Document: 508 U.S. 182 113 S.Ct. 2024 124 L.Ed.2d 101 Michael E. LINCOLN, Acting Director of the Indian Health Service, et al., Petitioners,v.Grover VIGIL al. No. 91-1833. Argued March 3, 1993. Decided May 24, Syllabus * The Service receives yearly lump-sum appropriations from Congress, and expends funds under authority Snyder Act Care Improvement to provide health care for American Alaska Native people. Out these funded, 1978 1985, Children's Program, which provided clinical services handicapped children in Southwest. Congress never expressly authorized or appropriated Program but was apprised its continuing operation. In announced that it discontinuing direct order establish a nationwide treatment program. Respondents, eligible receive filed this action against petitioners (collectively, Service), alleging, inter alia, decision discontinue violated federal trust responsibility Indians, Act, Administrative Procedure (APA), Fifth Amendment's Due Process Clause. granting summary judgment respondents, District Court held Service's subject judicial review, rejecting argument "committed agency discretion by law" APA, 5 U.S.C. § 701(a)(2). court declined address merits action, however, holding amounted "legislative rule" APA's notice-and-comment requirements, 553, had not fulfilled. Appeals affirmed, that, even though no statute regulation mentioned repeated references legislative history annual Acts, combination with special relationship between people Federal Government, basis review. also reasoned Court's Morton v. Ruiz, 415 199, 94 1055, 39 270, required abide procedures before cutting back on congressionally created funded program Indians. Held: 1. therefore review Pp. ____. (a) Section 701(a)(2) precludes certain categories administrative decisions courts traditionally have regarded as discretion." allocation appropriation is such decision. It fundamental principle law where merely appropriates amounts without statutory restriction, clear inference may be drawn does intend impose legally binding restrictions, indicia committee reports other how should, are expected to, spent do any legal requirements agency. As long allocates meet permissible objectives, intrude (b) terminate committed discretion. Acts mention both speak only general terms about health. representations Program's operation translate through medium into obligations, reallocating resources assist clearly falls within mandate. addition, whatever contours, existing Government cannot limit reorder priorities serving subgroup beneficiaries class all Indians nationwide. (c) Respondents' termination their due process rights left remand. While APA contemplates will available colorable constitutional claims absent expression contrary congressional intent, record at stage allow mature consideration issues. P. 2. 553's rulemaking terminating assuming statement would qualify "rule" meaning APA. Termination might seen affecting organization, 553(b)(A) exempts "rules organization" requirements. Moreover, "general statements policy," and, else term cover, surely includes announcements sort issue here. This analysis confirmed Citizens Preserve Overton Park, Inc. Volpe, 401 402, 91 814, 28 136, stands proposition expend otherwise unrestricted not, more, Finally, erred supra, Those were Ruiz. 953 F.2d 1225, (CA 10 1992) reversed remanded. SOUTER, J., delivered opinion unanimous Court. Edwin S. Kneedler, Washington, DC, petitioners. Joel R. Jasperse, Gallup, NM, respondents. Justice SOUTER 1 For several years late 1970s early 1980s, diagnostic services, referred collectively decided reallocate effort children. We hold 701(a)(2), exercise imposed 553. 2 an Public Department Human Services, provides some 1.5 million Brief Petitioners 25 13, 1601 seq. So far concerns us here, authorizes "expend moneys time appropriate, benefit, care, assistance Indians," "relief distress conservation health." 13.1 expenditures for, mental-health specifically "therapeutic residential centers." 1621(a)(4)(D). 3 employs roughly 12,000 operates more than 500 health-care facilities continental United States Alaska. See Hearings Interior Related Agencies Appropriations 1993 Subcommittee House Committee Appropriations, 102d Cong., 2d Sess., pt. 4, p. 32 (1992); case collection related commonly known 1985. words Appeals, "clou[d of] bureaucratic haze" obscures Vigil Rhoades, 1226 (CA10 1992), seems grown out plan "to therapeutic centers disturbed children." H.R.Rep. 94-1026, 1, 80 (1976) (prepared conjunction enactment Act). These established "major cooperative agreement" Bureau Affairs, id., 81, "with intensive setting." Id., 80. 4 centers. 1978, allocated approximately $292,000 fiscal year office Albuquerque, New Mexico, planning development pilot project children, became Program. F.2d, 1227. apparently convinced building needed, 1979, requested $3.5 construct center 1227; 1980 96th 1st 8, 250 (1979) (hereinafter (Fiscal Year 1980)). did funds, indicated increased funding $300,000 expansion coordination Bureau. 