Document: 441 U.S. 39 99 S.Ct. 1572 60 L.Ed.2d 28 Genanett ALEXANDER et al., Petitioners,v.UNITED STATES DEPARTMENT OF HOUSING AND URBAN DEVELOPMENT al. Patricia Roberts HARRIS, Secretary of Housing and Urban Development, Petitioners, v. Sadie E. COLE Nos. 77-874, 77-1463. Argued Dec. 5, 1978. Decided April 17, 1979. Syllabus The Uniform Relocation Assistance Real Property Acquisition Policies Act 1970 (Relocation Act) makes relocation benefits available for individuals businesses that satisfy the statutory definition a "displaced person." Section 101(6) defines term to include "any person who . moves as result acquisition real property or written order acquiring agency vacate property, program project undertaken by Federal agency." Both these cases involve tenants displaced from housing projects Department Development (HUD) acquired because projects' sponsors defaulted on federally insured loans. Petitioners in No. 77-874 were dislocated HUD's subsequent closing an Indianapolis, Ind., project, HUD refused provide tenants. then initiated this action District Court, claiming they persons" under clause § 101(6). Court rejected tenants' construction granted summary judgment HUD. Appeals affirmed, holding encompasses only displacements programs designed benefit public whole fulfill need, not dislocations caused irretrievable failure project. Respondents 77-1463 when determined Washington, D.C., should be demolished land sold private developers. When ordered but declined extend assistance Act, respondents brought suit Court. court agreed covered 101(6), respondents. all persons so agency's can devoted federal "designed whole." Because demolition plans met description, directed move considered persons." Held : 1. those connection with actual proposed program. Pp. 49-63. (a) language origins demonstrate Congress intended is programs, beyond limited context somehow Government programs. 49-53. (b) Similarly, legislative history reveals no congressional intent context. Rather, was ensure distinct group contemplated acquisition, whether ultimately acquires not. Thus, applies directly causes issuance notice further 53-59. (c) structure well provisions specifying persons, manifests scope clause. 60-62. (d) In essence, embodies two causal requirements. First, must acquisition. Second, more fundamentally, "for," further, combination, requirements substantially limit applicability clause, cannot obtain unless also at time use such developed after procures will suffice, even though it necessitates displacements, since could have motivated 62-63. 2. Here, relationship between acquisitions orders does bring within purview 63-67. Act's demonstrates mere anticipation authorization default National mortgage insurance render eligible By requiring "for" accomplish whole. Even assuming constitute "programs projects," arising out do 101(6)'s causality Although occur programs' failures, purpose particular 64-65. addition, adoption management plan retroactively establish requisite first instance. P. 65. type which refers, did acquire purpose. statute requires than reason property. Without proposal disposing different any other plan, insufficient itself confer eligibility 65-66. 555 F.2d 166, affirmed; 77-1463, 187 U.S.App.D.C. 156, 571 590, reversed. John Vanderstar, D. C., petitioners William C. Bryson, Mr. Justice MARSHALL delivered opinion 1 These require us interpret person" set forth Act), 84 Stat. 1894, 42 U.S.C. 4601 seq. 2 ." 4601(6).1 3 are either "acquisition" "written order" definition. Courts Seventh Columbia Circuits adopted conflicting interpretations we certiorari.2 437 903, 98 3087, 57 1132 (1978). 4 We determine required projects, governmental 5 * A. 6 17 former Riverhouse Tower Apartments, low- middle-income Indiana. This complex built late 1960's nonprofit corporation, Inc., whose subsidized pursuant 221(d)(3) 75 150, amended, 12 1715l (d)(3). Upon completion Mortgage Association (GNMA) purchased lender accordance Act. loan July 1970, GNMA assigned exchange payment benefits. Three years later, foreclosure proceedings, court-appointed receiver assumed operation until sale August 1974. 7 initially retained agent continue operating newly However, condition had deteriorated seriously during period soon decided close apartment complex. Notices quit served remaining November 1974, following February, buildings vacant. disclose its regarding terminated project.3 8 claiming, inter alia, entitled Act.4 Construing literally, argued moved upon receiving agency. Blades Dept. HUD, Civ. IP 74-706-C (SD 1, 1976). Circuit affirmed. view, 169-170 (1977).5 B 9 formerly occupied Sky 1950's. A corporation intending convert number small "garden" apartments into larger units moderate-income families. assist rehabilitation insuring corporation's subsidizing interest payments, 236 82 498 (1968), 1715z-1. Difficulties successive general contractors eventually prevented corporate sponsor making payments loan. As result, mortgagee declared default, foreclosed mortgage, conveyed title See §§ 1713(g), (k). 