Fall 2015
M-W 6:00-7:20 pm
Professor Jeffrey Lubbers
Washington College of Law
ADMINISTRATIVE LAW [Law 601-002]
Administrative Law is the body of law governing relations between private citizens and the
government. This course will cover four main topics: (1) the constitutional foundations of
administrative power; (2) administrative adjudication, (3) rulemaking and regulation, and (4)
judicial review of agency decisionmaking. The required casebook for this course is Michael
Asimow & Ronald Levin, State and Federal Administrative Law (4th ed.) (West 2014). I have
also downloaded the authors’ most recent supplement and posted it on MyWCL, along with my
own supplemental collection of readings. [If you do not check your WCL e-mail account
regularly, please arrange to forward mail sent to that account to your main account. See
http://www.american.edu/oit/email/Gmail-FAQ.cfm#forward.]
I am also providing a bibliography containing suggested outside readings and websites.
This course will have an examination. The grade on the examination will be the primary basis
for your grade. Excellent class participation (including on assigned problems) may provide a
basis for a “bump” in the final grade.
Professor Lubbers
Professor Jeffrey Lubbers is a widely published administrative lawyer who specializes in the
workings of American law and government. He is Professor of Practice in Administrative Law.
Since 1996, he has taught this course at WCL (and several other law schools) as well as courses
in Alternative Dispute Resolution, Federal Legal Institutions, Environmental Law, the
Washington Lawyer Seminar, and an Externship Seminar on Administrative Law in the Federal
Government. He was instrumental in the establishment of the LL.M. Program on Law and
Government. Prior to 1996, Professor Lubbers was Research Director of the Administrative
Conference of the United States (ACUS), a federal government advisory agency on
improvements in the administrative process. He is now Special Counsel to ACUS. He received
a J.D. degree from the University of Chicago where he took Administrative Law from Professor
Kenneth Culp Davis. He received an award from the ABA in 1995 for Outstanding Government
Service and from the ABA’s Section of Administrative Law and Regulatory Practice in 2013 for
Outstanding Volunteer Service. He is the author of A Guide to Federal Agency Rulemaking (5th
ed. ABA 2012).
Detailed Outline of Course Reading—(Make sure to check Casebook supplement too)
Classes 1-2 (August 24, 26):
I.
Introduction -- read 1-13; skim read the federal APA (807-826) and the section headings
for the 2010 MSAPA (827-852)
i
A.
Role and Structure of Agencies
-
Strauss excerpt (MyWCL materials)
B.
Excerpt from Breger and Edles (MyWCL materials)
Chief Executive’s Appointment Power
1)
2)
Appointment of Officers and Inferior Officers -- 496-510
-
Buckley v. Valeo (U.S. 1976) -- 496
-
Morrison v. Olson (U.S. 1988) -- 499
Removal Power -- 510-535
-
Humphrey’s Executor v. U.S. (U. S. 1935) -- 512
-
Morrison v. Olson (U.S. 1988) -- 516
Free Enterprise Fund v. PCAOB -- 527 (see full syllabus in MyWCL)
Classes 3-4 (August 31, September 2):
II.
Delegation of Power to Administrative Agencies
A.
Delegation of Legislative Power -- 429-460
(1)
From Field v. Clark (1892) to the New Deal -- 431-434
(2)
From the New Deal to the Present -- The Debate about Reviving the
Nondelegation Doctrine -- 434-450
(3)
-
Industrial Union Dept., AFL-CIO v. American Petroleum Institute
(U.S. 1980) (the Benzene Case) (Rehnquist, J., concurring) -- 436
-
Whitman v. American Trucking Ass’ns, Inc. (U.S. 2001) -- 440
The Nondelegation Doctrine and State Agencies -- 450-456
-
(4)
B.
Thygesen v. Callahan (Ill. 1979) -- 450
Delegations to Private Entities -- 456-460
Problem -- 448 (bird flu)
Delegation of Adjudicatory Power to Agencies -- 460-469
ii
-
Commodity Futures Trading Comm’n v. Schor (U.S. 1986) -- 461
III.
Problem -- 469
Substantive Statutory Checks on Agencies
A.
