Document: 490 U.S. 877 109 S.Ct. 2248 104 L.Ed.2d 941 Louis W. SULLIVAN, Secretary of Health and Human Services, Petitionerv.Elmer HUDSON. No. 88-616. Argued April 17, 1989. Decided June 12, Syllabus After a final decision the Services denied respondent's application for Social Security disability benefits, she brought an action judicial review in District Court under 42 U.S.C. § 405(g). The court affirmed denial, but Appeals reversed on ground that had not followed her own regulations making determination, vacated Secretary's decision, instructed to remand case reconsideration. On remand, respondent was represented by counsel proceedings before Administrative Law Judge (ALJ). Council adopted ALJ's recommended disabled pay granted motion dismiss obtained all relief prayed for. retained jurisdiction over limited purpose considering any petition attorney's fees. Respondent then filed such Equal Access Justice Act (EAJA), 28 2412(d) (1982 ed., Supp. V), position initial denial benefits "substantially justified" within meaning EAJA. disagreed reasons stated its previous reversed, concluding award fees proper held could include work done at administrative level after cause remanded Court, rejecting argument provisions 5 504(a) V) court's power those situations "in which United States is counsel." While recognizing so proceedings, found were "adversarial" because taken adversarial prior remand. Held: It federal EAJA claimant representation provided during pursuant district order remanding Secretary. Pp. 883-893. (a) An cases as present 2412(d)(1)(A), provides "prevailing party . civil agency having action, unless finds [Government's] substantially justified." Where, here, 405(g) further does necessarily dictate receipt will normally attain party" status until result known. Cf. Hanrahan v. Hampton, 446 754, 100 1987, 64 670; Texas State Teachers Assn. Garland Independent School Dist., 489 782, 1486, 103 866. Furthermore, requires fee be "within thirty days judgment," 2412(d)(1)(B), often, this case, there no "final judgment" claimant's "civil review" successful completion proceedin Moreover, continues retain "jurisdiction action" may exercise determine if legal instructions have been followed. Where are intimately tied resolution necessary attainment results Congress sought promote providing fees, they should considered part awarded. Pennsylvania Delaware Valley Citizens' Council, 478 546, 106 3088, 92 439; New York Gas Light Club, Inc. Carey, 447 54, S.Ct.2024, 723. Thus, EAJA, read light diminishing deterrent effect cost seeking permits court, discretion, services performed 883-890. (b) interrelated challenges interpretation—(1) plain excludes outside law, (2) never time spent nonadversarial 2412(d)(3), already empowers prevailing "to same extent authorized [5 504]"—are rejected. Even though benefit 504, connected with action." Section 2412(d)(3) speak to, let alone preclude, reading, since, face, provision says nothing about adjudication wholly ancillary 890-892. 839 F.2d 1453 (C.A.11, 1988), remanded. O'CONNOR, J., delivered opinion BRENNAN, MARSHALL, BLACKMUN STEVENS, JJ., joined. WHITE, dissenting opinion, REHNQUIST, C.J., SCALIA KENNEDY, joined, post, p. 893. Edwin S. Kneedler, Washington, D.C., petitioner. James E. Coleman, Jr., respondent. O'CONNOR Court. 1 issue us whether entitled Services. 2 * Elmer Hudson establishment period Act, 49 Stat. 620, amended, 401 et seq. ed. September 9, 1981. day, supplemental security income Title XVI Act. Respondent, now 50, submitted medical evidence indicating obesity, limitations movement, lower back pain. Her administratively denied, upheld reconsideration Administration. requested received hearing (ALJ), where Legal Corporation paralegal. At hearing, testified suffered from pain, depression, nervousness. state anxiety cried throughout hearing. ALJ ordered posthearing psychiatric examination Dr. Anderson, psychiatrist, representative chose undergo additional evaluation Myers, clinical psychologist. Anderson's report indicated rom mild moderate dysthymic disorder histrionic personality disorder. He concluded psychological condition would interfere ability domestic area, most past experience lay. Myers moderately severely depressed, insomnia, fatigue, psychomotor retardation, tearfulness, anxiety. problems, coupled physical disabilities rendered unemployable absent exhaustive rehabilitative efforts. 3 Based these two reports, finding capable performing similar past. approved thus becoming concerning applications. Northern Alabama denying benefits. supported substantial App. Pet. Cert. 43a-44a. Eleventh Circuit reversed. Heckler, 755 781 (1985). agreed "the did follow regulations" determination case. Id., 785. required consider cumulative impairments even individual ailment isolation disabling. Ibid. In combined afflictions. Nor given rejection Myers' effects conditions. 785-786. 4 Following Court's order, earlier request returned proceedings. 30a. provide opportunity testify adduce evidence. 