2004 Annual Report-Joint Committee on Administrative Rules, Illinois General Assembly

2005·6.2 MB·English

by  Illinois. General Assembly. Joint Committee on Administrative Rules

1328.365
129a
2004
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firm
ANNUAL
>
Of The
COMMITTEE
JOINT
ON
ADMINISTRATIVE
RULES
submitted to the
members of the
General
Illinois
Assembly

2004
ANNUALREPORT
ofthe
COMMITTEE ON
JOINT
ADMINISTRATIVE RULES
Submittedto theMembers ofthe
Illinois GeneralAssembly
Senator MaggieCrotty,Co-Chair
RepresentativeBrentHassert, Co-Chair
SenatorJ.BradleyBurzynski
SenatorJamesF. Clayborne,Jr.
RepresentativeTom Holbrook
Representative David Leitch
Representative Larry McKeon
Representative David Miller
Representative Rosemary Mulligan
Senator Steve Rauschenberger
SenatorDanRutherford
SenatorIraSilverstein
VickiThomas
ExecutiveDirector
ILLINOIS STATE LIBRARY
700StrattonBuilding
SpringfieldIL62706
3 1LET 0ien?05 1

si JOINT COMMITTEE ON ADMINISTRATIVE RULES
ILLINOISGENERALASSEMBLY
CO-CHAIR: SEN.J.BRADLEYBURZYNSKI
SEN.MAGGIECROTTY SEN.JAMESF.CLAYBORNE.JR.
SEN.STEVERAUSCHENBERGER
SEN.DANRUTHERFORD
CO-CHAIR:
REP. BRENTHASSERT SEN.IRASILVERSTEIN
REP.TOMHOLBROOK
REP.DAVIDR.LEITCH
EXECUTIVEDIRECTOR: REP.LARRYMcKEON
VICKITHOMAS 700STRATTONBUILDING REP.DAVIDMILLER
SPRINGFIELD,ILLINOIS62706 REP.ROSEMARYMULLIGAN
217/785-2254
HONORABLEMEMBERS OFTHE94thGENERALASSEMBLY:
AsChairsoftheJointCommitteeonAdministrativeRules,weherebysubmitthe2004AnnualReport
ofthatCommittee. AnoverviewoftheCommittee'srulesreviewactivitiescanbefoundinthe
followingpages.
TheJointCommitteeonAdministrativeRulesgratefullyacknowledgesyourcontinuedsupportand
assistance,andweencourageallmembersoftheGeneralAssemblytotakeanactiveroleinthisvital
oversightfunctionguaranteeingthatthepublicrighttoknowisprotectedthroughthepromulgationof
specificrulesthatareappliedequallytoeveryoneregulated. Wewelcomeyoursuggestionsand
comments onagencyrulesandtheroleofthe Committee. Onlyaseachelectedrepresentative
becomesconcernedandinvolvedintheoversightprocesscantheCommitteeensurethattheintentof
thelegislationwepassismaintained.
Sincerely,
u-
SenatorMaggieCrotty RepresentativeBrerifHassert
Co-Chair Co-Chair

JCAR
Annual Report: 2004
Table ofContents
JCAR - Its Creation and Its Purpose 1
JCAR Membership 3
Illinois Rulemaking Process 4
General Rulemaking 9
.
Table: General Rulemakings Proposed by-the Agency 14
Table: General Rulemakings Considered by JCAR 16
Table: General Rulemakings: JCAR Action 18
Table: General Rulemakings: Basis for JCAR Action 19
Emergency Rulemaking 20
.
Table: Emergency Rulemakings Adopted by the Agency.... 23
Table: Emergency Rulemakings Considered by JCAR 24
Table: Emergency Rulemakings: JCAR Action 25
Table: Emergency Rulemakings: Basis for JCAR Action 26
Peremptory & Exempt Rulemaking 27
Table Peremptory & Exempt Rulemakings Adopted by the Agency 28
Table Peremptory & Exempt Rulemakings Considered by JCAR.. 29
Table Peremptory & Exempt Rulemakings: JCAR Action 30
Table Peremptory & Exempt Rulemakings: Basis for JCAR Action 31
:
Agency Response 32
Table: JCAR Assessment ofAppropriateness of Agency Response to JCAR Action 32
Recommended Legislation 33
Public Act Review .....37
Special Review of ADA Procedures 38
Complaint Review 40
Legislative Activity Relating to JCAR and the IAPA 41
Judicial Activity Relating to JCAR and the IAPA..... 43
Filing Prohibitions and Suspensions Issued by JCAR 49
Quantitative History of Rulemaking Activity By Agency: 1978-2004 52
Table History ofGeneral Rulemaking By Agency 52
Table History ofEmergency Rulemaking By Agency 56
Table History ofPeremptory/Exempt Rulemaking By Agency 59
The Illinois Administrative Procedure Act 60

