Regleprudence - At OIRA and beyond

Georgetown Law Journal

Volumn 103, Issue 2, 2014, Pages 259-315

  Davidson, Nestor M ^b   Leib, Ethan J ^a  

^a FORDHAM LAW SCHOOL   (United States)

^b NONE

Author keywords

[No Author keywords available]

Indexed keywords

EID: 84921000877     PISSN: 00168092     EISSN: None     Source Type: Journal    
DOI: None     Document Type: Review

References (183)

1. Julius Cohen, Towards Realism in Legisprudence, 59 YALE L.J. 886 (1950).
2. See, e.g., Trevor W. Morrison, Stare Decisis in the Office of Legal Counsel, 110 COLUM. L. REV. 1448 (2010);
3. Mark Tushnet, Legislative and Executive Stare Decisis, 83 NOTRE DAME L. REV. 1339 (2008);
4. see also MICHAEL J. GERHARDT, THE POWER OF PRECEDENT 111-12 (2008).
5. WILLIAM N. ESKRIDGE, JR., PHILIP P. FRICKEY & ELIZABETH GARRETT, CASES AND MATERIALS ON LEGISLATION: STATUTES AND THE CREATION OF PUBLIC POLICY 587 n.a. (4th ed. 2007).
6. See, e.g., Alex Acs & Charles M. Cameron, Does White House Regulatory Review Produce a Chilling Effect and "OIRA Avoidance" in the Agencies?, 43 PRESIDENTIAL STUD. Q. 443 (2013);
7. Christopher DeMuth, OIRA at Thirty, 63 ADMIN. L. REV. 101 (2011);
8. Michael A. Livermore, Cost-Benefit Analysis and Agency Independence, 81 U. CHI. L. REV. 609 (2014);
9. Michael A. Livermore & Richard L. Revesz, Regulatory Review, Capture, and Agency Inaction, 101 GEO. L.J. 1337 (2013);
10. Jennifer Nou, Agency Self-Insulation Under Presidential Review, 126 HARV. L. REV. 1755 (2013);
11. Cass R. Sunstein, Commentary, The Office of Information and Regulatory Affairs: Myths and Realities, 126 HARV. L. REV. 1838 (2013);
12. Note, OIRA Avoidance, 124 HARV. L. REV. 994 (2011).
13. See, e.g., Lisa Heinzerling, Inside EPA: A Former Insider's Reflections on the Relationship Between the Obama EPA and the Obama White House, 31 PACE ENVTL. L. REV. 325 (2014) [hereinafter Heinzerling, Inside EPA] (highlighting that OIRA has the capacity to displace statutory means and ends);
14. Lisa Heinzerling, Statutory Interpretation in the Era of OIRA, 33 FORDHAM URB. L.J. 1097 (2006) [hereinafter Heinzerling, Statutory Interpretation] (same).
15. Memorandum from Larry L. Simms, Acting Assistant Att'y Gen., Office of Legal Counsel, to David Stockman, Dir., Office of Mgmt. & Budget, Proposed Executive Order Entitled "Federal Regulation" 64 (Feb. 13, 1981), available at http://www.justice.gov/sites/default/files/olc/opinions/1981/02/31/op-olc-v005-p0059.pdf.
16. See Thomas W. Merrill, Article III, Agency Adjudication, and the Origins of the Appellate Review Model of Administrative Law, 111 COLUM. L. REV. 939, 940-41 (2011)
17. See generally Adrian Vermeule, Conventions of Agency Independence, 113 COLUM. L. REV. 1163 (2013).
18. Henry J. Friendly, Indiscretion About Discretion, 31 EMORY L.J. 747, 758 (1982).
19. Lisa Heinzerling, Who Will Run the EPA?, 30 YALE J. ON REG. ONLINE 39 (2013), jreg.commons.yale.edu/files/2013/03/Heinzerling-EPA5.pdf;
20. Thomas O. McGarity, Some Thoughts on "Deossifying" the Rulemaking Process, 41 DUKE L.J. 1385 (1992)
21. See, e.g., William N. Eskridge, Jr., Nino's Nightmare: Legal Process Theory as a Jurisprudence of Toggling Between Facts and Norms, 57 ST. LOUIS U. L.J. 865, 867-69 (2013);
22. William N. Eskridge, Jr., The New Textualism, 37 UCLA L. REV. 621, 624 (1990);
23. Edward J. Imwinkelried, Using the Evidence Course as a Vehicle for Teaching Legisprudential Skills, 21 QUINNIPIAC L. REV. 907, 910, 915 (2003).
24. See, e.g., Hanah Metchis Volokh, A Read-the-Bill Rule for Congress, 76 MO. L. REV. 135, 140 n.26 (2011)
25. See generally Julius Cohen, Legisprudence: Problems and Agenda, 11 HOFSTRA L. REV. 1163 (1983).
26. See generally Ethan J. Leib, Adding Legislation Courses to the First-Year Curriculum, 58 J. LEGAL EDUC. 166 (2008)
27. See generally EDWARD L. RUBIN, BEYOND CAMELOT: RETHINKING POLITICS AND LAW FOR THE MODERN STATE (2005).
28. See generally Ethan J. Leib & David L. Ponet, Fiduciary Representation and Deliberative Engagement with Children, 20 J. POL. PHIL. 178 (2012);
29. Ethan J. Leib, David L. Ponet & Michael Serota, Translating Fiduciary Principles into Public Law, 126 HARV. L. REV. F. 91 (2013);
30. Michael Serota & Ethan J. Leib, The Political Morality of Voting in Direct Democracy, 97 MINN. L. REV. 1596 (2013).
31. See generally DANIEL R. ERNST, TOCQUEVILLE'S NIGHTMARE: THE ADMINISTRATIVE STATE EMERGES IN AMERICA, 1900-1940 (2014);
32. LOUIS L. JAFFE, JUDICIAL CONTROL OF ADMINISTRATIVE ACTION 320 (1965)
33. See, e.g., PETER L. STRAUSS ET AL., GELLHORN AND BYSE'S ADMINISTRATIVE LAW: CASES AND COMMENTS 928-38 (11th ed. 2011).
