Preface |
|
xxiii | |
Acknowledgments |
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xxix | |
Part One Institutional Framework |
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1 | (414) |
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Chapter I The Nature And Functions Of Administrative Agencies |
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3 | (114) |
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A The Origin and Mandate of Administrative Agencies |
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6 | (9) |
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1 Theories of the Origin of Administrative Agencies |
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6 | (3) |
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2 A Case Study: The Occupational Safety and Health Act |
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9 | (6) |
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13 | (2) |
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B Legislative Control of Administrative Agencies |
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15 | (45) |
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1 Authorization: The Problem of Delegation |
|
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15 | (20) |
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A.L.A. Schechter Poultry Corp. v. United States |
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17 | (2) |
|
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19 | (2) |
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Industrial Union Dept., AFL-CIO v. American Petroleum Institute (The Benzene Case) |
|
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21 | (2) |
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Mistretta v. United States |
|
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23 | (1) |
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24 | (3) |
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Whitman v. American Trucking Assns., Inc. |
|
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27 | (4) |
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31 | (4) |
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2 Revision: The Legislative Veto |
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35 | (16) |
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Immigration and Naturalization Service v. Chadha |
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36 | (12) |
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48 | (3) |
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3 Appropriations: Riders and the Line-Item Veto |
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51 | (8) |
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Robertson v. Seattle Audubon Society |
|
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51 | (2) |
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53 | (2) |
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Clinton v. City of New York |
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55 | (3) |
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58 | (1) |
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59 | (1) |
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C Executive Control of Administrative Agencies |
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60 | (57) |
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62 | (9) |
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Youngstown Sheet & Tube Co. v. Sawyer |
|
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63 | (1) |
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64 | (3) |
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The Tobacco Marketing Rule: A Case Study in "Presidential Administration" |
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67 | (2) |
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69 | (2) |
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2 Appointment and Removal Powers |
|
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71 | (42) |
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71 | (1) |
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71 | (1) |
|
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74 | (1) |
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National Labor Relations Board v. Noel Canning |
|
|
78 | (1) |
|
|
83 | (2) |
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|
85 | (1) |
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86 | (1) |
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Humphrey's Executor v. United States |
|
