By: Ratliff S.B. No. 764 97S0530/1 A BILL TO BE ENTITLED AN ACT 1-1 relating to certain environmental permitting procedures of the 1-2 Texas Natural Resource Conservation Commission. 1-3 BE IT ENACTED BY THE LEGISLATURE OF THE STATE OF TEXAS: 1-4 SECTION 1. Chapter 5, Water Code, is amended by adding 1-5 Subchapter J to read as follows: 1-6 SUBCHAPTER J. ENVIRONMENTAL PERMITTING PROCEDURES 1-7 Sec. 5.371. GENERAL PERMITTING PROCEDURES. (a) This 1-8 subchapter applies to commission procedures for an application to 1-9 issue, amend, or renew a permit for which public notice and an 1-10 opportunity for public hearing is required by Chapter 26 or 27 of 1-11 this code or Chapter 361 or 382, Health and Safety Code. 1-12 (b) The commission shall provide for permits-by-rule under 1-13 the chapters listed in Subsection (a) to the greatest extent 1-14 practicable and consistent with the requirements for United States 1-15 Environmental Protection Agency authorization of a state permit 1-16 program. 1-17 (c) The commission by rule may identify categories of 1-18 applications related to permits for which notice or opportunity for 1-19 public hearing is not required. The commission shall exempt from 1-20 notice and public hearing requirements an application to: 1-21 (1) maintain or improve the permitted quality or 1-22 method of disposal of waste, control of air emissions, or injection 1-23 of fluid if there is not: 2-1 (A) a significant increase in the quantity of 2-2 waste, air contaminants, or fluid to be discharged, emitted, or 2-3 injected; or 2-4 (B) a material change in the place of discharge, 2-5 injection, emission, control, treatment, storage, or disposal; 2-6 (2) amend a permit in a manner that will not: 2-7 (A) cause a potential deterioration of water 2-8 quality in the state; 2-9 (B) relax a standard or criterion in a manner 2-10 that raises a potential for deterioration of water quality in the 2-11 state; 2-12 (C) result in a significant net increase in 2-13 permitted allowable emissions; or 2-14 (D) allow a significant emission of air 2-15 contaminants not previously emitted under the permit; 2-16 (3) increase air emissions that are incidental to the 2-17 installation of an emission control device or implementation of a 2-18 control technique; or 2-19 (4) change a facility in a manner within the scope and 2-20 limitations of a flexible permit. 2-21 (d) For an application described by Subsection (c), the 2-22 commission by rule may provide for the action on the application to 2-23 be taken by the executive director. 2-24 Sec. 5.372. INITIAL DETERMINATION BY EXECUTIVE DIRECTOR. 2-25 (a) After an application related to a permit is administratively 3-1 and technically complete, the executive director shall prepare and 3-2 issue: 3-3 (1) a draft permit; or 3-4 (2) a notice of intent to deny. 3-5 (b) The executive director shall include a record of 3-6 proposed decision prepared in accordance with Section 5.373 with a 3-7 draft permit or notice of intent to deny. 3-8 (c) The commission shall send a copy of the record of the 3-9 proposed decision to: 3-10 (1) the applicant; 3-11 (2) a state or federal agency, as required or as 3-12 appropriate; and 3-13 (3) any other person on request of that person. 3-14 (d) Unless precluded by a requirement of the United States 3-15 Environmental Protection Agency related to state program 3-16 authorization, an applicant may give public notice of the 3-17 application before the initial determination of the executive 3-18 director is completed. If all requests for a public hearing the 3-19 commission receives under the notice are unreasonable or the 3-20 commission receives no requests for a public hearing, the executive 3-21 director may take final action on the application notwithstanding 3-22 this section and Sections 5.373 through 5.378, and the permit is 3-23 effective immediately. 3-24 (e) A notice of intent to deny shall state the executive 3-25 director's reasons for the intended denial. 4-1 (f) A draft permit shall contain all appropriate conditions, 4-2 compliance schedules, monitoring requirements, and technical 4-3 standards consistent with applicable commission rules. 4-4 Sec. 5.373. RECORD OF PROPOSED DECISION FOR DRAFT PERMIT. 4-5 (a) A record of proposed decision prepared for a draft permit 4-6 must: 4-7 (1) briefly show the principal facts and significant 4-8 factual, legal, methodological, and policy issues considered in 4-9 preparing the draft permit; and 4-10 (2) be based on the administrative record. 4-11 (b) The record of proposed decision must include, as 4-12 applicable: 4-13 (1) a brief description of the type of facility or 4-14 activity that is the subject of the draft permit; 4-15 (2) the type and quantity of wastes proposed to be or 4-16 that are being treated, stored, disposed of, injected, emitted, or 4-17 discharged; 4-18 (3) a brief summary of the reasons for the draft 4-19 permit conditions, including references to applicable statutes or 4-20 rules; 4-21 (4) the reasons a requested variance or alternative to 4-22 a required standard is or is not justified; 4-23 (5) the procedures for reaching a final decision on 4-24 the draft permit, including: 4-25 (A) the dates the comment period begins and 5-1 ends; 5-2 (B) the address where comments will be received; 5-3 and 5-4 (C) a description of: 5-5 (i) procedures for requesting a hearing; 5-6 (ii) the nature of the hearing; and 5-7 (iii) any other procedures by which the 5-8 public may participate in the final decision process; and 5-9 (6) the name and telephone number of a person to 5-10 contact for additional information. 