2003 Annual Report-Joint Committee on Administrative Rules, Illinois General Assembly

2004·4.9 MB·English

by  Illinois. General Assembly. Joint Committee on Administrative Rules

1328.365
129a
2003
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ILLINOIS DOC
2003
ANNUALREPORT
APR- 2 8 2004
ofthe
ILLINOIS STATE LIBR.
COMMITTEE ON
JOINT
ADMINISTRATIVE RULES
Submittedto theMembers ofthe
Illinois GeneralAssembly
Senator MaggieCrotty,Co-Chair
RepresentativeBrentHassert, Co-Chair
SenatorJ.BradleyBurzynski
RepresentativeTom Holbrook
RepresentativeDavid Leitch
Representative Larry McKeon
Representative David Miller
RepresentativeRosemary Mulligan
SenatorBarackObama
SenatorSteve Rauschenberger
SenatorDanRutherford
SenatorIraSilverstein
VickiThomas
ExecutiveDirector
700StrattonBuilding
SpringfieldIL62706
Annual Reports
Compiled and Edited By
Deborah Connelly
Amy
Kreidler
Matt Rice
Claire Eberle
Vicki Thomas
JOINT COMMITTEE ONADMINISTRATIVE RULES
ILLINOISGENERALASSEMBLY
CO-CHAIR: SEN.J.BRADLEYBURZYNSKI
SEN.MAGGIECROTTY SEN.BARACKOBAMA
SEN.STEVERAUSCHENBERGER
CO-CHAIR: SEN. DANRUTHERFORD
REP. BRENTHASSERT SEN.IRASILVERSTEIN
REP.TOMHOLBROOK
EXECUTIVEDIRECTOR: REP. DAVIDR.LEITCH
VICKITHOMAS REP. LARRYMcKEON
REP.DAVIDMILLER
700STRATTONBUILDING REP. ROSEMARYMULLIGAN
SPRINGFIELD, ILLINOIS62706
217/785-2254
HONORABLEMEMBERSOFTHE93rdGENERALASSEMBLY:
AsChairsoftheJointCommitteeonAdministrativeRules,weherebysubmitthe2003AnnualReportofthat
Committee. AnoverviewoftheCommittee'srulesreviewactivitiescanbefoundinthefollowingpages.
TheJointCommitteeonAdministrativeRulesgratefullyacknowledgesyourcontinuedsupportandassistance,
andweencourageallmembersoftheGeneralAssemblytotakeanactiveroleinthisvitaloversightfunction
guaranteeingthatthepublicrighttoknowisprotectedthroughthepromulgationofspecificrulesthatareapplied
equallytoeveryoneregulated. Wewelcomeyoursuggestionsandcommentsonagencyrulesandtheroleof
theCommittee. Onlyaseachelectedrepresentativebecomesconcernedandinvolvedintheoversightprocess
cantheCommitteeensurethattheintentofthelegislationwepassismaintained.
Sincerely,
VX.
SenatorMaggieCrotty RepresentativeBrentHassert
Co-Chair Co-Chair
ILLINOIS STME LIBMM
3 11S1 OUBt,^4 3

JCAR
Annual Report: 2003
Table ofContents
JCAR - Its Creation and Its Purpose 1
JCAR Membership 3
Illinois Rulemaking Process 4
2003
General Rulemaking 9
Table: General RulemakingsProposed bythe Agency 12
Table: General RulemakingsConsideredbyJCAR 14
Table: General Rulemakings: JCARAction 16
Table: General Rulemakings: Basis forJCARAction 17
Emergency Rulemaking 18
Table: EmergencyRulemakingsAdopted bythe Agency 20
Table: EmergencyRulemakingsConsidered byJCAR 21
Table: EmergencyRulemakings: JCARAction 22
Table: EmergencyRulemakings: Basis forJCARAction 23
Peremptory & Exempt Rulemaking 24
Table: Peremptory& ExemptRulemakingsAdopted bythe Agency 25
Table: Peremptory& ExemptRulemakingsConsideredbyJCAR 26
Table: Peremptory& ExemptRulemakings: JCAR Action 27
Table: Peremptory& ExemptRulemakings: Basis forJCARAction 28
Agency Response 29
Table: Agency Response to 2003 JCARAction 29
Public Act Review 30
Complaint Review 31
Legislative Activity Relating to JCAR and the IAPA 33
Judicial Activity Relating to JCAR and the IAPA 35
Filing Prohibitions and Suspensions Issued by JCAR 41
Table: Quantitative History of Rulemaking Activity By Agency: 1978-2003 44
The Illinois Administrative Procedure Act 52

JCAR
CREATION AND PURPOSE
ITS ITS
CREATION
TheIllinoisGeneralAssemblycreatedtheJointCommitteeonAdministrativeRules(JCAR)in1977and
delegatedtoittheresponsibilityofthelegislativebranchtoensurethatthelawsitenactsareappropriately
implementedthroughadministrativelaw. ThespecificdutiesandauthoritiesofJCARareoutlinedintheIllinois
AdministrativeProcedureAct(LAPA),asistheIllinoisrulemakingprocess.
