OIRA's formative years: The historical record of centralized regulatory review preceding OIRA's founding

Administrative Law Review

Volumn 63, Issue SPECIAL, 2011, Pages 37-69

  Tozzi, Jim ^a  

^a Administrative Conference of the United States (ACUS)   (United States)

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EID: 84866236786     PISSN: 00018368     EISSN: None     Source Type: Journal    
DOI: None     Document Type: Conference Paper

References (100)

1. See Exec. Order No. 12, 291, 3 C. F. R. 127 (1982) ("'Major rule' [is defined as] any regulation that is likely to result in: (1) An annual effect on the economy of $100 million or
2. revoked by Exec. Order No. 12, 866, 3 C. F. R. 638 (1994).
3. Highlights from the 30th OIRA Anniversary Conference: Executive Oversight of Administrative Discretion, http://www.regulatorystudies.gwu.edu/images/pdf/ 20110524-30th-highlights.pdf.
4. See, e.g., Jim Tozzi, Remarks at The George Washington University OIRA 30th Anniversary Conference: OIRA's Formative Years (May 20, 2011), available at http://www.thecre.com/pdf/20110523-OIRA-GWU-2.pdf.
5. The speakers included virtually all former administrators and deputy administrators. For a list of speakers, see OIRA 30th Anniversary Conference - May 20th 2011: Executive Oversight of Administrative Discretion, Draft Agenda, available at http://www.uhecre.com/pdf/20110530-OIRA-30th-Anniversary- Conference-Speakers.pdf.
6. See Exec. Order No. 12, 291, 3 C. F. R. 127;
7. Exec. Order No. 12, 866, 3 C. F. R. 638 (1994)
8. reprinted as amended in 5 U. S. C. § 601 app. at 745 (2006).
9. Robert V. Percival, Who's in Charge? Does the President Have Directive Authority Over Agency Regulatory Decisions?, 79 FORDHAM L. REV. 2487, 2496 (2011) (alteration in original) (footnote omitted).
10. A. Allan Schmid, Effective Public Policy and the Government Budget: A Uniform Treatment of Public Expenditures and Public Rules, in STAFF OF SUBCOMM. ON ECON. IN GOV'T OF THE JOINT ECON. COMM., 91ST CONG., 1 THE ANALYSIS AND EVALUATION OF PUBLIC EXPENDITURES: THE PPB SYSTEM; A COMPENDIUM OF PAPERS I 579-91 (Comm. Print 1969), available at http://thecre.com/pdf/Schmid.PDF.
11. Joe Greene Conley II, Environmentalism Contained: A History of Corporate Responses to the New Environmentalism 164(Nov. 2006) (unpublished Ph. D. dissertation, Princeton University), available at http://www.thecre.com/pdf/ 20090423-conley-dissertation.pdf.
12. Pub. L. No. 74-738, 49 Stat. 1570, 1570 ("It is hereby recognized... that the Federal Government should improve or participate in the improvement of navigable waters or their tributaries, including watersheds thereof, for flood-control purposes if the benefits to whomsoever they may accrue are in excess of the estimated costs....");
13. see also JOSEPH L. ARNOLD, THE EVOLUTION OF THE 1936 FLOOD CONTROL ACT 44(1988), http://140.194.76.129/publications/eng-pamphlets/ep870-l-29/entire.pdf
14. Interview by Paul Musgrave, Richard Nixon Oral History Project of the Richard Nixon Presidential Library and Museum, with James J. Tozzi, Washington, D. C., (Mar. 26, 2009), available at http://thecre.com/video/National-Archive. html.
15. An example of the increased regulatory role of the Army Corps of Engineers relates to the implementation of the permit program pursuant to the Refuse Act, 33 U. S. C. §§ 407, 408, 411, 413 (1970).
16. The Refuse Act permit program was the federal government's answer to the public demands to control pollution of the nation's waters. Cecil E. Reinke, The Refuse Act Program: The Corps of Engineers' Role in Enforcement and Administration, 9 HOUS. L. REV. 683 (1971).