31a. also might wish obtain adviser evaluate impairment issue. Finally, apply revised determining due mental disorders, published 1985 statutory directive. May 15, 1981, originally maintained applications who Appeals. October 22, 1986, Administration 21a-23a. December 11, motion, dismissed review, complaint. instant ustice Pub.L. 96-481, 94 2328, V). toto, 17a-20a. again (CA11 1988). noted it violated failing ailments, failed give testimony ailments. 1457-1458. defense "on grounds 1458. Having went rejected §§ 504(a)(1) 504(b)(1)(C) or otherwise. ." critical has staked out position." F.2d, 1460. Since less agency, therefore encompassing proper. 6 Because Appeals' granting conflicts decisions other Courts Appeals, see, e.g., Cornella Schweiker, 728 978, 988-989 (C.A.8, 1984), we certiorari. Sub nom. Bowen Hudson, 488 980, 527, 102 559 (1988). II 7 1980, passed response concern persons "may deterred of, defending against, unreasonable governmental expense involved securing vindication their rights." 2325. As Senate Report put it: 8 "For many citizens, costs rights inability recover attorney preclude resort adjudicatory process. When contesting Government example, exceeds amount stake, realistic choice effective remedy. cases, more practical endure injustice than contest it." S.Rep. 96-253, (1979). 9 designed rectify situation reasonable "adversary adjudication" proceeding "was "special circumstances make unjust." That portion applicable actions" provides, relevant 10 "[e]xcept otherwise specifically statute, shall expenses incurred including aga nst justified special 2412(d)(1)(A) 11 Application here brief consideration structure Once claim processed administratively, available 205(g) 405(g), pertinent part: 12 "Any individual, made he party, action. enter, upon pleadings transcript record, judgment affirming, modifying, reversing Secretary, without rehearing. may, good shown files his answer, only showing new material failure incorporate into record proceeding; shall, remanded, ordered, modify affirm findings fact both, file modified modifying affirming based." 13 go, somewhat unusual. detailed transfer courts filing subsequent suggest degree direct interaction between alien traditional Procedure one source puts 14 "The places courts, accustomed role external overseers process, sure stays bounds, virtually coparticipants exercising ground-level discretion exercised ALJs when act reopen basis evidence." J. Mashaw, C. Goetz, F. Goodman, Schwartz, P. Verkuil, & M. Carrow, Hearings 133 (1978). 15 committed factual error evaluating particular claim, often scope adduced, issues addressed. See, Cooper Bowen, 815 557, 561 (C.A.9, 1987). Often, complex involved, classification alleged guidelines "grids" used disability. Cole 820 768, 772-773 (C.A.6, Deviation itself error, subject reversal review. Hooper 752 83, 88 (C.A.4, 1985); Mefford Gardner, 383 748, 758-759 1967). situations, pending court. See Ahghazali Heal h 867 921, 927 1989) (remanding agency); Taylor 778 674, 677, n. 1985) ("[T]he retains concluded"); accord, Brown 747 878, 883-885 (C.A.3, 1984). assure mandate effectuated. Ford Motor Co. NLRB, 305 364, 373, 59 301, 307, 83 L.Ed. 221 (1939). 16 Two points important emerge mechanisms determinations First, one, intents purposes identical addressed 670 (1980). There directed verdict defendants appeal render plaintiffs parties" interim 1988. We "procedural evidentiary rulings" themselves "matters 'prevail' shifting opposing 1988." 759, S.Ct., 1990. More recently 866 (1989), plaintiff must achieve some bringing 791-793, 1494. think clear principles not, general matter, merely Hewitt Helms, 482 755, 760, 107 2672, 2675-2676, 96 654 (1987). Indeed, vast majority come conclusion. Paulson 836 1249, 1252 1988); Swedberg 804 432, 434 1986); supra, 880-881. 17 Second, 2412(d)(1)(B) complete. Guthrie 718 104, 1983) procedure set forth contemplates both following remand"). concedes "retains remand." Brief Petitioner 16, 16-17. 18 completely dependent det rmine Our interpreting fee-shifting parcel 19 439 (1986), agencies consent decree entered Clean Air compensable statute. 304(d) conjunction "any to" certain 7604(d). Valley, contention word "action" narrowly exclude plausibly characterized "nonjudicial." 20 "[a]lthough true [at issue] 'judicial' sense occur courtroom involve 'traditional' witnesses selection jurors trial, phases adequate client secured Valley's success obtaining decree." U.S., 558, 3094. 21 Similarly, 2024, 723 (1980), VII Civil Rights 1964, 2000e-5(k), enforcement words authorizing court" "[i]n title," 60-61, 2029-30. Looking entire VII, observed mandated local remedies, "Congress viewed Employment Opportunity Commission supplements remedies employment discrimination." 65, 2031. Given interlocking system avenues relief, exclusion clearly clash congressional design behind scheme whose promote. Webb Dyer County Board Education, 471 234, 243, 105 1923, 1928, 85 233 (1985) (work "both useful type ordinarily advance litigation" North Carolina Dept. Transportation Crest Street Community Inc., 479 6, 336, 341, 93 188 (1986). 