# U n i t e d S t a t e s C o u r t o f A pp e a l s

For the Eig hth Circu it

_ _ _ _ __ _ _ _ _ _ _ _ _ __ _ _ _ _ _ _ _ _ _ _ _

No . 2 1 -2 2 70

_ _ _ _ __ _ _ _ _ _ _ _ _ __ _ _ _ _ _ _ _ _ _ _ _

Th e Sch o o l o f t h e Ozark s , In c., d o i n g b u s in es s as Co l l eg e o f t h e Ozark s

,

l l ll l ll l l l l l l l ll l ll l l Pl a i n t i

f f - Ap p el l a n t

,

v

.

J o s ep h R. Bi d en , J r., i n h is o ffi ci al cap aci t y as Pres i d en t o f t h e Un i t ed St at es ; U.S.

Dep art m en t o f Ho u s in g an d Urb an Dev el o pm en t; M arci a L. Fu d g e, i n h er o ffi ci al

cap aci t y as Secret ary

o f t h e U.S. Dep art m en t o f Ho u s i ng an d Urb an Dev el o p m en t ;

Dem et ri a L. M cCai n , i n h er o ffi ci al cap aci t y as Pri nci p al Dep ut y

As s i s t an t

Secret ary fo r Fai r Ho u s i n g & Eq u al Op p o rt u n i ty o f t h e U.S. Dep art m en t o f

H o us i ng an d Urb an Dev el o pm en t

, 1

ll l l l l l l l l l ll l l l l l l l l Def

en da n t s - Ap p el l ees

.

------------------------------

In s t i tu t e fo r Fai t h an d Fam i ly ; Am eri ca Fi rs t Leg al Fo u n dat i on ; M o u n t ai n St at es

L eg al Fo u n d at i o n ; St at e o f M i s s o u ri ; St at e o f Al ab am a; St at e o f Ark an sas ; St at e o f

In d ian a; St at e o f Kan s as ; St at e o f Ken tu ck y ; St at e o f Lo u i s i an a; St at e o f M o n t an a;

St at e o f Neb ras ka; St at e o f So u th Caro l i n a; St at e o f Ten nes s ee; St at e o f Tex as ;

St at e o f Ut ah ; St at e o f W es t Vi rg i n i a; Han n ib al -LaGran g e Un i v ers i t y ; M i s s o u ri

1 M s

. M c C ai n i s s u b s t i t u t ed fo r Jean i n e M

. W o rd en u n d er Fed eral Ru l e o f

Ap p el l a t e Pro ced u re 4 3(c). Th e co m p l ai nt s u ed W o rd en in h er o ffi ci al cap aci t y as

Act i n g As s i s t an t Secret ary

, b u t t h at o ffi ce i s n ow v acan t

, an d u n der t h e D ep art m en t ’ s

Ord er o f Su cces si o n

, t h e Pri n ci p al Dep u t y A s s i s t an t Secret ary ex erci ses t h e p o wers

an d p erfo rm s t he d ut i es o f t h e As s i st an t Secret ary

.Bap t is t Un i vers i t y ; So u t h w es t Bap t is t Un i v ers i t y ; Ch ri s t ian Li fe Co m m is s i o n o f

t h e M i s s o u ri Bap ti s t Co n v en t io n

,

l l l l l l l l ll l ll l l l l l l l l

Ami ci o n Beh a lf

o f Ap p el l a n t (s )

.

_

_ _ _ _ _ _ _ _ _ _ _

Ap p eal fro m

Un i t ed St at es Di s t ri ct Co u rt

fo r t h e W es t ern Di s t ri ct o f M i s s o u ri - Sp ri n g fi el d

_

_ _ _ _ _ _ _ _ _ _ _

Su b m i t t ed : No v em

b er 1 7 , 2 0 2 1

Fi l ed : J ul y 2 7 , 2 0 2 2

_ __ _ _ __ _ __ _ _

Befo re COLLOTON, GRASZ, an d KOBES, Ci rcu i t J ud g es

.

_ __ _ _ __ _ __ _ _

COLLOTON, Ci rcu i t J u d g e.

Co l l eg e o f t h e Ozark s

, a p ri v at e Ch ri s t i an co ll eg e i n M i s s o u ri

, b r o u g h t t h i s

act i on t o ch al l en g e t h e l a w f u l n e s s o f a m em o ran du m i s s u ed b y an act i n g as s i s t an t

s ecret ary o f t h e Un i t ed St at es Dep art m en t of Ho u s i n g an d Urb an Dev el o p m en t

. Th e

Co l leg e m ov ed fo r a t em p o rary res t rai n in g o rd er a n d p r el i m in ary i n ju n ct i o n

. Th e

d i s t ri ct co u rt 2 ru l ed t h at t he Co l l eg e l ack ed s t an d i n g t o es tab l is h a cas e o r co n t ro v ers y

an d d i s m i s sed t h e act i o n fo r l ack o f ju ri s d ict i on

. T he Co l l eg e ap p eal s

, an d we affi rm

.

I.

On J u n e 1 5

, 2 0 20

, t h e Su p rem e Co u rt d eci d ed Bo s t o ck v. Cl a yt o n Co u n t

y

, 1 4 0

S. Ct

. 17 3 1 (2 02 0 ), co n cern i ng Ti t l e VII o f t h e Ci v i l Ri g ht s Act o f 1 9 6 4

. B o s t ock

2 Th e Ho n o rab le Ro s ean n A. K et ch m ark

, Un i t ed St at es Di s t ri ct J u d g e f o r t h e

W es t ern Di s t ri ct o f M is s o u ri

.

-2

-h el d t h at t h e s tat u t e’ s p ro h i b it i o n o n em p l oy m en t d i s cri m i n at i o n “ b ecau s e o f s ex ”

en co m p a s s es d i scri m i n at i on on t h e b as i s of s ex u al o ri en t at i o n an d g en der i d en t i t y

.

Id

. at 1 7 4 1

.

Th e Fai r Ho u s i n g A c t

, at i s s u e i n th is ap peal

, m ak es i t u n l awfu l fo r cert ai n

p ers o n s an d en t i t i es to “ m ak e u n av ai l ab l e o r d en y ” a dwel l i n g “ b ecau s e o f

. . . s ex .”

4 2 U.S.C. § 3 6 0 4(a). In J an u ary 20 2 1

, Pres i d en t Bi d en i s su ed E xecu t i v e O rd er No

.

1 3 ,9 8 8

, wh i ch s t at es t h at “ [u ] n d er B o s t o ck ’ s reas o ni n g

, l aws th at p ro h i b i t s ex

d i s cri m i n at i o n

— i n cl u di n g

. . . th e Fai r Ho u si n g Act

. . . pro h i bi t d i s cri m i nat i o n o n t h e

b as i s o f g en d er i d en t i t y

o r s ex u al o ri en t at i on .”

Th e fo l l o wi n g m on t h

, t he Act i n g As s i s t an t Secret ary fo r Fai r Ho u si n g an d

Eq u al O p p o rt u n i t y in t h e Dep art m en t o f Ho u s i ng an d Urb an Dev el op m en t i s s u ed a

m em o ran d u m to i m

p l em en t t h e Ex ecu t i v e Ord er. Th e M em o ran d u m i s ad d res s ed to

t h e Dep art m en t ’ s O ffi ce o f Fai r Ho u s i n g an d Eq u al Op po rt u n i ty

, as wel l as s t at e an d

l o cal ag en ci es an d p r i v a t e o rg an i zat i o ns t h at ad m i n i s t er an d recei v e fu n d s t h ro u g h

cert ai n pro g ram s o f t h e Dep art m en t

. Th e d o c u m e n t ex pl ai ns t hat t h e Offi ce o f

Gen eral Co u n s el fo r th e Dep art m en t “ h as co n cl u d ed t h at t h e Fai r Ho u s i n g Act ’ s s ex

d i s cri m i n at i o n p ro v i s i o n s are co m p arab l e to t h o se o f Ti t l e V II an d t h at t h ey l i k ewi s e

p ro h ib i t d i s cri m i n at i on b ecau s e o f s ex u al o ri en t at i o n an d g en d er i d en t i t y .”

