In re: Federal Bureau of Prisons Execution Protocol Cases, No. 19-5322 (D.C. Cir. 2020)
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The DC Circuit vacated the district court's preliminary injunction enjoining four plaintiffs from being executed. Plaintiffs claimed that the 2019 execution protocol and addendum violate the Federal Death Penalty Act of 1994 (FDPA), the Administrative Procedure Act (APA), the Federal Food, Drug, and Cosmetic Act, the Controlled Substances Act, and the First, Fifth, Sixth, and Eighth Amendments to the Constitution. Each member of the panel had a different view of what the FDPA requires.
Plaintiffs' primary claim under the FDPA, on which the district court found they were likely to succeed, involves the requirement to implement federal executions in the manner provided by state law. Judge Katsas and Judge Rao both rejected that claim on the merits; Judge Katsas concluded that the FDPA regulates only the top-line choice among execution methods, such as the choice to use lethal injection instead of hanging or electrocution; Judge Rao concluded that the FDPA also requires the federal government to follow execution procedures set forth in state statutes and regulations, but not execution procedures set forth in less formal state execution protocols; and Judge Rao further concluded that the federal protocol allows the federal government to depart from its procedures as necessary to conform to state statutes and regulations. On either of their views, plaintiffs' claim was without merit and the preliminary injunction must be vacated.
Plaintiffs contend in the alternative that the federal protocol and addendum reflect an unlawful transfer of authority from the United States Marshals Service to the Federal Bureau of Prisons. Judge Katsas would reject the claim on the merits, and Judge Rao would hold that it was forfeited. Judge Katsas and Judge Rao resolved the notice-and-comment claim because it involves purely legal questions intertwined with the merits of the FDPA issues at the center of this appeal. Judge Katsas and Judge Rao concluded, on the merits, that the 2019 protocol and addendum are rules of agency organization, procedure, or practice exempt from the APA's requirements for notice-and-comment rulemaking. Therefore, judgment for the government must be entered on this claim. Finally, the court declined to reject plaintiffs' claims under the Food, Drug, and Cosmetic Act and the Controlled Substances Act. The court remanded for further proceedings.
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