96-374, pp. 82-83 (1979); S.Rep. 96-363, (1979). Plans national managed jointly fulfilled, continued simply offering Albuquerque office, staff 11 16 employees make monthly visits communities Mexico Southern Colorado Navajo Hopi Reservations. 6. "diagnostic, evaluation, followup services" emotional, educational, physical, mental handicaps. "For parents, community groups, school personnel personnel," "training child development, prevention handicapping conditions, child." 1984 98th 374 (1983) (Service submission) 1984)). monies pay regional activities during period repeatedly See, e.g., 1985 486 (1984) submission); 1984), 351, (same); 1983 97th 167 (1982) 1982 9, 71 (1981) (testimony Director); 1981 632 (1980) 1980), 245-252 officials); 97-942, 110 (House "is pleased hear success Program"). 6 Nevertheless, abandoned proposal program, June notified those who patients "re-evaluating [the Program's] purpose . adolescents." App. 77. August determined hitherto assigned should reassigned consultants programs, 1226, discontinued memorandum, dated 21, addressed offices referral sources: 7 "As you probably aware, has been involved focusing effort. included reservation service areas. During months September, [see] followed update identify alternative facilitate obtaining services. there identified resources, meetings providers scheduled networking agencies secure advocate appropriate services." 8 invited public "input" "difficult transition," explained reallocation "motivated our goal [c]hildren." Ibid.2 9 subsequently brought declaratory injunctive relief petitioners, others Mexico. Respondents alleged, various regulations, granted 746 F.Supp. 1471 (NM 1990). F.Supp., 1479. ripeness grounds, action. making publication adoption "statements 552(a)(1)(D). 1480, 1483. Because met procedural concluded procedurally invalid "premature." ordered reinstate 1486-1487, Solicitor General represented reinstated now place. 9. affirmed. Like Court, rejected Although concededly could mentioning see 1229, believed ____, "in government," 1230, affirmed ruling reasoning 270 (1974), requires much whenever " 'cuts programs Indians.' 1231 (citation omitted). consider whether applied proper form relief, failed raise. 1231-1232. certiorari narrow questions presented Appeals's 506 ----, 50, 121 20 (1992). II 12 First question error substance reviewable "[a] person suffering wrong because adversely affected aggrieved relevant statute, entitled thereof," 702, we read embodying "basic presumption review." Abbott Laboratories Gardner, 387 140, 87 1507, 1511, 18 681 (1967). "just" presumption, Block Community Nutrition Institute, 467 340, 349, 104 2450, 2455, 81 (1984), extent that" law."3 Heckler Chaney, 470 821, 830, 105 1649, 1655, 84 714 (1985), makes "review had" rare circumstances so meaningful standard judge agency's Webster Doe, 592, 599-600, 108 2047, 2052, 100 (1988); 410, 820-821, 136 (1971). "In case, ('law') can taken 'committed' decisionmaking absolutely." Heckler, 1655. 13 Over years, preclude Franklin Massachusetts, 505 112 2767, 2783, 120 636 (1992) (STEVENS, concurring part judgment); Webster, 609, S.Ct., 2056-2057 (SCALIA, dissenting). itself, institute enforcement proceedings presumptively unreviewable U.S., 831, 1655-1656. An "decision enforce often involves complicated balancing number factors peculiarly expertise," ibid., good reasons, concluded, "such 'committed discretion.' 832, 1656. Similarly, ICC Locomotive Engineers, 482 282, 107 2360, 2368, 96 222 (1987), another type discretion, refusal grant reconsideration material error. holding, emphasized "the impossibility devising adequate action." Ibid. 599-601, 2051-2053, Central Intelligence employee interests security, area executive hesitant intrude." Franklin, 2785 judgment). 14 After all, very point give capacity adapt changing responsibilities what sees most effective desirable way. International Union, Automobile, Aerospace & Agricultural Implement Workers America Donovan, 241 U.S.App.D.C. 122, 128, 855, 861 (Scalia, J.) ("A leaves recipient (as matter law, least) distribute among objects fit") (footnote omitted), cert. denied sub nom. Automobile Brock, 474 825, 106 88 66 (1985); Accounting Office, Principles Law, 6-159 (2d ed. 1992). reason, "Congress statutorily restricting done arises on" LTV Corp., 55 Comp.Gen. 307, 319 (1975); cf. Hospital Assn. NLRB, 499 111 1539, 675 (1991) (statements force law); Tennessee Valley Authority Hill, 437 153, 191, 98 2279, 2300, 57 117 (1978) ("Expressions committees dealing requests equated statutes enacted Congress"). Put way, reflects recognition must allowed "flexibility shift particular account "can necessary adjustments 'unforeseen developments' 'changing requirements' 318 15 instituting proceedings, then, "a expertise": "resources best spent" one another; likely succeed" fulfilling mandate; "best fits overall policies"; "indeed, enough resources" fund "at all." "agency better equipped deal many variables ordering priorities." 831-832, Of course, free disregard responsibilities: always circumscribe allocate putting restrictions operative (though seen, just history). 