ÿWPCK  îì›g!üS‹í½)£XŽ£ðR2Õ‰(âª^¥S¹ë’Œjráïñ~èÈ7ÄâCE&y‹XeÎQØ?Ê8U¨ýDò£ðÅ‹ t!Jé?†YP«Å|/ ¿È,⥖š™úëä*MÂ?ðˆ¯ãê‚(µ•ÆËž´ÄŸÄëgð{Ô²Ò_¦B÷Db4ƒ""©Ú¨ã“ÿC‚ˆÂòZ¢˜ÓL¨I ÐÞ&5¢@‚”+<ö?ù\ú'ïµxÇÈÙá’aVÔÖåÆŸ¾]»òoÉU:ñ4*N¹|c ©R!æ­kd¨Qâ_:iA,úß”Ñlwâ™[Ã_}%KyÀŸMÂÉfcž§ÂV û‘áo`(oà ^lV]¦QÇš䉸snY~o´Ý!Q ë\ˆ@—Ãòhá;Dñõ^t] ̧¾qʧ»¿*tI@Œˆ’.‘k ñK†ŒAÅ¥Ã"9ëà9Ua…<³‚é$³“·q&—×СèÁCv[öë×GëCGØN,{EUü]ÒÝìQæƒ{Ï@«ä#âù£QSüÏEñ,ö8Ôbɪs³/¦r"|ì=E®ë5‡î/¨V§Û{T¼l®ŠäíJ¸Q÷C]OfÈ kEvç^# $UN/ %} 0„ƒ ‚ ‘ w@— 4× ë ë ë ë ú     0È" " 0Dê ê ê ê ê ê ê ê ê ê ê ê ê ê ê ê ê ê ê ê ê ê ê ê ê ê ê ê ê ê ê ê ê ê ê ê ê ê ê ê ê ê ê ê ê ê ê ê ê ê ê ê ê ê ê ê ê ê ê ê ê ê ê ê ê ê ê ê ê ê ê ê B. ˜HP LaserJet 5PHPPCL5MS,ð,,,,,ð0nLFÎ(@øÐ Z ‹6Times New Roman RegularX(\hÿ$¡¡Ó  ÓÑ7€škXXdæXXdæ7ÑÑ  ÑÑ  Ñ Ï  ' CUFFEE0CUFFEE .   H ÊÊ E  E  DÊš¤A)š¤A) 3|xÈ¿È¿ Ñ H ÑÈ(x(3 $¤¤Ý ƒhÿ!ÝÓ  ÓÑ7€XXdìdì7ÑÑ  ÑÑ  ÑÝ  Ýà  àòòÚ  Ú0Ú  Úóó(#Ã$òòÚ  Ú0Ú  Úóó dÝ ƒhÿ!ÝÓ  ÓÑ7€XXdìdÈ7ÑÑ  ÑÑ  ÑÝ  Ýò òÑ€?TÑÓ=€XÐXdÐd=Óà@ûûìàUNITED€STATES€COURT€OF€APPEALS€FOR€VETERANS€CLAIMSó óˆÐ ° ÐÌÌòòÓ  ÓNos.€98„2219€and€99„1164Ð tÄ ÐÌKeith€D.€Snyder,€Appellant/Petitioner,ÌÌv.à @ àÌÌHershel€W.€Gober,ÌActing€Secretary€of€Veterans€Affairs,€Appellee/Respondent.ÌÌÓH4°X°` ¸ hÀpÈ xÐ (#°œXHÓPatrick€D.€McCreary,€Intervenor.ÌóóÓ*ÓÌÌà@g g ìàOn€Appeal€from€the€Board€of€Veterans'€AppealsˆÌÌÓ  ÓOn€Petition€for€Extraordinary€Relief€ÌÓªÓÌÓ  Ó(Decided€ññOctoñññ ñññpñññ ññ ñbñ ññ ñññboeñññ ññ ñerñ ññ ñ€€6,€2000ñ ñññ€€€€€€€€€€€€€€€€€€€€€€€€€€€ññññÔ% € Ôññ€€€)ÌÓíÓÌÌÌà  àòòKenneth€M.€Carpenteróó,€of€Topeka,€Kansas,€was€on€the€pleadings€for€the€appellant/petitioner.Ð ä4 Ðà  àÌà  àòòLeigh€A.€Bradleyóó,€General€Counsel;€òòRon€Garvinóó,€Assistant€General€Counsel;€òòMichael€A.Ð ¼  ÐLeonardóó,€Deputy€Assistant€General€Counsel;€and€òòEdward€v.Cassidy,€Jr.óó,€all€of€Washington,€D.C.,Ð ¨ø Ðwere€on€the€pleadings€for€the€appellee/respondent.ÌÌà  àòòPatrick€D.€McCrearyóó,€òòpro€seóó.Ð l¼ ÐÌà  àBefore€KRAMER,€STEINBERG,€and€GREENE,€òòJudgesóó.Ð D!” ÐÌÓ€Óà  àSTEINBERG,€òòJudgeóó:€Before€the€Court€are€two€cases€now€consolidated:€(1)An€appeal€of€aÐ #l! ÐNovember25,€1998,€Board€of€Veterans'€Appeals€(BVA€or€Board)€decision€that€(A)denied€eligibilityÏfor€direct€payment€of€attorney€fees€to€attorney€Keith€D.€Snyder€(the€attorney)€by€the€Secretary€fromÏpast„due€benefits€awarded€to€his€client,€veteran€Patrick€D.€McCreary,€as€to€the€veteran's€successfulÏclaim€for€Department€of€Veterans€Affairs€(VA)€service€connection€for€a€neuropsychiatric€disorderÏand€(B)reduced€to€$0,€as€unreasonable,€attorney€fees,€called€for€in€the€fee€agreement€forÏrepresentation€before€VA,€as€to€the€restoration€of€a€40%€rating€for€a€low„back€disorder€and€for€aÏrating€for€total€disability€based€on€individual€unemployability€(TDIU)€(Record€(R.)€at€3);€and€(2)aÐ Ê,(/Ý Ðpetition€(as€amended)€for€extraordinary€relief€in€the€nature€of€mandamus€for€the€Court€to€order€directÏpayment€by€the€Secretary€of€attorney€fees€from€past„due€benefits€awarded€to€the€veteran€forÏrepresentation€carried€out€before€this€Court.€€Also€before€the€Court€in€the€appeal€case€is€theÏSecretary's€motion€seeking€Court€review€of€the€fee€agreement€for€the€attorney's€representation€beforeÏthe€Court€in€connection€with€òòMcCreary€v.Derwinskióó,€1Vet.App.€618€(1991)€(table).€€For€theÐ »  Ðfollowing€reasons,€the€Court€will€vacate€the€BVA€decision,€deny€the€petition,€and€deny€theÏSecretary's€motion.ÌÌà@‚‚$ìàò òI.€Backgroundó óˆÐ o  Ðà  àIn€ñõñJune€ñõññõñJuneñõññõñ198ñõññõñ€198ñõñ9,€the€veteran€filed€a€claim€for€a€rating€above€40%€for€a€service„connectedÏlumbosacral€strain.€€òòSeeóóñõñ€R.€atñõññõñ€R.atñõñ€27.€€In€ñõñDecember€ñõññõñDecemberñõññõñ198ñõññõñ€198ñõñ9,€the€Cleveland,€Ohio,€VA€Regional€Office€(RO)Ð Ñ!  Ðdenied€that€claim€and€reduced€the€veteran's€rating€to€20%,€effective€in€ñõñMarch€ñõññõñMarchñõññõñ199ñõññõñ€199ñõñ0;€that€decision€wasÏbased€on€a€ñõñMay€ñõññõñMayñõññõñ198ñõññõñ€198ñõñ9€VA€medical€center€(VAMC)€treatment€report€and€a€ñõñNovember€ñõññõñNovemberñõññõñ198ñõññõñ€198ñõñ9€VAMCÏexamination€report€that€reported€that€the€veteran€had€quit€several€jobs€because€of€his€back€pain.€ñõñ€R.Ïatñõññõñ€R.atñõñÏ18„19.€€In€ñõñJanuary€ñõññõñJanuaryñõññõñ199ñõññõñ€199ñõñ0,€the€veteran€filed€a€Notice€of€Disagreement€(also€signed€by€his€mother)€asÏto€that€decision€and€stated,€inter€alia,€that€"his€nerves€[were]€very€bad€because€of€the€pain€he€is€in".€ñõñÏR.€atñõññõñÏR.atñõñ€21„22.€€A€ñõñFebruary€ñõññõñFebruaryñõññõñ199ñõññõñ€199ñõñ0€Statement€of€the€Case€(SOC)€listed€as€evidence,€inter€alia,€the€ñõñMayÏñõññõñMayñõññõñ198ñõññõñÏ198ñõñ9€VAMC€report€that€had€noted€that€the€veteran€had€"not€worked€since€1985".€ñõñ€R.€atñõññõñ€R.atñõñ€27.€€In€hisÏñõñMarch€ñõññõñMarchñõññõñ199ñõññõñ€199ñõñ0€Substantive€Appeal€to€the€Board€(also€signed€by€his€mother),€the€veteran€stated€that€hisÏback€condition€kept€him€from€"holding€down€a€job"€and€that€his€nervous€condition,€for€which€he€hadÏbeen€prescribed€medication,€was€caused€by€his€back€pain.€ñõñ€R.€atñõññõñ€R.atñõñ€31.Ìà  àIn€a€December28,€1990,€BVA€decision,€the€Board€denied€a€claim€for€an€increased€ratingÏabove€20%€for€a€lumbosacral€strain.€ñõñ€R.€atñõññõñ€R.atñõñ€41.€€The€Court€notes€that€the€BVA€decision€was€actuallyÏprecipitated€by€a€claim€for€a€rating€increase€(above€40%)€and€involved€an€appeal€of€a€ratingÏreduction€(from€40%€to€20%)€that€had€been€imposed€by€the€ñõñDecember€ñõññõñDecemberñõññõñ198ñõññõñ€198ñõñ9€RO€decision€(R.€at€18„¼19).€€òòCf.óó€òòPeyton€v.Derwinskióó,€1Vet.App.€282,€286€(1991)€("[t]his€is€a€rating„reduction€case,€not€aÐ %X 0 Ðrating„increase€case");€òòsee€also€Dofflemyer€v.Derwinskióó,€2Vet.App.€277,€279„80€(1992).Ð a&±!2 Ðà  àOn€ñõñMarch€ñõññõñMarchñõñ27,€1991,€the€veteran€appealed€pro€se€to€this€Court€the›€œñõñDecember€ñõññõñDecemberñõññõñ199ñõññõñ€199ñõñ0€BVAÏdecision€(R.€at€41).€€òòSee€McCrearyóó,€òòsupraóó.€€In›€œñõñMay€ñõññõñMayñõññõñ199ñõññõñ€199ñõñ1,€the€veteran€entered€into€a€fee€agreementÐ )c$6 Ðwith€the€attorney€for€representation€before€VA€on€the€veteran's€"claim€for€veterans€benefits€beforeÏ[VA]".›€œñõñ€R.›€atñõññõñ€R.atñõñ€43„44.€€In›€œñõñJune›€ñõññõñJuneñõññõñ199ñõññõñ€199ñõñ1,€the€attorney€filed€with€this€Court€an€appearance€as€counsel€forÐ Å+': Ðthe€veteran€in€that€appeal€to€the€Court€and€filed€a€fee€agreement,€also€dated€May29,€1991,€as€to€thatÏrepresentation.€€Each€fee€agreement€provided€for€a€contingency€fee€of€20%€to€be€withheld€and€paidÏdirectly€to€the€attorney€by€the€Secretary€from€any€past-due€benefits€awarded€to€the€veteranÏ"following€execution€of€this€agreement".€ñõñ€R.›€atñõññõñ€R.atñõñ€43;€Petition,€Exhibit€2€at€1;€Secretary's€June›29,€1999,ÏMotion,€Attachment€at€1.€€The€attorney€apparently€also€filed€those€fee€agreements€with€œa€VARO€inÏñõñJune€ñõññõñJuneñõññõñ199ñõññõñ€199ñõñ1.