{"attribution":{"source":"legal.exploreworldai.com","canonical":"https://legal.exploreworldai.com/api/public/v1/judgment-text?id=us:ca9-25-4014-2026-02-26","cite_as":"NovaCopilot, legal.exploreworldai.com (https://legal.exploreworldai.com/api/public/v1/judgment-text?id=us:ca9-25-4014-2026-02-26)","license":"https://legal.exploreworldai.com/revision","version":"legal-2026-10-17","fingerprint":"ewai:us:e7344b","proof":"sha256:da7a08b1c820f441d5fec6444a146fb32a37d5f8d0b479fc06916172ceb81423","jurisdiction":"us","lang":"en","publisher":"NovaCopilot by ExploreWorld Legal","terms":"https://legal.exploreworldai.com/om"},"brand_source":"Source: NovaCopilot","item":{"schema_version":"1.0.0","id":"us:ca9-25-4014-2026-02-26","jurisdiction":"us","lang":"en","brand_source":"Source: NovaCopilot","brand":{"product":"NovaCopilot","platform":"ExploreWorldAI","infrastructure":"ExploreWorld Legal","infrastructure_url":"legal.exploreworldai.com","legal_entity":"Valkiv Ventures 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matter","paragraphs":["para_1","para_2","para_3","para_4","para_5","para_6","para_7","para_8","para_9","para_10","para_11","para_12","para_13","para_14","para_15","para_16","para_17","para_18","para_19","para_20","para_21","para_22","para_23","para_24","para_25","para_26","para_27","para_28","para_29","para_30","para_31","para_32","para_33","para_34","para_35","para_36","para_37","para_38","para_39","para_40","para_41","para_42","para_43","para_44","para_45","para_46","para_47","para_48","para_49","para_50","para_51","para_52","para_53","para_54","para_55","para_56","para_57","para_58","para_59","para_60","para_61","para_62","para_63","para_64","para_65","para_66","para_67","para_68","para_69","para_70","para_71","para_72","para_73","para_74","para_75","para_76","para_77","para_78","para_79","para_80","para_81","para_82","para_83","para_84","para_85","para_86","para_87","para_88","para_89","para_90","para_91","para_92","para_93","para_94","para_95","para_96","para_97","para_98","para_99","para_100","para_101","para_102","para_103","para_104","para_105","para_106","para_107","para_108","para_109","para_110","para_111","para_112","para_113","para_114","para_115","para_116","para_117","para_118","para_119","para_120","para_121","para_122","para_123","para_124","para_125","para_126","para_127","para_128"],"kind":"front_matter"},{"title":"SUMMARY*","paragraphs":["para_129","para_130","para_131","para_132","para_133","para_134","para_135","para_136","para_137","para_138","para_139","para_140","para_141","para_142","para_143","para_144","para_145","para_146","para_147","para_148","para_149","para_150","para_151","para_152","para_153","para_154","para_155","para_156","para_157","para_158","para_159","para_160","para_161","para_162","para_163","para_164","para_165","para_166","para_167","para_168","para_169","para_170","para_171","para_172","para_173","para_174","para_175","para_176","para_177","para_178","para_179","para_180","para_181","para_182","para_183","para_184","para_185","para_186","para_187","para_188","para_189","para_190","para_191","para_192","para_193","para_194","para_195","para_196","para_197","para_198","para_199","para_200","para_201","para_202","para_203","para_204","para_205","para_206","para_207","para_208","para_209","para_210","para_211","para_212","para_213","para_214","para_215","para_216","para_217","para_218","para_219","para_220","para_221","para_222","para_223","para_224","para_225","para_226","para_227","para_228","para_229","para_230","para_231","para_232","para_233","para_234","para_235","para_236","para_237","para_238","para_239","para_240","para_241","para_242","para_243","para_244","para_245","para_246","para_247","para_248","para_249","para_250","para_251","para_252","para_253","para_254","para_255","para_256","para_257","para_258","para_259","para_260","para_261","para_262","para_263","para_264","para_265","para_266","para_267","para_268","para_269","para_270","para_271","para_272","para_273","para_274","para_275","para_276","para_277","para_278","para_279","para_280","para_281","para_282","para_283","para_284","para_285","para_286","para_287","para_288","para_289","para_290","para_291","para_292","para_293","para_294","para_295","para_296","para_297","para_298","para_299","para_300","para_301","para_302","para_303","para_304","para_305","para_306","para_307","para_308","para_309","para_310","para_311","para_312","para_313","para_314","para_315","para_316","para_317","para_318","para_319","para_320","para_321","para_322","para_323","para_324","para_325","para_326","para_327","para_328","para_329","para_330","para_331","para_332","para_333","para_334","para_335","para_336","para_337","para_338","para_339","para_340","para_341","para_342","para_343","para_344","para_345","para_346","para_347","para_348","para_349","para_350","para_351","para_352","para_353","para_354","para_355","para_356","para_357","para_358","para_359","para_360","para_361","para_362","para_363","para_364","para_365","para_366","para_367","para_368","para_369","para_370","para_371","para_372","para_373","para_374","para_375","para_376","para_377","para_378","para_379","para_380","para_381","para_382","para_383","para_384","para_385","para_386","para_387","para_388","para_389","para_390","para_391","para_392","para_393","para_394","para_395","para_396","para_397","para_398","para_399","para_400","para_401","para_402","para_403","para_404","para_405","para_406","para_407","para_408","para_409","para_410","para_411","para_412","para_413","para_414","para_415","para_416","para_417","para_418","para_419","para_420","para_421","para_422","para_423","para_424","para_425","para_426","para_427","para_428","para_429","para_430","para_431","para_432","para_433","para_434","para_435","para_436","para_437","para_438","para_439","para_440","para_441","para_442","para_443","para_444","para_445","para_446","para_447","para_448","para_449","para_450","para_451","para_452","para_453","para_454","para_455","para_456","para_457","para_458","para_459","para_460","para_461","para_462","para_463","para_464","para_465","para_466","para_467","para_468","para_469","para_470","para_471","para_472","para_473","para_474","para_475","para_476","para_477","para_478","para_479","para_480","para_481","para_482","para_483","para_484","para_485","para_486","para_487","para_488","para_489","para_490","para_491","para_492","para_493","para_494","para_495","para_496","para_497","para_498","para_499","para_500","para_501","para_502","para_503","para_504","para_505","para_506","para_507","para_508","para_509","para_510","para_511","para_512","para_513","para_514","para_515","para_516","para_517","para_518","para_519","para_520","para_521","para_522","para_523","para_524","para_525","para_526","para_527","para_528","para_529","para_530","para_531","para_532","para_533","para_534","para_535","para_536","para_537","para_538","para_539","para_540","para_541","para_542","para_543","para_544","para_545","para_546","para_547","para_548","para_549","para_550","para_551"],"kind":"summary"}],"paragraphs":[{"text":"FOR