2008 Annual Report-Joint Committee on Administrative Rules, Illinois General Assembly

2009·5.9 MB·English

by  Illinois. General Assembly. Joint Committee on Administrative Rules

1328.365
129a
2008
c.2
ANNUAL
LINOIS STATE LIBRARY
MAR 2 7 2009
DOCUMENTS
ILLINOIS
Of The
JOINT COMMITTEE
ON
ADMINISTRATIVE
_____
RULES
SUBMITTE^) THE
Members or the
General
Illinois
Assembly
Annual Report
Compiled and Edited By
Deborah Connelly
Assisted By
Al Cano
Mary Craig
Claire Eberle
Rita Messinger
Matt Rice
Elaine Spencer
Ed
Stasiewicz
Brad Taylor
Vicki Thomas
ILLINOIS STATE LIBRARY
3 llSl 01E751U E
2008
ANNUALREPORT
ofthe
COMMITTEE ON
JOINT
ADMINISTRATIVE RULES
Submitted to the Members ofthe
Illinois General Assembly
Senator MaggieCrotty, Co-Chair
RepresentativeBrentHassert, Co-Chair
SenatorJ.BradleyBurzynski
SenatorJames F. Clayborne,Jr.
RepresentativeJohnFritchey
SenatorRandallHultgren
Representative LouLang
Representative David Leitch
Representative David Miller
Representative Rosemary Mulligan
SenatorDanRutherford
SenatorIraSilverstein
VickiThomas
ExecutiveDirector
700StrattonBuilding
SpringfieldIL62706

JOINT COMMITTEE ONADM1NISTRATIVE RULES
ILLINOIS GENERALASSEMBLY
CO-CHAIR: SEN.J. BRADLEYBURZYNSKI
SEN. RANDALLHULTGREN
SEN. MAGGIE CROTTY
SEN. MATTIE HUNTER
SEN.DAN RUTHERFORD
CO-CHAIR: SEN. IRASILVERSTEIN
REP.ANGELO"SKIP"SAVIANO REP.JOHNFRITCHEY
REP. LOUL4NG
REP. DAVIDMILLER
EXECUTIVEDIRECTOR: REP. DONALDL. MOFFITT
VICKITHOMAS 700STRATTON BUILDING REP. ROSEMARYMULLIGAN
SPRINGFIELD, ILLINOIS62706
271/785-2254
February 1,2009
HonorableMembersofthe96thGeneralAssembly:
AsChairsoftheJointCommitteeonAdministrativeRules,weherebysubmitthe2008AnnualReportof
thatCommittee. AnoverviewoftheCommittee'srulesreviewactivitiescanbefoundinthefollowingpages.
TheJointCommitteeonAdministrativeRulesgratefullyacknowledgesyourcontinuedsupportand
assistance WeencourageallmembersoftheGeneralAssemblytotakeanactiveroleinthisvitaloversight
.
functionguaranteeingthatthepublicrighttoknowisprotectedthroughanopenrulemakingprocess We
.
welcomeyoursuggestionsandcommentsonagencyrulesandtheroleoftheCommittee. Onlyaseach
electedrepresentativebecomesconcernedandinvolvedintheoversightprocesscantheCommitteeensure
thattheintentofthelegislationwepassismaintained.
Sincerely,
SenatorMaggieCrbtty sentativeArfgelo"Skip"Saviano
Co-Chair Co-Chair