17. The Secretary of the Army began issuing permits pursuant to an executive order issued by President Nixon. Exec. Order 11, 574, 3 C. F. R. 188 (1971)
18. revoked by Exec. Order No. 12, 553, 3 C. F. R. 204 (1987)
19. In Kalur v. Resor, 335 F. Supp. 1 (D. D. C. 1971)
20. See Dan Davidson, Nixon's 'Nerd' Turns Regulations Watchdog, FED. TIMES, Nov. 11, 2001, at 22
21. Presidential Statement on Establishing the National Industrial Pollution Control Council, 1 PUB. PAPERS 344 (Apr. 9, 1970).
22. Memorandum from George P. Shultz, Dir., Office of Mgmt. & Budget, to the Heads of Departments and Agencies, Agency Regulations, Standards, and Guidelines Pertaining to Environmental Quality, Consumer Protection, and Occupational and Public Health and Safety (Oct. 5, 1971), available at http://www.thecre.com/ombpapers/QualityofLifel.htm [hereinafter Shultz].
23. Nicholas Bagley & Richard L. Revesz, Centralized Oversight of the Regulatory State, 106 COLUM. L. REV. 1260 (2006).
24. Christopher C. De Muth & Douglas H. Ginsburg, White House Review Of Agency Rulemaking, 99 HARV. L. REV. 1075 (1985)
25. Murray Weidenbaum, Regulatory Process Reform: From Ford to Clinton, REGULATION, Winter 1997, at 20.
26. ROBERT C. ANDERSON & PAUL KOBRIN, NAT'L CTR. FOR ENVTL. ECON., U. S. ENVTL. PROT. AGENCY, Regulatory Economic Analysis at the EPA § 7(June 2000), http://yosemite.epa.gov/ee/epalib/riaepa.nsf/vwT?OpenView&Count=150 (follow "7. Reviews of the Economic Analysis/RIA Process" hyperlink).
27. SCOTT J. CALLAN & JANET M. THOMAS, ENVIRONMENTAL ECONOMICS & MANAGEMENT: THEORY, POLICY, AND APPLICATIONS 172 (4th ed. 2006).
28. Exec. Order No. 12, 498, 3 C. F. R. 323 (1986)
29. revoked by Exec. Order No. 12, 866, 3 G. F. R. 638 (1994).
30. Notes, Interview by Kathryne Bernick, Assistant Staff Dir., Am. Bar Ass'n, with Jim Tozzi, Env't Branch Chief, Natural Res. Div., Office of Mgmt. & Budget Quly 18, 1977), available at http://thecre.com/pdf/Carter-ABAl.PDF
31. See Office of Management and Budget Plays Critical Part in Environmental Policymaking, Faces Little External Review, 7 ENV'T REP. (BNA) 693, 694-95 (1976)
32. Profile-OMB's Jim Joseph Tozo, ENVTL. F., May 1982, at 11, 11.
33. A. Allan Schmid, My Work As An Institutional Economist (Jan. 31, 2008) (unpublished manuscript), available at https://www.msu.edu/user/schmid/ My%20work.htm.
34. (quoting JOHN QUARLES, CLEANING UP AMERICA: AN INSIDER'S VIEW OF THE ENVIRONMENTAL PROTECTION AGENCY 68-70, 117-19 (1976))
35. Council on Wage and Price Stability Act, Pub. L. No. 93-387 §§ 3(a) (7), 5, 88 Stat. 750, 751 (1974)
36. (codified as amended at 12 U. S. C. § 1904 (1976) (repealed 1982).
37. Exec. Order No. 11, 821, 3 C. F. R. 926 (1975)
38. extended bny Exec. Order No. 11, 949, 3 C. F. R. 161 (1977).