PUBLICATION","paragraph_id":"para_1"},{"text":"UNITED STATES COURT OF APPEALS","paragraph_id":"para_2"},{"text":"FOR THE NINTH CIRCUIT","paragraph_id":"para_3"},{"text":"AMERICAN FEDERATION OF","paragraph_id":"para_4"},{"text":"GOVERNMENT EMPLOYEES,","paragraph_id":"para_5"},{"text":"AFL-CIO; NATIONAL NURSES","paragraph_id":"para_6"},{"text":"ORGANIZING COMMITTEE -","paragraph_id":"para_7"},{"text":"NATIONAL NURSES UNITED;","paragraph_id":"para_8"},{"text":"SERVICE EMPLOYEES","paragraph_id":"para_9"},{"text":"INTERNATIONAL UNION;","paragraph_id":"para_10"},{"text":"NATIONAL ASSOCIATION OF","paragraph_id":"para_11"},{"text":"GOVERNMENT EMPLOYEES,","paragraph_id":"para_12"},{"text":"INC.; NATIONAL FEDERATION","paragraph_id":"para_13"},{"text":"OF FEDERAL EMPLOYEES, IAM,","paragraph_id":"para_14"},{"text":"AFL-CIO; AMERICAN","paragraph_id":"para_15"},{"text":"FEDERATION OF STATE,","paragraph_id":"para_16"},{"text":"COUNTY & MUNICIPAL","paragraph_id":"para_17"},{"text":"EMPLOYEES, AFL-CIO,","paragraph_id":"para_18"},{"text":"Plaintiffs - Appellees,","paragraph_id":"para_19"},{"text":"v.","paragraph_id":"para_20"},{"text":"DONALD J. TRUMP, in his official","paragraph_id":"para_21"},{"text":"capacity as President of the United","paragraph_id":"para_22"},{"text":"States; UNITED STATES OFFICE","paragraph_id":"para_23"},{"text":"OF PERSONNEL MANAGEMENT;","paragraph_id":"para_24"},{"text":"UNITED STATES DEPARTMENT","paragraph_id":"para_25"},{"text":"OF AGRICULTURE; BROOKE","paragraph_id":"para_26"},{"text":"ROLLINS, in her official capacity as","paragraph_id":"para_27"},{"text":"Secretary of Agriculture; UNITED","paragraph_id":"para_28"},{"text":"No. 25-4014","paragraph_id":"para_29"},{"text":"D.C. No.","paragraph_id":"para_30"},{"text":"3:25-cv-03070-JD","paragraph_id":"para_31"},{"text":"ORDER","paragraph_id":"para_32"},{"text":"2 AM. FED’N OF GOV’T EMPLOYEES V. TRUMP","paragraph_id":"para_33"},{"text":"STATES DEPARTMENT OF","paragraph_id":"para_34"},{"text":"DEFENSE; PETER HEGSETH, in","paragraph_id":"para_35"},{"text":"his official capacity as U.S. Secretary","paragraph_id":"para_36"},{"text":"of Defense; UNITED STATES","paragraph_id":"para_37"},{"text":"DEPARTMENT OF ENERGY;","paragraph_id":"para_38"},{"text":"CHRIS WRIGHT, in his official","paragraph_id":"para_39"},{"text":"capacity as Secretary of Energy;","paragraph_id":"para_40"},{"text":"UNITED STATES DEPARTMENT","paragraph_id":"para_41"},{"text":"OF HEALTH AND HUMAN","paragraph_id":"para_42"},{"text":"SERVICES; ROBERT F.","paragraph_id":"para_43"},{"text":"KENNEDY, Jr., in his official","paragraph_id":"para_44"},{"text":"capacity as Secretary of Health and","paragraph_id":"para_45"},{"text":"Human Services; UNITED STATES","paragraph_id":"para_46"},{"text":"DEPARTMENT OF HOMELAND","paragraph_id":"para_47"},{"text":"SECURITY; KRISTI NOEM, in her","paragraph_id":"para_48"},{"text":"official capacity as Secretary of","paragraph_id":"para_49"},{"text":"Homeland Security; UNITED","paragraph_id":"para_50"},{"text":"STATES DEPARTMENT OF","paragraph_id":"para_51"},{"text":"HOUSING AND URBAN","paragraph_id":"para_52"},{"text":"DEVELOPMENT; SCOTT","paragraph_id":"para_53"},{"text":"TURNER, in his official capacity as","paragraph_id":"para_54"},{"text":"Secretary of the U.S. Department of","paragraph_id":"para_55"},{"text":"Housing and Urban Development;","paragraph_id":"para_56"},{"text":"DOJ - UNITED STATES","paragraph_id":"para_57"},{"text":"DEPARTMENT OF JUSTICE;","paragraph_id":"para_58"},{"text":"PAMELA BONDI, Attorney","paragraph_id":"para_59"},{"text":"General, in her official capacity as","paragraph_id":"para_60"},{"text":"U.S. Attorney General; UNITED","paragraph_id":"para_61"},{"text":"STATES DEPARTMENT OF THE","paragraph_id":"para_62"},{"text":"INTERIOR; DOUG BURGUM, in","paragraph_id":"para_63"},{"text":"his official capacity as Secretary of","paragraph_id":"para_64"},{"text":"the Interior; LORI CHAVEZ-","paragraph_id":"para_65"},{"text":"DEREMER, in her official capacity","paragraph_id":"para_66"},{"text":"AM. FED’N OF GOV’T EMPLOYEES V. TRUMP 3","paragraph_id":"para_67"},{"text":"as Secretary of Labor; MARCO","paragraph_id":"para_68"},{"text":"RUBIO, in his official capacities as","paragraph_id":"para_69"},{"text":"U.S. Secretary of State and Acting","paragraph_id":"para_70"},{"text":"Administrator for the U.S. Agency","paragraph_id":"para_71"},{"text":"for International Development;","paragraph_id":"para_72"},{"text":"UNITED STATES DEPARTMENT","paragraph_id":"para_73"},{"text":"OF THE TREASURY; SCOTT","paragraph_id":"para_74"},{"text":"BESSENT, in his official capacity as","paragraph_id":"para_75"},{"text":"U.S. Secretary of the Treasury;","paragraph_id":"para_76"},{"text":"UNITED STATES DEPARTMENT","paragraph_id":"para_77"},{"text":"OF TRANSPORTATION; SEAN","paragraph_id":"para_78"},{"text":"DUFFY, in his official capacity as","paragraph_id":"para_79"},{"text":"Secretary of Transportation;","paragraph_id":"para_80"},{"text":"UNITED STATES DEPARTMENT","paragraph_id":"para_81"},{"text":"OF VETERANS AFFAIRS; DOUG","paragraph_id":"para_82"},{"text":"COLLINS, in his official capacity as","paragraph_id":"para_83"},{"text":"U.S. Secretary of Veterans Affairs;","paragraph_id":"para_84"},{"text":"UNITED STATES","paragraph_id":"para_85"},{"text":"ENVIRONMENTAL PROTECTION","paragraph_id":"para_86"},{"text":"AGENCY; LEE ZELDIN, in his","paragraph_id":"para_87"},{"text":"official capacity as Administrator of","paragraph_id":"para_88"},{"text":"the U.S. Environmental Protection","paragraph_id":"para_89"},{"text":"Agency; UNITED STATES","paragraph_id":"para_90"},{"text":"GENERAL SERVICES","paragraph_id":"para_91"},{"text":"ADMINISTRATION; STEPHEN","paragraph_id":"para_92"},{"text":"EHIKIAN, in his official capacity as","paragraph_id":"para_93"},{"text":"Acting Administrator of the General","paragraph_id":"para_94"},{"text":"Services Administration;","paragraph_id":"para_95"},{"text":"NATIONAL SCIENCE","paragraph_id":"para_96"},{"text":"FOUNDATION; SOCIAL","paragraph_id":"para_97"},{"text":"SECURITY ADMINISTRATION;","paragraph_id":"para_98"},{"text":"CHARLES EZELL, in his official","paragraph_id":"para_99"},{"text":"capacity as Acting Director of the","paragraph_id":"para_100"},{"text":"4 AM. FED’N OF GOV’T EMPLOYEES V. TRUMP","paragraph_id":"para_101"},{"text":"U.S. Office