Document: 420 U.S. 575 95 S.Ct. 1180 43 L.Ed.2d 469 Kevin J. BURNS, etc., et al., Petitioners,v.Linda ALCALA al. No. 73—1708. Argued Jan. 22, 1975. Decided March 18, Syllabus For the purposes of eligibility for benefits under Aid to Families with Dependent Children (AFDC) program, § 406(a) Social Security Act defines 'dependent child' as 'a needy child (1) who has been deprived parental support or care by reason death, continued absence from home, physical mental incapacity a parent, and is living his father, mother,' certain other designated relatives, (2) age 21 student. Held: The term child,' so defined, does not include unborn children, hence States receiving federal financial aid AFDC program are required offer welfare pregnant women their children. Pp. 578-586. (a) Under axiom that words used in statute be given ordinary meaning absent persuasive reasons contrary, reading definition its statutory context, it apparent Congress word 'child' refer an individual already born, existence separate mother. 580-581. (b) This conclusion also supported limited purpose substitute practice removing children homes, free widowed divorced mothers necessity working, they could remain home supervise fact provides funding prenatal postnatal health services infants, explicitly designed reduce infant maternal mortality, rather than 'maternity benefits' expectant mothers. 581-584. (c) doctrine accords weight consistent administrative interpretation apply Department Health, Education, Welfare (HEW) regulation allowing option paying on behalf where HEW says based construction but HEW's general authority make rules efficient administration Act, legislative history tends rebut claim silence acquiesced view qualify payments. 584-586. 494 F.2d 743, 8 Cir., reversed remanded. Richard C. Turner, Des Moines, Iowa, petitioners. Robert Bartels, Iowa City, respondents. Mr. Justice POWELL delivered opinion Court. 1 question presented this case whether must As comes Court, issue solely one interpretation. 2 * Respondents, residents were at time filed action. Their circumstances such would eligible upon birth. They applied assistance refused ground had no children' program. Respondents then action against petitioners, officials. On themselves similarly situated, respondents contended policy denying conflicted standard amended, 42 U.S.C. 606(a), resulted denial due process equal protection Fourteenth Amendment.1 District Court certified class granted declaratory injunctive relief. court held within them departed impermissibly eligibility. did reach respondents' constitutional claims. 362 F.Supp. 180 (SD 1973). Appeals Eight Circuit affirmed. 743 (1974). We certiorari resolve conflict among courts have considered question.2 419 823, 39, 47. conclude we reverse. II 3 402(a)(10) 602(a)(10), participation state programs conditioned State's offering all persons standards. State provide individuals meet 'needy' standards, unless excluded made optional another provision Act. New York Dept. Services v. Dublino, 413 405, 421—422, 93 2507, 2516—2517, 37 688 (1973); Carleson Remillard, 406 598, 92 1932, 32 352 (1972); Townsend Swank, 404 282, 502, 30 448 (1971); King Smith, 392 309, 88 2128, 20 1118 (1968). appears Act: 4 'The means mother, grandfather, grandmother, brother, sister, stepfather, stepmother, stepbrother, stepsister, uncle, aunt, first cousin, nephew, niece, place residence maintained more relatives own (A) eighteen, (B) twenty-one (as determined accordance standards prescribed Secretary) student regularly attending school, college, university, course vocational technical training fit him gainful employment . ..' 606(a). 