Th e M e m o r an d u m d i rect s t h e Offi ce o f Fai r Ho u si n g an d Eq u al

Op p o rt u n i ty

— t h e HUD o ffi ce t h at en fo rces th e Fai r Ho us i n g A c t

— t o “ accep t fo r

fi li n g an d i n v es t i g at e al l co m p l ai n t s o f sex di scri m in at i o n

, i ncl u d in g d i s cri m i n at i o n

b ecau s e o f g en d er i d en t it y o r s ex u al o ri en t at i on .” T h e d o cu m en t’ s s t at ed p u rp o s e i s

t o d irect t h e Offi ce t o “ f

u l l y en fo rce t h e Fai r Ho us i n g A ct ” becau s e d i s cri m i n at i o n

b as ed o n sex u al o ri en t at i o n an d gen d er i d en t i t y “ i s real an d u r g en tl y req u i res

en fo rcem en t act io n .”

-3

-Th e M em o ran d u m ex pl ai n ed th at o v er t h e p rev i ou s t en y ears

, HUD i n t erp ret ed

t h e Fai r H o u s i ng Act t o p ro h i b i t d i s cri m in at i o n o n t h e b as i s o f g en d er i d e n t i t y an d

s ex u al o ri en t at i o n wh en t h e d i s cri m i n at io n was m o t i v at ed b y p erce i v ed

n o n co n fo rm i t y wi t h g en d er s t ereo t y pes

. 3 Yet t h e M em o ran du m co n cl u d ed t h at t h i s

“ l i m i t ed en fo rcem en t ” was “ i n s u ffi ci en t t o s at i s fy t h e Act ’ s p u rp os e” an d was

“ i n co n s i s t en t ” wi th t h e b ro ad er rat i o n al e o f Bo s to ck

. Hen c e

, t h e D ep art m en t ’ s

l ead ers h i p is s u ed t h i s n ew d i rect i v e “ t o fu l ly en fo rce” t he A ct ’ s p ro h i b it i on s ag ai n s t

d i s cri m i n at i o n b a sed o n s ex

, i n cl u d in g s ex u al o ri en t at i o n an d g en d er i d en t i t y

. Th e

M em oran d u m ad d res s es d i s cri m i n at i o n i n h ou s in g acro s s t h e en t i r e eco n o m y

, an d

d o es n o t s p eci f

i c a l l y ad d res s t h e s u b

j ect o f h ou s i ng fo r st u d en t s at co l l eg es an d

u n i v ers i t ies

.

Co l l eg e o f t h e Ozark s i s a Ch ri s t ian u nd erg rad u at e i ns t i t u t i o n i n M i s s o u ri

. Th e

Co l leg e a d m i t s s t u d en t s o f an y rel i g i o n

, b u t al l s t u d en t s m u s t ag ree t o fo l l o w t h e

Co l leg e’s r e l i g i o u s l y -i n s p i red co d e o f co n du ct

. As s tat ed i n t h at co d e, t h e Co l l eg e

t each es t h at b i o l o g i cal s ex i s a p ers o n ’ s “ Go d -g i v en

, o b ject iv e gen d er, wh et h er o r n ot

i t d i f f e r s f r o m t h ei r i n t ern al s en s e o f ‘ g en d er i d en t i t y

. ’ ” Th e co d e al s o s t at es t h at

“ s ex u al rel at i o n s are fo r t h e p u rp o s e o f t h e p ro creat i o n o f h u m an l i fe an d t h e u n i t i n g

an d s t ren g th en i ng o f t h e m ari tal b o nd i n s e l f

- g i v i n g l o v e, p u rp o ses t h at are t o b e

ach i ev ed s o l el y t h ro u g h het ero s ex u al rel at i o n s h i ps i n m arri ag e.” In acco rd an ce wi th

t h es e b el i efs

, th e Co l l eg e m ai n t ai n s s i n g le-s ex res i d en c e h a l l s a n d d o es no t al l o w

m em b ers o f o n e s ex t o v i s i t t h e “ l i v i n g areas ” o f m em b ers o f t h e o pp o s i t e s ex . Th e

Co l leg e t h erefo re p ro h i b i t s b i o l o g i cal m al es wh o “ id en t i fy ” as fem al es f r o m l i v i n g

3 S ee Eq u al Acces s i n Acco rd an ce W i t h an In d iv i d u a l ’s G en d er Id en t i t y in

Co m m u n i t y Pl an n i n g an d D ev e l o p m en t al Pro g ram s

, 8 1 Fed

. Reg

. 6 4 ,7 63

, 6 4 ,7 7 0

(Sep t . 2 1

, 2 0 16 ); Qu i d Pro Qu o an d Ho s t il e En vi ro n m en t Haras s m en t an d Li ab i l i t y

f o r Di scri m i n at ory Ho u si n g Pract i ces Un d er t h e Fai r Ho u s in g Act

, 8 1 Fed

. R e g

. 6 3 ,0 5 4

, 6 3 ,0 5 8 -5 9 (Sep t

. 1 4, 2 0 1 6 ); Eq u al Acces s t o Ho u s i n g i n H U D Pro g ram s

Reg ard les s o f Sex u al Ori en t at i o n o r Gen d er Id en t i t y

, 7 7 Fed

. Reg

. 56 6 1

, 5 6 6 6 (Feb

. 3 , 2 01 2 ).

-4

-i n fem al e d o rm it o ri es

, an d v i ce-v ers a. Th e Co l l eg e reg ul arl y co m m u n i cat es i t s

h o u s in g p o l i ci es to cu rren t an d p ro s p ect i v e s t u d en t s th ro u gh a s t u d en t h an d b o o k

, an

o n l i n e v i rt u al t o ur, t h e s ch o o l w eb s i te, an d i n-p ers o n recru i t m en t ev en t s

.

Al l eg ed l y feari n g th at i t s h o us i ng p o l i ci es are no w u n l awfu l un d er t h e

M em oran d u m ’ s i n t erp ret at i o n o f t h e F a i r H o u si n g Act

, t h e Co l l eg e s u ed Pres i d en t

Bi d en

, t h e Dep art m en t of H UD, t he Secret ary o f H UD, an d t h e Act i n g As s i s t an t

Secret ary

, s eek i n g p re-en fo rcem e n t r e v i ew of t h e Mem o ran d u m

. Th e co m p l ai nt

al l eg ed t h at t h e M e m o r a n du m

, am o n g o t her t h i n g s

, v i o l at es th e Ad m in i s t rat i v e

Pro ce d u r e A c t

, t h e Fi rs t Am en d m en t ’ s Free Sp eech an d Free Ex erci se Cl au s es

, t h e

Ap p o i n t m en t s Cl au s e of Art i cl e II o f t h e Co n st it u t i o n

, an d t h e Rel i g io u s Freed o m

Res to rat i o n Act , 4 2 U.S.C. § 2 0 0 0 b b et s eq

.

Th e co m p l ai n t s ou g h t in

ju n ct i v e an d d ecl arat o ry rel ief. Sp eci fi cal l y

, i t as k ed

t h e d i s t ri ct co u rt t o “ s e t a s id e” t h e M em oran d u m an d i ss u e an i nju nct i o n ag ai n s t

en fo rcem en t o f t h e M em o ran du m b y t h e d efen d an t o ffi ci al s. Th e co m p l ai nt s o u g h t

,

am on g ot h er fo rm s o f r e l i e f

, a d ecl arat i o n t h at t he Fai r Ho u s i n g Act an d t h e

i m p l em en t i n g reg u lat i o n s d o n o t p ro h i b it d i s cri m i n at i o n b as ed o n s ex u al o ri en t at i o n

o r g en d er i d en ti t y

. Th e Co ll eg e m o v ed fo r a t em p o rary r e s t rai ni n g o rd er an d

p rel i m i nary i n

ju n ct io n

.

Th e d i s tri ct co u rt co n cl u d ed t h at i t l a c k ed j u ri s d i ct i o n b ecau s e t h e Co l l eg e

fai l ed t o es t ab l i s h Art i cl e III s t an d i n g

. Th e co u rt d et erm i n ed t h at an y al leg ed i n ju ry

i s n o t co n cret e becau s e t he Co l l eg e di d n o t s h o w th at t he M em o ran d um i m p o s e d

res t ri ct i o n s o n p ri v at e h o u s i ng p ro v i d ers s u ch as t he Co l l eg e. Th e c o u r t f u r t h er

reas on ed t h at an y in

j u ry was n o t cau sed b y t he M em o ran d u m b ecau se t h e i n t ern al

d i rect i v e d oes no t m o d i fy th e Co l l eg e’ s ri g h t s or o b l i g at io n s u n d er th e Fai r Ho u s i n g

Act

. Th e co u rt al s o co n cl u d ed th at an y ju d i ci al rem ed y wo u l d n o t red res s an y al l eg ed

i n ju ry b ecau s e an y li ab i l i t y th at t h e Co l l eg e i ncu rs fo r vi o l at i n g t h e Fai r Ho u s i n g Act

“ wo u l d fl o w d irect l y fro m t h e Act i t s e l f

, a s we l l as ap p l i cab l e cas e l aw i n cl u d i n g

-5

-Bo s to ck

, an d n o t fro m t h e M em o ran d u m .” Th e Co l l eg e ap p eal s

, an d we rev i ew t h e

d i s t ri ct co u rt ’ s d eci si o n d e n o vo

.