39. Exec. Order No. 11, 949, 3 C. F. R. 161 (1977).
40. Exec. Order No. 11, 821, 3 C. F. R. 926.
41. Exec. Order 12, 044, 3 C. F. R. 152 (1979)
42. revoked by Exec. Order No. 12, 291, 3 C. F. R. 127 (1982).
43. See Consolidated Appropriations Act of 2001, Pub. L. No. 106-554, 114 Stat. 2763
44. Edward Walsh, If you Don't Like It, Get Out, White House Tells EPA Staff, WASH. POST, Feb. 23, 1979, at A14.
45. Peter Behr, Office of Management and Budget-I/There's a New Rule, Jim Tozzi Has Read It, WASH. POST, July 10, 1981, at A21.
46. Margot Hornblower, Muskie Criticizes White House Meddling With EPA Rules, WASH. POST, Feb. 27, 1979, at A2.
47. Paperwork Reduction Act of 1980, Pub. L. No. 96-511, 94 Stat. 2812
48. (codified as amended at 44 U. S. G. §§ 3501-3521 (2006)).
49. See generally Oversight of Agency Compliance with Executive Order 12044 "Improving Government Regulations": Hearing Before the Subcomm. on Oversight of Gov't Mgmt. of the S. Comm. on Governmental Affairs, 96th Cong. 150 (1979)
50. (statement of Office of Management and Budget on Improving Government Regulations-A Progress Report).
51. See OFFICE OF MGMT. & BUDGET, TOWARDS A REGULATORY BUDGET: A WORKING PAPER ON THE COST OF FEDERAL REGULATION (Jim Tozzi ed., 1979), available at http://www.thecre.com/ombpapers/regbudget.html;
52. see also CHRISTOPHER DEMUTH ET AL., JOINT. ECON. COMM. OF THE U. S. CONG., THE REGULATORY BUDGET AS A MANAGEMENT TOOL FOR REFORMING REGULATION (1979), available at http://www.chrisdemuth.com/id55.html.
53. Exec. Order 12, 174, 3 C. F. R. 462 (1980)
54. revoked by Exec. Order No. 12, 291, 3 C. F. R. 127 (1982);
55. see also OFFICE OF INFO. & REGULATORY AFFAIRS, OFFICE OF MGMT. & BUDGET, INFORMATION COLLECTION BUDGET OF THE UNITED STATES GOVERNMENT (1998), available at http://www.thecre.com/pdf/Clinton-FY98InfoCollectionBudget.PDF.
56. Office of Mgmt. & Budget, Regulatory Cost Accounting Act of 1980 (proposed bill), available at http://thecre.com/pdf/Carter-ProposedBill.PDF. For a section-by-section analysis
57. see REGULATORY COST ACCOUNTING ACT OF 1980: SECTION-BY-SECTION ANALYSIS, http://thecre.com/pdf/Carter-SectionBySectionAnal.PDF.
58. See OFFICE OF MGMT. & BUDGET, supra note 50.
59. See Jim Tozzi, The Federal Information Triangle, 8 RISK POLICY REPORT (Sept. 18, 2001), available at http://thecre.com/quality/20010924- fedinfotriangle.html.
60. 657 F.2d 298 (D. C. Cir. 1981).
61. See, e.g., Letter from Thomas E. Carroll, Assistant Adm'r, U. S. Envtl. Prot. Agency, to Donald Crabill, Chief, Natural Res. Program Div., Office of Mgmt. & Budget (Dec. 11, 1972), available at http://thecre.com/ombpapers/ QualityofLife3.htm;
62. see also Memorandum from Douglas Costle, Adm'r, U. S. Envtl. Prot. Agency, to Charles Schultze, Chairman, Council of Econ. Advisors (Aug. 24, 1977), available at http://www.thecre.com/pdf/Carter-CEA.PDF.
63. See, e.g., Timothy B. Clark, Carter's Assault on the Costs of Regulation, 10 Nat'l J. 1281 (1978) (criticizing President Carter's approach to regulatory review as being too costly).
