Mark Freund, Mary S. Mathewson v. Denis McDonough, Secretary of Veterans Affairs

United States Court of Appeals
for the Federal Circuit
______________________
MARK FREUND, MARY S. MATHEWSON,
Claimants-Appellants
v.
DENIS MCDONOUGH, SECRETARY OF
VETERANS AFFAIRS,
Respondent-Appellee
______________________
2023-1387
______________________
Appeal from the United States Court of Appeals for
Veterans Claims in No. 21-4168, Judge Amanda L. Mere-
dith, Judge Michael P. Allen, Judge Scott Laurer.
______________________
Decided: August 20, 2024
______________________
J ONAS WANG, Orrick, Herrington & Sutcliffe LLP,
Washington, DC, argued for claimants-appellants. Also
represented by M ELANIE L. BOSTWICK; K ENNETH
D OJAQUEZ, J OHN D. N ILES , Carpenter Chartered, Topeka,
KS.
EVAN WISSER, Commercial Litigation Branch, Civil Di-
vision, United States Department of Justice, Washington,
DC, argued for respondent-appellee. Also represented by
BRIAN M. BOYNTON , ERIC P. BRUSKIN, P ATRICIA M.
MCCARTHY ; BRIAN D. G RIFFIN, J ONATHAN K RISCH , Office of
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FREUND v. MCDONOUGH 2
General Counsel, United States Department of Veterans
Affairs, Washington, DC.
MEGHAN BROOKS , Veterans Legal Clinic, University of
South Carolina School of Law, Columbia, SC, for amici cu-
riae Christine Bartholomew, Sergio Campos, Maureen S.
Carroll, Brooke D. Coleman, Robin Effron, David Freeman
Engstrom, Myriam Gilles, Maria Glover, Andrew Ham-
mond, Deborah R. Hensler, Helen Hershkoff, Alexandra
Lahav, David Marcus, Michael Sant’Ambrogio, Adam
Steinman, Adam Zimmerman.
P AUL ENRIQUEZ, Covington & Burling LLP, Washing-
ton, DC, for amici curiae National Veterans Legal Services
Program, National Organization of Veterans' Advocates.
Also represented by ALICE J UWON AHN, ALEXANDER
SETZEPFANDT , SARA SUNDERLAND, San Francisco, CA;
MEGAN R ODGERS , Palo Alto, CA.
______________________
Before D YK, HUGHES , and STOLL , Circuit Judges.
D YK, Circuit Judge.
Appellants Mark Freund and Mary Mathewson (collec-
tively “petitioners” or “appellants”) appeal from an order of
the United States Court of Appeals for Veterans Claims
(“Veterans Court”) dismissing their petitions and denying
class certification.1 We conclude that the Veterans Court
abused its discretion in finding that the adequacy and com-
monality requirements for class certification were not met.
We hold, moreover, that the case is not moot as to the
class claims because it satisfies the inherently transitory
claim standard. We therefore vacate the order denying
1 Both current appellants have been substituted for
the original claimants.
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FREUND v. MCDONOUGH 3
class certification and dismissing the case, and remand for
the Veterans Court to further consider its class certifica-
tion ruling and, if a class is certified, to determine the ap-
propriate relief.
BACKGROUND
This case involves veterans benefits appeals from the
Department of Veterans Affairs (“VA”) Regional Offices
(“RO”) to the Board of Veterans’ Appeals (“Board”) that
were erroneously deactivated by the VA. This occurred be-
cause a computer program automatically and improperly
swept them out of the system.
The VA currently operates two adjudicatory systems
for benefits claims, and only the so-called legacy system is
relevant to this appeal. Under the legacy system, a claim-
ant may start the VA appeals process by submitting a No-
tice of Disagreement. The VA must either resolve the
disagreement or prepare a Statement of the Case explain-
ing the VA’s position. 38 U.S.C. § 7105(d)(1) (2006). If the
claimant desires review by the Board, the claimant must
file a “Substantive Appeal” within 60 days of the mailing of
the Statement of the Case or within a year of the mailing
of the decision being appealed, whichever is later. 38
C.F.R. § 19.52(b). “Following receipt of a timely Substan-
tive Appeal, the agency of original jurisdiction [the RO] will
certify the case to the Board.” Id. § 19.35. The RO “may
close the appeal without notice . . . for failure to respond to
a Statement of the Case within the period allowed.” Id.
