2010 Annual Report-Joint Committee on Administrative Rules, Illinois General Assembly

2011·3.4 MB·English

by  Illinois. General Assembly. Joint Committee on Administrative Rules

1328.365
129a
2010
c.3
2010
ANNUAL
Of The
COMMITTEE
JOINT
ON
ADMINISTRATIVE
Submitted THE
members of&*jthe
General
Illinois
Annual Report
Compiled and Edited by
Deborah Connelly
Assisted by
Al Cano
Mary Craig
Claire Eberle
Rita Messinger
Elaine Spencer
Ed Stasiewicz
Brad Taylor
Vicki Thomas
3 iiei Dmaimo
7
2010
ANNUALREPORT
ofthe
COMMITTEE ON
JOINT
ADMINISTRATIVE RULES
Submittedto the Members ofthe
Illinois GeneralAssembly
Senator MaggieCrotty,Co-Chair
RepresentativeAngelo "Skip" Saviano, Co-Chair
SenatorJ.BradleyBurzynski
RepresentativeJohnFritchey
SenatorRandallHultgren
SenatorMattieHunter
RepresentativeLou Lang
Representative David Miller
Representative Don Moffitt
Representative Rosemary Mulligan
SenatorDanRutherford
SenatorIraSilverstein
VickiThomas
ExecutiveDirector
700StrattonBuilding
SpringfieldIL62706
Digitized by the Internet Archive
in 2012 with funding from
CARLI: Consortium of Academic and Research Libraries in Illinois
http://archive.org/details/2010annualreport00illi
1
,3
JOINT COMMITTEE ON ADMINISTRATIVE RULES
ILLINOISGENERALASSEMBLY
CO-CHAIR: SEN.J.BRADLEYBURZYNSKI
SEN.MAGGIECROTTY SEN.RANDALLHULTGREN
SEN.MATTIEHUNTER
SEN.DANRUTHERFORD
CO-CHAIR:
REP.ANGELO"SKIP"SAVIANO SEN.IRASILVERSTEIN
REP.JOHNFRITCHEY
REP.LOULANG
EXECUTIVE DIRECTOR: REP.DAVIDMILLER
VICKITHOMAS 700STRATTONBUILDING REP.DONALDMOFFIT
SPRINGFIELD,ILLINOIS62706 REP.ROSEMARYMULLIGAN
217/785-2254
February 1,201
HonorableMembersofthe97thGeneralAssembly:
AsChairsoftheJointCommitteeonAdministrativeRules,weherebysubmitthe20 AnnualReportof
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thatCommittee. AnoverviewoftheCommittee'srulesreviewactivitiescanbefoundinthefollowingpages.
TheJointCommitteeonAdministrativeRulesgratefullyacknowledgesyourcontinuedsupportand
assistance. WeencourageallmembersoftheGeneralAssemblytotakeanactiveroleinthisvitaloversight
functionguaranteeingthatthepublicrighttoknowisprotectedthroughanopenrulemakingprocess.We
welcomeyoursuggestionsandcommentsonagencyrulesandtheroleoftheCommittee. Onlyaseach
electedrepresentativebecomesconcernedandinvolvedintheoversightprocesscantheCommitteeensure
thattheintentofthelegislationwepassismaintained.
n
Sincerely,
SenatorMaggieCrotty RepresentativeAngelo"Skip"Saviano
Co-Chair Co-Chair