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87 | (1) |
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88 | (1) |
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|
90 | (2) |
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c . Appointment and Removal Reconsidered: The Independent Counsel and the Accounting Board |
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92 | (1) |
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93 | (1) |
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102 | (1) |
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Free Enterprise Fund v. Public Company Accounting Oversight Board |
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104 | (1) |
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112 | (1) |
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3 Allocation of Executive Authority: Subdelegation |
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113 | (6) |
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United States Telecom Assn. v. Federal Communications Commission |
|
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114 | (1) |
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115 | (2) |
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Chapter II Judicial Review Of Administrative Decisions |
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|
117 | (160) |
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A Standards of Judicial Review Under the Administrative Procedure Act |
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119 | (15) |
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1 Standards of Review and the Overton Park Saga |
|
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119 | (11) |
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Citizens to Preserve Overton Park v. Volpe |
|
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123 | (5) |
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128 | (2) |
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2 The Basis for Judicial Review: Records and Reasons |
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130 | (4) |
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130 | (1) |
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131 | (1) |
|
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132 | (2) |
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B Arbitrary and Capricious Review of Questions of Fact or Policy |
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134 | (40) |
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1 The Evolving Understanding: From "No Reasonable Ground" to "Hard Look" Review |
|
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134 | (24) |
|
Motor Vehicle Manufacturers Assn. v. State Farm Mutual Automobile Insurance Co. |
|
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137 | (7) |
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144 | (3) |
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Department of Commerce v. New York |
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147 | (11) |
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158 | (1) |
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2 Arbitrary, Capricious Review of Agency Changes of Policy |
|
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158 | (9) |
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Federal Communications Commission v. Fox Television Stations, Inc. |
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159 | (5) |
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164 | (1) |
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Encino Motorcars, LLC v. Navarro |
|
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165 | (2) |
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3 Arbitrary, Capricious Review of Agency Decisions Not to Act |
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167 | (7) |
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Massachusetts v. Environmental Protection Agency |
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168 | (5) |
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173 | (1) |
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C Judicial Review of Questions of Law |
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174 | (70) |
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176 | (4) |
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National Labor Relations Board v. Hearst Publications, Inc. |
|
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176 | (2) |
|
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178 | (1) |
|
|
179 | (1) |
|
|
180 | (9) |
