Fall 2012
M-W 4:30-5:50 pm
Professor Jeffrey Lubbers
Washington College of Law
ADMINISTRATIVE LAW [Law 601-001]
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 (3rd ed.) (West 2009). I will
also download the authors’ 2012 supplement and put it on my WCL, 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.
Please note that I will likely have to take a trip to China in the last week of November. If that
turns out to be the case, my plan is to make up those two last classes up at a time that works best
for the class—hopefully by starting 6 classes approximately about 30 minutes early, if that is not
possible, maybe by scheduling two Friday classes at the most convenient time). I will provide a
revised syllabus if this becomes necessary. This also means that we have to have class on
Thanksgiving eve. If so, I will tape the class. Sorry for the inconvenience, but please take this
into consideration in registering for this class.
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, a federal government advisory agency on improvements in the
administrative process. 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.
i
Detailed Outline of Course Reading
Classes 1-2 (August 20, 22):
I.
Introduction -- read 1-12; skim read the APA (703-720) and the Table of Sections for
the MSAPA (721-724)
A.
Role and Structure of Agencies
-
Strauss excerpt (Supplemental Readings--MyWCL)
B.
Excerpt from Breger and Edles (Supplemental Readings--MyWCL)
Chief Executive’s Appointment Power
1)
Appointment of Officers and Inferior Officers -- 430-441
-
2)
Buckley v. Valeo (1976) -- 430
Removal Power -- 441-461
-
Humphrey’s Executor v. U.S. (1935) -- 443
-
Morrison v. Olson (1988) – 446
Free Enterprise Fund v. PCAOB (2010) (S.Ct official syllabus)
(Supplemental Readings—MyWCL)
Classes 3-4 (August 27, 29):
II.
Delegation of Power to Administrative Agencies
A.
Delegation of Legislative Power -- 372-398
(1)
From Field v. Clark (1892) to the New Deal -- 374-377
(2)
From the New Deal to the Present -- The Debate about Reviving the
Nondelegation Doctrine -- 377-391
(3)
-
Industrial Union Dept., AFL-CIO v. American Petroleum Institute
(1980) (the Benzene Case) (Rehnquist, J., concurring) -- 379
-
Whitman v. American Trucking Ass’ns, Inc. (2001) – 382
The Nondelegation Doctrine and State Agencies -- 391-398
ii
B.
Problem -- 390 (bird flu)
Delegation of Adjudicatory Power to Agencies -- 398-406
-
III.
Thygesen v. Callahan (Ill. 1979) -- 391
Commodity Futures Trading Comm’n v. Schor (1986) -- 399
Problem -- 406
Substantive Statutory Checks on Agencies
A.
Debates about Statutory Interpretation:
Dynamic Interpretation
-
B.
Textualism, Intent, Purposes,
General -- 519-533
Debates about Judicial Deference to Agency Interpretations of Authorizing
Statutes
-
Marbury vs. Madison (Supplemental Readings--MyWCL)
Classes 5-6 (September 5, 10):
IV.
-
Connecticut State Medical Society v. Connecticut Board of Examiners in
Podiatry (Conn. 1988) -- 520
-
Chevron U.S.A. Inc. v. Natural Resources Defense Council, Inc. (1984) -528
The General Law of Agency Procedures
A.
B.
1.
The Adjudication - Rulemaking Distinction -- 62-68
-
Londoner v. Denver (1908) -- 62
-
Bi-Metallic Investment Co. v. State Bd. of Equalization (1915) -- 63
-
Problem -- 66
-
Anaconda Co. v. Ruckelshaus (10th Cir 1973) -- 67
Procedural Due Process Right to a Hearing
Hearings and Welfare Terminations -- 14-26
iii
2.
Goldberg v. Kelly (1970) -- 16
The Substantive Triggers of Procedural Due Process Protection: Liberty and
Property Interests -- 26-43
-
Board of Regents v. Roth (1972) -- 26
-
Cleveland Bd. of Education v. Loudermill (1985) -- 37
-
Problem -- 42
Classes 7-8 (September 12, 17):
3.
4.
C.
1.
The Timing of Trial - Type Hearings and the Extent to which Such Hearings Are
“Due” -- 43-61
-
Mathews v. Eldridge (1976) -- 44
-
Ingraham v. Wright (1977) -- 53
-
Problem -- 61
Informal Adjudication - Verkuil excerpt (Supplemental Readings--MyWCL)
Core Statutory Principles of Administrative Procedure
Administrative Adjudication
a)
Statutory Rights to an Adjudicatory Hearing -- 69-84
1)
Federal Law -- 70-78
-
2)
Dominion Energy Brayton Point, LLC v. Johnson (1st Cir.
