413, except that— '(A) miner, prevents engaging gainful skills abilities regularity substantial period time; '(B) conclusive disabled; changed indicative reduced ability perform usual work, '(C) Act; '(D) consultation Director National Institute defined (A). '(2) Criteria of— Welfare, 435(a); 435(b); Labor; disposition occurs Labor.' 95-96. rule looking customary usage issue. Farnsworth, Contracts 713, 508-511, (1982) (giving "usage 'minimum 50% protein' 49.5 percent protein"). "criterion" Third 538 (1966) parts, contain references. special constitutional criterion person," drawn Journal Medical Association, accepted adequate diet." None definitions procedures, burdens proof. Similarly, (SSA) staff member constructing liberalizing respond [Congress' decrease fashion], marked detect acknowledged functional limitation individual. roentgenogram, table section. sufficiently level, younger individual, disadvantage individuals obtained, recognized obtained vast majority 194 (1977) Herbert Blumenfeld, M.D., Chief, Consulting Staff, Bureau Disability Insurance, Administration) debate, "authorizes C. Currently imposes considerably claimants." 123 24239 Alternatively, inadvertence, oversight inadvertence produce cleanly Congress' intention. Examining Engineers, Architects Surveyors Flores de Otero, 426 572, 582-586, 2264, 2272-2274, (1976) (interpreting 1343(3) confer jurisdiction territorial courts); Cass States, 417 72, 83, 94 2167, 2173, 668 (1974) ("In resolving ambiguity, allow ourselves recognition sheer process"); Bulk Carriers, Arguelles, 400 351, 354, 91 409, 411, 456 (1971) ("We often legislate interstitially iron inconsistencies fill gaps ambiguities compromise" (footnote omitted)); Locke, 471 84, 123, 1785, 1807, (1985) (Stevens, dissenting) ("[I]t author 314 inadvertently 'prior 31' calendar year"); Maine Thiboutot, 448 14, 2502, 2509, 555 (1980) (Powell, ("When intent, construed Civil Rights Acts omitted"); cf. Posner, Legal Formalism, Realism, Interpretation Statutes Constitution, Case W.Res.L.Rev. 179, 191 (1986) ("Interpretation valid acquiring knowledge ranges beyond text"). Term Programs, 157-158, 439, (1987): "Like ultimate predicate one, rest relationship facts logic common 'Inferences staple adversary factfinding. trier crime—that "ultimate" "elemental" fact—from "evidentiary" "basic" facts. value devices, Due Process Clause, vary strength basic elemental involved degree device curtails factfinder's freedom assess independently.' Ulster County Allen, 442 140, 156, 99 2213, 2224, 777 (1979)." gentlemen misread regulation; labyrinthian route reach theory, follows I, available: overlooked promulgated, (through autopsy) (independently option)—to words: parties Additionally, Reports, floor lends inadvertent, i.e., loophole. HEW's, legislating affected. 1981 classified 99.3% 98.9% radiographic category "0," whatsoever. Problems Relating Insolvency Trust Fund, Ways Means, 97th Dr. J. Millar, Centers Control, Service). survived political party well) defer Executive Branch subject. Atchison, T. S.F.R. Wichita Trade, 412 800, 807, 93 2367, 2374, 350 (plurality ("A settled behavior embodies agency's pursuing course, policies committed Congress"); Motor Vehicle Manufacturers Association Farm Mutual Automobile Insurance 463 29, 40-42, 103 2856, 2865-2866, 443 (1983); Garland, Deregulation Judicial Review, Harv.L.Rev. 505, 585 ("[A]brupt profound alterations [after Congress] signal loss fidelity [Congress'] intent"). Youakim, 440 125, 144, 957, 968, (1979); cf., Udall Tallman, 380 792, 801, 616 (1965) (contemporaneous deference).

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