JCAR
Annual Report: 2008
Table of Contents
JCAR - Its Creation and Its Purpose 1
JCAR Membership 3
Illinois Rulemaking Process 5
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 30
Table: Peremptory & Exempt Rulemakings Considered by JCAR 31
Table: Peremptory & Exempt Rulemakings: JCAR Action 32
Table: Peremptory & Exempt Rulemakings: Basis for JCAR Action 33
Required Rulemaking 34
Table: Required Rulemakings Considered by JCAR 36
Table: Required Rulemakings: JCAR Action 37
Table: Required Rulemakings: Basis for JCAR Action 38
Agency Response ...39
Table: JCAR Assessment of Appropriateness ofAgency Response to JCAR Action 39
Rule Deficiencies 40
Potential Legislation 41
Public Act Review 43
Special Review of ADA Procedures 44
Complaint Review Program 45
Legislation Relating to Rulemaking Issues 46
Judicial Activity Relating to JCAR and IAPA 48
Filing Prohibitions and Suspensions 56
Quantitative History of Rulemaking Activity By Agency: 1978-2008 62
Table: History ofGeneral Rulemaking By Agency 62
Table: History ofEmergency Rulemaking By Agency 66
Table: History ofPeremptory/Exempt Rulemaking By Agency 69
The Illinois Administrative Procedure Act 70
Digitized by the Internet Archive
in 2012 with funding from
CARLI: Consortium of Academic and Research Libraries in Illinois
http://archive.org/details/2008annualreport00illi
JCAR
Creation and Purpose
Its Its
Creation
TheIllinoisGeneralAssemblycreatedtheJointCommitteeonAdministrativeRules(JCAR)in 1977
anddelegatedto ittheresponsibilityofthelegislativebranchtoensurethatthelawsitenactsare
appropriatelyimplementedthroughadministrativelaw. ThespecificdutiesandauthoritiesofJCARare
outlinedintheIllinoisAdministrativeProcedureAct(IAPA), asistheIllinoisrulemakingprocess.
Responsibilities
TheCommittee'sprincipalprogramsandactivitiesinclude:
Reviewofgeneralrulemaking. Inthe courseofthisreview, JCAR seeks to facilitate
involvementbytheaffectedpublicandtomakethereviewprocessatimelyandefficientone
thatassists Stateagenciesintheirgoalofenactingthebestadministrativelawpossible.
Reviewofemergencyandperemptoryrulemakings to ensurethatthey arejustifiablewithin
the IAPA'slimitationsonthesetypesofrulemakings. Emergencyandperemptoryrulemakings
arenotsubjecttotheIAPA'spubliccommentperiod, andthus shouldbeusedconservatively.
Reviewofexistingagencyrules andpolicies to determineiftheyhavebeenproperly
promulgated, areunauthorizedorunreasonable,orresultinseriousnegativeimpactonthe
citizensofthis State. ThesereviewscanbeundertakenuponJCAR'sowninitiativeorin
responseto acomplaintfromthepublic.
PublicActreviewto determinethenecessityforneworamendatoryrulemakinginresponse
tolegislativechanges. JCARdevisesalistoflawsitbelievesmaygeneraterulemakingactivity,
sharesthatlistwiththeagencies, andmonitors agencyactivitytodetermineifappropriate
actionistaken.
Legislativeactivities. JCARreviewsanyproposedlegislationthatamendstheIllinois
AdministrativeProcedureActandbringstoagencies'attentionanyresultingchangesin
rulemakingprocedures. LegislationinvolvingissuesthathaverecentlycomebeforeJCARis
also followed. UnderitsIAPAmandatetocontinuallyseektoimprovetherulemaking
process,JCARoccasionallyinitiateslegislationrevisingtheIAPA. Italsomaypropose
legislationwhenrulesreviewbringsattentiontoastatutoryinsufficiencyorlackofclarityorto
enforceitsObjections orRecommendationswhenanagencyhasrefusedto adheretothose
ObjectionsorRecommendations.
Publicinformation. JCARprovidesinformationonrules andtherulemakingprocessto
legislators andthepublicthroughseveral conduits. First,JCARpublishes TheFlinnReport:
IllinoisRegulation, afreeweeklynewsletterthatsummarizes Stateagencyrulemaking
activities. Thenewsletterisused bymanyasan alternativeto subscribing($290/yr.)tothe
IllinoisRegisterandisavailableon-line, aswell asbymail. Thenewsletterhighlightsthe
majorissues;thereadercanthenseekacopyofthespecificrulemakingorfurtherinformation
fromtheproposingagency. Second,JCARhas createdandmaintainstheIllinois
1
Administrative Codedatabase. Thedatabaseisusedinthepublishingof'theIllinoisRegister
bythe SecretaryofState's IndexDepartment. Stateagencies canrequestmaterialsfrom the
databaseforuseindraftingamendatoryrulemakings. Thedatabaseisalso accessibleonthe
GeneralAssemblywebsite(www.ilga.gov). Whileemergencyrulesarenotimbeddedintothe
database, thedatabaseshowswhereemergencyruleshavebeenadopted andcontains
automaticlinksto theIllinoisRegisterdatabase,wheretheemergencyrulescanbeviewed.
Third,JCARstaffisalwaysavailabletorespondtoinquiriesfromGeneralAssemblymembers
andthepublic. Forinformation, orto be addedtotheFlinnReport mailinglist, call 217/785-
[email protected].
—
The Review Process
TheJCARmembershipmeetsatleastonceeachmonthtoconsideranagendathatgenerallyincludes
from50to 100 separaterulemakingsbyStateagencies. Inayear'stime, JCARwillreview
approximately20,000pagesofrule. TheIAPAdictatesthattheCommittee'sanalysisofrulemakings
bebasedonsuchconcernsasstatutoryauthorityandlegislativeintent;necessityoftheregulation;
economicimpactonStategovernmentandtheaffectedpublic; completenessandappropriatenessof
standardstoberelieduponintheexerciseofagencydiscretion; effectonlocalgovernmentthroughthe
creationofamandate; adherenceto IAPArulemakingrequirements; andform.
JCAR'sreviewofagencyregulatoryproposalsispredominantlysubstantive. Itsmajorconcernisthat
statutorylawisappliedfairlyandconsistently, creatingaslittlepaperworkandeconomicburdenfor
theaffectedpublicaspossible. TheCommitteeserves asthefinal avenueforinputfromthepublic
beforearulemakingisformallyadopted. Recommendationsfromthepublicarealwayswelcomeand
areactivelysought. TheCommitteerecognizesthatnooneisasqualifiedto commentonthe
appropriatenessandpracticalityofaproposedregulationastheindividualwhoseactivitiesorbusiness
practiceswillbeaffectedbythatregulation. CommentonanyproposedorexistingStateregulation
maybesubmittedtotheCommitteeat700 StrattonBuilding, SpringfieldIL62706,orbycalling2 II
785-2254.
JCAR'sperusalofagencyrulemakings servesatechnicalpurposeaswell. Thevariousrulemakingsof
theStateagenciescollectivelycomprisetheIllinoisAdministrative Code. Ingivingafinaltechnical
reviewto each agencyproposal,JCAR, alongwiththe SecretaryofState's IndexDepartment, strives
to achievesomedegreeofconsistencyamongtheindividual agencies'portions ofthe Code, andto
makethe Code asreadableandunderstandableforthepublicaspossible.
Annual Report
ThisReportincludesnarrativesofJCARactivityduring2008,aswellasthestatisticalsummariesof
therulemakingactivitiesofStateagencies. Thesummaryoflegislationaffecting JCARreflects
activityof the2ndyearofthe 95thGA. This Reportalsoincludes anhistoricaloverviewof
rulemaking,pertinenthistoricalstatistics,andthemostrecentversionoftheIllinoisAdministrative
ProcedureAct.