34. See generally Richard B. Stewart, The Reformation of American Administrative Law, 88 HARV. L. REV. 1669 (1975).
35. See, e.g., Peter L. Strauss, Legislation That Isn't-Attending to Rulemaking's "Democracy Deficit," 98 CALIF. L. REV. 1351, 1357 (2010).
36. See generally Robert A. Anthony, Interpretive Rules, Policy Statements, Guidances, Manuals, and the Like-Should Federal Agencies Use Them to Bind the Public?, 41 DUKE L.J. 1311 (1992).
37. See, e.g., Jill E. Family, Administrative Law Through the Lens of Immigration Law, 64 ADMIN. L. REV. 565, 569-85 (2012);
38. David L. Franklin, Legislative Rules, Nonlegislative Rules, and the Perils of the Short Cut, 120 YALE L.J. 276, 282-89 (2010);
39. William Funk, A Primer on Nonlegislative Rules, 53 ADMIN. L. REV. 1321, 1322-23 (2001).
40. Schoolhouse Rock!, I'm Just a Bill, YOUTUBE (Sept. 1, 2008), http://www.youtube.com/watch? v-tyeJ55o3El0.
41. See, e.g., ABNER S. GREENE, AGAINST OBLIGATION: THE MULTIPLE SOURCES OF AUTHORITY IN A LIBERAL DEMOCRACY (2012);
42. Abner S. Greene, The Fit Dimension, 75 FORDHAM L. REV. 2921 (2007).
43. See generally STEVEN G. CALABRESI & CHRISTOPHER S. YOO, THE UNITARY EXECUTIVE: PRESIDENTIAL POWER FROM WASHINGTON TO BUSH (2008).
44. Abner S. Greene, Checks and Balances in an Era of Presidential Lawmaking, 61 U. CHI. L. REV. 123 (1994).
45. see generally Ronald Turner, Ideological Voting on the National Labor Relations Board, 8 U. PA. J. LAB. & EMP. L. 707 (2006);
46. Tanja L. Thompson & R. Bradley Mokros, ABA Section of Labor & Emp't Law Annual CLE Conference, As the Pendulum Swings: The Role of Precedent in National Labor Relations Board Decisions (Nov. 4-7, 2009), http://www.americanbar.org/content/dam/ aba/administrative/labor-law/meetings/2009/ac2009/159.authcheckdam.pdf.
47. See generally William N. Eskridge, Jr. & John Ferejohn, Super-Statutes, 50 DUKE L.J. 1215 (2001).
48. See generally Kathryn E. Kovacs, Superstatute Theory and Administrative Common Law, 90 IND. L.J. (forthcoming 2015).
49. Cf. Randy J. Kozel & Jeffrey A. Pojanowski, Administrative Change, 59 UCLA L. REV. 112, 114 (2011)
50. See Jerry L. Mashaw & Avi Perry, Administrative Statutory Interpretation in the Antebellum Republic, 2009 MICH. ST. L. REV. 7, 44.
51. Cf. Larry Alexander, Constrained by Precedent, 63 S. CAL. L. REV. 1 (1989) (discussing varying models of precedent).
52. see Jody Freeman & Jim Rossi, Agency Coordination in Shared Regulatory Space, 125 HARV. L. REV. 1131 (2012);
53. see also Bijal Shah, Hidden Administrative Coordination: Interagency Adjudication in Immigration & Beyond, 128 HARV. L. REV. (forthcoming 2015) (exploring interagency coordination in adjudication).
54. See Total Government Employment Since 1962, U.S. OFFICE PERSONNELMGMT., https://www.opm.gov/policy-data-oversight/data-analysis-documentation/federal-employmentreports/ historical-tables/total-government-employment-since-1962/ (last visited Nov. 8, 2014)
55. See Elena Kagan, Presidential Administration, 114 HARV. L. REV. 2245, 2272 n.96 (2001)
56. Jim Tozzi, OIRA's Formative Years: The Historical Record of Centralized Regulatory Review Preceding OIRA's Founding, 63 ADMIN. L. REV. 37, 65 (2011) (quoting an unnamed OMB official).
57. See Office of Mgmt. & Budget, The Mission and Structure of the Office of Management and Budget, WHITE HOUSE, http://www.whitehouse.gov/omb/organization-mission (last visited Oct. 15, 2014).
58. See Kate Andrias, The President's Enforcement Power, 88 N.Y.U. L. REV. 1031, 1057 (2013);
59. see also Memorandum from George P. Shultz, Dir., Office of Mgmt. & Budget, to the Heads of Dep'ts 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/QualityofLife1.htm
60. See William F. West, The Institutionalization of Regulatory Review: Organizational Stability and Responsive Competence at OIRA, 35 PRESIDENTIAL STUD. Q. 76, 79 (2005).
61. Curtis W. Copeland, The Role of the Office of Information and Regulatory Affairs in Federal Rulemaking, 33 FORDHAM URB. L.J. 1257, 1259 (2006).
