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Rulemaking II
Bureaucratic Politics
Environmental Defense Fund v.
Hardin, 428 F.2d 1093 (1970)
• Facts:
• The Federal Insecticide, Fungicide, and Rodenticide Act (FIFRA) allowed the Secretary
of Agriculture to create rules regarding the suspension of dangerous pesticides.
• The Department initiated a rulemaking to determine regulations on pesticides (DDT).
• The problem, however, is that there is no cap on the amount of time an agency can take
to make a rule, only APA requirements on what is too short.
• So the Department of Agriculture never closes the comment period and after 10 years
and still no final rule, (i.e. farmers could use DDT).
• Once rule is finalized then its validity can be challenged in court, but in this case there
was no final rule.
• Legal Questions:
• Does the Environmental Defense Fund have standing to sue the agency?
• Can the court offer a judicial remedy when an agency fails to act promptly?
• Holding:
• Yes, yes. Remanded.
Environmental Defense Fund v.
Hardin, 428 F.2d 1093 (1970)
• Vote:
• 2 (Bazelon and Robinson) – 0
• Legal Reasoning:
• What are the issues that are raised by the Department of Agriculture to support the idea that the court cannot
rule on the case?
• The Environmental Defense Fund lacks standing.
• Department of Agriculture actions under FIFRA are unreviewable by the court.
• The case is not “ripe” for consideration being that no final rule has been issued.
• Standing
• What must you show:
• Proof of injury
• Proof of causation
• Proof that the court can fix the problem
• In environmental cases, hard to prove injuries with regard to environmental policy.
• Interest groups often sponsor a case to satisfy standing
• Where does the judge look to determine if the EDF should have standing?
• He looks to the text of FIFRA
• What does the text say?
• The statute affords a right of review to “any person who will be adversely affected” by an order.
• How does the judge interpret this with respect to the EDF?
• He says they satisfy this requirement as they have demonstrated that “…the biological harm to man and to other living
things resulting from the Secretary’s failure to take action would restrict the use of DDT in the environment.”
• The interest group can represent consumers with an “organizational interest” in the problem.
Environmental Defense Fund v.
Hardin, 428 F.2d 1093 (1970)
• Reviewability
• Where does the judge look to determine whether the court has the right to review actions of the
Secretary?
• Again he looks to the text of FIFRA.
• What does he find?
• There is no text that suggests that the agency’s actions (inactions) are “beyond judicial scrutiny.”
• Ripeness
• The Department of Agriculture argues that because no final rule has yet to be issued, the case is not
“ripe” for judicial review.
• How does the Court respond to this?
• Court says the decision of the Department of Agriculture has exhibited certain finality without taking action (alters
ripeness doctrine).
• They do not set a specific standard on how long this requires, however.
• Judge decided the case was ripe, whereas normally you can’t sue the government for failing to act
• Says withholding of benefits causes injury. In other words, the withholding of benefits is the same as the denial of
relief.
• Expands the number of groups that can sue agencies
• What does the judge do with the case?
• He remands the case to the Department of Agriculture to make a final decision on DDT.
• This will create a record on which the appellate court can rule upon.
The Results of Hardin
• Expansion in the number of decisions reversed and
remanded after Hardin.
• Leads to:
• Judicialization of policymaking
• More adjudication
• More informal procedures
• Because of Hardin it was common to challenge agency
rulemaking and adjudication.
• Agencies rely more on informal procedures for creating
rules as a way to avoid litigation.
Informal Procedures for
Creating Rules
• Advisory opinions
• Simply a letter to advise a regulated entity on a certain circumstance.
• Establishes a policy without notification
• No description of the rationale for the opinion
• Others are unable to sue because they are unaware (advisory opinions are not published in most
cases), only those who receive it know
• Memoranda
• Published document within the agency
• More generic than an advisory opinion
• No formal procedure  short (no notice, no comment)
• Addresses a reoccurring problem
• Policy is so minor that it is not necessary to go through the rulemaking procedure.