§ 19.32.
To manage legacy appeals and to determine whether
legacy appeals have been timely filed, the VA operates an
electronic database known as the Veterans Appeals Con-
trol and Locator System (“VACOLS”). When the VA re-
ceives a Notice of Disagreement, the case is entered into
the system. When the VA receives a timely Substantive
Appeal, a VA employee notes the appeal in VACOLS. If no
timely Substantive Appeal is filed, VACOLS
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FREUND v. MCDONOUGH 4
“automatically closes legacy appeals on the first day of the
month following [the relevant deadline] if VACOLS does
not reflect that a claimant has submitted a Substantive Ap-
peal.”2 J.A. 2. If the appeal is listed as closed, it is not
processed by the VA. The VA does not notify the claimant
that VACOLS closed their appeal. Thus, if a VA employee
improperly handles a Substantive Appeal, VACOLS will
close the file without notice to the claimant. The problem
here is that the system erroneously closed timely appeals,
at least approximately 3,000 in number, and the VA then
withheld action on such appeals.
That is what happened to U.S. Army veterans J. Roni
Freund and Marvin Mathewson, whose successors are the
named petitioners in this putative class action.
Ms. Freund filed a disability claim for PTSD, which the VA
RO denied. She timely filed a Substantive Appeal to the
Board. But her appeal was closed by VACOLS, and the VA
took no action on it for over a year. Ms. Freund died in July
2022, and her brother Mark Freund was substituted as
claimant. The other named petitioner, Mr. Mathewson,
filed a claim for special monthly compensation based on the
need for aid and attendance. After his claim was denied by
the RO, he filed a timely Substantive Appeal to the Board
in December 2017, which was erroneously closed by
VACOLS. Mr. Mathewson died three years after he filed
his Substantive Appeal. The VA granted his surviving
2 The Secretary of Veterans Affairs notes that
“VACOLS’s characterization . . . has no inherent legal sig-
nificance; VACOLS cannot actually close, withdraw, or ter-
minate an appeal.” Br. for Respondent at 6. For
consistency with the Veterans Court’s opinion and the par-
ties’ submission, we refer to VACOLS as erroneously “clos-
ing” appeals. However, we do not mean to suggest that an
automatic VACOLS closure will “close” an appeal as the
term is used in 38 C.F.R. § 19.32.
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FREUND v. MCDONOUGH 5
spouse Mary Mathewson’s request to be substituted into
his appeal, but apparently took no other action on it. These
inactions allegedly violated the statutory requirement
that, if there is a timely-filed appeal, “[a]ppellate review
shall be initiated.” 38 U.S.C. § 7105(a).
In June 2021, Ms. Freund and Mrs. Mathewson filed a
mandamus petition in the Veterans Court in aid of this
court’s and the Veterans Court’s prospective jurisdiction.
The theory was that the VA had improperly truncated the
appeals process, and that this action frustrated appellate
review of the proceedings. See Roche v. Evaporated Milk
Ass’n, 319 U.S. 21, 26 (1943) (noting that “a function of
mandamus in aid of appellate jurisdiction is to remove ob-
stacles to appeal”); see also Bates v. Nicholson, 398 F.3d
1355, 1359 (Fed. Cir. 2005) (“[T]he Court of Appeals for
Veterans Claims ‘has the power to issue writs of manda-
mus in aid of its jurisdiction under the [All Writs Act, 28
U.S.C. § 1651(a)].’” (quoting Cox v. West, 149 F.3d 1360,
1363 (Fed. Cir. 1998))). The petition sought, inter alia,
(1) “that the Court declare VA’s withholding of action on
the timely perfected legacy appeals to constitute agency ac-
tion ‘unlawfully withheld’ within the meaning of 38 U.S.C.
