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"para_1367", "para_1368", "para_1369", "para_1370", "para_1371" ], "kind": "front_matter" } ], "paragraphs": [ { "text": "IN THE SUPREME COURT, STATE OF WYOMING", "paragraph_id": "para_1" }, { "text": "2026 WY 76", "paragraph_id": "para_2" }, { "text": "APRIL TERM, A.D. 2026", "paragraph_id": "para_3" }, { "text": "July 13, 2026", "paragraph_id": "para_4" }, { "text": "WARREN LIVESTOCK, LLC, a Wyoming", "paragraph_id": "para_5" }, { "text": "limited liability company; JHD RANCH", "paragraph_id": "para_6" }, { "text": "LLC, a Wyoming limited liability company;", "paragraph_id": "para_7" }, { "text": "PILOT PEAK LLC, a Wyoming limited", "paragraph_id": "para_8" }, { "text": "liability company; and LODGEPOLE", "paragraph_id": "para_9" }, { "text": "RANCH LLC, a Wyoming limited liability", "paragraph_id": "para_10" }, { "text": "company,", "paragraph_id": "para_11" }, { "text": "Appellants", "paragraph_id": "para_12" }, { "text": "(Petitioners),", "paragraph_id": "para_13" }, { "text": "v.", "paragraph_id": "para_14" }, { "text": "BOARD OF COUNTY", "paragraph_id": "para_15" }, { "text": "COMMISSIONERS, COUNTY OF", "paragraph_id": "para_16" }, { "text": "ALBANY, WYOMING,", "paragraph_id": "para_17" }, { "text": "Appellee", "paragraph_id": "para_18" }, { "text": "(Respondent).", "paragraph_id": "para_19" }, { "text": "S-25-0250", "paragraph_id": "para_20" }, { "text": "THOMAS A. and KAREN R. BIENZ; LYNN", "paragraph_id": "para_21" }, { "text": "MARIE BROUGHTON; BILLY E. BROWN;", "paragraph_id": "para_22" }, { "text": "K.R. BROWN and D.L. MATTHEW, as", "paragraph_id": "para_23" }, { "text": "Trustees of the Brown-Matthew Revocable", "paragraph_id": "para_24" }, { "text": "Trust; ROBERT and MARY BROWNELL;", "paragraph_id": "para_25" }, { "text": "ROBERT and KATHY L. BUCKARDT;", "paragraph_id": "para_26" }, { "text": "KELLY CARTER; ANTHONY C. CLASSI", "paragraph_id": "para_27" }, { "text": "and LINDA D. JOHNSON; MAX D. and LORI", "paragraph_id": "para_28" }, { "text": "A. COULTHARD; LESLIE A. DARNALL,", "paragraph_id": "para_29" }, { "text": "Trustee of the Leslie A. Darnall Living Trust;", "paragraph_id": "para_30" }, { "text": "ROBERTA M. DARNALL, Trustee of the", "paragraph_id": "para_31" }, { "text": "Roberta M. Darnall Living Trust; DANNY and", "paragraph_id": "para_32" }, { "text": "ROBERTA DUNLAVY; SANDRA", "paragraph_id": "para_33" }, { "text": "S-25-0251", "paragraph_id": "para_34" }, { "text": "FARWELL EIKE, Trustee of the Sandra", "paragraph_id": "para_35" }, { "text": "Farwell Eike Revocable Trust; JOHN BRUCE", "paragraph_id": "para_36" }, { "text": "EMBURY; CLIFFORD D. FERRIS; JESSICA", "paragraph_id": "para_37" }, { "text": "ANN and RAY STUART FERTIG, III;", "paragraph_id": "para_38" }, { "text": "ROBERT F. GARLAND, III, Trustee of the", "paragraph_id": "para_39" }, { "text": "Robert F. Garland Revocable Trust; JD and", "paragraph_id": "para_40" }, { "text": "CANDY HAMAKER; ROBERT F. and", "paragraph_id": "para_41" }, { "text": "CAROLYN W. HELLING; DONALD L.", "paragraph_id": "para_42" }, { "text": "JARVIS; ORY J. JOHNSON; CHERYL L. and", "paragraph_id": "para_43" }, { "text": "LYLE JOHNSTON; KEITH KENNEDY;", "paragraph_id": "para_44" }, { "text": "DEREK J. MANCINHO; JOHN F. NELSON", "paragraph_id": "para_45" }, { "text": "and JUDITH NELSON, Trustees of the Judith", "paragraph_id": "para_46" }, { "text": "E. Nelson Family Living Trust; DANIEL A.", "paragraph_id": "para_47" }, { "text": "NETZEL, Trustee of the Daniel A. Netzel", "paragraph_id": "para_48" }, { "text": "Revocable Trust; JON MICHAEL PIKAL and", "paragraph_id": "para_49" }, { "text": "EVA SIGLINDA FERRE-PIKAL; JAMES L.", "paragraph_id": "para_50" }, { "text": "and SALLY R. RICHARD; HENRY R.", "paragraph_id": "para_51" }, { "text": "RICHTER and RITA ALLMARAS-", "paragraph_id": "para_52" }, { "text": "RICHTER; SHAWN SANDERS and", "paragraph_id": "para_53" }, { "text": "SANDERS PROPERTIES, LLC; KAREN", "paragraph_id": "para_54" }, { "text": "DIANE SINGER; KIMBERLY J. STARKEY,", "paragraph_id": "para_55" }, { "text": "Trustee of the Kimberly J. Starkey Revocable", "paragraph_id": "para_56" }, { "text": "Trust; ROBERT J. STARKEY, JR., Trustee of", "paragraph_id": "para_57" }, { "text": "the Robert J. Starkey, Jr. Revocable Trust;", "paragraph_id": "para_58" }, { "text": "TIMOTHY and KIMBERLY TAYLOR;", "paragraph_id": "para_59" }, { "text": "MARIANNE VINER; FRED C. and PEGGY J.", "paragraph_id": "para_60" }, { "text": "WATERS; THOMAS W. WEBER, Trustee of", "paragraph_id": "para_61" }, { "text": "the Thomas W. Weber Trust; ARNOLD and", "paragraph_id": "para_62" }, { "text": "WANDA WILLEMS; WILLIAM A. WOLF,", "paragraph_id": "para_63" }, { "text": "Trustee of the William A. Wolf Revocable", "paragraph_id": "para_64" }, { "text": "Trust; LYLE HAROLD WOMACK and", "paragraph_id": "para_65" }, { "text": "JANICE KAY WOMACK,", "paragraph_id": "para_66" }, { "text": "Appellants", "paragraph_id": "para_67" }, { "text": "(Petitioners),", "paragraph_id": "para_68" }, { "text": "v.", "paragraph_id": "para_69" }, { "text": "BOARD OF COUNTY COMMISSIONERS,", "paragraph_id": "para_70" }, { "text": "COUNTY OF ALBANY, WYOMING,", "paragraph_id": "para_71" }, { "text": "Appellee", "paragraph_id": "para_72" }, { "text": "(Respondent).", "paragraph_id": "para_73" }, { "text": "Appeal from the District Court of Albany County", "paragraph_id": "para_74" }, { "text": "The Honorable Misha E. Westby, Judge", "paragraph_id": "para_75" }, { "text": "Representing Appellants Warren Livestock, LLC; JHD Ranch LLC; Pilot Peak LLC;", "paragraph_id": "para_76" }, { "text": "and Lodgepole Ranch LLC:", "paragraph_id": "para_77" }, { "text": "Mitchell H. Edwards, Nicholas & Tangeman, LLC, Laramie, Wyoming. Argument", "paragraph_id": "para_78" }, { "text": "by Mr. Edwards.", "paragraph_id": "para_79" }, { "text": "Representing Appellants Bienz et al.:", "paragraph_id": "para_80" }, { "text": "Daniel B. Frank, Frank Law Office, P.C., Meriden, Wyoming. Argument by Mr.", "paragraph_id": "para_81" }, { "text": "Frank.", "paragraph_id": "para_82" }, { "text": "Representing Appellee Board of County Commissioners, County of Albany, Wyoming:", "paragraph_id": "para_83" }, { "text": "Matthew E. Ayres, Jennifer M. Curran, Edward Kurt Britzius, Albany County &", "paragraph_id": "para_84" }, { "text": "Prosecuting Attorney’s Office, Laramie, Wyoming. Argument by Mr. Ayres.", "paragraph_id": "para_85" }, { "text": "Before BOOMGAARDEN, C.J., and GRAY, FENN, JAROSH, and HILL, JJ.", "paragraph_id": "para_86" }, { "text": "GRAY, J., delivers the opinion of the Court; BOOMGAARDEN, C.J., files a specially", "paragraph_id": "para_87" }, { "text": "concurring opinion, in which FENN, J., joins; HILL, J., files a concurring in part and", "paragraph_id": "para_88" }, { "text": "dissenting in part opinion.", "paragraph_id": "para_89" }, { "text": "NOTICE: This opinion is subject to formal revision before publication in Pacific Reporter Third. Readers are", "paragraph_id": "para_90" }, { "text": "requested to notify the Clerk of the Supreme Court, Supreme Court Building, Cheyenne, Wyoming 82002, of", "paragraph_id": "para_91" }, { "text": "any typographical or other formal errors so that correction may be made before final publication in the", "paragraph_id": "para_92" }, { "text": "permanent volume.", "paragraph_id": "para_93" }, { "text": "1", "paragraph_id": "para_94" }, { "text": "GRAY, Justice.", "paragraph_id": "para_95", "court_paragraph": 1 }, { "text": "[¶1] In these consolidated appeals, Appellants Warren Livestock, LLC, et al. (Warren", "paragraph_id": "para_96" }, { "text": "Livestock) and Thomas A. and Karen R. Bienz, et al. (Property Owners) (collectively", "paragraph_id": "para_97" }, { "text": "Appellants) seek judicial review under the Wyoming Administrative Procedure Act", "paragraph_id": "para_98" }, { "text": "(WAPA) of the Albany County Board of County Commissioners’ (Board) 2023", "paragraph_id": "para_99" }, { "text": "amendments to zoning regulations known as the Aquifer Protection Overlay Zone (APOZ).", "paragraph_id": "para_100" }, { "text": "The district court upheld the amendments. On appeal, Appellants contend the district court", "paragraph_id": "para_101" }, { "text": "erred when it (1) refused to apply the arbitrary and capricious standard of review, (2)", "paragraph_id": "para_102" }, { "text": "concluded the Board did not exceed its authority when it adopted the 2023 amendments", "paragraph_id": "para_103" }, { "text": "(including the 35-acre minimum lot size), (3) found the amendments were in accordance", "paragraph_id": "para_104" }, { "text": "with the law, and (4) determined the procedures for amending the overlay zone complied", "paragraph_id": "para_105" }, { "text": "with the Wyoming Constitution. We conclude the APOZ amendments were within the", "paragraph_id": "para_106" }, { "text": "Board’s authority and did not violate the equal protection provisions of the Wyoming", "paragraph_id": "para_107" }, { "text": "Constitution. We agree informal agency legislation is subject to the arbitrary and", "paragraph_id": "para_108" }, { "text": "capricious standard of review but conclude the APOZ amendments were not arbitrary or", "paragraph_id": "para_109" }, { "text": "capricious. Accordingly, we affirm.", "paragraph_id": "para_110" }, { "text": "ISSUES", "paragraph_id": "para_111" }, { "text": "[¶2] We merge and rephrase Appellants’ issues as:", "paragraph_id": "para_112" }, { "text": "1. Did the Board exceed its authority when it adopted", "paragraph_id": "para_113" }, { "text": "zoning regulations to protect the Casper Aquifer?", "paragraph_id": "para_114" }, { "text": "2. Do the procedures for amending the overlay zone,", "paragraph_id": "para_115" }, { "text": "which are distinct from procedures used to amend", "paragraph_id": "para_116" }, { "text": "zoning districts, violate Wyoming’s constitutional equal", "paragraph_id": "para_117" }, { "text": "protection guarantees?", "paragraph_id": "para_118" }, { "text": "3. Does the arbitrary and capricious standard of review", "paragraph_id": "para_119" }, { "text": "apply to agency legislative action?", "paragraph_id": "para_120" }, { "text": "4. Were the Board’s 2023 APOZ amendments arbitrary,", "paragraph_id": "para_121" }, { "text": "capricious, an abuse of discretion, or otherwise not in", "paragraph_id": "para_122" }, { "text": "accordance with law?", "paragraph_id": "para_123" }, { "text": "FACTS", "paragraph_id": "para_124" }, { "text": "[¶3] These consolidated cases are before this Court for a second time. As we explained", "paragraph_id": "para_125" }, { "text": "in Bienz v. Bd. of Cnty. Comm’rs, Cnty. of Albany, 2024 WY 102, ¶¶ 3–5, 556 P.3d 227,", "paragraph_id": "para_126" }, { "text": "230–31 (Wyo. 2024) (Bienz I), the Casper Aquifer lies east of the City of Laramie in", "paragraph_id": "para_127" }, { "text": "Albany County. It supplies drinking water to many City of Laramie and Albany County", "paragraph_id": "para_128" }, { "text": "2", "paragraph_id": "para_129" }, { "text": "residents. Pursuant to the federal Safe Drinking Water Act, 42 U.S.C. § 300h-7,1 the", "paragraph_id": "para_130", "court_paragraph": 2 }, { "text": "Wyoming Department of Environmental Quality (WDEQ) developed a Wellhead", "paragraph_id": "para_131" }, { "text": "Protection Program providing criteria and methodologies for delineating aquifer protection", "paragraph_id": "para_132" }, { "text": "areas. Bienz I, ¶¶ 3–4, 556 P.3d at 230–31. In 1999, a group of licensed geologists and", "paragraph_id": "para_133" }, { "text": "engineers created the Delineation Report that mapped and identified the Casper Aquifer", "paragraph_id": "para_134" }, { "text": "protection area (CAPA). Id. ¶ 4, 556 P.3d at 230–31. The WDEQ approved the report in", "paragraph_id": "para_135" }, { "text": "2000, and in 2002, the Board adopted the Casper Aquifer Protection Plan (CAPP)", "paragraph_id": "para_136" }, { "text": "incorporating the Delineation Report. Id. ¶¶ 4–5, 556 P.3d at 231. The Board then adopted", "paragraph_id": "para_137" }, { "text": "regulations to protect the aquifer. These regulations created the APOZ and within that zone", "paragraph_id": "para_138" }, { "text": "prohibited certain land uses and restricted development (APOZ regulations). Id.¶ 5, 556", "paragraph_id": "para_139" }, { "text": "P.3d at 231. The Board amended the APOZ regulations in 2023. Appellants sought", "paragraph_id": "para_140" }, { "text": "judicial review of those amendments. Id. The district court concluded it lacked jurisdiction", "paragraph_id": "para_141" }, { "text": "because the Board’s amendments to the APOZ regulations were legislative and therefore", "paragraph_id": "para_142" }, { "text": "not reviewable under the WAPA. Id. ¶ 6, 556 P.3d at 232. Appellants appealed.", "paragraph_id": "para_143" }, { "text": "[¶4] In Bienz I, the sole issue before this Court was whether administrative legislative", "paragraph_id": "para_144" }, { "text": "actions are reviewable on direct appeal under the WAPA. Bienz I, ¶ 2, 556 P.3d at 230.", "paragraph_id": "para_145" }, { "text": "We held that the characterization of administrative action as legislative or adjudicatory did", "paragraph_id": "para_146" }, { "text": "not govern reviewability and concluded that the Board’s amendments were reviewable. Id.", "paragraph_id": "para_147" }, { "text": "¶¶ 22–25, 556 P.3d at 235–36. We remanded the matter to the district court. Id. ¶ 31, 556", "paragraph_id": "para_148" }, { "text": "P.3d at 237.", "paragraph_id": "para_149" }, { "text": "[¶5] While the matter was pending, the Board amended the APOZ regulations on three", "paragraph_id": "para_150" }, { "text": "separate occasions.2 On remand from Bienz I, the district court first determined which of", "paragraph_id": "para_151" }, { "text": "the challenged amendments remained live and were not mooted by the amendments made", "paragraph_id": "para_152" }, { "text": "to the regulations during litigation. It then addressed Appellants’ challenges to the live", "paragraph_id": "para_153" }, { "text": "amendments. Those included challenges to a required 35-acre minimum lot size and a", "paragraph_id": "para_154" }, { "text": "revised procedure for changing the APOZ boundaries. See ACZR, Ch.3, § 3.D.7 (APOZ", "paragraph_id": "para_155" }, { "text": "minimum lot size); ACZR, Ch.3, §§ 3.D.5.b & c (APOZ boundary amendments). The", "paragraph_id": "para_156" }, { "text": "district court held the Board had the statutory authority to enact the amendments; the APOZ", "paragraph_id": "para_157" }, { "text": "procedure for amending the APOZ boundary did not violate Wyoming’s constitutional", "paragraph_id": "para_158" }, { "text": "equal protection guarantees; and the APOZ 35-acre minimum lot size was not contrary to", "paragraph_id": "para_159" }, { "text": "law or in excess of the Board’s authority. Appellants timely appeal.", "paragraph_id": "para_160" }, { "text": "1 The federal Safe Drinking Water Act provision requiring states to develop wellhead protection programs", "paragraph_id": "para_161" }, { "text": "was effective on August 6, 1996. 