€€òòSee€óóR.at€62,€65,€137,€157.€€In›€œñõñOctober€ñõññõñOctoberñõññõñ199ñõññõñ€199ñõñ1,€the€parties€filed€with€this€Court€a€jointÐ m ½  Ðmotion€for€remand€(R.€at€46„49)€and€the€Court€granted€that€motion€and€vacated€the€ñõñDecember€ñõññõñDecemberñõññõñ199ñõññõñ€199ñõñ0ÏBVA€decision€and€remanded€the€matter€(R.at€51).€€That€joint€motion€for€remand›€requested€that€theÏCourt€direct€the€Board€(1)"to€obtain€further€development€of€the€evidence€...€to€determine€the€natureÏand€degree€of€the€[veteran's]€disability€and€[to]€issue€a€new€final€decision";€(2)"to€remand€theÏ[veteran's]€claim€for€increased€rating€due€to€[TDIU]€raised€in€his€[œS]ubstantive›€[œA]ppeal›€...€and€[to]Ïdirect€the€RO€to€assist€the€[veteran]€in€developing€a€claim€for€increased€rating€due€to€[TDIU]€or€anyÏother€benefits€that€[the€veteran]€may€be€entitled€to€by€reason€of€the€evidence€then€of€record";€andÏ(3)"to€consider€the€effect€of€pain€on€the€[veteran's]€disability."€œñõñ€R.›€atñõññõñ€R.atñõñ€47„48.›Ìà  àOn€œremand›€from€the€Court,€the€Board€characterized€the€issues€as€follows:€(1)"RestorationÏof€a€40€percent€evaluation€for€lumbosacral€strain,€currently€evaluated€20€percent€disabling";Ï(2)"Increased€evaluation,€in€excess€of€40€percent,€for€lumbosacral€strain,€currently€evaluated€20Ïpercent€disabling";€and€(3)"Total€disability€evaluation€based€on€individual€unemployability€due€toÏservice„connected€disability".€œñõñ€R.›€atñõññõñ€R.atñõñ€55.€€In€ñõñJanuary€ñõññõñJanuaryñõññõñ199ñõññõñ€199ñõñ2,€the€Board€remanded€those€claims€to€theÏRO.›€œñõñ€R.›€atñõññõñ€R.atñõñ€58„59.€ñõñ›ñõñ€In€an€ñõñApril€ñõññõñAprilñõññõñ199ñõññõñ€199ñõñ3€decision,€the€RO€denied€those€three€claims€(R.€at€73„79),€and€inÏñõñMay€ñõññõñMayñõññõñ199ñõññõñ€199ñõñ3ñûñ,ñûñ€the€RO€issued€a€Supplemental€SOC€(SSOC)€as€to€those€three€claims€(R.€at€83).€€ñõñ›ñõñIn›€œñõñJune›ÏñõññõñJuneñõññõñ199ñõññõñÏ199ñõñ3,›€the€attorney€notified€the€veteran€that€he€did€"not€want€to€continue€pursuing€this"€matter€onÏbehalf€of€the€veteran€and€that€he€was€"returning€[the€veteran's]€VA€records"€to€him.€œñõñ€R.›€atñõññõñ€R.atñõñ€152.Ìà  àIn›€a€œñõñDecember›€ñõññõñDecemberñõññõñ199ñõññõñ€199ñõñ3›€BVA€decision,€the€Board€noted€that€the€veteran€had€raised€a€fourthÏclaim,€one€for€service€connection€for€a€psychiatric€disorder,€as€secondary€to€the€service„connectedÏœlumbosacral„strain›€claim,€and€remanded€that€matter€for€further€development.€œñõñ€R.›€atñõññõñ€R.atñõñ€99„102.€€After›Ïfurther€œdevelopment›€of€the€evidence€œ(òòseeóóñõñ€R.›€atñõññõñ€R.atñõñ€105,€111„12),›€the€RO€œdenied›€those€four€claims€andÐ º' #4 Ðissued€an€additional€SSOC.€œñõñ€R.›€atñõññõñ€R.atñõñ€105„07,€110„20.€In€ñõñAugust€ñõññõñAugustñõññõñ199ñõññõñ€199ñõñ5,€the€BVA€remanded€theÏpsychiatric,€rating„restoration,€and€rating„increase›€claims€for€additional€VA€examinations€andÏdeferred€its€decision€on€the€TDIU€claim€until€development€of€those€three€"inextricably€intertwined"Ð Å+': Ðclaims€was€complete.€œñõñ€R.›€atñõññõñ€R.atñõñ€126„30.€€In›€œñõñFebruary›€›ñõññõñFebruaryñõññõñ›199ñõññõñ€199ñõñ8,›€the€œRO›€granted€a€rating€increase€to€40%€forÏlumbosacral€strain,€effective€on€March1,€1990;€awarded€service€connection€for€chronic€dysthymicÏ(depressive)€disorder,€assigning€a€rating€of€50%,€effective€on€April5,€1990;€and€awarded€a€TDIUÏrating,€effective€on€October16,€1991.€œñõñ€R.›€atñõññõñ€R.atñõñ€132„35.›Ìà  àœIn›€a€œñõñMarch›€ñõññõñMarchñõññõñ199ñõññõñ€199ñõñ8›€letter€to€the€attorney,€of€which€a€copy€was€sent€to€the€veteran,€the€ROÏacknowledged€receipt€of€the€fee€agreement€for€the€attorney's€representation€of€the€veteran€andÏnotified€him€that€"payment€of€attorney€fees€from€past„due€benefits€is€subject€to€review€by€the€Board".€œñõñÏR.€at›ñõññõñÏR.atñõñ›€137„42.€€In€œñõñApril›€ñõññõñAprilñõññõñ199ñõññõñ€199ñõñ8,›€the€RO€notified€the€veteran€that€it€had€awarded€him€a€lump„sum€amountÏof€$136,951.00€in€past„due€benefits€for€the€three€awards,€paid€him€$109,560.80,€and€withheldÏ$27,390.20€as€a€"potential€20%€contingent€fee"€to€be€paid€directly€to€the€attorney€by€the€Secretary.€œñõñÏR.€at›ñõññõñÏR.atñõñ›€144„46.€€In€that€notification€letter,€the€RO€notified€the€veteran€that€his€case€was€beingÏtransferred€to€the€Board€for€a€"determination€of€eligibility€for€payment€of€attorney€fees€from€anyÏpast„due€benefits."€œñõñ€R.›€atñõññõñ€R.atñõñ€146.€€The€veteran€thereafter€asked€the€Board€for€an€explanation€as€to€whyÏthe€20%€had€been€withheld€in€light€of€the€fact€that€the€attorney€had€resigned€from€the€case.€€R.at›Ï151„52.€€In€an€œñõñAugust›€ñõññõñAugustñõññõñ199ñõññõñ€199ñõñ8›€letter,€the€Board€notified€the€attorney€and€the€veteran€that€it€wasÏconsidering€a€reduction€of€the€attorney's€fee€on€the€ground€that€the€attorney€had€not€"engaged€in€anyÏrepresentational€activity€on€behalf€of€[the€veteran]€before€VA€after€œñõñAugust›€ñõññõñAugustñõññõñ199ñõññõñ€199ñõñ3";›€that€he€and€theÏveteran€had€the€right€to€submit€argument€and€evidence€as€to€that€matter;€and€that€the€Board'sÏdetermination€would€cover€only€the€fee€agreement€for€representation€before€VA€because€the€BoardÏdid€not€have€jurisdiction€over€fee€agreements€for€representation€before€the€Court.€œñõñ€R.›€atñõññõñ€R.atñõñ€154„55.€€InÏñõñSeptember€ñõññõñSeptemberñõññõñ199ñõññõñ€199ñõñ8,€the€attorney€responded,€arguing,€in€essence,€that€the€fee€agreement€forÏrepresentation€before€the€Court€provided€a€basis€for€the€direct€payment€of€the€full€20%€withheld.€ñõñÏR.€atñõññõñÏR.atñõñ€157„59.€€The€veteran€also€responded€to€the€Board,€asserting€that€the€attorney€should€not€be€paidÏthe€withheld€20%.€ñõñ€R.€atñõññõñ€R.atñõñ€161„64.Ìà  àIn€a€November25,€1998,€BVA€decision€as€to€eligibility€for€payment€of€attorney€fees€fromÏpast„due€benefits€and€the€reasonableness€of€any€underlying€fee€agreement,€the€Board€(1)deniedÏeligibility€for€payment€of€attorney€fees€from€past„due€benefits€as€to€the€neuropsychiatric„disorderÏclaim€and€(2)reduced€to€$0,€as€unreasonable,€attorney€fees,€called€for€in€the€fee€agreement€forÏrepresentation€before€VA,€as€to€the€restoration€of€a€40%€rating€for€a€low„back€disorder€and€for€aÏTDIU€rating.€ñõñ€R.€atñõññõñ€R.atñõñ€3.€€(The€Board€mixed€up€these€actions€when€it€summarized€them€at€the€end€ofÐ Å+': Ðits€decision.€€òòSeeóóñõñ€R.€atñõññõñ€R.atñõñ€14.)€€Although€the€Board€noted€that€the€attorney€had€"asserted€that€VA€ha[d›]Ð ° Ðthe€authority€to€pay€the€fee€for€œservices›€he€œhad€rendered›€the€veteran€while€representing€him€beforeÏthe€Court",€the€Board€concluded€that€it€"may€review€only€the€contract€for€services€before€VA"€andÏthat€"[œr]eview›€of€[fee]€agreements€[for€representation€before€the€Court]€is€exclusively€within€theÏprovince€of€the€Court."€œñõñ€R.›€atñõññõñ€R.atñõñ€3,€6.Ìà  àOn€December2,€1998,€the€attorney€appealed€that€BVA€decision›€through€œother€counsel.