gonzales attorney general et al oregon et argued october decided january controlled substances act csa act enacted main objectives combating drug abuse controlling legitimate illegitimate traffic controlled substances criminalizes inter alia unauthorized distribution dispensation substances classified five schedules attorney general may add remove reschedule substances making particular findings scientific medical matters must accept findings secretary health human services secretary proceedings must record opportunity comment dispute involves controlled substances listed schedule ii generally available written prescription regulation promulgated attorney general requires prescriptions used legitimate medical purpose individual practitioner acting usual course professional practice cfr prevent diversion controlled substances csa regulates activity physicians must register accordance rules regulations promulgated attorney general may deny suspend revoke registration relevant inconsistent public interest determining consistency public interest must consider five factors including state recommendation compliance state federal local law regarding controlled substances public health safety csa explicitly contemplates role regulating controlled substances see oregon death dignity act odwda exempts civil criminal liability physicians compliance odwda specific safeguards dispense prescribe lethal dose drugs upon request terminally ill patient attorney general issued interpretive rule address implementation enforcement csa respect odwda declaring using controlled substances assist suicide legitimate medical practice dispensing prescribing purpose unlawful csa state physician pharmacist terminally ill state residents challenged rule district permanently enjoined enforcement ninth circuit invalidated rule reasoning making medical procedure authorized oregon law federal offense altered balance federal government without requisite clear statement csa authorized action alternative rule squared csa plain language targets conventional drug abuse excludes attorney general medical policy decisions held csa allow attorney general prohibit doctors prescribing regulated drugs use suicide state law permitting procedure pp administrative rule interpreting issuing agency ambiguous regulation may receive substantial deference auer robbins may interpretation ambiguous statute chevron natural resources defense council appears congress delegated authority agency generally make rules carrying force law agency interpretation claiming deference promulgated exercise authority mead otherwise interpretation entitled respect extent power persuade skidmore swift pp interpretive rule issue entitled auer deference interpretation cfr unlike underlying regulations auer gave specificity statutory scheme secretary labor charged enforcing reflected labor department considerable experience expertise underlying regulation little restate terms statute csa allows prescription drugs currently accepted medical use requires medical purpose dispensing least controlled substances schedules defines valid prescription one issued legitimate medical purpose ii similarly physicians considered practitioners dispense controlled substances course professional practice regulation repeats two statutory phrases attempts summarize others agency acquire special authority interpret words instead using expertise experience formulate regulation elected merely paraphrase statutory language furthermore statutory authority interpretive rule come csa amendments adding public interest requirement cfr adopted current interpretation runs counter intent time regulation promulgation additional reason auer deference unwarranted pp interpretive rule also entitled chevron deference statutory phrase legitimate medical purpose ambiguous relevant sense however chevron deference accorded merely statute ambiguous administrative official involved rule must promulgated pursuant authority congress delegated official specific respects attorney general authorized make rules csa show authorized make rule declaring illegitimate medical standard patient care treatment specifically authorized state law congress delegated attorney general authority promulgate rules relating registration control dispensing controlled substances efficient execution statutory functions control means add substance schedule following specified procedures interpretive rule concern scheduling substances issued required procedures fall attorney general control authority even control understood signify something statutory definition support interpretive rule interpretive rule justified csa registration provisions undertake act analysis determining registration inconsistent public interest deals much registration purports declare using controlled substances suicide crime authority going well beyond attorney general statutory power register deregister physicians anomalous congress painstakingly described attorney general limited authority deregister single physician schedule single drug given implication authority declare entire class activity outside course professional practice therefore criminal violation csa enough public interest public health safety federal law used part act attorney general authority cf sutton air lines first two terms call attorney general executive official make independent assessment meaning federal law attorney general base interpretive rule application test generally public health safety factor specifically even doubtful cite factors deregister physician simply deemed controversial practice permitted state law illegitimate medical purpose factor requires attorney general decide ompliance law suggest may decide law say define substantive standards medical practice part authority also put considerable tension narrowly defined control registration delegation go moreover plain language text treat delegation execution functions delegation define functions well beyond act specific grants authority authority desired government inconsistent act design fundamental respects attorney general must share power respect defer secretary whose functions likewise delineated confined act postenactment congressional commentary csa regulation medical practice also odds attorney general claimed authority government claim attorney general decision legal medical one suffice interpretive rule places extensive reliance medical judgments views medical community concluding assisted suicide legitimate medical purpose idea congress gave broad unusual authority implicit delegation sustainable importance issue suicide makes oblique form claimed delegation suspect pp attorney general opinion unpersuasive skidmore csa case law amply support conclusion congress regulates medical practice insofar bars doctors using powers means engage illicit drug dealing trafficking conventionally understood beyond act manifests intent regulate practice medicine generally understandable given federalism structure limitations csa structure operation presume rely upon functioning medical profession regulated police powers federal government set uniform standards regulating health safety connection csa however provision congress set general uniform medical practice standards strengthens understanding csa statute combating recreational drug abuse also indicates congress wants regulate medical practice given scheme explicit statutory language difficulty defending attorney general declaration csa impliedly criminalizes suicide compounded act consistent delegation medical judgments secretary otherwise careful allocation powers enforcing csa limited objectives government contention terms medical medicine refer healing curative art thus embrace intentional hastening patient death rests reading prescription requirement without illumination rest statute viewed context requirement better understood ensuring patients use controlled substances doctor supervision prevent addiction recreational abuse read prescriptions assisted suicide drug abuse csa discordant phrase consistent use throughout act mention ordinary meaning government interpretation prescription requirement also fails objection attorney general unlikely recipient broad authority given secretary primacy shaping medical policy csa act otherwise careful allocation decisionmaking powers pp affirmed kennedy delivered opinion stevens souter ginsburg breyer joined scalia filed dissenting opinion roberts thomas joined thomas filed dissenting opinion alberto gonzales attorney general et petitioners oregon et al writ certiorari appeals ninth circuit january justice kennedy delivered opinion question us whether controlled substances act allows attorney general prohibit doctors prescribing regulated drugs use suicide notwithstanding state law permitting procedure observed americans engaged earnest profound debate morality legality practicality suicide washington glucksberg dispute us part product political moral debate resolution requires inquiry familiar courts interpreting federal statute determine whether executive action authorized otherwise consistent enactment oregon became first state legalize assisted suicide voters approved ballot measure enacting oregon death dignity act odwda rev stat et seq odwda survived ballot measure seeking repeal exempts civil criminal liability physicians compliance specific safeguards odwda dispense prescribe lethal dose drugs upon request terminally ill patient drugs oregon physicians prescribe odwda regulated federal statute controlled substances act csa act stat amended et seq csa allows particular drugs available written prescription registered physician ordinary course drugs prescribed smaller doses pain alleviation november interpretive rule issued attorney general addresses implementation enforcement csa respect odwda determines using controlled