42 U.S.C. § 300h-7 (2018). The statute has been amended over time, but", "paragraph_id": "para_162" }, { "text": "none of those amendments pertain to this matter.", "paragraph_id": "para_163" }, { "text": "2 On January 16, 2024, the Board adopted an updated APOZ boundary based on the 2023 CAPP’s", "paragraph_id": "para_164" }, { "text": "delineation and amended the procedures for changing the APOZ boundary. On December 17, 2024, the", "paragraph_id": "para_165" }, { "text": "Board moved small wastewater facility regulations, previously contained in the APOZ regulations, to the", "paragraph_id": "para_166" }, { "text": "County’s Design and Construction Standards for Small Wastewater Facilities and Regulations for Permit", "paragraph_id": "para_167" }, { "text": "to Construct, Install or Modify Small Wastewater Facilities. Finally, in June 2025, the Board changed the", "paragraph_id": "para_168" }, { "text": "requirements for boundary changes, inclusion and exclusion of properties within the APOZ, and the process", "paragraph_id": "para_169" }, { "text": "for making boundary changes.", "paragraph_id": "para_170" }, { "text": "3", "paragraph_id": "para_171" }, { "text": "DISCUSSION", "paragraph_id": "para_172", "court_paragraph": 3 }, { "text": "I. Nature of the Board’s Action: Distinction Between Adjudicatory, Formal", "paragraph_id": "para_173" }, { "text": "Legislative, and Informal Legislative Action", "paragraph_id": "para_174" }, { "text": "[¶6] Throughout this opinion, we use several related terms to describe the Board’s actions", "paragraph_id": "para_175" }, { "text": "including “legislative,” “adjudicatory,” and other similar distinctions. Although the", "paragraph_id": "para_176" }, { "text": "WAPA and our precedent do not distinguish between formal and informal agency action,", "paragraph_id": "para_177" }, { "text": "other courts do. Various opinions of this Court have referenced cases that employ the", "paragraph_id": "para_178" }, { "text": "formal/informal distinction or have incorporated these terms into the vocabulary of the", "paragraph_id": "para_179" }, { "text": "opinion without definition. While the formal/informal distinction is not part of our", "paragraph_id": "para_180" }, { "text": "administrative law, we use all four terms—legislative, adjudicatory, formal and informal—", "paragraph_id": "para_181" }, { "text": "in this opinion. Because it is helpful to understand these terms and concepts, we define", "paragraph_id": "para_182" }, { "text": "them below.", "paragraph_id": "para_183" }, { "text": "[¶7] Adjudicatory action applies to identifiable persons and specific situations. It", "paragraph_id": "para_184" }, { "text": "resolves disputed facts or applies to particular past or present circumstances involving", "paragraph_id": "para_185" }, { "text": "specific parties. Bienz I, ¶ 28, 556 P.3d at 237 (quoting Holding’s Little Am. v. Bd. of Cnty.", "paragraph_id": "para_186" }, { "text": "Comm’rs of Laramie Cnty., 670 P.2d 699, 702 (Wyo. 1983) (citing 1 Am. Jur. 2d", "paragraph_id": "para_187" }, { "text": "Administrative Law § 164)). Adjudicatory action can be formal—with a public hearing,", "paragraph_id": "para_188" }, { "text": "which is characterized by indicia of the adversarial process such as sworn witnesses, cross-", "paragraph_id": "para_189" }, { "text": "examination, and the introduction of evidence. Adjudicatory action can also be informal—", "paragraph_id": "para_190" }, { "text": "where public comment is solicited, but witnesses are not sworn, and other aspects of the", "paragraph_id": "para_191" }, { "text": "adversarial process are absent. See N. Laramie Range Found. v. Converse Cnty. Bd. of", "paragraph_id": "para_192" }, { "text": "Cnty. Comm’rs, 2012 WY 158, ¶ 10, 290 P.3d 1063, 1070 (Wyo. 2012) (making a", "paragraph_id": "para_193" }, { "text": "distinction between informal and formal adjudicatory action).", "paragraph_id": "para_194" }, { "text": "[¶8] Legislative action is distinguished from judicial power or adjudicatory action in that", "paragraph_id": "para_195" }, { "text": "it “operates in the future, rather than on past transactions and circumstances, and generally,", "paragraph_id": "para_196" }, { "text": "rather than particularly.” Legislative action produces “a general rule or policy which", "paragraph_id": "para_197" }, { "text": "applies to a general class of individuals, interests, or situations,” whereas adjudicatory", "paragraph_id": "para_198" }, { "text": "functions apply to identifiable persons and specific situations. Bienz I, ¶ 28, 556 P.3d at", "paragraph_id": "para_199" }, { "text": "237 (quoting Holding’s Little Am., 670 P.2d at 702); 1 Admin. L. & Prac. § 2:33 (3d ed.).", "paragraph_id": "para_200" }, { "text": "[¶9] Some cases we rely upon—or that our precedent has previously relied upon—draw", "paragraph_id": "para_201" }, { "text": "further distinction between formal and informal legislative action. Formal legislative", "paragraph_id": "para_202" }, { "text": "action (formal rulemaking) involves the creation of a general rule or policy through trial-", "paragraph_id": "para_203" }, { "text": "like, on-the-record procedures. Under the federal Administrative Procedure Act (APA),", "paragraph_id": "para_204" }, { "text": "these procedures are set forth in 5 U.S.C. §§ 556–557. Wyoming does not have a parallel", "paragraph_id": "para_205" }, { "text": "to the federal provisions for legislative or rulemaking action, and such formal procedures", "paragraph_id": "para_206" }, { "text": "are rare and generally considered inappropriate and counterproductive for legislative-type", "paragraph_id": "para_207" }, { "text": "4", "paragraph_id": "para_208" }, { "text": "decisions. 1 Admin. L. & Prac. § 2:33 (3d ed.); Wyo. Stat. Ann. §§ 16-3-101 through -", "paragraph_id": "para_209", "court_paragraph": 4 }, { "text": "115.", "paragraph_id": "para_210" }, { "text": "[¶10] Informal legislative action (informal rulemaking) is the norm for legislative-type", "paragraph_id": "para_211" }, { "text": "agency or local government rulemaking. It operates prospectively and produces a general", "paragraph_id": "para_212" }, { "text": "rule or policy applicable to a broad class of persons, properties, or situations, but uses", "paragraph_id": "para_213" }, { "text": "streamlined notice-and-comment procedures rather than trial-type hearings. These", "paragraph_id": "para_214" }, { "text": "procedures typically include notice, opportunity for public participation (usually written", "paragraph_id": "para_215" }, { "text": "comments), publication of the final action, and a concise statement of reasons. 1 Admin.", "paragraph_id": "para_216" }, { "text": "L. & Prac. § 2:33 (3d ed.).", "paragraph_id": "para_217" }, { "text": "[¶11] Under Wyoming law, the amendments at issue constitute legislative action. We", "paragraph_id": "para_218" }, { "text": "neither draw a formal/informal distinction nor imply that such distinction is required.", "paragraph_id": "para_219" }, { "text": "II. Did the Board exceed its authority when it adopted zoning regulations to protect", "paragraph_id": "para_220" }, { "text": "the Casper Aquifer?", "paragraph_id": "para_221" }, { "text": "[¶12] We will “[h]old unlawful and set aside agency action . . . found to be . . . [i]n excess", "paragraph_id": "para_222" }, { "text": "of statutory jurisdiction, authority or limitations or lacking statutory right . . . .” Wyo. Stat.", "paragraph_id": "para_223" }, { "text": "Ann. § 16-3-114(c)(ii)(C). Appellants contend the Board exceeded its statutory authority", "paragraph_id": "para_224" }, { "text": "when it enacted the 2023 APOZ amendments. They assert that environmental regulatory", "paragraph_id": "para_225" }, { "text": "authority rests only with the WDEQ, and the zoning authority delegated to counties does", "paragraph_id": "para_226" }, { "text": "not allow counties to regulate the use of land for the purpose of protecting the quality of", "paragraph_id": "para_227" }, { "text": "the State’s air, land, and water resources.", "paragraph_id": "para_228" }, { "text": "[¶13] The limited role of counties in the administration of government guides our analysis.", "paragraph_id": "para_229" }, { "text": "See Bd. of Trs. of Laramie Cnty. v. Bd. of Cnty. Comm’rs of Laramie Cnty., 2020 WY 41,", "paragraph_id": "para_230" }, { "text": "¶ 12, 460 P.3d 251, 256 (Wyo. 2020). Counties are political subdivisions of the state,", "paragraph_id": "para_231" }, { "text": "“created to aid in the administration of government.” Id. (quoting Bd. of Cnty. Comm’rs", "paragraph_id": "para_232" }, { "text": "for Sublette Cnty. v. Exxon Mobil Corp., 2002 WY 151, ¶ 22, 55 P.3d 714, 721 (Wyo.", "paragraph_id": "para_233" }, { "text": "2002)). Counties “have no sovereignty independent from that of the state, and the only", "paragraph_id": "para_234" }, { "text": "power available to them is the power that has been delegated to them by the state.” Bd. of", "paragraph_id": "para_235" }, { "text": "Trs. of Laramie Cnty., ¶ 12, 460 P.3d at 256–57 (quoting Seherr-Thoss v. Teton Cnty. Bd.", "paragraph_id": "para_236" }, { "text": "of Cnty. Comm’rs, 2014 WY 82, ¶ 24, 329 P.3d 936, 946 (Wyo. 2014)); Carter v. Bd. of", "paragraph_id": "para_237" }, { "text": "Cnty. Comm’rs of Laramie Cnty., 518 P.2d 142, 144 (Wyo. 1974) (“[T]he legislature may", "paragraph_id": "para_238" }, { "text": "delegate a part of its power over local subjects to municipal corporations, county boards,", "paragraph_id": "para_239" }, { "text": "and other public bodies . . . for the purpose of local self-government.”). Accordingly,", "paragraph_id": "para_240" }, { "text": "counties have only “those powers expressly granted by the constitution or statutory law or", "paragraph_id": "para_241" }, { "text": "reasonably implied from powers granted.” Bd. of Trs. of Laramie Cnty., ¶ 12, 460 P.3d at", "paragraph_id": "para_242" }, { "text": "257 (quoting Ford v. Bd. of Cnty. Comm’rs of Converse Cnty., 924 P.2d 91, 95 (Wyo.", "paragraph_id": "para_243" }, { "text": "1996)). Those powers include:", "paragraph_id": "para_244" }, { "text": "5", "paragraph_id": "para_245" }, { "text": "First, those granted by express words; second, those", "paragraph_id": "para_246", "court_paragraph": 5 }, { "text": "necessarily or fairly implied in or incident to the powers", "paragraph_id": "para_247" }, { "text": "expressly granted; third, those essential to the accomplishment", "paragraph_id": "para_248" }, { "text": "of the declared objects and purposes not simply convenient, but", "paragraph_id": "para_249" }, { "text": "indispensable. Any fair, reasonable, substantial doubt", "paragraph_id": "para_250" }, { "text": "concerning the existence of power is resolved by the courts", "paragraph_id": "para_251" }, { "text": "against the [county], and the power is denied. Dillon on", "paragraph_id": "para_252" }, { "text": "Municipal Corp., 5th ed., [§ 237.] The rule of strict", "paragraph_id": "para_253" }, { "text": "construction does not apply to the mode adopted by the", "paragraph_id": "para_254" }, { "text": "[county] to carry into effect powers expressly or plainly", "paragraph_id": "para_255" }, { "text": "granted, where the mode is not limited or prescribed by the", "paragraph_id": "para_256" }, { "text": "legislature, and is left to the discretion of the [county]", "paragraph_id": "para_257" }, { "text": "authorities. In such a case the usual test of validity of the act", "paragraph_id": "para_258" }, { "text": "of a [county] is whether it is reasonable. Id. § 239.", "paragraph_id": "para_259" }, { "text": "Id. ¶ 12, 460 P.3d at 257 (quoting Schoeller v. Bd. of Cnty. Comm’rs of Park Cnty., 568", "paragraph_id": "para_260" }, { "text": "P.2d 869, 876 (Wyo. 1977)). With these principles in mind, we examine whether the Board", "paragraph_id": "para_261" }, { "text": "had the authority to enact zoning regulations to protect the Casper Aquifer.", "paragraph_id": "para_262" }, { "text": "[¶14] Wyo. Stat. Ann. § 18-5-201(a) grants zoning authority to counties to promote public", "paragraph_id": "para_263" }, { "text": "health, safety, morals and general welfare:", "paragraph_id": "para_264" }, { "text": "To promote the public health, safety, morals and general", "paragraph_id": "para_265" }, { "text": "welfare of the county, each board of county commissioners", "paragraph_id": "para_266" }, { "text": "may regulate and restrict the location and use of buildings", "paragraph_id": "para_267" }, { "text": "and structures and the use, condition of use or occupancy", "paragraph_id": "para_268" }, { "text": "of lands for residence, recreation, agriculture, industry,", "paragraph_id": "para_269" }, { "text": "commerce, public use and other purposes in the", "paragraph_id": "para_270" }, { "text": "unincorporated area of the county. However, nothing in", "paragraph_id": "para_271" }, { "text": "W.S. 18-5-201 through 18-5-208 shall be construed to", "paragraph_id": "para_272" }, { "text": "contravene any zoning authority of any incorporated city or", "paragraph_id": "para_273" }, { "text": "town. No zoning resolution or plan shall prevent any use or", "paragraph_id": "para_274" }, { "text": "occupancy reasonably necessary to the extraction or", "paragraph_id": "para_275" }, { "text": "production of the mineral resources in or under any lands", "paragraph_id": "para_276" }, { "text": "subject thereto. No board of county commissioners shall", "paragraph_id": "para_277" }, { "text": "require that a land use or physical development be consistent", "paragraph_id": "para_278" }, { "text": "with a local land use plan unless the applicable provisions of", "paragraph_id": "para_279" }, { "text": "the local land use plan have been incorporated into the local", "paragraph_id": "para_280" }, { "text": "zoning regulations. Nothing in W.S. 18-5-201 through 18-5-", "paragraph_id": "para_281" }, { "text": "208 shall be construed to allow any board of county", "paragraph_id": "para_282" }, { "text": "commissioners, through the establishment of minimum lot size", "paragraph_id": "para_283" }, { "text": "requirements or otherwise, to prevent residential or agricultural", "paragraph_id": "para_284" }, { "text": "uses authorized for land divisions that are exempt from", "paragraph_id": "para_285" }, { "text": "6", "paragraph_id": "para_286" }, { "text": "subdivision requirements pursuant to W.S. 18-5-303(a)(i). No", "paragraph_id": "para_287", "court_paragraph": 6 }, { "text": "zoning resolution or plan shall regulate and restrict the location", "paragraph_id": "para_288" }, { "text": "and use of buildings and structures and the use, condition of", "paragraph_id": "para_289" }, { "text": "use or occupancy of lands for the use of a private school as", "paragraph_id": "para_290" }, { "text": "defined in W.S. 21-4-101(a)(iii) in any manner different from", "paragraph_id": "para_291" }, { "text": "a public school . . . .", "paragraph_id": "para_292" }, { "text": "Wyo. Stat. Ann. § 18-5-201 (LexisNexis 2025) (emphasis added). This is a “broad grant", "paragraph_id": "para_293" }, { "text": "of authority.” Wilson Advisory Comm. v. Bd. of Cnty. Comm’rs, 2012 WY 163, ¶¶ 26–27,", "paragraph_id": "para_294" }, { "text": "292 P.3d 855, 862 (Wyo. 2012).", "paragraph_id": "para_295" }, { "text": "This broad grant of authority derives from the “police", "paragraph_id": "para_296" }, { "text": "power inherent in government, the constitution, and statutes", "paragraph_id": "para_297" }, { "text": "passed pursuant to it.” 1 E.C. Yokley, Zoning Law and", "paragraph_id": "para_298" }, { "text": "Practice § 3-1 (4th ed. 2008). It includes both the express", "paragraph_id": "para_299" }, { "text": "power to enact zoning ordinances, and the “implied power", "paragraph_id": "para_300" }, { "text": "to do those things which would make its express power to", "paragraph_id": "para_301" }, { "text": "regulate and restrict the use of buildings and land in", "paragraph_id": "para_302" }, { "text": "unincorporated areas of the county meaningful.” Snake", "paragraph_id": "para_303" }, { "text": "River Venture [v. Bd. of Cnty. Comm’rs, Teton Cnty.], 616 P.2d", "paragraph_id": "para_304" }, { "text": "[744,] 752 [(Wyo.1980)] (quoting Schoeller v. Bd. of Cnty.", "paragraph_id": "para_305" }, { "text": "Comm’rs of Park Cnty., 568 P.2d 869, 874 (Wyo. 1977)).", "paragraph_id": "para_306" }, { "text": "However, “the zoning authority of counties and", "paragraph_id": "para_307" }, { "text": "municipalities is limited to that derived from state statute,", "paragraph_id": "para_308" }, { "text": "and county actions inconsistent with the statutes may", "paragraph_id": "para_309" }, { "text": "mandate reversal.” Northfork [Citizens For Responsible Dev.", "paragraph_id": "para_310" }, { "text": "v. Bd. of Cnty. Comm’rs of Park Cnty., 2010 WY 41], ¶ 23 n.5,", "paragraph_id": "para_311" }, { "text": "228 P.3d [838,] 847 n.5 [(Wyo. 2010)].", "paragraph_id": "para_312" }, { "text": "Wilson Advisory Comm., ¶ 27, 292 P.3d at 862 (emphasis added).", "paragraph_id": "para_313" }, { "text": "[¶15] Albany County has “broad authority to shape its destiny, control its growth, and", "paragraph_id": "para_314" }, { "text": "determine how best to promote the health, safety, morals, and general welfare of its", "paragraph_id": "para_315" }, { "text": "citizens.” Bd. of Cnty. Comm’rs of Teton Cnty. v. Crow, 2003 WY 40, ¶ 42, 65 P.3d 720,", "paragraph_id": "para_316" }, { "text": "734 (Wyo. 2003); Wyo. Stat. Ann. § 18-5-201; see also 4 Patricia E. Salkin, American Law", "paragraph_id": "para_317" }, { "text": "of Zoning § 36:7 (5th ed. 2026) (“Zoning has long been a tool of local governments in", "paragraph_id": "para_318" }, { "text": "regulating the local health and quality of life, and it has been reinvented to focus on", "paragraph_id": "para_319" }, { "text": "environmental quality. Hence, the zoning power has been used to control the location of", "paragraph_id": "para_320" }, { "text": "pollution sources, to set minimum lot sizes for the purposes of aquifer protection, and to", "paragraph_id": "para_321" }, { "text": "establish environmental quality districts that prevented erosion and landslides.”); 83 Am.", "paragraph_id": "para_322" }, { "text": "Jur. 2d Zoning and Planning § 60 (2026) (“The protection of the environment, maintaining", "paragraph_id": "para_323" }, { "text": "an ecological balance, water quality, and wildlife are all valid objects of the exercise of a", "paragraph_id": "para_324" }, { "text": "zoning authority’s police power.”); Salamar Builders Corp. v. Tuttle, 275 N.E.2d 585, 589", "paragraph_id": "para_325" }, { "text": "7", "paragraph_id": "para_326" }, { "text": "(N.Y. 1971) (“it is certain that the prospect of water pollution from the inadequate spacing", "paragraph_id": "para_327", "court_paragraph": 