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FILE - In this July 19, 2013, file photo, state-appointed emergency manager Kevyn Orr, right, and Michigan Gov. Rick Snyder, address reporters during a news conference in Detroit after Orr asked a federal judge for bankruptcy protection. Orr chose bankruptcy over diverting money from police, fire and other services to make debt payments. The move conserves cash so the city can operate, but it will hurt Detroit's image for years. It will also leave creditors with much less than they are owed and places in jeopardy the pension benefits of thousands of city retirees. (AP Photo/Carlos Osorio, File)

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FILE - In this July 22, 2013 file photo Tony Brown, left, a Department of Transportation retiree, listens to union leaders speak in Detroit. Court documents show the city, which now hopes to emerge from bankruptcy, owes more than 100,000 creditors that include individual retirees, city workers, businesses, property owners and litigants. (AP Photo/Paul Sancya)

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**FILE** President Obama pauses while speaking about his signature health care law in the Brady Press Briefing Room of the White House on Nov. 14, 2013. (Associated Press)

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This photo from Thursday, Feb. 20, 2014, shows a monument to the boxer Joe Louis in Detroit. Detroit's emergency manager filed a plan Friday, Feb. 21, 2014, to restructure the city's $18 billion debt by making cuts to pensions and creditors while offering a blueprint for emerging from the largest municipal bankruptcy in U.S. history. (AP Photo/Carlos Osorio)

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This photo from Thursday, Feb. 20, 2014, shows a monument to the boxer Joe Louis in Detroit. Detroit's emergency manager filed a plan Friday, Feb. 21, 2014, to restructure the city's $18 billion debt by making cuts to pensions and creditors while offering a blueprint for emerging from the largest municipal bankruptcy in U.S. history. (AP Photo/Carlos Osorio)

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University of Michigan provost Martha Pollack speaks with Tyrell Collier and Shayla Scales, both seniors and members of the Black Student Union, after a Board of Regents meeting Thursday, Feb. 20 at the Michigan Union in Ann Arbor, Mich. (AP Photo/The Ann Arbor News, Brianne Bowen)

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Members of By Any Means Necessary, a civil rights activist group, protest during a Board of Regents meeting Thursday, February 20 at the Michigan Union in Ann Arbor, Mich. (AP Photo/The Ann Arbor News, Brianne Bowen)

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Members of By Any Means Necessary, a civil rights activist group, protest during a Board of Regents meeting Thursday, Feb. 20 at the Michigan Union in Ann Arbor, Mich. (AP Photo/The Ann Arbor News, Brianne Bowen)