§ 7261(a)(2); and that the no-notice element of the Secre-
tary’s closure of the appeals violates 38 C.F.R. § 19.32 and
Fair Process;” and (2) “that the Court order the Secretary
to, within thirty days, reactivate Petitioners’ timely per-
fected legacy appeals.” J.A. 36. The same day, the peti-
tioners filed a request for class certification and class
action concerning the following proposed class:
All claimants with a timely perfected legacy ap-
peal: (1) that is an original appeal, (2) that the Sec-
retary has closed, (3) that remains closed, (4) that
appears in VACOLS, (5) for which a copy of the
substantive appeal appears in [the Veterans Bene-
fits Management System], and (6) for which VA
has not issued a rating decision regarding the sub-
stantive appeal’s timeliness.
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FREUND v. MCDONOUGH 6
J.A. 243. As to the proposed class action, the petitioners
requested an order that the parties “meet and confer in
good faith” to determine a method for identifying and noti-
fying claimants who satisfy the proposed class criteria, as
well as a timeframe for reactivating the erroneously closed
appeals. J.A. 263–64.
Following the filing of the mandamus petition, in July
2021 the VA reactivated both petitioners’ VACOLS files
and resumed consideration of their claims, agreeing that
the appeals had been improperly removed from the system.
The Secretary argued to the Veterans Court that this ac-
tion mooted the case. Appellants now agree that the case
was mooted as to the named petitioners, but argue that the
claims as to the class could properly proceed. The Veterans
Court held that the case was moot as to the petitioners3
and did not decide whether it was moot as to the class in
view of the “inherently transitory” exception. J.A. 18 (cit-
ing Godsey v. Wilkie, 31 Vet. App. 207, 219 (2019)). This
exception recognizes that a case is not moot as to the class,
even after the named plaintiffs’ individual claims have be-
come moot, if the asserted harm has a short or indefinite
duration such that there is insufficient time for considera-
tion of class action certification.
Instead of resolving the mootness issue, the Veterans
Court considered whether the proposed class met the re-
quirements of the Veterans Court’s version of Rule 23,
which are that:
(1) the class is so numerous that consolidating in-
dividual actions in the Court is impracticable;
3 The court also held that the petitioners lacked
standing to seek declaratory relief that the Secretary had
acted unlawfully by closing their appeals in the VACOLS
system. J.A. 13–16.
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FREUND v. MCDONOUGH 7
(2) there are questions of law or fact common to the
class;
(3) the legal issue or issues being raised by the rep-
resentative parties on the merits are typical of the
legal issues that could be raised by the class;
(4) the representative parties will fairly and ade-
quately protect the interests of the class; and
(5) the Secretary or one or more official(s), agent(s),
or employee(s) of the [VA] has acted or failed to act
on grounds that apply generally to the class, so that
final injunctive or other appropriate relief is appro-
priate respecting the class as a whole.
U.S. VET . APP . R. 23(a). In addition, the Veterans Court’s
class action rules require consideration of whether a class
action would better serve the interests of justice than non-
class resolution following a precedential decision, which is
sometimes referred to as the superiority requirement. U.S.
VET . APP . R. 22(a)(3).
The Veterans Court denied class certification, finding
that the named petitioners failed to satisfy the Rule 23 re-
quirements of commonality and adequacy. The opinion did
not separately address the other requirements of Rule 23
or the superiority requirement.
The petitioners appealed. We have jurisdiction under
38 U.S.C. § 7292.
D ISCUSSION
We review legal determinations of the Veterans Court
de novo. Anania v. McDonough, 1 F.4th 1019, 1022 (Fed.
Cir. 2021). Questions of class certification under Rule 23
are reviewed for abuse of discretion. See 38 U.S.C.