7 }, { "text": "of septic tanks in such rocky and hilly terrain provided more than adequate reason for the", "paragraph_id": "para_328" }, { "text": "upzoning”); Timber Trails Assocs. v. Plan. & Zoning Comm’n of Town of Sherman, 916", "paragraph_id": "para_329" }, { "text": "A.2d 99, 111–12 (Conn. App. Ct. 2007) (affirming zoning amendments that “lower the", "paragraph_id": "para_330" }, { "text": "density of development, maintain the rural character of the town and protect the area’s", "paragraph_id": "para_331" }, { "text": "watersheds to sustain high water quality” and “protect the quality of drinking water in areas", "paragraph_id": "para_332" }, { "text": "including neighboring watersheds,” concluding “the amendments [that] regulate the size", "paragraph_id": "para_333" }, { "text": "and land composition of residential lots . . . are consistent with the requirement . . . that", "paragraph_id": "para_334" }, { "text": "zoning regulations ‘promote health and the general welfare’”).", "paragraph_id": "para_335" }, { "text": "[¶16] The word “health” means “the condition of being sound in body, mind, or spirit[;]", "paragraph_id": "para_336" }, { "text": ". . . the general condition of the body,” Health, Merriam-Webster Dictionary,", "paragraph_id": "para_337" }, { "text": "https://www.merriam-webster.com/dictionary/health (last visited June 30, 2026); the word", "paragraph_id": "para_338" }, { "text": "“safety” means “the condition of being safe from undergoing or causing hurt, injury, or", "paragraph_id": "para_339" }, { "text": "loss,” Safety, Merriam-Webster, supra; and, the word “welfare” means “the state of faring", "paragraph_id": "para_340" }, { "text": "or doing well: thriving or successful progress in life: a state characterized esp. by good", "paragraph_id": "para_341" }, { "text": "fortune, happiness, well-being, or prosperity.” Crow, ¶ 42, 65 P.3d at 734 (citing Webster’s", "paragraph_id": "para_342" }, { "text": "Third New International Dictionary, 2594 (1986)). There is no doubt that protection of the", "paragraph_id": "para_343" }, { "text": "Casper Aquifer and its water quality promotes the public health, safety, and general welfare", "paragraph_id": "para_344" }, { "text": "of the county. See id. (holding that Teton County’s zoning regulations enacted to promote", "paragraph_id": "para_345" }, { "text": "“rural” “western” “character” served the welfare of its citizens and were within the zoning", "paragraph_id": "para_346" }, { "text": "authority delegated by Wyo. Stat. Ann. § 18-5-201(a)).", "paragraph_id": "para_347" }, { "text": "[¶17] We have held that the broad authority conferred under Wyo. Stat. Ann. § 18-5-", "paragraph_id": "para_348" }, { "text": "201(a) “is limited by state statute, and the general grant of power to [counties] to adopt", "paragraph_id": "para_349" }, { "text": "zoning laws in the interest of public welfare does not permit the local governing bodies to", "paragraph_id": "para_350" }, { "text": "override the state law and the policies supporting it.” Seherr-Thoss, ¶ 24, 329 P.3d at 946;", "paragraph_id": "para_351" }, { "text": "see also Teton Cnty. Bd. of Cnty. Comm’rs v. Bd. of Land Comm’rs, 2025 WY 48, ¶ 18,", "paragraph_id": "para_352" }, { "text": "567 P.3d 675, 681 (Wyo. 2025). Appellants argue that the WDEQ has exclusive authority", "paragraph_id": "para_353" }, { "text": "to regulate water quality in the state, and county zoning regulations to protect the aquifer", "paragraph_id": "para_354" }, { "text": "conflict with that authority.", "paragraph_id": "para_355" }, { "text": "[¶18] The Wyoming Constitution grants “general supervision of the waters of the state", "paragraph_id": "para_356" }, { "text": "and of the officers connected with its distribution” to the state engineer. Wyo. Const. art.", "paragraph_id": "para_357" }, { "text": "8, § 5. The legislature granted the WDEQ the authority to promulgate “rules, regulations,", "paragraph_id": "para_358" }, { "text": "standards and permit systems to promote the purposes of” the Wyoming Environmental", "paragraph_id": "para_359" }, { "text": "Quality Act (the Act). Wyo. Stat. Ann. § 35-11-302(a). Section 35-11-102 states the", "paragraph_id": "para_360" }, { "text": "purpose of the Act:", "paragraph_id": "para_361" }, { "text": "Policy and purpose.", "paragraph_id": "para_362" }, { "text": "Whereas pollution of the air, water and land of this state", "paragraph_id": "para_363" }, { "text": "will imperil public health and welfare, create public or private", "paragraph_id": "para_364" }, { "text": "8", "paragraph_id": "para_365" }, { "text": "nuisances, be harmful to wildlife, fish and aquatic life, and", "paragraph_id": "para_366", "court_paragraph": 8 }, { "text": "impair domestic, agricultural, industrial, recreational and other", "paragraph_id": "para_367" }, { "text": "beneficial uses; it is hereby declared to be the policy and", "paragraph_id": "para_368" }, { "text": "purpose of this act to enable the state to prevent, reduce", "paragraph_id": "para_369" }, { "text": "and eliminate pollution; to preserve, and enhance the air,", "paragraph_id": "para_370" }, { "text": "water and reclaim the land of Wyoming; to plan the", "paragraph_id": "para_371" }, { "text": "development, use, reclamation, preservation and", "paragraph_id": "para_372" }, { "text": "enhancement of the air, land and water resources of the", "paragraph_id": "para_373" }, { "text": "state; to preserve and exercise the primary responsibilities and", "paragraph_id": "para_374" }, { "text": "rights of the state of Wyoming; to retain for the state the", "paragraph_id": "para_375" }, { "text": "control over its air, land and water and to secure", "paragraph_id": "para_376" }, { "text": "cooperation between agencies of the state, agencies of other", "paragraph_id": "para_377" }, { "text": "states, interstate agencies, and the federal government in", "paragraph_id": "para_378" }, { "text": "carrying out these objectives.", "paragraph_id": "para_379" }, { "text": "Wyo. Stat. Ann. § 35-11-102 (LexisNexis 2025) (emphasis added).3", "paragraph_id": "para_380" }, { "text": "3 The statute envisions cooperation with local entities, including counties and municipalities. For example,", "paragraph_id": "para_381" }, { "text": "it states,", "paragraph_id": "para_382" }, { "text": "[WDEQ] rules, regulations, standards and permit systems shall prescribe:", "paragraph_id": "para_383" }, { "text": "(i) Water quality standards specifying the maximum short-", "paragraph_id": "para_384" }, { "text": "term and long-term concentrations of pollution, the minimum", "paragraph_id": "para_385" }, { "text": "permissible concentrations of dissolved oxygen and other matter,", "paragraph_id": "para_386" }, { "text": "and the permissible temperatures of the waters of the state;", "paragraph_id": "para_387" }, { "text": "(ii) Effluent standards and limitations specifying the", "paragraph_id": "para_388" }, { "text": "maximum amounts or concentrations of pollution and wastes", "paragraph_id": "para_389" }, { "text": "which may be discharged into the waters of the state;", "paragraph_id": "para_390" }, { "text": "(iii) Standards for the issuance of permits for construction,", "paragraph_id": "para_391" }, { "text": "installation, modification or operation of any public water supply", "paragraph_id": "para_392" }, { "text": "and sewerage system, subdivision water supply, treatment works,", "paragraph_id": "para_393" }, { "text": "disposal system or other facility, capable of causing or", "paragraph_id": "para_394" }, { "text": "contributing to pollution;", "paragraph_id": "para_395" }, { "text": "(iv) Standards for the definition of technical competency and", "paragraph_id": "para_396" }, { "text": "the certification of operating personnel for community water", "paragraph_id": "para_397" }, { "text": "systems and nontransient noncommunity water systems, sewerage", "paragraph_id": "para_398" }, { "text": "systems, treatment works and disposal systems and for", "paragraph_id": "para_399" }, { "text": "determining that the operation shall be under the supervision of", "paragraph_id": "para_400" }, { "text": "certified personnel. Prior to recommending these standards to", "paragraph_id": "para_401" }, { "text": "the director, the administrator shall consult with affected", "paragraph_id": "para_402" }, { "text": "municipalities, water and sewer districts, counties and", "paragraph_id": "para_403" }, { "text": "treatment operators;", "paragraph_id": "para_404" }, { "text": "(v) Standards for the issuance of permits as authorized", "paragraph_id": "para_405" }, { "text": "pursuant to section 402(b) of the Federal Water Pollution Control", "paragraph_id": "para_406" }, { "text": "Act [33 U.S.C. § 1342(b)] as amended in 1972, and as it may be", "paragraph_id": "para_407" }, { "text": "hereafter amended;", "paragraph_id": "para_408" }, { "text": ". . .", "paragraph_id": "para_409" }, { "text": "9", "paragraph_id": "para_410" }, { "text": "[¶19] To promote the purpose of the Act, the WDEQ promulgated water quality standards,", "paragraph_id": "para_411", "court_paragraph": 9 }, { "text": "including standards for protecting groundwater from surface and subsurface discharges.", "paragraph_id": "para_412" }, { "text": "WDEQ Water Quality Rules (Rules), ch. 8, § 4. It also set standards for regulating and", "paragraph_id": "para_413" }, { "text": "permitting septic systems, Rules, ch. 25, and for subdivision water supply and sewage", "paragraph_id": "para_414" }, { "text": "systems. Rules, ch. 23, § 3(c) (requiring subdivisions to “meet or exceed the applicable", "paragraph_id": "para_415" }, { "text": "[water quality] standards”). Chapter 8, § 3(a) of the Rules recognizes “[a]ll waters,", "paragraph_id": "para_416" }, { "text": "including Groundwaters of the State . . . are the property of the State; and control of the", "paragraph_id": "para_417" }, { "text": "beneficial use of waters of the State resides with the Wyoming State Engineer.” This", "paragraph_id": "para_418" }, { "text": "section also states “[p]rotection shall be afforded all underground water . . . . Water being", "paragraph_id": "para_419" }, { "text": "used for a purpose identified in W.S. 35-11-102 and 103(c)(i) shall be protected for its", "paragraph_id": "para_420" }, { "text": "intended use and uses for which it is suitable.” Rules, ch. 8, § 3(c).", "paragraph_id": "para_421" }, { "text": "[¶20] Wyo. Stat. Ann. § 35-11-304(a)(iii) provides for delegation to “municipalities,", "paragraph_id": "para_422" }, { "text": "water and sewer districts or counties” the “authority to enforce and administer within their", "paragraph_id": "para_423" }, { "text": "boundaries the provisions of W.S. 35-11-301(a)(iii) and (v)” and requires the “local", "paragraph_id": "para_424" }, { "text": "governmental entity” to establish “rules, regulations and standards for the issuance of", "paragraph_id": "para_425" }, { "text": "permits . . . which . . . shall be at least as stringent as those promulgated by the state under", "paragraph_id": "para_426" }, { "text": "W.S. 35-11-302(a)(iii)[.]”4 Wyo. Stat. Ann. § 18-5-306(c) requires counties to send", "paragraph_id": "para_427" }, { "text": "subdivision permit applications to the WDEQ for its review of the “adequacy of the", "paragraph_id": "para_428" }, { "text": "proposed sewage system and proposed water supply system” but allows the WDEQ to", "paragraph_id": "para_429" }, { "text": "delegate “authority to the county to review any reports or studies . . . directed at determining", "paragraph_id": "para_430" }, { "text": "the safety and adequacy of the proposed sewage or water supply system contained as part", "paragraph_id": "para_431" }, { "text": "of a subdivision application.” Wyo. Stat. Ann. § 18-5-306(c)(ii).", "paragraph_id": "para_432" }, { "text": "(ix) Standards for housed facilities where swine are confined,", "paragraph_id": "para_433" }, { "text": "fed and maintained for a total of forty-five (45) consecutive days", "paragraph_id": "para_434" }, { "text": "or more in any twelve (12) month period and the feedlot or facility", "paragraph_id": "para_435" }, { "text": "is designed to confine an equivalent of one thousand (1,000) or", "paragraph_id": "para_436" }, { "text": "more animal units. If any county adopts a land use plan or", "paragraph_id": "para_437" }, { "text": "zoning resolution which imposes stricter requirements than", "paragraph_id": "para_438" }, { "text": "those found in subparagraph (C) of this paragraph, the county", "paragraph_id": "para_439" }, { "text": "requirements shall prevail.", "paragraph_id": "para_440" }, { "text": ". . .", "paragraph_id": "para_441" }, { "text": "(xi) Standards for subdivision applications submitted to", "paragraph_id": "para_442" }, { "text": "the department under W.S. 18-5-306. The administrator shall", "paragraph_id": "para_443" }, { "text": "consult with county commissioners and the state engineer’s", "paragraph_id": "para_444" }, { "text": "office in developing standards to recommend to the director.", "paragraph_id": "para_445" }, { "text": "Wyo. Stat. Ann. § 35-11-302(a)(i)–(v), (ix), (xi) (LexisNexis 2025) (emphasis added).", "paragraph_id": "para_446" }, { "text": "4 Pursuant to Wyo. Stat. Ann. § 35-11-304, the WDEQ delegated authority to permit and enforce small", "paragraph_id": "para_447" }, { "text": "wastewater permits to Albany County. In addition, Wyoming’s Source Water Assessment and Protection", "paragraph_id": "para_448" }, { "text": "Program (SWPP) allows local communities to develop Source Water Protection Plans to protect drinking", "paragraph_id": "para_449" }, { "text": "water and incorporates Wyoming’s Wellhead Protection (WHP) Program, a voluntary program under which", "paragraph_id": "para_450" }, { "text": "local WHP plans are developed and can be reviewed by the WDEQ.", "paragraph_id": "para_451" }, { "text": "10", "paragraph_id": "para_452" }, { "text": "[¶21] Warren Livestock argues the 2023 APOZ amendments, including the 35-acre", "paragraph_id": "para_453", "court_paragraph": 10 }, { "text": "minimum lot size requirement, supplant WDEQ authority over the review of subdivision", "paragraph_id": "para_454" }, { "text": "applications as they relate to water quality and potential septic system impact on water", "paragraph_id": "para_455" }, { "text": "quality. Warren Livestock cites Wyo. Stat. Ann. § 18-5-306(a)(iv)(C) and Rules, ch. 23.", "paragraph_id": "para_456" }, { "text": "Section 18-5-306 sets forth the minimum information that must be submitted for water and", "paragraph_id": "para_457" }, { "text": "sewage systems before a subdivision permit may be granted. It provides:", "paragraph_id": "para_458" }, { "text": "(a) The board [of county commissioners] shall require . . .", "paragraph_id": "para_459" }, { "text": "the following information to be submitted with each", "paragraph_id": "para_460" }, { "text": "application for a subdivision permit . . . :", "paragraph_id": "para_461" }, { "text": ". . .", "paragraph_id": "para_462" }, { "text": "The information requirements include:", "paragraph_id": "para_463" }, { "text": "(iv) A study evaluating the sewage system proposed", "paragraph_id": "para_464" }, { "text": "for the subdivision and the adequacy and safety of the", "paragraph_id": "para_465" }, { "text": "system.", "paragraph_id": "para_466" }, { "text": "(A) Identification of the type of sewage", "paragraph_id": "para_467" }, { "text": "system to serve the subdivision . . . ;", "paragraph_id": "para_468" }, { "text": "(B) . . . a report submitted by the subdivider", "paragraph_id": "para_469" }, { "text": "as to the adequacy and safety of the proposed", "paragraph_id": "para_470" }, { "text": "sewage system. . . .", "paragraph_id": "para_471" }, { "text": "(C) Where individual on-lot sewage systems", "paragraph_id": "para_472" }, { "text": "are proposed by the subdivider, a report", "paragraph_id": "para_473" }, { "text": "submitted by the subdivider shall document the", "paragraph_id": "para_474" }, { "text": "safety and adequacy of the proposed on-lot", "paragraph_id": "para_475" }, { "text": "sewage systems including the following:", "paragraph_id": "para_476" }, { "text": "(I) Adequacy of separation distances;", "paragraph_id": "para_477" }, { "text": "(II) Separation of drainfield relative to", "paragraph_id": "para_478" }, { "text": "groundwater and impervious soils;", "paragraph_id": "para_479" }, { "text": "(III) Suitability of the subdivision soil", "paragraph_id": "para_480" }, { "text": "conditions;", "paragraph_id": "para_481" }, { "text": "(IV) Suitable topography;", "paragraph_id": "para_482" }, { "text": "(V) Proposed population density;", "paragraph_id": "para_483" }, { "text": "11", "paragraph_id": "para_484" }, { "text": "(VI) Protection of groundwater uses;", "paragraph_id": "para_485", "court_paragraph": 11 }, { "text": "and", "paragraph_id": "para_486" }, { "text": "(VII) Watersheds located on or