Debates about Statutory Interpretation:
Dynamic Interpretation
-
B.
Textualism, Intent, Purposes,
General -- 600-619
Debates about Judicial Deference to Agency Interpretations of Authorizing
Statutes
-
Marbury vs. Madison (MyWCL materials)
[Labor Day is September 7—no class]
Classes 5-6 (September 9, 14):
IV.
-
Connecticut State Medical Society v. Connecticut Board of Examiners in
Podiatry (Conn. 1988) -- 601
-
Chevron U.S.A. Inc. v. Natural Res. Def. Council, Inc. (U.S. 1984) -- 608
The General Law of Agency Procedures
A.
B.
1.
The Adjudication - Rulemaking Distinction -- 65-72
-
Londoner v. Denver (U.S. 1908) -- 65
-
Bi-Metallic Investment Co. v. State Bd. of Equalization (U.S. 1915) -- 67
-
Problem -- 70
-
Anaconda Co. v. Ruckelshaus (10th Cir 1973) -- 71
Procedural Due Process Right to a Hearing
Hearings and Welfare Terminations -- 16-26
-
2.
Goldberg v. Kelly (U.S. 1970) -- 17
The Substantive Triggers of Procedural Due Process Protection: Liberty and
Property Interests -- 26-43
-
Board of Regents v. Roth (U.S. 1972) -- 27
iii
-
Cleveland Bd. of Education v. Loudermill (U.S. 1985) -- 37
-
Problem -- 43 [Note 9]
Classes 7-8 (September 16, 21):
3.
4.
C.
1.
The Timing of Trial - Type Hearings and the Extent to which Such Hearings Are
“Due” -- 44-65
-
Mathews v. Eldridge (U.S. 1976) -- 44
-
Ingraham v. Wright (U.S. 1977) -- 55
-
Problem -- 64
Informal Adjudication - Verkuil excerpt (MyWCL materials)
Core Statutory Principles of Administrative Procedure
Administrative Adjudication
a)
Statutory Rights to an Adjudicatory Hearing -- 73-93
1)
Federal Law -- 73-84
-
2)
Dominion Energy Brayton Point, LLC v. Johnson (1st Cir.
2006) -- 75
State Law Approaches -- 84-93
-
Oregon Envt’l Council v. Oregon State Bd. of Ed. (Ore 1988) -- 85
-
Metsch v. University of Florida (Fla. App. 1989) -- 88
-
b)
Problem -- 92
Limiting the Issues to which Hearing Rights Apply -- 93-100
-
Heckler v. Campbell (U.S. 1983) – 93
[Yom Kippur is September 23—no class]
Classes 9-10 (September 28, 30):
c)
The Conflict Between Institutional and Judicialized Decisionmaking -- 100
1)
The Personal Responsibility of the Decisionmakers -- 102-108
iv
2)
-
Morgan v. United States (U.S. 1936) (Morgan I) -- 102
-
Problem -- 108
Ex Parte Contacts -- 108-118
-
3)
Agency Adjudication and Legislative Pressure -- 119-124
-
4)
Professional Air Traffic Controllers Org. v. Federal Labor
Relations Authority (D.C. Cir. 1982) -- 109
Pillsbury Co. v. Federal Trade Comm’n (5th Cir. 1966) -- 119
Separation-of-Functions
Doctrine
Communications -- 124-137
-
and
Internal
Agency
Dep’t of Alcoholic Beverage Control v. Alcoholic Beverage
Control Appeals Board (Quintanar) (Cal. 2006) -- 126
Consumer Advocate Div. v. Tenn. Regulatory Authority (Tenn
1998) -- 129
5)
Withrow v. Larkin (U.S. 1975) -- 130
Bias: Personal Interest, Prejudgment, Personal Animus -- 137-144
-
Cinderella Career and Finishing Schools, Inc. v. Federal Trade
Comm’n (D.C. Cir. 1970) -- 137
-
Problem -- 144
Classes 11-12 (October 5, 7):
d)
The Processes of Administrative Adjudication
1)
The Pre-Hearing Phase: Notice, Investigation, Discovery -- 159-179