of Personnel","paragraph_id":"para_102"},{"text":"Management; UNITED STATES","paragraph_id":"para_103"},{"text":"DEPARTMENT OF STATE;","paragraph_id":"para_104"},{"text":"UNITED STATES AGENCY FOR","paragraph_id":"para_105"},{"text":"INTERNATIONAL","paragraph_id":"para_106"},{"text":"DEVELOPMENT; SETHURAMAN","paragraph_id":"para_107"},{"text":"PANCHANATHAN, in his official","paragraph_id":"para_108"},{"text":"capacity as Director of the U.S.","paragraph_id":"para_109"},{"text":"National Science Foundation; U.S.","paragraph_id":"para_110"},{"text":"INTERNATIONAL TRADE","paragraph_id":"para_111"},{"text":"COMMISSION; AMY A. KARPEL,","paragraph_id":"para_112"},{"text":"in her official capacity as Chair of the","paragraph_id":"para_113"},{"text":"U.S. International Trade","paragraph_id":"para_114"},{"text":"Commission; LELAND DUDEK,","paragraph_id":"para_115"},{"text":"Acting Commissioner of Social","paragraph_id":"para_116"},{"text":"Security, in his official capacity as","paragraph_id":"para_117"},{"text":"Acting Commissioner of the Social","paragraph_id":"para_118"},{"text":"Security Administration; UNITED","paragraph_id":"para_119"},{"text":"STATES DEPARTMENT OF","paragraph_id":"para_120"},{"text":"EDUCATION; LINDA","paragraph_id":"para_121"},{"text":"MCMAHON, in her official capacity","paragraph_id":"para_122"},{"text":"as Secretary of Education,","paragraph_id":"para_123"},{"text":"Defendants - Appellants.","paragraph_id":"para_124"},{"text":"Filed August 1, 2025","paragraph_id":"para_125"},{"text":"Before: John B. Owens, Bridget S. Bade, and Daniel A.","paragraph_id":"para_126"},{"text":"Bress, Circuit Judges.","paragraph_id":"para_127"},{"text":"AM. FED’N OF GOV’T EMPLOYEES V. TRUMP 5","paragraph_id":"para_128"},{"text":"SUMMARY*","paragraph_id":"para_129"},{"text":"Stay Pending Appeal","paragraph_id":"para_130"},{"text":"The panel granted the United States’ emergency motion","paragraph_id":"para_131"},{"text":"for a stay pending appeal of the district court’s preliminary","paragraph_id":"para_132"},{"text":"injunction enjoining President Trump’s Executive Order","paragraph_id":"para_133"},{"text":"14,251, Exclusions From Federal Labor-Management","paragraph_id":"para_134"},{"text":"Relations Programs, which excludes certain federal","paragraph_id":"para_135"},{"text":"agencies and subdivisions from collective bargaining","paragraph_id":"para_136"},{"text":"requirements under the Federal Service Labor-Management","paragraph_id":"para_137"},{"text":"Relations Statute (FSLMRS) based on national security","paragraph_id":"para_138"},{"text":"concerns.","paragraph_id":"para_139"},{"text":"The FSLMRS guarantees federal employees the right to","paragraph_id":"para_140"},{"text":"join labor unions, and requires unions and federal agencies","paragraph_id":"para_141"},{"text":"to negotiate in good faith over matters involving the","paragraph_id":"para_142"},{"text":"conditions of employment. The FSLMRS exempts several","paragraph_id":"para_143"},{"text":"agencies from coverage and also authorizes the President to","paragraph_id":"para_144"},{"text":"exclude additional agencies or subdivisions from coverage if","paragraph_id":"para_145"},{"text":"the President determines that an agency (1) has as a primary","paragraph_id":"para_146"},{"text":"function intelligence, counterintelligence, investigative, or","paragraph_id":"para_147"},{"text":"national security work; and (2) the FSLMRS cannot be","paragraph_id":"para_148"},{"text":"applied to that agency or subdivision in a manner consistent","paragraph_id":"para_149"},{"text":"with national security requirements and considerations. 5","paragraph_id":"para_150"},{"text":"U.S.C. § 7103(b)(1).","paragraph_id":"para_151"},{"text":"Executive Order 14,251 invokes § 7103(b)(1) to exclude","paragraph_id":"para_152"},{"text":"from the FSLMRS over 40 cabinet departments, agencies,","paragraph_id":"para_153"},{"text":"and subdivisions. Plaintiffs, six unions representing over a","paragraph_id":"para_154"},{"text":"million federal employees, sued alleging, among other","paragraph_id":"para_155"},{"text":"* This summary constitutes no part of the opinion of the court. It has","paragraph_id":"para_156"},{"text":"been prepared by court staff for the convenience of the reader.","paragraph_id":"para_157"},{"text":"6 AM. FED’N OF GOV’T EMPLOYEES V. TRUMP","paragraph_id":"para_158"},{"text":"things, that the Executive Order constituted First","paragraph_id":"para_159"},{"text":"Amendment retaliation and viewpoint discrimination. The","paragraph_id":"para_160"},{"text":"district court granted plaintiffs’ request for a preliminary","paragraph_id":"para_161"},{"text":"injunction, finding a serious question as to whether the","paragraph_id":"para_162"},{"text":"Executive Order retaliated against plaintiffs for filing","paragraph_id":"para_163"},{"text":"lawsuits against, and issuing public statements critical of, the","paragraph_id":"para_164"},{"text":"current Administration.","paragraph_id":"para_165"},{"text":"The panel granted the government’s emergency motion","paragraph_id":"para_166"},{"text":"for a stay of the preliminary injunction pending","paragraph_id":"para_167"},{"text":"appeal. First, the government has shown that it is likely to","paragraph_id":"para_168"},{"text":"succeed on the merits of plaintiffs’ retaliation claim because,","paragraph_id":"para_169"},{"text":"even assuming that plaintiffs made out a prima facie claim","paragraph_id":"para_170"},{"text":"of retaliation, on this record the government has shown that","paragraph_id":"para_171"},{"text":"the President would have taken the same action even in the","paragraph_id":"para_172"},{"text":"absence of the protected conduct. The Executive Order","paragraph_id":"para_173"},{"text":"conveys the President’s determination that the excluded","paragraph_id":"para_174"},{"text":"agencies have primary functions implicating national","paragraph_id":"para_175"},{"text":"security and cannot be subjected to the FSLMRS consistent","paragraph_id":"para_176"},{"text":"with national security. Second, the government has","paragraph_id":"para_177"},{"text":"established that it would suffer irreparable harm absent a","paragraph_id":"para_178"},{"text":"stay because the injunction ties the government’s hands in","paragraph_id":"para_179"},{"text":"the national security context. Third, whatever harm to","paragraph_id":"para_180"},{"text":"collective bargaining rights that plaintiffs will experience","paragraph_id":"para_181"},{"text":"due to a stay is mitigated by a directive from the Chief","paragraph_id":"para_182"},{"text":"Human Capital Officers Counsel that agencies refrain from","paragraph_id":"para_183"},{"text":"terminating