II.

“ No p ri n ci p l e i s m o re fu n d am en t al t o t h e j u d ici ary ’ s p ro p er ro l e i n o ur s y s t em

o f g o v ern m en t t han th e co n s t i t u t i o n al l i m i t at i o n o f fed eral -co urt j u ri s d i ct i o n t o act u al

cas es o r co n t ro v ers i es .” Da i m l er Ch r ys l er Co rp

. v. Cu n o

, 5 4 7 U.S. 3 3 2

, 3 4 1 (2 0 0 6 )

(i nt ern al q uo t at i on an d al t erat i o n o m i tt ed ). To es t ab l i s h Art i cl e III s t an d i n g

, a p art y

i n v o k i n g fed eral ju ri s di ct i o n m u s t sh o w (1 ) t h at t h e p l ai n t iff s u ffered an in j u ry i n fact

, (2 ) a cau s al rel at i o n s h i p b et ween t he i n ju ry an d t h e ch al l en g ed co n d u ct

, an d (3 ) t h at

a fav orab l e d eci si o n wi l l l i k el y red res s t h e in ju ry

. Lu j a n v. Def s

. o f W i l d l if e

, 5 0 4 U.S.

5 5 5

, 5 6 0 -6 1 (1 9 9 2 ). An i n ju ry i n fact i s t he i nv as i on o f a l eg al l y p ro t ect ed i n t eres t

t h at i s “ a c t u a l or i m

m i n en t

, n ot co n

ject u ral o r hy

p ot h et i cal .” Id

. at 5 6 0 (i n t ern al

q u o t at i o n o m i t t ed ). “ Al l eg at i o ns o f p o s s ib l e fu t u re i n ju ry d o n o t s at i s fy t h e

req u i r e m e n t s o f Art i cl e III. A t h reat en ed i n ju ry m u st b e cert ai nl y i m

pen d i n g to

co n st i t u t e in

ju ry i n fact .” W

h it mo r e v. Ar

ka ns a s

, 4 95 U.S. 14 9

, 1 5 8 (1 9 9 0 ) (i n t ern al

q u o t at i o n o m i t t ed ).

A pl ai nt iff wh o i n v o k es fed eral ju ri s d ict i o n m u st s u pp o rt each el em en t “ i n t h e

s am e way as an y o th er m at t er” o n wh i ch i t b ears t h e b u rd en o f p ro o f. Lu j a n

, 5 0 4 U.S.

at 5 6 1

. At t h e p l ead i n g s t ag e

, t h e refo re, a p l ai n t i ff m u s t “ al l eg e s u ffi ci en t fact s to

s u p p ort a reas on ab l e in feren ce t h at [i t ] can s at i s fy t h e el em en t s o f s t an d i n g.” An i ma l

Leg al Def . Fu n d v. Va u g h t , 8 F.4 t h 7 14 , 7 1 8 (8 t h Ci r. 2 0 2 1).

Th e cl os el y rel at ed d o ct ri n e o f ri p en es s o r i g i n at es fro m t he s am e Art i cl e III

l i m i tat i on

. S

u s a n B. A n t h o n

y Li s t v. Dr i eh a u s

, 5 73 U.S. 1 4 9

, 15 7 n .5 (2 0 1 4 ). Th e

ri pen es s req u i rem en t s erv es “ t o p rev en t t h e co u rt s

, t h ro u g h av o i d an ce o f p rem at u re

ad ju d i cat i o n

, fro m en t an g li n g t h em s el v es in ab s t ract d i sag reem e n t s o v er

ad m i n is t rat i v e p o li ci es

, an d al s o t o p ro t ect t h e ag en c i e s fro m ju d i ci al in t erferen ce

-6

-u n t i l an ad m in i s t rat i v e d eci si o n h as b een fo rm al i zed an d i t s effect s fel t i n a co n cret e

way b y t h e ch al l en g i n g p art i es .” Ab b o t t La b ’ys v. Ga r d n er

, 3 8 7 U.S. 1 3 6

, 1 4 8 -4 9

( 1 9 6 7 ). To d em o ns t rat e t h at an al l eg ed d i s p u t e is ri p e fo r rev i ew, t h e co m p l a i n a n t

m u st s h o w b o t h “ t h e fi t n es s o f t h e i s s u es fo r ju d i ci al d eci s io n an d t h e h ard s h i p t o t h e

p art i es o f wi t h h o l d i ng co u rt co n s id erat i o n

. ” I d

. at 1 4 9

. A cas e i s fi t fo r ju d i ci al

d eci s i o n wh en i t wo u l d n o t b en ef i t fro m fu rt h er fact ual d ev el o p m en t an d p o s es a

p u rel y l eg al q u es t i o n n o t co n t in g en t o n fu t u re p o s s i b i l i t i es

. P u b

. W a t er Su p p l y v. Ci t y

o f Pecu l i a r

, 3 4 5 F.3 d 57 0

, 57 3 (8 t h Ci r. 2 0 0 3). In t hi s cas e, s t an d i ng a n d r i p en es s

es s en t i al l y “ b o i l d o w n t o t h e s am e q u es t i o n

, ” an d we wi l l ad d res s t h e i ss u e i n t erm s

o f “ st an di n g .” S

ee S u s a n B. An t h o n

y Li s t , 5 7 3 U.S. at 1 5 7 n .5 ; Med Immu n e, In c. v.

Gen et ech , In c. , 5 4 9 U.S. 1 1 8 , 1 2 8 n .8 (2 0 0 7).

A.

Th e Co l l eg e fi rs t arg ues t h a t i t h as s u ffered an i n ju ry i n fact b ecau se t h ere i s

an i m m i n en t t h reat un d er t h e M em o ran d u m t h at t he go v ern m en t wi l l en fo rce t h e Fai r

Ho u s i n g Act ag ai n s t t h e C o l l eg e. Th i s i m m i nen t t h reat o f en fo rcem en t

, s ay s t h e

Co l leg e, req u i res i t t o ch o o s e am o n g t h ree i n ju ri es : (1 ) ch an g e i t s h ou s in g p o l i ci es

i n v i o l at io n o f t h e Co l l eg e’ s rel ig i o u s b el i efs

, (2 ) refu s e t o ch an g e i t s h o u s i n g p o l i ci es

an d face san ct i on s u n der t he Fai r Ho u s i n g Act

, o r (3 ) ceas e p ro v i d i n g s tu den t h o u s i n g

al t o g et h er. Th e Co l l eg e ci t es t h e M em o ran d u m ’ s cal l fo r “ fu l l en fo rcem en t ” o f t h e

Act t o o v erco m e t h e in s u ffi ci en cy o f p as t “ li m i t ed en fo rcem en t o f t h e Fai r Ho u s i n g

Act ’ s s ex d i s cri m i n at i o n pro h i bi t i o n .” Th e Co l l eg e co n t en d s th at t h e M em o ran d u m

n eces s ari l y d irect s t h e ag en cy t o b ri n g an al l eg at i o n of s ex d i s cri m i n at i o n ag ai n s t t h e

Co l leg e t o “ el i m i n at e d is cri m i n at o ry h ou s in g p ract i ces .”

