Senate Bill 0206c1

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    Florida Senate - 1999                            CS for SB 206

    By the Committee on Governmental Oversight and Productivity;
    and Senator Laurent




    302-1767-99

  1                      A bill to be entitled

  2         An act relating to the Administrative Procedure

  3         Act; amending s. 120.52, F.S.; removing

  4         entities described in ch. 298, F.S., relating

  5         to water control districts, from the definition

  6         of "agency"; redefining the term "agency";

  7         providing additional restrictions with respect

  8         to an agency's rulemaking authority; amending

  9         s. 120.536, F.S.; providing additional

10         restrictions with respect to an agency's

11         rulemaking authority; requiring agencies to

12         provide the Administrative Procedures Committee

13         with a list of existing rules which exceed such

14         rulemaking authority and providing for

15         legislative consideration of such rules;

16         requiring agencies to initiate proceedings to

17         repeal such rules for which authorizing

18         legislation is not adopted; requiring a report

19         to the Legislature; providing that the

20         committee or a substantially affected person

21         may petition for repeal of such rules after a

22         specified date; restricting challenge of such

23         rules before that date; amending s. 120.54,

24         F.S.; specifying when rules may take effect;

25         restricting adoption of retroactive rules;

26         amending s. 120.56, F.S.; revising an agency's

27         responsibilities in response to a challenge to

28         a proposed rule and specifying the petitioner's

29         responsibility of going forward; amending s.

30         120.57, F.S., relating to hearings involving

31         disputed issues of material fact; revising an

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  1         agency's authority with respect to rejection or

  2         modification of conclusions of law in its final

  3         order; amending s. 120.68, F.S., relating to

  4         judicial review; providing a directive with

  5         respect to consideration by the court of an

  6         agency's construction of a statute or rule;

  7         providing an effective date.

  8

  9  Be It Enacted by the Legislature of the State of Florida:

10

11         Section 1.  Subsections (1) and (8) of section 120.52,

12  Florida Statutes, 1998 Supplement, are amended to read:

13         120.52  Definitions.--As used in this act:

14         (1)  "Agency" means:

15         (a)  The Governor in the exercise of all executive

16  powers other than those derived from the constitution.

17         (b)  Each:

18         1.  State officer and state department, and each

19  departmental unit described in s. 20.04.,

20         2.  Authority, including a regional water supply

21  authority.

22         3.  Board.

23         4.  Commission, including the Commission on Ethics and

24  the Game and Fresh Water Fish Commission when acting pursuant

25  to statutory authority derived from the Legislature.

26         5.  Regional planning agency., board,

27         6.  Multicounty special district with a majority of its

28  governing board comprised of nonelected persons., and

29  authority, including, but not limited to, the Commission on

30  Ethics and the Game and Fresh Water Fish Commission when

31

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  1  acting pursuant to statutory authority derived from the

  2  Legislature,

  3         7.  Educational unit, other than a local school board.

  4  units, and those entities

  5         8.  Entity described in chapters 163, 298, 373, 380,

  6  and 582 and s. 186.504, except any legal entity or agency

  7  created in whole or in part pursuant to chapter 361, part II,

  8  an expressway authority pursuant to chapter 348, or any legal

  9  or administrative entity created by an interlocal agreement

10  pursuant to s. 163.01(7), unless any party to such agreement

11  is otherwise an agency as defined in this subsection.

12         (c)  Each other unit of government in the state,

13  including counties, and municipalities, and local school

14  boards, to the extent they are expressly made subject to this

15  act by general or special law or existing judicial decisions.

16

17  This definition does not include any legal entity or agency

18  created in whole or in part pursuant to chapter 361, part II,

19  an expressway authority pursuant to chapter 348, or any legal

20  or administrative entity created by an interlocal agreement

21  pursuant to s. 163.01(7), unless any party to such agreement

22  is otherwise an agency as defined in this subsection.