64. J. GUSTAVE SPETH ET AL., NATURAL RESOURCES DEFENSE COUNCIL, OMB AND EPA: WHO SETS ENVIRONMENTAL POLICY? 2-4(1976), http://www.thecre.com/pdf/ QualLifeReview6.PDF.
65. Erik D. Olson, The Quiet Shift of Power: Office of Management & Budget Supervision of Environmental Protection Agency Rulemaking under Executive Order 12, 291, 4 VA. J. OF NAT. RESOURCES L. 1, 6, 80 (1984) (footnotes omitted).
66. 657 F.2d 298 (D. C. Cir. 1981).
67. The circuit court decision of Judge Wald was reinforced by the Supreme Court decision in Chevron U. SA. v. Natural Resources Defense Council, Inc., 467 U. S. 837, 865-66 (1984).
68. See Elena Kagan, Presidential Administration, 114 HARV. L. REV. 2245, 2373-74 (2000) (arguing that the "Chevron deference rule had its deepest roots in a conception of agencies as instruments of the President").
69. Sierra Club, 657 F.2d at 406 (footnotes omitted).
70. Paul R. Verkuil, Jawboning Administrative Agencies: Ex Parte Contacts by the White House, 80 COLUM. L. REV. 943 (1980).
71. (citing Office of Management and Budget Plans Critical Part in Environmental Policymaking, Faces Little External Review, 7 ENV'T. REP. (BNA) 693 (1976)).
72. (citing Office of Management and Budget Plans Critical Part in Environmental Policymaking, Faces Little External Review, 7 ENV'T. REP. (BNA) 693 (1976)).
73. see, e.g., STEVEN G. CALABRESI & Christopher S. Yoo, The Unitary Executive: Presidential Power from Washington to Bush (2008).
74. Jim Tozzi, Remarks at The George Washington University OIRA 30th Anniversary Conference: OIRA's Formative Years (May 20, 2011), available at http://www.thecre.com/pdf/20110523-OIRA-GWU-2.pdf
75. See Memorandum from Larry A. Hammond, Acting Assistant Attorney Gen., Office of Legal Counsel, U. S. Dep't of Justice, to Cecil D. Andrus, Sec'y of the Interior, Consultation with Council of Economic Advisers Concerning Rulemaking under Surface Mining Control and Reclamation Act 2(Jan. 17, 1979), available at http://thecre.com/pdf/Carter-DOEHWMemo011779.PDF ("For the reasons that follow, it is our conclusion that there is no prohibition against communications within the Executive Branch after the close of the comment period on these proposed rules. Nothing in the relevant statutes or in the decisions of the D. C. Circuit suggest the existence of a bar against full and detailed consultations between those charged with promulgating the rules and the President's advisers.");
76. Memorandum from John M. Harmon, Assistant Attorney Gen., Office of Legal Counsel, U. S. Dep't of Justice, to Simon Lazarus, Assoc. Dir., Domestic Council, President's Authority to Impose Procedural Reforms on the Independent Regulatory Agencies (July 22, 1977), available at http://thecre.com/pdf/Carter- DOJOpinion072277.PDF;
77. Memorandum from Simon Lazarus to Wayne Granquist, Applicability of Executive Order to Independent Agencies (Dec. 9, 1977), available at http://thecre.com/pdf/Carter-WhiteHouseMemo 120977.PDF.
78. Presidential Review of Agency Rulemaking (Recommendation 88-9), 1 C. F. R. § 305. 88-9 (1990).
79. See Paperwork Reduction Act of 1980: Hearing Before a Subcomm. of the H. Comm. on Gov't Operations, 96th Cong. 88-98 (1980)
80. (statements of Wayne G. Granquist, Associate Director for Management and Regulatory Policy, Office of Management and Budget and Jim J. Tozzi, Assistant Director for Regulatory and Information Policy).
