U.S. Code » Title 28 » Part PART V— PROCEDURE › Chapter CHAPTER 133— REVIEW—MISCELLANEOUS PROVISIONS

28 U.S.C. § 2112

Record on review and enforcement of agency orders

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(a) The rules prescribed under the authority of section 2072 of this title may provide for the time and manner of filing and the contents of the record in all proceedings instituted in the courts of appeals to enjoin, set aside, suspend, modify, or otherwise review or enforce orders of administrative agencies, boards, commissions, and officers. Such rules may authorize the agency, board, commission, or officer to file in the court a certified list of the materials comprising the record and retain and hold for the court all such materials and transmit the same or any part thereof to the court, when and as required by it, at any time prior to the final determination of the proceeding, and such filing of such certified list of the materials comprising the record and such subsequent transmittal of any such materials when and as required shall be deemed full compliance with any provision of law requiring the filing of the record in the court. The record in such proceedings shall be certified and filed in or held for and transmitted to the court of appeals by the agency, board, commission, or officer concerned within the time and in the manner prescribed by such rules. If proceedings are instituted in two or more courts of appeals with respect to the same order, the following shall apply:(1) If within ten days after issuance of the order the agency, board, commission, or officer concerned receives, from the persons instituting the proceedings, the petition for review with respect to proceedings in at least two courts of appeals, the agency, board, commission, or officer shall proceed in accordance with paragraph (3) of this subsection. If within ten days after the issuance of the order the agency, board, commission, or officer concerned receives, from the persons instituting the proceedings, the petition for review with respect to proceedings in only one court of appeals, the agency, board, commission, or officer shall file the record in that court notwithstanding the institution in any other court of appeals of proceedings for review of that order. In all other cases in which proceedings have been instituted in two or more courts of appeals with respect to the same order, the agency, board, commission, or officer concerned shall file the record in the court in which proceedings with respect to the order were first instituted.(2) For purposes of paragraph (1) of this subsection, a copy of the petition or other pleading which institutes proceedings in a court of appeals and which is stamped by the court with the date of filing shall constitute the petition for review. Each agency, board, commission, or officer, as the case may be, shall designate by rule the office and the officer who must receive petitions for review under paragraph (1).(3) If an agency, board, commission, or officer receives two or more petitions for review of an order in accordance with the first sentence of paragraph (1) of this subsection, the agency, board, commission, or officer shall, promptly after the expiration of the ten-day period specified in that sentence, so notify the judicial panel on multidistrict litigation authorized by section 1407 of this title, in such form as that panel shall prescribe. The judicial panel on multidistrict litigation shall, by means of random selection, designate one court of appeals, from among the courts of appeals in which petitions for review have been filed and received within the ten-day period specified in the first sentence of paragraph (1), in which the record is to be filed, and shall issue an order consolidating the petitions for review in that court of appeals. The judicial panel on multidistrict litigation shall, after providing notice to the public and an opportunity for the submission of comments, prescribe rules with respect to the consolidation of proceedings under this paragraph. The agency, board, commission, or officer concerned shall file the record in the court of appeals designated pursuant to this paragraph.(4) Any court of appeals in which proceedings with respect to an order of an agency, board, commission, or officer have been instituted may, to the extent authorized by law, stay the effective date of the order. Any such stay may thereafter be modified, revoked, or extended by a court of appeals designated pursuant to paragraph (3) with respect to that order or by any other court of appeals to which the proceedings are transferred.(5) All courts in which proceedings are instituted with respect to the same order, other than the court in which the record is filed pursuant to this subsection, shall transfer those proceedings to the court in which the record is so filed. For the convenience of the parties in the interest of justice, the court in which the record is filed may thereafter transfer all the proceedings with respect to that order to any other court of appeals.(b) The record to be filed in the court of appeals in such a proceeding shall consist of the order sought to be reviewed or enforced, the findings or report upon which it is based, and the pleadings, evidence, and proceedings before the agency, board, commission, or officer concerned, or such portions thereof (1) as the rules prescribed under the authority of section 2072 of this title may require to be included therein, or (2) as the agency, board, commission, or officer concerned, the petitioner for review or respondent in enforcement, as the case may be, and any intervenor in the court proceeding by written stipulation filed with the agency, board, commission, or officer concerned or in the court in any such proceeding may consistently with the rules prescribed under the authority of section 2072 of this title designate to be included therein, or (3) as the court upon motion of a party or, after a prehearing conference, upon its own motion may by order in any such proceeding designate to be included therein. Such a stipulation or order may provide in an appropriate case that no record need be filed in the court of appeals. If, however, the correctness of a finding of fact by the agency, board, commission, or officer is in question all of the evidence before the agency, board, commission, or officer shall be included in the record except such as the agency, board, commission, or officer concerned, the petitioner for review or respondent in enforcement, as the case may be, and any intervenor in the court proceeding by written stipulation filed with the agency, board, commission, or officer concerned or in the court agree to omit as wholly immaterial to the questioned finding. If there is omitted from the record any portion of the proceedings before the agency, board, commission, or officer which the court subsequently determines to be proper for it to consider to enable it to review or enforce the order in question the court may direct that such additional portion of the proceedings be filed as a supplement to the record. The agency, board, commission, or officer concerned may, at its option and without regard to the foregoing provisions of this subsection, and if so requested by the petitioner for review or respondent in enforcement shall, file in the court the entire record of the proceedings before it without abbreviation.(c) The agency, board, commission, or officer concerned may transmit to the court of appeals the original papers comprising the whole or any part of the record or any supplemental record, otherwise true copies of such papers certified by an authorized officer or deputy of the agency, board, commission, or officer concerned shall be transmitted. Any original papers thus transmitted to the court of appeals shall be returned to the agency, board, commission, or officer concerned upon the final determination of the review or enforcement proceeding. Pending such final determination any such papers may be returned by the court temporarily to the custody of the agency, board, commission, or officer concerned if needed for the transaction of the public business. Certified copies of any papers included in the record or any supplemental record may also be returned to the agency, board, commission, or officer concerned upon the final determination of review or enforcement proceedings.(d) The provisions of this section are not applicable to proceedings to review decisions of the Tax Court of the United States or to proceedings to review or enforce those orders of administrative agencies, boards, commissions, or officers which are by law reviewable or enforceable by the district courts.(Added Pub. L. 85–791, § 2, Aug. 28, 1958, 72 Stat. 941; amended Pub. L. 89–773, § 5(a), (b), Nov. 6, 1966, 80 Stat. 1323; Pub. L. 100–236, § 1, Jan. 8, 1988, 101 Stat. 1731.)Editorial NotesAmendments