Th i s t heo ry o f i n

ju ry fai l s becau s e i t is b as ed o n a m is u n d e r s t a n d i n g o f t h e

M em oran d u m

. Th e M em o ran d u m d o es n o t i m p o s e an y res t ri ct io n s o n

, o r creat e an y

p en al t i es ag ai n s t

, en t it i es s u b ject t o t h e Fai r H o u s in g A ct

. Rat h er, t he M em o ran d u m

d i rect s t h e Offi ce o f Fai r Ho u s i n g an d E q ual Op p o rt u n i t y to “ accep t fo r fi l i n g an d

-7

-i n v es t i g at e al l co m p l ai n ts o f s ex d is cri m i n at i o n, i n cl ud i n g d i s cri m i nat i on b ecau s e o f

g en der i d en t i t y o r s ex ual o ri en t at i o n .” T h e M e m o r a n d um d o es n o t

, as t h e Co l l eg e

p res u p p os es

, req ui re th at HUD reach t h e s p eci fi c en fo rcem en t d eci si on t h at t h e

C ol l eg e’ s cu rren t h o u si n g p o l i ci es v i o l at e fed eral l aw. Th e M em o ran d u m

, fo r

ex am p l e, s ay s n o t h in g o f h o w t h e Rel i gi o u s F r e e d o m Res t o rat i o n Act o r t h e Free

Ex erci s e Cl au s e m ay l im i t en fo rcem en t o f t h e Fai r Ho u s i n g Act ’ s p ro h ib i t i o n o n s ex

d i s cri m i n at i o n as ap pl ied t o th e Co l l eg e. B o s t o ck i ts el f, t h e deci s i o n o n wh i ch t h e

M em oran d u m i s b as ed

, refers t o t h e Rel i g i o u s Freed o m Res t o rat i o n Act as a “ s u p er

s t at u te, di s p l aci ng th e n o rm al o p erat i o n o f o t h er fed eral l aws .” Bo s t o ck , 1 40 S. Ct

.

at 1 7 5 4.

T he C o l l eg e’ s al l eg ed i n

ju ry al s o l ack s i m

m i n en ce b ecau s e it i s s pecu la tive tha t

HU D w i l l f

i l e a ch arg e of d is cri m i n at i o n ag ai ns t t h e Co l l eg e i n t h e fi rs t p l ace. As

ex p lai n ed i n t h e g ov ern m en t ’ s bri ef, t h e ag en cy has n ev er fi led s u ch a ch arg e ag ai n s t

a co l l eg e fo r s ex di s cri m i nat i o n b as ed o n a h o u s i n g p o li cy t h at i s s p e c i f i c a l l y

ex em p t ed fro m t h e p ro h i b i t io n o n s ex di s cri m i nat i on i n ed u cat io n u n d er Ti t l e IX o f

t h e Ci v i l Ri g h ts Act

. Ti tl e IX p ro v i d es th at i t s an t i -d i s cri m i n at i o n p ro v is i on “ s h al l

n o t ap pl y t o an ed u cat i on al i n s t i tu t io n wh i ch i s co n t ro ll ed by a rel i g i o u s

o rg an i zat i o n ,” i f ap p l y in g t h e p ro h i b i t i o n “ wo u l d n o t b e co n s is ten t wi t h t h e rel i g i ou s

t en et s o f” t h e o rg an izat i o n. 2 0 U.S.C. § 1 6 8 1 (a)(3 ). In 2 0 1 8

, t h e as s i s t an t s ecret ary

fo r ci v i l ri g h ts in t he U.S. Dep art m en t of Ed ucat i o n fo rm al l y ad v i s ed t h e Co l l eg e t h at

i t i s ex em

p t fro m n u m ero us reg u l at o ry p ro vi s i o n s o n h ou s in g an d o t h e r m a t t ers

,

i n s o far as t h ey p ro s cri b ed d i scri m i n at i o n b as ed o n s ex u al o ri en t at i on o r g en d er

i d en t i t y

, t o t h e e x t en t t h at co m p l i an ce wo ul d co n fl i ct wi t h t h e Co ll eg e’ s rel i g i ou s

t en et s. Co n s i s t en t wi t h t h at ex em p t i o n

, ev en wh en HUD in t erp ret ed t h e Fai r Ho u s i n g

Act t o p ro h i b i t d i s cri m i n at i o n on t he bas i s o f sex u al o ri en t at io n an d gen der i d en t i t y

b et ween 2 0 1 2 an d 2 0 2 0

, t h e D ep art m en t b ro u g h t n o en fo rcem en t act i o n ag ai n s t t h e

Co l leg e. Th e Co l l eg e’ s en jo y m en t o f an ex em

p ti o n u n d er Ti t l e IX, an d it s fai l u re to

s h o w t h at HUD h as prev i o u s l y fi l ed d i s cri m i nat i on ch arg es ag ai n s t i t o r s i m i larl y

-8

-s i tu at ed co l l eg es

, s u b s t an t ial l y unde r m ine s its a r gum e n t t h at en fo rcem en t i s i m m i n en t

n o w. S ee Cl a p p er v. Amn es t

y In t ’l US A , 5 6 8 U.S. 3 9 8

, 4 1 1 (2 01 3 ).

Si m i l a r l y u np ers u as i ve i s t h e Co l l eg e’ s as s ert i o n t h at i t i s t h e “ o b ject o f t h e

act i on ” in t h e M em o r a n d um

, an d t h at t h ere is t h u s “ l i t t l e qu es t io n ” t h at t h e

M em oran d u m cau s es i n

ju ry

. S ee Lu j a n

, 5 0 4 U.S. at 5 6 1 -6 2

. Rel y i n g o n t he ri p en es s

d eci s i o n i n Ab bo t t La b o r a t o r ies

, th e Co l l eg e arg u es t h at i t i s t h e o b ject o f an ag en cy

act i on becau s e t h e M em o ran du m (1 ) i s d i rect ed at t h e Co l le g e i n p art i cu l ar, (2 )

req u i r e s t h e Co l l eg e t o m ak e s i g n i fi can t ch an g es t o i t s h o u s i n g p o li ci es

, an d (3 )

ex p os es t h e Co l l eg e t o s t ro n g s an ct i on s

. S ee 3 87 U.S. at 15 4

. B u t t hi s as s ert i o n

o v erl o o k s t h at t h e M e m o ran d u m i s an i nt ern al d i rect i v e t o HUD ag en ci es

, n o t a

reg u l at i o n o f p ri v at e p art i es

. T h e M em o ran du m d o es n o t d i rect t h e Co l l eg e t o d o

an y t h i n g

, an d i t d o es n o t ex p o s e t h e Co l l eg e t o an y l eg al p en al ti es fo r n o n co m p l i an ce

wi t h t he M em o ran d um

. In Ab b o t t La b o r a t or i es

, by co n t ras t

, t h e p l ai n t i ff d ru g

m an u fact u rers were t h e o bject o f a fi n al ad m i n i s t rat i v e ru l e t h at req u ired t h em to

p l ace a p art i cu l ar n am e o n d ru g l ab el s

. Th e ru l e d irect l y r e g u lat ed th e co n d u ct o f

d ru g m an u fact u rers an d was b ack ed b y cri m i n al an d ci v il s an ct i o n s i f n o t fo l l o wed

.

Id

. at 1 5 2 -5 4

.

Th e Co l l eg e i s m o re l i k e t h e p l ai n t iff i n Co r n i s h v. B l a key

, 33 6 F.3 d 7 4 9 (8 th

Ci r. 2 0 0 3). Th ere, a m em o ran d u m is s u ed b y t h e Dep art m en t o f Tran s p o rt at i o n (DOT)

d i rect ed d o ct o rs wh o co n d u ct ed d ru g t es t i ng h o w t o deci d e wh et h er a s p eci m en was

ad u lt erat ed

. Id

. at 75 1

. Th e F e d e r a l Av iat i o n Ad m i n i s t rat i o n (FAA) rev o k ed t h e

p l ai n t i ff Co rn i s h ’ s ai rcraft m ech an i c cert i fi cat e wh en d o ct o r s d et erm i n ed t h at h e

s u b m i t t ed an ad u l t erat ed u ri n e s p eci m en

. Befo re th e m ech an i c ex h au s t ed h i s

ad m i n is t rat i v e rem ed i es

, h e b ro u g h t a ch al len g e t o t h e D OT m em o ran d um i n fed eral

co u rt

. Id

. at 7 5 2

. Th is co u rt h el d t h at t h e pl ai n t i ff “ was n o t ev en arg u ab l y in ju red by

t h e 1 9 9 8 DOT m em o ran d um u n t i l t h e FAA rel i ed u p o n i t as a b as i s fo r rev o k i n g h i s

m ech an i c cert i fi cat e,” an d t hat “ ab s en t t he rev o cat i on o rd er, Co rn is h lack s t h e i n ju ry

i n fact n eces sary fo r Art i cl e III s t an d i n g

. ” Id

. at 7 5 2 -5 3. Th e Co l l eg e l ack s i n ju ry fo r

-9

-an al o g o us reas o ns

. Th e HUD en fo r c e m e n t ag en ci es h av e n o t rel i ed o n t h e

M em oran d u m t o ch arg e t h e Co l l eg e wi t h s ex d is cri m i nat i o n u n d er th e Fai r Ho u s i n g

Act

, an d an y a l l e g e d fu t u re i n ju ry cau sed b y t h e M em o ran d u m i s co n ject u ral an d

h y p o t h et i cal

.