substances assist suicide legitimate medical practice dispensing prescribing purpose unlawful csa interpretive rule validity csa issue us turn first text structure csa enacted main objectives combating drug abuse controlling legitimate illegitimate traffic controlled substances csa creates comprehensive closed regulatory regime criminalizing unauthorized manufacture distribution dispensing possession substances classified act five schedules gonzales raich slip ed supp ii act places substances one five schedules based potential abuse dependence accepted medical use accepted safety use medical supervision schedule contains severe restrictions access use schedule least raich supra slip congress classified host substances enacted csa statute permits attorney general add remove reschedule substances may however making particular findings scientific medical matters required accept findings secretary health human services secretary proceedings must record opportunity comment see main ed supp present dispute involves controlled substances listed schedule ii substances generally available pursuant written nonrefillable prescription physician regulation promulgated attorney general requires every prescription controlled substance issued legitimate medical purpose individual practitioner acting usual course professional practice cfr prevent diversion controlled substances medical uses csa regulates activity physicians issue lawful prescriptions schedule ii drugs physicians must obtain attorney general registration issued accordance rules regulations promulgated attorney general may deny suspend revoke registration relevant physician registration inconsistent public interest deciding whether practitioner registration public interest attorney general shall consider recommendation appropriate state licensing board professional disciplinary authority applicant experience dispensing conducting research respect controlled substances applicant conviction record federal state laws relating manufacture distribution dispensing controlled substances compliance applicable state federal local laws relating controlled substances conduct may threaten public health safety csa explicitly contemplates role regulating controlled substances evidenced provision provision subchapter shall construed indicating intent part congress occupy field provision operates exclusion state law subject matter otherwise within authority state unless positive conflict provision state law two consistently stand together oregon voters enacted odwda oregon residents eligible request prescription odwda must receive diagnosis attending physician incurable irreversible disease within reasonable medical judgment cause death within six months rev stat attending physicians must also determine whether patient made voluntary request ensure patient choice informed refer patients counseling might suffering psychological disorder depression causing impaired judgment second consulting physician must examine patient medical record confirm attending physician conclusions oregon physicians may dispense issue prescription requested drug may administer reviewing physicians must keep detailed medical records process leading final prescription records oregon department human services reviews physicians dispense medication pursuant odwda must also registered state board medical examiners federal drug enforcement administration dea patients ended lives ingesting lethal dose medication prescribed odwda oregon dept human seventh annual report oregon death dignity act mar members congress concerned odwda invited dea prosecute revoke csa registration oregon physicians assist suicide contended hastening patient death legitimate medical practice prescribing controlled substances purpose violates csa letter orrin hatch henry hyde thomas constantine july reprinted hearings senate committee judiciary hereinafter hearings letter received initial favorable response director dea see letter thomas constantine orrin hatch hearings attorney general reno considered matter concluded dea take proposed action csa authorize displace primary regulators medical profession override state determination constitutes legitimate medical practice letter attorney general janet reno orrin hatch oregon death dignity act june hearings legislation introduced grant explicit authority attorney general reno found lacking failed pass see sess sess john ashcroft appointed attorney general perhaps ashcroft supported efforts curtail assisted suicide serving senator see cong rec remarks ashcroft oregon attorney general hardy myers wrote request meeting department justice officials department decide revisit application csa assisted suicide letter app brief opposition attorney general myers received reply letter one attorney general ashcroft advisers writing behalf stated aware pending legislation congress prompt review department interpretation csa relates suicide review commenced future happy include views review letter lori sharpe apr november without consulting oregon apparently anyone outside department attorney general issued interpretive rule announcing intent restrict use controlled substances suicide incorporating legal analysis memorandum solicited office legal counsel attorney general ruled assisting suicide medical purpose within meaning cfr prescribing dispensing administering federally controlled substances assist suicide violates controlled substances act conduct physician registered dispense controlled substances may registration inconsistent public interest therefore subject possible suspension revocation attorney general conclusion applies regardless whether state law authorizes permits conduct practitioners others regardless condition person whose suicide assisted fed reg little dispute interpretive rule substantially disrupt odwda regime respondents contend petitioners dispute every prescription filled odwda specified drugs classified schedule ii physician prescribe substances without dea registration revocation suspension registration severe restriction medical practice dispensing controlled substances without valid prescription furthermore federal crime see supp ii moore response state oregon joined physician pharmacist terminally ill patients oregon challenged interpretive rule federal district district oregon entered permanent injunction interpretive rule enforcement divided panel appeals ninth circuit granted petitions review held interpretive rule invalid oregon ashcroft reasoned making medical procedure authorized oregon law federal offense interpretive rule altered usual constitutional balance federal government without requisite clear statement csa authorized action quoting gregory ashcroft turn quoting atascadero state hospital scanlon appeals held alternative interpretive rule squared plain language csa targets conventional drug abuse excludes attorney general decisions medical policy granted government petition certiorari ii executive actors often must interpret enactments congress charged enforcing implementing parties us sharp disagreement degree deference must accord interpretive rule substantive conclusions whether rule authorized statutory text although balancing necessary respect agency knowledge expertise constitutional office courts role interpreter laws delicate matter familiar principles guide us administrative rule may receive substantial deference interprets issuing agency ambiguous regulation auer robbins interpretation ambiguous statute may also receive substantial deference chevron natural resources defense council deference accordance chevron however warranted appears congress delegated authority agency generally make rules carrying force law agency interpretation claiming deference promulgated exercise authority mead otherwise interpretation entitled respect extent power persuade skidmore swift government first argues interpretive rule elaboration one attorney general regulations cfr requires prescriptions issued legitimate medical purpose individual practitioner acting usual course professional practice government says interpretive rule entitled considerable deference accordance auer view auer standard deference accords agency inapplicable auer involved disputed interpretation fair labor standards act applied class law enforcement officers regulations promulgated secretary labor exemption overtime pay depended part whether employees met salary basis test secretary labor filed amicus brief explaining view regulations gave exempt status officers gave weight interpretation holding applicable test creature secretary regulations interpretation jurisprudence controlling unless plainly erroneous inconsistent ibid internal quotation marks omitted auer underlying regulations gave specificity statutory scheme secretary charged enforcing reflected considerable experience expertise department labor acquired time respect complexities fair labor standards act hand underlying regulation little restate terms statute language interpretive rule addresses comes congress attorney general statute regulation belies government argument auer deference government suggest interpretation turns difference statutory regulatory language csa allows prescription drugs currently accepted medical use requires medical purpose dispensing least controlled substances schedules reporting provision defines valid prescription one issued legitimate medical purpose ii similarly physicians considered acting practitioners statute dispense controlled substances course professional practice regulation uses terms legitimate medical purpose course professional practice repeats two statutory phrases attempts summarize others gives little instruction central issue case decides whether particular activity course professional practice done legitimate medical purpose since regulation gives indication decide