2006) -- 71
State Law -- 78-84
-
Greenwood Manor v. Iowa Dep’t of Public Health (Iowa 2002) -- 78
-
Metsch v. University of Florida (Fla. App. 1989) -- 80
-
b)
Problem -- 83
Limiting the Issues to which Hearing Rights Apply -- 84-91
iv
-
Heckler v. Campbell (1983) -- 84
Classes 9-10 (September 19, 24):
c)
The Conflict Between Institutional and Judicialized Decisionmaking -- 91
1)
2)
The Personal Responsibility of the Decisionmakers -- 92-98
-
Morgan v. United States (1936) (Morgan I) -- 93
-
Problem -- 98
Ex Parte Contacts -- 98-107
-
3)
Agency Adjudication and Legislative Pressure -- 108-113
-
4)
5)
Professional Air Traffic Controllers Org. v. Federal Labor
Relations Authority (D.C. Cir. 1982) -- 98
Pillsbury Co. v. Federal Trade Comm’n (5th Cir. 1966) -- 108
Separation-of-Functions
Doctrine
Communications -- 113-122
and
Internal
Agency
-
Dep’t of Alcoholic Beverage Control v. Alcoholic Beverage
Control Appeals Board (Quintanar) (Cal. 2006) -- 114
-
Withrow v. Larkin (1975) -- 117
Bias: Personal Interest, Prejudgment, Personal Animus -- 122-128
-
Cinderella Career and Finishing Schools, Inc. v. Federal Trade
Comm’n (D.C. Cir. 1970) -- 123
-
Problem – 128
Yom Kippur on September 26—no class
Classes 11-12 (October 1, 3):
d)
The Processes of Administrative Adjudication
1)
The Pre-Hearing Phase: Notice, Investigation, Discovery -- 138-155
-
Bloch v. Ambach (N.Y 1989) -- 138
v
-
Craib v. Bulmash (Cal. 1989) -- 146
-
Problem -- 154
2)
Alternative Dispute Resolution in Administrative Adjudication -- 155156
3)
The Hearing Phase: Evidence and Official Notice -- 156-169
-
Reguero v. Teacher Standards and Practices Comm’n (Ore.
1991) -- 156
-
Circu v. Gonzales (9th Cir. 2006) -- 165
-
4)
5)
The Decision Phase -- 170-291
-
Ship Creek Hydraulic Syndicate v. State (Ak 1984) -- 170
-
Problem -- 177
Enforcement
-
FAA Administrator v. Hoover (NTSB) (1994 (Supplemental
Readings—MyWCL)
-
ACUS Recommendation 72-6 Civil Money Penalties as a
Sanction (Supplemental Readings--MyWCL)
Criminal Penalties as a Deterrent (Supplemental Readings-MyWCL)
Classes 13-14 (October 8-10):
6)
The Effect of Decisions: Res Judicata and Collateral Estoppel -- 177182
-
J.S. v. Bethlehem School District (Pa. 2002) -- 178
-
United States v. Mendoza (1984) -- 181
Problem -- 182
7)
Consistency of Decisions and Stare Decisis -- 183-185
-
UAW v. NLRB (7th Cir. 1986) -- 183
vi
2.