JCAR
CREATION AND PURPOSE
ITS ITS
CREATION
TheIllinoisGeneralAssemblycreatedtheJointCommitteeonAdministrativeRules(JCAR)in 1977
anddelegatedto ittheresponsibilityofthelegislativebranchtoensurethatthelawsitenactsare
appropriatelyimplementedthroughadministrativelaw. ThespecificdutiesandauthoritiesofJCARare
outlinedintheIllinoisAdministrativeProcedureAct(IAPA),asistheIllinoisrulemakingprocess.
RESPONSIBILITIES
TheCommittee'sprincipalprogramsandactivitiesinclude:
Review ofgeneralrulemaking. Inthe course ofthis review, JCAR seeksto facilitate
involvementbytheaffectedpublicandtomakethereviewprocessatimelyandefficientone
thatassistsStateagenciesintheirgoalofenactingthebestadministrativelawpossible.
Review ofemergencyandperemptoryrulemakingsto ensurethat theyarejustifiable within
the IAPA'slimitationsonthesetypesofrulemakings. Emergencyandperemptoryrulemakings
arenotsubjecttotheIAPA'spubliccommentperiod, andthus shouldbeusedconservatively.
Review ofexistingagencyrules andpolicies to determine iftheyhave beenproperly
promulgated,areunauthorizedorunreasonable,orresultinseriousnegativeimpactonthe
citizensofthis State. ThesereviewscanbeundertakenuponJCAR'sowninitiativeorin
responsetoacomplaintfromthepublic.
PublicActreviewtodeterminethenecessityforneworamendatoryrulemakinginresponse
tolegislativechanges. JCARdevisesalistoflawsitbelievesmaygeneraterulemakingactivity,
sharesthatlistwiththeagencies,andmonitorsagencyactivitytodetermineifappropriate
actionistaken.
Legislativeactivities. JCARreviewsanyproposedlegislationthatamendstheIllinois
AdministrativeProcedureActandbringstoagencies' attentionanyresultingchangesin
rulemakingprocedures. LegislationinvolvingissuesthathaverecentlycomebeforeJCARis
alsofollowed. UnderitsIAPAmandatetocontinuallyseektoimprovetherulemaking
process,JCARoccasionallyinitiateslegislationrevisingtheIAPA. Italsomaypropose
legislationwhenrulesreviewbringsattentiontoastatutoryinsufficiencyorlackofclarityorto
enforceitsObjections orRecommendationswhenanagencyhasrefusedtoadheretothose
ObjectionsorRecommendations.
Publicinformation. JCARprovidesinformationonrulesandtherulemakingprocessto
legislatorsandthepublicthroughseveralconduits. First,JCARpublishes TheFlinnReport:
IllinoisRegulation,afreeweeklynewsletterthatsummarizesStateagencyrulemaking
activities. Thenewsletterisused bymanyasanalternativetosubscribing($290/yr.)tothe
IllinoisRegisterandisnowavailableon-line,aswellasbymail. Thenewsletterhighlightsthe
majorissues;thereadercanthenseekacopyofthespecificrulemakingorfurtherinformation
fromtheproposingagency. Second,JCARhascreatedandmaintainstheIllinois
Administrative Codedatabase. The database isusedinthepublishingoftheIllinoisRegister
1
bythe Secretary ofState's Index Department. State agencies canaccess the database by
downloadingtheirPartsforuseontheirPCs. Thedatabaseisalsoaccessible onthe General
Assemblywebsite(www.ilga.gov). Whileemergencyrulesarenotimbeddedintothedatabase,
thedatabaseshowswhereemergencyruleshavebeenadoptedandcontainsautomaticlinksto
theIllinoisRegisterdatabase,wheretheemergencyrulescanbeviewed. Third,JCARstaffis
alwaysavailabletorespondtoinquiriesfromGeneralAssemblymembersandthepublic. (For
information,ortobeaddedtotheFlinnReport mailing list,call 217/785-2254orcontact
[email protected].)
THE REVIEW PROCESS
TheJCARmembershipmeetsatleastonceeachmonthtoconsideranagendathatgenerallyincludes
from 50to 100 separate rulemakingsbyStateagencies. Inayear'stime,JCARwill review
approximately20,000pagesofrule. TheIAPAdictatesthattheCommittee'sanalysisofrulemakings
bebasedonsuchconcernsasstatutoryauthorityandlegislativeintent;necessityoftheregulation;
economicimpactonStategovernmentandtheaffectedpublic;completenessandappropriatenessof
standardstoberelieduponintheexerciseofagencydiscretion;effectonlocalgovernmentthroughthe
creationofamandate;adherencetoIAPArulemakingrequirements;andform.
JCAR'sreviewofagencyregulatoryproposalsispredominantlysubstantive. Itsmajorconcernisthat
statutorylawisappliedfairlyandconsistently,creatingaslittlepaperworkandeconomicburdenfor
theaffectedpublic aspossible. The Committeeservesasthefinalavenueforinputfromthepublic
beforearulemakingisformallyadopted. Recommendationsfromthepublicarealwayswelcomeand
areactivelysought. TheCommitteerecognizesthatnooneisasqualifiedtocommentonthe
appropriatenessandpracticalityofaproposedregulationastheindividualwhoseactivitiesorbusiness
practiceswillbeaffectedbythatregulation. CommentonanyproposedorexistingStateregulation
maybesubmittedtotheCommitteeat700StrattonBuilding, SpringfieldIL 62706,orbycalling217/
785-2254.
JCAR'sperusalofagencyrulemakingsservesatechnicalpurposeaswell. Thevariousrulemakingsof
theStateagenciescollectivelycomprisetheIllinoisAdministrativeCode. Ingivingafinaltechnical
reviewtoeachagencyproposal,JCAR,alongwiththe SecretaryofState'sIndexDepartment,strives
toachievesomedegreeofconsistencyamongtheindividual agencies' portionsofthe Code,andto
makethe Codeasreadableandunderstandableforthepublicaspossible.
ANNUAL REPORT
ThisReportincludesnarrativesofJCARactivityduring2004,aswell asthestatisticalsummariesof
therulemakingactivitiesofStateagencies. Thesummaryoflegislationaffecting JCARreflects
activityofthe2ndyearofthe 93rdGA. ThisReportalsoincludesahistorical overviewofrulemaking,
pertinenthistoricalstatistics,andthemostrecentversionoftheIllinoisAdministrativeProcedureAct.