›€€OnÏJune29,€1999,€the€Secretary€filed€a€motion€in€that€appeal,€seeking€Court€review€of€the€fee€agreementÏfor€the€attorney's€representation€before€the€Court€in€connection€œwith€the€ñõñOctober€ñõññõñOctoberñõññõñ199ñõññõñ€199ñõñ1€Court€remandÏin›€òòMcCrearyóó,òò€supraóó.€€As€a€basis€for€his€motion,€the€Secretary€asserts€that€the€Court's€review€of€theÐ xÈ  Ðreasonableness€of€the€fee€agreement€"may€result€in€a€prompt,€favorable€determination€for€theÏappellant€which€would€moot€this€appeal€and€conserve€judicial€œresources";€the€Secretary€cites€òòIn€theÐ *z  ÐMatter€of€the€Fee€Agreement€of€Masonóó,€13Vet.App.€79,€86€(1999)€(òòMason€Fee€Agreementóó)€(holdingÐ ƒÓ Ðthat€"where€attorney€successfully€represents€a€VA€claimant€before€this€Court€...,€the€Secretary€isÏobligated€[under€certain€circumstances]€to€pay€directly€to€the€attorney€20%€of€the€past„due€benefitsÏawarded€on€the€basis€of€the€claim€or€application€for€benefits€òòunderlying€the€issues€successfullyÐ ŽÞ Ðappealed€to€this€Courtóó").›€€Motion€at€2„3.€€On€July12,€1999,€the€attorney€filed€a€response€opposingÐ ç7 Ðthe€Secretary's€motion€on€the€grounds€that€the€Court€lacks€jurisdiction€to€review€the€fee€agreementÏbecause€there€is€no€BVA€decision€as€to€that€agreement€and€that€the€Secretary€has€alleged€no€errorÏin€the€fee€agreement€for€representation€before€the€Court€and€the€motion€is,€therefore,€a€request€forÏan€advisory€opinion€from€this€Court.Ìà  àœAlso›€on€œñõñJuly›€ñõññõñJulyñõñ12,›€1999,€the€attorney€filed€through€counsel€a€petition€for€extraordinary€reliefÏin€the€nature€of€mandamus,€seeking€a€Court€order€(1)that€the€Secretary€show€cause€as€to€why€he€hasÏfailed€to€pay€to€the€attorney€the€withheld€attorney€fees;€and€(2)either€(A)that€the€Secretary€makeÏimmediate€payment€of€the€withheld€attorney€fees€or€(B)that€the€Board€direct€the€RO€to€make€aÏdecision€so€that€the€œattorney›€may€file€a€Notice€of€œDisagreement€(NOD)›€as€to€his€entitlement€to€œdirectÏpayment€of€a›€20%„contingency€fee€for€his€successful€representation€of€the€veteran€in€this€Court.€€OnÏJuly28,€1999,€the€Court€ordered€the€Secretary€to€file€œa€response›€to€the€petition.€€The€Secretary€hasÏfiled€a€response,€and€the€attorney€has€filed€a€reply.€€On€October1,€1999,€the€Court€consolidated€theÏâ âappeal€and€petition€cases€and€submitted€them€to€œthis›€panel.Ð l*¼%8 Ðà  àœOn€October18,€1999,€the€attorney€filed€an€amended€petition€for€extraordinary€relief€andÏâ âattached€a€copy€of€an›€October1,€1999,€letter€to€the€œveteran€from›€the€œRO.€€That€letter›€stated:ÌÓ€Óà8  àA€check,€dated€œñõñSeptember›€ñõññõñSeptemberñõñ17,›€1999,€in€the€amount€of€$27,390.20€was€issued€to€you.€ÏYou€confirmed€on€œñõñSeptember›€ñõññõñSeptemberñõñ23,›€1999,€that€you€had€received€and€negotiated€thisÏcheck.Ð Ð Ð  ÐÌà8  àThere€is€a€motion€before€the€United€States€Court€of€Appeals€for€Veterans€ClaimsÏpetitioning€for€payment€of€attorney€fees€to€Keith€D.€Snyder,€Attorney€at€Law.€€TheÏœ$27,390.20›€represents€past„due€benefits€that€are€potentially€payable€to€the€attorney.Ð Ð Ð  ÐÌà8  àWe€require€that€you€return€the€$27,390.20.òòò ò€€These€funds€do€not€belong€to€you.€€ó óóóTheÐ ’â  Ðissue€of€payment€of€attorney€fees€from€past„due€benefits€is€still€in€litigation.€€If€theÏCourt€determines€that€Mr.€Snyder€is€not€entitled€to€payment€of€these€funds,€they€willÏbe€refunded€to€you€at€that€time.òòò ò€€Your€cooperation€will€greatly€assist€in€the€litigationÐ D”  Ðœprocess.ó óóóÐ*z Ð Ð  ЛÌÓ€~AÓAmended€Petition,€Exhibit€1€(emphasis€œadded).€€(There€is€no€indication€that€the€veteran€has€returnedÏany€such€funds€to€VA.)›Ìà  àœIn›€the€œñõñOctober›€ñõññõñOctoberñõññõñ199ñõññõñ€199ñõñ9›€amended€petition,€the€œattorney›€requests€relief€based€on€the€"inexplicableÏaction"€by€the€RO€in€paying€to€the€veteran€the€previously€withheld€20%€of€the€veteran's€past„dueÏbenefits;€specifically,€he€requests€that€the€Court€(1)order€the€Secretary€to€show€cause€as€to€why€heÏreleased€the€previously€withheld€20%;€(2)find€that€the€payment€to€the€veteran€of€that€20%€was€"anÏact€of€'bad€faith'€by€the€Secretary";€(3)consider€sanctions€against€the€Secretary€for€that€payment;Ï(4)"direct€the€Secretary€to€create€an€overpayment€in€the€veteran's€account";€and€(5)order€theÏSecretary€to€pay€that€20%€to€the€attorney€or€order€the€Secretary€to€show€cause€why€a€writ€should€notÏbe€issued.€€Ìà  àOn€December23,€1999,€the€Court,€inter€alia,€œgranted›€intervenor€œstatus€to€the€veteran.›€€òòSnyderÐ p!À& Ðv.Westóó,€13Vet.App.€244,€248„49€(1999)€(per€curiam€order).€€On€February10,€2000,€the€SecretaryÐ É"( Ðfiled€a€motion€to€stay€proceedings€in€this€case€pending€this€Court's€decision€in€òòScates€v.Westóó,Ð "$r* Ð13Vet.App.€304,€305€(2000)€(en€banc€order€granting€motion€for€en€banc€decision),€and€on€April11,òòÐ {%Ë , Ðóó2000,€the€Court€granted€that€motion€and€stayed€the€matter€pending€the€outcome€of€òòScatesóó€andÐ Ô&$". Ðaccepted€œfor›€œfiling€a€brief€that€the€attorney€had€submitted€on€March3,€2000,€as€to€the€appeal.›€€òòSnyderÐ -(}#0 Ðv.Westóó,€13Vet.App.€416,€417€(2000)€(per€curiam€order).€€œIn€that€brief€(Brief€at€22,€41),€the€attorneyÐ †)Ö$2 Ðsubmits€numerous€arguments€and€makes€reference€to€the€Secretary's€reliance€on€VA€General€CounselÏPrecedent€Opinion€27„92€(Dec.€9,€1992)€[hereinafter€G.C.€Prec.€27„92]€in€òòIn›€the€Matter€of€the€FeeÐ 8,ˆ'6 ÐAgreement€of€Coxóó,€œ10ñõñ€Vet.App.›€ñõññõñVet.App.€ñõñ361€(1997)€(òòCox€Fee€Agreement€IIóó),€òòvacated€in€part€on€otherÐ ° Ðgrounds€sub€nom.€Cox€v.Westóó,€149F.3d€1360€1363,€1365„66€(Fed.€Cir.€1998)€(affirming€allÐ  Y Ðholdings;€vacating€only€for€consideration€of€asserted€facts€occurring€after€this€Court's€opinion),›€forÏthe€proposition€that€he€could€not€pay€the€attorney€pursuant€to€a€direct„pay€œcontingency„fee›€agreementÏwhere€the€Secretary€had€already€paid€"the€complete€amount€of€past„due€œbenefitsñõñ€.›€.€.ñõññõñ...ñõñ€to€the€claimant."€ÏòòId.óó€at€365€(quoting€G.C.›€œPrec.ñüñ€ñüñ›œñüñOp.ñüñ›€27„92).€€Ð m ½  Ðà  àœOn›€August14,€2000,€the€Court€issued€œa€unanimous›€en€banc€opinion€in€òòScates€v.Goberóó,Ð Æ   Ð__Vet.App.€__,€œNo.€97„875,€2000›WL€1141097€(Aug.14,€2000)€(en€banc).€€Hence,€the€œCourt›€œnowÏlifts›€the€stay€and€œproceeds›€with€this€appeal€and€œpetition.€€Because€òòScatesóó€is€dispositive€of€the€appealÐ xÈ  Ðand€òòMason€Fee€Agreementóó€and€other€authority€are€dispositive€of€the€petition,€because€counsel€forÐ Ñ!  Ðthe€attorney€was€counsel€for€Mr.€Mason€in€both€òòScatesóó€and€òòMason€Fee€Agreementóó,€because€theseÐ *z  Ðmatters€have€been€pending€before€the€Court€now€for€well€over€a€year€(petition)€and€almost€two€yearsÏ(appeal),€and€because€the€Court's€opinion€today€will€vacate€the€BVA€decision€on€appeal€and€directÏthe€Board€to€dismiss€the€matter€referred€to€it€by€the€RO€and€will€deny€the€petition€in€order€for€theÏmatters€to€proceed€before€the€Cleveland€RO,€the€Court€does€not€believe€that€further€pleadings€areÏneeded.