Th e d i s s en t fav o rs a d ifferen t t h eo ry o f i n ju ry

— n am el y

, t h at t h e Co l l eg e was

d ep ri v ed o f a ri gh t t o n o t ice an d op p o rt u n i t y fo r co m m en t befo re HUD i s s u ed t h e

i n t ern al d i rect i v e. Bu t ev en as s u m i n g t h at no t ice an d co m m en t w as req u i red

, a

p l ai n t i ff can n ot es t ab l i sh i n ju ry i n fact “ o n th e b as i s o f a ‘ p ro ced u ra l ri g h t ’

u n co nn ect ed t o t h e p lai n t i ff’ s o wn co n cret e h arm .” Lu j an

, 5 0 4 U.S. at 57 3 n .8

. L i k e

t h e M em o ran d um i t s el f, th e ab s en ce of n o t i ce an d o p po rt u n i t y t o co m m en t reg ard i n g

t h e M em o ran d u m

d o es n o t en d an g er a co n cret e i nt eres t o f t h e Co l l eg e, b ecau s e t h e

M em oran d u m d o es n ot req u i re HUD t o d et erm i n e t h at t h e Co l l eg e’ s h o u s in g p o l i ci es

v i o l at e fed er a l l aw. “ [D] ep ri v at i o n of a p ro ced u ral ri gh t wi t h o u t s o m e co n cret e

i n t eres t t h at i s affect ed b y t h e d e p ri vat i o n

— a p ro ced ural ri g h t i n va cu o

— i s

i n s u ffi ci en t to creat e Art i cl e III s t an d i n g .” S ummer s v. Ea r t h Is l a n d

In s t. , 5 5 5 U.S.

4 8 8 , 4 9 6 (2 0 0 9).

In s u m

, t h e Co l l eg e’ s al l eg ed i n ju ry i s t o o s p ecu l at iv e t o es t ab l i sh Art i cl e III

s t an d i n g

. Th e Co l l eg e, in effect

, as ks u s t o as s u m e t h at t he fo l lo wi n g s eri es of ev en t s

i s i m m i n en t : a s ex -d i s cri m i n at i o n co m p l ai n t w i l l b e fi l ed ag ai ns t t h e Co l l eg e b as ed

o n cl ai m s i n v o lv i n g s ex ual o ri en t at i o n o r g en d er i d en ti t y ; fo l l o wi ng an i n ves t i g at i o n,

HUD wi l l ch arg e t h e Co l l eg e wi t h s ex d i s cri m i n at io n , ev en t h o u g h HUD h as n ev er

en fo rced t h e Fai r Ho u s i n g Act ’ s sex -d i s cri m in at io n p ro h ib i t i on ag ai n s t a co l l eg e

wh o s e ho u s i n g p o l ici es hav e b een ex em p ted fro m t h e p ro h i b i t io n o n s ex

d i s cri m i n at i o n u n d er Ti tl e IX; HUD wi l l d et erm i n e, p u rs u an t t o t h e M em oran d u m

,

t h at t he Co l l eg e i s n o t en t i t l ed t o an ex em p t i o n u nd er t h e Rel ig i o u s Freed o m

Res to rat i o n A ct o r t h e Free Ex erci s e Cl au s e as d i scu s s ed i n Bo s t o ck ; an d t h e Co l l eg e

wi l l t h erefo re be s u bject t o p en al t i es

. Th i s i s t h e ki n d o f “ hi gh l y at t en u at ed ch ai n o f

-1 0

-p o s s i b i l i ti es ” th at “ d o es no t sat i s fy t h e req u i rem e n t t h at th reat en ed in j u ry m u s t b e

cert ai n ly i m p en d in g.” Cl a

p p er , 5 6 8 U.S. at 4 10

.

B.

Th e Co l l eg e al s o ad v an ces a s eco n d t h eo ry o f i n ju ry

— n am el y, t h a t t h e

M em oran d u m cu rt a i l s i t s Fi rs t Am en d m en t ri g h t t o freed o m o f s p eech

. A p l ai n t i ff

cl ai m i ng an ab ri d g m en t o f free s p eech i s p erm i t t ed t o s eek pre-en fo rcem en t rev i ew

“ u n d er ci rcu m s t an ces t h at ren d er t h e t h reat en ed en fo rcem en t s u ffi ci en t l y i m m i n en t .”

S u s a n B. An t h on

y Li st

, 57 3 U.S. at 1 5 9

. To es t ab l i s h s t an d i n g

, a co m pl ai n t m u s t

al l eg e t h at p lai n t i ff h a s “ a n i n t en t i on t o en gag e i n a co u rs e o f co n d u ct arg u ab l y

affect ed wi t h a co n s t i t u t i o n al i n t eres t

, b u t p ro s cri bed b y a s t at ut e, an d th ere ex i s t s a

cred i b l e t h reat o f p ro s ecu t i o n t h ereu n d er.” Id

. (i n tern al q uo t at i o n om i t t ed ). A

p l ai n t i ff can es tab l i s h an in ju ry i n t he Fi rs t Am e n d m e n t co n t ex t i n t wo w ay s : by

i d en t i fy i n g p ro t ect ed s p eech i n wh i ch i t wo u l d l i k e t o en g ag e b u t t h at i s p ro s cri b ed

b y s tat u t e, o r b y s el f-ce n s o r i n g t o av o i d t h e cred i b l e t h reat of p ro s ecu t i o n.

Mi s so u r i a n s f

o r Fi s ca l Acco u n t a b i l i t

y v. Kl a h r

, 8 3 0 F.3 d 7 8 9, 7 9 4 (8 t h Ci r. 2 0 1 6 ).

Th e Fai r Ho u s in g Act m ak es i t u n l awfu l t o “ m a k e, p ri nt

, o r p u b l i s h ” a

s t at em en t reg ard i n g t h e s al e o r ren t i n g o f a d wel l i n g t h at d i scri m i n at es o n t h e b as i s

o f s ex

. 4 2 U .S.C. § 36 0 4 (c). Th e Co l leg e arg u es t h at

, acco rd i n g t o t h e

M em oran d u m

, t h e Fai r Ho us i n g Act p ro h i b it s t h e Co l l e ge fro m co m m u ni cat i n g i t s

h o u s in g p o l i c i es

, becau se t h o s e p o li ci es req u i re th at b i o l o g i cal m al es an d fem al es

,

reg ard l es s o f g en d er id en t i t y or s ex u al o ri en t at i o n

, res i d e i n sep arat e d o rm i t o ri es

. In

as s ert i n g a cred i b le t h reat o f en fo rcem en t

, t h e Co ll eg e ag ai n ci t es th e Mem o ran d u m ’ s

cal l fo r “ fu l l en fo rcem en t ” o f t h e Fai r Ho u si ng Act to bri n g ab o u t th e “ erad i cat i o n o f

h o u s in g d i s cri m i n at i on fo r al l .”

Th e Co l l eg e’ s free-s peech t h eo ry o f s t an d i n g fai l s es s en t ial l y fo r t h e reas on s

d i s cu s s ed ab o ve: Th e Co l l eg e h as n o t s h o w n t h at t h ere ex i s t s a cred i b l e t h reat t h at

-1 1

-t h e d efen d an t s wi l l en fo rce t h e Fai r Ho u s i n g Act ag ai ns t t h e i n s t i t u t i on b as ed o n i t s

rel i g io u sl y -b as ed h o u s i n g p o l i ci es

. Th e M em o ran d um do es n o t m ak e t h e Co l l eg e’ s

h o u s in g p o l i ci es u n l awfu l w i t ho u t reg ard t o l eg al p ro tec t i o ns fo r rel ig i o u s l i b ert y

.