62. See MAEVE P. CAREY, CONG. RESEARCH SERV., R43056, COUNTING REGULATIONS: AN OVERVIEW OF RULEMAKING, TYPES OF FEDERAL REGULATIONS, AND PAGES IN THE FEDERAL REGISTER 9 (2013).
63. See Memorandum from Peter R. Orszag, Dir., Office of Mgmt. & Budget, to Heads and Acting Heads of Exec. Dep'ts and Agencies, Guidance for Regulatory Review (Mar. 4, 2009), available at http://www.whitehouse.gov/sites/default/files/omb/assets/memoranda-fy2009/ m09-13.pdf.
64. See generally CURTIS W. COPELAND, LENGTH OF RULE REVIEWS BY THE OFFICE OF INFORMATION AND REGULATORYAFFAIRS (2013).
65. see also Editorial, Stuck in Purgatory, N.Y. TIMES, June 30, 2013, http://www.nytimes.com/2013/07/01/opinion/stuck-in-purgatory.html?-r-0 (decrying the length of OIRA review).
66. See Letter from Cass R. Sunstein, Adm'r, Office of Info. & Regulatory Affairs, to Lisa P. Jackson, Adm'r, Envtl. Prot. Agency (Sept. 2, 2011), available at http://www.whitehouse.gov/sites/default/ files/ozone-national-ambient-air-quality-standards-letter.pdf.
67. see OIRA Return Letters, OFFICE INFO. & REG. AFF., http:// www.reginfo.gov/public/do/eoReturnLetters (last visited Oct. 15, 2014);
68. See, e.g., Memorandum of Understanding Between the Office of Info. & Regulatory Affairs and the U.S. Commodity Futures Trading Comm'n (May 9, 2012), available at http://www.whitehouse. gov/sites/default/files/omb/inforeg/regpol/oira-cftc-mou-2012.pdf (governing sharing of technical assistance);
69. Memorandum of Understanding Between the Office of Advocacy, U.S. Small Bus. Admin. and the Office of Info. & Regulatory Affairs (Mar. 19, 2002), available at http://www.whitehouse.gov//sites/ default/files/omb/assets/regulatory-matters-pdf/oira1.pdf.
70. see also OFFICE OF INFO. & REGULATORY AFFAIRS, EXEC. OFFICE OF THE PRESIDENT, REGULATORY IMPACTANALYSIS: A PRIMER 1 (2011).
71. Cf. Christopher C. DeMuth & Douglas H. Ginsburg, White House Review of Agency Rulemaking, 99 HARV. L. REV. 1075, 1084-85 (1986)
72. See Alan B. Morrison, Commentary, OMB Interference with Agency Rulemaking: The Wrong Way to Write a Regulation, 99 HARV. L. REV. 1059, 1070-71 (1986);
73. Sidney A. Shapiro, OMB and the Politicization of Risk Assessment, 37 ENVTL. L. 1083, 1104-05 (2007).
74. See generally M. Elizabeth Magill, Agency Choice of Policymaking Form, 71 U. CHI. L. REV. 1383 (2004).
75. See, e.g., FRANK ACKERMAN & LISA HEINZERLING, PRICELESS: ON KNOWING THE PRICE OF EVERYTHING AND THE VALUE OF NOTHING (2004).
76. See Memorandum from Cass R. Sunstein, Adm'r, Office of Info. & Regulatory Affairs, to Heads of Exec. Dep'ts and Agencies, and of Indep. Regulatory Agencies, Executive Order 13563, "Improving Regulation and Regulatory Review" 5-6 (Feb. 2, 2011), available at http://www.whitehouse. gov/sites/default/files/omb/memoranda/2011/m11-10.pdf.
77. Kevin M. Stack, The President's Statutory Powers to Administer the Laws, 106 COLUM. L. REV. 263 (2006)
78. See JEFFREY S. LUBBERS, A GUIDE TO FEDERAL AGENCY RULEMAKING 34-35 (4th ed. 2006);
79. Brian Mannix, A Mid-Term Grade for the Bush Administration, REG., Fall 2003, at 12, 14-15;
80. Rebecca Adams, Regulating the Rule-Makers: John Graham at OIRA, CQ WKLY. (Feb. 23, 2002), http:// 0-library.cqpress.com.gull.georgetown.edu/cqweekly/weeklyreport107-000000384218.
81. All three categories of letters in the repository can be accessed at the following link: http:// www.reginfo.gov/public/jsp/EO/letters.jsp.