5 section makes mention such. 6 contend, citing dictionary definitions,3 can enough, say, ambiguous justify construing light interpretation.4 argue both factors position case. First, further because enable safeguard through adequate nutrition. Second, over years offered matching funds payments women.5 7 Several faced read King, Townsend, Carleson, supra, establish special rule applicable provisions governing arguably included deemed clearly exhibits intent exclude coverage effect creating presumption when ambiguous. See Carver Hooker, 369 204, 210—215 (NH 1973), aff'd, 501 1244 (CA1 1974); Stuart Canary, 367 1343, 1345 (ND Ohio 1973); Green Stanton, 364 123, 125—126 Ind.1973), aff'd sub nom. Wilson Weaver, 499 155 (CA7 1974). But see Mixon Keller, 372 51, 55 (MD Fla.1974). departure principles Court's prior decisions. only once participating may deny come clear indication meant optional. method analysis define different solving any problem construction. Our includes Following Banks Chicago Grain Trimmers, 390 459, 465, 1140, 1144, (1968); Minor Mechanics Bank Alexandria, Pet. 46, 64, L.Ed. 47 (1828), 9 originally enacted 1935, needs adult taking child.' It authorized none mother.6 531, 406, 49 Stat. 629. expressly contemplated family receive greater succeeding recognizing lower per capita cost families child, 403(a), similar incremental woman supporting her 'child.' spoke 'living with' 406(a), referred residency requirements dependent child's At 402(b). These awkwardly, if all, failure strongly suggests thought providing before birth.7 10 persuasive. was conceived homes placing institutions, expressed President Roosevelt's message recommending legislation, H.R.Doc. 81, 74th Cong., 1st Sess., 29—30 (1935), committee reports Houses Congress, S.Rep. 628, 16—17 (1935); H.R.Rep. 615, (1935). Wisdom Norton, 507 750, 754—755 (CA2 Note, Eligibility Unborn Benefits: Statutory Constitutional Issues, 54 B.U.L.Rev. 945, 955—958 restricted evidenced itself limitations aid. relatives.8 list grown, 578, there still distant unrelated persons, institutions.9 11 ignore desirability care. In Title V now codified §§ 701—708 (1970 ed. Supp. III). provided mortality.10 20. selecting form women, proposals follow lead some European countries specified period after childbirth. Hearings S. 1130 Senate Committee Finance, 182, 965—971 If intended very likely done relying best highly way B 12 relied payment ask us defer agency's long-standing administers. copies letters interoffice memoranda preceded adoption 1941 predecessor, Bureau Public Assistance. papers suggest agency initially taken phrase children.11 13 A brief Solicitor General disavows contends authorizing 1302. explanation. subsection temporary aid, States, gaining losing example, accompanying authorizes pay relative days live home. 45 CFR 233.90(c)(2). current explanation deprives argument significant principle consistent, longstanding charged administration. FMB Isbrandtsen Co., 356 481, 499—500, 78 851, 862, 926 (1958); Burnet Portrait 285 1, 16, 52 275, 280, 76 587 (1932). 14 Nor convincing congressional acquiescence policy. 1972, context major passed bills revise system. One bill amended H.R. 92d Sess. (1972) Senate); 118 Cong.Rec. 33990, 33995 92—1230, pp. 108, 467 (1972). House substituted entirely new Administration's 'Family Assistance Plan.' 117 21450, 21463 (1971). report 92—231, p. 184 Both respective amendments appeared final Pub.L. 92—603, 86 1329, conferees unable agree underlying reform. All efforts amend postponed session Congress. 36813—36825, 36926 36936 F.Supp., 55. circumstances, enact relatively minor relating cannot regarded approval benefits. To extent sheds intent, former payments.12 C 15 not, perhaps challenge women. therefore occasion decide approve ancillary those F.2d, 756, 1302 fund qualifying Parks Harden, 504 861, 875—877 (CA5 1974) (Ainsworth, J., dissenting). III 16 Neither nor arguments. Rather questions here, briefed argued, remand consideration issues raised decided below. 17 Reversed 18 DOUGLAS took part decision 19 MARSHALL, dissenting. majority implicitly acknowledges, evidence available help point decisively either direction. When 1935 gave shed consider, fail pass, legislation indisputably coverage. parsed language touched effort muster benefit Even face, however, modest majority's position. lengthy cuts quite way. Although close one, I reached five six Courts issue,1 accordingly affirm judgment 22 passing reference years' duration, which them. According majority, present suggestion always treated being outside characterization position, misrepresents practice. 