22 persuasive Carey controlling here. "crucial [respondent's] 561, 3096. No conclusion ensure compliance ministrative themselves, prepare verify compliance. addition, endeavor interpret statute effectuate. "mandatory" nature close relation law find difficult ascribe intent throw lifeline knew foot short. incentive create attorneys abandon claimants runs directly counter long established ethical canons profession. American Bar Association, Model Rules Professional Conduct, Rule 1.16, pp. 53-55 (1984). anomalous result, frustration very itself, cannot lightly assumed intended it. SeeChristiansburg Garment EEOC, 412, 418-419, 98 694, 698-99, 54 648 contemplate ongoing part, allows diminish action," 2325, see Pierce Underwood, 487 552, 563-568, 108 2541, 2549-2552, 101 (1988), conclude effectuation ultimate rights, 3096; Webb, 1928. 23 mounts interpretation 2412(d)(1)(A). contentions force, neither rises oust what manifest purpose. argues term law. 12-13; Reply 8-9. Of course, language evinced reach end matter. support proposition, " '[t]erm [action] usual means suit court; formal complaint law.' 13, 7, quoting Black's Dictionary 26 (5th 1979). notes authorize awards "conducts adversary adjudication," defined "an otherwise." Under empowered prevails ]." concludes since designates nonadversarial, explici ly satisfy requirements 504(a)(1), principle expressio unius est exclusio alterius applies, 12-18; 7-12. 24 agree either initially Richardson Perales, 402 389, 403, 91 1420, 1428, 842 (1971). "counsel otherwise," context. Nonetheless, disagree draw fact. indicate, award. This particularly context "a [has been] court," law" remains depends outcome submission negative implication can drawn based agency. awarding subsection 504(a)(1). carved world adjudications" reading includes 25 orders litigation continuing entitlement integral consistent opinion. ordered. 27 whom THE CHIEF JUSTICE, SCALIA, KENNEDY join, dissenting. 1985, reenacted 99 183, parties prevail against unjust. Fees awarded "incurred connection conducted refused extend Administration, leaving supporters extension fight fought another day." 131 Cong.Rec. 20350 (remarks Sen. Heflin). today ards partial victory side stepped legislative ring. TKO ignores well history, I dissent. 29 correctly rejects reasoning once took arguing became concludes, flatly contrary defines "position Proceedings do requirement, recognizes. Ante, 891. 30 Instead, looks dealing actions," "[s]ince 'any action' Administration." 890. construing 2412, however, 504—in effort desires, construing. 31 terms, recovery section ., (Emphasis added.) 26, 222 ed.1979); Fed.Rules Civ.Proc. 2, 3, foreclosed itself—the jurisdiction." Clearly, 451 (defining "court States"), 2412 32 Other reinforces "judicial perfectly distinguishing agencies, contains authorization "agency regardless how essential recovery. makes liability depend taking justified. But take (such adversarial, agrees), majority's non sequitur. 33 governs agencies; indeed, careful place Code, procedures while placing 28, courts. lack confirmation holds, adjudications, nonadversary Applying maxim construction alterius, express adjudications indicates Congress' adjudications. TVA Hill, 437 153, 188, 2279, 2298, 57 117 34 dismissal arguments misses mark. takes resolution. 892. mere retention transform ultimately All surely enough characterize 35 regard, reliance ante, 880-890, misplaced. interpreted 7604(d), "court" issuing 304(a) allowing enforcing applied expressly limit history equated "proceeding," suggesting broader term, certainly reject gave infra, 897-899. construed Bd. (construing 341-342, (1986) (same), cited majority. short, otherwise, recognized. 1453, 1459 36 coverage 'adversary adjudications' 'civil ' course does. Maxims tell expresses ways. "carved [agency] actions,' excluding meant covered fancy footwork. 37 plainly unambiguously somehow seen ambiguous, unmistakably intend 38 Little need said straightforward. reenacting extended early version 1984 bill "hearings 205 1631 Act." 98-586, House, 130 24828-24829 (1984) Rep. Morrison), included Congress, id., 29280 Heflin), vetoed President. signed likewise contain language. Senator Heflin, active supporter extending acknowledged "institutional opposition." stated: "While believe area ripe protection, political realities And seems 39 suggestion elsewhere To contrary, House reenactment states recovered precisely facing reads follows: 40 usually decline yet applicant 'prevailing party' eligible [T]he 'final judgment,' nor enter HHS starts running. activities undertaken associated proceeding." H.R.Rep. 99-120, pt. 1, 19-20 (1985), U.S.Code Cong. Admin.News 132, 148 (emphasis added). 41 discussion asserts, refer affirms plain: duty statutes enacted ourselves overcome "political realities" tha blocked legislation. However desirable matter policy able enacted. Therefore,

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