\\jciprod01\productn\g\gwn\85-5\front855.txt unknown Seq: 1 27-OCT-17 8:27 THE GEORGE WASHINGTON LAW REVIEW ANNUAL REVIEW OF ADMINISTRATIVE LAW FOREWORD Chevron’s Interstitial Steps 1339 Cary Coglianese ARTICLE Chevron’s Inevitability 1392 Nicholas R. Bednar and Kristin E. Hickman ESSAY When Constitutional Tailoring Demands the 1462 Lars Noah Impossible: Unrealistic Scrutiny of Agencies? ADMINISTRATIVE LAW ESSAYS Confusion in the Circuit Courts: How the 1484 Daniel S. Brookins Circuit Courts Are Solving the Mead-Puzzle by Avoiding It Altogether Arbitrary and Capricious Cost- 1514 Karmina Caragan (Non)Consideration After Michigan v. EPA The Administrative Procedure Act’s Stay 1529 Frank Chang Provision: Bypassing Scylla and Charybdis of Preliminary Injunctions Standing Underwater 1554 Daniel A. Fiedler VOLUME 85 NUMBER 5SEPTEMBER 2017 \\jciprod01\productn\g\gwn\85-5\front855.txt unknown Seq: 2 27-OCT-17 8:27 The George Washington Law Review, ISSN 0016-8076, is published monthly in January, March, May, July, September, and November by students of The George Washington University Law School, 720 20th St., N.W., Washington, D.C. 20052. Electronic mail: [email protected]. Web site: http://www.gwlr.org. Phone: (202) 994-4610. Facsimile: (202) 994-4609. Publication Office: Joe Christensen, Inc., P.O. Box 81269, Lincoln, Nebraska 68501. Please send address changes to the Editorial Office. Subscriptions are $46.00 per year; foreign, $51.00 per year. District of Columbia residents please add 5.75% sales tax. Absent timely notice of termination, subscriptions are automatically renewed upon expiration. Periodicals postage is paid at Washington, D.C., and additional mail- ing offices. Single issues of the current volume are available from the Editorial Office. 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We regret that manuscripts cannot be returned unless a self-addressed, postage-prepaid envel- ope is submitted with the manuscript. We also welcome electronic submissions. Please see our web site for further details. \\jciprod01\productn\g\gwn\85-5\front855.txt unknown Seq: 3 27-OCT-17 8:27 THE GEORGE WASHINGTON LAW REVIEW BOARD OF EDITORS 2016–2017 AMY R. PEARLMAN Editor-in-Chief LINDSAY E. KLEIN Senior Managing Editor MELIKA HADZIOMEROVIC CARLA G. GRAFF Senior Articles Editor Senior Projects Editor HILLARY C. WEBB Senior Executive Editor DANIEL A. FIEDLER CATHERINE E. AKENHEAD Senior Production Editor Senior Notes Editor TALYA BOBICK HUTCHISON Senior Online Editor EMILY A. FARMER THOMAS C. GALLAGHER, JR.PETER BIGELOW DARIA A. KASPAREK KRISTEN M. JACOBSEN SPENCER MCCANDLESS Production Editor AMY LINDSAY Online Editors ZACHARY TYREE Managing Editors PATRICK DANIEL LYNCH THEODORE E. ALEXANDER LAURA C. MULHERIN LINDY BATHURST LAUREN DORRIS REBECCA B. SCHWARTZ DANIEL S. BROOKINS JULIA C. DUKE Notes and Projects Editors JOHN PAUL CAVANAGH JARRET ERICKSON NICHOLAS GRIEPSMA NATHANIEL