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Chevron U.S.A., Inc. v. Natural Resources Defense Council, Inc. |
|
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181 | (6) |
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187 | (2) |
|
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189 | (11) |
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a Modes of Statutory Interpretation |
|
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189 | (1) |
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MCI Telecommunications Corp. v. American Telephone & Telegraph Co. |
|
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190 | (1) |
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Babbitt v. Sweet Home Chapter of Communities for a Great Oregon |
|
|
190 | (1) |
|
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192 | (1) |
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192 | (1) |
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Food and Drug Administration v. Brown & Williamson Tobacco Corp. |
|
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192 | (1) |
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195 | (1) |
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Massachusetts v. Environmental Protection Agency |
|
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196 | (1) |
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199 | (1) |
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4 Chevron Step Two: "Permissible" and "Reasonable" Constructions |
|
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200 | (7) |
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Utility Air Regulatory Group v. Environmental Protection Agency |
|
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200 | (4) |
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204 | (3) |
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5 Chevron Deference to Conflicting or Changing Interpretations? |
|
|
207 | (4) |
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National Cable & Telecommunications Assn. v. Brand X Internet Servs. |
|
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207 | (2) |
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209 | (2) |
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6 Chevron "Step Zero": Interpretations Having the "Force of Law" and "Jurisdictional" Questions |
|
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211 | (18) |
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a Interpretations Not Having the "Force of Law" |
|
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211 | (1) |
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United States v. Mead Corp. |
|
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212 | (1) |
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|
220 | (2) |
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b Agency Interpretations of "Jurisdictional" Statutes |
|
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222 | (1) |
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City of Arlington v. Federal Communications Commission |
|
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222 | (1) |
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228 | (1) |
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7 Judicial Deference to an Agency's Interpretations of Its Own Rules |
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229 | (13) |
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|
229 | (12) |
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241 | (1) |
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8 Chevron Reconsidered: Its Impact, Its Future |
|
|
242 | (2) |
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D Judicial Review of Questions of Fact or Policy Under the Substantial Evidence Test |
|
|
244 | (29) |
|
|
244 | (20) |
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In the Matter of Universal Camera Corporation |
|
|
247 | (1) |
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National Labor Relations Board v. Universal Camera Corp. |
|
|
248 | (2) |
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Universal Camera Corp. v. National Labor Relations Board |
|
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250 | (5) |
|
National Labor Relations Board v. Universal Camera Corp. |
|
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255 | (2) |
|
|
257 | (2) |
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|
259 | (4) |
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|
263 | (1) |
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|
264 | (17) |
