Opinion ID: 1376983
Heading Depth: 3
Heading Rank: 6

Heading: Duration, Extent, and Subject Matter of Delegation

Text: The sixth factor weighs against the delegation. The delegation's subject matter is fairly narrow. The statute delegates to private landowners the power to govern water quality and land use only on their own property and that of their successors in interest. And, the landowners are still subject to existing state and TNRCC water quality regulations and additional regulations necessary to comply with federal standards. But the extent of the delegation is fairly broad. Landowners have the power to create, implement, and enforce their own water quality plans. See TEX. WATER CODE § 26.179(b), (d), (f), (g). These plans could adversely affect the public interest and the interests of neighbors and downstream water users. Yet, these plans apply to development in zones with 1,000 acres or more before TNRCC approval, and even after a TNRCC denial if the landowners appeal the denial. See TEX. WATER CODE § 26.179(g). Further, for those plans for which water quality monitoring is required, even if monitoring reveals that the plans are not achieving section 26.179's objectives, the plans need not be modified except in future phases of development, if any. See TEX. WATER CODE § 26.179(b). Modifications are required only to the extent reasonably feasible and practical. See TEX. WATER CODE § 26.179(b). Therefore, as we noted in our discussion of the first factor, the landowners have broad discretion in actually complying with section 26.179's water quality objectives. Landowners also have the power to exempt their property from the enforcement of any city regulations that are inconsistent with their water quality plan and land use plan or that could limit, modify, or impair the landowners' ability to implement those plans for the property. See TEX. WATER CODE § 26.179(i). The delegation to the landowners is not narrow in duration either. The statute expressly provides that the water quality plan is a covenant running with the land. See TEX. WATER CODE § 26.179(h). A zone and the coordinate power to regulate water quality and exempt property from municipal laws exists until a city annexes the zone. See Tex. Water Code § 26.179(i). And section 26.179 prohibits annexation until 20 years after zone designation or until 90 percent of the zone's facilities and infrastructure are complete, whichever occurs first. See Tex. Water Code § 26.179(i). Thus, under the statute, if a city does not annex under subsection (i), the zone and the landowners' powers in the zone last indefinitely. This is contrary to the time limits found in other regulatory schemes. See TEX. WATER CODE § 26.029 (In each permit, the commission shall prescribe the conditions on which it is issued, including the duration of the permit.); 30 TEX. ADMIN. CODE § 213.4(h) ([A]pproval of an Edwards Aquifer protection plan will expire two years after the date of initial issuance, unless prior to the expiration date, substantial construction related to the approved plan has commenced.). Therefore, this factor also weighs against the delegation.