JOHNSON WILLIAM A. BEJAN SANDRA M. PRAXMARER CHRISTINA KRYSINSKI JESSICA FINBERG KETURAH S. TAYLOR MITCH MCDONALD MICHELLE GELLMAN DANIELLE M. VOGEL Articles Editors EMILY M. HOYLE Notes Editors KAYLYN SANDS Executive Editors ASSOCIATES ERIC D. AUSLANDER JOSHUA HERSHMAN TIMOTHY PRAWIROMARUTO ADAM BOFILL ALLISON EMY HICKS DIANYA PU KARMINA CARAGAN YULIYA KOZACHENKO DAVID RICHARDS KRISTIN T. CASEY BRYANT LEE ERIC L. SAUNDERS FRANK HYOK CHANG STEVEN MAGNUSSON KEVIN SAYLES CHARLES COHEN KATHLEEN E. MCNULTY MARK ALLEN SHERMAN, JR. KENESIA COOK TIMOTHY J. MORGAN NICHOLAS A. SIMONS FRED G. DERITIS KERRI MULLEN BENJAMIN SUNSHINE ANGEL FARJO SOPHIA SUNG EUN PARK C. LINCOLN WESLEY BRIAN FLANNIGAN KATHARINE PATTERSON JOE WIE LEAH FONTENOT COLLIN PHILLIPS E. KYLE ZIPF NATHANAEL D. S. R. POREMBKA CAROLYN JACOBS HARRIS, Office Manager \\jciprod01\productn\g\gwn\85-5\front855.txt unknown Seq: 4 27-OCT-17 8:27 MEMBERS JONATHAN ABRAMS ROBERT LEVENT HERGUNER MEG PETERSON DOREA K. BATTE´ LISA ANN JOHNSON MAYA G. RAJARATNAM SAMANTHA BENNETT JOSEPH KARAM MICHELLE RAMUS JESSICA S. A. BERRADA NADAV KARASOV ELLE ROSS ALLEGRA BIANCHINI MORGAN KELLEY RICHARD ROTHMAN SAMANTHA J. BLOCK NATHANAEL R. KREVOR MOLLY RUCKI AMANDA JOY BOLAN BRANDON KRUEGER STEPHEN SANTULLI DEREK C. BRANDT CHRISTINA KUNG GRETCHEN SCHUMAKER AMY BYRNE ANNA LEGER SANJAM SETHI MCKENZIE CATO LISA BEI LI KOMAL SHAH NICK CHANIN KEVIN LINDSEY STEPHEN M. SHAPIRO ERIN M. CHAPMAN ARIELLA LVOV KATELIN L. P. SHUGART-SCHMIDT SAMUEL COCKRIEL CLAYTON MARK XINYI SONG KYLE Y. DECHANT GILLIN MCDONALD MARIANNE SPENCER ALDEN DIIANNI-MORTON JAMES A. MCINTYRE ERICA SPEVACK SHELBY DYL YAFFA MEERAN SYDNEY STRINGER MATTHEW B. ELGIN AKKAD Y. MOUSSA LAUREN TAYLOR EILEEN FALK KARI NOBORIKAWA P. MARSHALL TICER RACHEL S. FLEESON ALICE A. O’BRIEN ELIZABETH J. UPTON EMMA FRANK OLAMIDE O. OLUSESI PATRICK C. VALENCIA TAYLOR GLOGIEWICZ RACHAEL PADGETT ERIC VALLE DINA GOLFARIDAN LANE PAGE HEATHER ELENORE WADE JILL E. GREENFIELD BENJAMIN T. PEACHEY ANGEL YINGJIAO WANG BRIAN GUMZ DANIEL B. PEARSON RICHARD WATERMAN SUZANNE HART KELSEY B. PELAGALLI JAMES YATES BRENDAN R. HEATH KATHRYN F. PENRY MOHAMMAD ALI ZAHEERUDIN \\jciprod01\productn\g\gwn\85-5\front855.txt unknown Seq: 5 27-OCT-17 8:27 The George Washington University Law School 2016–2017 Officers of Administration Steven Knapp, B.A., M.A., Ph.D., President of the University Blake D. Morant, B.A., J.D., Dean of the Law School Roger A. Fairfax, Jr., A.B., J.D., M.A., Senior Associate Dean for Academic Affairs Thomas Colby, B.A., J.D., Associate Dean for Research and Faculty Development Renee ´ Y. DeVigne, B.S., J.D., Associate Dean for Student Academic Development Elizabeth L. Ewert, B.A., M.F.A., J.D., Associate Dean of Students Phyllis Goldfarb, B.A., Ed.M., J.D., LL.M., Associate Dean for Clinical Affairs Susan L. Karamanian, B.S., B.A., J.D., Associate Dean for International and Comparative Legal Studies; Burnett