1988—Subsec. (a). Pub. L. 100–236 substituted “If proceedings are instituted in two or more courts of appeals with respect to the same order, the following shall apply:” and pars. (1) to (5) for “If proceedings have been instituted in two or more courts of appeals with respect to the same order the agency, board, commission, or officer concerned shall file the record in that one of such courts in which a proceeding with respect to such order was first instituted. The other courts in which such proceedings are pending shall thereupon transfer them to the court of appeals in which the record has been filed. For the convenience of the parties in the interest of justice such court may thereafter transfer all the proceedings with respect to such order to any other court of appeals.”

1966—Subsec. (a). Pub. L. 89–773, § 5(a), substituted “The rules prescribed under the authority of section 2072 of this title may provide for the time and manner of filing” for “The several courts of appeal shall have power to adopt, with the approval of the Judicial Conference of the United States, rules, which so far as practicable shall be uniform in all such courts prescribing the time and manner of filing.” See section 2072 of this title.

Subsec. (b). Pub. L. 89–773, § 5(b), substituted “the rules prescribed under the authority of section 2072 of this title” for “the said rules of the court of appeals” and for “the rules of such court”.

Statutory Notes and Related SubsidiariesEffective Date of 1988 Amendment

Pub. L. 100–236, § 3, Jan. 8, 1988, 101 Stat. 1732, provided that: “The amendments made by this Act [amending this section and section 1369 of Title 33, Navigation and Navigable Waters] take effect 180 days after the date of the enactment of this Act [Jan 8, 1988], except that the judicial panel on multidistrict litigation may issue rules pursuant to subsection (a)(3) of section 2112 of title 28, United States Code (as added by section 1), on or after such date of enactment.”

Savings Provision

Pub. L. 89–773, § 5(c), Nov. 6, 1966, 80 Stat. 1323, provided that: “The amendments of section 2112 of title 28 of the United States Code made by this Act shall not operate to invalidate or repeal rules adopted under the authority of that section prior to the enactment of this Act [Nov. 6, 1966], which rules shall remain in effect until superseded by rules prescribed under the authority of section 2072 of title 28 of the United States Code as amended by this Act.”