-
Bloch v. Ambach (NY 1989) -- 159
-
Craib v. Bulmash (Cal. 1989) -- 168
-
Problem -- 177
2)
Alternative Dispute Resolution in Admin. Adjudication -- 178-179
3)
The Hearing Phase: Evidence and Official Notice -- 179-195
v
-
Reguero v. Teacher Standards & Practices Comm’n (Ore 1991)
-- 180
-
Circu v. Gonzales (9th Cir. 2006) -- 190
-
4)
5)
The Decision Phase -- 195-213
-
Ship Creek Hydraulic Syndicate v. State (AK 1984) -- 195
-
Problem -- 203
Enforcement
Criminal Penalties as a Deterrent (MyWCL materials)
-
FAA Administrator v. Hoover (NTSB 1994) (MyWCL
materials)
-
ACUS Recommendation 72-6 Civil Money Penalties as a
Sanction (MyWCL materials)
Classes 13-14 (October 12-14):
6)
The Effect of Decisions: Res Judicata and Collateral Estoppel -- 203210
-
J.S. v. Bethlehem School District (Pa. 2002) -- 204
-
United States v. Mendoza (U.S. 1984) -- 208
Problem -- 210
7)
Consistency of Decisions and Stare Decisis -- 210-213
-
UAW v. NLRB (7th Cir. 1986) -- 210
8)
Protection of Reliance Interests -- 213-221
-
FCC v. Fox Television Stations, Inc. (Fox II) (U.S. 2012) -- 213
9)
Equitable Estoppel -- 221-227
-
Foote’s Dixie Dandy, Inc. v. McHenry (Ark. 1980) -- 221
-
Office of Personnel Management v. Richmond (U.S. 1990) -- 223
9)
Administrative Judges and Decisional Independence -- 144-157
vi
2.
-
Cox, Model Adjudication Rules (MyWCL materials)
-
Lubbers, A Unified Corps of ALJs: A Proposal to Test the Idea
at the Federal Level (MyWCL materials)
-
Lubbers, APA-Adjudication:
Fading? (MyWCL materials)
Is the Quest for Uniformity
Administrative Rulemaking
a)
The Rise of Rulemaking -- 229-236
b)
The Definition of “Rule” -- 236-250
-
c)
Bowen v. Georgetown Univ. Hospital (U.S. 1988) -- 243
Initiating Rulemaking Proceedings -- 250-259
Chocolate Mfrs. Ass’n. v. Block (4th Cir. 1985) -- 250
D)
Disclosing Supporting Data in Rulemaking -- 259-265
U.S. v. Nova Scotia Food Products, Corp. (2d Cir 1977) -- 259
-
Portland Cement Ass’n. v. Ruckelshaus (D.C. Cir. 1973) -- 262
-
Problem – 258 & 265 (two-part problem)
Classes 15-16 (October 19, 21):
d)
Public Participation -- 265-287
1)
-
Informal Rulemaking -- 266-272
Rulemaking charts (MyWCL materials)
-
USDA telephone procedural rule on telephone hearings (MyWCL
materials)
-
Comments Couldn’t Kill the Tobacco Rule (MyWCL materials)
-
2)
Problem -- 271
Formal Rulemaking -- 272-278
-
United States v. Florida East Coast Ry. Co. (U.S. 1973) -- 272
vii
3)
Hybrid Rulemaking and the Limits on Judicial Supervision of Agency
Procedures -- 278-287
-
e)
Vermont Yankee Nuclear Power Corp. v. Natural Resources
Defense Council, Inc. (U.S. 1978) -- 279
Procedural Regularity in Rulemaking
1)
Role of Agency Heads -- 288-289
2)
Ex Parte Communications and -- 289-305
-
Home Box Office, Inc. v. FCC (D.C. Cir. 1977) -- 290
-
Sierra Club v. Costle (D.C. Cir. 1981) -- 293
Problem -- 305
3) Bias or Political Influence in Rulemaking -- 305-313
-
Ass’n of Nat’l Advertisers, Inc. v. FTC (D.C. Cir. 1979) --306
-
Problem -- 313
Classes 17-18 (October 26, 28):
4)
Findings and Reasons -- 314-323
-
