Opinion ID: 78002
Heading Depth: 1
Heading Rank: 2

Heading: background of this case

Text: In 1984, the FWS determined that FEMA's administration of the NFIP in the Florida Keys potentially jeopardized the existence of the Florida Key deer by effectively authorizing the development that pushed the Key deer to the brink of extinction. In 1989, however, FEMA refused the FWS's request for formal consultation, asserting that the ESA did not apply to the NFIP. In 1990, the plaintiffs, which we hereafter collectively refer to as the Wildlife Organizations, filed this suit seeking an injunction requiring FEMA to comply with section 7(a)(2) of the ESA by formally consulting with the FWS about the impact of its administration of the NFIP on the Key deer. The Wildlife Organizations adopted the FWS's argument that the NFIP encouraged new development that threatened the meager population of 250-300 Key deer with extinction. Fla. Key Deer v. Stickney ( Fla. Key Deer I ), 864 F.Supp. 1222, 1230-31 (S.D.Fla.1994). After a bench trial, the district court agreed and entered a Memorandum Opinion and Final Declaratory Judgment in the Wildlife Organizations' favor, requiring FEMA to consult with the FWS. Id. at 1240-42. The court retained jurisdiction over the case to enforce the injunctive relief granted. Id. at 1242. FEMA did not appeal that ruling. In compliance with this 1994 ruling, FEMA consulted with the FWS regarding the impact of the NFIP on the Key deer and nine other endangered or threatened species. In 1997, the FWS issued its opinion, which found, among other things, that the NFIP, as administered in the Florida Keys, jeopardized the continued existence of the Key deer and eight other listed species. In accordance with its regulations and the ESA, the FWS recommended reasonable and prudent alternatives (1997 RPAs) to the manner in which FEMA administered the NFIP to avoid placing the Key deer and other listed species in jeopardy. The 1997 RPAs provided for review by the FWS of new development within the suitable habitat of the listed species. In compliance, Monroe County conditioned the grant of building permits to landowners on the completion of FWS review. During that review, the FWS was to determine whether the proposed project may or would not adversely affect endangered or threatened species or designated critical habitat. Depending upon the answer, the FWS would take appropriate action to ensure compliance with the ESA. In the 1997 RPAs, the FWS also recommended that FEMA evaluate Monroe County's compliance with the consultation procedure, notify the County of violations, and treat violations as substantive deficiencies pursuant to 44 C.F.R. § 60.3-.5. The County's failure to correct the deficiencies would result in probation or suspension of its participation in the NFIP. Finally, the 1997 RPAs also included conservation recommendations under section 7(a)(1) of the ESA. Specifically, the FWS recommended that FEMA provide incentives in the form of reduced insurance premiums for completion of a comprehensive, county-wide habitat conservation plan. FEMA adopted the 1997 RPAs and conservation recommendations in 1997. In 1998, the Wildlife Organizations filed an amended complaint in the original lawsuit, adding the FWS as a defendant and challenging the adequacy of the 1997 RPAs and the accompanying conservation recommendations under the ESA and the Administrative Procedure Act. The Wildlife Organizations claimed that the 1997 RPAs failed to insure that [the NFIP would not] jeopardize the continued existence of any endangered species or threatened species or their critical habitat pursuant to 16 U.S.C. § 1536(a)(2); that FEMA was not adhering to the FWS review suggested in the 1997 RPAs; and that the conservation program adopted by FEMA did not satisfy section 7(a)(1). Before the district court ruled on cross-motions for summary judgment, FEMA and the FWS reinitiated consultation. The new consultation apparently arose from a provision of the 1997 RPAs that required a second consultation if Monroe County failed to complete a habitat conservation plan within four years, which in fact the County failed to do. In 2003, the FWS issued a second opinion assessing the threat that FEMA's administration of the NFIP posed to the listed species in the Florida Keys. It concluded that the NFIP jeopardized eight of the ten species considered in 1997, but that the 1997 RPAs adequately protected the listed species. Accordingly, it simply reiterated its recommendation that FEMA continue to implement the same reasonable and prudent alternatives (2003 RPAs) suggested in 1997 and the same conservation recommendations made in 1997 pursuant to section 7(a)(1), even though the challenges to the 1997 RPAs contained in the first amended complaint had not been resolved. The Wildlife Organizations correspondingly amended their complaint in order to challenge the 2003 RPAs, the conservation recommendations, and FEMA's decision to adopt them. On March 29, 2005, the district court granted the Wildlife Organizations' motion for summary judgment, finding that FEMA had not satisfied its obligation under section 7(a)(1) to carry out programs to conserve species and that neither FEMA nor the FWS had satisfied their obligations under section 7(a)(2). Fla. Key Deer v. Brown ( Fla. Key Deer II ), 364 F.Supp.2d 1345, 1352-61 (S.D.Fla.2005). On September 12, 2005, the district court enjoined FEMA from providing any insurance for new developments in the suitable habitat of the listed species in Monroe County pending further consultation and compliance with its order of March 29, 2005. Fla. Key Deer v. Brown ( Fla. Key Deer III ), 386 F.Supp.2d 1281, 1294 (S.D.Fla.2005). [3]