Notes of Decisions
Cited in 281 cases (23 in the last 5 years), 1959–2026 · leading case: Am. Radio Relay League, Inc. v. Fed. Commc'ns Comm'n, 524 F.3d 227 (D.C. Cir. 2008).
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Am. Radio Relay League, Inc. v. Fed. Commc'ns Comm'n, 524 F.3d 227 (D.C. Cir. 2008). · cites it 5× “See 28 U.S.C. § 2112 (b) ("The record to be filed in the court of appeals .”
Heartland Plymouth Court MI, LLC v. Nat'l Labor Relations Bd., 838 F.3d 16 (D.C. Cir. 2016). · cites it 5× “9 8 If the Board moved for enforcement in the Sixth Circuit first, 28 U.S.C. § 2112 (a)(1) and (5) would have allowed the Board to file a motion to transfer venue once Heartland filed its petition for review here.”
Local Union 36 v. Nat'l Labor Relations Bd., 631 F.3d 23 (2d Cir. 2010). · cites it 10× “It argues that, because it did not receive a petition for review “stamped by the court with the date of filing,” 28 U.S.C. § 2112 (a)(2), from either party seeking review of its decision, the case should be heard where proceedings were first instituted, in the D.”
Texas v. United States Env't Prot. Agency, 829 F.3d 405 (5th Cir. 2016). · cites it 2× “28 U.S.C. § 2112 (a). In the present case, Petitioners’ petition for review in this circuit was the first filed.”
Nfib v. Osha, 595 U.S. 109 (2022). · cites it 2× “The cases were consolidated in the Sixth Circuit, which was selected at random pursuant to 28 U. S. C. §2112 (a). Prior to consolidation, however, the Fifth Circuit stayed OSHA’s rule pending further judicial review.”
United States Telecom Ass'n v. Fed. Commc'ns Comm'n & United States, 359 F.3d 554 (D.C. Cir. 2004). · cites it 2× “Various CLECs, state commissions, and an association of state utility consumer advocates filed petitions for review in several other circuits; these petitions were transferred to the Eighth Circuit under the random lottery procedure established in 28 U.S.C. § 2112 (a)(3), and…”
Penn-Cent. Merger & N & W Inclusion Cases, 389 U.S. 486 (1967). · cites it 6× “28 U. S. C. § 2112 (a) (1964 ed., Supp. II).”
Nat'l Fam. Farm Coalition v. Usepa, 966 F.3d 893 (9th Cir. 2020). · cites it 2× “USEPA This reading of the statute is consistent with 28 U.S.C. § 2112 (a)(1)–(5), cited in 7 U.”
Indus. Union Dep't v. Bingham, 570 F.2d 965 (D.C. Cir. 1977). · cites it 9× “(2) Judge Leventhal is of the view that the petition of the AFL-CIO should be transferred to the Fifth Circuit pursuant to the last sentence of 28 U.S.C. § 2112 (a). *58 Judge Fahy is of the contrary view, concluding that a transfer to the Fifth Circuit is not authorized by §…”
Nat'l Assn. of Mfrs. v. Dep't of Def., 583 U.S. 109 (2018). “See 28 U. S. C. §2112 (a)(3). Section 1369(b) also contains a preclusion-of-review provision, which mandates that any agency action reviewable under §1369(b)(1) “shall not be subject to judicial review in any civil or criminal proceed­ ing for enforcement.”
Terra Int'l, Inc. v. Mississippi Chem. Corp., 922 F. Supp. 1334 (N.D. Iowa 1996). · cites it 4× “2d at 1000 (finding the first-filed rule in 28 U.S.C. § 2112 (a)). One petitioner claimed that it had filed its petition for review in the Fifth Circuit Court of Appeals one second prior to another party’s filing in the District of Columbia Circuit Court of Appeals, while that…”
Sandusky Wellness Ctr., LLC v. ASD Specialty Healthcare, Inc., 863 F.3d 460 (6th Cir. 2017). “See 28 U.S.C. §§ 2112 , 2342-43. By requiring petitioners to first bring a direct challenge before the FCC, the statute allows this expert agency to weigh in on its own rules, and by consolidating petitions into a single circuit court, the statute promotes judicial efficiency…”
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28 U.S.C. § 2112(a): 4 cases
Montship Lines, Ltd. v. Fed. Mar. Bd. & the United States, 295 F.2d 147 (D.C. Cir. 1961).
New York Foreign Freight Forwarders & Brokers Ass'n v. Fed. Mar. Comm'n, 337 F.2d 289 (2d Cir. 1964).
Valley Vision, Inc. v. Fed. Commc'ns Comm'n, 383 F.2d 218 (D.C. Cir. 1967).
Methane Awareness Resource Grp. v. Chao, 307 F. App'x 817 (5th Cir. 2009).
28 U.S.C. § 2112(a)(3): 1 case
Nat'l Ass'n of Broadcasters v. FCC, 147 F.4th 978 (D.C. Cir. 2025).
28 U.S.C. § 2112(a)(5): 1 case
Pub. Citizen v. Nuclear Regulatory Comm'n, 573 F.3d 916 (9th Cir. 2009).
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