23         (8)  "Invalid exercise of delegated legislative

24  authority" means action which goes beyond the powers,

25  functions, and duties delegated by the Legislature. A proposed

26  or existing rule is an invalid exercise of delegated

27  legislative authority if any one of the following applies:

28         (a)  The agency has materially failed to follow the

29  applicable rulemaking procedures or requirements set forth in

30  this chapter;

31

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    Florida Senate - 1999                            CS for SB 206
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  1         (b)  The agency has exceeded its grant of rulemaking

  2  authority, citation to which is required by s. 120.54(3)(a)1.;

  3         (c)  The rule enlarges, modifies, or contravenes the

  4  specific provisions of law implemented, citation to which is

  5  required by s. 120.54(3)(a)1.;

  6         (d)  The rule is vague, fails to establish adequate

  7  standards for agency decisions, or vests unbridled discretion

  8  in the agency;

  9         (e)  The rule is arbitrary or capricious;

10         (f)  The rule is not supported by competent substantial

11  evidence; or

12         (g)  The rule imposes regulatory costs on the regulated

13  person, county, or city which could be reduced by the adoption

14  of less costly alternatives that substantially accomplish the

15  statutory objectives.

16

17  A grant of rulemaking authority is necessary but not

18  sufficient to allow an agency to adopt a rule; a specific law

19  to be implemented is also required. An agency may adopt only

20  rules that implement or, interpret the, or make specific the

21  particular powers and duties granted by the enabling statute.

22  No agency shall have authority to adopt a rule only because it

23  is reasonably related to the purpose of the enabling

24  legislation and is not arbitrary and capricious or is within

25  the agency's class of powers and duties, nor shall an agency

26  have the authority to implement statutory provisions setting

27  forth general legislative intent or policy. Statutory language

28  granting rulemaking authority or generally describing the

29  powers and functions of an agency shall be construed to extend

30  no further than implementing or interpreting the specific the

31  particular powers and duties conferred by the same statute.

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    Florida Senate - 1999                            CS for SB 206
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  1         Section 2.  Section 120.536, Florida Statutes, is

  2  amended to read:

  3         120.536  Rulemaking authority; listing of rules

  4  exceeding authority; repeal; challenge.--

  5         (1)  A grant of rulemaking authority is necessary but

  6  not sufficient to allow an agency to adopt a rule; a specific

  7  law to be implemented is also required. An agency may adopt

  8  only rules that implement or, interpret the, or make specific

  9  the particular powers and duties granted by the enabling

10  statute. No agency shall have authority to adopt a rule only

11  because it is reasonably related to the purpose of the

12  enabling legislation and is not arbitrary and capricious or is

13  within the agency's class of powers and duties, nor shall an

14  agency have the authority to implement statutory provisions

15  setting forth general legislative intent or policy. Statutory

16  language granting rulemaking authority or generally describing

17  the powers and functions of an agency shall be construed to

18  extend no further than implementing or interpreting the

19  specific the particular powers and duties conferred by the

20  same statute.

21         (2)(a)  By October 1, 1997, each agency shall provide

22  to the Administrative Procedures Committee a listing of each

23  rule, or portion thereof, adopted by that agency before

24  October 1, 1996, which exceeds the rulemaking authority

25  permitted by this section.  For those rules of which only a

26  portion exceeds the rulemaking authority permitted by this

27  section, the agency shall also identify the language of the

28  rule which exceeds this authority.  The Administrative

29  Procedures Committee shall combine the lists and provide the

30  cumulative listing to the President of the Senate and the

31  Speaker of the House of Representatives.  The Legislature

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    Florida Senate - 1999                            CS for SB 206
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  1  shall, at the 1998 Regular Session, consider whether specific

  2  legislation authorizing the identified rules, or portions

  3  thereof, should be enacted.  By January 1, 1999, each agency

  4  shall initiate proceedings pursuant to s. 120.54 to repeal

  5  each rule, or portion thereof, identified as exceeding the

  6  rulemaking authority permitted by this section for which

  7  authorizing legislation does not exist. By February 1, 1999,

  8  the Administrative Procedures Committee shall submit to the

  9  President of the Senate and the Speaker of the House of

10  Representatives a report identifying those rules that an

11  agency had previously identified as exceeding the rulemaking

12  authority permitted by this section for which proceedings to

13  repeal the rule have not been initiated.  As of July 1, 1999,

14  the Administrative Procedures Committee or any substantially

15  affected person may petition an agency to repeal any rule, or

16  portion thereof, because it exceeds the rulemaking authority

17  permitted by this section.  Not later than 30 days after the

18  date of filing the petition if the agency is headed by an

19  individual, or not later than 45 days if the agency is headed

20  by a collegial body, the agency shall initiate rulemaking

21  proceedings to repeal the rule, or portion thereof, or deny

22  the petition, giving a written statement of its reasons for

23  the denial.

