Midnight Hour.(The Talk of the Town)

When President Jimmy Carter lost his bid for reelection, in November, 1980, he had lots of unfinished business that he did not intend to leave that way. Carter's Administration spent the next several weeks generating regulations at an unprecedented rate, until, in its last month in office, it published more than ten thousand pages of new rules. These rules, which, like most issued by federal agencies, needed no congressional approval, touched on everything from crash tests for cars to access to medical records, and a phrase was coined to describe them. They became known as "midnight regulations," after the "midnight judges" appointed by John Adams in the final hours of his Presidency.

Since Jimmy Carter, every President has complained about midnight regulations and, four or eight years later, every President has issued them. On a percentage basis, George Bush senior holds the record: his Administration issued a greater proportion of its rules during the midnight period--generally defined as the last three months in office--than any other President's. In absolute terms, though, Bill Clinton takes the gold: his Administration, during its midnight phase, published more than twenty-six thousand pages' worth of rules in the Federal Register. (According to the National Journal, by the time Clinton left office "the journalists who cover the White House had thrown up their hands at the prospect of keeping up.") President George W. Bush used the timing of these regulations as a rationale for suspending many of them. "I told people pretty plainly that I was going to review all the last-minute decisions that my predecessor had made, and that is exactly what we're doing," he declared.

Now, of course, Bush has entered into his own midnight period, and it promises to be a dark time indeed. Among the many new regulations--or, rather, deregulations--the Administration has proposed are rules that would: make it harder for the government to limit workers' exposure to toxins, eliminate environmental review from decisions affecting fisheries, and ease restrictions on companies that blow up mountains to get at the coal underneath them. Other midnight regulations in the works include rules to allow "factory farms" to ignore the Clean Water Act, rules making it tougher for employees to take family or medical leave, and rules that would effectively gut the Endangered Species Act. Most regulations are subject to public input; such is the sense of urgency that the Administration has brought to the task of despoliation that the Interior Department completed its "review" of two hundred thousand public comments on the endangered-species rules in just four days, a feat that, one congressional aide calculated, required each staff member involved to read through comments at the rate of seven per minute. "So little time, so much damage" is how the Times recently put it.

Why do Presidents wait till the last moment to push through changes they've had the power to impose all along? Legal scholars have advanced a variety of explanations; these range from megalomania ...