issue attorney general effort decide considered interpretation regulation simply put existence parroting regulation change fact question meaning regulation meaning statute agency acquire special authority interpret words instead using expertise experience formulate regulation elected merely paraphrase statutory language furthermore explained statutory authority issue interpretive rule comes amendments csa gave attorney general authority register deregister physicians based public interest regulation enacted amendments interpretive rule justified indicative intent attorney general current interpretation runs counter intent time regulation promulgation additional reason auer deference unwarranted thomas jefferson univ shalala internal quotation marks omitted deference auer inappropriate turn question whether interpretive rule terms permissible interpretation csa interpretive rule receives deference auer neither receive deference chevron statute ambiguous judicial review administrative rulemaking often demands chevron deference rule judged accordingly agree think statutory phrase legitimate medical purpose generality susceptible precise definition open varying constructions thus ambiguous relevant sense chevron deference however accorded merely statute ambiguous administrative official involved begin rule must promulgated pursuant authority congress delegated official mead attorney general rulemaking power fulfill duties csa specific respects authorized make rules however instruct us authorized make rule declaring illegitimate medical standard care treatment patients specifically authorized state law starting point inquiry course language delegation provision many cases authority clear statute gives agency broad power enforce provisions statute see national cable telecommunications assn brand internet services slip explaining federal communications commission regulation received chevron deference congress delegated commission authority rules regulations may necessary public interest carry provisions act quoting household credit services pfennig giving chevron deference federal reserve board regulation congress expressly delegated board authority prescribe regulations judgment board necessary proper effectuate purposes statute quoting csa grant attorney general broad authority promulgate rules csa gives attorney general limited powers exercised specific ways rulemaking authority csa described two provisions attorney general authorized promulgate rules regulations charge reasonable fees relating registration control manufacture distribution dispensing controlled substances listed chemicals supp attorney general may promulgate enforce rules regulations procedures may deem necessary appropriate efficient execution functions subchapter evident sections congress delegate attorney general authority carry effect provisions csa rather promulgate rules relating registration control efficient execution functions statute turning first attorney general authority make regulations control drugs delegation sustain interpretive rule attempt define standards medical practice control term art csa used subchapter subchapter includes term means add drug substance immediate precursor schedule part subchapter whether transfer another schedule otherwise exercise scheduling power attorney general must follow detailed set procedures including requesting scientific medical evaluation secretary see main ed supp statute also specific manner attorney general must exercise authority rules attorney general subsection regarding scheduling shall made record opportunity hearing pursuant rulemaking procedures prescribed administrative procedure act interpretive rule consideration concern scheduling substances issued required procedures rules regarding scheduling fall attorney general control authority even control understood signify something statutory definition support interpretive rule statutory references control outside scheduling context make clear attorney general establish controls diversion give authority define diversion based view legitimate medical practice explained csa express limitations attorney general authority indications statutory scheme belie notion attorney general granted implicit authority indeed control given expansive meaning required sustain interpretive rule transform carefully described limits attorney general authority registration scheduling mere suggestions turn next registration provisions csa attorney general required register physician authorized state attorney general deregister physician falsified application convicted felony relating controlled substances state license registration revoked see stat csa amended allow attorney general deny registration applicant determines issuance registration inconsistent public interest registration may also revoked suspended attorney general grounds determining consistency public interest attorney general must discussed consider five factors including state recommendation compliance state federal local laws regarding controlled substances public health safety interpretive rule justified part statute undertake analysis concerns much registration interpretive rule face purport application registration provision instead interpretation substantive federal law requirements cfr valid prescription begins announcing assisting suicide legitimate medical purpose dispensing controlled substances assist suicide violates csa fed reg violation criminal offense often felony ed supp ii interpretive rule thus purports declare using controlled substances suicide crime authority goes well beyond attorney general statutory power register deregister attorney general deregistration power course may carry implications criminal enforcement physician dispenses controlled substance deregistered violates interpretive rule works opposite direction however declares certain conduct criminal placing jeopardy registration physician engages conduct extent interpretive rule concerns registration simply obvious one five factors attorney general must consider deciding public interest ompliance applicable state federal local laws relating controlled substances problem design interpretive rule explain attorney general authority decide constitutes underlying violation csa first place explanation government seems advance attorney general authority decide whether physician actions inconsistent public interest provides basis interpretive rule logic however attorney general claims extraordinary authority attorney general argument correct power deregister necessarily include greater power criminalize even actions registered physicians whenever engage conduct deems illegitimate power criminalize unlike power registration must exercised considering five express statutory factors unrestrained anomalous congress painstakingly described attorney general limited authority deregister single physician schedule single drug given implication authority declare entire class activity outside course professional practice therefore criminal violation csa see federal maritime seatrain lines light specific grants authority unwilling construe ambiguous provisions serve purpose creating authority purpose obviously intended sutton air lines instructive statute issue americans disabilities act ada like csa divides interpretive authority among various executive actors relied terms structure ada decide neither equal employment opportunity commission agency authority define disability ada specifically delegating provision stated eeoc shall issue regulations carry subchapter section statute defining disability different subchapter accept idea employment subchapter subchapter includes provisions use defined terms eeoc might elaborate regulations meaning elaboration needed order substantive provisions subchapter breyer dissenting see also adams fruit barrett holding delegation authority promulgate motor vehicle safety standards include authority decide scope federal statute delegation regarding statute enforcement provisions evident statute principle controls enough terms public interest public health safety federal law used part statute attorney general authority statutory terms public interest public health call attorney general executive official make independent assessment meaning federal law attorney general base interpretive rule application test generally public health safety factor specifically even doubtful attorney general cite public interest public health deregister physician simply deemed controversial practice permitted state law illegitimate medical purpose federal law factor though require attorney general decide ompliance law suggest may decide law says otherwise attorney general authoritatively interpret state local laws also included despite obvious constitutional problems must evaluate compliance federal law deciding registration attorney general must surely evaluate compliance federal law deciding whether prosecute entitle chevron deference see crandon scalia concurring judgment justice department course specific responsibility determine statute means order decide prosecute never thought interpretation charged prosecuting criminal statutes entitled deference limits attorney general authority define medical standards care treatment patients bear also proper interpretation section allows attorney general best determine execute functions quite different matter however say attorney general define substantive standards medical practice part authority find delegation extent put part statute considerable tension narrowly defined delegation concerning control registration go moreover plain language text treat delegation execution functions delegation define functions well beyond statute specific grants authority congress chooses delegate power extent referring back administrator functions giving authority