The statute authorizing an award of fees does not contemplate egregiously dilatory agency conduct as a basis for increasing the base rate of compensation; as the "special factor" basis is listed with a "cost of living" basis, the statute authorizes increases in the award where the base rate is insufficient due to the character of the representation. Because noscitur.
http://www.cafc.uscourts.gov/sites/default/files/opinions-orders/17-2148.Opinion.6-22-2018.pdf
Since 2011. An occasional commonplacing of the U.S. Circuit Courts of Appeal.
Neither an authoritative statement of the law nor legal advice. Quick work.