text: It is illuminating to speculate how these cases would have been decided if Congress had enacted a504 ( a ) ( 16 ) without its proviso ( prescribing only the general ban against litigation , lobbying , or rulemaking , involving an effort to reform a Federal or State welfare system ) , and if the positions of the parties before us here were reversed .
  
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  The case rulings would be reversed if they had acted without its proviso .