"Enjoining the application of grant conditions to hundreds of grant applicants that are not parties to the litigation contravenes fundamental principles of Article III and equity, and it strays far beyond the traditional, proper role of federal courts. The injunction issued in this case reflects the increasingly prevalent trend of entering categorical, absent-party injunctions that bar any enforcement of federal laws or policies against any person. Such injunctions frustrate development of the law, effectively freezing in place the first ruling adverse to the government unless and until appellate courts intervene."