10 After June 1973, hired partially rehabilitated September however, realized Tower's would efforts futile. therefore planned demolish sell developers single-family homes. 72 families living vacate, Act.6 11 challenging decision raze refusal full preliminarily enjoined completing demolition, subsequently issue. 396 F.Supp. 1235 (D.C.1975).7 divided panel 161, 595 (1977). ruling, argument reaches purposeful certain types government instead applicable whenever " 'designed whole.' U.S.App.D.C., F.2d, 595. court's description. Ibid.8 II previously indicated, provides one "as 4601(6). neither case claim coverage procurement Brief p. 15, n. 17; Tr. Oral Arg. 10. Hence, turns meaning definition's More precisely, their depends import critical phrases specifically defined "acquiring agency" "for project." 13 contend simply denotes body has vacate. contrast, reads phrase shorthand description currently engaged process Under construction, contains implicit requirement. thus construed apply displacing order, whereas interpretation demands immediate 14 parties disagree about proper referent phrase, project."9 contends modifies requirement included Consequently, project" specifies original just issuing if issues owner's later adopts necessitating displacement. 15 tenants, hand, read referring solely order. identifies ordering make depend According analysis, covers individual receives acquired, provided displacement Moreover, broadly construe "program need. 16 susceptible construction. examination Congress' adopting persuades nearly reflects Passage concluded decade effort standardize legislation assistance. Prior 1960's, enacted special agencies designated projects.10 varied House Public Works Committee responded variations 1961 creating Select Subcommittee Acquisition. 1964, submitted lengthy Report concerning deficiencies existing law "Fair Compensation Act" became basis most codified Act.11 18 Fair unambiguously revising legislation. afford "persons affected assisted fair equitable treatment uniform practicable." Study 147 (emphasis added); see id., 1-2, 122. statement policy embodied recognition projects.12 And accord mandate, drafted replacement improve context.13 both better programs.14 19 basic objective remained unchanged through succeeding sessions bills derived During period, Senate Operations altered slightly used declare purpose, unaffected.15 "Declaration Policy" S. 91st Cong., 1st Sess., 201 (1969), bill finally stated 20 "to owners, end shall suffer disproportionate injuries (Emphasis added.) 21 leaves little doubt concern still project.16 22 arguing broader outside context, rely Representatives passed reorganized shortened bill's final form, streamlined deleting references refers programs,"17 suggest beneficiaries statute. plainly inconsistent prior versions section, expressly related specified 201.18 Nothing materials suggests revision reflected substantive departure previous design.19 Indeed, Declaration Policy "provides relief economic dislocation occurs programs." H.R.Rep.No.91-1656, (1970), U.S.Code Cong. & Admin.News pp. 5850, 5852. Accordingly, consistent underlying proposes 23 reinforces our conclusion. encompassed acquisitions, particular, projects. added definition, delineate precisely subcategory originally consisting necessitate Viewed addresses situation unconsummated loosely connected 24 originated 115 imminence part, State 157-158. That choice deliberate seen authorized "head use."20 25 version introduced next same person.21 witnesses hearings criticized "or acquisition" too ambiguous guidance potential displacees.22 response, amended reasonable expectation acquisition," thereby incorporating standard eligibility.23 amendment, apparent Committee's explanation change 26 remove some ambiguities surrounding 'imminence' amply clear shortly announced, announcement made put effect." S.Rep.No.1378, 89th 2d (1966). 