collective bargaining agreements until litigation","paragraph_id":"para_184"},{"text":"had concluded. Finally, staying the injunction would serve","paragraph_id":"para_185"},{"text":"the public interest by preserving the President’s autonomy","paragraph_id":"para_186"},{"text":"under a statute that expressly recognizes his national-","paragraph_id":"para_187"},{"text":"security expertise.","paragraph_id":"para_188"},{"text":"AM. FED’N OF GOV’T EMPLOYEES V. TRUMP 7","paragraph_id":"para_189"},{"text":"COUNSEL","paragraph_id":"para_190"},{"text":"Ramya Ravindran (argued), Lane M. Shadgett, J. Alexander","paragraph_id":"para_191"},{"text":"Rowell, and Abigail V. Carter, Bredhoff & Kaiser PLLC,","paragraph_id":"para_192"},{"text":"Washington, D.C.; Catha Worthman, Daniel M. Feinberg,","paragraph_id":"para_193"},{"text":"Feinberg Jackson Worthman & Wasow LLP, Berkeley,","paragraph_id":"para_194"},{"text":"California; Rushab Sanghvi, American Federation of","paragraph_id":"para_195"},{"text":"Government Employees, Washington, D.C.; for Plaintiffs-","paragraph_id":"para_196"},{"text":"Appellees.","paragraph_id":"para_197"},{"text":"Tyler J. Becker (argued), Melissa N. Patterson, Benjamin T.","paragraph_id":"para_198"},{"text":"Takemoto, and Joshua M. Koppel, Attorneys; Andrew M.","paragraph_id":"para_199"},{"text":"Bernie, Trial Attorney; Eric D. McArthur, Deputy Assistant","paragraph_id":"para_200"},{"text":"Attorney General; Brett A. Shumate, Assistant Attorney","paragraph_id":"para_201"},{"text":"General; Civil Division, United States Department of","paragraph_id":"para_202"},{"text":"Justice, Washington, D.C.; for Defendants-Appellants.","paragraph_id":"para_203"},{"text":"ORDER","paragraph_id":"para_204"},{"text":"PER CURIAM:","paragraph_id":"para_205"},{"text":"The United States seeks an emergency stay of the district","paragraph_id":"para_206"},{"text":"court’s preliminary injunction of Executive Order 14,251,","paragraph_id":"para_207"},{"text":"Exclusions From Federal Labor-Management Relations","paragraph_id":"para_208"},{"text":"Programs, 90 Fed. Reg. 14,553 (Apr. 3, 2025), which","paragraph_id":"para_209"},{"text":"excludes certain federal agencies and subdivisions from","paragraph_id":"para_210"},{"text":"collective bargaining requirements based on national","paragraph_id":"para_211"},{"text":"security concerns. We grant the government’s request for a","paragraph_id":"para_212"},{"text":"stay of the injunction pending appeal.","paragraph_id":"para_213"},{"text":"I","paragraph_id":"para_214"},{"text":"Congress enacted the Federal Service Labor-","paragraph_id":"para_215"},{"text":"Management Relations Statute (FSLMRS) as part of the","paragraph_id":"para_216"},{"text":"8 AM. FED’N OF GOV’T EMPLOYEES V. TRUMP","paragraph_id":"para_217"},{"text":"Civil Service Reform Act of 1978. Pub. L. No. 95-454, 92","paragraph_id":"para_218"},{"text":"Stat. 1111 (1978) (codified at 5 U.S.C. §§ 7101–7135). The","paragraph_id":"para_219"},{"text":"FSLMRS begins with a series of Congressional findings,","paragraph_id":"para_220"},{"text":"including that “labor organizations and collective bargaining","paragraph_id":"para_221"},{"text":"in the civil service are in the public interest.” 5 U.S.C.","paragraph_id":"para_222"},{"text":"§ 7101(a). To that end, the FSLMRS guarantees federal","paragraph_id":"para_223"},{"text":"employees the right to join labor unions, requires unions and","paragraph_id":"para_224"},{"text":"federal agencies to negotiate in good faith over matters","paragraph_id":"para_225"},{"text":"involving the “conditions of employment,” and requires all","paragraph_id":"para_226"},{"text":"collective bargaining agreements to include procedures for","paragraph_id":"para_227"},{"text":"filing grievances. Id. §§ 7102(2), 7114(a)(4), 7117, 7121.","paragraph_id":"para_228"},{"text":"To administer this scheme, the FSLMRS established the","paragraph_id":"para_229"},{"text":"Federal Labor Relations Authority (FLRA), id. § 7104,","paragraph_id":"para_230"},{"text":"which, among other responsibilities, “resolves issues","paragraph_id":"para_231"},{"text":"relating to the duty to bargain in good faith” and “conduct[s]","paragraph_id":"para_232"},{"text":"hearings and resolve[s] complaints of unfair labor practices,”","paragraph_id":"para_233"},{"text":"id. § 7105(a)(2); see also id. §§ 7117, 7118.","paragraph_id":"para_234"},{"text":"Notwithstanding Congress’s findings about the benefits","paragraph_id":"para_235"},{"text":"of collective bargaining, the FSLMRS exempts several","paragraph_id":"para_236"},{"text":"federal agencies from coverage, including the Government","paragraph_id":"para_237"},{"text":"Accountability Office, the Federal Bureau of Investigation,","paragraph_id":"para_238"},{"text":"the Central Intelligence Agency, the National Security","paragraph_id":"para_239"},{"text":"Agency, the Tennessee Valley Authority, and the United","paragraph_id":"para_240"},{"text":"States Secret Service. Id. § 7103(a)(3). Relevant here, the","paragraph_id":"para_241"},{"text":"statute also authorizes the President to exclude additional","paragraph_id":"para_242"},{"text":"agencies or subdivisions from coverage “if the President","paragraph_id":"para_243"},{"text":"determines that—(A) the agency or subdivision has as a","paragraph_id":"para_244"},{"text":"primary function intelligence, counterintelligence,","paragraph_id":"para_245"},{"text":"investigative, or national security work, and (B) the","paragraph_id":"para_246"},{"text":"provisions of this chapter cannot be applied to that agency or","paragraph_id":"para_247"},{"text":"subdivision in a manner consistent with national security","paragraph_id":"para_248"},{"text":"requirements and considerations.” Id. § 7103(b)(1). Since","paragraph_id":"para_249"},{"text":"Congress passed the FSLMRS, every President except","paragraph_id":"para_250"},{"text":"AM. FED’N OF GOV’T EMPLOYEES V. TRUMP 9","paragraph_id":"para_251"},{"text":"President Biden has issued executive orders excluding","paragraph_id":"para_252"},{"text":"certain agency subdivisions under § 7103(b)(1). See, e.g.,","paragraph_id":"para_253"},{"text":"Exec. Order No. 12,171, 44 Fed. Reg. 66,565 (Nov. 20,","paragraph_id":"para_254"},{"text":"1979); Exec. Order No. 13,039, 62 Fed. Reg. 12,529 (Mar.","paragraph_id":"para_255"},{"text":"14, 1997); Exec. Order No. 13,480, 73 Fed. Reg. 73,991","paragraph_id":"para_256"},{"text":"(Dec. 4, 2008).","paragraph_id":"para_257"},{"text":"On March 27, 2025, President Trump issued Executive","paragraph_id":"para_258"},{"text":"Order 14,251 (“EO 14,251” or “the Order”), which invoked","paragraph_id":"para_259"},{"text":"§ 7103(b)(1) to exclude