8)
Equitable Estoppel – 185-191
-
Foote’s Dixie Dandy, Inc. v. McHenry (Ark. 1980) -- 185
-
Office of Personnel Management v. Richmond (1990) -- 187
9)
Administrative Judges and Decisional Independence -- 128-137
-
Cox, Model Adjudication Rules (Supplemental Readings-MyWCL)
-
Lubbers, A Unified Corps of ALJs: A Proposal to Test the Idea
at the Federal Level (Supplemental Readings--MyWCL)
-
Lubbers, APA-Adjudication: Is the Quest for Uniformity
Fading? (Supplemental Readings--MyWCL)
Administrative Rulemaking
a)
The Rise of Rulemaking -- 192-199
b)
The Definition of “Rule” -- 199-211
Rulemaking charts (Supplemental Readings--MyWCL)
-
c)
Bowen v. Georgetown Univ. Hospital (1988) -- 205
Initiating Rulemaking Proceedings -- 211-222
-
Chocolate Mfrs. Ass’n. v. Block (4th Cir. 1985) -- 211
-
Portland Cement Ass’n. v. Ruckelshaus (D.C. Cir. 1973) -- 218
-
Problem -- 221
Classes 15-16 (October 15, 17):
d)
Public Participation -- 222-239
1)
Informal Rulemaking -- 222-224
-
USDA telephone telephone hearings rule (Supplemental Readings-MyWCL)
-
Comments Couldn’t Kill the Tobacco Rule (Supplemental Readings-MyWCL)
vii
2)
Formal Rulemaking -- 225-229
-
United States v. Florida East Coast Ry. Co.(1973) -- 225
-
3)
Hybrid Rulemaking and the Limits on Judicial Supervision of Agency
Procedures -- 230-239
-
e)
Problem -- 229
Vermont Yankee Nuclear Power Corp. v. Natural Resources
Defense Council, Inc. (1978) -- 231
Procedural Regularity in Rulemaking
1)
Role of Agency Heads -- 239-240
2)
Ex Parte Communications and -- 240-255
-
Home Box Office, Inc. v. FCC (D.C. Cir. 1977) -- 241
-
Sierra Club v. Costle (D.C. Cir. 1981) -- 244
Problem -- 254
3) Bias or Political Influence in Rulemaking -- 255-262
4)
-
Ass’n. of National Advertisers, Inc. v. FTC (D.C. Cir. 1979) -255
-
Problem -- 262
Findings and Reasons -- 262-271
Classes 17-18 (October 22, 24):
-
f)
Issuance and Publication -- 271-280
-
g)
National Ass’n. of Independent Insurers v. Texas Dep’t of
Insurance (Tex. 1996) -- 262
Powderly v. Schweiker (9th Cir. 1983) -- 273
Regulatory Analysis -- 280-296
-
Executive Order 12,866 (Supplemental Readings--MyWCL)
viii
h)
-
Eisner, DOT Rulemaking Requirements (please
http://regs.dot.gov/rulemakingrequirements.htm)
click
on
-
Corrosion Proof Fittings v. EPA (5th Cir. 1991) -- 281
-
The FDA cigarette rule (preamble excerpt) (Supplemental Readings-MyWCL)
-
Problem -- 295
Exemptions from Rulemaking Procedures
1) Good Cause Exemptions -- 305-312
-
Jifry v. Federal Aviation Administration (D.C. Cir. 2004) -- 306
-
Problem -- 311
2)
Exempted Subject Matter -- 312-315
3)
Procedural Rules -- 316-319
-
4)
Public Citizen v. Department of State (D.C. Cir. 2002) -- 316
Nonlegislative Rules -- 319-342
(a) Policy Statements -- 321-332
-
Professionals and Patients for Customized Care v. Shalala (5th
Cir. 1995) -- 321
-
ACUS Recommendation
MyWCL)
92-2
(Supplemental
Readings--
(b) Interpretive Rules -- 333-342
-
Hoctor v. United States Dept. of Agriculture (7th Cir. 1996) -333
Classes 19-20 (October 29, 31):
i)
How Much Freedom Does an Agency Have in Choosing between
Rulemaking and Adjudication as the Mode of Policymaking? -- 342-354
-
NLRB v. Bell Aerospace Co. (1974) -- 343
ix
j)
k)
V.
Rulemaking Petitions and Agency Agenda-Setting -- 354-363
-
Massachusetts v. EPA (2007) -- 355
-
Problem -- 362
Waivers of Rules -- 363-370
-
WAIT Radio v. FCC (D.C. Cir. 1969) -- 363
-
Problem -- 370
Regulatory Reform
A.
Political Oversight of the Administrative Process
1.
Legislative and Executive Review of Agency Action -- 406-430
2.
Legislative Controls
a)
Legislative Veto -- 406-427
-
3.
Immigration and Naturalization Service v. Chadha (1983) -- 407
b)
Congressional Review Act -- 417
c)
Other Legislative Controls -- 427-430
Presidential Oversight -- 461-476
-
Executive Order 12,866 (Supplemental Readings--MyWCL)
-
Unified Agenda excerpt (Supplemental Readings--MyWCL)
Problem -- 475
B.
The Debate Over Regulatory Reform
Comments on E.O 12,866 by Posner, Shane, and Strauss (Supplemental
Readings--MyWCL)
Executive Order 13,563 (Supplemental Readings--MyWCL)
GAO Briefing Report (Supplemental Readings--MyWCL)
x
Simplifying Language Gets Complicated (Supplemental Readings-MyWCL)
“Presidential Paychecks”—(shows the effect of inflation adjustment)
(Supplemental Readings--MyWCL)
-
“How Much is a Life Worth?” (Supplemental Readings--MyWCL)
The Information Quality Act (Supplemental Readings--MyWCL)
OMB Peer Review Bulletin (Supplemental Readings--MyWCL)
Classes 21-22 (November 5, 7):
VI.