27 passage others Report24 clearly indicate framed reach restricted focusing exclusively projects.25 Senate's sessions, including 105 (1969).26 minor amendments without significant debate.27 But reorganizing form.28 amendment base 29 contemporaneous materials, refute bills, "reasonable overly vague.29 To remedy problem, representatives United States Transportation recommended relating readily discernible official act, justifiably relied representations reimbursement failed complete acquisition.30 accepted suggestion replaced property."31 sole present planned, unconsummated, 30 floor debate reflect Based understood testimony given hearings,32 aware unamended excluded means presumably articulated eliminate program.33 Instead, explained new "[i]f difference actually acquired." 5853 added).34 observed reference entire person, "[t]he controlling point financially Ibid.; 5853.35 31 Nor there evidence perceived expansion changes conference almost debate. 116 Cong.Rec. 40163-40172 (1970). deliberations appeared memorandum behalf administration, stated: 32 "The status of, includes acquisition." Id., Rec. 42139. 33 slight limitation, rather design, dispute approved section Ibid. 34 sum, merely ensures preserves C 35 confirms conclusion expect involved here part comprehensive establishes procedures follow 4651-4655. placement concerned burdens opposed range problems. importantly, sections, specify manifest 36 Sections 202 205 respectively moving expenses paid advisory services supra. begins: 37 "Whenever head application 1895, 4622. 38 Identical triggers 205. 1897, 4625. If broad correct, qualify lack preclude them Absent indication anomalous believe three similar scope.36 203 204 authorize homeowners supra, bear sections dwelling prescribed length "prior initiation negotiations property." 4623(a)(1).37 occupancy exclude otherwise might attempt substantial onto begun.38 Yet according analysis procured distant past, strictures much class necessary objective. For example, obtained earlier lived prevent obtaining 204. Again, operate manner. divorced distorting design. 40 Finally, provision 217 highlights preserve pre-existing extending context.39 provides: 41 "A direct financial I 1949, carrying city demonstration Demonstration Cities Metropolitan 1966 deemed been 1902, 4637 added). Inclusion provision, benefits, understanding 101(6).40 D 43 hold acquisition.41 acquisition.42 It remains considered, brings III 44 Apartments support contention, explicit occasional resulting 207(k) authorizes purchase properties sales, 207(l ) grants wide latitude rehabilitate transfer recoup investment. 1713(k), (l ). Pursuant prepared Disposition Handbook—Multi-family Properties, RHM 4315.1 (1971), revised CFR Pt. 290 (1978), responsible officials formulate disposition properties. 45 discussed Part II, whole.43 projects,"44 predictable, unfortunate programs.45 satisfied tangentially then, loans homes displacements. circumstances, typical reasons, preparation Handbook governing manner fails Like purchaser, manage acquires. 46 Alternatively, Tower, Handbook, qualified studying several options, build homes, government's master improving neighborhood. own admission proceedings before "eliminate blight" conformity revitalize area. 1235, 1236 (DC 1975). events convinced 47 difficulty program, necessary. never contended blight nor 48 recognize, course, appears irrelevant From tenant's perspective, costs regardless anticipated causing Nonetheless, chose function rewrite increasing may prompt expand coverage.46 so, ineligible 49 reversed 50 ordered. entirety: 'displaced person' who, effective date his personal agency, assistance; purposes 202(a) title, conducts business farm operation, 101(5) "person" mean individual, partnership, association." 4601(5). governs expenses, losses discontinuing incurred searching farm. lieu fixed sum $300 expense allowance $200 allowance. 4622; 42.65-42.80 (1978); infra, 60. permit up $15,000 $4,000 need satisfied. 1896, 4623, 4624; 42.90, 42.95 61. Finally persons. 4625; 42.100-42.125 166 (CA7 1977); 590 Blount Harris, 593 336 (CA8 1979); Burns States, 4-76-237 (D.C.Minn., 11, 1978). generally Harris Lynn, 1357, 1359-1360 (CA8), (aff'g 411 692 (E.D.Mo. 1976)), cert. denied, 434 927, 410, 54 286 (1977); Caramico Secretary, 509 694, 697-699 (CA2 1974). now party contracted 1977 Towers consummated. 37-38 (letter Office General Counsel, Richard L. Zweig). sought judicial review Administrative Procedure 701 seq., Jurisdiction predicated 1337, 1346. addition claims, alleged complaint applied security deposits offset rent deficiencies. breached implied warranty habitability relevant relieving obligation pay rent. Deciding issue law, held leases. 170-171. challenged aspect Appeals' decision, consider minimal emergency "under authority Act," 30. preliminary injunction barred evictions, buildings, allowed evicted return Department's expense. Cole 389 (D.C.1975); Hills, (D.C.1975). While pending appeal Fed.Rule Civ.Proc. 54(b), remand reconsider Tower. On remand, abandoned arranged ownership government, continuing subsidies. 