provisions statute interpret see national cable telecommunications household credit services authority desired government inconsistent design statute fundamental respects attorney general sole delegated authority csa must instead share respects defer secretary whose functions likewise delineated confined statute csa allocates decisionmaking powers among statutory actors medical judgments decided federal level limited objects statute placed hands secretary scheduling context example secretary recommendations scientific medical matters bind attorney general attorney general control substance secretary disagrees see pt section intended authorize attorney general undertake support medical scientific research purpose scheduling within competence department health education welfare similar vein act regulation medical practice respect drug rehabilitation gives attorney general limited role secretary consultation attorney general national medical groups determine appropriate methods professional practice medical treatment narcotic addiction see ed supp ii stating attorney general shall register practitioners dispense drugs narcotics treatment secretary determined applicant qualified treat addicts attorney general concluded applicant comply record keeping security regulations moore noting enacting provisions congress sought change fact prosecutions past turned opinions federal prosecutors section preserves distinctions found csa functions attorney general secretary decisions medical nature made secretary law enforcement decisions respecting security stocks narcotics drugs maintenance records drugs made attorney general post enactment congressional commentary csa regulation medical practice also odds attorney general claimed authority determine appropriate medical standards preparation ratification convention psychotropic substances congress decided implement compliance framework procedures criteria classification substances provided csa ensure nothing convention interfere ethical medical practice country determined secretary basis consensus views american medical scientific community ibid structure csa conveys unwillingness cede medical judgments executive official lacks medical expertise interpreting statutes divide authority recognized historical familiarity policymaking expertise account first instance presumption congress delegates interpretive lawmaking power agency rather reviewing presume congress intended invest interpretive power administrative actor best position develop attributes martin occupational safety health review citations omitted presumption works conclusion attorney general authority make quintessentially medical judgments government contends attorney general decision legal medical one generality however suffice attorney general interpretive rule office legal counsel memo incorporates place extensive reliance medical judgments views medical community concluding assisted suicide legitimate medical purpose see fed reg noting medical distinctions assisting suicide giving sufficient medication alleviate pain memorandum office legal counsel attorney general june app pet cert discussing federal medical policy suicide examining views medical community confirms authority claimed attorney general beyond expertise incongruous statutory purposes design idea congress gave attorney general broad unusual authority implicit delegation csa registration provision sustainable congress held alter fundamental details regulatory scheme vague terms ancillary provisions one might say hide elephants mouseholes whitman american trucking see fda brown williamson tobacco confident congress intended delegate decision economic political significance agency cryptic fashion importance issue suicide subject earnest profound debate across country glucksberg makes oblique form claimed delegation suspect government theory moreover medical judgments attorney general make limited suicide argument accepted decide whether particular drug may used particular purpose indeed whether physician administers controversial treatment deregistered occur government view despite statute express limitation attorney general authority registration control attendant restrictions functions despite statutory purposes combat drug abuse prevent illicit drug trafficking need decide whether chevron deference warranted interpretation issued attorney general concerning matters closer role csa namely preventing doctors engaging illicit drug trafficking light foregoing however csa give attorney general authority issue interpretive rule statement force law course exercising authority attorney general uses analysis interpretive rule guidance deciding prosecute deregister question remains whether substantive interpretation correct since interpretive rule promulgated pursuant attorney general authority interpretation legitimate medical purpose receive chevron deference instead receives deference accordance skidmore weight judgment particular case depend upon thoroughness evident consideration validity reasoning consistency earlier later pronouncements factors give power persuade lacking power control reasons given reasons set find attorney general opinion persuasive iii noted csa repealed earlier antidrug laws favor comprehensive regime combat international interstate traffic illicit drugs raich slip congress sought conquer drug abuse control legitimate illegitimate traffic controlled substances ibid comes little surprise considered extent csa regulates medical practice beyond prohibiting doctor acting drug instead physician moore moore addressed situation doctor sold drugs legitimate purposes primarily profits derived therefrom quoting pt internal quotation marks omitted defendant engaged overprescribing methadone concede brief observe generally accepted medical practices congress express determination marijuana accepted medical use foreclosed argument statutory coverage drugs available doctor prescription deciding whether csa read prohibiting suicide look statute text design statute case law amply support conclusion congress regulates medical practice insofar bars doctors using powers means engage illicit drug dealing trafficking conventionally understood beyond however statute manifests intent regulate practice medicine generally silence understandable given structure limitations federalism allow latitude police powers legislate protection lives limbs health comfort quiet persons medtronic lohr quoting metropolitan life ins massachusetts structure operation csa presume rely upon functioning medical profession regulated police powers attorney general register physician dispense controlled substances applicant authorized dispense controlled substances laws state practices considering whether revoke physician registration attorney general looks violations federal drug laws shall also consider recommendation appropriate state licensing board professional disciplinary authority registrant compliance state local drug laws ibid definition practitioner eligible prescribe includes physicians licensed registered otherwise permitted jurisdiction practices dispense controlled substances cautioning conclusion csa effectively displaces general regulation medical practice act provision indicates absent positive conflict none act provisions construed indicating intent part congress occupy field provision operates exclusion state law subject matter otherwise within authority state oregon regime example state regulation medical practice csa presupposes rather simply decriminalizing assisted suicide odwda limits exercise attending physicians terminally ill patients physicians must licensed oregon board medical examiners rev stat statute gives attending physicians central role requiring provide prognoses prescriptions give information palliative alternatives counseling ensure patients competent acting voluntarily eligible patient must also get second opinion another registered physician statute safeguards require physicians keep submit inspection detailed records actions even though regulation health safety primarily historically matter local concern hillsborough county automated medical laboratories question federal government set uniform national standards areas see raich supra slip connection csa however find one area congress set general uniform standards medical practice title comprehensive drug abuse prevention control act csa title ii provides secretary consultation attorney general national organizations representative persons knowledge experience treatment narcotic addicts shall determine appropriate methods professional practice medical treatment narcotic addiction various classes narcotic addicts shall report thereon time time congress stat codified provision strengthens understanding csa statute combating recreational drug abuse also indicates congress wants regulate medical practice given scheme explicit language statute face csa silence practice medicine generally recognition state regulation medical profession difficult defend attorney general declaration statute impliedly criminalizes suicide difficulty compounded csa consistent delegation medical judgments secretary otherwise careful allocation powers enforcing limited objects csa see part supra government attempt meet challenge rests part csa requirement every schedule ii drug dispensed pursuant written prescription practitioner prescription government argues necessarily implies substance made available patient legitimate medical purpose statute view requires anterior judgment term medical medicine government contends ordinary usage words ineluctably refers healing curative art terms embrace intentional hastening patient death also points teachings hippocrates positions prominent medical organizations federal government judgment legalized suicide support proposition practice legitimate medicine