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Industrial Union Dept., AFL-CIO v. American Petroleum Institute (The Benzene Case) |
|
|
265 | (6) |
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|
271 | (2) |
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E Judicial Remedies for Unlawful Agency Action |
|
|
273 | (4) |
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Chapter III Availability Of Judicial Review |
|
|
277 | (138) |
|
|
278 | (3) |
|
|
281 | (70) |
|
|
282 | (11) |
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Norton v. Southern Utah Wilderness Alliance |
|
|
283 | (6) |
|
|
289 | (2) |
|
Public Citizen Health Research Group v. Chao |
|
|
291 | (2) |
|
|
293 | (1) |
|
2 Statutory Preclusion of Review |
|
|
293 | (20) |
|
|
295 | (1) |
|
|
296 | (1) |
|
Cuozzo Speed Technologies, LLC v. Lee |
|
|
297 | (6) |
|
|
303 | (1) |
|
McNary v. Haitian Refugee Center, Inc. |
|
|
304 | (7) |
|
|
311 | (2) |
|
3 Committed to Agency Discretion by Law |
|
|
313 | (38) |
|
|
314 | (1) |
|
|
314 | (1) |
|
|
323 | (1) |
|
Department of Commerce v. New York |
|
|
325 | (1) |
|
|
329 | (1) |
|
b Prosecutorial Discretion |
|
|
329 | (1) |
|
|
331 | (1) |
|
|
339 | (1) |
|
|
340 | (1) |
|
|
345 | (2) |
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c Resource Allocation and Appropriations |
|
|
347 | (1) |
|
|
347 | (1) |
|
|
350 | (1) |
|
C Standing to Secure Judicial Review |
|
|
351 | (37) |
|
|
353 | (2) |
|
2 Standing Under the Administrative Procedure Act |
|
|
355 | (5) |
|
Association of Data Processing Service Organizations, Inc. v. Camp |
|
|
355 | (2) |
|
|
357 | (3) |
|
3 Constitutional Standing Requirements: Injury, Causation, Redressability |
|
|
360 | (28) |
|
Lujan v. Defenders of Wildlife |
|
|
362 | (12) |
|
|
374 | (4) |
|
Massachusetts v. Environmental Protection Agency |
|
|
378 | (7) |
|
|
385 | (3) |
|
D The Timing of Judicial Review |
|
|
388 | (29) |
|
1 Pre-Enforcement Challenges: Ripeness and Finality Requirements |
|
|
389 | (16) |
|
Abbott Laboratories v. Gardner |
|
|
390 | (4) |
|
|
394 | (2) |
|
Gardner v. Toilet Goods Assn. |
|
|
396 | (2) |
|
|
398 | (7) |
|
2 Exhaustion of Administrative Remedies Prior to Seeking Judicial Review |
|
|
405 | (13) |
|
a Exhaustion Outside the APA |
|
|
406 | (4) |
|
b Exhaustion Under the APA |
|
|
410 | (5) |
Part Two Administrative Functions |
|
415 | (470) |
|
Chapter IV Choice Of Policymaking Instruments |
|
|
417 | (62) |
|
A Legal Constraints on Choice of Policymaking Instruments |
|
|
418 | (5) |
|
1 Due Process Constraints |
|
|
418 | (3) |
|
|
418 | (2) |
|
Bi-Metallic Investment Co. v. State Board of Equalization |
|
|
420 | (1) |
|
|
420 | (1) |
|
|
421 | (2) |
|
B Agency Authority and Discretion to Make Policy by Rule |
|
|
423 | (26) |
|
United States v. Storer Broadcasting Co. |
|
|
426 | (3) |
|
|
429 | (5) |
|
National Petroleum Refiners Assn. v. Federal Trade Commission |
|
|
434 | (6) |
|
|
440 | (2) |
|
Chamber of Commerce of the United States v. National Labor Relations Board |
|
|
442 | (1) |
|
|
443 | (2) |
|
|
445 | (3) |
|
|
448 | (1) |
|
C Agency Discretion to Make Policy by Order After Adjudication |
|
|
449 | (17) |
|
|
450 | (2) |
|
Excelsior Underwear, Inc. |
|
|
452 | (3) |
|
|
455 | (1) |
|
National Labor Relations Board v. Wyman-Gordon Co. |
|
|
455 | (7) |
|
|
462 | (2) |
|
National Labor Relations Board v. Bell Aerospace Co. |
|
|
464 | (1) |
|
|
465 | (1) |
|
D Agency Discretion to Make Policy by Manual or Informal Guidance |
|
|
466 | (13) |
|
|
467 | (5) |
|
|
472 | (2) |
|
Note on Agencies' Obligation to Follow Their Own Procedural Rules |
|
|
474 | (5) |
|
|
479 | (140) |
|
A Formal and Informal Models of Rulemaking Under the Administrative Procedure Act |
|
|
479 | (3) |
|
United States v. Allegheny-Ludlum Steel Corp. |
|
|
480 | (1) |
|
United States v. Florida East Coast Ry. Co. |
|
|
481 | (1) |
|
B Rulemaking Procedure Under APA §553 and Related Statutes |
|
|
482 | (98) |
|
|
482 | (8) |
|
Chocolate Manufacturers Assn. v. Block |
|
|
483 | (5) |
|
|
488 | (1) |
|
Long Island Care at Home, Ltd. v. Coke |
|
|
489 | (1) |
|
2 Explanation of the Decision: The Concise General Statement |
|
|
490 | (4) |
|
United States v. Nova Scotia Food Prods. Corp. |
|
|
491 | (1) |
|
|
492 | (2) |
|
3 Protecting the Integrity of the Rulemaking "Record": Ex Parte Contacts, Political Influence, and Prejudgment |
|
|
494 | (36) |
|
a Exclusivity of the Rulemaking Record and Ex Parte Contacts |
|
|
494 | (1) |
|
Home Box Office v. Federal Communications Commission |
|
|
497 | (1) |
|
|
501 | (2) |
|
b Political Influence on Administrative Policy, Late Comments, and Ex Parte Contacts |