HUD h a s n e v er fi led ch arg es o f h o u s in g d i scri m i n at io n ag ai n s t a co ll eg e t h at i s

ex em p t fro m pro hi b i t i on s o n s ex d i s cri m i n at i o n i n ho u s i n g u n d er Ti t l e IX. An d HUD

h as n ev er en fo rced t h e Fai r Ho us i n g Act ’ s s ex -d is cri m i n at i on pro h i bi t i o n ag ai n s t t h e

Co l leg e, ev en t ho u g h th e ag en cy i n t erp ret ed t h e Fai r Ho u s i n g A c t to p ro h i b i t

d i s cri m i n at i o n o n t h e b as i s o f s ex u al ori en t at i o n a n d gen d er i d en t i t y b et ween 2 0 1 2

an d 2 0 20

. Th u s

, t h e C o l l e g e ’s f r e e-s p eech t h eo ry do es n o t al l eg e an i n j u ry i n fact

s u ffi ci en t t o co n fer Art i cl e III s t an d i n g

.

As i d e fro m t h e lack o f a cred i b l e t h r eat of en fo rcem en t

, t h e Co ll eg e al s o h as

n o t al l eg ed t h at it s sp eech h as b een ch i ll ed

. Th e Co ll eg e al l eg es n o s el f-cen s o rs h i p,

b u t rat her av ers t h at i t “ t el l s an d i n t en d s t o co n t i n u e tel l i n g cu rren t an d p ro s p ect i v e

s t ud en t s ” ab o u t i t s rel i g i ou s l y -i n s p ired h o u si ng p o li ci es

. Al t h o u g h t h e co m p l ai nt

s t at es t h at t h e M em o r a n d u m “ ch i ll s th e s p eech o f co l l eg es

, ” i t al l eg es n o fact s to

s u p p ort t h at l eg al co n cl us i o n

, an d we “ are n o t b o u n d t o accep t as t r u e a l eg al

co n cl u s i o n co u ch ed as a fact u al al l e g at i o n .” Bel l At l

. Co r p

. v. Two m b l

y

, 5 5 0 U.S.

5 4 4

, 5 5 5 (2 0 0 7 ) (i n tern al q u ot at i o n o m i t t ed )

. T h e Co l leg e h as n o t al l eg ed

, fo r

e x a m p l e

, t h at i t n o l o ng er s ep arat es m al es an d fem al es i n t o d orm it o ri es b as ed o n

b i o l o g i cal s e x

, o r t h at i t h as rep eal ed t h e p ort i on o f t h e s t u d en t h an db o o k t h at

co m m u n icat es i t s h o u s i n g p o li ci es

. Th e co m p l ai n t t h u s fai l s t o al l eg e ei t h er an act u al

ch i l l i n g o f s p eech o r a cred ib l e t h reat o f en fo rcem en t t h at ju s t i fi es s el f-cen s o rs h i p

.

C.

Ev en i f t h e Co l l eg e h ad s u ffered an in ju ry i n fact

, i t m

u s t al s o s h ow t h at a

fav o rab l e ju d i ci al d eci s i o n wo u l d l i k el y red res s i t s i n ju ry

. Red res s ab i li t y req u i res u s

t o ex am in e t he “ cau s al co n nect i o n b et ween t h e al l eg ed in ju ry an d t h e ju d i ci al rel i ef

req u es t ed .” Al l en v. W

r i g ht

, 4 6 8 U.S. 7 3 7, 7 53 n .1 9 (1 9 8 4). Th erefo re, ev en i f we

-1 2

-as s u m e fo r t h e s ak e o f an al y s i s th at t h e Co l l eg e h as s u ffered t h e i nju ri es i t al l eg es

, t h e

Co l leg e m

u s t sh o w t h at t h e req u es t ed rel i ef w ou l d el i m i nat e t h e al leg ed t h reat o f

i m m i n en t en fo rcem en t o f t h e Fai r H o u s in g Act an d p rev en t an y ch il l o f t h e Co l l eg e’ s

s p eech

.

An i n ju n ct i o n ag ai n s t i m

p l e m en ti n g t h e M em o ran d u m

, h o wev er, wo u l d n ot

s t op t he D ep art m en t fro m i n v es t i g at i n g al l co m p l ai n t s o f s ex d i s cri m i n at i o n ag ai n s t

a co l l eg e, i n cl u d i n g co m

p lai n t s o f d i s cri m in at i o n b ecau se of g en d er i d en t i ty o r s ex u al

o ri en t at i o n

. Ev en i f HUD were en jo i n ed fro m en fo rci n g i t s i n t ern al d irect i v e, t h e

ag en cy wo u l d s t il l b e req u ired b y s t at ut e t o i n v es ti gat e s ex -d i scri m i n at io n co m p l ai n t s

fi led ag ai n st t h e Co l l eg e. Th e st at u t e m an d at es t h at wh en a co m p lai n t i s fi l ed

, HUD

“ s h al l m ak e an i n v es t i g at io n o f t h e al l eg ed d i scri m in at o ry h o u s i ng p ract i ce.” 4 2

U.S.C. § 3 6 10 (a)(1 )(B)(i v ). W i t h o r wi t h ou t th e Mem o ran du m

, th e ag en cy m u s t

co n si d er t h e m ean in g o f t h e Fai r Ho u s i n g Act i n l i g h t o f Bo s to ck an d i t s i n t erp ret at i o n

o f s i m i l ar s t a t u t o r y l a n g u ag e. Th e Co l l eg e h as th u s fai l ed t o s h ow t h at en jo i n i n g

o ffi ci al s fro m i m

p lem en t i n g t h e M em o ran d um w o u l d red res s an y in ju ry al l eg ed l y

ari s in g fro m t h e i n t ern al d i rect i v e, b ecau s e t h e ag en cy ret ai n s th e au t h o ri t y a n d

res p o n s i b i l i t y to carry o u t t h e s am e en fo rcem en t act i v i t y b as ed o n t h e s t at u t e al o ne.

* * *

Fo r t h es e reas on s , t h e ju d g m en t o f t h e d is tri ct co u rt i s affi rm ed

.

GRASZ, Ci rcu i t J u dg e, d i s s en t i n g

.

Th i s cas e h i gh l i g h t s t h e co rro s i v e effect on t h e ru l e o f l aw wh en i m p o rt an t

ch an ges i n g o v ern m en t p ol i cy are i m p l em en t ed o u t s i d e t h e n orm a l ad m in i s t rat i v e

p ro ces s

. Th e n o rm al m et h o d fo r ru l em ak i n g req u ires n o ti ce an d co m m en t

, wh i ch in

t u rn “ s ecu re t h e v al u es o f g o v ern m en t t ran sp aren cy an d p u b l i c p art i ci p at io n .” Io wa

-1 3

-Lea gu e o

f Ci t i e s v

. E

P A

, 7 11 F.3 d 8 4 4

, 8 73 (8 t h Ci r. 2 0 1 3 ). An ag en cy ’ s i s s u an ce

o f a g u id an ce d o cu m en t t h at fai l s t o ad h ere t o t h e p ro per ad m i n i s t rat i v e p ro ced u res

m ay ach i ev e co m

p l i an ce w i t h t h e g o vern m en t’ s des i red p ol i cy o u t co m es b y in

t erro rem m ean s

, bu t i t s k i rt s th e ru l e o f l a w a n d u n d erm i n es o u r v al ues

. Th i s i s

es p eci al ly tru e wh ere reg u l at ed en t it i es are p l aced u n der a s wo rd of Dam o cl es b u t are

d en ied ac c es s t o t h e co u rt s b ecau s e th e s wo rd h as n o t y et fal l en

. “ A n ag en cy

o p erat i n g in th i s way g ai ns a l arg e ad v an t ag e ”

— i t e n a b l es t h e ag en cy t o q u i ck l y

am en d i ts ru l es wi t h o u t fo l l o w i n g t he s t at u t o ry p ro ced u res

. A p p a l a ch ia n P o wer Co

.

v. EPA

, 20 8 F.3 d 1 0 1 5

, 1 0 2 0 (D.C. Ci r. 2 0 0 0 ). “ T h e ag en cy m ay al s o t h in k t h ere i s

an o th er ad v an t ag e— im

m u n i zi n g i t s l awm ak i n g fro m ju d i ci al rev i ew.” Id

.