24         (b)  By October 1, 1999, each agency shall provide to

25  the Administrative Procedures Committee a listing of each

26  rule, or portion thereof, adopted by that agency on or after

27  October 1, 1996, and before October 1, 1999, which exceeds the

28  rulemaking authority permitted by this section.  For those

29  rules of which only a portion exceeds the rulemaking authority

30  permitted by this section, the agency shall also identify the

31  language of the rule which exceeds this authority.  The

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    Florida Senate - 1999                            CS for SB 206
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  1  Administrative Procedures Committee shall combine the lists

  2  and provide the cumulative listing to the President of the

  3  Senate and the Speaker of the House of Representatives.  The

  4  Legislature shall, at the 2000 Regular Session, consider

  5  whether specific legislation authorizing the identified rules,

  6  or portions thereof, should be enacted.  By January 1, 2001,

  7  each agency shall initiate proceedings pursuant to s. 120.54

  8  to repeal each rule, or portion thereof, identified as

  9  exceeding the rulemaking authority permitted by this section

10  for which authorizing legislation does not exist. By February

11  1, 2001, the Administrative Procedures Committee shall submit

12  to the President of the Senate and the Speaker of the House of

13  Representatives a report identifying those rules that an

14  agency had previously identified as exceeding the rulemaking

15  authority permitted by this section for which proceedings to

16  repeal the rule have not been initiated.  As of July 1, 2001,

17  the Administrative Procedures Committee or any substantially

18  affected person may petition an agency to repeal any rule, or

19  portion thereof, because it exceeds the rulemaking authority

20  permitted by this section.  Not later than 30 days after the

21  date of filing the petition if the agency is headed by an

22  individual, or not later than 45 days if the agency is headed

23  by a collegial body, the agency shall initiate rulemaking

24  proceedings to repeal the rule, or portion thereof, or deny

25  the petition, giving a written statement of its reasons for

26  the denial.

27         (3)  All proposed rules or amendments to existing rules

28  filed with the Department of State on or after October 1,

29  1996, shall be based on rulemaking authority no broader than

30  that permitted by this section. A rule adopted before October

31  1, 1996, and not included on a list submitted by an agency in

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  1  accordance with subsection (2) may not be challenged before

  2  November 1, 1997, on the grounds that it exceeds the

  3  rulemaking authority or law implemented as described by this

  4  section. A rule adopted before October 1, 1996, and included

  5  on a list submitted by an agency in accordance with subsection

  6  (2) may not be challenged before July 1, 1999, on the grounds

  7  that it exceeds the rulemaking authority or law implemented as

  8  described by this section. A rule adopted on or after October

  9  1, 1996, and before October 1, 1999, and included on a list

10  submitted by an agency in accordance with subsection (2) may

11  not be challenged before July 1, 2001, on the grounds that it

12  exceeds the rulemaking authority or law implemented as

13  described by this section.

14         (4)  Nothing in this section shall be construed to

15  change the legal status of a rule that has otherwise been

16  judicially or administratively determined to be invalid.

17         Section 3.  Paragraph (f) of subsection (1) of section

18  120.54, Florida Statutes, 1998 Supplement, is amended to read:

19         120.54  Rulemaking.--

20         (1)  GENERAL PROVISIONS APPLICABLE TO ALL RULES OTHER

21  THAN EMERGENCY RULES.--

22         (f)  An agency may adopt rules authorized by law and

23  necessary to the proper implementation of a statute prior to

24  the effective date of the statute, but the rules may not be

25  effective enforced until the statute upon which they are based

26  is effective. An agency may not adopt retroactive rules,

27  including retroactive rules intended to clarify existing law,

28  unless that power is expressly authorized by statute.

