JIM MAlTOX Attorney General

S~ppme Own Bullding P. 0. Box 12548 Austin. TX. ?8711- 2540 5121475-2501 Telex 9101874.1367 Telecopier 51214754266

714 .hckson. Suite 7M) Dallas, TX. 75202-r506 2lU742.8944

4824 Alberta Ave.. Suite 160 El Paso. TX. 799052793 915/-

lo0I TBXPS. Suite 7W Houston, TX. 77002~3111 713l223ea6

808 Broadway. Suite 312 Lubbock, TX. 7B401-3419 8081747-5238

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200 Mdn Plaza. Suite 409 San Antonio. TX. 792052797 51212254191

A” Equal DOpo~unWl Alllrmtive Action Employer 

# The Attorney General ofTexas

October 22. 1985

Mr. Charles D. Trmia ExecutiveDirector Texas Parks andW!.l.dlife Department 4200 Smith School Road Austin. Texas 711?44 OpinionNo. JM-366 Re: Whether the Parks and Wildlife Columisslon may delegate certain permitting authority to the executivedirector of the department DearMr. Travis:
You ask us tixther the Parks andWildlife Conmisslon [hereinafter the "Comission"] is authorized, through its rulemaking powers, to delegate to the Ih:ecutive Director the authority to issue permits in compliancewith chapter 86 of the Parks and Wildlife Code. See Parks & Wild. Code 586.001 et seq. You qlso Inform us that the C~ission has already delegated this permitting authority to the Executive Director through rules promulgatedmore than ten years ago. See 31 **T.A.C.** 157.45. **Section** 86.002(a) of the Parks andWildlife Cod2 provides:

(a) **No** person may disturb or **take** marl, sand, gravel, shell, or mudshell under the management and protection **of** the eomission or operate in or disturt any oyster bed or fishing water for any purpoac:other than thatnecessary or incidental to navlgat:ionor dredging under state or federal authorj.tywithout first having acquired from the commisc~Joaa permit authorizing the activity. (Empha~~is

added). Section 86.004provides:

The mmmisslon may grant a permit to an applicant &I has compliedwith all requiramancs of the zsoion if the commission finds that the disturbinlc,,

taking, and carrying away of marl, sand. gravel, shell, ormudshellwill not: (I) damage or injurlously affect any isl.md, reef, bar, channel, river. creek, or bays used for navigation, or any oysters,

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### oysterbeds, or fish in or near the water used in 

### theoper#.tion; and (2) cbar.g,aor injuriously affect any current t'aat would affect navigation. (Emphasisatided). Moreover, anyperson desj.ring a permitmust make awritten application to theConmission. See I'arks & Wild. Code 186.003. If the Commission refuses to grant a=Lt to an applicant. the body is required **to make** written findingsof facts explaining the **reason** for the refusal. See Parks hWild. Code IE6.008; see also V.T.C.S. art. 6252-13a, 5515, ma)
. Therefore, the legislature has explicitly designated to the Comrtssion the pemittinl; authorityunder chapter 86 of the Parks and Wildlife Code. Through its rulemak~iagauthority, the Commission has delegated its authority to issue permlts to the executive director. See 31 - **T.A.C.** 557.45. The agemy rolesprovide inpart:

(a) The f&.owiag procedures will be followed **for** the issuanceof generalpermits: (1) All requests for shell dredgingpermits will be made,in writing to the director.
. .. . (6) The +irector may consider the following criteria in determining vhether to grant or deny **a permit.**  . . . (Emphasisadded). See 31 **T.A.C.** s57.45. The rules also provide for the director or any Gloyee authorized by 1:bedirector to hold a hearing to determine vbether a permit will bl!granted. See 31 T.A.C. 1557.45(a)(4)-(8). These rules make no provisions forthe Conmission to make a final daterminationof wbetber a permitwill be granted. Accordingly, they are in conflict with **sec,tion** 15 of article 6252-13a. V.T.C.S. See Citizens Bank of Bryan 7'.First State Bank, Eearne. 580 S.W.2d 344. 347 (Tex. 1979); see t?isoV.T.C.S. art. 6252-13a. 422 (lam in --- conflictvith theAdminl~~trative Procedure and Texas Register **Act** are repealed). We also conclude that the rules In questionare in direct conflict with the legis:.ative mandate that the Commission grant or denypermit applications. Despite the **fact that**  **these** rules bave been In effect and have been followedby the agency for ten years, they are contrary to the plain meaning of the applicable statutes; and therefore, afford no basis for the continuation of this agency practice. See Brown -- Express, Inc.v, Railroad~Comission, 415 S.U.2d 394 (Tex. 1967).

p. 1678Mr. CharlesD. Travis - Page 3 (JM-366)

We do **not** imply that the Commiaaion is totally precluded from promulgatingrules delegatir,g, its authority tohold hearings on permit applications. The legislatwe has not prohibited the Coamissio~ from delegatingthis function. See Attorney General **Opinion** JM-244 (1984).meBut the AdministrativeProcedure and Texas RegisterAct requires that the granting of an agency 'permitmust comply with the provision6 of the act concerning contested cases. See V.T.C.S. art. 6252-13a. 113(3), 18(a). Although section 15 ofrhe act clearly allovs the appointment of a hearing examiner in such cases, see Grace v. StructuralPest Control Boa::d of Texas, 620 S.W.2d 157 (K Civ. App.
-Waco 1981,vrit ref'dn.r~~ommission mst sake theultimate decision and include findluns of fact and conclusions of law in compliance with sections 15 and 16. See Citizens Bank of Bryan v. First State Bank, Hearne, supra. at 347; Texas Health Facilities colmission v. Charter Medical-Dallas, Inc.. 665 S.W.2d 446 (Tex. 1984); ConsusarsWater, In-. v. Public Utility Commission of Texas, 651 S.W.2d 335 (Tex.App. -Austin 1983.nowrit). SUMMARP Section 57.45 of chapter 31 of the Texas Administrative Code is invalid because it is inconsistent with chapter 86 of the Parks and Wildlife Code an'3article 6252-13a. the Administrative Procedure and Texas Register Act. The Parks and Wildl:.feCommission is not precluded from delegating :;tsauthority to hold hearings on permit applications so long as the practice is in compliancewith article 6252-13a.

- JIM HATTOX AttorneyGeneral of Texas TOM GREN First AssistantAttorney G'sueral DAVID R. RICRARDS ExecutiveAssistantAttoNqg General ROBERT GRAY SpecialAssistant**Attorney** #General RICR GILPIN Chairman,OpinionCommittee

p. 1679Mr. CherleeD. Travie - Pwgc 4 (JM-366)

Preparedby Tony Cuillory 

### Assistaut

Attonley General APPRovm: OPINION CCRQlITTRg Rick Gilpin. Chelrmm Colin Carl Sussn Garrison Tony Guillory JimMocllinger JenniferRiggs Nancy Sutton SarahWoelk

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