82. See, e.g., Letter from John D. Graham, Adm'r, Office of Info. & Regulatory Affairs, and James L. Connaughton, Chairman, Council on Envtl. Quality, to Benjamin Grumbles, Acting Assistant Adm'r, Office of Water, Envtl. Prot. Agency (Apr. 16, 2004), available at http://www.reginfo.gov/public/ prompt/epa-beach-act-2000.pdf (encouraging federal regulation to create safe beaches rather than waiting for state-based standard setting);
83. Letter from John D. Graham, Adm'r, Office of Info. & Regulatory Affairs, to Craig Manson, Assistant Sec'y for Fish & Wildlife & Parks, Dep't of the Interior (Aug. 21, 2003), available at http://www.reginfo.gov/public/prompt/doi-mapping-prompt.pdf (encouraging an initiative to provide more information to the public);
84. Letter from John D. Graham, Adm'r, Office of Info. & Regulatory Affairs, to Claude A. Allen, Deputy Sec'y, Dep't of Health & Human Servs., and James R. Moseley, Deputy Sec'y, Dep't of Agric. (May 27, 2003), available at http://www. reginfo.gov/public/prompt/prompt-dietary-052703.pdf (encouraging the USDA and HHS to update dietary guidelines and the food pyramid);
85. Letter from John D. Graham, Adm'r, Office of Info. & Regulatory Affairs, to Armando Falcon, Jr., Dir., Office of Fed. Hous. Enter. Oversight (May 29, 2002), available at http://www.reginfo.gov/public/ prompt/prompt-ofheo052902.html (encouraging more rules to control the corporate governance of Fannie Mae and Freddie Mac, as well as new disclosure obligations);
86. Letter from John D. Graham, Adm'r, Office of Info. & Regulatory Affairs, to Tommy G. Thompson, Sec'y, Dep't of Health & Human Servs. (Sept. 18, 2001), available at http://www.reginfo. gov/public/prompt/hhs-prompt-letter.html (encouraging the FDA to pay more careful attention to the regulation of trans fatty acids);
87. Letter from John D. Graham, Adm'r, Office of Info. & Regulatory Affairs, to John Henshaw, Assistant Sec'y of Labor, Occupational Safety & Health Admin. (Sept. 18, 2001), available at http://www.reginfo.gov/public/ prompt/osha-prompt-letter.html (encouraging OSHA to require automatic external defibrillators in the workplace).
88. See, e.g., Letter from Susan E. Dudley, Adm'r, Office of Info. & Regulatory Affairs, to Marcus C. Peacock, Deputy Adm'r, Envtl. Prot. Agency (July 3, 2008), available at http://www.reg info.gov/public/return/Epa-Return-letter-7-03.pdf (returning rule to justify costs of pesticide container recycling regulation);
89. Letter from John D. Graham, Adm'r, Office of Info. & Regulatory Affairs, to Kay Cole James, Dir., Office of Pers. Mgmt. (Dec. 18, 2002), available at http://www.reginfo.gov/public/ return/opm-return-letter.pdf (returning rule on federal employee health benefits because of cost-benefit analysis inadequacies);
90. Letter from John D. Graham, Adm'r, Office of Info. & Regulatory Affairs, to Kirk K. Van Tine, Gen. Counsel, Dep't of Transp. (Feb. 12, 2002), available at http://www.reginfo.gov/ public/return/dot-revised-tire-rtnltr.pdf (returning rule on tire pressure for cost-benefit analysis inadequacies);
91. Letter from John D. Graham, Adm'r, Office of Info. & Regulatory Affairs, to Bill Hawks, Dep't of Agric. (Jan. 29, 2002), available at http://www.reginfo.gov/public/ return/usda-ee-for-nonhuman-primates-rtnltr012902.html (returning rule for agency's failure to address "likely significant economic impacts");
92. Letter from John D. Graham, Adm'r, Office of Info. & Regulatory Affairs, to Jeffrey R. Holmstead, Assistant Adm'r, Envtl. Prot. Agency (Sept. 24, 2001), available at http:// www.reginfo.gov/public/postreview/spark-engines-epa-sep2001.html (disagreeing with the way the EPA decided how to measure costs, citing earlier OMB guidelines that should control);
93. Letter from John D. Graham, Adm'r, Office of Info. & Regulatory Affairs, to Rosalind A. Knapp, Deputy Gen. Counsel, Dep't of Transp. (Sept. 14, 2001), available at http://www.reginfo.gov/public/return/ boeing737-return-letter.html (returning rule for cost-effectiveness analysis);
94. Letter from John D. Graham, Adm'r, Office of Info. & Regulatory Affairs, to Rosalind A. Knapp, Acting Gen. Counsel, Dep't of Transp. (Aug. 8, 2001), available at http://www.reginfo.gov/public/return/wetlines-return-letter3.html (returning rule for agency's failure to justify the costs of a regulation).
95. See, e.g., Letter from Donald R. Arbuckle, Deputy Adm'r, Office of Info. & Regulatory Affairs, to Rosalind A. Knapp, Deputy Gen. Counsel, Dep't of Transp. (July 20, 2001), available at http:// www.reginfo.gov/public/return/faa-repair-stations-rtnltr-dot.html (returning rule to encourage interagency coordination);
96. Letter from Susan E. Dudley, Adm'r, Office of Info. & Regulatory Affairs, to Stephen L. Johnson, Adm'r, Envtl. Prot. Agency (July 10, 2008), available at http://www.reginfo.gov/ public/postreview/OIRA-letter-to-EPA-7-10-08.pdf (encouraging interagency coordination on greenhouse gas emission regulation);
97. Letter from John D. Graham, Adm'r, Office of Info. & Regulatory Affairs, to Rosalind A. Knapp, Deputy Gen. Counsel, Dep't of Transp. (June 13, 2003), available at http://www.reginfo.gov/public/return/return-dot061303.pdf (returning rule for failure to coordinate on ocean vessel regulation);
98. Letter from John D. Graham, Adm'r, Office of Info. & Regulatory Affairs, to Bill Hawks, Under Sec'y for Mktg., Dep't of Agric. (Jan. 29, 2002), available at http://www.reginfo.gov/public/return/usda-ee-for-nonhuman-primates-rtnltr012902.html (encouraging interagency coordination);
99. Letter from John D. Graham, Adm'r, Office of Info. & Regulatory Affairs, to Tim McClain, Gen. Counsel, Dep't of Veterans Affairs (Sept. 28, 2001), available at http://www. reginfo.gov/public/return/ va-exclusions-rtnltr.html (enforcing VA-DOJ interagency coordination in VA rulemaking).
