Opinion for the Court filed by Circuit Judge HARRY T. EDWARDS.
Concurring opinion filed by Circuit Judge D.H. GINSBURG.
HARRY T. EDWARDS, Circuit Judge:
The Urban Development Action Grant ("UDAG") program authorizes the Secretary of the Department of Housing and Urban Development ("HUD" or "the agency") to make grants to cities and urban counties experiencing "severe economic distress." 42 U.S.C. § 5318(a) (1988). In 1983, appellant City of Kansas...
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