from the FSLMRS over 40 cabinet","paragraph_id":"para_260"},{"text":"departments, agencies, and subdivisions. Exec. Order No.","paragraph_id":"para_261"},{"text":"14,251, 90 Fed. Reg. 14,553, 14,553–55 (Apr. 3, 2025); see","paragraph_id":"para_262"},{"text":"also Am. Fed’n of Gov’t Emps., AFL-CIO v. Trump (AFGE","paragraph_id":"para_263"},{"text":"AFL-CIO), No. 25-CV-03070-JD, 2025 WL 1755442, at *1","paragraph_id":"para_264"},{"text":"(N.D. Cal. June 24, 2025). The excluded entities include the","paragraph_id":"para_265"},{"text":"Department of State, the Department of Defense, the","paragraph_id":"para_266"},{"text":"Department of Justice, the Environmental Protection","paragraph_id":"para_267"},{"text":"Agency, the Federal Communications Commission, and","paragraph_id":"para_268"},{"text":"subdivisions of the Departments of Treasury, Energy,","paragraph_id":"para_269"},{"text":"Agriculture, Homeland Security, Interior, Health and","paragraph_id":"para_270"},{"text":"Human Services, and the Social Security Administration.","paragraph_id":"para_271"},{"text":"Exec. Order No. 14,251, 90 Fed. Reg. at 14,553–55. The","paragraph_id":"para_272"},{"text":"Order contains exceptions for “local employing offices of","paragraph_id":"para_273"},{"text":"any agency police officers, security guards, or firefighters,","paragraph_id":"para_274"},{"text":"provided that this exclusion does not apply to the Bureau of","paragraph_id":"para_275"},{"text":"Prisons” and subdivisions of the United States Marshals","paragraph_id":"para_276"},{"text":"Service, the Department of Defense, and the Department of","paragraph_id":"para_277"},{"text":"Veterans Affairs. Id. at 14,554–14,556.","paragraph_id":"para_278"},{"text":"On the same day as the Order, the White House issued a","paragraph_id":"para_279"},{"text":"“Fact Sheet” and the Office of Personnel Management","paragraph_id":"para_280"},{"text":"(OPM) issued a related guidance memo. White House, Fact","paragraph_id":"para_281"},{"text":"Sheet: President Donald J. Trump Exempts Agencies with","paragraph_id":"para_282"},{"text":"National Security Missions from Federal Collective","paragraph_id":"para_283"},{"text":"Bargaining Requirements (Mar. 27, 2025),","paragraph_id":"para_284"},{"text":"10 AM. FED’N OF GOV’T EMPLOYEES V. TRUMP","paragraph_id":"para_285"},{"text":"https://perma.cc/Y7HR-4W3H (Fact Sheet); Memorandum","paragraph_id":"para_286"},{"text":"from Charles Ezell, Acting Dir., Off. of Pers. Mgmt., to","paragraph_id":"para_287"},{"text":"Heads and Acting Heads of Departments and Agencies","paragraph_id":"para_288"},{"text":"(Mar. 27, 2025), https://perma.cc/QH4A-MQ9F (OPM","paragraph_id":"para_289"},{"text":"Guidance). In explaining the Order, the Fact Sheet stated","paragraph_id":"para_290"},{"text":"that union activities impaired agency functioning in a","paragraph_id":"para_291"},{"text":"manner that could undermine national security, including by","paragraph_id":"para_292"},{"text":"impeding the removal of employees for poor performance or","paragraph_id":"para_293"},{"text":"misconduct. See Fact Sheet. The Fact Sheet also noted that","paragraph_id":"para_294"},{"text":"the FSLMRS “enables hostile Federal unions to obstruct","paragraph_id":"para_295"},{"text":"agency management” and that “[c]ertain Federal unions","paragraph_id":"para_296"},{"text":"have declared war on President Trump’s agenda.” Id. The","paragraph_id":"para_297"},{"text":"OPM Guidance explained that the Order could improve","paragraph_id":"para_298"},{"text":"agency functioning because collective bargaining","paragraph_id":"para_299"},{"text":"agreements impeded the separation of poor performers, the","paragraph_id":"para_300"},{"text":"issuance of return-to-work policies, and reductions in force.","paragraph_id":"para_301"},{"text":"OPM Guidance 3, 5–6.","paragraph_id":"para_302"},{"text":"On April 3, 2025, Plaintiffs, six unions representing over","paragraph_id":"para_303"},{"text":"a million federal employees, sued the President, the federal","paragraph_id":"para_304"},{"text":"departments and agencies subject to EO 14,251, and the","paragraph_id":"para_305"},{"text":"heads of those departments and agencies. AFGE AFL-CIO,","paragraph_id":"para_306"},{"text":"2025 WL 1755442, at *1, *7. Plaintiffs’ suit claimed that","paragraph_id":"para_307"},{"text":"EO 14,251 constituted First Amendment retaliation and","paragraph_id":"para_308"},{"text":"viewpoint discrimination, was ultra vires action, violated","paragraph_id":"para_309"},{"text":"Fifth Amendment procedural due process, abrogated","paragraph_id":"para_310"},{"text":"contractual property rights in violation of the Fifth","paragraph_id":"para_311"},{"text":"Amendment, and violated the Equal Protection component","paragraph_id":"para_312"},{"text":"of the Fifth Amendment by engaging in arbitrary and","paragraph_id":"para_313"},{"text":"irrational classification. Id. at *7.","paragraph_id":"para_314"},{"text":"On April 7, 2025, Plaintiffs filed an ex parte motion for","paragraph_id":"para_315"},{"text":"a temporary restraining order—which the district court later","paragraph_id":"para_316"},{"text":"construed as a motion for a preliminary injunction—asking","paragraph_id":"para_317"},{"text":"the district court to enjoin the government from","paragraph_id":"para_318"},{"text":"AM. FED’N OF GOV’T EMPLOYEES V. TRUMP 11","paragraph_id":"para_319"},{"text":"implementing EO 14,251. On April 8, 2025, in response to","paragraph_id":"para_320"},{"text":"this suit and others, the Chief Human Capital Officers","paragraph_id":"para_321"},{"text":"Counsel, an interagency forum led by the Director of OPM,","paragraph_id":"para_322"},{"text":"advised agencies and subdivisions subject to the Order not","paragraph_id":"para_323"},{"text":"to terminate any collective bargaining agreements or to take","paragraph_id":"para_324"},{"text":"action to decertify any bargaining units until the conclusion","paragraph_id":"para_325"},{"text":"of litigation.","paragraph_id":"para_326"},{"text":"On June 24, 2025, the district court granted Plaintiffs’","paragraph_id":"para_327"},{"text":"request for a preliminary injunction, ruling only on the basis","paragraph_id":"para_328"},{"text":"of First Amendment retaliation, which the court deemed","paragraph_id":"para_329"},{"text":"Plaintiffs’ strongest claim. AFGE AFL-CIO, 2025 WL","paragraph_id":"para_330"},{"text":"1755442, at *9, *15–16. The district court began by noting","paragraph_id":"para_331"},{"text":"that in the Ninth Circuit, a plaintiff can satisfy the","paragraph_id":"para_332"},{"text":"preliminary injunction standard’s requirement to show a","paragraph_id":"para_333"},{"text":"likelihood of