draining", "paragraph_id": "para_487" }, { "text": "into, under or over the proposed", "paragraph_id": "para_488" }, { "text": "subdivision.", "paragraph_id": "para_489" }, { "text": "Wyo. Stat. Ann. § 18-5-306(a)(iv)(A)–(C). The Rules set out minimum standards for", "paragraph_id": "para_490" }, { "text": "subdivision sewage and water supply systems. Rules, ch. 23, §§ 7–8. They require WDEQ", "paragraph_id": "para_491" }, { "text": "to review subdivision applications for proof of compliance with discharge and water", "paragraph_id": "para_492" }, { "text": "quality regulations. See, e.g., Rules, ch. 23, § 4 (requiring submittal of “the portions of", "paragraph_id": "para_493" }, { "text": "[the subdivision] application containing evaluations of the proposed sewage system and", "paragraph_id": "para_494" }, { "text": "water supply system to the [WDEQ] for review of the safety and adequacy of the proposed", "paragraph_id": "para_495" }, { "text": "sewage system and proposed water supply system”). The 2023 APOZ amendments do not", "paragraph_id": "para_496" }, { "text": "conflict with Wyo. Stat. Ann. § 18-5-306, WDEQ rules governing discharge, water quality", "paragraph_id": "para_497" }, { "text": "rules, or application review.", "paragraph_id": "para_498" }, { "text": "[¶22] Nothing in the Wyoming Constitution, the Act, or the WDEQ regulations limits", "paragraph_id": "para_499" }, { "text": "county authority to zone for public health, safety, or general welfare, including protection", "paragraph_id": "para_500" }, { "text": "of the Casper Aquifer. See River Springs Liab. Co. v. Bd. of Cnty. Comm’rs of Cnty. of", "paragraph_id": "para_501" }, { "text": "Teton, 899 P.2d 1329, 1336 (Wyo. 1995) (“[I]f the state has the authority to regulate, but", "paragraph_id": "para_502" }, { "text": "excludes certain instances from its regulation, the local authority may invoke its regulatory", "paragraph_id": "para_503" }, { "text": "power. We recognize the authority of the Board to regulate these activities so long as", "paragraph_id": "para_504" }, { "text": "regulation by the county does not conflict with a regulation by the state.”).", "paragraph_id": "para_505" }, { "text": "[¶23] Both the Act and WDEQ rules expressly anticipate local participation in the", "paragraph_id": "para_506" }, { "text": "protection of public water resources. The Act authorizes delegation to local authorities,", "paragraph_id": "para_507" }, { "text": "and the WDEQ rules allow local authorities to enact permitting standards “at least as", "paragraph_id": "para_508" }, { "text": "stringent” as those of the State. Consistent with this cooperative framework, WDEQ’s", "paragraph_id": "para_509" }, { "text": "Water Quality Division “encourage[d] Albany County to consider implementing additional", "paragraph_id": "para_510" }, { "text": "aquifer protection measures that may help address water quality concerns.” The 2023", "paragraph_id": "para_511" }, { "text": "APOZ amendments do not conflict with, override, or supplant any areas of exclusive", "paragraph_id": "para_512" }, { "text": "WDEQ control, including water quality standards or discharge permits. In particular, the", "paragraph_id": "para_513" }, { "text": "35-acre minimum lot size does not conflict with Wyo. Stat. Ann. § 18-5-306 or Chapter 23", "paragraph_id": "para_514" }, { "text": "of the Rules. Section 18-5-306 and the Rules establish minimum standards and procedures", "paragraph_id": "para_515" }, { "text": "for water supply and sewage systems in approving subdivision applications. The standards", "paragraph_id": "para_516" }, { "text": "are separate from and do not preempt land use restrictions—such as minimum lot size—", "paragraph_id": "para_517" }, { "text": "within the APOZ. See Seherr-Thoss, ¶ 24, 329 P.3d at 946.", "paragraph_id": "para_518" }, { "text": "[¶24] We conclude the Board possessed the authority to adopt the 2023 APOZ", "paragraph_id": "para_519" }, { "text": "amendments, including the 35-acre minimum lot size requirement, to protect the Casper", "paragraph_id": "para_520" }, { "text": "12", "paragraph_id": "para_521" }, { "text": "Aquifer. See River Springs, 899 P.2d at 1336; Salkin, supra, at § 36:7; 83 Am. Jur. 2d", "paragraph_id": "para_522", "court_paragraph": 12 }, { "text": "Zoning and Planning § 60.", "paragraph_id": "para_523" }, { "text": "III. Do the procedures for amending the overlay zone, which are distinct from", "paragraph_id": "para_524" }, { "text": "procedures used to amend zoning districts, violate Wyoming’s constitutional", "paragraph_id": "para_525" }, { "text": "equal protection guarantees?", "paragraph_id": "para_526" }, { "text": "[¶25] Warren Livestock contends that the Board’s adoption of rules for amending an", "paragraph_id": "para_527" }, { "text": "overlay zone violates the Wyoming Constitution’s equal protection guarantees for two", "paragraph_id": "para_528" }, { "text": "reasons.", "paragraph_id": "para_529" }, { "text": "[¶26] First, Warren Livestock asserts the 2023 APOZ amendments created two different", "paragraph_id": "para_530" }, { "text": "procedures for amending the boundary of the APOZ, thereby violating equal protection.", "paragraph_id": "para_531" }, { "text": "The first procedure allowed inclusion or exclusion of property based upon the CAPP and", "paragraph_id": "para_532" }, { "text": "its updates, and the second allowed “[p]reviously surveyed parcels” to be excluded from", "paragraph_id": "para_533" }, { "text": "the APOZ if there was “clear and convincing evidence” of at least 75 feet of undisturbed", "paragraph_id": "para_534" }, { "text": "Satanka Shale overlying the Casper Formation. APOZ § 3.D.5.b-c. The 2024 and 2025", "paragraph_id": "para_535" }, { "text": "amendments to the APOZ regulations have eliminated the disputed language.5 Now any", "paragraph_id": "para_536" }, { "text": "parcel can seek exclusion based on the 75-foot Satanka Shale thickness test, without the", "paragraph_id": "para_537" }, { "text": "“previously surveyed” limitation or the heightened “clear and convincing” burden of proof.", "paragraph_id": "para_538" }, { "text": "Because the 2024 and 2025 amendments to the APOZ regulations have eliminated the", "paragraph_id": "para_539" }, { "text": "challenged provisions and, with them, the controversy, Warren Livestock’s first argument", "paragraph_id": "para_540" }, { "text": "is moot. “[C]ourts will not consume their time dealing with moot questions.” Powder", "paragraph_id": "para_541" }, { "text": "River Basin Res. Council v. Wyo. Dep’t of Env’t Quality, 2020 WY 127, ¶¶ 10, 18, 473", "paragraph_id": "para_542" }, { "text": "P.3d 294, 297, 299 (Wyo. 2020) (citing Matter of Birkholz, 2019 WY 19, ¶ 2, 434 P.3d", "paragraph_id": "para_543" }, { "text": "1102, 1103–04 (Wyo. 2019) (a case is moot when “the determination of an issue will have", "paragraph_id": "para_544" }, { "text": "no practical effect on the existing controversy,” and the court will dismiss the appeal if", "paragraph_id": "para_545" }, { "text": "“events occur during the pendency of [the] appeal that . . . make determination of the issues", "paragraph_id": "para_546" }, { "text": "unnecessary” (quoting In re SNK, 2005 WY 30, ¶ 6, 108 P.3d 836, 838 (Wyo. 2005)))).", "paragraph_id": "para_547" }, { "text": "None of the recognized exceptions to the mootness doctrine apply. See Operation Save", "paragraph_id": "para_548" }, { "text": "Am. v. City of Jackson, 2012 WY 51, ¶¶ 22–23, 275 P.3d 438, 448–49 (Wyo. 2012).", "paragraph_id": "para_549" }, { "text": "[¶27] Next, Warren Livestock argues an equal protection violation arises from the 2023", "paragraph_id": "para_550" }, { "text": "APOZ amendment’s procedures for APOZ boundary changes. These procedures differ", "paragraph_id": "para_551" }, { "text": "from those required to amend an Albany County Zoning Resolution (ACZR) zoning", "paragraph_id": "para_552" }, { "text": "district. We will hold unlawful any agency action “found to be . . . [c]ontrary to", "paragraph_id": "para_553" }, { "text": "constitutional right, power, privilege or immunity.” Wyo. Stat. Ann. § 16-3-114(c)(ii)(B).", "paragraph_id": "para_554" }, { "text": "Wyoming’s constitution requires a law to operate alike upon all persons or property under", "paragraph_id": "para_555" }, { "text": "5 Currently, the APOZ boundary can be amended “based upon modifications to the CAPA as part of", "paragraph_id": "para_556" }, { "text": "revisions to the CAPP” following legislative zoning district amendment procedures or based on “the", "paragraph_id": "para_557" }, { "text": "location of at least seventy-five (75) feet of undisturbed Satanka Shale thickness under the property or", "paragraph_id": "para_558" }, { "text": "relevant portion of the property.” ACZR Ch. 3, § 3. D. 3(b)(1)(ii).", "paragraph_id": "para_559" }, { "text": "13", "paragraph_id": "para_560" }, { "text": "the same circumstances and conditions. Wyo. Const. art. 1, § 34 (“All laws of a general", "paragraph_id": "para_561", "court_paragraph": 13 }, { "text": "nature shall have a uniform operation.”). “[E]qual protection principles operate to ensure", "paragraph_id": "para_562" }, { "text": "that legislatively created classifications bear a rational relationship to a legitimate state", "paragraph_id": "para_563" }, { "text": "concern.” Mills v. Reynolds, 837 P.2d 48, 53 (Wyo. 1992). Equal protection “does not", "paragraph_id": "para_564" }, { "text": "require things which are different . . . to be treated in law as though they were the same.”", "paragraph_id": "para_565" }, { "text": "Reiter v. State, 2001 WY 116, ¶ 26, 36 P.3d 586, 594 (Wyo. 2001).", "paragraph_id": "para_566" }, { "text": "[¶28] When a statute or regulation affects only ordinary economic or social welfare", "paragraph_id": "para_567" }, { "text": "interests, courts apply the rational basis test. Under this deferential standard, a", "paragraph_id": "para_568" }, { "text": "classification does not violate equal protection so long as it is rationally related to a", "paragraph_id": "para_569" }, { "text": "legitimate governmental interest. State v. Johnson, 2026 WY 1, ¶ 51, 582 P.3d 380, 400", "paragraph_id": "para_570" }, { "text": "(Wyo. 2026); Mills, 837 P.2d at 53–54. In conducting rational basis review, courts must", "paragraph_id": "para_571" }, { "text": "apply well-established guiding principles:", "paragraph_id": "para_572" }, { "text": "Under the rational basis test, a classification does not", "paragraph_id": "para_573" }, { "text": "violate equal protection as long as it is rationally related to a", "paragraph_id": "para_574" }, { "text": "legitimate governmental interest. . . . In conducting a rational", "paragraph_id": "para_575" }, { "text": "basis review, we must keep a number of principles in mind.", "paragraph_id": "para_576" }, { "text": "Although the rational basis standard is not toothless, “[e]qual", "paragraph_id": "para_577" }, { "text": "protection is not a license for courts to judge the wisdom,", "paragraph_id": "para_578" }, { "text": "fairness, or logic of legislative choices and line-drawing.”", "paragraph_id": "para_579" }, { "text": "Greenwalt [v. Ram Rest. Corp. of Wyo., 2003 WY 77], ¶ 39,", "paragraph_id": "para_580" }, { "text": "71 P.3d [717,] 730–31 [(Wyo. 2003)]. We review the", "paragraph_id": "para_581" }, { "text": "classification with a strong presumption it is valid. Id. “[The]", "paragraph_id": "para_582" }, { "text": "party attacking the rationality of the legislative classification", "paragraph_id": "para_583" }, { "text": "has the heavy burden of demonstrating the unconstitutionality", "paragraph_id": "para_584" }, { "text": "of a statute beyond a reasonable doubt.” Id.", "paragraph_id": "para_585" }, { "text": "Martin v. Bd. of Cnty. Comm’rs of Laramie Cnty., 2022 WY 21, ¶ 31, 503 P.3d 68, 78", "paragraph_id": "para_586" }, { "text": "(Wyo. 2022).", "paragraph_id": "para_587" }, { "text": "[¶29] Warren Livestock contends the 2023 APOZ amendments violate equal protection", "paragraph_id": "para_588" }, { "text": "by providing different procedures and notice requirements for APOZ boundary", "paragraph_id": "para_589" }, { "text": "amendments from those applicable to general zoning district amendments. Specifically,", "paragraph_id": "para_590" }, { "text": "the 2023 APOZ amendments state, “The zoning district amendment provisions and", "paragraph_id": "para_591" }, { "text": "procedures of Section 5 of this Chapter [of the ACZR] are inapplicable to APOZ boundary", "paragraph_id": "para_592" }, { "text": "amendments.” Instead, APOZ boundary amendments are to be made “in accordance with", "paragraph_id": "para_593" }, { "text": "W.S. § 18-5-202 and the Wyoming Administrative Procedure Act, W.S. §§ 16-3-101", "paragraph_id": "para_594" }, { "text": "through -115.” Warren Livestock argues differences between the zoning district", "paragraph_id": "para_595" }, { "text": "amendment procedure and the APOZ boundary amendment procedure regarding notice and", "paragraph_id": "para_596" }, { "text": "14", "paragraph_id": "para_597" }, { "text": "procedure treat similarly situated people differently.6 Warren Livestock does not explain", "paragraph_id": "para_598", "court_paragraph": 14 }, { "text": "how the notice and procedure requirements under the WAPA differ from the notice and", "paragraph_id": "para_599" }, { "text": "procedure requirements of the ACZR. It does, however, argue that the Board amended", "paragraph_id": "para_600" }, { "text": "these provisions because it failed to follow the ACZR procedures (among other procedural", "paragraph_id": "para_601" }, { "text": "requirements, the ACZR requires notice of proposed zoning district amendments be sent", "paragraph_id": "para_602" }, { "text": "to property owners at least fourteen days prior to consideration. ACZR, Ch.3, § 5.D.2.)", "paragraph_id": "para_603" }, { "text": "when it amended the APOZ regulations.7", "paragraph_id": "para_604" }, { "text": "[¶30] The Board asserts treating APOZ boundary amendments differently than zoning", "paragraph_id": "para_605" }, { "text": "district amendments is “rationally related to the County’s legitimate interest in protecting", "paragraph_id": "para_606" }, { "text": "the Casper Aquifer.” We find the County’s position persuasive.", "paragraph_id": "para_607" }, { "text": "[¶31] Zoning district amendments change the underlying zoning classification of a", "paragraph_id": "para_608" }, { "text": "property (e.g., from agricultural to residential or commercial). See ACZR, Ch.3, § 2", "paragraph_id": "para_609" }, { "text": "(establishing zoning districts, e.g., agricultural, rural residential, urban residential,", "paragraph_id": "para_610" }, { "text": "commercial, and industrial); ACZR Ch.3. § 5 (zoning district amendments). In contrast,", "paragraph_id": "para_611" }, { "text": "overlay zones impose additional standards on development, subdivisions, and uses within", "paragraph_id": "para_612" }, { "text": "one or more underlying zoning districts. See ACZR Ch.3. § 3. According to the Board,", "paragraph_id": "para_613" }, { "text": "the purpose of the APOZ is to “protect groundwater resources that supply Public Water", "paragraph_id": "para_614" }, { "text": "Systems (PWS) and Albany County residents within the defined recharge area for the", "paragraph_id": "para_615" }, { "text": "Casper Aquifer” and “when possible prevent the contamination of the groundwater within", "paragraph_id": "para_616" }, { "text": "the Casper Aquifer.” The Board contends these separate procedures treat similarly situated", "paragraph_id": "para_617" }, { "text": "properties alike—all properties within the APOZ are subject to the same boundary", "paragraph_id": "para_618" }, { "text": "6 Prior to the adoption of the 2023 APOZ amendments, the APOZ regulations set forth processes for", "paragraph_id": "para_619" }, { "text": "boundary amendments that were different from the ACZR zoning district amendment process. Exclusion", "paragraph_id": "para_620" }, { "text": "of property from the APOZ required “clear and convincing evidence provided by a professional geologist", "paragraph_id": "para_621" }, { "text": "or hydrogeologist that at least seventy-five (75) feet of undisturbed Satanka Formation overlies the Casper", "paragraph_id": "para_622" }, { "text": "Formation” at the property sought to be excluded. In addition, a request for exclusion had to follow the", "paragraph_id": "para_623" }, { "text": "ACZR’s development proposal notice requirements (including notice to contiguous property owners, notice", "paragraph_id": "para_624" }, { "text": "in the newspaper, and placement of a sign on the property), see ACZR Ch.3, § 5. C. Inclusion of property", "paragraph_id": "para_625" }, { "text": "within the APOZ required a written request that included a professional geologist or hydrogeologist report", "paragraph_id": "para_626" }, { "text": "showing that the “property situated west of the delineated APOZ western boundary . . . has less