§ 7292(d)(1); see also Monk v. Shulkin, 855 F.3d 1312, 1318
(Fed. Cir. 2017) (applying abuse of discretion standard to
class certification review); William B. Rubenstein, 1
N EWBERG & RUBENSTEIN ON CLASS ACTIONS § 14:19 (6th ed.
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FREUND v. MCDONOUGH 8
2024) (“The abuse of discretion standard for class certifica-
tion applies to every element individually, not just the ul-
timate determination.”).
I
There is no question here, and the government does not
dispute, that mandamus is available to remove obstacles to
the Veterans Court’s prospective jurisdiction. See Bates,
398 F.3d at 1359. The sole question here is whether class
action relief is available. We begin with the merits of the
Veterans Court’s class certification ruling. On appeal, the
Secretary does not defend the Veterans Court’s holdings as
to standing, commonality, or adequacy, describing those
rulings as “purely dicta” that this court “should either dis-
regard or vacate.” Br. for Respondent at 31. While these
rulings are hardly dicta, we agree with the Secretary that
we should vacate those rulings. The Veterans Court erred
in its standing analysis4 and abused its discretion in deter-
mining that the commonality and adequacy requirements
of Rule 23 were not met.
As to commonality, the Veterans Court found that the
proposed class requirements (including a challenge to
4 In this respect, the Veterans Court appears to have
confused standing with mootness. As of the date the peti-
tion was filed, the petitioners clearly had standing to seek
relief as to the Secretary’s unlawful action. Because the
petitioners suffered injuries traceable to the VA’s conduct
and “likely to be redressed by a favorable judicial decision,”
at the time of filing they had standing. Best Med. Int’l, Inc.
v. Elekta Inc., 46 F.4th 1346, 1352 (Fed. Cir. 2022) (quoting
Spokeo, Inc. v. Robins, 578 U.S. 330, 338 (2016)). The Sec-
retary does not dispute this on appeal. Br. for Respondent
at 31. We need not decide whether the Veterans Court has
authority to grant the requested declaratory relief, an issue
that was raised but not resolved below. See J.A. 13–14.
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FREUND v. MCDONOUGH 9
improper closure due to a VACOLS sweep) were insuffi-
cient to establish commonality. We think it is clear that
there is a common answer to a common question here. The
proposed class members have all suffered the same in-
jury—the Secretary closed their appeals in VACOLS de-
spite their timely filed Substantive Appeals. Should
petitioners prevail, the VA would be ordered to develop a
process to identify the class members and reactivate their
appeals. See J.A. 13 (determining that the Veterans Court
can order the Secretary to reopen erroneously closed files).
Thus, the commonality requirement was met.
As to adequacy, the Veterans Court found that the
class definition included an implied requirement that the
VACOLS closure occurred without notice to the claimant
because one of the requests for class-wide relief was for the
court to “deem” that “the no-notice element of the Secre-
tary’s closure . . . violates 38 C.F.R. § 19.32 and Fair Pro-
cess.” J.A. 263. The Veterans Court found that “both
petitioners were made aware in 2020 that their appeals
were closed,” so “they were no longer part of the class they
sought to represent.” J.A. 20.
The proposed class definition does not include a “no-
notice” requirement. Although adding a new requirement
may constitute error, we need not reach this issue. Even if
the class definition did include a no-notice factor, the
named petitioners and class members similarly situated
satisfied it because in each case at the time of the filing of
the complaint they had received no communication from
the VA concerning the closure of their appeals. This is all
that is required for representation. The petitioners suf-
fered the same injury as the other proposed class members,
and we can conceive of no conflict of interest that would
prevent them from serving as class representatives. Thus,
we think the petitioners satisfy the adequacy requirement.