success on the merits by presenting “serious","paragraph_id":"para_334"},{"text":"questions going to the merits” when “the balance of","paragraph_id":"para_335"},{"text":"hardships tips sharply in plaintiff’s favor.” Id. at *8","paragraph_id":"para_336"},{"text":"(alteration omitted) (quoting All. for the Wild Rockies v.","paragraph_id":"para_337"},{"text":"Cottrell, 632 F.3d 1127, 1131 (9th Cir. 2011)). The court","paragraph_id":"para_338"},{"text":"concluded that Plaintiffs “demonstrated a serious question”","paragraph_id":"para_339"},{"text":"as to whether the Order retaliated against Plaintiffs for filing","paragraph_id":"para_340"},{"text":"lawsuits against, and issuing public statements critical of, the","paragraph_id":"para_341"},{"text":"current Administration. Id. at *9–10.","paragraph_id":"para_342"},{"text":"In assessing retaliatory motive, the district court pointed","paragraph_id":"para_343"},{"text":"to statements in the Fact Sheet that it regarded as expressing","paragraph_id":"para_344"},{"text":"a view “hostile to federal labor unions and their First","paragraph_id":"para_345"},{"text":"Amendment activities.” Id. at *11. These include that the","paragraph_id":"para_346"},{"text":"FSLMRS “enables hostile Federal unions to obstruct agency","paragraph_id":"para_347"},{"text":"management,” that “[c]ertain Federal unions have declared","paragraph_id":"para_348"},{"text":"war on President Trump’s agenda,” that “[t]he largest","paragraph_id":"para_349"},{"text":"Federal union describes itself as ‘fighting back’ against","paragraph_id":"para_350"},{"text":"Trump,” and that “President Trump supports constructive","paragraph_id":"para_351"},{"text":"partnerships with unions who work with him” but “will not","paragraph_id":"para_352"},{"text":"12 AM. FED’N OF GOV’T EMPLOYEES V. TRUMP","paragraph_id":"para_353"},{"text":"tolerate mass obstruction that jeopardizes his ability to","paragraph_id":"para_354"},{"text":"manage agencies with vital national security missions.” Fact","paragraph_id":"para_355"},{"text":"Sheet; see also AFGE AFL-CIO, 2025 WL 1755442, at *6,","paragraph_id":"para_356"},{"text":"*11. The district court reasoned that such statements “called","paragraph_id":"para_357"},{"text":"out federal unions for vocal opposition” to the President,","paragraph_id":"para_358"},{"text":"“condemned unions who criticized the President[,] and","paragraph_id":"para_359"},{"text":"expressed support only for unions who toed the line.” Id. at","paragraph_id":"para_360"},{"text":"*11.","paragraph_id":"para_361"},{"text":"Although the district court disclaimed any","paragraph_id":"para_362"},{"text":"“intention . . . of second-guessing the President’s national","paragraph_id":"para_363"},{"text":"security determinations,” it noted that “[t]he government","paragraph_id":"para_364"},{"text":"itself had a hard time saying why” certain excluded agencies","paragraph_id":"para_365"},{"text":"“might be properly regarded as having a primary mission of","paragraph_id":"para_366"},{"text":"national security,” and that “[m]any of the departments and","paragraph_id":"para_367"},{"text":"agencies listed in EO 14251 do not readily appear to fit” the","paragraph_id":"para_368"},{"text":"definition of “national security.” Id. at *11–12. The court","paragraph_id":"para_369"},{"text":"treated this as “evidence in the record of a serious and","paragraph_id":"para_370"},{"text":"plausible First Amendment question,” but maintained that it","paragraph_id":"para_371"},{"text":"would not “sit in judgment of the President’s national","paragraph_id":"para_372"},{"text":"security determinations.” Id. at *12.","paragraph_id":"para_373"},{"text":"With respect to the remaining preliminary injunction","paragraph_id":"para_374"},{"text":"factors, the district court concluded that Plaintiffs had shown","paragraph_id":"para_375"},{"text":"a likelihood of irreparable harm based on the threat to union","paragraph_id":"para_376"},{"text":"operations posed by reductions in allotted dues, the loss of","paragraph_id":"para_377"},{"text":"collective bargaining rights, and weakened support for","paragraph_id":"para_378"},{"text":"unions. Id. at *12–14. The district court also found that the","paragraph_id":"para_379"},{"text":"balance of hardships and the public interest favored","paragraph_id":"para_380"},{"text":"Plaintiffs because the government had deferred","paragraph_id":"para_381"},{"text":"implementation of aspects of the Order and because of the","paragraph_id":"para_382"},{"text":"FSLMRS’s general finding that collective bargaining in the","paragraph_id":"para_383"},{"text":"civil service is in the public interest. Id. at *14–15 (citing 5","paragraph_id":"para_384"},{"text":"U.S.C. § 7101(a)).","paragraph_id":"para_385"},{"text":"AM. FED’N OF GOV’T EMPLOYEES V. TRUMP 13","paragraph_id":"para_386"},{"text":"The government filed emergency motions to stay the","paragraph_id":"para_387"},{"text":"preliminary injunction pending appeal in both this court and","paragraph_id":"para_388"},{"text":"the district court. On July 7, 2025, we granted the","paragraph_id":"para_389"},{"text":"government’s request for an administrative stay pending our","paragraph_id":"para_390"},{"text":"consideration of the emergency motion. On July 8, 2025, the","paragraph_id":"para_391"},{"text":"district court denied the government’s motion for a stay","paragraph_id":"para_392"},{"text":"pending appeal. We now grant the government’s emergency","paragraph_id":"para_393"},{"text":"motion for a stay of the injunction pending appeal.1","paragraph_id":"para_394"},{"text":"II","paragraph_id":"para_395"},{"text":"We review the government’s request for a stay pending","paragraph_id":"para_396"},{"text":"appeal under the following four factors: “(1) whether the","paragraph_id":"para_397"},{"text":"stay applicant has made a strong showing that [it] is likely to","paragraph_id":"para_398"},{"text":"succeed on the merits; (2) whether the applicant will be","paragraph_id":"para_399"},{"text":"irreparably injured absent a stay; (3) whether issuance of the","paragraph_id":"para_400"},{"text":"stay will substantially injure the other parties interested in","paragraph_id":"para_401"},{"text":"the proceeding; and (4) where the public interest lies.” Nken","paragraph_id":"para_402"},{"text":"v. Holder, 556 U.S. 418, 426 (2009) (quoting Hilton v.","paragraph_id":"para_403"},{"text":"Braunskill, 481 U.S. 770, 776 (1987)). “The first two factors","paragraph_id":"para_404"},{"text":". . . are the most critical.” Id. at 434.","paragraph_id":"para_405"},{"text":"A plaintiff claiming First Amendment retaliation must","paragraph_id":"para_406"},{"text":"show “that (1) [it] was