than", "paragraph_id": "para_627" }, { "text": "seventy-five (75) feet of Satanka Formation” beneath it. Inclusion required independent investigation by", "paragraph_id": "para_628" }, { "text": "the County, notice in accordance with WAPA, notice to the affected property owners, and notice of hearings", "paragraph_id": "para_629" }, { "text": "before the Planning and Zoning Commission and the Board. These procedures were not the same as those", "paragraph_id": "para_630" }, { "text": "for zoning district amendments found in the ACZR. ACZR, Ch.3, § 5.", "paragraph_id": "para_631" }, { "text": "7 It is unclear whether, in addition to its equal protection argument, Warren Livestock is asserting the Board", "paragraph_id": "para_632" }, { "text": "failed to follow notice requirements contained in the APOZ or the ACZR. If so, Warren Livestock cites no", "paragraph_id": "para_633" }, { "text": "authority in support of its argument, and we decline to address it for that reason. See Johnston v. Ernst,", "paragraph_id": "para_634" }, { "text": "2026 WY 2, 581 P.3d 1120, 1127 n.2 (Wyo. 2026); Matter of TJH, 2021 WY 56, ¶ 32, 485 P.3d 408, 418", "paragraph_id": "para_635" }, { "text": "(Wyo. 2021) (“we do not ordinarily consider issues which are not supported by proper citation of authority", "paragraph_id": "para_636" }, { "text": "and cogent argument”). We note, however, that the Board provided a “Notice of Consideration of APOZ", "paragraph_id": "para_637" }, { "text": "Amendments” and received and considered numerous public comments (written and through the hearing", "paragraph_id": "para_638" }, { "text": "process) before adopting the APOZ amendments.", "paragraph_id": "para_639" }, { "text": "15", "paragraph_id": "para_640" }, { "text": "amendment rules, while all properties in zoning districts are subject to the same rules", "paragraph_id": "para_641", "court_paragraph": 15 }, { "text": "governing amendments to their underlying zoning districts.", "paragraph_id": "para_642" }, { "text": "[¶32] The Board has “broad authority to promulgate zoning ordinances[,]” and", "paragraph_id": "para_643" }, { "text": "“considerable discretion in the formulation of its land development regulations[,]”", "paragraph_id": "para_644" }, { "text": "including promulgating procedures for amending zoning districts and overlay zones.", "paragraph_id": "para_645" }, { "text": "Wilson Advisory Comm., ¶¶ 26, 54, 292 P.3d at 862, 869; see Wyo. Stat. Ann. § 18-5-201.", "paragraph_id": "para_646" }, { "text": "Because the APOZ serves a specialized protective function, the Board adopted a more", "paragraph_id": "para_647" }, { "text": "tailored procedure for boundary amendments than that used for underlying zoning districts.", "paragraph_id": "para_648" }, { "text": "This distinction treats similarly situated properties alike. All properties within the APOZ", "paragraph_id": "para_649" }, { "text": "are subject to the same boundary amendment rules, while properties outside the overlay", "paragraph_id": "para_650" }, { "text": "remain governed by the standard zoning district amendment process. The classification is", "paragraph_id": "para_651" }, { "text": "therefore rationally related to the County’s legitimate governmental interest in protecting", "paragraph_id": "para_652" }, { "text": "the Casper Aquifer. It does not violate the Wyoming Constitution’s equal protection", "paragraph_id": "para_653" }, { "text": "guarantees.", "paragraph_id": "para_654" }, { "text": "IV. Does the arbitrary and capricious standard of review apply to agency legislative", "paragraph_id": "para_655" }, { "text": "action?", "paragraph_id": "para_656" }, { "text": "[¶33] The WAPA sets forth standards for judicial review of agency action. It provides:", "paragraph_id": "para_657" }, { "text": "To the extent necessary to make a decision and when", "paragraph_id": "para_658" }, { "text": "presented, the reviewing court shall decide all relevant", "paragraph_id": "para_659" }, { "text": "questions of law, interpret constitutional and statutory", "paragraph_id": "para_660" }, { "text": "provisions, and determine the meaning or applicability of the", "paragraph_id": "para_661" }, { "text": "terms of an agency action. In making the following", "paragraph_id": "para_662" }, { "text": "determinations, the court shall review the whole record or", "paragraph_id": "para_663" }, { "text": "those parts of it cited by a party and due account shall be taken", "paragraph_id": "para_664" }, { "text": "of the rule of prejudicial error. The reviewing court shall:", "paragraph_id": "para_665" }, { "text": "(i) Compel agency action unlawfully withheld or", "paragraph_id": "para_666" }, { "text": "unreasonably delayed; and", "paragraph_id": "para_667" }, { "text": "(ii) Hold unlawful and set aside agency action,", "paragraph_id": "para_668" }, { "text": "findings and conclusions found to be:", "paragraph_id": "para_669" }, { "text": "(A) Arbitrary, capricious, an abuse of", "paragraph_id": "para_670" }, { "text": "discretion or otherwise not in accordance with", "paragraph_id": "para_671" }, { "text": "law;", "paragraph_id": "para_672" }, { "text": "(B) Contrary to constitutional right, power,", "paragraph_id": "para_673" }, { "text": "privilege or immunity;", "paragraph_id": "para_674" }, { "text": "16", "paragraph_id": "para_675" }, { "text": "(C) In excess of statutory jurisdiction,", "paragraph_id": "para_676", "court_paragraph": 16 }, { "text": "authority or limitations or lacking statutory right;", "paragraph_id": "para_677" }, { "text": "(D) Without observance of procedure", "paragraph_id": "para_678" }, { "text": "required by law; or", "paragraph_id": "para_679" }, { "text": "(E) Unsupported by substantial evidence in a", "paragraph_id": "para_680" }, { "text": "case reviewed on the record of an agency hearing", "paragraph_id": "para_681" }, { "text": "provided by statute.", "paragraph_id": "para_682" }, { "text": "Wyo. Stat. Ann. § 16-3-114(c) (LexisNexis 2025) (emphasis added).", "paragraph_id": "para_683" }, { "text": "[¶34] This Court has not yet considered whether the arbitrary and capricious standard of", "paragraph_id": "para_684" }, { "text": "review applies to agency rulemaking. Wyo. Stat. Ann. § 16-3-114(c) “contains several", "paragraph_id": "para_685" }, { "text": "different standards of review, not all of which apply in any given instance.” Wilson", "paragraph_id": "para_686" }, { "text": "Advisory Comm., ¶ 18, 292 P.3d at 861 (citing Northfork Citizens For Responsible Dev. v.", "paragraph_id": "para_687" }, { "text": "Bd. of Cnty. Comm’rs of Park Cnty., 2010 WY 41, ¶ 17, 228 P.3d 838, 844–45 (Wyo. 2010)", "paragraph_id": "para_688" }, { "text": "(citing Dale v. S & S Builders, LLC, 2008 WY 84, ¶¶ 8–26, 188 P.3d 554, 557–62 (Wyo.", "paragraph_id": "para_689" }, { "text": "2008))). Section 16-3-114(c) does not distinguish between adjudicatory and legislative", "paragraph_id": "para_690" }, { "text": "agency action.", "paragraph_id": "para_691" }, { "text": "[¶35] In Bienz I, we distinguished between adjudicatory and legislative action, held", "paragraph_id": "para_692" }, { "text": "agency legislative action is reviewable, Bienz I, ¶¶ 10–20, 556 P.3d at 232–35, and set forth", "paragraph_id": "para_693" }, { "text": "a framework for reviewing agency legislative action. Id. ¶¶ 25–30, 556 P.3d at 236–37.", "paragraph_id": "para_694" }, { "text": "Relevant here, we said, “we will review agency legislative action to determine whether an", "paragraph_id": "para_695" }, { "text": "agency action was ‘[c]ontrary to constitutional right, power, privilege or immunity’; was", "paragraph_id": "para_696" }, { "text": "not ‘in accordance with law’; was ‘[i]n excess of statutory jurisdiction, authority or", "paragraph_id": "para_697" }, { "text": "limitations or lacking statutory right’; or was divergent from its own rules.” Id. ¶ 26, 556", "paragraph_id": "para_698" }, { "text": "P.3d at 236–37 (quoting Wyo. Stat. Ann. § 16-3-114(c)(ii)(A)–(D)). On remand, the", "paragraph_id": "para_699" }, { "text": "district court relied upon this language and reasoned that because arbitrary and capricious", "paragraph_id": "para_700" }, { "text": "review was not expressly articulated, it was not a standard the courts should apply to review", "paragraph_id": "para_701" }, { "text": "agency legislative action. Appellants assert the district court erred when it determined the", "paragraph_id": "para_702" }, { "text": "arbitrary and capricious standard of review does not apply to agency legislative action. We", "paragraph_id": "para_703" }, { "text": "agree with Appellants and take this opportunity to address the application of the arbitrary", "paragraph_id": "para_704" }, { "text": "and capricious standard of review to agency legislative action.", "paragraph_id": "para_705" }, { "text": "[¶36] This Court has previously addressed the application of both the substantial evidence", "paragraph_id": "para_706" }, { "text": "standard and the arbitrary and capricious standard in contested cases. In Dale v. S & S", "paragraph_id": "para_707" }, { "text": "Builders, we explained the distinction between these two primary standards of review.", "paragraph_id": "para_708" }, { "text": "Dale, ¶¶ 9–25, 188 P.3d at 557–61. Historically, the arbitrary and capricious standard has", "paragraph_id": "para_709" }, { "text": "been used to review informal adjudications, while the substantial evidence standard has", "paragraph_id": "para_710" }, { "text": "traditionally been applied to review evidentiary findings made after formal, trial-type", "paragraph_id": "para_711" }, { "text": "agency proceedings. Id. ¶ 20, 188 P.3d at 560–61 (quoting federal authority). We held", "paragraph_id": "para_712" }, { "text": "17", "paragraph_id": "para_713" }, { "text": "that the substantial evidence standard applies whenever this Court reviews an", "paragraph_id": "para_714", "court_paragraph": 17 }, { "text": "agency’s evidentiary rulings or findings of fact. Id. ¶ 22, 188 P.3d at 560–61.", "paragraph_id": "para_715" }, { "text": "Specifically, when a hearing examiner determines that the burdened party failed to meet", "paragraph_id": "para_716" }, { "text": "its burden of proof, we review the record to determine whether substantial evidence", "paragraph_id": "para_717" }, { "text": "supports the agency’s decision. We explained that “[t]he arbitrary and capricious standard", "paragraph_id": "para_718" }, { "text": "[is] a ‘“safety net” to catch agency action which prejudices a party’s substantial rights or", "paragraph_id": "para_719" }, { "text": "which may be contrary to the other W.A.P.A. review standards yet is not easily categorized", "paragraph_id": "para_720" }, { "text": "or fit to any one particular standard.’” Id. ¶ 23, 188 P.3d at 561 (quoting Newman v. State", "paragraph_id": "para_721" }, { "text": "ex rel. Wyo. Workers’ Safety & Comp. Div., 2002 WY 91, ¶ 23, 49 P.3d 163, 172 (Wyo.", "paragraph_id": "para_722" }, { "text": "2002), holding modified by Dale, ¶ 23, 188 P.3d at 561). We “refine[d] [the arbitrary and", "paragraph_id": "para_723" }, { "text": "capricious standard] to more carefully delineate that it is not meant to apply to true", "paragraph_id": "para_724" }, { "text": "evidentiary questions.” Dale, ¶ 23, 188 P.3d at 561.", "paragraph_id": "para_725" }, { "text": "[¶37] In N. Laramie Range Found., we addressed the application of the arbitrary and", "paragraph_id": "para_726" }, { "text": "capricious standard of review to board decisions resulting from informal adjudicatory", "paragraph_id": "para_727" }, { "text": "hearings. There, two cases were consolidated on appeal; one of those cases “was not a", "paragraph_id": "para_728" }, { "text": "formal trial-type or contested case . . . , but an informal [adjudicatory] hearing [was held]", "paragraph_id": "para_729" }, { "text": "where public comment was solicited” on the question of whether a wind energy conversion", "paragraph_id": "para_730" }, { "text": "system permit should be granted. N. Laramie Range Found., ¶ 10, 290 P.3d at 1070. “The", "paragraph_id": "para_731" }, { "text": "witnesses were not sworn, comment times were limited and there was no typical cross-", "paragraph_id": "para_732" }, { "text": "examination or other indicia of a true adversarial process.” Id. We distinguished between", "paragraph_id": "para_733" }, { "text": "formal agency contested cases and decision-making, as in Dale, and informal agency", "paragraph_id": "para_734" }, { "text": "hearings and decision-making. Id. ¶¶ 13–14, 290 P.3d at 1070–71. We concluded, “federal", "paragraph_id": "para_735" }, { "text": "precedent and learned treatises all indicate the arbitrary and capricious standard of review", "paragraph_id": "para_736" }, { "text": "applies to administrative proceedings which were not conducted as trial-type adjudications", "paragraph_id": "para_737" }, { "text": "or contested cases . . .” and we applied the arbitrary and capricious standard of review. Id.", "paragraph_id": "para_738" }, { "text": "¶ 18, 290 P.3d at 1072.", "paragraph_id": "para_739" }, { "text": "[¶38] We now turn to the application of the arbitrary and capricious standard to agency", "paragraph_id": "para_740" }, { "text": "rulemaking. While this Court has not addressed the application of the arbitrary and", "paragraph_id": "para_741" }, { "text": "capricious standard to agency rulemaking in a published opinion, the issue has been", "paragraph_id": "para_742" }, { "text": "thoroughly examined under the federal APA, and we have previously found federal", "paragraph_id": "para_743" }, { "text": "precedent interpreting the federal APA persuasive when applying the arbitrary and", "paragraph_id": "para_744" }, { "text": "capricious standard under Wyoming law. See id. ¶ 13, 290 P.3d at 1070–71 (discussing", "paragraph_id": "para_745" }, { "text": "the historical application of the arbitrary and capricious standard to informal agency actions", "paragraph_id": "para_746" }, { "text": "under the federal APA and noting the similarity between 5 U.S.C. § 706 and Wyo. Stat.", "paragraph_id": "para_747" }, { "text": "Ann. § 16-3-114(c)). We conclude, as did the Court of Appeals, that it was.", "paragraph_id": "para_748" }, { "text": "[¶39] In Motor Vehicle Mfrs. Ass’n of the U.S., Inc. v. State Farm Mut. Auto. Ins. Co., 463", "paragraph_id": "para_749" }, { "text": "U.S. 29, 43, 103 S.Ct. 2856, 2866, 77 L.Ed.2d 443 (1983), the United States Supreme Court", "paragraph_id": "para_750" }, { "text": "held the National Highway Traffic Safety Administration (NHTSA) acted arbitrarily and", "paragraph_id": "para_751" }, { "text": "capriciously when it revoked the motor vehicle safety standard requiring new vehicles to", "paragraph_id": "para_752" }, { "text": "be equipped with passive restraints. Motor Vehicle Mfrs., 463 U.S. at 46, 103 S.Ct. at 2868", "paragraph_id": "para_753" }, { "text": "18", "paragraph_id": "para_754" }, { "text": "(“The ultimate question before us is whether NHTSA’s rescission of the passive restraint", "paragraph_id": "para_755", "court_paragraph": 18 }, { "text": "requirement of Standard 208 was arbitrary and capricious.”). The Supreme Court", "paragraph_id": "para_756" }, { "text": "concluded that the arbitrary and capricious standard applies to judicial review of informal", "paragraph_id": "para_757" }, { "text": "agency rulemaking:", "paragraph_id": "para_758" }, { "text": "Both the Motor Vehicle Safety Act and the 1974 Amendments", "paragraph_id": "para_759" }, { "text": "concerning occupant crash protection standards indicate that", "paragraph_id": "para_760" }, { "text": "motor vehicle safety standards are to be promulgated under the", "paragraph_id": "para_761" }, { "text": "informal rulemaking procedures of § 553 of the Administrative", "paragraph_id": "para_762" }, { "text": "Procedure Act. 5 U.S.C. § 553 (1976). The agency’s action in", "paragraph_id": "para_763" }, { "text": "promulgating such standards therefore may be set aside if", "paragraph_id": "para_764" }, { "text": "found to be “arbitrary, capricious, an abuse of discretion, or", "paragraph_id": "para_765" }, { "text": "otherwise not in accordance with law.” 5 U.S.C. § 706(2)(A).", "paragraph_id": "para_766" }, { "text": "Citizens to Preserve Overton Park v. Volpe, 401 U.S. 402, 414,", "paragraph_id": "para_767" }, { "text": "91 S.Ct. 814, 822, 28 L.Ed.2d 136 (1971); Bowman", "paragraph_id": "para_768" }, { "text": "Transportation, Inc. v. Arkansas-Best Freight System, Inc., 419", "paragraph_id": "para_769" }, { "text": "U.S. 281, 95 S.Ct. 438, 42 L.Ed.2d 447 (1974).", "paragraph_id": "para_770" }, { "text": "Motor Vehicle Mfrs., 463 U.S. at 41, 103 S.Ct. at 2865.", "paragraph_id": "para_771" }, { "text": "[¶40] We agree with this approach. Generally, adjudicatory agency action that is", "paragraph_id": "para_772" }, { "text": "developed on a record is reviewed under the substantial evidence standard, while other", "paragraph_id": "para_773" }, { "text": "administrative