Here, t h e Co l l eg e fears t h e fed eral g o v ern m en t w i l l i m m i n en t l y en fo rce H U D’ s

i n t erp ret at io n o f t h e Fai r Ho u s i n g Act (“ F H A ” ) ag ai n s t th e Co l l eg e i f t h e Co l l eg e

co n ti n u es i t s cu rren t h o u s i n g p o l icy th at as s i g n s s t u d en ts t o s i n g l e-s ex d o rm s

acco rd i n g to th ei r b i o l og i cal s ex

. Th e co u rt di s m i s s es t h i s fear as “ s p ecu l at i v e” an d

co n ten d s t h ere i s n o “ cred i b l e th reat o f en fo rcem en t .” An t e at p p

. 8

, 11

. It t h erefo re

co n cl u d es we l ack s t an d i n g t o rev i ew HUD’ s M em oran d u m d i rect in g t h e Offi ce o f

Fai r Ho u s i n g an d Eq u al Op p ort u ni t y (“ FHEO”) an d as s o ci at ed e n ti t ies t o “ fu l l y

en fo rce” t h e f

e d eral g o vern m en t ’ s i n t erp ret at i o n o f t h e FHA. I d is ag ree wi t h t h e

co u rt ’ s co n cl u si o ns an d res p ect fu l ly d i s s en t

.

Vi ewi n g th e pl ead i ng s li b eral l y

, t h e co m p l ai n t al l eg es t h e Co l l eg e’ s h o u s i n g

p o l i cy v io l at es t h e g o v ern m en t ’ s i n terp ret at i on o f th e FHA. Pu t s i m p l y

, i f t h e

g o v ern m en t act s as th e Mem o ran d u m faci al ly r e q u i res

, i t i s on l y a m at t er o f t i m e

b efo re t h e g o v ern m en t co n cl u d es t h e Co l l eg e’ s h o u s i n g p o l i cy v i o l at es t h e FHA. Th e

l aw s h o u l d n o t req u i re t he Co l l eg e t o wai t fo r t h i s t o co m e t o fru i t io n

. S ee S u s a n B.

An t h on y Li s t v. Dr i eh a us

, 5 73 U.S. 1 4 9

, 1 5 9 (2 0 1 4 ) (“ [W ] e h a v e p e r m i t t ed p reen fo rcem en t rev i ew u n der ci rcu m s t an ces t h at ren d er th e t h reat en ed en fo rcem en t

s u ffi ci en t l y i m

m i n en t.”). No r d o I b el i ev e t h e Co ll eg e m u s t rel y o n th e g o v ern m en t ’ s

i n -co u rt o ral s ug ges ti o n t h at i t wo u l d n o t en fo rce i t s i n t erp ret at i o n o f t h e FHA ag ai n s t

-1 4

-rel i g i o u s i n s t i t u t i on s b as ed o n i t s h is t o ri c pract i ce o f fo l lo wi n g Ti t l e IX’ s rel i g i ou s

ex em p t i o n

— a n ex em

p t i o n n o t ev en m en t i on ed i n t h e b ro ad lan g u ag e o f t h e

en fo rcem en t d i rect i v e i n th e M em o ran d u m

. S ee Ro d g er s v. Br ya n t

, 9 4 2 F.3 d 4 5 1,

4 5 5 (8 t h Ci r. 2 0 1 9 ) (n o t i ng t h at t h e go v ern m en t ’ s “ i n -co u rt as s u ran ces [t hat i t wi l l n ot

fu l l y en fo rce t he l aw] d o n o t ru l e o u t t h e p o s s i b i l i t y t h at i t wi l l ch an g e i t s m i n d an d

en fo rce t he l aw m o re ag g res si v el y i n t h e fu t u re”).

Th at s ai d , m

y m ai n o b j ect i o n t o t h e co u rt ’ s h o l d i n g i s m ore fu n d am en t al : t h e

h o l d i n g o v erl o o ks an i n

ju ry t h e Co l l eg e h as al r ea d y su f f er ed

— t h e dep ri v at i o n o f i t s

ri gh t to n o t i ce an d co m

m en t . Th e FHA req u i res n o t i ce an d co m m en t fo r “ al l ru l es ”

u n d er i t s p u rv i ew— i n cl u d i n g i n t erp ret a t i v e ru l es

. 4 4 2 U.S.C. § 3 6 1 4a.

“ [I] n t erp ret at i v e ru l es s i m p ly s t at e wh at th e ad m i n i s t rat iv e ag en cy t h i nk s t h e s t at u t e

m ean s

, an d o n ly rem in d affect ed p art i es o f ex i s t i n g d u t i es

. ” Io wa Lea gu e o f Ci t i es

,

7 1 1 F.3 d at 8 7 3 (q u o t i n g No r t h wes t Na t ’l Ba n k v. U.S

. Dep ’t o f t h e Tr ea s u r

y

, 9 1 7

F.2 d 1 1 1 1 , 1 1 1 7 (8 t h Ci r. 1 9 9 0 )).

In m y vi ew, HUD’ s M em o ran d u m i s an i n t erp ret at iv e ru le. Th e M em o ran d u m

ex p lai n s HUD’ s i n terp ret at io n o f t h e FHA’ s “ s ex d i s cri m i n at i on ” l an g u ag e: “ HUD’ s

Offi ce o f Gen eral Co u n s el h as co n cl u d e d t h at [t h e FHA’ s ] s ex d i s cri m i n at i o n

p ro v is i o n s

. . . p ro h i b i t d i scri m i n at i o n b ecau se o f sex u al o ri en t at i o n an d g en d er

i d en t i t y .” It t h en th ri ce d i rect s FHEO an d ot h er rel ev an t en t i t i es t o so “ i n t erp ret ” t h e

FHA’ s p ro h i bi ti o n o n sex d i scri m i n at i o n

. Th e M em o ran d u m s t at es wh at HUD t h i nk s

t h e s t at u te m ean s an d i ns t ru ct s a f f e c t ed p art i es o f t h ei r d u t i es

. T h es e are t h e

h al l m ark s of an i n t erp ret at i v e ru l e. S ee Io wa Lea gu e o

f Ci t i e s

, 7 1 1 F.3 d at 8 7 3.

In t eres ti n g l y, Pres i d en t Bi d en

— au t h o r o f t he Ex ecu t iv e Ord er p ro m p t i n g t h e

4 T h e Ad m i n is t rat i ve Pro ced u re Act ex em p t s i n t erp ret at i v e ru l es fro m t h e n o t i ce

an d co m m en t r e q u i rem en t “ [e] x cep t wh en n o ti ce o r heari n g i s req u i red b y s t at u t e.”

5 U.S.C. § 5 5 3 (b ). Th e n o t i ce an d co m m en t req u i rem en t u n d er t h e FHA fal l s u n d er

t h i s ex cep t i on

.

-1 5

-M em o ran d u m

— ch aract eri zed t h e M em o ran d u m as a “ ru l e ch an g e.” Pro cl am a t i o n

No . 1 0 ,1 77 , 8 6 Fed . Reg . 1 9 ,7 7 5 (Ap r. 1 1 , 2 02 1 ). I ag ree an d t h erefo re b el i ev e t h e

M em oran d u m

i s s u bject t o t h e FHA’ s n o ti ce an d co m m en t req u i rem en t

.

Bu t ev en i f we p ret en d t h e M em o ran du m i s n o t w h a t t he Pres i d en t s ay s i t i s

,

t h e Co l l eg e h as an al tern at i v e b as i s fo r i ts p ro ced u ral ri g ht t o n o t i c e a n d co m m en t

.