100. See, e.g., Letter from John D. Graham, Adm'r, Office of Info. & Regulatory Affairs, to Rosalind A. Knapp, Deputy Gen. Counsel, Dep't of Transp. (Aug. 22, 2003), available at http:// www.reginfo.gov/public/return/return-dot-rspa.pdf (returning rule for public comment);
101. Letter from John D. Graham, Adm'r, Office of Info. & Regulatory Affairs, to Tracy Mehan, Assistant Adm'r for Water, Envtl. Prot. Agency (Oct. 2, 2001), available at http://www.reginfo.gov/public/return/ epa-water-quality-rtnltr.html (returning rule for more input from the states);
102. Letter from John D. Graham, Adm'r, Office of Info. & Regulatory Affairs, to Mary Glenn-Croft, Special Advisor to the Comm'r, Soc. Sec. Admin. (Sept. 27, 2001), available at http://www.reginfo.gov/public/return/ ssa-4rules-rtnltr.html (returning rule to enable the SSA to seek comments).
103. See, e.g., Letter from Donald R. Arbuckle, Acting Adm'r & Deputy Adm'r, Office of Info. & Regulatory Affairs, to Stephen L. Johnson, Adm'r, Envtl. Prot. Agency (Apr. 13, 2006), available at http://www.reginfo.gov/public/prompt/Prompt-Letter-to-EPA.pdf.
104. See Letter from John D. Graham, Adm'r, Office of Info. & Regulatory Affairs, to William T. Hawks, Under Sec'y for Mktg. & Regulatory Programs, Dep't of Agric. (Oct. 27, 2003), available at http://www.reginfo.gov/public/postreview/ltr-to-william-hawks-on-cool.pdf (recognizing that the relevant "statute severely restricts USDA's discretion in crafting this rule," but still pressing the agency to focus more on costs to consumers than the statute requires and considering "legislative relief");
105. Letter from John D. Graham, Adm'r, Office of Info. & Regulatory Affairs, to Kirk K. Van Tine, Gen. Counsel, Dep't of Transp. (Oct. 22, 2001), available at http://www.reginfo.gov/public/postreview/faa-tcas-rtn10-22-01.html (recognizing that the "FAA has limited alternatives available under the statute," but still urging it to focus more on costs and consider whether implementing the statute is reasonable);
106. see also Letter from John D. Graham, Adm'r, Office of Info. & Regulatory Affairs, to Michael P. Jackson, Deputy Sec'y, Dep't of Transp. (Sept. 28, 2001), available at http://www.reginfo.gov/public/postreview/ coastguard-tank-level-rtnltr.html (recognizing that the agency is trying to meet a judicial deadline for a rule required by statute, but still focusing on the failure to establish net benefits with the rule choice and considering "legislative relief").
107. See Letter from Susan E. Dudley, Adm'r, Office of Info. & Regulatory Affairs, to Stephen L. Johnson, Adm'r, Envtl. Prot. Agency (July 10, 2008), available at http://www.reginfo.gov/public/ postreview/OIRA-letter-to-EPA-7-10-08.pdf (taking a position on the substantive reach of the Clean Air Act);
108. Letter from Susan E. Dudley, Adm'r, Office of Info. & Regulatory Affairs, to Stephen L. Johnson, Adm'r, Envtl. Prot. Agency (Mar. 12, 2008), available at http://www.reginfo.gov/public/ postreview/Steve-Johnson-Letter-on-NAAQs-final-3-13-08-2.pdf (same);
109. Letter from John D. Graham, Adm'r, Office of Info. & Regulatory Affairs, to Rosalind A. Knapp, Deputy Gen. Counsel, Dep't of Transp. (Feb. 11, 2004), available at http://www.reginfo.gov/public/return/dot-return-vessels.pdf (returning rule because of inconsistency with congressional intent);
110. Letter from John D. Graham, Adm'r, Office of Info. & Regulatory Affairs, to Rosalind A. Knapp, Deputy Gen. Counsel, Dep't of Transp. (June 13, 2003), available at http://www.reginfo.gov/public/return/return-dot061303.pdf (returning rule because regulation "establish[es] requirements inconsistent with Congressional intent");
111. Letter from John D. Graham, Adm'r, Office of Info. & Regulatory Affairs, to Hector V. Barreto, Adm'r, Small Bus. Admin. (Feb. 11, 2002), available at http://www.reginfo.gov/public/return/sba-eidl-rtnltr.html (returning a rule in part because the proposal threatens to take a congressional program beyond its "original intent");
112. Letter from John D. Graham, Adm'r, Office of Info. & Regulatory Affairs, to Tim McClain, Gen. Counsel, Dep't of Veterans Affairs (Sept. 14, 2001), available at http://www.reginfo.gov/ public/return/permanent-and-total-disability-va-return-letter.html (returning rule because of concerns about the right interpretation of statutes administered by the VA).
113. See Letter from John D. Graham, Adm'r, Office of Info. & Regulatory Affairs, to Kirk K. Van Tine, Gen. Counsel, Dep't of Transp. (Feb. 12, 2002), available at http://www.reginfo.gov/public/return/ dot-revised-tire-rtnltr.pdf (enforcing Unfunded Mandates Reform Act but also appealing to the authority of Executive Order 12,866).
114. See Letter from John D. Graham, Adm'r, Office of Info. & Regulatory Affairs, to Mary Glenn-Croft, Special Advisor to the Comm'r, Soc. Sec. Admin. (Sept. 27, 2001), available at http:// www.reginfo.gov/public/return/ssa-4rules-rtnltr.html (returning rule to the Social Security Administration to enforce compliance with the Paperwork Reduction Act).
