Opinion ID: 1895323
Heading Depth: 1
Heading Rank: 1

Heading: the record for review

Text: Section 227.05, Stats., is silent with respect to the source of the record on which judicial review is based. In some special situations rules may be adopted without hearing. Section 227.02(1). [7] When a hearing is required by sec. 227.02, the agency is free to keep a record of it in any manner it determines to be desirable and feasible. Section 227.022(2). [8] Thus, there may be no agency hearing record available or in some cases it may not be sufficiently complete to allow the court to determine the validity of agency action. There are several alternatives available regarding the source of the record for review. Judicial review could be limited to a record consisting of the language of the rule, the statute authorizing its adoption and the documents necessary to prove compliance with rulemaking procedures. See, e.g., Or. Rev. Stat. sec. 183.400 (1985). Another alternative is review based solely on the record made during the agency rulemaking proceedings. The court could also consider the record made by the administrative agency on remand by the court to the agency for further fact-finding. Section 227.05(2), Stats. 1963, subsequently repealed by ch. 191, laws of 1965, required such a process. Finally, the court could review the record made by the agency during rulemaking proceedings supplemented by evidence presented to the trial court as the latter deems necessary and appropriate. See, e.g., Iowa Code sec. 17A.19(7) (1985); see also Model State Administrative Procedure Act sec. 5-114 (1981). This has been the usual practice when the factual bases of agency rules have been challenged in this state. E.g., Peterson v. Natural Resources Board, 94 Wis. 2d 587, 288 N.W.2d 845 (1980); Kachian v. Optometry Examining Board, 44 Wis. 2d 1, 170 N.W.2d 743 (1969). We conclude that in declaratory judgment proceedings under sec. 227.05, Stats., the trial court must be free to accept relevant evidence to supplement the agency record if it appears necessary to perform its judicial review function. If the court is to act as more than a rubber-stamp of agency action as we believe it must, infra p. 15, the court must understand the issues involved in the rulemaking. Particularly in a highly technical, complex area of rulemaking, such understanding is possible only if an adequate factual record is available to the court. We note that the rulemaking process is not like the contested case hearing where opponents of agency action are afforded extensive rights to present evidence and cross-examine witnesses. Section 227.07, Stats. [9] While interested persons are afforded the right to be heard at a rulemaking hearing, sec. 227.022, the extent of their presentation can be limited, sec. 227.022(1), and thus there may be limited opportunity to challenge opposing evidence. Thus, to assure a balanced presentation of views, trial courts must be free to hear additional evidence. As previously noted, because of prevailing rulemaking procedures, there may be no public hearing record or it may be minimal. Section 227.02, Stats. But we wish to emphasize to trial courts that in the normal case, i.e., in every agency rulemaking except the issuance of emergency rules pursuant to sec. 227.027, [10] the statutes require the agency to submit to the legislature prior to final adoption of the rule findings of fact and a statement explaining the need for the proposed rule. Section 227.018. [11] Thus the court will have some record from the agency concerning the basis and need for the rule. Moreover in many instances, particularly where the rulemaking concerns important issues of public health and safety, as this case illustrates, there will be a voluminous agency record available to the trial court for review which might make the taking of further evidence unnecessary.