€€Any€further€pleadings€may€be€filed€at€the€RO€or€the€Board,€as€necessary,€by€any€of€theÏparties,€and€no€one's€rights€are€adversely€affected€by€our€action€today€as€to€the€merits€of€the€fee„¼agreement€issues.ÌÌ›à@$ìàò òII.€Analysisó óˆÐ K›& Ðà@ìàò òòòA.€Appeal€from€BVA€Decisionóóó óˆÐ ¤ô( Ðà  àThe€òòScatesóó€case€involved,€as€does€the€instant€œappeal,›€"a€direct„payment€contingency„feeÐ ý M* Ðagreement",€as€to€which€"the€agency€of€original€jurisdiction€œ[(i.e.,€the€RO)]€never›€made€a€decisionÏconcerning€the€award€of€the€withheld€attorney€fees€to€the€intervenor€under€[38U.S.C.€ðð]œ511(a)"€and,Ïinstead,›€"the€RO€forwarded€the€matter€to€the€Board€for€'a€determination€of€eligibility.'"€€òòScatesóó,Ð %X 0 Ð__Vet.App.€at€__,€2000WL€1141097,€at€œ*2;ñõñ€R.›€atñõññõñ€R.atñõñ€146.€€The€Court€held€in€òòScatesóó€that€theÐ a&±!2 Ðdetermination€of€entitlement€or€eligibility€for€attorney€fees€under€direct„payment€contingency„feeÏagreements€must€first€be€addressed€by€the€RO.€€òòScatesóó,€òòsupraóó.€€Accordingly,€the€Court€will€vacateÐ )c$6 Ðthe€appealed€ñõñNovember›€ñõññõñNovemberñõññõñ199ñõññõñ€199ñõñ8€BVA€decision€"for€want€of€original€jurisdiction€to€decide€eligibilityÏfor€direct€payment€of€a€withheld€contingency€fee€under€[section]5904(d)"€and€remand€the€matterÐ Å+': Ð"to€the€Board€with€directions€to€dismiss€that€matter€as€referred€to€the€Board€by€the€RO."€€òòScatesóó,Ð ° Ðòòsupraóó.€€Just€as›€the€Court€noted€in€òòScatesóó,€the€matter€of€the€Secretary's€direct€payment€of€attorney€feesÐ  Y Ðœin€this€case€"remains›€pending€before€the€Secretary€by€virtue€of€the€fee€œagreement[s›]€filed€in€thisÏœcase",›€œòòibid.óó,€and€all€parties€will€be€able€to€raise€any€issues€they€wish€before€the€RO.Ð »  Лà@wwìàò òòòB.€Petition€for€Writ€of€œMandamusóóó ó›ˆÐ  d Ðà  à"The€remedy€of€mandamus€is€a€drastic€one,€to€be€invoked€only€in€extraordinary€situations."€ÏòòKerr€v.United€States€District€Courtóó,€426€U.S.€394,€402€(1976).€€Before€a€court€may€issue€a€writ,€aÐ Æ   Ðpetitioner€must€œdemonstrate›€(1)€a€clear€and€indisputable€right€to€the€writ€œand›€(2)€a€lack€of€adequateÏalternative€means€to€obtain€the€relief€sought.€€òòSeeóó€œòòCox€Fee€Agreement€IIóó,€10ñõñ€Vet.App.€ñõññõñVet.App.€ñõñat€370€(holding›Ð xÈ  Ðthat€this€Court€has€authority,€in€appropriate€circumstances,€to€issue€writs€under€All€Writs€Act,Ï28U.S.C.€ððœ1651(a)).€€Hence,€a€petitioner€must€satisfy€both€prongs€in€order€to€obtain€extraordinaryÏrelief.€€òòSee€Herrmann€v.Brownóó,€8Vet.App.€60,€62€(1995)€(applying€òòKerr€óó"two€prong€test");òòÐ ƒÓ ÐErspamer€v.Derwinskióó,€1Vet.App.€3,€9€(1990)€(same).Ð Ü, Ðà  àThe€statutory€provision€governing€fee€agreements€is€section€5904,€which€provides:ÌÓ€Óà8  àà ` à(d)€(1)€When€a€claimant€and€an€attorney€have€entered€into€a€fee€agreementÏdescribed€in€€paragraph€(2)€of€this€subsection,€the€total€fee€payable€to€the€attorneyÏmay€not€exceed€20€percent€of€the€total€amount€of€any€past-due€benefits€awarded€onÏthe€basis€of€the€claim.€Ð Ð Ð  ÐÌà8  àà ` à(2)€(A)€òòò òA€fee€agreementó óóó€referred€to€in€paragraph€(1)€òòò òis€one€under€which€theÐ  \! Ðtotal€amount€of€the€feeó óóó€payable€to€the€attorney--€ÐòB"Ð Ð  ÐÌà8  àà0` Ð Ð àà ¸ à(i)€òòò òis€to€be€paid€to€the€attorneyó óóó€by€the€Secretary€directly€from€anyÐ ¾$ Ðpast-due€benefits€awarded€on€the€basis€of€the€claim;€and€Ð ` Ð ` Ð  ÐÌà8  àà0` Ð Ð àà ¸ à(ii)€is€contingent€on€whether€or€not€the€matter€is€resolved€in€a€mannerÏfavorable€to€the€claimant.€Ð ` Ð ` Ð  ÐÌà8  àà ` à(B)€For€purposes€of€subparagraph€(A)€of€this€paragraph,€a€claim€shall€beÏconsidered€to€have€been€resolved€in€a€manner€favorable€to€the€claimant€if€all€or€anyÏpart€of€the€relief€sought€is€granted.€Ð Ð Ð  ÐÌà8  àà ` à(3)€To€the€extent€that€past-due€benefits€are€awarded€in€any€proceeding€beforeÏthe€Secretary,€the€Board€of€Veterans'€Appeals,€or€the€United€States€Court€of€AppealsÏfor€Veterans€Claims,òòò ò€the€Secretary€may€directó óóó€that€payment€of€any€attorneys'€feeÐ †)Ö$0 Ðunder€a€fee€arrangement€described€in€paragraph€(1)€of€this€subsection€be€made€outÏof€such€past-due€benefits.€In€no€event€may€the€Secretary€withhold€for€the€purpose€ofÏsuch€payment€any€portion€of€benefits€payable€for€a€period€after€the€date€of€the€finalÐ 8,ˆ'3 Ðdecision€of€the€Secretary,€the€Board€of€Veterans'€Appeals,€or€Court€of€Appeals€forÏVeterans€Claims€making€(or€ordering€the€making€of)€the€award.Ó€ì_ÓÐ Ð Ð  Ð38ñõñ€U.S.C.€ñõññõñU.S.C.€ñõññõñðð€ñõññõñððñõñ5904(d)€(emphasis€added).Ìà  àThe€implementing€regulation€provides€in€pertinent€part:ÌÓ€Óà8  àà ` à(1)€€Subject€to€the€requirements€of€the€other€paragraphs€of€this€section,ñõñ€.€.€.ñõññõñ...ñõñ€theÏclaimant€or€appellant€and€an€attorney„at„law€may€enter€into€a€fee€agreementÏproviding€that€payment€for€the€services€of€the€attorney„at„law€will€be€made€directlyÏto€the€attorney„at„law€by€the€Department€of€Veterans€Affairs€out€of€any€past„dueÏbenefits€awarded€as€a€result€of€a€successful€appeal€to€the€Board€of€Veterans'€AppealsÏor€an€appellate€court€or€as€a€result€of€a€reopened€claim€before€the€DepartmentÏfollowing€a€prior€denial€of€such€benefits€by€the€Board€of€Veterans'€Appeals€or€anÏappellate€court.€€Such€an€agreement€ò òòòwill€be€honoredó óóó€by€the€Department€only€if€theÐ ë;  Ðfollowing€conditions€are€metñõñ€.€.€.ñõññõñ...ñõñ€.Ó€3hÓÐ Ð Ð  Ð38C.F.R.€ðð20.609(h)€(1999)€(emphasis€added).Ìà  àThe€petition€and€amended€petition€together€request€eight€elements€of€relief,€which€breakñýñÏñýñdown,€in€effect,€into€six€requests€for€relief:€(1)Direct€payment€of€attorney€fees;€(2)an€RO€decisionÏas€to€direct€payment€of€attorney€fees;€(3)a€determination€that€payment€to€the€veteran€of€the€withheldÏ20%€was€made€in€"bad€faith";€(4)sanctions€against€the€Secretary€for€erroneous€payment€to€theÏveteran€of€the€withheld€20%;€(5)creation€of€an€overpayment€in€the€veteran's€account€for€paymentÏto€him€of€the€withheld€20%;€and€(6)a€contempt€order€against€the€Secretary€for€failure€to€pay€attorneyÏfees€directly.€€The€Court€will€first€discuss€the€fifth€request€and€will€group€the€third,€fourth,€and€sixthÏelements€into€a€single€discussion.›Ìà  àò òòò1.€€œPetition€for€Creation€of€Overpayment.ó óóó€€The›€œattorney€petitions›€œthe›€Court€œfor€a€writ€ofÐ K›# Ðmandamus€to€require€the€Secretary€to€create€an€overpayment€and€an€offset€pursuant€to€38U.S.C.Ïðð5314€against€the€veteran€as›€to€the€20%€previously€withheld€but€later€erroneously€œdisbursed›€to€theÏœveteran.€€This€requested€relief€is€premised€on€the€Secretary's€historic€reliance€on€the€G.C.€Prec.