29         Section 4.  Paragraph (a) of subsection (2) of section

30  120.56, Florida Statutes, is amended to read:

31         120.56  Challenges to rules.--

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  1         (2)  CHALLENGING PROPOSED RULES; SPECIAL PROVISIONS.--

  2         (a)  Any substantially affected person may seek an

  3  administrative determination of the invalidity of any proposed

  4  rule by filing a petition seeking such a determination with

  5  the division within 21 days after the date of publication of

  6  the notice required by s. 120.54(3)(a), within 10 days after

  7  the final public hearing is held on the proposed rule as

  8  provided by s. 120.54(3)(c), within 20 days after the

  9  preparation of a statement of estimated regulatory costs

10  required pursuant to s. 120.541, if applicable, or within 20

11  days after the date of publication of the notice required by

12  s. 120.54(3)(d). The petition shall state with particularity

13  the objections to the proposed rule and the reasons that the

14  proposed rule is an invalid exercise of delegated legislative

15  authority. The petitioner has the burden of going forward. The

16  agency then has the burden to prove by a preponderance of the

17  evidence that the proposed rule is not an invalid exercise of

18  delegated legislative authority as to the objections raised.

19  Any person who is substantially affected by a change in the

20  proposed rule may seek a determination of the validity of such

21  change.  Any person not substantially affected by the proposed

22  rule as initially noticed, but who is substantially affected

23  by the rule as a result of a change, may challenge any

24  provision of the rule and is not limited to challenging the

25  change to the proposed rule.

26         Section 5.  Paragraph (l) of subsection (1) of section

27  120.57, Florida Statutes, 1998 Supplement, is amended to read:

28         120.57  Additional procedures for particular cases.--

29         (1)  ADDITIONAL PROCEDURES APPLICABLE TO HEARINGS

30  INVOLVING DISPUTED ISSUES OF MATERIAL FACT.--

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  1         (l)  The agency may adopt the recommended order as the

  2  final order of the agency. The agency in its final order may

  3  reject or modify the clearly erroneous conclusions of law over

  4  which it has substantive jurisdiction and interpretation of

  5  administrative rules over which it has substantive

  6  jurisdiction.  Rejection or modification of conclusions of law

  7  may not form the basis for rejection or modification of

  8  findings of fact.  The agency may not reject or modify the

  9  findings of fact unless the agency first determines from a

10  review of the entire record, and states with particularity in

11  the order, that the findings of fact were not based upon

12  competent substantial evidence or that the proceedings on

13  which the findings were based did not comply with essential

14  requirements of law. The agency may accept the recommended

15  penalty in a recommended order, but may not reduce or increase

16  it without a review of the complete record and without stating

17  with particularity its reasons therefor in the order, by

18  citing to the record in justifying the action.

19         Section 6.  Paragraph (d) of subsection (7) of section

20  120.68, Florida Statutes, is amended to read:

21         120.68  Judicial review.--

22         (7)  The court shall remand a case to the agency for

23  further proceedings consistent with the court's decision or

24  set aside agency action, as appropriate, when it finds that:

25         (d)  The agency has erroneously interpreted a provision

26  of law and a correct interpretation compels a particular

27  action. The court shall not defer to an agency's construction

28  of a statute or rule or otherwise afford any special weight to

29  the agency's interpretation of a statute or rule; or

30         Section 7.  This act shall take effect upon becoming a

31  law.

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  1          STATEMENT OF SUBSTANTIAL CHANGES CONTAINED IN
                       COMMITTEE SUBSTITUTE FOR
  2                              SB 206

  3

  4  Includes regional water supply authorities within the
    definition of "agency." Lists local school boards in section
  5  of definition of "agency" that includes them only if they are
    expressly made subject to the act by general or special law or
  6  existing judicial decisions.

  7  Provides that an agency may adopt only rules that implement or
    interpret the specific powers and duties granted by the
  8  enabling statute.

  9  Prohibits an agency from adopting a rule only because it is
    within the agency's class of powers and duties. Provides that
10  the powers and functions of an agency are to be construed to
    extend no further than implementing or interpreting the
11  specific powers.

12  Requires agencies to review rules and report to the
    Legislature those rules that exceed the rulemaking standard.
13  Provides that Legislature will review rules on list and
    determine if legislation to authorize rules will be adopted.
14  Requires agencies to repeal unauthorized rules. Permits
    challenges to rules July 1, 2001.
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    Prohibits adoption of retroactive rules.
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    Provides that courts may not defer to an agency's construction
17  of a statute or rule or otherwise afford any special weight to
    the agency's interpretation of a statute or a rule.
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