RESPONSIBILITIES
TheCommittee'sprincipalprogramsandactivitiesinclude:
Reviewofgeneralrulemaking. Inthecourseofthisreview,JCARseekstofacilitateinvolvementby
theaffectedpublicandtomakethereviewprocessatimelyandefficientonethatassistsStateagencies
intheirgoalofenactingthebestadministrativelawpossible.
Review ofemergency andperemptory rulemakings to ensure that theyarejustifiable within the
LAPA'slimitationsonthesetypesofrulemakings. Emergencyandperemptoryrulemakingsarenot
subjecttotheIAPA'spubliccommentperiod,andthus shouldbeusedconservatively.
Reviewofexistingagencyrulesandpoliciestodetermineiftheyhavebeenproperlypromulgated,
areunauthorizedorunreasonable,orresultinseriousnegativeimpactonthecitizensofthisState. These
reviewscanbeundertakenuponJCAR'sowninitiativeorinresponsetoacomplaintfromthepublic.
PublicAct review to determine the necessity for new or amendatoryrulemaking in response to
legislativechanges. JCARdevisesalistoflawsitbelievesmaygeneraterulemakingactivity,sharesthat
listwiththeagencies,andmonitorsagencyactivitytodetermineifappropriateactionistaken.
Legislativeactivities. JCARreviewsanyproposedlegislationthatamendstheIllinoisAdministrative
ProcedureActandbringsto agencies' attentionanyresultingchangesinrulemakingprocedures.
LegislationinvolvingissuesthathaverecentlycomebeforeJCARisalsofollowed. UnderitsIAPA
mandatetocontinuallyseektoimprovetherulemakingprocess,JCARoccasionallyinitiateslegislation
revisingtheIAPA. Italsomayproposelegislationwhenrulesreviewbringsattentiontoastatutory
insufficiencyorlackofclarityortoenforceitsObjectionsorRecommendationswhenanagencyhas
refusedtoadheretothoseObjectionsorRecommendations.
Publicinformation. JCARprovidesinformationonrulesandtherulemakingprocesstolegislatorsand
thepublicthroughseveralconduits. First,JCARpublishesTheFlinnReport: IllinoisRegulation,^.
freeweeklynewsletterthatsummarizesStateagencyrulemakingactivities. Thenewsletterisusedby
manyasanalternativetosubscribing($290/yr.)totheIllinoisRegisterandisnowavailableon-line,as
wellasbymail. Thenewsletterhighlightsthemajorissues;thereadercanthenseekacopyofthespecific
rulemakingorfurtherin-
formation from the proposing agency. Second, JCAR has created and maintains the Illinois
AdministrativeCodedatabase. ThedatabaseisusedinthepublishingoftheCodebytheSecretary
ofState'sIndexDepartmentandbyprivatepublisherswhohavebeenlicensedtousethedatabase.
Stateagencies canaccessthedatabasebydownloadingtheirPartsforuseontheirPCs. Thedatabase
isalsoaccessibleontheGeneralAssemblywebsite(www.legis.state.il.us).Whileemergencyrulesare
notimbeddedintothedatabase,thedatabaseshowswhereemergencyruleshavebeenadoptedand
containsautomaticlinkstotheIllinoisRegisterdatabase,wheretheemergencyrulescanbeviewed.