see brief petitioners memorandum office legal counsel attorney general app pet cert understanding medicine boundaries least reasonable primary problem government argument however assumption csa impliedly authorizes executive officer bar use simply may inconsistent one reasonable understanding medical practice viewed alone prescription requirement may support understanding statutes read series unrelated isolated provisions gustafson alloyd csa substantive provisions arrangement undermine sertion expansive federal authority regulate medicine statutory criteria deciding substances controlled determinations central act consistently connect undefined term drug abuse addiction abnormal effects nervous system attorney general schedules drugs must consider substance psychic physiological dependence liability classify substance schedules ii attorney general must find abuse drug leads psychological physical dependence indeed differentiation schedules ii turns large part substance potential addictive substance stricter controls ibid congress wanted extend csa regulation substances obviously habit forming psychotropic moreover relied executive ingenuity rather specific legislation see anabolic steroids control act stat placing anabolic steroids schedule iii statutory scheme csa intertwined confirms limited understanding prescription requirement secretary considers fda approval substance stimulant depressant hallucinogenic effect must forward information attorney general possible scheduling shedding light congress understanding drug abuse requirement appears heading abuse potential similarly congress prepared implement convention psychotropic substances csa interpretive rule rests reading prescription requirement persuasive extent one scrutinizes provision without illumination rest statute see massachusetts morash viewed context prescription requirement better understood provision ensures patients use controlled substances supervision doctor prevent addiction recreational abuse corollary provision also bars doctors peddling patients crave drugs prohibited uses see moore read prescriptions assisted suicide constituting drug abuse csa discordant phrase consistent use throughout statute mention ordinary meaning government interpretation prescription requirement also fails objection attorney general unlikely recipient broad authority given secretary primacy shaping medical policy csa statute otherwise careful allocation decisionmaking powers conventions expression indicate congress unlikely alter statute obvious scope division authority muffled hints background principles federal system also belie notion congress use obscure grant authority regulate areas traditionally supervised police power unnecessary even consider application clear statement requirements see bass cf bfp resolution trust corporation presumptions see rush prudential hmo moran reach commonsense conclusion reasons conclude csa prescription requirement authorize attorney general bar dispensing controlled substances assisted suicide face state medical regime permitting conduct iv government end maintains prescription requirement delegates single executive officer power effect radical shift authority federal government define general standards medical practice every locality text structure csa show congress intent alter balance congressional role maintaining judgment appeals affirmed alberto gonzales attorney general et petitioners oregon et al writ certiorari appeals ninth circuit january justice scalia chief justice roberts justice thomas join dissenting concludes attorney general lacked authority declare assisted suicide illicit controlled substances act csa csa concerned illicit drug dealing trafficking ante emphasis added conclusion obscured flurry arguments distort statute disregard settled principles interpretive jurisprudence contrary analysis case involves one three independently sufficient grounds reversing ninth circuit judgment first attorney general interpretation legitimate medical purpose cfr hereinafter regulation clearly valid given substantial deference must accord auer robbins two remaining conclusions follow naturally interpretation see part infra second even interpretation regulation entitled lesser deference deference far natural interpretation regulation whose validity challenged interpretation thus correct even upon de novo review see part ii infra third even interpretation regulation incorrect attorney general independent interpretation statutory phrase public interest implicit interpretation statutory phrase public health safety entitled deference chevron natural resources defense council valid chevron see part iii infra reasons respectfully dissent interpretive rule issued attorney general hereinafter directive provides relevant part follows reasons set forth olc opinion hereby determine assisting suicide medical purpose within meaning cfr prescribing dispensing administering federally controlled substances assist suicide violates csa conduct physician registered dispense controlled substances may registration inconsistent public interest therefore subject possible suspension revocation fed reg directive thus purports three distinct things interpret phrase legitimate medical purpose regulation exclude suicide determine prescribing dispensing administering federally controlled substances assist suicide violates csa determine participating suicide may render practitioner registration inconsistent public interest within meaning incorporates reference analysis suffers unremitting failure distinguish among distinct propositions directive initial matter validity regulation interpretation prescription require legitimate medical purpose issue respondents conceded validity interpretation lower see oregon ashcroft challenged assertion regulation merely restates statutory standard ii see ante likewise accepts legitimate medical purpose interpretation prescriptions proper see also ante referring legitimate medical purpose statutory phrase beyond dispute prescription must issue legitimate medical purpose regulation promulgated attorney general directive purported interpret language regulation see fed reg case calls straightforward application rule agency interpretation regulations controlling unless plainly erroneous inconsistent regulation auer supra internal quotation marks omitted reasons auer inapplicable regulation little restate terms statute ante simply put asserts existence parroting regulation change fact question meaning regulation meaning statute ante begin doubtful exception auer rule exists cites authority none contrary unanimous decision auer makes clear broadly drawn regulations entitled less respect narrow ones rule requiring secretary construe regulations narrowly make little sense since free write regulations broadly wishes subject limits imposed statute emphasis added even antiparroting canon however application description cfr regulation merely paraphrase statutory language ante demonstrably false relevant part regulation interprets word prescription appears governs dispensation controlled substances schedule may dispensed entitled rescriptions requires certain exceptions relevant written prescription practitioner usually medical doctor dispensation schedule ii substances written oral prescription substances schedules iii iv prescription merely medical purpose dispensation schedule substances used section prescription susceptible least three reasonable interpretations first might mean oral written direction practitioner dispensation drugs see moore face addresses form prescription must take section terms limit authority practitioner second light requirement medical purpose dispensation schedule substances see might mean practitioner oral written direction dispensation drugs practitioner believes legitimate medical purpose see webster new international dictionary ed hereinafter webster second defining prescription written direction preparation use medicine defining medicine ny substance preparation used treating disease emphases added finally prescription might refer practitioner direction dispensation drugs serves objectively legitimate medical purpose regardless practitioner subjective judgment legitimacy anticipated use see ibid regulation issue constricts clarifies statute adopting last narrowest three possible interpretations undefined statutory term prescription controlled substance effective must issued legitimate medical purpose cfr previously acknowledged regulation gives added content text statute medical purpose requirement explicit subsection implicit subsections regulation makes explicit moore supra points regulation adopts phrasing employed unrelated sections statute see ante irrelevant regulation significantly clarifies meaning otherwise ambiguous statutory provision parroting regulation regardless sources agency draws upon clarification moreover statutory phrases cites appearing regulation see ibid citing accepted medical course professional inapposite parrot phrase regulation directive purported construe see fed reg hereby determine assisting suicide medical purpose within meaning cfr none includes key word legitimate gives direct support directive theory presupposes uniform federal standard medical since regulation run afowl speak newly invented prohibition parroting since directive represents agency interpretation concededly valid regulation question remaining whether interpretation plainly erroneous inconsistent regulation otherwise controlling auer supra internal quotation marks omitted difficult question directive assuredly valid insofar interprets prescription require medical purpose legitimate matter federal law since interpretation prescription adopted webb prosecution harrison act doctor wrote prescriptions morphine purpose providing user morphine sufficient keep comfortable