• Limited amount of rationale included for the rule.
• Hotline responses
• (800#) – call for information
• Usually circumstances are straightforward and easily handled
• Sometimes, however, calls are unclear, policy is known, but the circumstance doesn’t fit.
• In this case the agency representative may establish an unwritten policy as a form of loose guidance.
• Cannot sue the agency if the information is bad or causes a problem.
Formal Procedures for
Avoiding Litigation
• Negotiated Rulemaking (neg reg – negotiated regulation)
• Established procedure under the Negotiated Rulemaking Act (NRMA) of 1990
• Procedure:
• Notice of negotiated rulemaking is published in the Federal Register.
• Announces the establishment of a negotiated rulemaking committee.
• Invites persons to apply for and nominate others for committee membership.
• There is no proposed rule included.
• Applications for membership and comments on membership.
• Minimum 30 day period for comments.
• Must determine if committee can represent all interests.
• Invitations
• Avoid litigation by including power players
• *Failed Committee Formulation*
• If agency decides not to establish a negotiated rulemaking committee, they must provide the reasons why in the Federal
Register.
• Hold negotiations
• Behind closed doors
• Length of time varies
• Players may dropout
• Want to establish a proposed rule
• Mediator presides over the meeting.
• Achieve consensus behind an actual proposed rule
• Proposed rule is published in the Federal Register.
• Notice and Comment procedure then applies.
Formal Procedures for
Avoiding Litigation
• Negotiated Rulemaking
• Additional Comments:
• Everyone who signs onto the final rule is prohibited by law (Negotiated
Rulemaking Act of 1990) from suing the agency over the particular rule.
• If you drop out of the negotiated rulemaking, your comments are not
admissible in court (not published).
• Participants can be called as witnesses if agency is challenged by another party.
• So the participants provide support to the agency in exchange for having a
greater say in the development of a rule.
• There are certain participation rights, you can legally challenge or participate,
but you can’t do both.
• This has been deemed constitutional
• This may seem like a good tool on the surface, but many times negotiations fail
and the purpose of the procedure is lost.
• As a result, this tool has not been used very often by agencies.

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Rulemaking II

  • 2. Environmental Defense Fund v. Hardin, 428 F.2d 1093 (1970) • Facts: • The Federal Insecticide, Fungicide, and Rodenticide Act (FIFRA) allowed the Secretary of Agriculture to create rules regarding the suspension of dangerous pesticides. • The Department initiated a rulemaking to determine regulations on pesticides (DDT). • The problem, however, is that there is no cap on the amount of time an agency can take to make a rule, only APA requirements on what is too short. • So the Department of Agriculture never closes the comment period and after 10 years and still no final rule, (i.e. farmers could use DDT). • Once rule is finalized then its validity can be challenged in court, but in this case there was no final rule. • Legal Questions: • Does the Environmental Defense Fund have standing to sue the agency? • Can the court offer a judicial remedy when an agency fails to act promptly? • Holding: • Yes, yes. Remanded.
  • 3. Environmental Defense Fund v. Hardin, 428 F.2d 1093 (1970) • Vote: • 2 (Bazelon and Robinson) – 0 • Legal Reasoning: • What are the issues that are raised by the Department of Agriculture to support the idea that the court cannot rule on the case? • The Environmental Defense Fund lacks standing. • Department of Agriculture actions under FIFRA are unreviewable by the court. • The case is not “ripe” for consideration being that no final rule has been issued. • Standing • What must you show: • Proof of injury • Proof of causation • Proof that the court can fix the problem • In environmental cases, hard to prove injuries with regard to environmental policy. • Interest groups often sponsor a case to satisfy standing • Where does the judge look to determine if the EDF should have standing? • He looks to the text of FIFRA • What does the text say? • The statute affords a right of review to “any person who will be adversely affected” by an order. • How does the judge interpret this with respect to the EDF? • He says they satisfy this requirement as they have demonstrated that “…the biological harm to man and to other living things resulting from the Secretary’s failure to take action would restrict the use of DDT in the environment.” • The interest group can represent consumers with an “organizational interest” in the problem.