115. See Letter from Susan E. Dudley, Adm'r, Office of Info. & Regulatory Affairs, to Gus Coldebella, Acting Gen. Counsel & Regulatory Policy Officer, Dep't of Homeland Sec. (Aug. 13, 2008), available at http://www.reginfo.gov/public/ return/DHS-CBP-Coastwise-Cruises-Return-Letter. pdf (returning rule to enforce agency compliance with Executive Order 12,866 and OMB Circular A-4);
116. Letter from Susan E. Dudley, Adm'r, Office of Info. & Regulatory Affairs, to John J. Sullivan, Gen. Counsel, Dep't of Commerce (Oct. 30, 2007), available at http://www.reginfo.gov/public/return/return-doc-20071030.pdf (returning rule to enforce compliance with Executive Order 12,866, as amended by Executive Order 13,422);
117. Letter from John D. Graham, Adm'r, Office of Info. & Regulatory Affairs, to Hector V. Barreto, Adm'r, Small Bus. Admin. (Feb. 11, 2002), available at http://www.reginfo.gov/public/ return/sba-eidl-rtnltr.html (returning rule to encourage agency to comply with OMB Circular A-129).
118. Letter from Susan E. Dudley, Adm'r, Office of Info. & Regulatory Affairs, to John J. Sullivan, Gen. Counsel, Dep't of Commerce (Oct. 30, 2007), available at http://www.reginfo.gov/public/return/ return-doc-20071030.pdf.
119. Letter from John D. Graham, Adm'r, Office of Info. & Regulatory Affairs, to Tim McClain, Gen. Counsel, Dep't of Veterans Affairs (Sept. 14, 2001), available at http://www.reginfo.gov/public/ return/permanent-and-total-disability-va-return-letter.html.
120. Memorandum from Jacob J. Lew, Dir., Office of Mgmt. & Budget, to Heads of Exec. Dep'ts and Agencies, and Indep. Regulatory Agencies, Guidance for Implementing E.O. 13132, "Federalism" (Oct. 28, 1999), available at http://www.whitehouse.gov/sites/default/files/omb/memoranda/m00-02.pdf.
121. For examples from the repository, see Letter from John D. Graham, Adm'r, Office of Info. & Regulatory Affairs, to Alphonso Jackson, Acting Sec'y, Dep't of Hous. & Urban Dev. (Mar. 22, 2004), available at http://www.reginfo.gov/public/postreview/hud-response9.pdf (preemption);
122. Letter from John D. Graham, Adm'r, Office of Info. & Regulatory Affairs, to Tracy Mehan, Assistant Adm'r for Water, Envtl. Prot. Agency (Oct. 2, 2001), available at http://www.reginfo.gov/public/return/epa-water-quality-rtnltr.html (federalism and tribal lands). Catherine Sharkey has offered a careful assessment of OIRA's role in these matters based on in-depth interviews with agency officials and OIRA personnel.
123. See generally Catherine M. Sharkey, Inside Agency Preemption, 110 MICH. L. REV. 521 (2012).
124. See Letter from John D. Graham, Adm'r, Office of Info. & Regulatory Affairs, to Rosalind A. Knapp, Deputy Gen. Counsel, Dep't of Transp. (Sept. 20, 2001), available at http://www.reginfo.gov/ public/return/fra-dispatching-rtnltr-dot.html.
125. Letter from Donald R. Arbuckle, Deputy Adm'r, Office of Info. & Regulatory Affairs, to Rosalind A. Knapp, Deputy Gen. Counsel, Dep't of Transp. (July 20, 2001), available at http:// www.reginfo.gov/public/return/faa-repair-stations-rtnltr-dot.html.
126. See, e.g., Letter from John D. Graham, Adm'r, Office of Info. & Regulatory Affairs, to Rosalind A. Knapp, Deputy Gen. Counsel, Dep't of Transp. (Feb. 11, 2004), available at http://www.reginfo. gov/public/return/dot-return-vessels.pdf (returning rule because it "undermine[s] foreign policy objectives").
127. See generally Catherine M. Sharkey, State Farm "With Teeth": Heightened Judicial Review in the Absence of Executive Oversight, 89 N.Y.U. L. REV. 1589 (2014).
128. see also, e.g., Letter from John D. Graham, Adm'r, Office of Info. & Regulatory Affairs, to Mary Glenn-Croft, Special Advisor to the Comm'r, Soc. Sec. Admin. (Sept. 27, 2001), available at http://www.reginfo.gov/public/return/ ssa-4rules-rtnltr.html (returning rule to enforce compliance with Paperwork Reduction Act).
129. see also, e.g., Letter from John D. Graham, Adm'r, Office of Info. & Regulatory Affairs, to Kirk K. Van Tine, Gen. Counsel, Dep't of Transp. (Feb. 12, 2002), available at http://www.reginfo.gov/public/return/dot-revised-tire-rtnltr.pdf (enforcing Unfunded Mandates Reform Act but also appealing to authority of Executive Order 12,866).
130. Peter R. Orszag, Dir., Office of Mgmt. & Budget, to Heads of Exec. Dep'ts and Agencies, Open Government Directive (Dec. 8, 2009), available at http://www.whitehouse.gov/open/ documents/open-government-directive;
131. see also Letter from Susan E. Dudley, Adm'r, Office of Info. & Regulatory Affairs, to Gus Coldebella, Acting Gen. Counsel & Regulatory Policy Officer, Dep't of Homeland Sec. (Aug. 13, 2008), available at http://www.reginfo.gov/public/return/DHS-CBP-Coastwise-Cruises-Return-Letter.pdf (returning rule to enforce agency compliance with Executive Order 12,866 and OMB Circular A-4);
132. Letter from John D. Graham, Adm'r, Office of Info. & Regulatory Affairs, to Hector V. Barreto, Adm'r, Small Bus. Admin. (Feb. 11, 2002), available at http://www.reginfo.gov/public/ return/sba-eidl-rtnltr.html (returning rule to encourage agency to comply with OMB Circular A-129).