Third,JCARstaffisalwaysavailabletorespondtoinquiriesfromGeneralAssemblymembersandthe
public. (Forinformation,ortobeaddedtotheFlinnReportmailinglist,call217/785-2254orcontact
[email protected].)
THE REVIEW PROCESS
TheJCARmembershipmeetsatleastonceeachmonthtoconsideranagendathatgenerallyincludesfrom5
to 100separaterulemakingsbyStateagencies. Inayear'stime,JCARwillreviewapproximately20,000pages
A
ofrule. TheIAP dictatesthattheCommittee'sanalysisofrulemakingsbebasedonsuchconcernsasstatutory
authorityandlegislativeintent;necessityoftheregulation;economicimpactonStategovernmentandtheaffected
public;completenessandappropriatenessofstandardstoberelieduponintheexerciseofagencydiscretion;
A
effectonlocalgovernmentthroughthecreationofamandate;adherencetoIAP rulemakingrequirements and
;
form.
JCAR'sreviewofagencyregulatoryproposalsispredominantlysubstantive. Itsmajorconcernisthatstatutory
lawisappliedfairlyandconsistently,creatingaslittlepaperworkandeconomicburdenfortheaffectedpublic
aspossible. TheCommitteeservesasthefinalavenueforinputfromthepublicbeforearulemakingisformally
adopted. Recommendationsfromthepublicarealwayswelcomeandareactivelysought. TheCommittee
recognizesthatnooneisasqualifiedtocommentontheappropriatenessandpracticalityofaproposedregulation
astheindividualwhoseactivitiesorbusinesspracticeswillbeaffectedbythatregulation. Commentonany
proposedorexistingStateregulationmaybesubmittedtotheCommitteeat700StrattonBuilding,Springfield
EL62706,orbycalling217/785-2254.
JCAR'sperusalofagencyrulemakingsservesatechnicalpurposeaswell. ThevariousrulemakingsoftheState
agenciescollectivelycomprisetheIllinoisAdministrativeCode. Ingivingafinaltechnicalreviewtoeach
agencyproposal,JCAR,alongwiththeSecretaryofState'sIndexDepartment,strivestoachievesomedegree
ofconsistencyamongtheindividualagencies'portionsofthe Code,andtomaketheCodeasreadableand
understandableforthepublicaspossible.
ANNUAL REPORT
ThisReportincludesnarrativesofJCARactivityduring2003, aswellasthestatistical summariesofthe
rulemakingactivitiesofStateagencies. ThesummaryoflegislationaffectingJCARreflectsactivityofthe93rd
GA. ThisReportalsoincludesahistoricaloverviewoftheCommittee,pertinenthistoricalstatistics,andthemost
recentversionoftheIllinoisAdministrativeProcedureAct.
JCAR
MEMBERSHIP
TheJointCommitteeonAdministrativeRulesconsistsof12legislators whoareappointedbytheGeneral
Assemblyleadership. Membershipisequallyapportionedbetweenthe2housesandthe2politicalparties. Two
Co-chairsareselectedasprovidedby law. TheCo-chairsarenotmembersofthesamehouseorthesame
party.
MEMBERS
2003
SenatorMaggieCrotty,Co-Chair RepresentativeBrentHassert,Co-Chair
SenatorJ.BradleyBurzynski RepresentativeTomHolbrook
SenatorBarackObama RepresentativeDavidLeitch
SenatorSteveRauschenberger RepresentativeLarryMcKeon
SenatorDanRutherford RepresentativeDavidMiller
SenatorIraSilverstein RepresentativeRosemaryMulligan
FORMER MEMBERS
BillW.Balthis KennethHall PhilNovak
ArthurL.Berman CharlesHartke WilliamCDaniel
BillBlack KarenHasara Myron Olson
J.