  • 4. Environmental Defense Fund v. Hardin, 428 F.2d 1093 (1970) • Reviewability • Where does the judge look to determine whether the court has the right to review actions of the Secretary? • Again he looks to the text of FIFRA. • What does he find? • There is no text that suggests that the agency’s actions (inactions) are “beyond judicial scrutiny.” • Ripeness • The Department of Agriculture argues that because no final rule has yet to be issued, the case is not “ripe” for judicial review. • How does the Court respond to this? • Court says the decision of the Department of Agriculture has exhibited certain finality without taking action (alters ripeness doctrine). • They do not set a specific standard on how long this requires, however. • Judge decided the case was ripe, whereas normally you can’t sue the government for failing to act • Says withholding of benefits causes injury. In other words, the withholding of benefits is the same as the denial of relief. • Expands the number of groups that can sue agencies • What does the judge do with the case? • He remands the case to the Department of Agriculture to make a final decision on DDT. • This will create a record on which the appellate court can rule upon.
  • 5. The Results of Hardin • Expansion in the number of decisions reversed and remanded after Hardin. • Leads to: • Judicialization of policymaking • More adjudication • More informal procedures • Because of Hardin it was common to challenge agency rulemaking and adjudication. • Agencies rely more on informal procedures for creating rules as a way to avoid litigation.
  • 6. Informal Procedures for Creating Rules • Advisory opinions • Simply a letter to advise a regulated entity on a certain circumstance. • Establishes a policy without notification • No description of the rationale for the opinion • Others are unable to sue because they are unaware (advisory opinions are not published in most cases), only those who receive it know • Memoranda • Published document within the agency • More generic than an advisory opinion • No formal procedure  short (no notice, no comment) • Addresses a reoccurring problem • Policy is so minor that it is not necessary to go through the rulemaking procedure. • Limited amount of rationale included for the rule. • Hotline responses • (800#) – call for information • Usually circumstances are straightforward and easily handled • Sometimes, however, calls are unclear, policy is known, but the circumstance doesn’t fit. • In this case the agency representative may establish an unwritten policy as a form of loose guidance. • Cannot sue the agency if the information is bad or causes a problem.
  • 7. Formal Procedures for Avoiding Litigation • Negotiated Rulemaking (neg reg – negotiated regulation) • Established procedure under the Negotiated Rulemaking Act (NRMA) of 1990 • Procedure: • Notice of negotiated rulemaking is published in the Federal Register. • Announces the establishment of a negotiated rulemaking committee. • Invites persons to apply for and nominate others for committee membership. • There is no proposed rule included. • Applications for membership and comments on membership. • Minimum 30 day period for comments. • Must determine if committee can represent all interests. • Invitations • Avoid litigation by including power players • *Failed Committee Formulation* • If agency decides not to establish a negotiated rulemaking committee, they must provide the reasons why in the Federal Register. • Hold negotiations • Behind closed doors • Length of time varies • Players may dropout • Want to establish a proposed rule • Mediator presides over the meeting. • Achieve consensus behind an actual proposed rule • Proposed rule is published in the Federal Register. • Notice and Comment procedure then applies.
  • 8. Formal Procedures for Avoiding Litigation • Negotiated Rulemaking • Additional Comments: • Everyone who signs onto the final rule is prohibited by law (Negotiated Rulemaking Act of 1990) from suing the agency over the particular rule. • If you drop out of the negotiated rulemaking, your comments are not admissible in court (not published). • Participants can be called as witnesses if agency is challenged by another party. • So the participants provide support to the agency in exchange for having a greater say in the development of a rule. • There are certain participation rights, you can legally challenge or participate, but you can’t do both. • This has been deemed constitutional • This may seem like a good tool on the surface, but many times negotiations fail and the purpose of the procedure is lost. • As a result, this tool has not been used very often by agencies.