MEMORANDUM OPINION AND ORDER
SUSAN G. BRADEN, District Judge.
I. RELEVANT FACTUAL BACKGROUND.1
On November 4, 1998, Davis Wetlands Bank, LLC ("the Bank"), the United States Army Corps of Engineers ("the Army Corps"), the United States Fish & Wildlife Service ("USFWS"), and the Virginia Department of Environmental Quality ("VDEQ"), established a wetlands mitigation bank,
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