5-11 (c) The commission shall make the record of proposed 5-12 decision available when the public notice is published. 5-13 Sec. 5.374. NOTICE OF INITIAL DETERMINATION; COMMENTS AND 5-14 REQUESTS FOR HEARING. (a) The executive director shall give 5-15 public notice that a draft permit or notice of intent to deny has 5-16 been prepared. The executive director shall provide for a 30-day 5-17 period for public review, comments, and requests for public 5-18 hearing. The period for public review and comments must be 5-19 extended until the close of the public hearing, if one is held. 5-20 (b) All persons, including applicants, who believe that any 5-21 condition of a draft permit is inappropriate or that the executive 5-22 director's tentative decision to deny an application, terminate a 5-23 permit, or prepare a draft permit is inappropriate must raise all 5-24 reasonably ascertainable issues and submit all reasonably available 5-25 arguments supporting their position by the close of the public 6-1 comment period. Additional time shall be granted to the extent 6-2 that a commenter who requests additional time demonstrates the need 6-3 for such time. 6-4 (c) Notice required under this section is in addition to the 6-5 requirements of Section 26.028 of this code and Sections 361.081 6-6 and 361.082, Health and Safety Code. 6-7 (d) The commission by rule may require additional public 6-8 notice necessary to satisfy requirements of the United States 6-9 Environmental Protection Agency for state permit program 6-10 authorization. 6-11 (e) If the commission receives a timely written notice of 6-12 opposition to a draft permit issued by the executive director and a 6-13 request for a public hearing on the draft permit, the executive 6-14 director shall respond to the request and attempt to resolve the 6-15 issues that create the opposition. The opponent may withdraw the 6-16 request for a public hearing following the executive director's 6-17 response. 6-18 Sec. 5.375. PUBLIC HEARINGS. (a) A ruling on a permit 6-19 issuance or denial may not be made without an opportunity for a 6-20 public hearing. 6-21 (b) Any person may submit oral or written statements and 6-22 data concerning the initial determination of the executive 6-23 director. Reasonable limits may be set for the time allowed for 6-24 oral comments, and the submission of statements in writing or under 6-25 oath may be required. 7-1 (c) The executive director shall hold the public hearing if 7-2 the executive director determines: 7-3 (1) after examining requests for a public hearing, 7-4 that there is a significant degree of public interest in the draft 7-5 permit or notice of intent to deny; or 7-6 (2) that a public hearing should be held in order to 7-7 clarify one or more issues in the permit decision, regardless of 7-8 whether the commission receives a timely request for a public 7-9 hearing. 7-10 (d) When a draft permit or notice of intent to deny for a 7-11 hazardous waste management permit is at issue, the executive 7-12 director shall hold a public hearing in any case in which the 7-13 commission receives a notice of opposition to the permit decision 7-14 and a request for a public hearing on or before the 30th day after 7-15 the date of public notice under Section 5.374. The executive 7-16 director shall hold the public hearing under this subsection at a 7-17 location convenient to the population center nearest the proposed 7-18 facility whenever it is possible to do so. 7-19 (e) The executive director may designate a presiding officer 7-20 or hearing panel to conduct the hearing in an orderly manner and to 7-21 receive comments at the hearing. A hearing panel may include 7-22 technical experts on the staff of the executive director. 7-23 (f) Chapter 2001, Government Code, does not apply to a 7-24 public hearing held under this section. A hearing held under this 7-25 section shall be conducted so that all relevant information, views, 8-1 arguments, and other data are sufficiently and fairly received 8-2 without undue repetition. 8-3 (g) A hearing held under this section shall be recorded. On 8-4 request, a hearing shall be transcribed. The person who requests a 8-5 hearing transcript shall bear the cost of the transcript. 8-6 (h) The commission shall provide the record and, if 8-7 prepared, the transcript of a hearing for review of any person at 8-8 the commission's main office. 8-9 (i) A person who requests a copy of the record or of a 8-10 transcript shall bear the cost of the copy. 8-11 Sec. 5.376. COSTS FOR INFORMATION REGARDING NEW HAZARDOUS 8-12 WASTE PERMIT. (a) On request of an affected person, the applicant 8-13 for a permit for a new hazardous waste management facility shall 8-14 furnish a bond or other financial assurance authorized by the 8-15 commission to guarantee payment of nonlegal costs of the affected 8-16 person incurred in providing to the commission information related 8-17 to the issuance of the permit. 