JCAR
Annual Report: 2010
Table of Contents
JCAR - Its Creation and Its Purpose 1
JCAR Membership 3
Illinois Rulemaking Process 5
2010 Rulemaking 9
General Rulemaking 9
Table: General Rulemakings Proposed by the Agency 11
Table: General Rulemakings Considered by JCAR 13
Table: General Rulemakings: JCAR Action 15
Table: General Rulemakings: Basis for JCAR Action 16
Emergency Rulemaking 17
Table: Emergency Rulemakings Adopted by the Agency 19
Table: Emergency Rulemakings Considered by JCAR 20
Table: Emergency Rulemakings: JCAR Action 21
Table: Emergency Rulemakings: Basis for JCAR Action 22
Peremptory & Exempt Rulemaking 23
Table: Peremptory & Exempt Rulemakings Adopted by the Agency 24
Table: Peremptory & Exempt Rulemakings Considered by JCAR 25
Required Rulemaking 26
Table: Required Rulemakings Adopted by the Agency 27
Table: Required Rulemakings Considered by JCAR 28
Table: Required Rulemakings: JCAR Action 29
Table: Required Rulemakings: Basis for JCAR Action 30
Agency Response 31
Table: JCAR Assessment ofAppropriateness ofAgency Response to JCAR Action 31
Potential Legislation 32
,
Public Act Review 33
Special Review of ADA Procedures 34
Freedom of Information Act 35
Complaint Review Program 36
Legislation Relating to Rulemaking Issues 37
Judicial Activity Relating to JCAR and IAPA 38
Filing Prohibitions and Suspensions 46
Quantitative History of Rulemaking Activity by Agency: 1978-2010 53
Table: History ofGeneral Rulemaking by Agency 53
Table: History ofEmergency Rulemaking by Agency 57
Table: History ofPeremptory/Exempt Rulemaking by Agency 60