maintaining customary use dispositive issue case whether authorizations prescriptions within meaning harrison act predecessor csa ibid held call order use morphine physician prescription plain perversion meaning discussion subject required like directive interprets prescription require medical purpose legitimate matter federal law directive also assuredly valid insofar interprets legitimate medical purpose matter federal law exclude suicide permissible indeed natural interpretation phrase see part ii infra even regulation merely parroted statute directive therefore treated though construed statute directly see ante directive still entitled deference chevron take issue solicitor general contention alleged procedural defect absence rulemaking promulgation directive renders chevron inapplicable see reply brief petitioners citing barnhart walton exempting interpretive rules rulemaking instead holds attorney general lacks interpretive authority issue directive ground explicit delegation provision supp limits rulemaking authority registration control according implicated directive interpretation prescription requirement see ante setting aside implicit delegation inherent congress use undefined term prescription reading control manifestly erroneous urges ante control term defined part subchapter entitled introductory provisions mean add drug substance schedule part subchapter emphasis added included part subchapter entitled authority control standards schedules consists sections related scheduling main ed supp statutory definition uniquely appropriate rather found part subchapter entitled registration manufacturers distributors dispensers controlled substances includes provisions relating manufacture distribution dispensing controlled substances artificial definition control conceivable application use word definition control must take substance direct object see add drug substance schedule control consistently used throughout part see proceedings control drug substance drug substance proposed controlled removed schedules control required attorney general shall issue order controlling drug except control required drug substance may placed schedule contrast term control object drug substance rather processes manufacture distribution dispensing controlled substances clearer artificial definition control inapplicable makes sense speak adding manufacturing distribution dispensing substances schedule force definitions contexts plainly fit produce nonsense obviously intended ordinary meaning control namely exercise restraining directing influence dominate regulate hence hold action curb webster second control regularly used ordinary sense elsewhere part subchapter see maintenance effective controls diversion establishment effective control diversion exercise supervision control practice medicine listed chemical control regulated person chemical control laws emphases added word given ordinary meaning attorney general interpretation prescription requirement plainly relat es control dispensing controlled substances supp emphasis added since prescription chief requirement dispensing drugs see meaning compelled fact first section part subchapter deals entirely control artificial sense part every section relates registration control manufacture distribution dispensing controlled substances see persons required register registration requirements denial revocation suspension registration labeling packaging production quotas controlled substances recordkeeping reporting requirements registrants order forms prescription requirements regulation listed chemicals certain machines peculiar first section part authorize rulemaking matters covered previous part sensible interpretation gives attorney general interpretive authority provisions part relat registration control manufacture distribution dispensing controlled substances provisions include prescription requirement criteria registration deregistration relevant see part iii infra sum directive construction legitimate medical purpose perfectly valid agency interpretation regulation perfectly valid agency interpretation statute one contends construction plainly erroneous inconsistent regulation bowles seminole rock sand beyond scope ambiguity statute see chevron fact explained directive provides natural interpretation regulation statute directive thus definitively establishes doctor order authorizing dispensation schedule ii substance purpose assisting suicide prescription within meaning conclusion established two conclusions directive follow inevitably reasoning moore writing prescriptions illegitimate certainly usual course professional practice thus authorized subchapter see doctor may thus prosecuted follows conduct violates controlled substances act fed reg since conduct thus ompliance applicable federal laws relating controlled substances may also fairly judged threaten public health safety follows uch conduct physician registered dispense controlled substances may registration inconsistent public interest therefore subject possible suspension revocation fed reg emphases added ii even directive entitled deference whatever reasonable interpretation regulation statute produce result virtually every relevant source authoritative meaning confirms phrase legitimate medical purpose include intentionally assisting suicide medicine refers science art dealing prevention cure alleviation disease webster second use word legitimate connotes objective standard medicine presumption csa creates uniform federal law regulating dispensation controlled substances see mississippi band choctaw indians holyfield means objective standard must federal one recounted detail memorandum attorney general attached appendix directive olc memo virtually every medical authority hippocrates current american medical association ama confirms assisting suicide seldom never viewed form prevention cure alleviation disease even assisting suicide legitimate branch science art see olc memo app pet cert indeed ama determined suicide fundamentally incompatible physician role healer washington glucksberg overwhelming weight authority judicial decisions past present policies nearly federal government clear firm unequivocal views leading associations within american medical nursing professions establish assisting suicide legitimate medical purpose olc memo supra see also glucksberg supra prohibitions condemnations assisted suicide jurisdictions including district columbia territories face overwhelming weight authority admission understanding medicine boundaries least reasonable ante emphasis added tests limits understatement explanation distortion confuses normative inquiry boundaries medicine laudably hesitant undertake objective inquiry accepted definition medicine confusion reflected remarkable statement primary problem government argument assumption csa impliedly authorizes executive officer bar use simply may inconsistent one reasonable understanding medical practice ibid emphasis added fact many oregon believe boundaries legitimate medicine extended include assisted suicide change fact overwhelming weight authority including condemn suicide confirms yet extended even eighth amendment cases generous discerning evolution national standards found record concept legitimate medicine evolved far see roper simmons contends phrase legitimate medical purpose read establish broad uniform federal standard medically proper use controlled substances ante also rejects plausible alternative proposition urged state use authorized state law constitutes legitimate medical purpose perhaps leery embracing position state candidly admitted oral argument view state exempt csa coverage use morphine achieve euphoria instead approach somewhere uniform national standard approach holding basis csa text legitimate medical purpose refers uses drugs unrelated addiction recreational abuse ante thus though pays lipservice state autonomy see ante standard legitimate medical purpose fact hazily defined federal standard based purposive reading csa extracted obliquely relevant sections act particular relying observation criteria scheduling controlled substances primarily concerned addiction abnormal effects nervous system ante citing concludes csa prescription requirement must interpreted light narrow view statute purpose even assuming however principal concern csa curtailment addiction recreational abuse reason think exclusive concern repeatedly observed congress often passes statutes sweep broadly main problem designed address tatutory prohibitions often go beyond principal evil cover reasonably comparable evils ultimately provisions laws rather principal concerns legislators governed oncale sundowner offshore services see also northwestern bell telephone scheduling provisions csa relies confirm csa design ante narrow asserts making scheduling determinations attorney general must consider drug psychic physiological dependence liability points ante citing must also consider broad factors state current scientific knowledge regarding drug substance notably hat risk public health latter factor limited health risks supposes redundant moreover making registration determinations regarding manufacturers distributors attorney general shall consider factors may relevant consistent public health safety emphasis added risk diversion controlled substances relevant registering deregistering physicians attorney general may deny application registration determines issuance registration inconsistent public interest see also making determination shall consider uch conduct may threaten public health safety provisions selectively cited shed light upon csa repeated references undefined term abuse see disregarding objectives limiting csa addiction recreational abuse rules prohibition use bodybuilding purposes seeks avoid consequence invoking anabolic