engaged in a constitutionally","paragraph_id":"para_407"},{"text":"protected activity, (2) the defendant’s actions would chill a","paragraph_id":"para_408"},{"text":"person of ordinary firmness from continuing to engage in the","paragraph_id":"para_409"},{"text":"protected activity and (3) the protected activity was a","paragraph_id":"para_410"},{"text":"substantial or motivating factor in the defendant’s conduct.”","paragraph_id":"para_411"},{"text":"1 In doing so, we act consistently with the results of two orders of the","paragraph_id":"para_412"},{"text":"D.C. Circuit, which recently stayed two preliminary injunctions of","paragraph_id":"para_413"},{"text":"Executive Order 14,251. Nat’l Treasury Emps. Union v. Trump, No. 25-","paragraph_id":"para_414"},{"text":"5157, 2025 WL 1441563 (D.C. Cir. May 16, 2025) (per curiam); Am.","paragraph_id":"para_415"},{"text":"Foreign Serv. Ass’n v. Trump, No. 25-5184, 2025 WL 1742853 (D.C.","paragraph_id":"para_416"},{"text":"Cir. June 20, 2025) (per curiam). The preliminary injunctions in those","paragraph_id":"para_417"},{"text":"cases were based on the claim that the Order was ultra vires.","paragraph_id":"para_418"},{"text":"14 AM. FED’N OF GOV’T EMPLOYEES V. TRUMP","paragraph_id":"para_419"},{"text":"Bello-Reyes v. Gaynor, 985 F.3d 696, 700 (9th Cir. 2021)","paragraph_id":"para_420"},{"text":"(quoting Capp v. County of San Diego, 940 F.3d 1046, 1053","paragraph_id":"para_421"},{"text":"(9th Cir. 2019)). Once such a showing is made, “the burden","paragraph_id":"para_422"},{"text":"shifts to the government to show that it ‘would have taken","paragraph_id":"para_423"},{"text":"the same action even in the absence of the protected","paragraph_id":"para_424"},{"text":"conduct.’” Id. at 702 (quoting O’Brien v. Welty, 818 F.3d","paragraph_id":"para_425"},{"text":"920, 932 (9th Cir. 2016)); see also Mt. Healthy City Sch.","paragraph_id":"para_426"},{"text":"Dist. Bd. of Educ. v. Doyle, 429 U.S. 274, 287 (1977). The","paragraph_id":"para_427"},{"text":"district court did not appear to address this latter issue.","paragraph_id":"para_428"},{"text":"We conclude the government has shown that it is likely","paragraph_id":"para_429"},{"text":"to succeed on the merits of the retaliation claim. Even","paragraph_id":"para_430"},{"text":"assuming that Plaintiffs have made out a prima facie claim","paragraph_id":"para_431"},{"text":"of retaliation, on this record the government has shown that","paragraph_id":"para_432"},{"text":"the President would have taken the same action even in the","paragraph_id":"para_433"},{"text":"absence of the protected conduct. See Mt. Healthy, 429 U.S.","paragraph_id":"para_434"},{"text":"at 287; Bello-Reyes, 985 F.3d at 702. On its face, the Order","paragraph_id":"para_435"},{"text":"does not express any retaliatory animus. Instead, it conveys","paragraph_id":"para_436"},{"text":"the President’s determination that the excluded agencies","paragraph_id":"para_437"},{"text":"have primary functions implicating national security and","paragraph_id":"para_438"},{"text":"cannot be subjected to the FSLMRS consistent with national","paragraph_id":"para_439"},{"text":"security. Exec. Order No. 14,251, 90 Fed. Reg. at 14,553.","paragraph_id":"para_440"},{"text":"For their part, Plaintiffs rely on statements in the Fact","paragraph_id":"para_441"},{"text":"Sheet, the Order’s broad scope, and the Order’s carve-outs","paragraph_id":"para_442"},{"text":"for law enforcement offices within the excluded agencies,","paragraph_id":"para_443"},{"text":"including the Bureau of Prisons, whose employees are","paragraph_id":"para_444"},{"text":"represented in collective bargaining by one of the Plaintiffs.","paragraph_id":"para_445"},{"text":"We will assume for present purposes that “it may be","paragraph_id":"para_446"},{"text":"appropriate” to look “beyond the facial neutrality of the","paragraph_id":"para_447"},{"text":"order,” Trump v. Hawaii, 585 U.S. 667, 704 (2018), and to","paragraph_id":"para_448"},{"text":"consider the Fact Sheet. But even accepting for purposes of","paragraph_id":"para_449"},{"text":"argument that certain statements in the Fact Sheet reflect a","paragraph_id":"para_450"},{"text":"degree of retaliatory animus toward Plaintiffs’ First","paragraph_id":"para_451"},{"text":"AM. FED’N OF GOV’T EMPLOYEES V. TRUMP 15","paragraph_id":"para_452"},{"text":"Amendment activities, the Fact Sheet, taken as a whole, also","paragraph_id":"para_453"},{"text":"demonstrates the President’s focus on national security.","paragraph_id":"para_454"},{"text":"The Fact Sheet first explains that the excluded agencies","paragraph_id":"para_455"},{"text":"and subdivisions serve national security in areas including","paragraph_id":"para_456"},{"text":"national defense, border security, foreign relations, energy","paragraph_id":"para_457"},{"text":"security, pandemic preparedness and response, and","paragraph_id":"para_458"},{"text":"cybersecurity. See Fact Sheet. It then states that the","paragraph_id":"para_459"},{"text":"FSLMRS allows unions to “obstruct agency management,”","paragraph_id":"para_460"},{"text":"including by impeding the removal of employees for “poor","paragraph_id":"para_461"},{"text":"performance or misconduct,” which is contrary to the need","paragraph_id":"para_462"},{"text":"for “a responsive and accountable civil service to protect our","paragraph_id":"para_463"},{"text":"national security.” Id. The Fact Sheet thus conveys that EO","paragraph_id":"para_464"},{"text":"14,251 advances national security by curtailing union","paragraph_id":"para_465"},{"text":"activity that undermines the agile functioning of government","paragraph_id":"para_466"},{"text":"offices with national security-related missions. In other","paragraph_id":"para_467"},{"text":"words, the Fact Sheet conveys an overarching objective of","paragraph_id":"para_468"},{"text":"protecting national security through its assessment that","paragraph_id":"para_469"},{"text":"collective bargaining impedes the functioning of agencies","paragraph_id":"para_470"},{"text":"with national security-related responsibilities.","paragraph_id":"para_471"},{"text":"Plaintiffs also rely on the Order’s broad scope and","paragraph_id":"para_472"},{"text":"allegedly “jagged line drawing” to demonstrate animus.","paragraph_id":"para_473"},{"text":"They argue that the Order is both over-inclusive, because it","paragraph_id":"para_474"},{"text":"covers agencies with no discernible connection to national","paragraph_id":"para_475"},{"text":"security, and under-inclusive, because it exempts certain","paragraph_id":"para_476"},{"text":"law-enforcement employees except for those represented