Alternative Dispute Resolution
-
ABCs of ADR: A Dispute Resolution Glossary (Supplemental
Readings--MyWCL)
-
Negotiated Rulemaking -- 296-304
-
VII.
Pritzker, Working Together For
(Supplemental Readings--MyWCL)
Better
Regulations
Judicial Review of Agency Decisionmaking
A.
Practical Considerations (lecture)
B.
Scope of Judicial Review
1.
Introduction -- 502-505
2.
Scope of Review of Agency Findings of Basic Fact -- 503-519
-
3.
-
Universal Camera Corp. v. NLRB (1951) -- 505
Scope of Review of Issues of Legal Interpretation -- 519-566
-
Connecticut State Medical Society v. Connecticut Board of
Examiners in Podiatry (Conn. 1988) -- 520
-
Chevron U.S.A. Inc. v. Natural Resources Defense Council (1984) -528
Problem -- 540
xi
4.
-
-
Brown & Williamson Tobacco Corp. v. FDA (US 2000) -- 541
-
Christensen v. Harris County (US 2000) -- 554
-
United States v. Mead Corporation (US 2001) -- 556
Judicial Review of Discretionary Determinations in Adjudications -- 566581
-
Citizens to Preserve Overton Park v. Volpe (US 1971) -- 567
-
Salameda v. INS (7th Cir. 1995) -- 568
-
Tripoli Rocketry Ass’n v. Bureau of Alcohol. Tobacco, Firearms and
Explosives (D.C. Cir. 2005) (Supplemental Readings--MyWCL)
Classes 23-24 (November 12, 14):
5.
Judicial Review of Discretionary Determinations in Rulemaking -- 582-601
-
Motor Vehicle Manufacturers Ass’n. v. State Farm Mutual
Automobile Ins. Co. (1983) -- 582
-
Borden, Inc. v. Commissioner of Public Health (Mass. 1983) -- 589
C.
Problem -- 600
Availability and Timing of Judicial Review
Jurisdiction and Remedies -- 602-609 (skim 609-619)
1. Which Court?
-
ACUS Recommendation 75-3, The Choice of Forum…(Supplemental
Readings--MyWCL)
2.
Reviewability:
Preclusion of Review and “Committed to Agency
Discretion by Law”
a)
Preclusion of Judicial Review (5 U.S.C. § 701(a)(1)) -- 619-626
-
-
Bowen v. Michigan Academy of Family Physician (1986) -620
Problem -- 626
xii
b)
Committed to Agency Discretion (5 U.S.C. § 701(a)(2)) -- 626-635
-
c)
Heckler v. Chaney (1985) -- 626
Agency Inaction and Delay -- 635-642
-
Norton v. Southern Utah Wilderness Alliance (2004) -- 635
Classes 25-26 (November 19, 21):
3.
Standing of the Plaintiff to Sue -- 643-663
-
Lujan v. Defenders of Wildlife (1992) -- 645
Massachusetts v. EPA (2007) – 652
Problem -- 656
Ass’n of Data Processing Service Orgs. v. Camp (1970) -- 657
-
4.
National Credit Union Administration. v. First Nat’l Bank & Trust
(US 1998) (Supplemental Readings--MyWCL)
Timing of Judicial Review:
Jurisdiction
a.
Finality -- 663-675
-
b
Federal Trade Commission v. Standard Oil Co. of California
(1980) -- 664
Exhaustion of Administrative Remedies -- 670-681
-
c.
Finality, Ripeness, Exhaustion, Primary
Portela-Gonzalez v. Secretary of the Navy (1st Cir. 1997) -- 670
Ripeness -- 681-691
-
Abbott Laboratories v. Gardner (1967) -- 681
-
Gardner v. Toilet Goods (1967) -- 684
-
Problem -- 691
d
Primary Jurisdiction -- 691-699
xiii
Farmers Insurance Exchange v. Superior Court (Cal. 1992) -- 691
Classes 27-28 (November 26, 28): (These classes may need to be canceled and pre-made up)
VIII. Openness in Government
A.
Freedom of Information Act -- 477-493 and Supplemental Readings--MyWCL
-
Chrysler Corp v. Brown (1979) -- 488
B.
Government in the Sunshine Act -- 493-496 and Supplemental Readings-MyWCL
C.
Federal Advisory Committee Act -- 497-499 and Supplemental Readings-MyWCL
Conclusion & Review
xiv