actions, including legislative-type action, are reviewed under the arbitrary,", "paragraph_id": "para_774" }, { "text": "capricious, or abuse of discretion standard. See Wyo. Stat. Ann. § 16-3-114; 6 Jacob A.", "paragraph_id": "para_775" }, { "text": "Stein & Glenn A. Mitchell, Administrative Law § 51.02[2], at 51–144 (2024); Wilson", "paragraph_id": "para_776" }, { "text": "Advisory Comm., ¶ 20, 292 P.3d at 861 (“Arbitrariness review generally applies to the", "paragraph_id": "para_777" }, { "text": "results of an informal process.” (quoting 33 Charles A. Wright & Charles H. Koch, Jr.,", "paragraph_id": "para_778" }, { "text": "Federal Practice and Procedure § 8334 (2006))). At the same time, all types of agency", "paragraph_id": "para_779" }, { "text": "action are subject to “safety net” arbitrary and capricious review. See Wilson Advisory", "paragraph_id": "para_780" }, { "text": "Comm., ¶ 18, 292 P.3d at 861 (“We apply the substantial evidence standard in contested", "paragraph_id": "para_781" }, { "text": "cases, with the added ‘safety net’ analysis under the arbitrary and capricious standard.", "paragraph_id": "para_782" }, { "text": "However, we apply only the arbitrary and capricious standard when reviewing agency", "paragraph_id": "para_783" }, { "text": "action resulting from informal non-contested case proceedings.” (citation omitted)).", "paragraph_id": "para_784" }, { "text": "[¶41] We therefore conclude that agency proceedings that involve evidentiary findings", "paragraph_id": "para_785" }, { "text": "are reviewed under the substantial evidence standard, with the arbitrary and capricious", "paragraph_id": "para_786" }, { "text": "standard serving as an additional safety net. In contrast, agency actions not developed on", "paragraph_id": "para_787" }, { "text": "a closed record are reviewed under the arbitrary and capricious standard. The district court", "paragraph_id": "para_788" }, { "text": "erred in concluding the arbitrary and capricious standard of review does not apply to the", "paragraph_id": "para_789" }, { "text": "APOZ amendments.", "paragraph_id": "para_790" }, { "text": "19", "paragraph_id": "para_791" }, { "text": "V. Were the Board’s 2023 APOZ amendments arbitrary, capricious, an abuse of", "paragraph_id": "para_792", "court_paragraph": 19 }, { "text": "discretion, or otherwise not in accordance with law?", "paragraph_id": "para_793" }, { "text": "[¶42] The Property Owners argue the Board’s APOZ amendments “lacked a rational", "paragraph_id": "para_794" }, { "text": "basis” and the Board’s imposition of the 35-acre minimum lot size in the APOZ was", "paragraph_id": "para_795" }, { "text": "arbitrary and capricious.8 Warren Livestock contends the amendments and the 35-acre", "paragraph_id": "para_796" }, { "text": "minimum lot size were “arbitrary, capricious, not in conformance with the law, [and] done", "paragraph_id": "para_797" }, { "text": "without observing required procedure.” Together, Appellants make four arguments. First,", "paragraph_id": "para_798" }, { "text": "they contend the amendments (including the 35-acre minimum lot size) are not supported", "paragraph_id": "para_799" }, { "text": "by data or findings of “any significant risk from county residential uses to the Casper", "paragraph_id": "para_800" }, { "text": "Aquifer[.]” Second, they argue that by creating a minimum lot size in the APOZ, the Board", "paragraph_id": "para_801" }, { "text": "effectively rezoned the area as agricultural use. Third, they contend the 35-acre minimum", "paragraph_id": "para_802" }, { "text": "lot size prohibits subdivision of land which is contrary to Wyoming statutes. Finally, they", "paragraph_id": "para_803" }, { "text": "claim the minimum lot size requirement prevents them from subdividing their land in the", "paragraph_id": "para_804" }, { "text": "future.", "paragraph_id": "para_805" }, { "text": "The arbitrary and capricious standard generally requires", "paragraph_id": "para_806" }, { "text": "a rational basis for agency action:", "paragraph_id": "para_807" }, { "text": "The arbitrary and capricious test requires the reviewing", "paragraph_id": "para_808" }, { "text": "court to review the entire record to determine whether", "paragraph_id": "para_809" }, { "text": "the agency reasonably could have made its finding and", "paragraph_id": "para_810" }, { "text": "order based upon all the evidence before it. The", "paragraph_id": "para_811" }, { "text": "arbitrary and capricious standard is more lenient and", "paragraph_id": "para_812" }, { "text": "deferential to the agency than the substantial evidence", "paragraph_id": "para_813" }, { "text": "standard because it requires only that there be a rational", "paragraph_id": "para_814" }, { "text": "basis for the agency’s decision.", "paragraph_id": "para_815" }, { "text": "Gilbert [v. Bd. of Cnty. Comm’rs of Park Cnty., 2010 WY 68],", "paragraph_id": "para_816" }, { "text": "¶ 10, 232 P.3d 17 at 24 [(Wyo. 2010)] (quoting Dale, ¶ 12, 188", "paragraph_id": "para_817" }, { "text": "P.3d at 559). See also N. Mun. Distribs. Grp. v. F.E.R.C., 165", "paragraph_id": "para_818" }, { "text": "F.3d 935, 941 (D.C. Cir. 1999). (“Upon examining the record", "paragraph_id": "para_819" }, { "text": "the court inquires whether it can discern a rational connection", "paragraph_id": "para_820" }, { "text": "between the facts found and the choice made by the [agency]", "paragraph_id": "para_821" }, { "text": ". . . .”). This standard also works as a “‘safety net’ to catch", "paragraph_id": "para_822" }, { "text": "agency action which . . . is not easily categorized or fit to any", "paragraph_id": "para_823" }, { "text": "one particular standard.” Dale, ¶ 23, 188 P.3d at 561 (quoting", "paragraph_id": "para_824" }, { "text": "8 The 2023 amendment mandating a minimum lot size provides:", "paragraph_id": "para_825" }, { "text": "7. Minimum Lot Size: Minimum lot size within the APOZ shall be 35", "paragraph_id": "para_826" }, { "text": "acres[.]", "paragraph_id": "para_827" }, { "text": "APOZ § 3.D.7. The 2023 amendment also included a single-dwelling restriction. The Board abandoned", "paragraph_id": "para_828" }, { "text": "that restriction in its 2024 amendments.", "paragraph_id": "para_829" }, { "text": "20", "paragraph_id": "para_830" }, { "text": "Newman v. State ex rel. Wyo. Workers’ Safety & Comp. Div.,", "paragraph_id": "para_831", "court_paragraph": 20 }, { "text": "2002 WY 91, ¶ 23, 49 P.3d 163, 172 (Wyo. 2002)).", "paragraph_id": "para_832" }, { "text": "Wilson Advisory Comm., ¶ 21, 292 P.3d at 861; see also Motor Vehicle Mfrs., 463 U.S. at", "paragraph_id": "para_833" }, { "text": "42–43, 103 S.Ct. at 2866 (Under the arbitrary and capricious standard, “a reviewing court", "paragraph_id": "para_834" }, { "text": "may not set aside an agency rule that is rational, based on consideration of the relevant", "paragraph_id": "para_835" }, { "text": "factors and within the scope of the authority delegated to the agency by the statute. . . . The", "paragraph_id": "para_836" }, { "text": "scope of review . . . is narrow and a court is not to substitute its judgment for that of the", "paragraph_id": "para_837" }, { "text": "agency. Nevertheless, the agency must examine the relevant data and articulate a", "paragraph_id": "para_838" }, { "text": "satisfactory explanation for its action including a ‘rational connection between the facts", "paragraph_id": "para_839" }, { "text": "found and the choice made.’” (quoting Burlington Truck Lines v. United States, 371 U.S.", "paragraph_id": "para_840" }, { "text": "156, 168, 83 S.Ct. 239, 245–46, 9 L.Ed.2d 207 (1962))); James T. O’Reilly, Administrative", "paragraph_id": "para_841" }, { "text": "Rulemaking § 16:2 (2026 ed.) (“Courts reverse under the arbitrary and capricious standard", "paragraph_id": "para_842" }, { "text": "only if the agency has relied on factors that Congress has not intended it to consider, has", "paragraph_id": "para_843" }, { "text": "entirely failed to consider an important aspect of the problem, or has offered an explanation", "paragraph_id": "para_844" }, { "text": "for that decision that runs counter to the evidence before the agency or is so implausible", "paragraph_id": "para_845" }, { "text": "that it could not be ascribed to a difference in view or the product of agency expertise . . .", "paragraph_id": "para_846" }, { "text": "‘it most emphatically remains the duty of [the] court[s] to ensure that an agency engage the", "paragraph_id": "para_847" }, { "text": "arguments raised before it.’” (quoting Elec. Power Supply Ass’n v. FERC, 753 F.3d 216,", "paragraph_id": "para_848" }, { "text": "224 (D.C. Cir. 2014), rev’d and remanded, 577 U.S. 260, 136 S.Ct. 760, 193 L.Ed.2d 661", "paragraph_id": "para_849" }, { "text": "(2016), as revised (Jan. 28, 2016))). Under the arbitrary and capricious standard, we", "paragraph_id": "para_850" }, { "text": "“review the entire record to determine whether the agency reasonably could have made its", "paragraph_id": "para_851" }, { "text": "finding[s] and order based upon all the evidence before it.” Wilson Advisory Comm., ¶ 21,", "paragraph_id": "para_852" }, { "text": "292 P.3d at 861 (quoting Gilbert v. Bd. of Cnty. Comm’rs of Park Cnty., 2010 WY 68, ¶ 10,", "paragraph_id": "para_853" }, { "text": "232 P.3d 17, 24 (Wyo. 2010)).", "paragraph_id": "para_854" }, { "text": "A. Data and Findings", "paragraph_id": "para_855" }, { "text": "[¶43] Property Owners assert the amendments to the APOZ, including the 35-acre", "paragraph_id": "para_856" }, { "text": "minimum lot size, are not based on any geologic or hydrologic need. They cite water", "paragraph_id": "para_857" }, { "text": "quality data supporting their position that the water in the Casper Aquifer is not at risk of", "paragraph_id": "para_858" }, { "text": "contamination, and they highlight errors in the data relied upon by the Board when it", "paragraph_id": "para_859" }, { "text": "enacted the amendments. The Property Owners presented data that nitrate levels in the", "paragraph_id": "para_860" }, { "text": "Casper Aquifer remain well below Environmental Protection Agency (EPA) standards in", "paragraph_id": "para_861" }, { "text": "support of their position that there is no credible evidence of a current threat justifying the", "paragraph_id": "para_862" }, { "text": "APOZ restrictions. This data includes the following:", "paragraph_id": "para_863" }, { "text": "• The City of Laramie’s water quality in its public water supply wells has not changed", "paragraph_id": "para_864" }, { "text": "for many years (the Turner, Pope, Soldier and Spur wells have nitrate levels generally", "paragraph_id": "para_865" }, { "text": "below 2.2 mg/L, well below the EPA standard of <10 mg/L).", "paragraph_id": "para_866" }, { "text": "• Longitudinal study of private wells by professional geologist Dr. Robert Starkey shows", "paragraph_id": "para_867" }, { "text": "no upward trend in nitrate levels.", "paragraph_id": "para_868" }, { "text": "21", "paragraph_id": "para_869" }, { "text": "• The City of Laramie’s 2009 and 2010 sampling of private wells showed that most", "paragraph_id": "para_870", "court_paragraph": 21 }, { "text": "private wells had nitrate levels below EPA standards (97% below 10 mg/L) and the", "paragraph_id": "para_871" }, { "text": "average nitrate levels for the areas where the wells were tested was “well below” EPA", "paragraph_id": "para_872" }, { "text": "standards.9", "paragraph_id": "para_873" }, { "text": "• A 2009 memorandum from the City of Laramie Community Development Department", "paragraph_id": "para_874" }, { "text": "Water Resources Specialist and Community Development Director to the Laramie City", "paragraph_id": "para_875" }, { "text": "Council stated, “There is no indication at this time that there is an immediate threat of", "paragraph_id": "para_876" }, { "text": "nitrate-nitrogen contamination to City wells.”", "paragraph_id": "para_877" }, { "text": "• The 2017 United States Geological Survey (USGS) sampling of the South well tested", "paragraph_id": "para_878" }, { "text": "for 63 contaminants, and nitrogen and oxygen isotopes were also tested to determine", "paragraph_id": "para_879" }, { "text": "the source of nitrates. No contaminants were detected, the source of nitrates was", "paragraph_id": "para_880" }, { "text": "inconclusive, and nitrate levels were “well below” EPA standards.", "paragraph_id": "para_881" }, { "text": "[¶44] The Property Owners further point out claimed inaccuracies in the data the Board", "paragraph_id": "para_882" }, { "text": "relied upon in adopting the amendments. They claim the 2019 Septic System Impact", "paragraph_id": "para_883" }, { "text": "Analysis (2019 Wenck study) is unreliable or insufficient and scientifically flawed and", "paragraph_id": "para_884" }, { "text": "incomplete because only the upper 25% of the vadose zone was sampled, the study failed", "paragraph_id": "para_885" }, { "text": "to test the critical interface between the unsaturated Casper Formation and the saturated", "paragraph_id": "para_886" }, { "text": "Casper Aquifer, and the monitoring wells were improperly constructed. They also claim", "paragraph_id": "para_887" }, { "text": "the 2020 Casper Aquifer Nitrate Loading Study (2020 Wenck study) is flawed because it", "paragraph_id": "para_888" }, { "text": "used incorrect acreages, invalid assumptions, inappropriate WDEQ model inputs, ignored", "paragraph_id": "para_889" }, { "text": "the low-permeability limestone confining layers over the Aquifer, and erroneously", "paragraph_id": "para_890" }, { "text": "assumed no water enters the Aquifer from upgradient areas.", "paragraph_id": "para_891" }, { "text": "[¶45] Property Owners further argue that the Board’s decision was arbitrary and", "paragraph_id": "para_892" }, { "text": "capricious because the Board relied on the limited 2019 Wenck study while disregarding", "paragraph_id": "para_893" }, { "text": "more relevant data in its possession. Specifically, despite having possession of additional", "paragraph_id": "para_894" }, { "text": "water quality and hydrogeologic data since 2017, both the City of Laramie and Albany", "paragraph_id": "para_895" }, { "text": "County elected not to use or rely on that data when justifying the APOZ restrictions. They", "paragraph_id": "para_896" }, { "text": "argue the “most that can be said” of the 2019 Wenck study is that “it attempted to measure", "paragraph_id": "para_897" }, { "text": "the nitrate concentration in soil below one septic system leachfield.” They argue the study", "paragraph_id": "para_898" }, { "text": "did not measure actual nitrate concentrations; it did not reach the confining limestone layer", "paragraph_id": "para_899" }, { "text": "overlying the Casper Aquifer; and it did not assess whether nitrates could penetrate the", "paragraph_id": "para_900" }, { "text": "confining layer of limestone. The Property Owners assert that the Board “consistently", "paragraph_id": "para_901" }, { "text": "ignored” long-term monitoring data “showing no [meaningful] change to water quality", "paragraph_id": "para_902" }, { "text": "over time” and “no increase in nitrate levels in the City’s public water supply wells.” They", "paragraph_id": "para_903" }, { "text": "claim the Board overreacted to isolated nitrate readings above 2.0 mg/L in the City’s 2009", "paragraph_id": "para_904" }, { "text": "9 The 2010 report states, “Overall, it can be observed that nitrate levels were generally similar or lower in", "paragraph_id": "para_905" }, { "text": "the spring 2010 sampling period as compared to fall 2009.”", "paragraph_id": "para_906" }, { "text": "22", "paragraph_id": "para_907" }, { "text": "and 2010 sampling events while disregarding Dr. Starkey’s long-term study showing no", "paragraph_id": "para_908", "court_paragraph": 22 }, { "text": "increases in nitrate trend. In short, the Property Owners contend the Board’s selective", "paragraph_id": "para_909" }, { "text": "reliance on the flawed 2019 Wenck study, coupled with its disregard of contrary data,", "paragraph_id": "para_910" }, { "text": "rendered the 2023 APOZ amendments—including the 35-acre minimum lot size—", "paragraph_id": "para_911" }, { "text": "arbitrary and capricious.", "paragraph_id": "para_912" }, { "text": "[¶46] The Board responds that the 2023 APOZ amendments, including the 35-acre lot", "paragraph_id": "para_913" }, { "text": "size, were rationally based on the 2011 CAPP and supporting aquifer studies. In support", "paragraph_id": "para_914" }, { "text": "of its decision, the Board relied on the following:", "paragraph_id": "para_915" }, { "text": "• The 2011 CAPP, which “recognizes ‘large lot zoning’ as a potential regulatory", "paragraph_id": "para_916" }, { "text": "management strategy.” The CAPP provides, “[l]arge lot zoning would limit the", "paragraph_id": "para_917" }, { "text": "potential for degrading groundwater quality by reducing the density of buildings