steroids control act stat ante effect legislation make anabolic steroids controlled drugs schedule iii csa basis control says addiction recreational abuse dispensation drugs bodybuilding proscribed although described opinion defers state law directive relies two provisions conclusion structure operation csa presume rely upon functioning medical profession regulated police powers ante namely registration provisions provision reliance former particularly unfortunate analysis recounts congress amended order liberate attorney general power registration control state regulators see ante see also brief petitioners clause embarrassingly inapplicable since merely disclaims field affirmatively prescribes federal whenever state law creates event directive purport state law way even conflict unless misimpression require assisted suicide directive merely interprets csa prohibit like countless federal criminal provisions conduct happens forbidden state law least law state oregon regard csa registration provisions argues statute fairly read elephants delegating attorney general power determine legitimacy medical practices terms ancillary provisions ante quoting whitman american trucking case bears remotest resemblance whitman held congress alter fundamental details regulatory scheme vague terms ancillary provisions ibid emphasis added attorney general power issue regulations questionable uses controlled substances way alters fundamental details csa aware four areas department justice exercised power regulate uses controlled substances unrelated addiction recreational abuse apparently understands phrase assisted suicide aggressive pain management therapy use cosmetic therapy see harline fed reg weight loss tecca fed reg anabolic steroids roth fed reg pain management indication enforcement areas interferes prosecution drug abuse understands unlike whitman attorney general additional power address forms drug abuse absolutely nothing undermine central features regulatory scheme course critical analysis whitman language provision bear meaning respondents sought give see reasons stated provision naturally interpreted incorporate uniform federal standard legitimacy medical finally respondents argue attorney general must defer judgments constitutes legitimate medicine ground congress must speak clearly impose uniform federal standard upon line cases applicable canon avoidance apply since directive push outer limits congress commerce power compare solid waste agency northern cook cty army corps engineers regulation isolated ponds sullivan regulation labeling drugs shipped interstate commerce impinge core aspect state sovereignty cf atascadero state hospital scanlon sovereign immunity gregory ashcroft qualifications state government officials rule based presumption apply directive state law cf rush prudential hmo moran finally clear statement required ground directive intrudes upon area traditionally reserved exclusively cf bfp resolution trust corporation state regulation titles real property federal government pervasively regulated dispensation drugs years see generally brief legal defense fund et al amici curiae novel massive expansion rule apply commerce case involving constitutional avoidance merely congress chosen prohibit conduct state made contrary policy judgment permit see sullivan supra iii even regulation exist prescription interpreted require legitimate medical purpose directive conclusion prescribing dispensing administering federally controlled substances physician may registration inconsistent public interest therefore subject possible suspension revocation fed reg nevertheless unassailable sections explicitly grant attorney general authority register deregister physicians discretion exercising authority spelled broad terms may refuse register deregister determines registration inconsistent public interest considering five factors fifth uch conduct may threaten public health safety see also arora fed reg well established factors considered disjunctive deputy administrator may properly rely one combination factors give factor weight deems appropriate points broad standards enacted amendments specific purpose freeing attorney general discretion registration decisions state authorities see ante fact prescriptions issued violation course sufficient support directive conclusion issuing may cause deregistration prescriptions violate fourth factor namely ompliance applicable federal laws relating controlled substances attorney general rely solely subsection reaching conclusion registration inconsistent public interest nothing text directive indicates subsection uch conduct may threaten public health safety provides independent alternative basis directive conclusion regarding deregistration provided attorney general authority interpret public interest public health safety exclude assisted suicide three considerations make perfectly clear statute confers authority interpret phrases upon attorney general first attorney general solely explicitly charged administering registration deregistration provisions see making criteria registration deregistration obviously ambiguous factors public interest public health safety congress implicitly clearly gave attorney general authority interpret criteria whether explicit delegation provision statute sometimes legislative delegation agency particular question implicit rather explicit case may substitute construction statutory provision reasonable interpretation made administrator agency chevron left principle implicit delegation intact second even explicit delegation required congress provided authorizes attorney general promulgate rules regulations relating registration control manufacture distribution dispensing controlled substances emphasis added dispensing refers delivery controlled substance pursuant lawful order practitioner deregistration practitioners writing impermissible orders relat es registration dispensing controlled substances supp third also gives attorney general authority promulgate rules regulations relating control dispensing controlled substances discussed earlier plain ordinary meaning control must apply plain import provision grant attorney general rulemaking authority provisions part csa main ed supp registering deregistering practitioners issue prescriptions necessary lawful dispensation controlled substances plainly relat es control dispensing controlled substances supp attorney general thus authorized promulgate regulations interpreting implicit delegation two grounds explicit delegation nevertheless holds triply unambiguous delegation given full effect design statute ante evinces intent grant secretary health human services exclusive authority scientific medical determinations proposition remotely plausible cites authority secretary exclusive authority two specific areas medical determinations said binding attorney general regard scientific medical evaluation drug effects precedes scheduling regard appropriate methods professional practice medical treatment narcotic addiction various classes narcotic addicts see also ed supp ii see ante far establishing general principle secretary supremacy regard scientific medical determinations fact congress granted secretary specifically defined authority areas scheduling addiction treatment without otherwise mentioning registration provisions suggests contrary congress envisioned role secretary area said interpretive authority implicitly explicitly conferred upon attorney general even rewrite statutes accord sensible design far certainty secretary rather attorney general control registration physicians though registration decisions sometimes require judgments legitimacy medical practices department justice seemingly difficulty making see harline fed reg tecca fed reg roth fed reg unlike decisions whether substance scheduled whether narcotics addiction treatment legitimate registration decisions exclusively even primarily concerned medical scientific factors see rather decision register bring action deregister individual physician implicates policy goals competing enforcement priorities attend exercise prosecutorial discretion entirely reasonable think congress evidently easier attorney general occasionally make judgments legitimacy medical practices secretary get business law enforcement words perfectly consistent intelligent design statute give nation chief law enforcement official chief health official broad discretion substantive standards govern registration deregistration especially true contested scientific medical judgment issue legitimacy suicide ultimately rests science medicine naked value judgment depends upon quintessentially medical judgmen ante legitimacy polygamy eugenic infanticide requires particular medical training undertake objective inquiry continuing traditions western medicine consistently treated subject see olc memo app pet cert secretary supposedly superior medical expertise make medical judgments ante strikingly irrelevant case hand also reasons even csa grants attorney general authority interpret directive purport exercise authority undertake analysis face purport application registration provision ante emphasis added reasoning sophistic improper indeed impossible attorney general undertake analysis appl registration provision outside context actual enforcement proceeding course attorney general may issue regulations clarify interpretation five factors signal apply future enforcement proceedings directive plainly purports citing directive conclusion deregistration couched conditional terms conduct physician may registration inconsistent public interest therefore subject possible suspension revocation fed reg emphasis added follows said attorney general authoritative interpretations public interest public health safety subject chevron deference noted earlier contest absence