133. See, e.g., Memorandum from Cass R. Sunstein, Adm'r, Office of Info. & Regulatory Affairs, to Heads of Exec. Dep'ts and Agencies, Cumulative Effects of Regulations (Mar. 20, 2012), available at http://www.whitehouse.gov/sites/default/files/omb/assets/inforeg/cumulative-effects-guidance.pdf;
134. Memorandum from Cass R. Sunstein, Adm'r, Office of Info. & Regulatory Affairs, to Heads of Exec. Dep'ts and Agencies, and Indep. Regulatory Agencies, Executive Order 13563, "Improving Regulation and Regulatory Review" (Feb. 2, 2011), available at http://www.va.gov/ORPM/docs/EO-OIRA-Guidance-M11-10.pdf;
135. Memorandum from Cass R. Sunstein, Adm'r, Office of Info. & Regulatory Affairs, to Heads of Exec. Dep'ts and Agencies, and Indep. Regulatory Agencies, Facilitating Scientific Research by Streamlining the Paperwork Reduction Act Process (Dec. 9, 2010), available at http://www. regulationwriters.com/downloads/OIRA-M-11-07-Facilitating-Scientific-Research-by-Streamlining-the-PRA-Process-12-9-10.pdf;
136. Memorandum from Cass R. Sunstein, Adm'r, Office of Info. & Regulatory Affairs, to Heads of Exec. Dep'ts and Agencies, and Indep. Regulatory Agencies, Information Collection Under the Paperwork Reduction Act (Apr. 7, 2010), available at http://www.regulationwriters.com/ downloads/OIRA-PRA-Primer-4-7-10.pdf;
137. Memorandum from Cass R. Sunstein, Adm'r, Office of Info. & Regulatory Affairs, to Heads of Exec. Dep'ts and Agencies, and Indep. Regulatory Agencies, Paperwork Reduction Act-Generic Clearances (May 28, 2010), available at http://www.regulation writers.com/downloads/OIRA-PRA-Generic-ICRs-5-28-2010.pdf;
138. Memorandum from Cass R. Sunstein, Adm'r, Office of Info. & Regulatory Affairs, to Heads of Exec. Dep'ts and Agencies, and Indep. Regulatory Agencies, Social Media, Web-Based Interactive Technologies, and the Paperwork Reduction Act (Apr. 7, 2010), available at http://www.regulationwriters.com/downloads/OIRA-Social-Media-Guidance-4-7-10.pdf;
139. Memorandum from Cass R. Sunstein, Adm'r, Office of Info. & Regulatory Affairs, to Heads of Exec. Dep'ts and Agencies, and of the Indep. Regulatory Comm'ns, Testing and Simplifying Federal Forms (Aug. 9, 2012), available at http://www.whitehouse.gov/sites/default/files/ omb/inforeg/memos/testing-and-simplifying-federal-forms.pdf.
140. Sunstein's speeches are collected at http://www.whitehouse.gov/omb/inforeg-speeches/.
141. Memorandum from Cass R. Sunstein, Adm'r, Office of Info. & Regulatory Affairs, to Heads of Exec. Dep'ts and Agencies, Disclosure and Simplification as Regulatory Tools (June 18, 2010), available at http://www.whitehouse.gov/sites/default/files/omb/assets/inforeg/disclosure-principles.pdf.
142. See Memorandum from Barack Obama, President of the U.S., to Heads of Exec. Dep'ts and Agencies, Transparency and Open Government (Jan. 21, 2009), available at http://www.whitehouse.gov/ the-press-office/TransparencyandOpenGovernment;
143. Memorandum from Cass R. Sunstein, Adm'r, Office of Info. & Regulatory Affairs, to Heads of Exec. Dep'ts and Agencies, Informing Consumers Through Smart Disclosure 2 (Sept. 8, 2011), available at http://www.whitehouse.gov/sites/default/files/omb/inforeg/for-agencies/informing-consumersthrough-smart-disclosure.pdf.
144. See generally RICHARD H. THALER & CASS R. SUNSTEIN, NUDGE: IMPROVING DECISIONS ABOUT HEALTH, WEALTH, AND HAPPINESS (2008).
145. Cf. Frederick Schauer, Precedent, 39 STAN. L. REV. 571, 604 (1987)
146. See Bruce Ackerman, Presidential Power Grabs: Their Causes and Cure, HUFFINGTON POST (Feb. 10, 2014, 8:34 AM), http://www.huffingtonpost.com/bruce-ackerman/presidential-power-grabs-2-b-4759352.html?view-print&comm-ref-false;
147. cf. HAROLD H. BRUFF, BAD ADVICE: BUSH'S LAWYERS IN THE WAR ON TERROR (2009) (highlighting the structural reasons presidents get bad advice from their Offices of Legal Counsel).
148. see Ashutosh Bhagwat, Three-Branch Monte, 72 NOTRE DAME L. REV. 157 (1996).