JCAR
Its Creation and Its Purpose
Creation
TheIllinoisGeneralAssemblycreatedtheJointCommitteeonAdministrativeRules(JCAR)in 1977
anddelegatedtoittheresponsibilityofthelegislativebranchto ensurethatthelawsitenactsare
appropriatelyimplementedthroughadministrativelaw. ThespecificdutiesandauthoritiesofJCARare
outlinedintheIllinoisAdministrativeProcedureAct(IAPA),asistheIllinoisrulemakingprocess.
Responsibilities
TheCommittee'sprincipalprogramsandactivitiesinclude:
Reviewofgeneralrulemaking. Inthe courseofthis review, JCAR seeks to facilitate
involvementbytheaffectedpublicandtomakethereviewprocessatimelyandefficientone
thatassists Stateagenciesintheirgoalofenactingthebestadministrativelawpossible.
Reviewofemergencyandperemptoryrulemakings to ensurethatthey arejustifiablewithin
the IAPA'slimitationsonthesetypesofrulemakings. Emergencyandperemptoryrulemakings
arenotsubjecttotheIAPA'spubliccommentperiod, andthus shouldbeusedconservatively.
Reviewofexistingagencyrules andpolicies to determine iftheyhavebeen properly
promulgated, areunauthorizedorunreasonable,orresultinseriousnegativeimpactonthe
citizensofthis State. ThesereviewscanbeundertakenuponJCAR'sowninitiativeorin
responsetoacomplaintfromthepublic.
PublicActreviewtodeterminethenecessityforneworamendatoryrulemakinginresponse
tolegislativechanges. JCARdevisesalistoflawsitbelievesmaygeneraterulemakingactivity,
sharesthatlistwiththeagencies, andmonitorsagencyactivitytodetermineifappropriate
actionistaken.
Legislativeactivities. JCARreviews anyproposedlegislationthatamendstheIllinois
AdministrativeProcedureActandbringstoagencies'attentionanyresultingchangesin
rulemakingprocedures. LegislationinvolvingissuesthathaverecentlycomebeforeJCARis
also followed. UnderitsIAPAmandatetocontinuallyseektoimprovetherulemaking
process,JCARoccasionallyinitiateslegislationrevisingtheIAPA. Italsomaypropose
legislationwhenrulesreviewbringsattentionto astatutoryinsufficiencyorlackofclarityorto
enforceits ObjectionsorRecommendationswhenanagencyhasrefusedto adheretothose
ObjectionsorRecommendations.
Publicinformation. JCARprovidesinformationonrulesandtherulemakingprocess to
legislatorsandthepublicthroughseveralconduits. First,JCARpublishesTheFlinnReport:
IllinoisRegulation,afreeweeklynewsletterthatsummarizesStateagencyrulemakingactivities.
Thenewsletterisused bymanyas analternativeto subscribing($290/yr.)totheIllinois
Registerandisavailableon-line, aswellasbymail. Thenewsletterhighlightsthemajorissues;
thereadercanthenseekacopyofthespecificrulemakingorfurtherinformationfromthe
proposingagency. Second,JCARhascreatedandmaintainstheIllinoisAdministrativeCode
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database. ThedatabaseisusedinthepublishingoftheIllinoisRegisterbytheSecretaryof
State's IndexDepartment. Stateagencies canrequestmaterials from thedatabaseforusein
draftingamendatoryrulemakings. ThedatabaseisalsoaccessibleontheGeneralAssembly
website(www.ilga.gov).Whileemergencyrulesarenotimbeddedintothedatabase,the
databaseshowswhereemergencyruleshavebeenadoptedandcontainsautomaticlinkstothe
IllinoisRegisterdatabase,wheretheemergencyrulescanbeviewed.Third,JCARstaffis
alwaysavailabletorespondtoinquiriesfromGeneralAssemblymembersandthepublic. For
information, ortobeaddedtotheFlinnReport mailinglist, call 217/785-2254orcontact
JCARbye-mail [email protected].
The Review Process
TheJCARmembershipmeets atleastonceeachmonthtoconsideranagendathatgenerallyincludes
from35 to 50separaterulemakingsbyStateagencies. Inayear'stime,JCARwillreview
approximately20,000pagesofrule. TheIAPAdictatesthattheCommittee'sanalysisofrulemakings
bebasedonsuchconcernsasstatutoryauthorityandlegislativeintent; necessityoftheregulation;
economicimpactonStategovernmentandtheaffectedpublic; completenessandappropriatenessof
standardstoberelieduponintheexerciseofagencydiscretion; effectonlocal governmentthroughthe
creationofamandate; adherenceto IAPArulemakingrequirements; andform.
JCAR'sreviewofagencyregulatoryproposalsispredominantlysubstantive. Itsmajorconcernisthat
statutorylawisappliedfairlyandconsistently,creatingaslittlepaperworkandeconomicburdenfor
theaffectedpublicaspossible. TheCommitteeservesasthefinal avenueforinputfromthepublic
beforearulemakingisformallyadopted. Recommendationsfromthepublicarealwayswelcomeand
areactivelysought. TheCommitteerecognizesthatnooneisasqualifiedtocommentonthe
appropriatenessandpracticalityofaproposedregulationastheindividualwhoseactivitiesorbusiness
practiceswillbeaffectedbythatregulation. CommentonanyproposedorexistingStateregulation
maybesubmittedtotheCommitteeat700 StrattonBuilding, SpringfieldIL62706,orbycalling2 II
785-2254.
JCAR'sperusalofagencyrulemakingsservesatechnicalpurposeaswell. Thevariousrulemakingsof
theStateagenciescollectivelycomprisetheIllinoisAdministrativeCode. Ingivingafinaltechnical
reviewto eachagencyproposal,JCAR, alongwiththeSecretaryofState'sIndexDepartment,strives
to achievesomedegreeofconsistencyamongtheindividual agencies'portionsofthe Code,andto
makethe Codeasreadableandunderstandableforthepublicaspossible.
Annual Report
ThisReportincludesnarrativesofJCARactivityduring2010, aswell asstatisticalsummariesofthe
rulemakingactivitiesofStateagencies. Thesummaryoflegislationaffecting JCARreflectsactivityof
the2ndyearofthe 96thGA. ThisReportalsoincludesanhistoricaloverviewofrulemaking,pertinent
historicalstatistics, andthemostrecentversionoftheIllinoisAdministrativeProcedureAct.