ROGERS, Circuit Judge:
This case arises in the context of the approval of a lease by the U.S. Department of Interior to Cape Wind Associates for construction of an offshore wind farm in Nantucket Sound. Under the lease, Cape Wind must obtain the Federal Aviation Administration's ("FAA") determination whether the turbines pose a hazard to air navigation and comply with any mitigation measures before beginning construction. In Town of Barnstable, Mass. v. FAA,
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