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Section 10(a) of the APA provides: 'A person suffering legal wrong because of agency action, or adversely affected or aggrieved by agency action within the meaning of a relevant statute, is entitled to judicial review thereof.'

This provision contains two separate requirements. First, the person claiming a right to sue must identify some 'agency action' that affects him in the specified fashion; it is judicial review 'thereof' to which he is entitled. The meaning of 'agency action' for purposes of § 702 is set forth in 5 U.S.C. § 551(13), see 5 U.S.C. § 701(b)(2) ('For the purpose of this chapter . . . agency action' ha[s] the meanin[g] given . . . by section 551 of this title'), which defines the term as 'the whole or a part of an agency rule, order, license, sanction, relief, or the equivalent or denial thereof, or failure to act,' 5 U.S.C. § 551(13). When review is sought not pursuant to specific authorization in the substantive statute, but only under the general review provisions of the APA, the 'agency action' in question must be 'final agency action.' See 5 U.S.C. § 704 ('Agency action made reviewable by statute and final agency ...

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