|
|
503 | (1) |
|
|
506 | (1) |
|
|
514 | (1) |
|
District of Columbia Federation of Civic Assns. v. Volpe |
|
|
514 | (2) |
|
c Impartiality of the Rulemaker |
|
|
516 | (1) |
|
Association of National Advertisers, Inc. v. Federal Trade Commission |
|
|
522 | (1) |
|
|
528 | (2) |
|
4 Embellishing the APA Model of Informal Rulemaking Through "Hybrid" Procedures |
|
|
530 | (17) |
|
|
530 | (1) |
|
b Judicially Fashioned Hybrids |
|
|
531 | (1) |
|
Natural Resources Defense Council, Inc. v. Nuclear Regulatory Commission |
|
|
534 | (1) |
|
Vermont Yankee Nuclear Power Corp. v. Natural Resources Defense Council, Inc. |
|
|
538 | (1) |
|
|
542 | (1) |
|
American Radio Relay League, Inc. v. Federal Communications Commission |
|
|
544 | (3) |
|
5 Exemptions from APA §553 |
|
|
547 | (21) |
|
National Family Planning & Reproductive Health Assn., Inc. v. Sullivan |
|
|
548 | (5) |
|
|
553 | (1) |
|
Hoctor v. United States Department of Agriculture |
|
|
554 | (4) |
|
|
558 | (1) |
|
|
559 | (1) |
|
|
560 | (1) |
|
|
561 | (2) |
|
|
563 | (5) |
|
6 Agency Authority to Stay Promulgated Rules |
|
|
568 | (3) |
|
Natural Resources Defense Council v. National Highway Traffic Safety Administration |
|
|
569 | (2) |
|
|
571 | (1) |
|
7 Alternative Rulemaking Models |
|
|
571 | (9) |
|
|
571 | (1) |
|
|
573 | (1) |
|
USA Group Loan Services, Inc. v. Riley |
|
|
574 | (1) |
|
|
576 | (1) |
|
b Alternatives to Negotiated Rulemaking |
|
|
577 | (3) |
|
C Strengthening the Analytic Basis of Policymaking |
|
|
580 | (39) |
|
|
580 | (20) |
|
American Textile Manufacturers Institute v. Donovan |
|
|
584 | (2) |
|
|
586 | (1) |
|
Whitman v. American Trucking Associations, Inc. |
|
|
587 | (5) |
|
|
592 | (1) |
|
Entergy Corp. v. Riverkeeper, Inc. |
|
|
592 | (6) |
|
|
598 | (2) |
|
2 Presidential Oversight of Rulemaking |
|
|
600 | (8) |
|
|
605 | (1) |
|
Executive Order 13,771: Reducing Regulation and Controlling Regulatory Costs |
|
|
606 | (1) |
|
|
607 | (1) |
|
3 Impact Statements: The Case of the National Environmental Policy Act |
|
|
608 | (12) |
|
Calvert Cliffs' Coordinating Committee v. Atomic Energy Commission |
|
|
609 | (2) |
|
Vermont Yankee Nuclear Power Corp. v. Natural Resources Defense Council |
|
|
611 | (1) |
|
|
612 | (1) |
|
Robertson v. Methow Valley Citizens Council |
|
|
613 | (2) |
|
|
615 | (4) |
|
|
619 | (120) |
|
A Agency Authority to Adjudicate |
|
|
620 | (14) |
|
Commodity Futures Trading Commission v. Schor |
|
|
622 | (7) |
|
|
629 | (1) |
|
|
629 | (3) |
|
|
632 | (2) |
|
B Due Process Hearing Rights |
|
|
634 | (55) |
|
1 The Interests Protected by Due Process |
|
|
635 | (29) |
|
|
638 | (8) |
|
|
646 | (1) |
|
|
647 | (5) |
|
|
652 | (3) |
|
|
655 | (2) |
|
|
657 | (1) |
|
Cleveland Board of Education v. Loudermill |
|
|
658 | (1) |
|
|
659 | (5) |
|
2 The Requirements of Due Process |
|
|
664 | (25) |
|
|
665 | (1) |
|
|
667 | (1) |
|
|
671 | (4) |
|
b The Right to a Neutral Decisionmaker |
|
|
675 | (1) |
|
|
675 | (1) |
|
Ward v. Village of Monroeville |
|
|
676 | (1) |
|
|
676 | (1) |
|
|
677 | (1) |
|
|
680 | (1) |
|
Cinderella Career and Finishing Schools, Inc. v. Federal Trade Commission |
|
|
682 | (1) |
|
|
685 | (1) |
|
|
687 | (2) |
|
C Statutory Hearing Requirements |
|
|
689 | (50) |
|
1 "Triggering" the APA's Formal Adjudication Requirements |
|
|
691 | (5) |
|
Seacoast Anti-Pollution League v. Costle |
|
|
691 | (3) |
|
|
694 | (1) |
|
Dominion Energy Brayton Point, LLC v. Johnson |
|
|
695 | (1) |
|
|
696 | (1) |
|
2 Procedural Issues in Formal Adjudication |
|
|
696 | (28) |
|
a Discovery and Cross-Examination |
|
|
697 | (1) |
|
Citizens Awareness Network, Inc. v. United States |
|
|
697 | (1) |
|
|
701 | (1) |
|
|
702 | (1) |
|
Southern California Edison Co. v. Federal Energy Regulatory Commission |
|
|
703 | (1) |
|
|
705 | (2) |
|
|
707 | (1) |
|
Armstrong v. Commodity Futures Trading Commission |
|
|
708 | (1) |
|
|
710 | (1) |
|
|
711 | (1) |
|
Envirocare of Utah, Inc. v. Nuclear Regulatory Commission |
|
|
711 | (1) |
|
|
715 | (1) |
|
e Restrictions on Ex Parte Communications in Adjudication |
|
|
715 | (1) |
|
Portland Audubon Society v. Endangered Species Committee |
|
|
717 | (1) |
|
|
723 | (1) |
|
3 Appointment and Oversight of Administrative Hearing Officers and ALJ Impartiality: Achieving Consistency in a Regime of Mass Administrative Justice |
|
|
724 | (9) |
|
Association of Administrative Law Judges v. Heckler |
|
|
726 | (3) |
|
|
729 | (4) |
|
|
733 | (6) |
|
Pension Benefit Guaranty Corp. v. LTV Corp. |
|
|
734 | (2) |
|
|
736 | (3) |
|
Chapter VII Enforcement And Liability |
|
|
739 | (102) |
|