160 594 17. certiorari cases, Community Amendments 1978, Pub.L. 95-557, 92 2080. directs re-examine 203, 2088, 1701z-11 (1976 ed., Supp. II); 902, 2125, owned receive provisions, 203(d). affect H.R.Conf.Rep.No.95-1792, 67-71, 99-100 6539. entirety, assistance." Lower courts interpreted latter projects" state local governments, parties. Moorer 561 175 1977), 436 919, 2266, 56 760 Dawson U. 428 328 (N.D.Ga.1976); Parlane Sportswear Co. Weinberger, 381 410 (Mass.1974), aff'd, 513 835, 837 (CA1), 423 925, 96 269, 252 (1975). what cover, 63-67, undertake claimed 4627-4633, 4635. See, e. g., Tennessee Valley Authority 1933, ch. 32, 58, 1080; Authorize Certain Construction Military Naval Installations, 82-155, 501(b), 65 364; May 29, 1958, 85-433, 152, 1231 (1964 ed.), repealed uncodified 220(a)(1) 1903. Works, Persons Affected Federally Assisted Programs, 88th 145-167 (Comm.Print 1965) (hereinafter Study). 93-104, 194-207. exception pattern contained 310 78 788, 1465 (1970 220(a)(5) extended urban renewal areas code enforcement activities voluntary plan. treated rule successor bills. 61-62, nn. 20, 40. 53, 20. legislated against background support, 123 1954, 68 596, 599-600, 1715k, 1715l, facilitated yet sense statute, encourage development action. 599. tangential goal among 159. 1201, (1965); 1681, (1966); 698, 90th 801 (1967) (as introduced); (1968) reported Committee); S.Rep.No.1456, (1968). enact due over inability Houses sessions. S.Rep.No.91-488, 4-7 (1969); 40168 (1970) (Rep. Fallon). legislation, 10, discussion floor. 31370-31376, 31533-31535 (1969). declares: 4621. H.R.Rep.No.91-1656 (1970); (House debate); 42139 (Senate acceptance modifications); 42506-42507 (final approval). 107 108 151-152. operative 113 1964 few situations involving acquisitions. 12, repealed. improvements plan" person[s]." 157. intentionally 8, 32-33 808 (1967); (1968); 232 40, infra. 4637. 61-62. 12(2) 115(2) (1965). Hearings 1201 1681 Intergovernmental Relations Operations, 55, 90 11(b) (July 1966). substituted "displaced," successors employed impose 11(m); 31, (1966) ("The programs"). 9, 10-11, 26, 30; 112 16733, 16735, 16737-16740 Committee). S.Rep.No.91-488 H.R.Rep. 91-1656, 4-5 (Dec. 2, 1970). Land Acquisitions Policies—1970: H.R. 14898, 14899, Related Bills 137, 281, 416, 595-596, 1028 (1969-1970) Hearings). Some suggested adding "subsequent person. Hearings, 281-282, 416. precluded awarding consummate matter how been. based Sess. companion proposal, turn Highway Federal-Aid 1968, 30, 830, 220(a)(10) Transportation's representative testified: "We think limitation [on acquisition] desirable. act authorities condemnation." 596. agreed, recommending that: "Relocation speculation take favor limiting [who move] threatens 1027-1028. referred agencies' regulations, occurrence "official act" 1007, 1069. 1970), consolidated 1's subcategories along "displaced." consolidation pertinent raised here. Several remarked 234, 241, 252-253, 270, 350-351, 360. Many comments toward contain availability rectify omission 270. Other cover absence All witnesses, define additional needed extensions. principle especially here, advocated adjustments coverage. One urged while another requested accept strongly indicates vagueness inherent fact serve already empowered "order" attributes significance word "order." shown quoted text, "notice vacate." origin, issued completed. Members proposals evident specific characterizations brief 40167 Edmondson); 40169 Cleveland); 40170 Johnson); 40171 Brotzman); 40171-40172 Annunzio). 42506 42507 Hall). properly compelled history. "the [their] displacement," 205, completes plans. "such dwelling" 4624. length-of-prior-occupancy 180 days 4623(a)(1), 10-12 8-12 5869 (This "makes persons"); not, anticipate focused eventual right mode procurement. explaining Post frequent practice using options leasebacks purchasing facilities, "It postal facility method facility, site holds fee Since product same, serves regarded building, legislation." 5854. This, inapplicable expecting displace primarily disputed voluntarily involuntary ever focus voluntariness oversimplifies intends extent probative overall procuring Reports elaborated language, improvement constructed funds Government." accord, 110 (1969) facilitate "realization feasible decent home suitable environment every American family." 1441, 1441a; 1701t. Distressed HUD-Subsidized Multifamily Projects Banking, Housing, Affairs, 95th 134-135, 250-253 (1977) (statement Lawrence B. Simons, Assistant HUD).

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