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FREUND v. MCDONOUGH 10
II
Although the Secretary does not defend the Veterans
Court’s class certification reasoning, he raises a new argu-
ment on appeal that the proposed class does not satisfy the
requirements of Rule 23 because, he contends, it will be
“potential[ly] impossib[le]” to identify class members, and
thus the petitioners failed to demonstrate that the class is
ascertainable. Br. for Respondent at 31. Ascertainability
is not one of the Rule 23 requirements, but most circuits
have implemented some version of an ascertainability test
as an implied prerequisite to class certification. See, e.g.,
Cherry v. Dometic Corp., 986 F.3d 1296, 1302–03 (11th Cir.
2021) (“And ascertainability—at least as traditionally un-
derstood—is an implied prerequisite to the requirements of
Rule 23(a).”). “[A]scertainability requires only that the
court be able to identify class members at some stage of the
proceeding.” N EWBERG & RUBENSTEIN § 3:3. The Secretary
contends that, due to his efforts to reactivate erroneously
closed appeals, no remaining class members who perfected
their appeals after May 2017 exist (a contention that ap-
pears to be disputed), and he argues that it will be impos-
sible to identify any remaining claimants who filed pre-
2017 because at that time the “VA did not consistently in-
clude End Product codes corresponding to the receipt of a
substantive appeal,” which had enabled the Secretary’s re-
view of post-2017 files. Br. for Respondent at 35.
The traditional test for ascertainability is clearly met
here because the class is defined by objective criteria—
whether a claimant timely filed a Substantive Appeal yet
had their appeal closed in VACOLS. These objective crite-
ria are, in the abstract, certainly capable of being deter-
mined, even if it is not presently known which claimants
will ultimately qualify for the class. The Secretary argues,
however, that it is “simply not possible” for the VA to iden-
tify all of the class members because doing so by the Secre-
tary’s proposed method would require the VA “to manually
review every single VACOLS file closed for the lack of a
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FREUND v. MCDONOUGH 11
substantive appeal since 2003,” which will require “at least
hundreds of thousands of work-hours.” Br. for Respondent
at 34, 35.
A minority of circuits have adopted “administrative
feasibility” as part of their ascertainability test, holding
that a class cannot be certified “if ascertaining the class re-
quires extensive and individualized fact-finding.” Hayes v.
Wal-Mart Stores, Inc., 725 F.3d 349, 356 (3d Cir. 2013).5
We reject the minority view of the issue, and agree with the
majority of circuits that there is no basis for finding a lack
of ascertainability because it is difficult to identify the class
members. See, e.g., Cherry, 986 F.3d at 1304.6 As our sis-
ter circuits have recognized, administrative feasibility may
bear on whether class resolution is superior to individual
resolution, see id., but here the Veterans Court has not yet
ruled on the superiority of class resolution, an issue that
will need to be resolved on remand. See U.S. VET . APP.
R. 22(a)(3).
In connection with the superiority issue, we note that
the Secretary’s position that identifying the class members
is “simply not possible” has not been established. See Br.
for Respondent at 34. Manual review of every file from
2003 to May 2017 might indeed be time consuming, but
there may be other ways to identify class members. For
example, the VA could send notices to claimants who had
proceedings at the RO during that time period and the
5 See also Tarrify Props., LLC v. Cuyahoga Cnty., 37
F.4th 1101, 1106 (6th Cir. 2022); EQT Prod. Co. v. Adair,
764 F.3d 347, 358 (4th Cir. 2014).
6 See also In re Petrobras Sec., 862 F.3d 250, 265 (2d
Cir. 2017); Mullins v. Direct Digital, LLC, 795 F.3d 654,
658 (7th Cir. 2015); Sandusky Wellness Ctr., LLC v. Medtox
Sci., Inc., 821 F.3d 992, 996 (8th Cir. 2016); Briseno v.
ConAgra Foods, Inc., 844 F.3d 1121, 1123 (9th Cir. 2017);
N EWBERG & RUBENSTEIN § 3:3.