National Ass’n of Independent Insurers v. Texas Dep’t of
Insurance (Tex 1996) -- 314
f)
Issuance and Publication -- 323-331
g)
Regulatory Analysis -- 331-352
-Sunstein vs. Heinzerling & Ackerman -- 332-336
h)
-
Corrosion Proof Fittings v. EPA (5th Cir. 1991) -- 341
-
Eisner, DOT Rulemaking Requirements (please click
https://dotgov.prod.acquia-sites.com/regulations/rulemakingrequirements-2012
-
The FDA cigarette rule (preamble excerpt) (MyWCL materials)
-
Problem -- 351
Exemptions from Rulemaking Procedures
viii
on
1) Good Cause Exemptions -- 363-371
-
Jifry v. Federal Aviation Administration (D.C. Cir. 2004) -- 364
-
Problem -- 370
2)
Exempted Subject Matter -- 371-374
3)
Procedural Rules -- 374-378
-
4)
Public Citizen v. Department of State (D.C. Cir. 2002) -- 375
Guidance Documents (aka Nonlegislative Rules) -- 378-399
(a) Policy Statements -- 380-393
-
Professionals and Patients for Customized Care v. Shalala (5th
Cir. 1995) -- 380
-
ACUS Recommendation 92-2 (MyWCL materials)
(b) Interpretive Rules -- 393-398
-
Hoctor v. U.S. Dept. of Agriculture (7th Cir. 1996) -- 394, but
please read full excerpt from previous edition (MyWCL
materials)
-
Pay special attention to note 6 on page 397 (Alaska Hunters
doctrine and its demise in Mortgage Bankers—casebook supp.)
Classes 19-20 (November 2, 4):
i)
How Much Freedom Does an Agency Have in Choosing between
Rulemaking and Adjudication as the Mode of Policymaking? -- 398409
-
j)
k)
NLRB v. Bell Aerospace Co. (U.S. 1974) -- 399
Rulemaking Petitions and Agency Agenda-Setting -- 409-419
-
Massachusetts v. EPA (U.S. 2007) -- 410
-
Problem -- 418
Waivers of Rules -- 419-427
-
WAIT Radio v. FCC (D.C. Cir. 1969) -- 419
ix
V.
Problem -- 426
Regulatory Reform
A.
Political Oversight of the Administrative Process
1.
Legislative and Executive Review of Agency Action -- 469-496
2.
Legislative Controls
a)
Legislative Vetoes and Congressional Review Act-- 470-493
-
3.
Immigration & Naturalization Service v. Chadha (1983) -- 470
b)
Congressional Review Act -- 481-484
c)
Other Legislative Controls -- 493-496
Presidential Oversight -- 535-552
-
Executive Order 12,866 (MyWCL materials)
-
Comments on E.O. 12,866 by Posner, Shane & Strauss (MyWCL
materials)
-
Executive Order 13,563 (MyWCL materials)
Problem -- 552
B.
The Debate Over Regulatory Reform
-
Unified Agenda excerpt (MyWCL materials)
-
GAO Briefing Report (MyWCL materials)
-
“Presidential Paychecks”—(shows the effect of inflation adjustment)
(MyWCL materials)
-
“How Much is a Life Worth?” (MyWCL materials)
The Information Quality Act (MyWCL materials)
OMB Peer Review Bulletin (MyWCL materials)
Classes 21-22 (November 9, 11):
VI.
Alternative Dispute Resolution
x
-
Re-read text 178-179
-
ABCs of ADR: A Dispute Resolution Glossary (MyWCL materials)
-
Negotiated Rulemaking -- 352-361
- Pritzker, Working Together For Better Regulations (MyWCL
materials)
VII.
Judicial Review of Agency Decisionmaking
A.
Practical Considerations (lecture)
B.
Scope of Judicial Review
1.
Introduction -- 581-582
2.
Scope of Review of Agency Findings of Basic Fact in Formal Proceedings
– 582-599
-
3.