|
739 | (47) |
|
1 Monitoring and Investigation |
|
|
742 | (26) |
|
|
742 | (1) |
|
Marshall v. Barlow's, Inc. |
|
|
746 | (1) |
|
|
752 | (2) |
|
b Compulsory Production of Information |
|
|
754 | (3) |
|
c Record-Keeping Requirements |
|
|
757 | (1) |
|
Ruckelshaus v. Monsanto Co. |
|
|
759 | (1) |
|
|
767 | (1) |
|
2 Prosecution and Selective Enforcement |
|
|
768 | (18) |
|
a Prosecutorial Incentives |
|
|
768 | (1) |
|
b Remedies for Selective Enforcement |
|
|
769 | (1) |
|
Moog Industries, Inc. v. Federal Trade Commission |
|
|
771 | (1) |
|
Federal Trade Commission v. Universal-Rundle Corp. |
|
|
772 | (1) |
|
|
776 | (2) |
|
c Agency Enforcement Orders |
|
|
778 | (1) |
|
General Electric Co. v. Jackson |
|
|
779 | (1) |
|
|
784 | (2) |
|
B Private Litigation and Regulatory Enforcement |
|
|
786 | (38) |
|
1 Citizen Suits to Compel Public Enforcement |
|
|
786 | (7) |
|
|
787 | (4) |
|
|
791 | (1) |
|
|
791 | (2) |
|
2 Implied Private Rights of Action to Enforce Public Laws |
|
|
793 | (14) |
|
a Expansion: Policy-Based Justifications for Implying Private Rights of Action |
|
|
794 | (1) |
|
|
794 | (1) |
|
|
795 | (1) |
|
b Retrenchment: Reading Legislative Intent to Exclude Private Rights of Action |
|
|
796 | (1) |
|
|
797 | (1) |
|
|
801 | (1) |
|
Cannon v. University of Chicago |
|
|
802 | (1) |
|
Karahalios v. National Federation of Federal Employees, Local 1263 |
|
|
804 | (1) |
|
|
806 | (1) |
|
3 Public-Law Preclusion of Existing Private Remedies: Primary Jurisdiction and Pre-emption |
|
|
807 | (17) |
|
|
808 | (2) |
|
|
810 | (1) |
|
Geier v. American Honda Motor Co., Inc. |
|
|
813 | (1) |
|
|
820 | (4) |
|
C Liability of Public Entities and Officers |
|
|
824 | (17) |
|
1 Suits Against Sovereigns: Sovereign Immunity and the Federal Tort Claims Act |
|
|
825 | (14) |
|
United States v. S.A. Empresa de Viacao Aerea Rio-Grandense (VARIG Airlines) |
|
|
828 | (1) |
|
Berkovitz v. United States |
|
|
829 | (5) |
|
|
834 | (1) |
|
|
835 | (1) |
|
|
836 | (3) |
|
2 Suits Against Individual Government Officers |
|
|
839 | (2) |
|
|
841 | (44) |
|
|
842 | (14) |
|
1 Due Process, Equal Protection, and the Problem of Self-Interest |
|
|
842 | (5) |
|
|
845 | (1) |
|
|
845 | (1) |
|
|
846 | (1) |
|
2 Anticompetitive Behavior and Antitrust Restraints |
|
|
847 | (7) |
|
North Carolina State Board of Dental Examiners v. Federal Trade Commission |
|
|
848 | (6) |
|
|
854 | (1) |
|
3 Other Constraints on Occupational Licensing |
|
|
854 | (2) |
|
|
856 | (31) |
|
1 Entry Regulation: The Case of Broadcasting |
|
|
856 | (20) |
|
a Comparative Hearing Procedure |
|
|
857 | (1) |
|
Ashbacker Radio Corp. v. Federal Communications Commission |
|
|
857 | (1) |
|
|
861 | (1) |
|
|
862 | (2) |
|
|
864 | (1) |
|
d Licensee Supervision: The Problem of "Jawboning" |
|
|
865 | (1) |
|
Writers Guild of America, West, Inc. v. American Broadcasting Cos. |
|
|
866 | (1) |
|
|
867 | (1) |
|
e . "The Regulatory Ratchet": Expansion of Regulatory Jurisdiction to Ancillary Activities |
|
|
868 | (1) |
|
United States v. Southwestern Cable Co. |
|
|
869 | (1) |
|
|
872 | (4) |
|
2 Rate Regulation: The Case of Telephone |
|
|
876 | (11) |
|
MCI Telecommunications Corp. v. American Telephone & Telegraph Co. |
|
|
878 | (4) |
|
|
882 | (3) |
Part Three Indirect Controls |
|
885 | (58) |
|
|
887 | (56) |
|
A Public Access to Government Records |
|
|
887 | (42) |
|
1 Agency Records Under the Freedom of Information Act |
|
|
889 | (10) |
|
Kissinger v. Reporters Committee for Freedom of the Press |
|
|
889 | (8) |
|
|
897 | (2) |
|
2 Exemptions from FOIA's Disclosure Requirement |
|
|
899 | (30) |
|
|
900 | (1) |
|
Milner v. Department of the Navy |
|
|
900 | (1) |
|
|
905 | (1) |
|
|
906 | (1) |
|
National Labor Relations Board v. Sears, Roebuck & Co. |
|
|
906 | (1) |
|
|
910 | (3) |
|
|
913 | (1) |
|
Federal Bureau of Investigation v. Abramson |
|
|
913 | (1) |
|
|
918 | (3) |
|
|
921 | (1) |
|
Department of Justice v. Reporters Committee for Freedom of the Press |
|
|
921 | (1) |
|
|
926 | (3) |
|
B Public Access to Administrative Deliberations |
|
|
929 | (14) |
|
1 "Meetings of an Agency" |
|
|
930 | (3) |
|
Federal Communications Commission v. ITT World Communications, Inc. |
|
|
930 | (3) |
|
|
933 | (1) |
|
|
933 | (10) |
|
Common Cause v. Nuclear Regulatory Commission |
|
|
934 | (6) |
|
|
940 | (3) |
Appendix |
|
943 | (26) |
|
The Constitution of the United States of America (Selected Provisions) |
|
|
943 | (9) |
|
The Administrative Procedure Act and Related Provisions |
|
|
952 | (17) |
Table of Cases |
|
969 | (12) |
Table of Secondary Authorities |
|
981 | (8) |
Index |
|
989 | |