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FREUND v. MCDONOUGH 12
record reflects no action on the claim, inform them of the
problem with VACOLS, invite responses from claimants
who believe that they had timely filed a Substantive Ap-
peal, and then review only those files. To be sure, there are
also problems with this approach, such as claimants with-
out a current address or claimants who have died without
a substitute claimant, but those problems do not neces-
sarily mean that class resolution is inferior to individual
resolution. There may, moreover, be other feasible ap-
proaches. These alternatives have not been addressed by
the parties or the Veterans Court, and should be considered
on remand.
III
We next consider the issue of mootness as to the class,
and, in particular, whether the inherently transitory ex-
ception to mootness applies.7 A case is moot if “it no longer
presents live issues or ‘the parties lack a legally cognizable
interest in the outcome.’” Monk, 855 F.3d at 1316 (quoting
Powell v. McCormack, 395 U.S. 486, 496 (1969)). For class
actions, if the case becomes moot as to the individual plain-
tiffs after class certification, these requirements may be
met by “a member of the class represented by the named
plaintiff, even though the claim of the named plaintiff has
become moot.” Sosna v. Iowa, 419 U.S. 393, 402 (1975). In
other words, an action is not moot if there is a member of a
certified class that has a live claim.
7 To the extent that the Secretary claims that the
case is moot because the VA has done everything possible
to provide a remedy, see Br. for Respondent at 32 (arguing
“the putative class members have received all feasible con-
crete relief requested in the petition”), this argument is
specious. A case does not become moot because the defend-
ant contends that it has done everything possible to rectify
unlawful conduct.
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FREUND v. MCDONOUGH 13
That particular theory does not help the appellants
here because their claims became moot before class certifi-
cation. Under such circumstances, normally the class ac-
tion becomes moot. United States v. Sanchez-Gomez, 584
U.S. 381, 386 (2018). However, the Supreme Court has rec-
ognized that “[s]ome claims are so inherently transitory
that the trial court will not have even enough time to rule
on a motion for class certification before the proposed rep-
resentative’s individual interest expires.” U.S. Parole
Comm’n v. Geraghty, 445 U.S. 388, 399 (1980). In such
cases, the “relation back” doctrine applies, and the moot-
ness question is considered as it stood when the complaint
was filed. See Cnty. of Riverside v. McLaughlin, 500 U.S.
44, 52 (1991) (citing Swisher v. Brady, 438 U.S. 204, 213
n.11 (1978)). The “inherently transitory” exception “ad-
dress[es] circumstances in which the challenged conduct
was effectively unreviewable” and focuses on “the fleeting
nature of the challenged conduct giving rise to the claim,
not on the defendant’s litigation strategy.” Genesis
Healthcare Corp. v. Symczyk, 569 U.S. 66, 76–77 (2013).
Appellants argue that the case is not moot with respect
to the class claims because the “inherently transitory ex-
ception to mootness applies,” even though the class had not
been certified when their individual claims became moot.
Opening Br. of Appellants at 35. We agree with appellants
and conclude that these requirements are met in this case;
therefore, it is not moot.
An individual claim in this case is very likely to become
moot before the Veterans Court can rule on class certifica-
tion because the VA’s practice is to reactivate an appeal if
it learns that a “timely substantive appeal was received
and not established in VACOLS.” J.A. 1069; see also Br.
for Respondent at 10 (“VA had codified in policy . . . a VA
employee’s obligation to reactivate a closed VACOLS file
any time a timely substantive appeal is identified.”). This
process can happen quickly, often within days. In
Ms. Freund’s case her appeal was reactivated the day after
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FREUND v. MCDONOUGH 14
the Veterans Court requested that the VA respond to her
petition, and Mr. Mathewson’s appeal was reactivated
within 13 days of the order to respond. These short time-
lines make it possible, indeed likely, that an individual
claim will become moot before the court can rule on class
certification. The Secretary argues that the exception
should not apply because, in the absence of intervention by
the VA, the potential class members’ appeals will remain
closed indefinitely, so there is nothing “inherently transi-
tory” about the VA’s failure to act. The Secretary misun-
derstands the nature of the inherently transitory
exception. The reality is that each claim will be addressed
and immediately restored by the Secretary once it becomes
known. To be sure, if the Secretary’s actions to correct any
perceived errors were a “litigation strategy,” the exception
might not apply. See Genesis Healthcare, 569 U.S. at 77.
