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Countless other cities have affected their surroundings in ways that are hard to measure. Cities, though made for humans, are home to numerous other creatures that share their built up spaces. Pets are an obvious example. In North America and Europe alone, hundreds of millions of cats and dogs add to the urban population. Along with these human companions, cities are also the dwelling places of uncounted millions of rats, squirrels, mice, and other rodents as well as vast numbers of insects, the hardiest of which include cockroaches, ants, and termites. Many animals eke out an existence in the labyrinthine subway and sewer pipes beneath the streets, emerging only at night. Others choose more open locations. Spiders, for example, have been known to spin webs outside the windows of the worlds tallest buildings, some 100 stories above the ground. Insect eating birds and bird eating hawks wheel above the canyons created by skyscrapers, and cooing, scavenging pigeons populate city parks and plazas. As natural habitats are increasingly disrupted by sprawling cities, animals such as deer and foxes are more likely to wander into backyards or to cross busy roads. This increases the risk of traffic accidents that are sometimes fatal to motorists and nearly always deadly to the animals involved.

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The report must also specify the reductions, if any, necessary to reduce the deficit to the target for the appropriate fiscal year. The reductions must be set forth on a program by program basis. In preparing the report, the Comptroller General is to have "due regard" for the estimates and reductions set forth in a joint report submitted to him by the Director of CBO and the Director of OMB, the President's fiscal and budgetary adviser. However, the Act plainly contemplates that the Comptroller General will exercise his independent judgment and evaluation with respect to those estimates. The Act also provides that the Comptroller General's report "shall explain fully any differences between the contents of such report and the report of the Directors. Appellants suggest that the duties assigned to the Comptroller General in the Act are essentially ministerial and mechanical, so that their performance does not constitute "execution of the law" in a meaningful sense. On the contrary, we view these functions as plainly entailing execution of the law in constitutional terms. Interpreting a law enacted by Congress to implement the legislative mandate is the very essence of "execution" of the law. He must also interpret the provisions of the Act to determine precisely what budgetary calculations are required. Decisions of that kind are typically made by officers charged with executing a statute. Indeed, the Comptroller General commands the President himself to carry out, without the slightest variation with exceptions not relevant to the constitutional issues presented, the directive of the Comptroller General as to the budget reductions:"The order must provide for reductions in the manner specified in section 251a3, must incorporate the provisions of the report submitted under section 251b, and must be consistent with such report in all respects.

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