€27„92Ï(òòSee€Cox€Fee€Agreement€IIóó,€10ñõñ€Vet.App.€ñõññõñVet.App.€ñõñat€365)€holding€that€the€Secretary€cannot€pay€an€attorneyÐ ¯#ÿ+ Ðpursuant€to€a€direct„pay€contingency€agreement€where€the€Secretary€has€already€paid€the€completeÏamount€of€past„due€benefits€to€the€claimant€client.€€As€set€forth€above,€of€course,€in€order€for€suchÏa€writ€to€be€issued€the€petitioner€must€show€both€that€he€has€an€indisputable€right€to€the€writ€and€thatÏno€alternative€is€available€to€obtain€the€relief€sought.€€òòSee€Cox€Fee€Agreement€IIóó,€òòsupraóó.€€If€theÐ )c$3 ÐGeneral€Counsel's€holding€is€correct€and€there€is€a€bar€to€the€right€of€the€attorney€in€this€case€toÏreceive€direct€payment€of€attorney€fees€from€VA€because€of€VA's€wrongful€disbursement€to€theÐ Å+'7 Ðveteran€of€funds€that€were€to€be€withheld€pursuant€to€such€an€agreement,€there€may€be€a€right€to€theÏrelief€requested.€€With€such€relief,€payment€to€the€attorney€could€be€made€out€of€funds€recouped€byÏVA€from€the€veteran€without€forcing€the€attorney€to€wait€for€the€offset€to€begin€until€the€outcomeÏof€the€òòScatesóó€remand€in€this€case.€Ð »  Ðà  àAs€to€the€second€prong€that€a€petitioner€must€demonstrate€to€obtain€an€extraordinary€writ€„„Ïlack€of€adequate€alternative€means€to€obtain€the€relief€sought€„„€it€is€not€clear€exactly€what€remedyÏmight€be€available€from€VA€to€a€VA€claimant€such€as€the€attorney€here€who€seeks€to€have€anÏoverpayment€declared€by€VA€against€a€VA„benefits€recipient.€€òòCf.€Maggittñõñ€v.€ñõññõñ€v.ñõñWestóó,€202ñõñ€F.3d€ñõññõñF.3d€ñõñ1370,Ð o  Ð1377€(Fed.€Cir.€2000)€("[i]f€exhaustion€[of€administrative€remedies]€will€result€in€prejudicial€delayÏto€the€individual,€or€if€there€is€'some€doubt€as€to€whether€the€agency€was€empowered€to€grantÏeffective€relief,'€[òòMcCarthyñõñ€v.€ñõññõñ€v.ñõñMadiganóó,€503€U.S.€140,€146„48€(1992)],€the€doctrine€[of€exhaustion]Ð *z  Ðshould€not€be€invoked").€€Hence,€we€turn€initially€to€the€first€prong.€€The€Court›€œwill€deny›€the€reliefÏsought€because€the€petition€fails€on€the€first€prong€„„€the€petitioner€has€not,€for€the€following€reasons,Ïdemonstrated€an€indisputable€right€to€the€creation€œof›€such€an€œoverpayment.›€œ€A€writ€must€be€deniedÏas€to€this€element€of€the€extraordinary€relief€sought€because€we›€hold€that€the€Secretary€is€œalreadyÏobliged,›€if€the€statutory€and€regulatory€requirements€are€œmet,›€œto€pay€attorney€fees€in€an€appropriateÏamount€directly›€to€the€attorney€without€regard€to€any€recoupment€of€any€overpayment€to€the€œveteran.€ÏWe€note€at€this€point€that€we€make€no€determination€as€to€whether€the€attorney€would€be€entitled€toÏthe€full€20%€(or€any€portion€thereof)€of€the€past„due€benefits€total€awarded€for€all€three€claims.€€òòSeeÐ òB$ ÐMason€Fee€Agreementóó,€13Vet.App.€at€86€(holding€that€direct€payment€of€attorney€fees€forÐ K›& Ðrepresentation€before€the€Court€is€to€be€made€"on€the€basis€of€the€claim€or€application€for€benefitsÐ ¤ô( Ðòòunderlying€the€issues€successfully€appealed€to€this€Courtóó").›Ð ý M* Ðà  àœò òòòa.›€€Interpretation€of€statutory€provision:€œóóó óThe€first€question€in€determining€whether€a€writÐ V"¦, Ðmay€be€issued€directing€the€creation€of€an€overpayment€is€whether€the€Secretary€is€obliged€by€statuteÏor€by€regulation€to€withhold€20%€of€the€veteran's€past„due€benefits€and€to€pay€an€appropriate€amountÏof€attorney€fees€directly€to€the€attorney€if€the€statutory€and€regulatory€requirements€are€met.€€WeÏwould€normally€begin€with€the€statute.€€"If›€the€intent€of€Congress€is€clear,€that€is€the€end€of€theÏmatter;€for€the€court,€as€well€as€the€agency,€must€give€effect€to€the€unambiguously€expressed€intentÏof€Congress."€€òòChevron,€U.S.A.,€Inc.€v.Natural€Resources€Defense€Councilóó,€467U.S.€837,€842Ð l*¼%8 Ð(1984).€€A€determination€as€to€the€plain€meaning€of€a€statute€necessarily€requires€an€examination€ofÐ Å+': Ðthe€specific€language€in€question€within€the€overall€structure€of€the€statutory€scheme.€€òòSee€GardnerÐ ° Ðv.Derwinskióó,€1Vet.App.€584,€586€(1991),€òòœaff'd›€sub€nom.€Gardner€v.Brownóó,€5F.3d€1456€(Fed.€Cir.Ð  Y Ð1993),€òòœaff'd›óó€513U.S.€115€(1994);€òòsee€also€Smith€(William)€v.Brownóó,€35F.3d€1516,€1522„23€(Fed.Ð b² ÐCir.€1994).Ìœà  àSection›€5904(d)€œprovides€in€paragraph€(3)€that€"the›€Secretary€may€œdirect€that€payment€of€anyÏattorney's€fee€under€a€fee€arrangement€described€in€paragraph€(1)ñõñ€.€.€.ñõññõñ...ñõñ€be€made€out€ofñõñ€.€.€.ñõññõñ...ñõñ€past„dueÏbenefits"€that€"are€awarded€in€any€proceeding€before€the€Secretary,€the€Board€of€Veterans'€Appeals,Ïor€the€Court€of€Appeals€for€Veterans€Claims",€and€paragraph€(2)(A)€provides€that€"a€fee€agreementÏreferred€to€in€paragraph€(1)€is€one€under€which€the€total€amount€of€the€fee€payable€to€the€attorneyñõñÏ.€.€.ñõññõñ...ñõñÏis€to€be€paid€to€the€attorney€by€the€Secretary€directly€from€any€past„due€benefits€awarded€on€the€basisÏof€the€claim".€€38U.S.C.€ðð5904(d)(3),€(2).€€Ìà  àAmong€other€things,€section›œ5904(d)›€is€an€exception€to€the€œassignment„of„VA„benefits›Ïœstatutory€prohibition,›€which€provides:€"Payments€of€benefits€due€or€to€become€due€under€any€lawÏadministered€by€the€Secretary€shall€not€be€assignable€except€to€the€extent€specifically€authorized€byÏlaw€...."€€38U.S.C.€ðð5301(a);€œòòsee€Aronson›€v.Derwinskióó,€3Vet.App.€162,€164€(1992)Ð ŽÞ Ð(section5301(a)€"does€not€constitute€a€limitation€on€the€Secretary's€obligation"€under€38C.F.R.Ïðð20.609(h)€to€pay€attorney€fees€directly);€òòsee€also€Wingo€v.Westóó,€12Vet.App.€305,€306€(1999)Ð @  Ð(section5301(a)€prohibits€assignment€of€past„due€benefits€except€that€Secretary€may€withhold€œVA›Ïbenefits€for€purpose€of€payment€œof€attorney›€fees€under€specific€conditions).€œ€By€providing€"exceptÏto€the€extent€specifically€authorized€by€law",€the€language€of€section5301(a)€clearly€contemplatedÏthe€possibility€of€the€enactment€of€a€statutory€exception.€€38U.S.C.€ðð5301(a).€€Such€an€exceptionÏcould€be€enacted€by€language€either€directing€or€permitting€the€Secretary€to€assign€VA€benefits.€€Ìà  àA€review€of€the€legislative›€history€œmade€in€the€committees'€explanatory€statement€on€theÏlegislation€that€became€the€Veterans'€Judicial€Review€Act€(VJRA),€Pub.L.€100„687,€102€Stat.€4105„¼22€(1988),€and€the€Senate€floor€manager's€remarks€reveals€either€ambiguity€on€this€point€(beingÏunclear€whether€the€Secretary€must€pay€or€whether€the€fee€agreement€must€so€provide,€òòseeóó€134Cong.Ð a&±!2 ÐRec.€31,473,€31,474€(1988)€(Explanatory€Statement€on€the€Compromise€Agreement€on€S.€11,€AsÏAmended,€the€"Veterans'€Judicial€Review€Act");€134Cong.€Rec.€31,461€(1988)›€œ(statement€byÏSenator€Cranston)),€or€some€suggestion€that€the€authority€is€permissive€(òòseeóó€134Cong.€Rec.€atÐ l*¼%8 Ð31,475;€134Cong.€Rec.€31,461€(statement€of€Senator€Cranston)).