8-18 (b) For an application for a new commercial hazardous waste 8-19 management facility, the bond or assurance must be in the amount of 8-20 $100,000. 8-21 (c) For an application for a new noncommercial hazardous 8-22 waste management facility, the bond or assurance must be in the 8-23 amount of $20,000. 8-24 (d) In determining whether the affected person is entitled 8-25 to reimbursement under this section, the executive director shall 9-1 apply the considerations provided by Section 361.0833(e), Health 9-2 and Safety Code. 9-3 (e) Nonlegal costs subject to reimbursement under this 9-4 section include the cost of a copy of the administrative record in 9-5 the case. 9-6 (f) The commission may not award in a case costs to one or 9-7 more persons that total an amount greater than the amount of 9-8 financial assurance required by this section. 9-9 (g) Subject to the limitations of Subsections (d) and (f), 9-10 the commission may award to a unit of local government legal costs 9-11 in addition to other costs. 9-12 Sec. 5.377. FINAL DECISION OF EXECUTIVE DIRECTOR. (a) For 9-13 decisions on applications processed under Sections 5.373 through 9-14 5.375, the executive director shall consider all comments received 9-15 during the public comment period and during any public hearing in 9-16 determining: 9-17 (1) whether to issue the permit; and 9-18 (2) any conditions to be placed on the permit if a 9-19 permit is issued. 9-20 (b) In ruling on a permit application, the executive 9-21 director may deny the permit in whole or in part and may provide 9-22 reasonable conditions to a permit if: 9-23 (1) the permit applied for does not meet applicable 9-24 requirements; or 9-25 (2) the applicant refuses to agree to a permit 10-1 condition the executive director determines is necessary after 10-2 reviewing comments the commission receives. 10-3 (c) In ruling on a permit application, the executive 10-4 director may consider any adjudicated decision within five years 10-5 before the date on which the application is filed that addressed 10-6 the applicant's noncompliance with the terms of any permit or order 10-7 issued by the commission. Before denying an application under this 10-8 subsection, the executive director must determine that the 10-9 noncompliance has resulted in harm to public health or the 10-10 environment and that the applicant has not made a substantial 10-11 attempt to correct the noncompliance. 10-12 (d) When the executive director issues a final decision on 10-13 an application, the executive director shall issue a response to 10-14 comments the commission receives. The response must: 10-15 (1) identify provisions of the draft permit that have 10-16 been changed for the final permit, if any, and state the reasons 10-17 for the change; and 10-18 (2) briefly describe and respond to all significant 10-19 comments the commission receives on the draft permit or permit 10-20 application. 10-21 (e) The response must be available to the public. 10-22 (f) The executive director shall mail notice of the final 10-23 decision on the application to the applicant and to each person who 10-24 commented during the public comment period or participated in the 10-25 public hearing. The notice must: 11-1 (1) include the response issued under Subsection (d); 11-2 (2) state that any person affected by the decision may 11-3 petition the commission as provided by Section 5.378; 11-4 (3) explain the petition process; 11-5 (4) identify the location and availability of the 11-6 administrative record; and 11-7 (5) for applications for new hazardous waste 11-8 management facilities, state that limited copies of the 11-9 administrative record may be made available under Section 5.376, 11-10 with costs of the copies borne by the applicant. 11-11 (g) A final decision under this section on a permit 11-12 application becomes effective 30 days after the date notice of the 11-13 decision is mailed, unless a petition for review is filed in 11-14 accordance with Section 5.378, or at a later time specified by the 11-15 executive director in the decision. 11-16 Sec. 5.378. PETITION FOR COMMISSION REVIEW. (a) The 11-17 commission shall review the executive director's decision on a 11-18 permit application as provided by this section. 11-19 (b) Any person who submitted comments on the tentative 11-20 decision of the executive director, or an applicant in those cases 11-21 where the executive director takes action under Section 5.372(d), 11-22 may file a petition for review with the commission. Any person who 11-23 failed to submit comments may file a petition for review only to 11-24 the extent of the changes from the tentative to the final permit 11-25 decision. A petition for review must be filed on or before the 12-1 30th day after the date the executive director's notice of final 12-2 decision is mailed. 12-3 (c) The filing of a petition under this section stays the 12-4 effect of a permit issued by the executive director until the 12-5 commission approves, modifies, or rejects the executive director's 12-6 permit decision. 