and", "paragraph_id": "para_918" }, { "text": "on-site wastewater treatment systems within the CAPA. For example, thirty-five acre", "paragraph_id": "para_919" }, { "text": "lots or larger can be designated as large lot zoning.”10", "paragraph_id": "para_920" }, { "text": "• Laramie’s 2009 and 2010 sampling of private wells which indicated that areas with a", "paragraph_id": "para_921" }, { "text": "higher density of septic systems have increased nitrate levels. (“Data indicate that", "paragraph_id": "para_922" }, { "text": "nitrate-nitrogen levels are most elevated in the East Grand area, and analyses indicate", "paragraph_id": "para_923" }, { "text": "that this could be linked to the high density of septic systems in these subdivisions.”).", "paragraph_id": "para_924" }, { "text": "• A 2013 WWC Engineering study which stated, “precipitation and recharge rates are", "paragraph_id": "para_925" }, { "text": "low in the Laramie area, relatively large lot sizes are required to provide enough", "paragraph_id": "para_926" }, { "text": "recharge to dilute nitrate concentrations to a safe level prior to contaminating a nearby", "paragraph_id": "para_927" }, { "text": "well” and “[t]ypical septic tank and leach field systems are not effective at removing", "paragraph_id": "para_928" }, { "text": "the nitrogen loading from the waste stream.” That study also concluded private wells", "paragraph_id": "para_929" }, { "text": "are “at risk of contamination from nitrate originating from septic systems.”11", "paragraph_id": "para_930" }, { "text": "10 The 2011 CAPP identified domestic wastewater systems as a concern. It states, “[s]eptic systems in the", "paragraph_id": "para_931" }, { "text": "Casper Aquifer are of particular concern because vulnerable features may provide a direct route for sewage", "paragraph_id": "para_932" }, { "text": "effluent to enter the aquifer. Nitrates, bacteria, and other household wastes are all potential contaminants", "paragraph_id": "para_933" }, { "text": "associated with septic systems.” The CAPP also explained:", "paragraph_id": "para_934" }, { "text": "The majority of the CAPA is outside of Laramie City limits, so currently", "paragraph_id": "para_935" }, { "text": "all rural homeowners within the CAPA use an on-site small wastewater", "paragraph_id": "para_936" }, { "text": "system. Management of septic systems is a high priority. Elevated nitrate", "paragraph_id": "para_937" }, { "text": "values (4-10.6 mg/l) from drinking water samples within Zone 2 were", "paragraph_id": "para_938" }, { "text": "detected during a Septic System and Water Quality Workshop offered to", "paragraph_id": "para_939" }, { "text": "rural homeowners in January 2001. The U.S. EPA maximum contaminant", "paragraph_id": "para_940" }, { "text": "level is 10 mg/l. In the spring of 2000 the EAC completed a nitrate loading", "paragraph_id": "para_941" }, { "text": "analysis for a high-density subdivision, located within Zone 2 just east of", "paragraph_id": "para_942" }, { "text": "the City limits. This analysis, which followed a methodology promulgated", "paragraph_id": "para_943" }, { "text": "by WDEQ, predicted elevated nitrate levels down gradient from the", "paragraph_id": "para_944" }, { "text": "subdivision[.]", "paragraph_id": "para_945" }, { "text": "11 The study stated:", "paragraph_id": "para_946" }, { "text": "23", "paragraph_id": "para_947" }, { "text": "• The 2019 Wenck study’s single septic system analysis which found:", "paragraph_id": "para_948", "court_paragraph": 23 }, { "text": "[T]he vadose zone is capable of removing some nitrogen from", "paragraph_id": "para_949" }, { "text": "the septic effluent, nitrate concentrations entering the", "paragraph_id": "para_950" }, { "text": "unsaturated Casper Formation 25 feet below ground surface", "paragraph_id": "para_951" }, { "text": "are consistently high (51 to 63 mg/L). These conditions", "paragraph_id": "para_952" }, { "text": "indicate that the vadose zone does not remove sufficient", "paragraph_id": "para_953" }, { "text": "nitrogen to protect the Casper Formation and by inference the", "paragraph_id": "para_954" }, { "text": "Casper Aquifer from nitrate contamination.", "paragraph_id": "para_955" }, { "text": "• The 2020 Wenck study which concluded nitrate levels increase as development", "paragraph_id": "para_956" }, { "text": "densities increase.12", "paragraph_id": "para_957" }, { "text": "[¶47] The Board argues that these studies indicate a larger lot size would decrease the", "paragraph_id": "para_958" }, { "text": "likelihood of contamination of the Casper Aquifer and that in some areas, contamination", "paragraph_id": "para_959" }, { "text": "is already seen, especially in areas of higher density. The Board acknowledges that the", "paragraph_id": "para_960" }, { "text": "grant for the 2019 Wenck study stated that Albany County would not make policy decisions", "paragraph_id": "para_961" }, { "text": "based on data from a single location, but contends even if that study was ignored, other", "paragraph_id": "para_962" }, { "text": "studies and data demonstrate that increased septic system density leads to higher levels of", "paragraph_id": "para_963" }, { "text": "nitrates. The Board argues, based upon these studies and data, the record contains “ample", "paragraph_id": "para_964" }, { "text": "[A]pproximately 65% of the East Grand area wells that were sampled", "paragraph_id": "para_965" }, { "text": "show nitrate contamination, with 4% of the wells exceeding the drinking", "paragraph_id": "para_966" }, { "text": "water MCL. Of the wells sampled in other areas, approximately 20%", "paragraph_id": "para_967" }, { "text": "show nitrate contamination. Although the mean nitrate concentration at", "paragraph_id": "para_968" }, { "text": "all the wellfields still remain below 2.0 mg/L threshold at which", "paragraph_id": "para_969" }, { "text": "anthropogenic contamination is likely, the apparent increasing trends at", "paragraph_id": "para_970" }, { "text": "the Turner and Soldier wellfields and the sporadic occurrences of", "paragraph_id": "para_971" }, { "text": "concentrations of 2.0 mg/L or greater suggest possible impacts at all", "paragraph_id": "para_972" }, { "text": "except the Pope Wellfield.", "paragraph_id": "para_973" }, { "text": "12 That study stated:", "paragraph_id": "para_974" }, { "text": "3. Future build-out modeling under agricultural zoning suggests that", "paragraph_id": "para_975" }, { "text": "development of the APOZ under a 35-acre lot spacing would have some", "paragraph_id": "para_976" }, { "text": "impact on the aquifer, but the model estimates that nitrate concentrations", "paragraph_id": "para_977" }, { "text": "will remain below 10 mg/L (EPA MCL).", "paragraph_id": "para_978" }, { "text": ". . .", "paragraph_id": "para_979" }, { "text": "5. The model estimates that development to a level equal to [5-acre lot]", "paragraph_id": "para_980" }, { "text": "Rural Residential Zoning of the Spur and Turner Wellfield blocks will", "paragraph_id": "para_981" }, { "text": "result in elevated nitrate concentrations that exceed 10 mg/L. Nitrate", "paragraph_id": "para_982" }, { "text": "concentrations at this level exceed the EPA MCL.", "paragraph_id": "para_983" }, { "text": "6. Finally, the model estimates that development to a level equal to small", "paragraph_id": "para_984" }, { "text": "lot residential (2-acre zoning) within the Turner and Spur Wellfields will", "paragraph_id": "para_985" }, { "text": "adversely impact the Casper Aquifer. If this zoning designation were used", "paragraph_id": "para_986" }, { "text": "in these areas, nitrate concentrations would exceed EPA drinking water", "paragraph_id": "para_987" }, { "text": "standards at both Spur and Turner Wellfields.", "paragraph_id": "para_988" }, { "text": "24", "paragraph_id": "para_989" }, { "text": "evidence” to provide a rational basis for the 2023 APOZ amendments, including the 35-", "paragraph_id": "para_990", "court_paragraph": 24 }, { "text": "acre minimum lot size.", "paragraph_id": "para_991" }, { "text": "[¶48] “[A] difference in opinion is not sufficient to show the Board’s decision was", "paragraph_id": "para_992" }, { "text": "arbitrary or capricious.” Monaghan Farms, Inc. v. Bd. of Cnty. Comm’rs of Albany Cnty.,", "paragraph_id": "para_993" }, { "text": "2023 WY 31, ¶ 60, 527 P.3d 1195, 1215 (Wyo. 2023); see also N. Laramie Range, ¶ 46,", "paragraph_id": "para_994" }, { "text": "290 P.3d at 1079 (“While there is evidence in the record from which two different opinions", "paragraph_id": "para_995" }, { "text": "could be derived, ‘action is not arbitrary or capricious when exercised honestly and upon", "paragraph_id": "para_996" }, { "text": "due consideration, even though it may be believed that an erroneous conclusion has been", "paragraph_id": "para_997" }, { "text": "reached.’” (citation omitted)).13 Although the Property Owners and Warren Livestock", "paragraph_id": "para_998" }, { "text": "highlight portions of the record that might support a different conclusion, there is evidence", "paragraph_id": "para_999" }, { "text": "in the record to support the Board’s conclusion that the Board’s 2023 amendments to the", "paragraph_id": "para_1000" }, { "text": "APOZ, including the 35-acre minimum lot size, were rational as they would decrease", "paragraph_id": "para_1001" }, { "text": "contamination to the Casper Aquifer.", "paragraph_id": "para_1002" }, { "text": "B. 35-Acre Minimum Lot Size Does Not Effectively Rezone Land in the Overlay", "paragraph_id": "para_1003" }, { "text": "Zone", "paragraph_id": "para_1004" }, { "text": "[¶49] In their second argument, Appellants assert that the Board’s imposition of the 35-", "paragraph_id": "para_1005" }, { "text": "acre minimum lot size “completely overrid[es]” all previously established zoning districts,", "paragraph_id": "para_1006" }, { "text": "effectively requiring all land in the APOZ to be used as if zoned agricultural.", "paragraph_id": "para_1007" }, { "text": "[¶50] It is true that the 35-acre minimum lot size imposed by the 2023 APOZ amendments", "paragraph_id": "para_1008" }, { "text": "conforms to the lot size the ACZR already establishes for property zoned agricultural.", "paragraph_id": "para_1009" }, { "text": "ACZR Ch.3, § 2. A. 3 (providing the minimum lot size in districts zoned agricultural is 35", "paragraph_id": "para_1010" }, { "text": "acres). However, use of property in the APOZ is not confined to agricultural uses. Use is", "paragraph_id": "para_1011" }, { "text": "defined by the underlying zoning designation, unless further restricted by the APOZ. The", "paragraph_id": "para_1012" }, { "text": "APOZ amendments provide, “Where this subsection is less stringent or silent as to a", "paragraph_id": "para_1013" }, { "text": "particular issue, any APOZ Developments shall conform to the requirements of the", "paragraph_id": "para_1014" }, { "text": "underlying zoning district(s) in which a property is located.” Appellants have provided no", "paragraph_id": "para_1015" }, { "text": "authority to support the conclusion that minimum lot size incidentally equivalent to", "paragraph_id": "para_1016" }, { "text": "13 The Property Owners state “The Board made no actual findings that there was any significant risk from", "paragraph_id": "para_1017" }, { "text": "county residential uses to the Casper Aquifer to necessitate any changes to the APOZ regulations, and", "paragraph_id": "para_1018" }, { "text": "especially not to impose an arbitrary 35-acre minimum lot size . . . .” The Property Owners cite no authority", "paragraph_id": "para_1019" }, { "text": "for the proposition that the Board was required to make any findings. The plain language of Wyo. Stat.", "paragraph_id": "para_1020" }, { "text": "Ann. § 16-3-110 requires agencies to make factual findings in contested case hearings (“A final decision or", "paragraph_id": "para_1021" }, { "text": "order adverse to a party in a contested case shall . . . include findings of fact and conclusions of law", "paragraph_id": "para_1022" }, { "text": "separately stated.”). In Wilson Advisory Comm., ¶ 41, 292 P.3d at 866, we held that agencies “may be", "paragraph_id": "para_1023" }, { "text": "required to make factual findings in informal proceedings if required to do so by their own regulations.”", "paragraph_id": "para_1024" }, { "text": "Other authority states that “While [the arbitrary and capricious standard] is often applied to cases requiring", "paragraph_id": "para_1025" }, { "text": "no formal record, the agency must still provide the court with some factual basis for its decision.” Id.", "paragraph_id": "para_1026" }, { "text": "(quoting 6 Jacob A. Stein, et al., Administrative Law § 51.03 (2008)). Here, the record is voluminous and,", "paragraph_id": "para_1027" }, { "text": "as we concluded above, supports the Board’s decision to amend the APOZ regulations.", "paragraph_id": "para_1028" }, { "text": "25", "paragraph_id": "para_1029" }, { "text": "agriculturally zoned property is arbitrary, capricious, or contrary to law, and we decline to", "paragraph_id": "para_1030", "court_paragraph": 25 }, { "text": "consider this argument further.", "paragraph_id": "para_1031" }, { "text": "C. The 35-Acre Minimum Lot Size Does Not Contradict Zoning Statutes", "paragraph_id": "para_1032" }, { "text": "[¶51] We turn to the third argument, that the 35-acre minimum lot size is contrary to", "paragraph_id": "para_1033" }, { "text": "Wyoming’s zoning statutes, specifically, Wyo. Stat. Ann. § 18-5-201. Section 18-5-201", "paragraph_id": "para_1034" }, { "text": "provides, in relevant part, “Nothing in W.S. 18-5-201 through 18-5-208 shall be construed", "paragraph_id": "para_1035" }, { "text": "to allow any board of county commissioners, through the establishment of minimum lot", "paragraph_id": "para_1036" }, { "text": "size requirements or otherwise, to prevent residential or agricultural uses authorized for", "paragraph_id": "para_1037" }, { "text": "land divisions that are exempt from subdivision requirements pursuant to W.S. 18-5-", "paragraph_id": "para_1038" }, { "text": "303(a)(i). . . .” Wyo. Stat. Ann. § 18-5-303(a)(i) provides certain divisions of land are", "paragraph_id": "para_1039" }, { "text": "exempt from county subdivision requirements.14", "paragraph_id": "para_1040" }, { "text": "14 Wyo. Stat. Ann. § 18-5-303(a)(i) provides:", "paragraph_id": "para_1041" }, { "text": "(a) Unless the method of sale or other disposition is adopted for the", "paragraph_id": "para_1042" }, { "text": "purpose of evading the provisions of this article, this article shall not apply", "paragraph_id": "para_1043" }, { "text": "to the following subdivisions of land however, the following subdivisions", "paragraph_id": "para_1044" }, { "text": "are subject to requirements which may be adopted by the board of county", "paragraph_id": "para_1045" }, { "text": "commissioners regarding documentation of the proper use and", "paragraph_id": "para_1046" }, { "text": "implementation of the following exemptions:", "paragraph_id": "para_1047" }, { "text": "(i) A division of land made outside of platted subdivisions", "paragraph_id": "para_1048" }, { "text": "for the purpose of a single gift or sale to a member of the", "paragraph_id": "para_1049" }, { "text": "landowner’s immediate family, subject to the following", "paragraph_id": "para_1050" }, { "text": "requirements:", "paragraph_id": "para_1051" }, { "text": "(A) A member of the immediate family is limited to", "paragraph_id": "para_1052" }, { "text": "any person who is a natural or adopted child, stepchild,", "paragraph_id": "para_1053" }, { "text": "spouse, sibling, grandchild, grandparent or parent of the", "paragraph_id": "para_1054" }, { "text": "landowner;", "paragraph_id": "para_1055" }, { "text": "(B). The purpose of the division is to provide for the", "paragraph_id": "para_1056" }, { "text": "housing, business or agricultural needs of the grantee;", "paragraph_id": "para_1057" }, { "text": "(C) The land shall have been titled in the name of the", "paragraph_id": "para_1058" }, { "text": "grantor, or in the name of a trust controlled by the grantor,", "paragraph_id": "para_1059" }, { "text": "for a combined period prior to the division of not less than", "paragraph_id": "para_1060" }, { "text": "five (5) years for land titled before February 27, 2019, or", "paragraph_id": "para_1061" }, { "text": "ten (10) years for land titled on or after February 27, 2019.", "paragraph_id": "para_1062" }, { "text": "Parcels created under this paragraph shall be titled in the", "paragraph_id": "para_1063" }, { "text": "name of the immediate family member for whom the", "paragraph_id": "para_1064" }, { "text": "division is made for a period of not less than five (5) years,", "paragraph_id": "para_1065" }, { "text": "or for not less than one (1) year if the parcel was created", "paragraph_id": "para_1066" }, { "text": "before February 27, 2019, unless the parcels are