PrescottE.Bloom CarlE.Hawkinson CoyPugh
GlenL.Bower LarryHicks JimRea
JackE. Bowers MannyHofmiann DavidJ.Regner
WoodsBowman EmilJones,Jr. JimReilly
JohnW.Countryman JeremiahE.Joyce PhilipJ.Rock
MaryLouCowlishaw DouglasN.Kane TomRyder
TomCross DorisKarpiel GeorgeSangmeister
JohnCullerton RichardKelly,Jr. ToddStroger
MichaelCurran BobKustra FrankD.Savickas
RichardM.Daley Thaddeus"Ted"Lechowicz ArtTenhouse
SteveDavis LarryLeonard DonneE.Trotter
VinceDemuzio EllisLevin SamVinson
LauraDonahue RichardLuft RichardA.Walsh
JamesH.Donnewald LisaMadigan LarryWennlund
ThomasDunn JohnW.Maitland,Jr. RobertC.Winchester
JimEdgar LynnMartin KathleenWojcik
BeverlyFawell JohnM.Matejek Harry"Babe"Woodyard
MonroeFlinn RogerMcAuliffe LarryWoolard
BarbaraGiohtto ThomasJ.McCracken,Jr. Harry"Bus"Yourell
JamesGitz A.T."Tom"McMaster
AlanJ.Greiman JimMeyer
RULEMAKING
ILLINOIS
PROCESS
Lawbasicallyexistsin4forms: constitutionallaw,statutorylaw,administrativelawandcaselaw. Constitutional
lawcreatesbroadguidelines. Legislationcreatesspecificrestrictions,authoritiesandprograms. Administrative
lawaddsthedetailoftennecessarytoimplementstatutorylaw. Ifthese3categoriesoflawdonotsufficiently
addressallthevariables,caselawevolves.
In1975,theIllinoisGeneralAssemblyenactedtheIllinoisAdministrativeProcedureAct(LAPA)[5LLCS 100]
tocreateaprocedurethroughwhichadministrativeagencieswouldexercisetheauthoritydelegatedtothemby
A
thelegislaturetocreateadministrativelawthroughtheadoptionofagencyregulations. In1977,theLAP was
amendedtoaddaprocessbywhichtheGeneralAssemblywouldoverseetheexerciseofthisdelegatedauthority
throughtheJointCommitteeonAdministrativeRules(JCAR),aserviceagencyoftheGeneralAssembly.
Rulesofanadministrativeagencyarevalidandenforceableonlyaftertheyhavebeenthroughtherulemaking
processprescribedintheLAPA. Rulesareforthepurposeofinterpretingorimplementingprovisionsofastatute
andmaynotactuallyexpandorlimitthescopeofthestatute.
TYPES OF RULEMAKINGS
Proposed Rules. Thesecanbenewrulesoramendatoryrulemakings. Frequentlythisisreferredtoas
"regularrulemaking". A2-step(FirstNoticeandSecondNotice)processisfollowed,requiringfrom90-365
days. Asidefromthebasic90days,theagencybasicallycontrolsthetiming. Boththegeneralpublicandthe
GeneralAssembly,throughJCAR,canhaveinputpriortoadoption.
EmergencyRules. Rules areeffectiveimmediatelyupontheagencyfilingthemwiththe SOS or
AR
within 1 daysafterfiling. Theserulescanbedevelopedunilaterallybytheagency;JC reviewsafter
the rules are adopted. An emergencyrulemaking lasts 150 days unless an earlier date is specified.
Emergencyrulemakingcanonlybeusediftheagencyfindsathreattothepublicinterest,safetyorwelfare
existsthattherulemakingwilladdress.
Peremptory Rules. TheIAPAprovidesfortheimmediateadoptionofarulewhichisrequiredas
aresultofafederallaw,federalrule,collectivebargainingagreement,oracourtorderunderconditions
thatprecludediscretionbytheagencyconcerningtherule'scontent. Peremptoryrulesareeffectiveupon
filingwiththeSOSoronthedaterequiredbythefederallaw,federalruleorcourtorder. JCARreviews
theserulesaftertheiradoptionforproperuseoftheprocedure.
ExemptorIdenticalinSubstanceRules. TheIAPAandtheEnvironmentalProtectionActcreate
aspecialprocessthroughwhichPCBcanadoptenvironmentalregulationsthatareidenticalinsubstanceto
federalregulationsthattheStateisrequiredtoadoptandenforce. TheserulemakingsarereviewedbyJCAR,
afteradoption,forproperuseoftheexemptprocess.