€€None€of€this€history,€however,Ð Å+': Ðcontains€any€ò òòòexpressó óóó€declaration€on€the€mandatory€versus€discretionary€point.€€In€1998,€the›€Senate„Ð ° Ðpassed€bill,€œS.€11,›€100th€Cong.€œ(1988),›€œthat€became€the€VJRA€originated›€the€past„due„benefitsÏwithhold„and„pay€provision€œand›€expressly€made€that€œauthority›€mandatory€("the€Administrator€shallÏœdirect€that€paymentñõñ€.€.€.ñõññõñ...ñõñ€be€made").€›€S.Rep.€No.€100„418,€at€19„20€(1988)€(setting€forth€reported€œbill).€ÏThe›€œSenate€Committee›€œreport€described€that€provision€as€mandatory€("the€Administrator€is€requiredÏto€direct€payment").€€òòId.óó€at€69.€€The›€House„passed€bill,€H.R.5288,€100th€Cong.€(1998),€had€noÐ m ½  Ðcomparable€provision€regarding€œdirect›€VA€payment€out€of€past„due€benefits.€€œThere€is€no€explanationÏin€the€committees'€explanatory€statement€on€the€compromise€legislation€as€to€why€the›€"shall"€wasÏchanged€to€"may"€by€the€œcommittees›€and€œthen€by€Congress›€in€the€compromise€agreement€adoptedÏas€the€œVJRA›€and€now€contained€in€38U.S.C.€ðð5904(d)(3).€€VJRA,€Pub.€L.€No.€100„687,€ðð104(a),Ï102Stat.€œat€4108.€€Ìà  àAs€the€Court€concludes€in€òòCoxñõñ€v.€ñõññõñ€v.ñõñGoberóó,€__ñõñ€Vet.App.€ñõññõñVet.App.€ñõñ__,€__,€Nos.€95„1068€and€99„1250,€slipÐ ƒÓ Ðop.€at€6€(Oct.€6,€2000)€(per€curñþñañþñiñÿñañÿñm)€(òòCox€IIIóó),€issued€concurrently€today€by€the€Court,€there€mightÐ Ü, Ðbe€room€for€disagreement€as€to€whether€section€5904(d)€standing€alone€requires,€or€merely€givesÏdiscretion€to,€the€Secretary€to€carry€out€the€withhold„and„pay€provisions€of€the€statute.€€òòCompare€InÐ ŽÞ Ðthe€Matter€of€Fee€Agreement€of€Smithóó,€4Vet.App.€487,€493„94€(1993)€(concluding€that€38U.S.C.Ð ç7 Ððð5904(d)€is€mandatory€requiring€the€Secretary€to€comply€with€the€withhold„and„pay€provisions€ofÏthat€statute),€òòvacated€on€other€grounds€sub€nom.€In€the€Matter€of€Fee€Agreement€of€Wickóó,€40F.3dÐ ™é" Ð367€(Fed.€Cir.€1994)€(òòWick€Fee€Agreementóó),€òòwith€In€the€Matter€of€Fee€Agreement€of€Smithóó,Ð òB$ Ð1Vet.App.€492,€504„05€(1991)€(Steinberg,€J.,€concurring)€(concluding€that€section€5904(d)€isÏdiscretionary,€but€that€the€then„pending€regulation,€38C.F.R.€ðð20.609(h),€would€make€theÏSecretary's€obligation€to€honor€section€5904(d)€agreements€mandatory).›Ìà  àœò òòòb.›€€Secretary's€œobligations€under€implementing€regulationóóó ó:›€€œHowever,€there€can€be€no€doubtÐ V"¦, Ðand€we›€œconclude,€as€did€the€Court€in€òòAronsonóó,€òòsupraóó,›€œand€as€does€the€Court€in€òòCox€IIIóó€today,€that›€theÐ ¯#ÿ. ÐSecretary€is€obliged€œby€his€own€regulation€to›€pay€the€œattorney€under€a€withhold„and„pay›Ïœcontingency„fee€agreement€if€the€statutory€and€regulatory€requirements€are€met.›€€That€is€because€theÏSecretary€is€no€less€obligated€to€take€a€particular€action€when€the€duty€is€created€œby€regulationÏpursuant€to€express€statutory€authorization€than€when€it€is€created€by›€œstatute.›€€The€law€is€clear€thatÏan€agency€is€bound€to€follow€its€own€regulations€as€long€as€they€are€in€force.€€òòSee€Vitarelli€v.Seatonóó,Ð l*¼%8 Ð359€U.S.€535,€539„40€(1959);€òòService€v.Dullesóó,€354€U.S.€363,€383„89€(1957);òò€United€States€ex€rel.Ð Å+': ÐAccardi€v.Shaughnessyóó,€347€U.S.€260,€265„68€(1954);€òòSchafrath€v.Derwinskióó,€1Vet.App.€589,€592Ð ° Ð(1991)€(Board€not€free€to€ignore€regulation€adopted€by€VA);€òòsee€also€œGrivois€v.Brownóó,€6Vet.App.Ð  Y Ð136,€140€(1994)€(citing€òòVitarellióó,€òòsupraóó,€for€proposition›€that€procedures€must€be€provided€to€allÐ b² Ðsimilarly€situated€VA€claimants).Ìà  àIn€this€connection,€we€stress€that€the€Secretary's€obligation€and€the€attorney's€right€ò òòòdoó óóó€deriveÐ  d Ðfrom€the€statute.€€œWithout›€such€express€statutory€sanction,€the€Secretary,€as€noted€œin€Part€II.B.1.a.Ïabove,›€would€be€prohibited€by€the€anti„assignment€provision€of€38U.S.C.€ðð5301(a)€from€honoringÏany€such€direct„payment€fee„agreement€œprovision.€€Hence,€the€attorney's€right€is€directly€dependentÏon€the€statutory€authority€in€section5904(d)€and€would€not€exist€without€that€statutory€provision.Ìà  àThe›€œSecretary›€has€the€full€authority,€œindeed›€the€obligation,€to€pay€the€attorney€out€of€VA'sÏentitlement€account€(the€compensation€and€pension€account)€just€as€it€does€to€pay€any€other€VAÏclaimant€out€of€that€account,€which€is€routinely€funded€by€deficiency€appropriation€when€the€amountÏappropriated€to€that€account€in€any€fiscal€year€proves€inadequate€come€the€end€of€a€fiscal€œyear,òò€seeóó,Ð Ü, Ðòòe.g.óó,€54Comp.€Gen.€393,€395€(1974)€("should€applicable€appropriation€be€exhausted,€a€deficiencyÐ 5… Ðappropriation€would€be€necessary€prior€to€payment€of€additional€claims").€€Where›€VA€makes€anÏerroneous€payment€to€a€particular€beneficiary€from€the€compensation€and€pension€account,€that€inÏno€way€impairs€its€authority€and€obligation€to€pay€from€that€fund€the€amount€that€is€owed€to€theÏcorrect€œbeneficiary.›€€Whether€or€not€the€Secretary€decides€to€seek€to€recoup€the€erroneous€paymentÏis€an€entirely€different€matter.œ€€òòSeeóó€38U.S.C.€ðð5314€(providing€Secretary€with€authority€to€"deductÐ òB$ Ðthe€amount€of€the€indebtedness€of€any€person€who€has€been€determined€to€be€indebted€to€the€UnitedÏStates€by€virtue€of€such€person's€participation€in€a€benefits€program€administered€by€the€SecretaryÏfrom€future€payments€made€to€such€person€under€any€law€administered€by€the€Secretary").€€TheÏSecretary's€historic€reliance€on€G.C.€Prec.€27„92€(December9,€1992)€(concluding€that€"VA€has€noÏlegal€authority€to€pay€attorney€fees€when€payment€of€the€complete€amount€of€past„due€benefits€hasÏbeen€made€to€the€claimant")€is€plainly€in€conflict€with€the€binding€opinions€of€the€ComptrollerÏGeneral€discussed€below,€and€hence€is€invalid.€€òòSee€Cox€IIIóó,€__Vet.App.€at€__,€slip€op.€at€9€("ññG.C.ññññÐ a&±!2 ÐññññññÔ% € ÔññññññÔ% € ÔññññVA€Gen.€Coun.€ññPrec.€27„92€is€plainly€in€conflict€with€the€binding€opinions€of€the€Comptroller€General€and€thereforeÏcannot€stand").Ìà  àThe€bottom€line€is€that€the€erroneous€payment's€existence€is€immaterial€to€the€Secretary'sÏresponsibility€to€make€the€payment€to€which€there€is€lawful€entitlement.€€This€principle€is€firmlyÐ Å+': Ðembedded€in€the€decisions€of€the€Comptroller€General€of€the€United€States.€€òòE.g.óó,€2Comp.€Gen.€102,Ð ° Ð106€(1922)€(where€Veterans'€Bureau€made€erroneous€payment€to€person€not€entitled€thereto€andÏwhere€another€person€is€clearly€entitled€to€that€payment,€it€is€the€"duty"€of€the€Director€of€Veterans'ÏBureau€to€"make€payment€to€the€rightful€claimant€...€irrespective€of€recovery€by€the€governmentÏof€the€amount€erroneously€paid€...€even€though€it€involves€the€government€in€a€double€payment,Ïprovided,€of€course,€there€has€been€no€contributing€negligence€or€other€fault€chargeable€to€the€personÏclaiming€the€payment");€òòsee€alsoóó€66Comp.