81. See Dick Kirschten, The 20 Years War, 15 NAT'L J. 1238 (1983) (detailing how this perfect storm came about).
82. Memorandum from President Ronald Reagan to his Cabinet, Postponement of Pending Regulations (Jan. 29, 1981), available at http://www.thecre.com/pdf/ ReaganMemo.PDF.
83. Remarks Announcing the Establishment of the Presidential Task Force on Regulatory Relief, 1 PUB. PAPERS, 30-31 (Jan. 22, 1981).
84. Exec. Order No. 12, 288, 3 C. F. R. 125 (1981)
85. reprinted in 12 U. S. C ch. 20 app. at 377 (2006).
86. OFFICE OF THE VICE PRESIDENT, FACT SHEET: EXECUTIVE ORDER ON REGULATORY MANAGEMENT (1981), available at http://www.thecre.com/pdf/EOonRegMgmt.PDF.
87. Press Release, Ofilice of the Press Secretary, White House, Statement by the President on Regulatory Relief (June 13, 1981)
88. reprinted in WHITE HOUSE, MATERIALS ON PRESIDENT REAGAN'S PROGRAM OF REGULATORY RELIEF (1981), available at http://www.thecre.com/pdf/ ReaganRegReliefMaterials.PDF.
89. Press Release, Vice President George Bush, Statement by the Vice President Regarding Actions Taken by the President's Task Force on Regulatory Relief (Mar. 25, 1981), available at http://www.thecre.com/pdf/ VPStonTskFrceRegRelief.PDF.
90. Press Release, White House, Fact Sheet: President Reagan's Initiatives to Reduce Regulatory Burdens (Feb. 18, 1981), available at http://thecre.com/pdf/ Reagan-RegainInitiatives.PDF.
91. Mary Thornton, OMB Pressured EPA, Ex-Aide Says, WASH. POST, Sept. 28, 1983, at Al.
92. Timothy B. Clark, OMB to Keep Its Regulatory Powers in Reserve in Case Agencies Lag, 13 NAT'LJ. 424, 426 (1981).
93. Memorandum from Larry L. Simms, Acting Assistant Attorney Gen., Office of Legal Counsel, U. S. Dep't of Justice, Proposed Executive Order Entitled "Federal Regulation" (Feb. 13, 1981), available at http://www.thecre.com/pdf/DJMemoReaganEO 12291 PDF.pdf.
94. Alan B. Morrison, OMB Interference With Agency Rulemaking: The Wrong Way to Write a Regulation, 99 HARV. L REV. 1059, 1059-64 (1986).
95. Amending Executive Order 12866: Good Governance or Regulatory Usurpation?: Hearing Before the Subcomm. on Investigations & Oversight of the H. Comm. on Sci & Tech., 110th Cong. 26 (2007) (statement of David C. Vladeck, Director, Institute for Public Representation; Associate Professor of Law, Georgetown University Law Center).
96. U. S. GOV'T ACCOUNTABILITY OFFICE, GAO-03-929, OMB'S ROLE IN REVIEWS OF AGENCIES' DRAFT RULES AND THE TRANSPARENCY OF THOSE REVIEWS 3-4(2003), http://www.gao.gov/new.items/d03929.pdf.
97. See, e.g., 44 U. S. C. § 3501 (2006) (explaining that whenever an agency proposes to collect information from the public, the agency must seek OMB review and clearance for such information collection request.
98. Under 44 U. S. C. § 3502, the definition of agency includes "any executive department, military department, Government corporation, Government controlled corporation, or other establishment in the executive branch of the Government (including the Executive Office of the President), or any independent regulatory agency...." (emphasis added)).
99. See CTR. FOR REGULATORY EFFECTIVENESS, A BLUEPRINT FOR OMB REVIEW OF INDEPENDENT AGENCY REGULATIONS (2002), available at http://www.thecre.com/pdf/ blueprint.pdf.
100. Exec. Order No. 13, 563, 76 Fed. Reg. 3821, 3822 (Jan. 21, 2011).