You specifically called out the Do Not Fly list by name. I am not a lawyer and will not comment on the legal authority of a random web page on the FAA website. But I am pretty sure they can't make regulations by webpage.
They do seem to have a reputation of publishing one rule while enforcing another.
Case in point..14 CFR 67.307(a)(4) states that Substance Dependence is a disqualifying condition, "except where there is established clinical evidence, satisfactory to the Federal Air Surgeon, of recovery, including sustained total abstinence from the substance(s) for not less than the preceding 2 years."
At a public speaking at this year's AirVenture, the Federal Air Surgeon was asked the following by an aviation attorney -
"Under the regulation, a pilot cannot get an unrestricted medical with a substance dependence diagnosis unless they provide evidence satisfactory to the Federal Air Surgeon of recovery. When I talked...maybe two years ago...to Dr Duvall, he was not aware of anyone being able to meet that burden in the prior five years, and I suspect that's still the case. I get concerned about my clients coming to me and wanting to establish that clinical evidence, and I say it's a waste of time. Once you have a substance dependence diagnosis, you are not going to get an unrestricted medical, and at least as of two years ago, that hasn't happened in the prior five years. And that's because of the NTSB decision guidance that substance dependence is forever. So I would encourage the FAA to consider rulemaking so that pilots do not continue to waste their money trying to establish recovery to your satisfaction, when there is no amount of evidence that will ever do that."
She mentions that she has three rulemaking amendments on her desk, that is not one of them, but that is on the list.
He then asks "But my assessment is correct, right, you cannot, as it exists today, you cannot ever submit significant enough evidence to show recovery, to your satisfaction, to get an unrestricted once you have a substance diagnosis, right?"
FAS: "That...is where we are at the moment, but we are looking at it."
Not an allegation from an angry pilot. Not speculation by an advocacy organization. Not a misunderstanding of HIMS. The FAA’s highest aeromedical official was asked whether, under the system as it exists today, a pilot can ever submit enough evidence of recovery to obtain an unrestricted medical certificate after a substance-dependence diagnosis.
A federal agency is not free to publish one rule and enforce another. It is bound by statutes enacted by Congress and by the valid regulations it has formally adopted.
This principle is commonly associated with the
Accardi doctrine: federal agencies generally must follow their own governing regulations. The Administrative Procedure Act also authorizes reviewing courts to hold unlawful and set aside agency action that is arbitrary, capricious, an abuse of discretion, contrary to law, beyond the agency’s lawful authority, or undertaken without observing procedures required by law.
The FAA may evaluate whether a particular pilot has provided satisfactory evidence of recovery. It may determine that a particular evaluation is incomplete, unreliable, outdated, or medically insufficient. That is individualized medical judgment.
What the FAA cannot lawfully do is decide in advance that
no pilot can ever establish recovery while continuing to maintain a published regulation expressly stating that recovery may be established.
Discretion to evaluate evidence is not authority to erase the regulatory exception. “Satisfactory to the Federal Air Surgeon” cannot reasonably be transformed into “no evidence will ever be satisfactory.”
If the FAA believes a substance-dependence diagnosis should permanently prohibit unrestricted certification, it must say so publicly. It must propose a new rule, identify its legal and scientific basis, provide notice, permit public comment, consider the evidence submitted by affected parties, and lawfully amend the regulation.
It cannot leave recovery in the Code of Federal Regulations while administering an undisclosed categorical policy that makes recovery legally impossible in practice.