€Gen.€617,€619€(1987)€(same,€as€to€payment€to€ArmyÐ Æ   Ðconstruction€contractor);€37Comp.€Gen.€131,€133€(1957)€(same,€as€to€payment€of€death€gratuityÏunder€€Servicemen's€and€Veterans'€Survivor€Benefits€Act);€19Comp.€Gen.€104,€105€(1939)€(same,Ïas€to€Social€Security€Act€payment).Ìà  àAccordingly,€the€Court€holds€that,€if€the€fee€agreement€has€met€the€statutory€and€regulatoryÏrequirements,€the€Secretary€is€required€to€make€payment€to€the€appellant€in€this€case€of€any€portionÏof€the€20%€to€which€he€is€found€to€be€entitled.€€See€òòCox€IIIóó,€__Vet.App.€at€__,€slip€op.€at€10;€òòseeÐ Ü, Ðalso€Mason€Fee€Agreementóó,€13Vet.App.€at€86.€€Hence,€because€there€is€no€connection€between€anyÐ 5… Ðoverpayment€by€the€Secretary€to€the€veteran€and€any€contingency€fee€that€the€Secretary€might€underÏthe€circumstances€here€be€obligated€to€pay›€œdirectly€to›€the€attorney,€the€attorney,€"who€carries€theÏburden€in€this€matter,€has€not€adequately€established€a€clear€and€indisputable€right€to€a€writ",ÏœòòCostanza€v.Westóó,€12Vet.App.€133,€134€(1999)€(per€curiam€order),›€as€to€that€specific€relief€sought,Ð ™é" Ðand€the€œCourt€may›€not€order€such€mandamus€relief.€€œòòSee€Cox€Fee›€œAgreementóó€òòIIóó,›€10Vet.App.€at€œ370.€Ð òB$ ÐWe€note€in€this€regard€that,€because€we€have€held€that€the€attorney€has€not€established€a€clear€andÏindisputable€right€to€a€writ€ordering€the€Secretary€to€create€an€overpayment€against€the€veteran,€theÏpetition€for€such€a€writ€must€fail€and€we€need€not€address€whether€the€attorney€also€lacks€an€adequateÏalternative€means€to€obtain€the€specific€relief€(overpayment€declaration)€sought.€€òòSee€Ebert€v.Brownóó,Ð V"¦, Ð4Vet.App.€434,€437€(1993);€òòcf.€Maggittóó,€òòsupraóó.Ð ¯#ÿ. Лà  àò òòò2.€€œPetition›€for€RO€decision.€€œóóó óRegarding›€the€attorney's€œpetition›€that€the€Court€order€the€ROÐ %X 0 Ðto€issue€a€decision€as€to€his€direct„payment€claim,€œthe›€Board€concluded€that€it€did€not€haveÏjurisdiction€to€consider€the€fee€agreement€for€representation€before€the€Court,€albeit€for€a€reasonÏdifferent€œfrom›€that€œgiven›€by€the€Court€œin€in›€part€II.A.€of€œthis›€opinion.€œ€R.at€6.€€Nonetheless,€asÏâ âconcluded›€œin€part€II.A.,€above,›€the€Court€œis›€directing€the€Board€to€send€the€direct„payment€claimÐ l*¼%8 Ðback€to€the€œRO€as€to€representation€before€both€VA€and€the€Court.›€€Hence,€that€claim€will€then€beÏpending€before€the€RO,€as€toòòò ò€bothó óóó€fee€œagreements.›Ð  Y Ðâ ââ âà  àœThe›€attorney€œcan›€obtain€direct€payment€from€the€Secretary€œof€only›€a€total€of€20%€of€the€past„¼due€benefits€for€all€of€his€representation€of€the€veteran€(whether€before€the€Court€or€VA).€€œòòSee€In€reÐ »  ÐFee€Agreement€of€Smithóó,€7Vet.App.€92,€92€(1994)€(en€banc€order€denying€en€banc€review)€(òòSmithÐ  d ÐFee€Agreementóó)€(Steinberg,€J.,€dissenting);€òò€SmithIóó,›€1Vet.App.€œat›€œ509„10›€œ(Steinberg,›€J.,€concurring).€Ð m ½  ÐIf€the€attorney€were€œfully€successful›€as€to€one€of€the€fee€œagreements,›€it€would€become€unnecessaryÏfor€him€to€pursue€VA€action€as€to€the€other€fee€agreement.€€The€Court€also€notes€that€prior€to€œòòMasonÐ o  ÐFee›€œAgreementóó,›€œòòsupraóó,›€it€would€appear€that€recourse€to€the€RO€would€have€been€futile,€as€the€BVAÐ xÈ  Ðdecision€œconcluded›€(R.€at€œ6).€›€œòòSee›€œCox€Fee›€œAgreement€IIóó,›€10Vet.App.€at€375€("[i]t€is€well„settledÐ Ñ!  Ðunder€[the€All€Writs€Act,€28U.S.C.€ðð1651(a),]€that€a€petitioner€need€not€pursue€an€alternativeÏremedy€that€is€futile").€€In€œòòMason€Fee›€œAgreementóó,›€œhowever,€the›€Court€remanded€to€the€Board€theÐ ƒÓ Ðquestion€whether€as€to€a€particular€claim€œ(for›€a€TDIU€rating)€the€20%€of€past„due€benefits€were€owedÏto€the€attorney€in€connection€with€his€representation€before€this€Court.€€œThe›€Court's€remand€of€thatÏmatter€œestablished›€that€the€Secretary€has€jurisdiction€to€consider€that€matter,€œand,€consistent€with›ÏœòòScatesóó,›€œòòsupraóó,€such›€a€question€should€first€be€considered€by€the€RO.€€œÐ ç7 Ðà  àThe€attorney,€"who€carries€the€burden€in€this€matter,"€has€provided€"no€evidence€establishingÏthat€letters,€telephone€calls,€visits€to€appropriate€authorities,€or€other€efforts€have€been€undertaken"Ïto€seek€a€decision€by€the›€œRO.€€òòCostanza€v.Westóó,€12Vet.App.€133,€134€(1999)€(per€curiam€order).€Ð òB$ ÐHence,€he›€is€not€entitled€to€extraordinary€relief€because€the€exhaustion€of€œhis›€remedies€may€secureÏthe€relief€he€ultimately€seeks,€and,€if€not,€he€has€the€remedy€of€timely€appeal€as€of€right€to€this€Court.€ÏòòSee€œCox€Fee›€œAgreement€IIóó,›€œ10Vet.App.€at€374€("[a]€petitioner€who€has€administrative€alternativesÐ ý M* Ðand€who€loses€them€by€failing€to€pursue€them€is€not€entitled€to€a€writ€of€mandamus")€(citingÏòòAnderson€v.Comm'r€of€Internal€Revenueóó,€693F.2d€844,€846€(9th€Cir.€1979)).€€Accordingly,€theÐ ¯#ÿ. ÐCourt€holds€that€the€attorney€has€not€yet€exhausted€his€administrative€remedies€(by€seeking€an€ROÏdecision€subsequent€to€òòMason€Fee€Agreementóó),€and€the›€Court€œwill€therefore›€œdeny›€the€instant€petitionÐ a&±!2 Ðas€to€his€request€for€a€Court€order€directing€the€RO€to€make€a€decision€as€to€this€œmatter.€€The€CourtÏnotes€that€after€the€RO€has€made€its€decision€on€any€aspect€of€this€direct„payment€claim€(includingÏâ âthe€reasonableness€of€the€fee€on€the€facts€of€this€case),€if€either€the€attorney€or€the€veteran€disagreesÐ l*¼%8 Ðwith€that€decision,€he€may€then€file€an€NOD€as€to€that€RO€decision.€€òòSeeóó€38U.S.C.€ðð7105AÐ ° Ð(provision€for€filing€NOD€in€simultaneously€contested€claims).›Ìâ âà  àòòò ò3.€€œPetition€for€Direct€Payment€by€Secretary.ó ó€óó€The€attorney€requests€that€the€Court€order€theÐ b² ÐSecretary€to€pay€the€attorney€fees€to€the€attorney€for€his€representation€before€this€Court.›€€The€CourtÏconcludes,€however,€that€the€attorney€has€not€shown€that€he€has€no€adequate€alternative€remedy€asÏto€that€payment.€€òòSeeóó€part€œII.B.2.›,€œabove.›Ð m ½  Ðà  àòòò ò4.€€œPetitions€for€Sanctions,€Contempt€Order,€and€"Bad€Faith"€Determination€againstÐ Æ   ÐSecretary.ó óóó€€The€Court€will€deny€the€attorney's€requests€for€sanctions,€a€contempt€order,€and€aÐ o  Ðdetermination€that€the€Secretary€acted€in€"bad€faith".€€We€do€so›€on€the€ground€that,€although€theÏSecretary€erred€in€paying€out€the€previously€withheld€20%,€that€erroneous€payment€does€not€affectÏthe€attorney's€right€to€œdirect€payment€of€attorney€fees€in€an€appropriate€amount€under›€the€feeÏagreement€for€representation€before€the€œCourt€if€the€statutory€and€regulatory€requirements€are€met.›€ÏòòSeeóó€part€œII.B.1.›,€œabove.›Ð Ü, Ðà@  ìàò òòòC.€Review€of€Fee€Agreement€for€Representation€Before€Courtóóó óˆÐ 5… Ðà  àThe€Secretary€requests€in€connection€with€this€appeal€that€the€Court€review€the€fee€agreementÏœfor›€representation€before€the€Court.