exceptions
-    military or foreign affairs
-    “public property, loans, grants, benefits or contracts”
-    interpretative rules
-    notice and comment required if (1) non self-executing; (2) published in CFR; (3) invoked legislative authority; (4) amends legislative rule (Am. Mining Congress)
-    Nova Scotia Food Prods (added whitefish to regulations – needed notice and comment)
-    Hoctor (determination that strong fences had to be 8 feet)
-    compare Shalala – didn’t need to use accounting protocol
-    agency finds “good cause”
-    must invoke at issuance