149. See generally Mathilde Cohen, Reason-Giving in Court Practice: Decision-Makers at the Crossroads, 14 COLUM. J. EUR. L. 257 (2008);
150. Mathilde Cohen, Sincerity and Reason-Giving: When May Legal Decision Makers Lie?, 59 DEPAUL L. REV. 1091 (2010);
151. Mathilde Cohen, The Rule of Law as the Rule of Reasons, 96 ARCHIV FÜR RECHTS-UND SOZIALPHILOSOPHIE 1 (2010).
152. See generally David A. Super, Are Rights Efficient? Challenging the Managerial Critique of Individual Rights, 93 CALIF. L. REV. 1051 (2005).
153. JeremyWaldron, The Concept and the Rule of Law, 43 GA. L. REV. 1, 26-27 (2008).
154. Thomas W. Merrill, The Accardi Principle, 74 GEO. WASH. L. REV. 569 (2006)
155. See, e.g., STEPHEN G. BREYER ET AL., ADMINISTRATIVE LAW AND REGULATORY POLICY: PROBLEMS, TEXT, AND CASES 438-79 (6th ed. 2006)
156. Cf. Richard A. Epstein, Why the Modern Administrative State Is Inconsistent with the Rule of Law, 3 N.Y.U. J.L. & LIBERTY 491 (2008).
157. William C. Whitford, The Rule of Law, 2000 WIS. L. REV. 723.
158. See, e.g., Daniel A. Farber & Anne Joseph O'Connell, The Lost World of Administrative Law, 92 TEX. L. REV. 1137, 1164 (2014).
159. see Regulatory Review Dashboard, OFF. INFO. & REG. AFF., http://www.reginfo.gov/public/jsp/EO/eoDashboard.jsp (last visited Nov. 9, 2014).
160. See, e.g., Rex R. Perschbacher & Debra Lyn Bassett, The End of Law, 84 B.U. L. REV. 1 (2004);
161. William M. Richman & William L. Reynolds, Elitism, Expediency, and the New Certiorari: Requiem for the Learned Hand Tradition, 81 CORNELL L. REV. 273 (1996).
162. See OIRA Reports to Congress, OFF. MGMT. & BUDGET, http://www.whitehouse.gov/omb/info reg-regpol-reports-congress (last visited Nov. 9, 2014).
163. JEFFREY S. LUBBERS, A GUIDE TO FEDERAL AGENCY RULEMAKING 28-29 (5th ed. 2012) (footnotes omitted).
164. Memorandum from Rob Portman, Dir., Office of Mgmt. & Budget, to Heads of Exec. Dep'ts and Agencies, Issuance of OMB's "Final Bulletin for Agency Good Guidance Practices" (Jan. 18, 2007), available at http://www.whitehouse.gov/sites/default/files/omb/memoranda/fy2007/m07-07.pdf.
165. See, e.g., Trevor W. Morrison, Constitutional Avoidance in the Executive Branch, 106 COLUM. L. REV. 1189 (2006);
166. Randolph D. Moss, Executive Branch Legal Interpretation: A Perspective from the Office of Legal Counsel, 52 ADMIN. L. REV. 1303, 1303-04 (2000)
167. Kevin M. Stack, Interpreting Regulations, 111 MICH. L. REV. 355 (2012);
168. see also Abner S. Greene, Checks and Balances in an Era of Presidential Lawmaking, 61 U. CHI. L. REV. 123 (1994).
169. See generally Ronald A. Cass & Peter L. Strauss, The Presidential Signing Statements Controversy, 16 WM. & MARY BILL RTS. J. 11 (2007).
170. see also Steven G. Calabresi, Mark E. Berghausen & Skylar Albertson, The Rise and Fall of the Separation of Powers, 106 NW. U. L. REV. 527, 538 n.54 (2012)
171. see Michael Stokes Paulsen, The Constitutional Power to Interpret International Law, 118 YALE L.J. 1762, 1789 (2009)
172. See generally Joseph Landau, DOMA and Presidential Discretion: Interpreting and Enforcing Federal Law, 81 FORDHAM L. REV. 619 (2012).
173. See Steven M. Davidoff & David Zaring, Regulation by Deal: The Government's Response to the Financial Crisis, 61 ADMIN. L. REV. 463, 468 (2009)
174. see also Adam J. Levitin, In Defense of Bailouts, 99 GEO. L.J. 435, 437 (2011)
175. See generally JOHN AUSTIN, THE PROVINCE OF JURISPRUDENCE DETERMINED (Wilfrid E. Rumble ed., Cambridge Univ. Press 1995) (1832).
176. See, e.g., DAVID DYZENHAUS, THE CONSTITUTION OF LAW: LEGALITY IN A TIME OF EMERGENCY 160 (2006);
177. Adrian Vermeule, Our Schmittian Administrative Law, 122 HARV. L. REV. 1095, 1102 (2009).
178. See Evan J. Criddle, Mending Holes in the Rule of (Administrative) Law, 104 NW. U. L. REV. 1271, 1271-72 (2010).
179. See LON L. FULLER, THE MORALITY OF LAW (1964).
180. See A. V. DICEY, INTRODUCTION TO THE STUDY OF THE LAW OF THE CONSTITUTION 329 (10th ed. 1959);
181. A. V. DICEY, LECTURES ON THE RELATION BETWEEN LAW & PUBLIC OPINION IN ENGLAND DURING THE NINETEENTH CENTURY 256 (1905).
182. see John A. Rohr, Dicey's Ghost and Administrative Law, 34 ADMIN. & SOC'Y 8 (2002).
183. Ronald Dworkin, Philosophy, Morality, and Law-Observations Prompted by Professor Fuller's Novel Claim, 113 U. PA. L. REV. 668 (1965).