23 early covered time, Board Handbook Administration 'on basis same conditions children.' Pt. IV, 3412(6) (1946). inclusion classes evident terms Act.2 24 remained unchanged until 1971, placed Code Federal Regulations 233.90(c)(2)(ii). altered somewhat, that, electing pregnancy confirmed medical diagnosis. series lawsuits seeking local plans really all. 25 After decisions (1968), (1971), (1972), obvious potential beneficiaries Act's provisions, Thus, chosen stick previous require grant hand, financing even order preserve status quo, came up inventive solution ascribing 'unborn rulemaking power 1102 thus avoiding mandatory effects finding 'eligibility' 406(a). 26 ingenious late-blooming tactical switch little, my view, cancel out long Since related cases evidently extend spite somewhat skeptically assertion never 27 discounted reaction exigencies moment, policies simply thumb side scale currently favors.3 determination life administrators few passage making purposes. contemporaneous longapplied entitled great particularly repeatedly numerous times. details unsuccessful 1972 coverage, little natural inference so, form, should 28 dissent. complaint framed 1983, jurisdiction 1343(3). Hagans Lavine, 415 528, 94 1372, 39 577 cited 863 n. E.g., Webster's Third International Dictionary (1961), 'child,' 'an recently born human being: fetus, infant, baby.' This, course, many definitions use most frequent. (2d 1957) qualified quoted above adding: 'now chiefly phrases. Cf. childbirth.' candidly furnished citations dictionaries do indicate acknowledge reliance solve most, demonstrate possible ambiguity United Southern Ute Indians, 402 159, 173 8, 91 1336, 695 Studebaker Perry, 258, 269, 463, 468, 46 528 (1902); Merritt Welsh, 104 694, 702—703, 896 (1882). '(f)ederal (p)ayments respect diagnosis.' 233.90(c)(2) (ii). say allows programs. 1971 approved 34 plans, including Iowa's, 745 (CA8 1950 authorize caretaker. Aug. 28, 1950, 323, 64 551. number inapplicable Murrow Clifford, 502 1066, 1075—1076 (CA3 (Rosenn, concurring original was: sixteen authorizes, addition foster removed relatives. 608. child-welfare services, direct 'homeless, dependent, neglected 622, 625. statement several times since indicates undertaken children: 'For encouraging enabling each furnish rehabilitation far practicable State, parents whom maintain strengthen attain retain capability maximum self-support personal independence maintenance continuing 601. Judge Weinfeld's Second 755 (1974), points out, mother purchase 'of maternity statute.' Id., 27. oral petitioners' counsel objected these materials brief, noting record authenticated. Tr. Oral Arg. 43—45. suggested least proper subjects judicial notice. take dispositive, unnecessary status. adopted urged here interpreted 'belief 'and amending altered." 872. 1244, 1247 358 1147, 1155 (N.D. Ill.1973), lend existing structure create amendment drafters believed equally plausible suppose misinterpreted wanted clear. 161 (Pell, Besides below, holding Fourth, Fifth, Seventh Circuits, Doe Lukhard, 493 (CA4 861 Only opposite 750 Among 'situations scope (statutory) 'deprivation' (of care)' 'Children Living With Natural Parents,' 3412(1); Either Father Mother,' 3412(2); Unmarried 3412(5). discussing last group, regulations noted: act resource conditions.' Ibid. assigning vary according role play lawmaking process. Where open-ended 'bring law,' left 'rounding command another, smaller specialized agency,' FTC Ruberoid 343 470, 486, 72 800, 809, 96 1081 (1952) (Jackson, dissenting), shift late date, substantial weight. NLRB Weingarten, Inc., U.S., 265—266, S.Ct., 967—968; Phelps Dodge Corp. NLRB, 313 177, 193—194, 61 845, 852, 85 1271 (1941). Plainly, intend detailed oftenamended subject re-examination redefinition perceptions social changed. merely carry mandate, relevant primarily dealing intimately day-to-day basis.

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