by","paragraph_id":"para_477"},{"text":"Plaintiffs. We question whether we can take up such","paragraph_id":"para_478"},{"text":"arguments, which invite us to assess whether the President’s","paragraph_id":"para_479"},{"text":"stated reasons for exercising national security authority—","paragraph_id":"para_480"},{"text":"clearly conferred to him by statute—were pretextual. But","paragraph_id":"para_481"},{"text":"even if we assume that the Order’s line drawing could","paragraph_id":"para_482"},{"text":"constitute some evidence of targeting, on the balance of the","paragraph_id":"para_483"},{"text":"record before us, the Order reflects that the President would","paragraph_id":"para_484"},{"text":"have taken the same action even in the absence of the","paragraph_id":"para_485"},{"text":"16 AM. FED’N OF GOV’T EMPLOYEES V. TRUMP","paragraph_id":"para_486"},{"text":"protected conduct. See Mt. Healthy, 429 U.S. at 287; Bello-","paragraph_id":"para_487"},{"text":"Reyes, 985 F.3d at 702. The Order itself and the Fact Sheet","paragraph_id":"para_488"},{"text":"fairly indicate that the President would have issued the","paragraph_id":"para_489"},{"text":"Order, regardless of Plaintiffs’ speech, based on the","paragraph_id":"para_490"},{"text":"perceived impact of union activities and collective","paragraph_id":"para_491"},{"text":"bargaining on the sound operation of agencies and","paragraph_id":"para_492"},{"text":"subdivisions with national security-related missions. See","paragraph_id":"para_493"},{"text":"Fact Sheet.","paragraph_id":"para_494"},{"text":"The government has also established a likelihood that it","paragraph_id":"para_495"},{"text":"will suffer irreparable harm absent a stay. Nken, 556 U.S. at","paragraph_id":"para_496"},{"text":"434–35. As the D.C. Circuit explained in staying an","paragraph_id":"para_497"},{"text":"injunction of the same Executive Order, although the","paragraph_id":"para_498"},{"text":"government has deferred implementation of aspects of EO","paragraph_id":"para_499"},{"text":"14,251, the government “suffers irreparable harm even to the","paragraph_id":"para_500"},{"text":"extent the preliminary injunction overlaps with the","paragraph_id":"para_501"},{"text":"[g]overnment’s self-imposed restrictions” because the","paragraph_id":"para_502"},{"text":"injunction “ties the government’s hands . . . in the national","paragraph_id":"para_503"},{"text":"security context.” Nat’l Treasury Emps. Union, 2025 WL","paragraph_id":"para_504"},{"text":"1441563, at *2. As the Supreme Court recently reiterated,","paragraph_id":"para_505"},{"text":"“[a]ny time a State is enjoined by a court from effectuating","paragraph_id":"para_506"},{"text":"statutes enacted by representatives of its people, it suffers a","paragraph_id":"para_507"},{"text":"form of irreparable injury.” Trump v. CASA, Inc., 145 S. Ct.","paragraph_id":"para_508"},{"text":"2540, 2562 (2025) (quoting Maryland v. King, 567 U.S.","paragraph_id":"para_509"},{"text":"1301, 1303 (2012) (Roberts, C.J., in chambers)); see also","paragraph_id":"para_510"},{"text":"Immigrant Defs. L. Ctr. v. Noem, No. 25-2581, 2025 WL","paragraph_id":"para_511"},{"text":"2017247, at *13 (9th Cir. July 18, 2025) (“[W]e","paragraph_id":"para_512"},{"text":"acknowledge the harms involved in denying the duly elected","paragraph_id":"para_513"},{"text":"branches the policies of their choice.” (citing CASA, 145 S.","paragraph_id":"para_514"},{"text":"Ct. at 2562)). The government’s supporting declarations","paragraph_id":"para_515"},{"text":"reinforce its assertions of irreparable harm. For example, a","paragraph_id":"para_516"},{"text":"declaration from the State Department states that the","paragraph_id":"para_517"},{"text":"preliminary injunction risks slowing the reallocation of","paragraph_id":"para_518"},{"text":"resources to functions that protect American citizens abroad,","paragraph_id":"para_519"},{"text":"AM. FED’N OF GOV’T EMPLOYEES V. TRUMP 17","paragraph_id":"para_520"},{"text":"such as chartering evacuation flights and facilitating","paragraph_id":"para_521"},{"text":"overseas communications, and to programs that support","paragraph_id":"para_522"},{"text":"national security.","paragraph_id":"para_523"},{"text":"The remaining stay factors also favor the government.","paragraph_id":"para_524"},{"text":"Nken, 556 U.S. at 435–36. Whatever harm to collective","paragraph_id":"para_525"},{"text":"bargaining rights that Plaintiffs will experience due to a stay","paragraph_id":"para_526"},{"text":"is mitigated by the direction to agencies to refrain from","paragraph_id":"para_527"},{"text":"terminating collective bargaining agreements until litigation","paragraph_id":"para_528"},{"text":"has concluded. Moreover, any terminated agreements can","paragraph_id":"para_529"},{"text":"be reinstated if Plaintiffs ultimately prevail. It is also","paragraph_id":"para_530"},{"text":"speculative whether Plaintiffs will experience harm through","paragraph_id":"para_531"},{"text":"“weakened support for unions,” AFGE AFL-CIO, 2025 WL","paragraph_id":"para_532"},{"text":"1755442, at *14, and paused administration of dues","paragraph_id":"para_533"},{"text":"collection can be addressed by voluntary dues payment in","paragraph_id":"para_534"},{"text":"the interim and by monetary damages at the end of litigation,","paragraph_id":"para_535"},{"text":"see Nat’l Treasury Emps. Union, 2025 WL 1441563, at *2.","paragraph_id":"para_536"},{"text":"Finally, staying the injunction will serve the public interest","paragraph_id":"para_537"},{"text":"by “preserving the President’s autonomy under a statute that","paragraph_id":"para_538"},{"text":"expressly recognizes his national-security expertise.” Id. at","paragraph_id":"para_539"},{"text":"*3.2","paragraph_id":"para_540"},{"text":"* * *","paragraph_id":"para_541"},{"text":"For the foregoing reasons, we GRANT the","paragraph_id":"para_542"},{"text":"government’s motion for a stay of the district court’s","paragraph_id":"para_543"},{"text":"injunction pending appeal.","paragraph_id":"para_544"},{"text":"2 The government also challenges the district court’s jurisdiction but","paragraph_id":"para_545"},{"text":"agrees we need not reach this issue in the present posture. We do not","paragraph_id":"para_546"},{"text":"reach the government’s jurisdictional argument because we are not","paragraph_id":"para_547"},{"text":"considering an appeal of the preliminary injunction, but only whether to","paragraph_id":"para_548"},{"text":"grant the government’s motion for a stay, for which we have jurisdiction","paragraph_id":"para_549"},{"text":"“under the All Writs Act, 28 U.S.C. § 1651.” Newsom v. 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