W h en H UD i s s u ed t h e Mem o ran d u m

, a f ed eral reg u l at i o n req u i red n o t i ce an d

co m m en t fo r “ s i g n ifi can t g u i d an ce d o cu m en t s

. ” 2 4 C

. F.R. § 1 1.1 (b ) (2 0 2 0 ). A

g u i d an ce d o cu m en t i n cl ud ed “ a s t at em en t o f g en eral ap pl i cab i l i t y

, d es i g n ed t o s h ap e

o r i n t en d ed t o h av e fu tu re effect o n t h e b eh av io r o f reg u l at ed p art i es

, t h at set s fo rt h

a p o l i cy o n a st at u to ry

. . . i ss u e, o r an i n t erp ret at i o n o f a s t a t u t e

. ” I d

. § 1 1 .2 (a)

(2 0 2 0). An d a g u id an ce do cu m en t w as “ s ig n i fi can t ” i f i t co u l d “ reas o n ab l y b e

an t i ci p at ed t o

. . . [r] ai s e n o v el l eg al o r p o l i cy is s u es ari si n g o ut of l eg al m an d at es [o r]

t h e Pres id en t ’ s p ri o ri t i es .” Id

. § 1 1 .2 (d )(4 ) (2 0 2 0 ). W h i le t h es e reg u l at i o ns un d er 2 4

C.F.R. § § 1 1 .1 an d 1 1 .2 h av e s in ce b een rev o k ed

, see Im p l em en ti n g Ex ecu t i v e Ord er

1 3 9 9 2

, 8 6 Fed

. Reg

. 3 5 ,3 9 1 -0 1

, at 3 5 ,3 9 2 (J u l y 6

, 2 0 2 1 ), HUD was req u i red t o fo l l o w

t h em wh i l e t hey “ rem ai n [ed ] i n fo rce.” Vo ya g eu r s Reg i o n Na t ’l Pa rk As s ’n v. Lu j a n

,

9 6 6 F.2 d 4 2 4, 4 2 8 (8 t h Ci r. 1 9 92 ). 5

Here, HUD’ s M em o ran d u m i nt erp ret ed t h e FHA’ s p ro h i b it io n o n s ex

d i s cri m i n at i o n

. It d i rect ed FHEO t o “ accep t fo r fi l i n g an d i n v es t i gat e a l l co m p l ai n t s

o f s ex d i s cri m in at i o n ” b as ed o n “ g en d er i d en ti t y or s ex u al o ri en t at i o n” (em p h as i s

ad d ed ). It cal l ed HUD’ s p ri o r FHA en fo rcem en t “ l i m i t ed ,” “ i n s u ffi c i e n t ,” an d

“ i n co n s i s t en t ” wi t h Bo s t o ck v. Cl a yt o n Cn t y.

, 1 4 0 S. Ct

. 1 7 3 1 (2 0 2 0). It s o u g h t to

5 A s one c our

t recen t l y s t at ed : “ Un der d eep ly ro o t ed p ri n ci p l es o f adm i nistr a tive

l aw, n o t to m en t i o n co m

m o n s en s e, g o v e r n m en t ag en ci es are g en eral l y req u i red to

fo l l o w t h ei r own reg u l at i o n s

. W h en ag en ci es fai l t o do s o

, th e APA (as d ev el o p ed by

cas e l a w ) g i v es ag g ri ev ed part i es a cau se o f act i o n t o en fo rce co m p l i an ce.” Fed

. Def s

. o f N.Y

., In c. v. Fed

. Bu rea u o

f Pr i s o n s

, 95 4 F. 3 d 1 1 8

, 1 3 0 (2 d Ci r. 2 0 2 0 )

(i nt ern al ci t at i on s o m i t t ed ).

-1 6

-rect ify

d en i al s o f “ t h e co n s t i t u ti o n al p ro m i s e o f eq u al p ro t ect i o n u n d er t h e l aw” fo r

t ran s gen d er i n d i v i d u al s “ t h ro u g h o u t m o s t o f A m e ri can h is to ry

. ” It s p eci fi ed i t s

req u i rem en t s a r ose fro m t he Su p rem e Co u rt ’ s Bo s t ock d eci s i o n an d Pres i d en t Bi d en ’ s

p ri o ri t i es art i cu l at ed i n Ex ecu t i v e Ord er 13 ,9 8 8

. In s h o rt

, i f t h e M em o ran d u m i s n ot

an i nt erp ret at i v e ru le, i t i s at m i n i m u m a s i g n ifi can t g u i dan ce d ocu m en t

. It s t rai n s

cred u l i t y t o s ay o t h erwi s e.

W h et h er t h e M em o ran du m was an i n t erp ret at i v e ru l e o r a s ig n i fi can t g u i d an ce

d o cu m en t

, t h e co m

p l ai n t p l au s i b l y al l eg ed HUD d ep ri v ed th e Co l l eg e o f it s ri g h t to

n o t i ce an d co m

m en t

. Su ch d ep ri v at i o n co ns t i t u t es an i n ju ry i n f a c t s u ffi ci en t fo r

s t an d i n g i f t he n ot i ce a n d co m m en t ri g h t was “ d es i g n ed to pro t ect s om e t h reat en ed

co n cret e i n t eres t o f” t h e Co l l eg e. Io wa Lea g u e o f Ci t i es

, 7 1 1 F.3 d at 87 0 –7 1 (q u o t i n g

Lu j a n v. Def

s

. o f W i l d l if e

, 5 0 4 U.S. 55 5

, 57 3 n .8 (1 9 92 )). At t h i s s t ag e o f t h e

p ro ceed in g s

, I wo u l d co ncl u d e t h e n o ti ce an d co m m en t ri gh t w as d es i g n ed t o p ro t ect

a t h reat en ed co n cret e i n t eres t of t he Co l l eg e. S ee Am. Fa r m Bu r ea u Fed ’n v. EPA

,

8 3 6 F.3 d 9 63

, 9 6 8 (8 t h Ci r. 2 01 6 ) (“ In as s es s i ng a p l ai n t iff’ s Art i cl e III s t an d i n g

, we

m u st as s u m e t h at o n t h e m eri t s t h e p l ai n t i ffs wo u l d b e su cces s f u l in th ei r cl ai m s .”

(cl ean ed u p an d q u o t at i o n o m i t t ed )). T h e Co ll eg e h as a co n cret e i n t eres t in

co m p l y i n g wi t h t h e FHA as i nt erp ret ed b y HUD. No t i ce an d co m m en t ri g h t s wo u ld

h av e h el p ed en s u re t h e Co l l eg e was “ t reat ed wi t h fai rn es s an d t ran s p aren cy aft er d u e

co n si d erat io n an d i n d u s t ry p art i ci p at i o n.” S ee Io wa Lea g u e o

f C i t i es

, 7 1 1 F.3 d at

8 7 1

. It i s p lau s i bl e at t h i s s t ag e t o co n c l u d e t hi s n o t i ce an d co m m en t ri g h t was

d es i g n ed t o p ro t ect t h i s co n cret e i n t eres t

. Th e Co ll eg e t h erefo re pl au s ib l y p l ed b o th

t h at i t s u ffered an i n

ju ry i n fact an d t h at HUD’ s fai l u re t o f o l l o w p ro p er n o t i ce an d

co m m en t p ro ced u res cau s ed t h i s i n ju ry

.

Th e Co l l eg e al s o m eet s t h e l o wer sh o w i n g req u i red fo r red res s ab il i ty

. A p art y

d ep ri v ed o f i t s n o t ice an d co m m en t ri g h t

, as h ere, “ can as s ert t h at ri g ht wi t h o ut

m eet i n g al l th e no rm al s t an dard s fo r red res s ab i l it y an d i m m ed i acy .” Id

. (q u o t i n g

-1 7

-Lu

j a n

, 50 4 U.S. at 5 7 2 n

. 7 ). Red res s ab il i t y in s u ch cas es i s s at i s fi ed “ i f t here i s s o m e

p o s s i b i l i ty t h at t h e req u es t ed rel i ef wi l l p ro m pt t h e i n ju ry -cau s i n g p art y t o reco n s i d er

t h e deci si o n t h at al leg ed l y h arm ed t h e l i t i g an t

. ” Id

. (q u o t i n g M a s s a ch u s et t

s v. EPA

,

5 4 9 U.S. 4 9 7

, 5 1 8 (2 0 0 7 )). T h e h a r m ed p art y

, h o wev er, n eed n o t “ s h o w t h at t h e

ag e n c y w o u l d al t er i ts ru l es u po n fo l lo wi n g t h e p ro p er p ro ced u res .” Id

. Here, t h e

Co l leg e s h ows “ s o m e p o s s i b i l i t y ” t h at en jo i ni n g t h e M em oran d u m ’ s en fo rcem en t

wo u l d p ro m

p t HUD t o reco n si d er t h e M em o ran du m

.

Th e Co l l eg e th u s h as s t an d i ng b ecau s e, i f n o t h i n g el s e, i t was d ep ri v ed o f i t s

o p p o rt u ni t y fo r n o t ice an d c o m m en t

. I w o u l d t h erefo re rev ers e t h e di st ri ct co urt ’ s

d i s m i s s al o f t h e Co ll eg e’ s co m p l ai n t.

__ _ _ _ _ __ _ _ __ _ _ __ _ __ _ _ _ _ _ __ _ _ _ _

-1 8

-