€€There€are€three€circumstances€under€which€this€Court€mayÏreview€a€fee€agreement.€€First,€pursuant€to€œ38U.S.C.€ðð5904(c),€the€Court€may€review€a€finding€orÏorder€of€the€Board€as€to€a€fee€agreement€for€services€before€VA,›€as€long€as€that€BVA€finding€or€orderÏhas€been€timely€appealed€to€this€Court.€€òòSeeóó€38U.S.C.€ðð5904(c)(2);€œ38U.S.C.€ðð7263(d);€òò€Smith€Ióó,›Ð òB$ Ðœòòsupraóó€(Steinberg,€J.,€concurring).›€€That€avenue€of€review€is€a€basis€for€jurisdiction€only€where€theÐ K›& Ðreasonableness€œor€excessiveness€of›€the€fee€is€in€dispute,€òòsee€Cox€v.Westóó,€149F.3d€œat›€œ1364,›€andÐ ¤ô( Ðwhere€the€fee€agreement€to€be€reviewed€is€one€for€representation€before€VA.€€38U.S.C.€ðð5904(c)(2).€ÏBecause€the€Secretary€requests€that€the€Court€review€the€fee€agreement€as€to€representation€beforeÏthe€Court,€jurisdiction€based€on€sections5904(c)(2)€and€7263(d),€as€to€review€of€the€reasonablenessÏof€a€fee€agreement€for€representation€before€VA,€is€not€implicated,€and€the€Court€thus€lacksÏjurisdiction€under€those€sections,€òòsee€óó38U.S.C.€ðð5904(c)(2);òò€œCox€v.Westóó,›€149F.3d€at€œ1364.›Ð a&±!2 Ðà  àSecond,€the€Court€may€review€a€fee€agreement€and€the€attendant€circumstances€as€to€a€claimÏfor€payment€under€38U.S.C.€ðð5904(d)€pursuant€to€a€decision€by€the€Secretary€under€38U.S.C.Ïðð511(a).€€òòSee€œCox€v.Westóó,›€149F.3d€at€1365.€€Because€this€avenue€of€review€is€based€on€questionsÐ l*¼%8 Ðarising€under€38U.S.C.€ðð511(a),€an€appellant€must€have€filed€œan€NOD›€as€to€an€RO€œdecision›€on€thatÐ Å+': Ðsection5904(d)€claim,€in€order€for€the€Court€to€have€jurisdiction,€œòòsee€óó38›U.S.C.€ðððð7104(a),€7105(a),Ð ° Ð(c),€7252(a),€7263(c),€œ(d);òò›€œCox€v.Westóó,›€òòsupraóó;òò€Scatesóó,€__Vet.App.€at€œ__,€2000›WL€1141097,€at€*2.€Ð  Y ÐBecause€the€RO€has€not€made€a€decision€as€to€this€matter€and€there€can€be€no€NOD,€the€Court€lacksÏjurisdiction€under€section5904(d).€òò€See€œCox€v.Westóó›€and€òòScatesóó,€both€œòòsupraóó.›Ð »  Ðà  àThird,€the€Court,€on€its€own€motion€or€the€motion€of€either€party,€may€review€a€fee€agreementÏthat€a€person€who€represents€an€appellant€before€the€Court€is€required€to€file€with€the€Court€at€theÏtime€that€the€appeal€is€filed.€€òòSeeóó€œ38U.S.C.€ðð7263(c);€òòFritz€v.Westóó,€13Vet.App.€190,€192€(1999);Ð Æ   ÐòòCarpenter€(Angeline)€v.Westóó,€12Vet.App.€52,€53€(1998),€òòappeal€dismissed€sub€nom.€CarpenterÐ o  Ð(Angeline)€v.Goberóó,€__F.3d€__,€No.€99„7128,€2000€WL€1456451€(Fed.€Cir.€Sept.€29,€2000);›€òòShawÐ xÈ  Ðv.Goberóó,€10Vet.App.€498,€502€(1997);€òòU.S.€Vet.€œApp›.€œóóR.€46(d)(2)(B).›€€The€language€of€œ38U.S.C.Ð Ñ!  Ððð7263(c)€presupposes€that€any€review€under€this€section€will€be€limited€to€fee€agreements€in€appealsÏthat€are€currently€pending€before€the€Court.€€òòSee€Wick€Fee›€œAgreementóó,›€œ40F.3d€at›€œ371›€(holding€thatÐ ƒÓ Ðsection7263€œauthorizes›€this€Court€to€review€fee€agreements€when€appeal€is€properly€before€thisÏCourt€and€when€fee€agreement€has€been€filed€with€Court€at€time€appeal€is€filed);€òòIn€the€Matter€of€theÐ 5… ÐFee€Agreement€of€Batesóó,€10Vet.App.€547,€547„48€(1997)€œ(dismissing›€petition€as€to€fee-agreementÐ ŽÞ Ðmatter€where€œapplication€for€attorney€fees€under€the€Equal€Access€to€Justice€Act,€28U.S.C.Ïðð2412(d),€had›€been€dismissed€based€on€parties'€joint€motion€after€negotiated€settlement€wasÏreached).€€The€appeal€to€this€Court€that€generated€the€fee€agreement€for€services€before€the€Court€thatÏis€the€subject€of€the€Secretary's€œmotion€was€disposed€of›€in€œOctober€1991,›€when€the€Court€granted€theÏparties'€joint€motion€for€remand.€€œòòSeeóó€òòU.S.€Vet.€App.€R.€óó41(b)€("order€on€consent€dismissing€orÐ K›& Ðremanding€a€case€will€also€constitute€the€mandate");òò›€McCrearyóó,€òòsupraóó€(remand€order€issuedÐ ¤ô( ÐOctober28,€1991).€€Given€that€the€œòòMcCrearyóó›€appeal€is€no€longer€pending€before€the€Court,€thatÐ ý M* Ðappeal€cannot€form€the€basis€for€the€Court's€jurisdiction€to€review€the€fee€agreement€underÏsectionœ7263(c).›Ìà  àœAs€to›€the€instant€œpetition,€even€if€it›€œwere€to›€provide€a€basis€for€the€Court's€jurisdiction€toÏreview€the€fee€agreement€for€representation€before€the€Court,€as€noted€above,€the€œquestions›€œof€theÏattorney's€entitlement€and›€œeligibility€under€section5904€(e.g.,€final€BVA€decision,€retention€ofÏattorney€within€one€year€after€BVA€decision,€fee€agreement€that€specifies€direct€payment€by€theÏSecretary,€total€attorney€fee€is€contingent€and€amount€is€for€no€more€than€20%€of€past„due€benefitsÏawarded)€and,€as€to€the€representation€in€this€Court,€of€what€portion€of€the€past„due€benefits€wereÐ Å+': Ð"awarded€on€the€basis€of€the€claim€or€application€for€benefits€òòunderlying€the€issues€successfullyÐ ° Ðappealed€to€this€Courtóó")›€based€on€a€fee€agreement€for€representation€before€the€œCourt€are€questions›Ð  Y Ðœthat›€should€be€œconsidered€by€the€RO€in€the€first€instance,›€œòòsee›€Scatesóó€andòò€œMason€Fee›€œAgreementóó,›€bothÐ b² Ðœòòsupraóó.€€Any€review€by€this€Court€of€the€reasonableness€of€that€fee€agreement€would€be€prematureÐ »  Ðuntil€entitlement€and€eligibility€are€first€determined.›€€œòòCf.€Smith€Fee€Agreementóó,€7Vet.App.€at€91Ð  d Ð(dictum€stating€that€fee€agreements€for€representation€in€this€Court€are€"reviewable€by€this€CourtÏalone€for€reasonableness");€òòbut€cf.€idóó.€at€94„95€(Steinberg,€J.,€dissenting€from€denial€of€en€bancÐ Æ   Ðconsideration).€€Accordingly,›€the€Court€will€deny€the€Secretary's€œJune€1999›€motion€seeking€CourtÏreview€of€the€fee€agreement€as€to€representation€before€the€œCourt.Ì›Ìà@ff#ìàò òIII.€Conclusionó óˆÐ *z  Ðà  àUpon€consideration€of€the€foregoing€analysis,€the€record€on€appeal,€and€the€parties'€pleadings,Ïthe€Court€vacates€the€œNovember€1998›€BVA€decision€for€lack€of€original€jurisdiction€to€decideÏeligibility€for€direct€payment€of€a€withheld€contingency€fee€under€38U.S.C.€ðð5904(d)€and€remandsÏthe€matter€to€the€Board€with€directions€to€dismiss€the€claim€for€direct„payment€fee€eligibility€asÏreferred€to€the€Board€by€the€RO.€€òòSeeóó€òòScatesóó,€òòsupraóó.€œ€Upon›€œfurther€such›€consideration,€œbecause€theÐ ç7 Ðpetitioner€has€not€demonstrated,€as€to€any€of€the€relief€sought,€ññbothññññÔ% € Ôññññ€ññthat€he€hasññ€bothññ€a€clear€andÏindisputable€right€to€the€writ€and€that€his€administrative€remedies€have€been€exhausted,€the›€CourtÏÔ& ½ Ôdenies€the€petition€as€œamended.›€€œFinally,›€the€Court€denies€the€Secretary's€œJune€1999›€motion€for€CourtÏreview€of€the€fee€agreement€for€representation€before€the€œCourt,€because€that€matter€should€originateÏat€the€RO.›Ìà  àœON€APPEAL,€BVA›€DECISION€VACATED€WITH€DIRECTIONS;€PETITION€œDENIED.›ÌœDATED:Ô'½ò^ßÔ›