Document ID: ./input/supremecourt_opinions/opinions/19pdf/18-587_5ifl.pdf
Page Number: 56

18 

DEPARTMENT OF HOMELAND SECURITY v. 
REGENTS OF UNIV. OF CAL. 

Opinion of THOMAS, J. 

the Federal Register, justify the rule by reference to legal
authority, describe “the subjects and issues involved” in the 
rule, and allow interested parties to submit comments.  5 
U. S. C. §§553(b)–(c); see also Kisor, 588 U. S., at ___ (opin-
ion of GORSUCH, J.) (slip op., at 17).  As we have recognized
recently, use of the word “shall” indicates that these proce-
dures impose mandatory obligations on the agency before it 
can adopt a valid binding regulation.  See Maine Commu-
nity  Health  Options  v.  United  States,  590  U. S.  ___,  ___ 
(2020) (slip op., at 12).  After undergoing notice and com-
ment, the agency then publishes the final rule, which must 
“articulate  a  satisfactory  explanation  for  [the]  action  in-
cluding a rational connection between the facts found and 
the  choice  made.”  Motor  Vehicle  Mfrs.  Assn.  of  United 
States,  Inc.  v.  State  Farm  Mut.  Automobile  Ins.  Co.,  463 
U. S.  29,  43  (1983)  (internal  quotation  marks  omitted).
Only after completing this process is the legislative rule a 
valid law.  See Kisor, 588 U. S., at ___ (opinion of GORSUCH, 
J.) (slip op., at 17).10 

Because DACA has the force and effect of law, DHS was 
required to observe the procedures set out in the APA if it
wanted to promulgate a legislative rule.  It is undisputed,
however,  that  DHS  did  not  do  so.    It  provided  no  oppor-
tunity for interested parties to submit comments regarding 
the effect that the program’s dramatic and very significant
change in immigration law would have on various aspects
of society.  It provided no discussion of economic considera-
tions or national security interests.  Nor did it provide any
substantial  policy  justifications  for  treating  young  people 

—————— 

10 The APA also provides certain exceptions from notice and comment 
rulemaking.  For example, an agency may promulgate a legally binding
rule without notice and comment if good cause exists to do so.  5 U. S. C. 
§553(b)(B).  This text would become a nullity if the agency could achieve 
the  same  effect  by  simply  dispensing  with  notice  and  comment  proce-
dures altogether.