Family Professorial Lecturer in International and Comparative Law and Policy Hank R. Molinengo, B.A., J.D., LL.M, Associate Dean for Administrative Affairs Alan B. Morrison, B.A., LL.B., Lerner Family Associate Dean for Public Interest and Public Service Law LeRoy C. (Lee) Paddock, B.A., J.D., Associate Dean for Environmental Law Studies Scott B. Pagel, B.A., M.A.L.S., J.D., Associate Dean for Information Services; Director of the Law Library Abraham Pollack, B.A., J.D., Associate Dean for Professional Development and Career Strategy Alfreda Robinson, B.A., M.A., J.D., Associate Dean for Trial Advocacy Lisa M. Schenck, B.A., M.P.A., J.D., LL.M., J.S.D., Associate Dean for Academic Affairs Sophia Sim, B.A., J.D., Associate Dean for Admissions and Financial Aid John M. Whealan, B.S., M.S., J.D., Associate Dean for Intellectual Property Law Studies David M. Johnson, B.A., J.D., Assistant Dean for Pro Bono & Advocacy Programs Robin L. Juni, B.A., J.D., Assistant Dean of Students Jessica Tillipman, B.S., J.D., Assistant Dean for Field Placement Richard Collins, B.S., Associate Vice President for Law Development Mike Briggs, Director of Information Systems Elizabeth H. Field, B.A., M.B.A., Director of Strategic Communications and Marketing Fred R. Hahndorf, B.S., M.S., Director of Finance, Personnel, and Logistics Rosanne L. O’Hara, B.A., M.S.Ed., Director of Academic Support Services Jared Smith, Director of Financial Aid JoSie Shelby-Wilson, B.A., Director of Admissions Donna M. Attanasio, A.B., J.D., Senior Adviser for Energy Law Programs Daniel Gordon, B.A., J.D., Senior Adviser for the Government Procurement Law Program Neil G. Ruiz, B.A., M.Sc., Ph.D Executive Director for the Center for Law, Economics, and Finance Jacob Burns Law Library Scott B. Pagel, B.A., M.A.L.S., J.D., Associate Dean for Information Services; Director of the Law Library Gia Arney, B.S., M.L.S., J.D., LL.M., Reference/Business & Finance Librarian Matthew Bochniak, Head of Instructional Technology Robert Bratton, B.A., M.L.S., Cataloging Librarian Virginia M. Bryant, B.A., M.L.S., Assistant Director for Technical Services Richard D. Evans, Emerging Technologies Librarian Lori L. Fossum, B.S., M.A., M.A., M.A., J.D., Reference/National Security & U.S. Foreign Relations Librarian Jennifer Fritz, B.M.M.E., M.L.I.S., Systems Librarian Nicole Evans Harris, B.A., J.D., M.L.I.S., Assistant Director for Information Services Mary Kate Hunter, A.B., J.D./B.C.L., M.S.L.I.S., Reference/Government Contracts Librarian Lesliediana Jones, A.B., J.D., M.L.I.S., Head of Document Services Germaine L. Leahy, B.A., M.L.S., Head of Reference Iris Lee, B.A., M.L.S., J.D., Head of Collection Services Leslie A. Lee, B.A., J.D., M.L.S., Assistant Director for Administration Jennie C. Meade, B.A., J.D., M.S.L.S., Director of Special Collections Deborah Norwood, B.A., J.D., M. Law Libr., Assistant Director for Public Services Trina R.