The Secretary’s action here is not the result of a “litigation
strategy” by the VA but as a result of the VA’s obligation to
correct blatant errors in the adjudication system.8
Our conclusion that the inherently transitory exception
applies here is supported by cases in other circuits. For
example, in Unan v. Lyon, the Sixth Circuit found that the
8 The appellants also contend that a related “picking
off” exception to mootness applies. The Supreme Court rec-
ognizes an exception to mootness in cases where a defend-
ant strategically “pick[s] off” named plaintiffs by offering
them the maximum amount of relief they could recover.
Deposit Guar. Nat. Bank, Jackson, Miss. v. Roper, 445 U.S.
326, 339 (1980). The circuits differ on whether to treat
“picking off” as a separate mootness exception or as a type
of “inherently transitory” claim. See Wilson v. Gordon, 822
F.3d 934, 948–49 (6th Cir. 2016) (discussing the different
approaches). Because we do not perceive that the VA is
reactivating erroneously closed claims as a litigation strat-
egy, we need not address the “picking off” exception.
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FREUND v. MCDONOUGH 15
inherently transitory exception applied to a benefits case
where “a systemic computer problem . . . erroneously as-
signed thousands of non-citizens, who may have been eligi-
ble for comprehensive Medicaid coverage, to Emergency
Services Only (‘ESO’) Medicaid.” 853 F.3d 279, 282 (6th
Cir. 2017). The named plaintiffs’ claims were mooted two
days after the complaint was filed, and the court found that
the claim was transitory because “claims for a hearing on
Medicaid eligibility could be resolved quickly by the state”
and “a named plaintiff in this case does not know whether
her case will remain alive sufficiently long to enable a dis-
trict court to certify a class.” Id. at 287; see also Wilson v.
Gordon, 822 F.3d 934, 945 (6th Cir. 2016) (applying the in-
herently transitory exception in the benefits processing
context because “the State can quickly process a delayed
application soon after litigation begins, and thus the dura-
tion of any plaintiff’s claim is uncertain”). Likewise, in Bel-
lin v. Zucker, the Second Circuit found the inherently
transitory exception applicable in a case concerning Medi-
caid applications because federal regulations called for rul-
ings on the requests within 14 or 28 days. 6 F.4th 463, 473
(2d Cir. 2021); see also Robidoux v. Celani, 987 F.2d 931,
939 (2d Cir. 1993) (“Appellants’ claims are inherently tran-
sitory since the [agency] will almost always be able to pro-
cess a delayed application before a plaintiff can obtain
relief through litigation.”). Finally, the Ninth Circuit has
found the inherently transitory exception applicable in a
case where full reimbursement for owed benefits could be
paid within approximately one month because “the district
court could not have been expected to rule on a motion for
class certification in that period.” Haro v. Sebelius, 747
F.3d 1099, 1110 (9th Cir. 2014).
IV
The appellants ask us to reverse the Veterans Court’s
ruling and order that a class be certified. While we are va-
cating the denial of class certification, as discussed earlier,
the question of superiority has not yet been resolved. We
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FREUND v. MCDONOUGH 16
think it best for the Veterans Court to consider this issue
in the first instance. We remand for the Veterans Court to
determine whether to certify the proposed class and, as-
suming a class is certified, how to craft the appropriate re-
lief.
CONCLUSION
The inherently transitory exception to mootness ap-
plies to this case, and the Veterans Court erred in its anal-
ysis of the commonality and adequacy requirements of
Rule 23. We reject the government’s contention that there
is an ascertainability problem with respect to the class. We
remand for the Veterans Court to further consider class
certification and, if the class is certified, to determine the
appropriate relief.
VACATED AND REMANDED
COSTS
Costs to appellants.
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