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“The States have satisfied the Winter test because they have shown that they are likely to succeed on the merits of the claims that would entitle them to relief; the States are likely to suffer irreparable harm in the absence of preliminary relief; the balance of equities favor the States; and a TRO is in the public interest. The court also finds that the States have satisfied the ‘alternative’ Cottrell test because they have established at least serious questions going to the merits of their claims and that the balance of equities tips sharply in their favor. As the court noted for the Winter test, the States have also established a likelihood of irreparable injury and that a TRO is in the public interest.”
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