cutors to conduct their investigation in a particular manner, we can only assume it would have expressed itself more clearly. See, Puerto Rico v. Franklin Cat Tax-Free Trust, — U.S. —, 136 S. Ct. 1938, 1947, 195 L.Ed.2d 298 (2016) ("Congress 'does not, one might say, hide elephants in mouseholes.' " (quoting P Whitman