833, And, hardly need note ignore expectations expose grave political consequences. But gives leave intrude. "[T]o [that] extent," law." accordingly recognized, Program,4 likewise terms. true operation, but, explained, obligations. mandate people, indeed, seriously contend otherwise. 17 saw separate limitation Government. 1230-1231. spoken relationship, see, Cherokee Nation Georgia, 30 (5 Pet.) 17, L.Ed. (1831) (Marshall, C.J.) (Indians' "relation resembles ward his guardian"), "well dealings tribal property acts fiduciary capacity." Oklahoma, 480 700, 707, 1487, 1491, 704 (1987); Quick Bear Leupp, 210 80, 690, 698, 52 954 (1908) (distinguishing money fulfill treaty attaches, "gratuitous appropriations"). Whatever contours though, broader Hoopa Tribe Christie, 812 1097, 1102 (CA9 1986) (Federal "does obligation Indians; owed tribes") (emphasis added). One final note: although respondents claimed Clause, respondents' arguments, 1483, Appeals. 1228-1229, n. 3. Thus, while contemplates, absence claims, 603-604, 2054, issues, III 19 next quite apart substantive reviewability, familiar provisions 553 generally publish notice proposed Register afford "interested persons opportunity participate submission written data, views, arguments." §§ 553(b), (c). same section rule less days date incorporate concise statement" rule's "basis purpose." 553(c), (d). There exceptions, course. application, example, relating management property, loans, grants, benefits, contracts." 553(a)(2).5 apply, moreover, so-called "legislative" "substantive" rules; they apply "interpretative rules, policy, rules procedure, practice." 553(b). McLouth Steel Products Corp. Thomas, 267 367, 370, 838 1317, 1320 Institute Young, 260 294, 296-297, 818 943, 945-946 (1987) (per curiam ); 301-303, 950-952 (Starr, dissenting part); Anthony, Interpretive Rules, Policy Statements, Guidances, Manuals, Like—Should Use Them Bind Public?, 41 Duke L.J. 1311, 1321 Chrysler Brown, 441 281, 301, 99 1705, 1717, 60 208 (noting "[t]he central distinction regulations found APA"). undisputed resources. argues 29-34. contrary, well Act's broad definition term. 551(4).6 17-19. Determining calls difficult exercise. conduct however. exempt 553.7 553(b)(A). previously described 'statements issued advise prospectively manner proposes discretionary power.' 302, 31, 1718, 31 (quoting Attorney General's Manual 30, (1947)). considered statemen[t] announcement like us, appropriation. 21 Our (1971), confirms conclusion follow notice-and- comment Park dealt Secretary Transportation's authorize use interstate highway park Memphis, Tennessee. Private citizens organizations Secretary's prohibiting existed 'feasible prudent' route, 405, (citations argued, determination "substantial evidence" standard, 706(2)(E). 414, 822. contention, substantial-evidence test applies, addition pursuant [the] provision[s]" unequivocally expenditure build highway] park] plainly function." 823. 22 here criteria 'feasib[ility] pruden[ce],' 818, generality standards underscores inherent (reviewable was), obligations comparable. Indeed, seek distinguish principally ground altered eligibility assistance. 24-25. fails support distinction, being indication (or, matter, initiate it) anything modify distinct availability geographic area. presumably mean longer alter providing initiation South Dakota. 23 Nor, finally, think solid challenged provision, contained Affairs manual, restricted Bureau's own provision Register, so. 233-234, 1074. failure rendered invalid, stating circumstances, denial benefits "inconsistent 'the distinctive incumbent upon dependent sometimes exploited people.' 236, 1075 Seminole States, 316 286, 296, 62 1049, 1054, 86 1777 (1942)). No exist IV 24 reversed, remanded further consistent opinion. ordered. syllabus constitutes prepared Reporter Decisions convenience reader. Detroit Lumber Co., 200 321, 337, 26 287, 50 499. By terms, applies Interior. Under 42 2001(a), authorities respect Indians" transferred Services. 426 continues discharging Education All Handicapped Children 1975, 89 Stat. 773, amended, 1400 1227 full, 701(a) provides: "This chapter [relating review] according thereof, except that—(1) review; (2) parties addressed, occasion consider, application 701(a)(1) case. Significantly, fit appropriations. "none Service] shall initial lease permanent structures advance therefor Acts." Pub.L. 98-473, 1864. "notwithstanding current Services extended non-Indians two situations: (1) non-Indian woman pregnant Indian's duration her pregnancy postpartum, members household if medical officer charge determines control acute infectious disease hazard." 97-394, Stat.1990. 'matter[s] benefits,' determined, 33, 19. 551(4) 'rule' means whole applicability future effect designed implement, interpret, prescribe policy describing practice approval prescription rates, wages, corporate financial reorganizations prices, facilities, appliances, allowances valuations, costs, accounting, practices bearing foregoing." express view 552, propriety

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