procedures directive renders chevron inapplicable serious argument congress directly spoken precise question issue directive interpretations public health safety inconsistent public interest permissible chevron latter point fact condemnation assisted suicide american jurisdictions supports attorney general view attorney general may therefore weigh physician participation assisted suicide factor counseling registration favor deregistration concluding contrary merely presents conclusory assertion doubtful attorney general cite interest health deregister physician simply deemed controversial practice permitted state law illegitimate medical purpose ante earth especially interpreted relevant statutory factors advance give fair warning practice inconsistent public interest attorney general discretion determine public interest area admittedly broad certainly broader congressionally conferred executive powers upheld past see national broadcasting public interest new york central securities see also mistretta scalia dissenting sum directive first conclusion namely suicide legitimate medical purpose supported deference owe agency interpretation regulations deference owe interpretation statute two conclusions prescribing controlled drugs assist suicide violates csa conduct also inconsistent public interest inevitable consequences first conclusion moreover third conclusion standing alone one attorney general authorized make decision today perhaps driven feeling subject assisted suicide none federal government business easy sympathize position prohibition deterrence assisted suicide certainly among enumerated powers conferred constitution within realm public morality bonos mores traditionally addressed police power neither prohibiting recreational use drugs discouraging drug addiction among enumerated powers early time national history federal government used enumerated powers power regulate interstate commerce purpose protecting public morality example banning interstate shipment lottery tickets interstate transport women immoral purposes see hoke lottery case unless repudiate long principle jurisprudence using federal commerce power prevent assisted suicide unquestionably permissible question us whether congress even whether congress simply whether congress done csa think doubt term legitimate medical purpose meaning surely excludes prescription drugs produce death reasons respectfully dissent judgment alberto gonzales attorney general et petitioners oregon et al writ certiorari appeals ninth circuit january justice thomas dissenting angel raich diane monson challenged application controlled substances act csa et purely intrastate possession marijuana medical use authorized california law majority mere seven months ago determined csa effectively invalidated california law csa comprehensive regulatory regime specifically designed regulate controlled substances utilized medicinal purposes manner gonzales raich slip emphasis added majority employed unambiguous language concluding manner controlled substances utilized medicinal purposes one core activities regulated csa slip described csa creating comprehensive framework regulating production distribution possession substances including substances useful legitimate medical purpose order foster beneficial use medications prevent misuse slip today majority beats hasty retreat conclusions confronted regulation broadly requires prescriptions issued legitimate medical purpose cfr regulation recognized raich part federal government closed system regulating manner controlled substances utilized medicinal purposes slip majority rejects attorney general admittedly least reasonable ante determination administering controlled substances facilitate patient death medical purpose majority based conclusion csa concerned regulation medical practice insofar bars doctors using powers means engage illicit drug dealing trafficking conventionally understood ante words stark contrast raich broad conclusions scope csa pertains medicinal use controlled substances today concludes csa merely concerned fighting insofar abuse leads addiction abnormal effects nervous system ante majority newfound understanding csa statute limited reach puzzling rests upon constitutional principles majority rejected raich notwithstanding police powers define criminal law protect health safety welfare citizens slip raich majority concluded csa applied intrastate possession marijuana medicinal purposes authorized california law congress rationally concluded application necessary regulation larger interstate marijuana market slip contrast majority restrictive interpretation csa based small part structure limitations federalism allow great latitude police powers legislate protection lives limbs health comfort quiet persons ante quoting medtronic lohr turn quoting metropolitan life ins massachusetts according majority background principles federal system belie notion congress use obscure grant authority regulate areas traditionally supervised police power ante course nothing obscure csa grant authority attorney general ante scalia dissenting attorney general conclusion csa prohibits authorizing physician assisted suicide admittedly least reasonable ante opinion therefore entitled deference ante scalia dissenting scope csa attorney general power thereunder sweeping perhaps troubling expansive federal legislation broad grants authority administrative agencies merely inevitable inexorable consequence commerce clause jurisprudence see raich supra whitman american trucking agree limiting applications csa manner consistent principles federalism constitutional structure raich supra thomas dissenting cf whitman supra thomas concurring noting constitutional concerns broad delegations authority administrative agencies water dam relevance considerations zenith raich considered whether csa applied intrastate possession controlled substance consistent limited federal powers enumerated constitution considerations little relevance merely presented question statutory interpretation extent constitutionally permissible federal power particularly true interpreting broad straightforward language within statutory framework majority concluded comprehensive necessarily nullifies powers protect health safety welfare citizens raich supra slip reliance upon constitutional principles rejected raich albeit guise statutory interpretation perplexing say least accordingly respectfully dissent footnotes sure acknowledgment go far enough overlooked significance word legitimate naturally understood create objective federal standard appropriate medical uses see mississippi band choctaw indians holyfield start general assumption absence plain indication contrary congress enacts statute making application federal act dependent state law internal quotation marks omitted place outside statute uses phrase legitimate medical purpose defining phrase valid prescription purposes reporting requirements apply mail orders regulated substances see ii regulation parrot statutory section regulation adopted statutory language added see brief petitioners citing children health act stat even statutory language predated regulation parroting phrase using word prescription without definition much critical congress left task resolving ambiguity word used context relevant executive officer officer deeming relevant technically inapplicable statutory definition contained elsewhere statute make parrot given statutory text meaning explicitly perhaps even necessarily contain concludes ven understood signify something statutory definition support interpretive rule ante conclusion rests upon misidentification text attorney general pursuant control authority interpreting one argues word control gives attorney general authority define diversion based view legitimate medical practice ibid rather word authorizes attorney general interpret among things prescription requirement question becomes whether phrase legitimate medical purpose agree included prescription least open interpretation announced directive see chevron natural resources defense council course effectively concedes two pages earlier agree think statutory phrase medical purpose generality susceptible precise definition open varying constructions thus ambiguous relevant sense ante citing chevron phrase appears regulation relevant section statute pointed earlier contest reasonable interpretation section regarding indeed mere parroting statute title reads relevant part follows provision subchapter shall construed indicating intent part congress occupy field provision operates including criminal penalties exclusion state law subject matter unless positive conflict case cited fda brown williamson tobacco even obviously inapt relied first step chevron analysis determine congress spoken precise issue question impliedly repealing grant jurisdiction fda relied congress expressly impliedly authorized practice assisted suicide indeed spoken directly subject way beyond text csa footnotes majority expressly address whether ingestion quantity drugs sufficient cause death abnormal effec nervous system ante though implicitly rejects conclusion notably respondents seriously pressed constitutional claim conceding oral argument point necessarily csa unconstitutional tr oral arg event extent respondents present constitutional claim solely within framework raich framed manner claim must fail respondents raich local growers users medical marijuana stood outside interstate drug market possessed marijuana intended stream commerce slip thomas dissenting contrast active participants interstate controlled substances market drugs prescribe assisting suicide likely traveled interstate commerce respondents raich sustain constitutional claim fortiori respondents sustain one respondents acceptance raich forecloses constitutional challenge