12-7 (d) The petition must include a statement of the reasons 12-8 that support commission review of the decision, demonstrate that 12-9 the issue raised by the petition was raised during the public 12-10 comment period or public hearing, identify all provisions of the 12-11 draft permit or order of denial of the application with which the 12-12 appellant disagrees, and show that the decision or a permit 12-13 condition is based on: 12-14 (1) a finding of fact or a conclusion of law that is 12-15 clearly in error; or 12-16 (2) an important policy consideration or an exercise 12-17 of discretion that the commission should review. 12-18 (e) The commission shall act on a petition not later than 12-19 the 60th day after the date the notice of final decision is mailed. 12-20 If the commission does not act on or before that date, the petition 12-21 is denied. 12-22 (f) If the commission grants the petition for review, the 12-23 commission shall give notice to the petitioner and each person who 12-24 commented during the public comment period. The notice must 12-25 provide a briefing schedule for the review, identify stayed 13-1 provisions of permits pursuant to Subsection (g), and state that 13-2 any person affected and who submitted comments on the tentative 13-3 decision of the executive director may file an amicus brief. 13-4 (g) If a petition for review is granted, the effect of the 13-5 contested permit conditions shall be stayed pending final 13-6 commission action. If the permit involves a new facility, 13-7 injection well, source, or discharger, the applicant shall be 13-8 without a permit for the proposed new facility, injection well, 13-9 source, or discharger pending final commission action. Stayed 13-10 provisions of permits for existing facilities, injection wells, 13-11 sources, and dischargers shall be identified by the commission when 13-12 giving notice pursuant to Subsection (f). All other provisions of 13-13 the permit for the existing facility, injection well, source, or 13-14 discharger shall remain fully effective and enforceable. To the 13-15 extent conditions of any new permit are stayed under this section, 13-16 any person holding an existing permit must comply with the 13-17 conditions of the existing permit which correspond to the stayed 13-18 conditions, unless compliance with the existing conditions would be 13-19 technologically incompatible with compliance with other conditions 13-20 of the new permit which have not been stayed. 13-21 (h) If the commission modifies or rejects the executive 13-22 director's decision, the commission must issue a written decision 13-23 that includes a statement of the reason and legal basis for the 13-24 decision. The decision must be supported by the administrative 13-25 record. The commission shall mail the decision to the petitioner 14-1 and each person who commented during the public comment period or 14-2 who participated in the public hearing. 14-3 (i) Motions to reconsider a final order of the commission 14-4 shall be filed within 10 days after service of the final order. A 14-5 motion to reconsider shall set forth the matters claimed to be 14-6 erroneously decided and the nature of the alleged errors. A motion 14-7 for reconsideration shall not stay the effective date of the final 14-8 order unless specifically ordered by the commission. 14-9 Sec. 5.379. JUDICIAL REVIEW OF COMMISSION PERMIT DECISIONS. 14-10 (a) A person affected by the executive director's final decision 14-11 on a permit application or the commission's action on the petition 14-12 that modifies or rejects the executive director's decision may 14-13 petition for judicial review. The petition must be filed not later 14-14 than the 30th day after the date: 14-15 (1) the commission mails the decision on the petition 14-16 for commission review under Section 5.378(f); or 14-17 (2) the petition for commission review is denied. 14-18 (b) Failure to timely petition for commission review of the 14-19 executive director's decision is a bar to judicial review of the 14-20 decision. 14-21 (c) Judicial review of decisions of the commission under 14-22 this subchapter shall be under the substantial evidence rule as 14-23 provided by Section 2001.174, Government Code. 14-24 (d) The filing of an appeal does not stay any action 14-25 required by the commission's decision. 15-1 (e) The record of appeal shall be limited to all written an 15-2 oral substantive public comments, the transcript of the hearing, 15-3 all related correspondence, all responses to comments, and all 15-4 other information on which the commission relied in deciding on the 15-5 executive director's decision. 15-6 SECTION 2. Subchapter I, Chapter 2001, Government Code, is 15-7 amended by adding Section 2001.227 to read as follows: 15-8 Sec. 2001.227. CERTAIN ENVIRONMENTAL PERMITS. Subchapters C 15-9 through H do not apply to a permit application required to be filed 15-10 with the Texas Natural Resource Conservation Commission for an 15-11 authorization under Chapter 26 or 27, Water Code, or Chapter 361 or 15-12 382, Health and Safety Code, if the application is subject to 15-13 Subchapter J, Chapter 5, Water Code. 15-14 SECTION 3. The importance of this legislation and the 15-15 crowded condition of the calendars in both houses create an 15-16 emergency and an imperative public necessity that the 15-17 constitutional rule requiring bills to be read on three several 15-18 days in each house be suspended, and this rule is hereby suspended, 15-19 and that this Act take effect and be in force from and after its 15-20 passage, and it is so enacted.