Universal Camera Corp. v. NLRB (U.S. 1951) -- 584
Scope of Review of Issues of Legal Interpretation -- 600-655
a. Agency interpretations of their own statutes
-
Connecticut State Medical Society v. Connecticut Board of Examiners
in Podiatry (Conn. 1988) -- 601
-
Chevron U.S.A. Inc. v. Natural Res. Def. Council (U.S. 1984) -- 608
-
Problem -- 619
-
Brown & Williamson Tobacco Corp. v. FDA (U.S. 2000) -- 620
-
Skidmore v. Swift & Co. (U.S. 1944) -- 634
-
Christensen v. Harris County (U.S. 2000) -- 636
-
United States v. Mead Corporation (U.S. 2001) -- 638
-
City of Arlington v. FCC (U.S. 2012) (MyWCL materials)
b.
-
Agency interpretations of their own regulations “Auer Deference”
Christopher v. SmithKline Beecham Corp. (U.S. 2012) -- 649
xi
4.
Judicial Review of Discretionary Determinations and Fact-findings in
Informal Proceedings—the Arbitrary and Capricious Test -- 655-689
a. Review of discretionary determinations—informal adjudications
-
Citizens to Preserve Overton Park v. Volpe (U.S. 1971) -- 655
Tripoli Rocketry Ass’n v. Bureau of Alcohol Tobacco, Firearms and
Explosives (D.C. Cir. 2005) (MyWCL materials)
b. Review of discretionary determinations—made in formal adjudications
-
-
Butz v. Glover Livestock Comm’n Co. -- 660
Classes 23-24 (November 16, 18):
c. Review of discretionary determinations and fact-finding—made in
informal rulemaking and informal adjudications -- 663-689
-
C.
Motor Vehicle Manufacturers Ass’n v. State Farm Mutual
Automobile Ins. Co. (U.S. 1983) -- 664
Problem -- 688
Availability and Timing of Judicial Review
Jurisdiction, Remedies, and Attorney Fees -- 691-698, 705-710 (skim 698-705)
1. Which Court?
-
ACUS Recommendation 75-3, The Choice of Forum…(MyWCL materials)
2.
Reviewability:
Preclusion of Review and “Committed to Agency
Discretion by Law” -- 710-729
a)
Preclusion of Judicial Review (5 U.S.C. § 701(a)(1)) -- 710-717
-
Bowen v. Michigan Acad. of Family Physicians (1986) -- 710
-
Problem -- 717
b)
Committed to Agency Discretion (5 U.S.C. § 701(a)(2)) -- 717-729
-
c)
Heckler v. Chaney (U.S. 1985) -- 718
Agency Inaction and Delay -- 729-736
Classes 25-26 (November 23, 25):
Norton v. Southern Utah Wilderness Alliance (U.S. 2004) -- 729
xii
3.
Standing of the Plaintiff to Sue -- 737-761
-
Lujan v. Defenders of Wildlife (1992) -- 739
Massachusetts v. EPA (U.S. 2007) -- 748
Problem -- 753
Ass’n of Data Processing Service Orgs. v. Camp (U.S. 1970) -- 754
4.
Timing of Judicial Review:
Jurisdiction
a.
Introduction -- 761-762
b.
Finality -- 762-769
-
b
d
FTC v. Standard Oil Co. of California (1980) -- 762
Exhaustion of Administrative Remedies -- 769-781
-
c.
Finality, Ripeness, Exhaustion, Primary
Portela-Gonzalez v. Secretary of the Navy (1st Cir. 1997) -- 769
Ripeness -- 781-793
-
Abbott Laboratories v. Gardner (1967) -- 781
-
Gardner v. Toilet Goods (1967) -- 784
Primary Jurisdiction -- 793-801
Farmers Insurance Exchange v. Superior Court (Cal. 1992) -- 793
Classes 27-28 (November 30, December 2):
Problem -- 792
VIII. Openness in Government
A.
Freedom of Information Act -- 553-556, 562-571 and MyWCL materials
-
Chrysler Corp v. Brown (U.S. 1979) -- 567
B.
Government in the Sunshine Act -- 572-576 and MyWCL materials
C.
Federal Advisory Committee Act -- 576-579 and MyWCL materials
Conclusion & Review
xiii