Opinion ID: 396596
Heading Depth: 1
Heading Rank: 2

Heading: Implied private right of action under the Concessions Policy Act.

Text: 12 The Foundation's claim for a private right of action under the Concessions Policy Act must be denied. The primary question in determining whether such an action is implicit in a statute is whether Congress intended to create one. Touche Ross & Co. v. Redington, 442 U.S. 560, 575, 99 S.Ct. 2479, 2489, 61 L.Ed.2d 82 (1979). Several factors are usually examined, including the language and focus of the statute, its legislative history, and its purpose. Cort v. Ash, 422 U.S. 66, 78, 95 S.Ct. 2080, 2087, 45 L.Ed.2d 26 (1975). These factors need not be examined closely here because a private right of action is not  'necessary to make effective the congressional purpose' . Chrysler Corp. v. Brown, 441 U.S. 281, 317, 99 S.Ct. 1705, 1725, 60 L.Ed.2d 208 (1979) quoting J. I. Case v. Borak, 377 U.S. 426, 433, 84 S.Ct. 1555, 1560, 12 L.Ed.2d 423 (1964). 13 In Chrysler, as here, the Court found that the plaintiff could properly challenge the questioned administrative actions under the Administrative Procedure Act, 5 U.S.C. § 702, and thus, a private right of action under the substantive statute was unnecessary. See Fort Sumter Tours, Inc. v. Andrus, 564 F.2d 1119 (4th Cir. 1979) (when the existing concessionaire challenged certain acts by the Secretary under 16 U.S.C. § 20d, the court allowed a claim under the APA). 14 III. Dismissal of the complaint following the determination that the Concessions Policy Act provided no private right of action. 15 Regardless whether a statute implies a private right of action, administrative actions thereunder may be challenged under the APA unless they fall within the limited exceptions of that Act. 5 U.S.C. § 701(a). The Service and GPI argue that Califano v. Sanders, 430 U.S. 99, 97 S.Ct. 980, 51 L.Ed.2d 192 (1977), held that the APA, in and of itself, affords no implied grant of jurisdiction to a district court. They conclude that the Foundation's claim must be dismissed if no private right of action is found in the Concessions Policy Act. 16 This argument overlooks the statement in Califano that, while the APA does not in itself provide jurisdiction, 28 U.S.C. § 1331 does. A plaintiff need not establish a private right of action under a statute before it may sue under the APA. Chrysler Corp. v. Brown, supra; Fort Sumter Tours, Inc. v. Andrus, supra. California v. Sierra Club, --- U.S. ----, 101 S.Ct. 1775, 68 L.Ed.2d 101 (1981), also cited by GPI and the Service, does not contradict this. In the latter case, the plaintiffs sought to challenge the administrative action only under the substantive statute. The APA was not pleaded. The subsequent dismissal of that complaint does not require dismissal here. 17 Although it was not addressed by the district court, we find that the Foundation has standing to sue under the APA. A plaintiff must prove that it was injured in fact, and that its interest is within the zone of interests protected or regulated. Data Processing Service Org., Inc. v. Camp, 397 U.S. 150, 151-53, 90 S.Ct. 827, 829, 25 L.Ed.2d 184 (1970). 18 The Foundation was injured when, because of the Service's violations of 16 U.S.C. § 20d and its regulations, the Foundation was unable to compete on an equal basis for the concessions contract. Village of Arlington Heights v. Metropolitan Housing Development Corp., 429 U.S. 252, 97 S.Ct. 555, 50 L.Ed.2d 450 (1977). See William F. Wilke, Inc. v. Dept. of Army, 485 F.2d 180, 183 (9th Cir. 1973). Cf. Regents of Univ. of Calif. v. Bakke, 438 U.S. 265, 280-81 n.14, 98 S.Ct. 2733, 2742-43, 57 L.Ed.2d 750 (1978). Its economic interest as a potential concessionaire, and its esthetic interests in preservation of the historical nature of Glacier Park are within the zone of interests protected by the statute. Id.; United States v. SCRAP, 412 U.S. 669, 93 S.Ct. 2405, 37 L.Ed.2d 254 (1973); Scanwell Laboratories, Inc. v. Shaffer, 424 F.2d 859 (D.C.Cir.1970). 19 Judicial review under the APA may be denied only if Congress clearly intended to foreclose review or the issue is one committed to agency discretion. 5 U.S.C. § 701(a). The Secretary and GPI argue that the decisions here in question fall within the latter exception. This argument is without merit. 20 If the Foundation were challenging the decision to award the contract to GPI, its claim might be one based on a non-reviewable decision. The Foundation does not challenge that but only the process by which it was reached. Procedural flaws are within the court's realm of expertise and are reviewable. See East Oakland-Fruitvale Planning Council v. Rumsfeld, 471 F.2d 524, 534-35 (9th Cir. 1972). 21