subject", "paragraph_id": "para_1067" }, { "text": "to involuntary transfer including, but not limited to,", "paragraph_id": "para_1068" }, { "text": "foreclosure, death, judicial sale, condemnation or", "paragraph_id": "para_1069" }, { "text": "bankruptcy;", "paragraph_id": "para_1070" }, { "text": "(D) No parcel smaller than five (5) acres created", "paragraph_id": "para_1071" }, { "text": "under this paragraph shall be further divided unless the", "paragraph_id": "para_1072" }, { "text": "owner obtains a subdivision permit pursuant to W.S. 18-", "paragraph_id": "para_1073" }, { "text": "26", "paragraph_id": "para_1074" }, { "text": "[¶52] The Board responds that the County’s regulations expressly preserve the statutory", "paragraph_id": "para_1075", "court_paragraph": 26 }, { "text": "exemptions. The Albany County Platting and Subdivision Resolution provides, “no", "paragraph_id": "para_1076" }, { "text": "provision of the Albany County Zoning Resolution shall . . . prevent . . . uses authorized", "paragraph_id": "para_1077" }, { "text": "for land divisions that are exempt from the requirements of this resolution pursuant to W.S.", "paragraph_id": "para_1078" }, { "text": "18-5-303(a)(i) . . . .” Albany County Platting and Subdivision Resolution Ch.1, § 3. A.", "paragraph_id": "para_1079" }, { "text": "(amended May 2024). To the extent a property in the APOZ qualifies for an exemption", "paragraph_id": "para_1080" }, { "text": "under § 18-5-303(a)(i), it is exempt from the APOZ’s subdivision-related requirements,", "paragraph_id": "para_1081" }, { "text": "including the 35-acre minimum lot size. The 35-acre minimum lot size does not contravene", "paragraph_id": "para_1082" }, { "text": "Wyo. Stat. Ann. § 18-5-201.", "paragraph_id": "para_1083" }, { "text": "D. Future Effect of 35-Acre Minimum Lot Size Regulation", "paragraph_id": "para_1084" }, { "text": "[¶53] Finally, Appellants contend the minimum lot size is “unduly restrictive and punitive", "paragraph_id": "para_1085" }, { "text": "to every property owner who . . . had a legitimate expectation that they would be able to", "paragraph_id": "para_1086" }, { "text": "develop or use their property [including subdividing any property of ten or more acres] in", "paragraph_id": "para_1087" }, { "text": "conformance with the established zoning district.” Warren Livestock also argues it", "paragraph_id": "para_1088" }, { "text": "“[cannot] not seek to change its underlying zoning . . . from agricultural to rural residential", "paragraph_id": "para_1089" }, { "text": "[or other zoning districts] even though it is within the growth plate of Laramie.” The", "paragraph_id": "para_1090" }, { "text": "Property Owners also complain “the imposition of the 35-acre minimum lot size renders", "paragraph_id": "para_1091" }, { "text": "every [Property Owner] with less than 35 acres a nonconforming use, which means that", "paragraph_id": "para_1092" }, { "text": "they can never expand the use of their properties.” Appellants cite no authorities holding", "paragraph_id": "para_1093" }, { "text": "zoning changes affecting the expectation of future development or creating nonconforming", "paragraph_id": "para_1094" }, { "text": "uses are arbitrary, capricious, or contrary to law.", "paragraph_id": "para_1095" }, { "text": "[¶54] An expectation that property may be subdivided or rezoned in the future is not a", "paragraph_id": "para_1096" }, { "text": "vested property right. As we have previously held, “one has a vested property right only", "paragraph_id": "para_1097" }, { "text": "in existing land uses, and not in prospective land uses.” Sheridan Cnty. Comm’n v. V.O.", "paragraph_id": "para_1098" }, { "text": "Gold Props., LLC, 2011 WY 16, ¶ 14, 247 P.3d 48, 52 (Wyo. 2011). The creation of", "paragraph_id": "para_1099" }, { "text": "nonconforming uses and the disappointment of future development expectations are", "paragraph_id": "para_1100" }, { "text": "common and lawful consequences of zoning changes. Appellants cite no authority holding", "paragraph_id": "para_1101" }, { "text": "5-304;", "paragraph_id": "para_1102" }, { "text": "(E) Where the landowner is a business entity and", "paragraph_id": "para_1103" }, { "text": "eighty percent (80%) of the ownership interest or shares", "paragraph_id": "para_1104" }, { "text": "in the business entity are held by, or in the name of a trust", "paragraph_id": "para_1105" }, { "text": "controlled by, individuals related by blood or marriage,", "paragraph_id": "para_1106" }, { "text": "the sale or gift may be made subject to the provisions of", "paragraph_id": "para_1107" }, { "text": "this section to an immediate family member of any", "paragraph_id": "para_1108" }, { "text": "shareholder who has owned at least five percent (5%) of", "paragraph_id": "para_1109" }, { "text": "the outstanding shares for at least five (5) years", "paragraph_id": "para_1110" }, { "text": "continuously before the date of the sale or gift.", "paragraph_id": "para_1111" }, { "text": "Wyo. Stat. Ann. § 18-5-303(a)(i).", "paragraph_id": "para_1112" }, { "text": "27", "paragraph_id": "para_1113" }, { "text": "that such effects render a zoning regulation arbitrary, capricious, or unlawful, and we", "paragraph_id": "para_1114", "court_paragraph": 27 }, { "text": "decline to do so here.", "paragraph_id": "para_1115" }, { "text": "CONCLUSION", "paragraph_id": "para_1116" }, { "text": "[¶55] The Board’s 2023 APOZ amendments are subject to the arbitrary and capricious", "paragraph_id": "para_1117" }, { "text": "standard of review. The Board did not exceed its authority when it adopted zoning", "paragraph_id": "para_1118" }, { "text": "regulations to protect the Casper Aquifer. The procedures for amending the overlay zone,", "paragraph_id": "para_1119" }, { "text": "which are distinct from procedures used to amend zoning districts, do not violate", "paragraph_id": "para_1120" }, { "text": "Wyoming’s constitutional equal protection guarantees. Finally, the 2023 amendments,", "paragraph_id": "para_1121" }, { "text": "including the 35-acre lot size, were not arbitrary, capricious, or contrary to law. We affirm.", "paragraph_id": "para_1122" }, { "text": "28", "paragraph_id": "para_1123" }, { "text": "BOOMGAARDEN, Chief Justice, specially concurring, in which FENN, Justice,", "paragraph_id": "para_1124", "court_paragraph": 28 }, { "text": "joins.", "paragraph_id": "para_1125" }, { "text": "[¶56] I agree with the majority that the Board had authority to adopt the 2023 APOZ", "paragraph_id": "para_1126" }, { "text": "amendments, that the amendments do not violate equal protection guarantees, that the", "paragraph_id": "para_1127" }, { "text": "arbitrary and capricious standard of review applies to agency legislative action, and that", "paragraph_id": "para_1128" }, { "text": "the amendments are not arbitrary and capricious. I write separately because we need only", "paragraph_id": "para_1129" }, { "text": "look to the language of the WAPA to conclude the arbitrary and capricious standard of", "paragraph_id": "para_1130" }, { "text": "review applies to the APOZ amendments.", "paragraph_id": "para_1131" }, { "text": "[¶57] The parties do not dispute that the Board’s adoption of its 2023 APOZ amendments", "paragraph_id": "para_1132" }, { "text": "constituted legislative action. As we established in Bienz I, “[t]he separation of powers", "paragraph_id": "para_1133" }, { "text": "doctrine does not foreclose judicial review of agency legislative action under the WAPA,", "paragraph_id": "para_1134" }, { "text": "and there are circumstances where judicial relief is required.” 2024 WY 102, ¶ 26, 556", "paragraph_id": "para_1135" }, { "text": "P.3d at 236. The Board’s legislative action is therefore subject to judicial review under the", "paragraph_id": "para_1136" }, { "text": "WAPA.", "paragraph_id": "para_1137" }, { "text": "[¶58] The relevant WAPA language is clear. “The reviewing court shall: Hold unlawful", "paragraph_id": "para_1138" }, { "text": "and set aside agency action, findings and conclusions found to be: (A) Arbitrary,", "paragraph_id": "para_1139" }, { "text": "capricious, an abuse of discretion or otherwise not in accordance with law.” Wyo. Stat.", "paragraph_id": "para_1140" }, { "text": "Ann. § 16-3-114(c)(ii) (2025) (emphasis added). The majority correctly notes that § 16-3-", "paragraph_id": "para_1141" }, { "text": "114(c) “does not distinguish between adjudicatory and legislative action.” Majority op.,", "paragraph_id": "para_1142" }, { "text": "¶ 34.", "paragraph_id": "para_1143" }, { "text": "[¶59] Given there exists no statutory differentiation, I do not believe we need to rely on", "paragraph_id": "para_1144" }, { "text": "federal precedent to reach our conclusion that the arbitrary and capricious standard of", "paragraph_id": "para_1145" }, { "text": "review applies to agency legislative action under the WAPA. The plain language of the", "paragraph_id": "para_1146" }, { "text": "statute establishes that on its own. And given there is no dispute the Board’s adoption of", "paragraph_id": "para_1147" }, { "text": "the 2023 APOZ amendments was legislative action, there is no need to further distinguish", "paragraph_id": "para_1148" }, { "text": "between adjudicatory and legislative action, or create any informal/formal distinction", "paragraph_id": "para_1149" }, { "text": "within each category. As the majority correctly observes, such distinctions do not exist", "paragraph_id": "para_1150" }, { "text": "under the WAPA. These distinctions, along with characterizing agency action like the", "paragraph_id": "para_1151" }, { "text": "APOZ amendments as “agency actions not developed on a closed record,”15 have the", "paragraph_id": "para_1152" }, { "text": "potential to reinstate the confusion in our precedent we eliminated in Bienz I. Majority op.,", "paragraph_id": "para_1153" }, { "text": "¶ 41.", "paragraph_id": "para_1154" }, { "text": "[¶60] As we recognize, “[t]he ‘cardinal principle of judicial restraint’ is ‘if it is not", "paragraph_id": "para_1155" }, { "text": "necessary to decide more, it is necessary not to decide more.” City of Laramie v. Univ. of", "paragraph_id": "para_1156" }, { "text": "Wyo., 2024 WY 13, ¶ 42, 542 P.3d 607, 621 (Wyo. 2024) (quoting MH v. First Jud. Dist.", "paragraph_id": "para_1157" }, { "text": "Ct. of Laramie Cnty., 2020 WY 72, ¶ 17, 465 P.3d 405, 410 (Wyo. 2020) (Kautz, J.,", "paragraph_id": "para_1158" }, { "text": "15 The record necessarily closes at some point before judicial review of every agency action, legislative or", "paragraph_id": "para_1159" }, { "text": "adjudicative. See W.R.A.P. 12.07.", "paragraph_id": "para_1160" }, { "text": "29", "paragraph_id": "para_1161" }, { "text": "specially concurring)). We must “confine ourselves to deciding only what is necessary to", "paragraph_id": "para_1162", "court_paragraph": 29 }, { "text": "the disposition of the immediate case.” MH, 2020 WY 72, ¶ 17, 465 P.3d at 410 (Kautz, J.,", "paragraph_id": "para_1163" }, { "text": "specially concurring) (quoting Whitehouse v. Ill. Cent. R. Co., 349 U.S. 366, 372–73, 75 S.", "paragraph_id": "para_1164" }, { "text": "Ct. 845, 850, 99 L. Ed. 1155 (1955)).", "paragraph_id": "para_1165" }, { "text": "[¶61] Accordingly, we need only look at the language of the WAPA to conclude the", "paragraph_id": "para_1166" }, { "text": "arbitrary and capricious standard applies.", "paragraph_id": "para_1167" }, { "text": "30", "paragraph_id": "para_1168" }, { "text": "HILL, Justice, concurring in part and dissenting in part.", "paragraph_id": "para_1169", "court_paragraph": 30 }, { "text": "[¶62] I respectfully dissent from the conclusion that the Board has the statutory authority", "paragraph_id": "para_1170" }, { "text": "to zone for this purpose. More specifically, I would not find authority for the Board to", "paragraph_id": "para_1171" }, { "text": "zone for water quality purposes in the broad, yet general, grant of authority to regulate land", "paragraph_id": "para_1172" }, { "text": "use found in Wyo. Stat. Ann. § 18-5-201. I agree with the Appellants that the Board is", "paragraph_id": "para_1173" }, { "text": "using its zoning authority as a guise for enacting water quality regulation, and in my view,", "paragraph_id": "para_1174" }, { "text": "the Board does not have the authority to regulate water quality.", "paragraph_id": "para_1175" }, { "text": "[¶63] I, much like the majority, begin with the general premise that the Legislature is", "paragraph_id": "para_1176" }, { "text": "vested with all the legislative powers of the State, and thus, may do anything legislative in", "paragraph_id": "para_1177" }, { "text": "nature as long as it is not repugnant to the United States or Wyoming Constitutions. Bd. of", "paragraph_id": "para_1178" }, { "text": "Trs. of Laramie Cnty. v. Bd. of Cnty. Comm’rs of Laramie Cnty., 2020 WY 41, ¶ 15, 460", "paragraph_id": "para_1179" }, { "text": "P.3d 251, 258 (Wyo. 2020) (citation omitted). The same is not true of counties. Id.", "paragraph_id": "para_1180" }, { "text": "Counties “are purely auxiliaries of the State ... and the statutes confer upon them all the", "paragraph_id": "para_1181" }, { "text": "powers they possess[.]” Id. (quoting State ex rel. Bd. of Comm’rs of Goshen Cty. v. Snyder,", "paragraph_id": "para_1182" }, { "text": "212 P. 771, 781 (1923)). The Legislature may delegate a portion of its legislative power", "paragraph_id": "para_1183" }, { "text": "over local subjects to municipalities, counties, and other political subdivisions for the", "paragraph_id": "para_1184" }, { "text": "purpose of local self-government. Carter v. Bd. of Cnty. Comm’rs of Laramie Cty., 518", "paragraph_id": "para_1185" }, { "text": "P.2d 142, 144 (Wyo. 1974) (citing Bd. of Trs. of Mem’l Hosp. of Sheridan Cty. v. Pratt,", "paragraph_id": "para_1186" }, { "text": "262 P.2d 682, 687 (1953)).", "paragraph_id": "para_1187" }, { "text": "[¶64] The Wyoming Legislature has delegated some of its legislative power to Wyoming", "paragraph_id": "para_1188" }, { "text": "counties. Among other things, the Legislature has granted counties the authority to regulate", "paragraph_id": "para_1189" }, { "text": "the use of land in unincorporated parts of the county. Section 18–5–201 provides:", "paragraph_id": "para_1190" }, { "text": "[t]o promote the public health, safety, morals and general welfare of the", "paragraph_id": "para_1191" }, { "text": "county, each board of county commissioners may regulate and restrict the", "paragraph_id": "para_1192" }, { "text": "location and use of buildings and structures and the use, condition of use or", "paragraph_id": "para_1193" }, { "text": "occupancy of lands for residence, recreation, agriculture, industry,", "paragraph_id": "para_1194" }, { "text": "commerce, public use and other purposes in the unincorporated area of the", "paragraph_id": "para_1195" }, { "text": "county.", "paragraph_id": "para_1196" }, { "text": "Wyo. Stat. Ann. § 18-5-201. We have held the authority granted by this provision is broad.", "paragraph_id": "para_1197" }, { "text": "Bd. of Cnty Comm’rs of Teton County v. Crow, 2003 WY 40, ¶ 42, 65 P.3d 720, 734 (Wyo.", "paragraph_id": "para_1198" }, { "text": "2003). I agree this statutory language is a broad grant of authority to counties. I also agree", "paragraph_id": "para_1199" }, { "text": "§ 18-5-201 confers on counties broad authority to shape their destiny, control their growth,", "paragraph_id": "para_1200" }, { "text": "and determine how best to promote the health, safety, morals, and general welfare of their", "paragraph_id": "para_1201" }, { "text": "citizens. Id. Even so, “there are limits [] upon the zoning powers of a county.” River", "paragraph_id": "para_1202" }, { "text": "Springs Liab. Co. v. Bd. of Cnty. Comm’rs of Cnty. of Teton, 899 P.2d 1329, 1334 (Wyo.", "paragraph_id": "para_1203" }, { "text": "1995).", "paragraph_id": "para_1204" }, { "text": "31", "paragraph_id": "para_1205" }, { "text": "[¶65] The powers delegated are only those expressly or impliedly conferred. Bd. of Trs.", "paragraph_id": "para_1206", "court_paragraph": 31 }, { "text": "of Laramie Cnty., ¶ 15, 460 P.3d at 258; see also Ford v. Bd. of Cty. Comm’rs of Converse", "paragraph_id": "para_1207" }, { "text": "Cty., 924 P.2d 91, 95 (Wyo. 1996); Bd. of Cty. Comm’rs of Laramie Cty. v. Dunnegan, 884", "paragraph_id": "para_1208" }, { "text": "P.2d 35, 40 (Wyo. 1994). “Any fair, reasonable, substantial doubt concerning the existence", "paragraph_id": "para_1209" }, { "text": "of power is resolved by the courts against the [county], and the power is denied.” Bd. of", "paragraph_id": "para_1210" }, { "text": "Trs. of Laramie Cnty., ¶ 12, 460 P.3d at 256–57 (citing Dillon on Municipal Corp., 5th ed.,", "paragraph_id": "para_1211" }, { "text": "[§ 237.]). I have substantial doubt that the Legislature intended to grant counties the", "paragraph_id": "para_1212" }, { "text": "authority to use their zoning power to regulate water quality.", "paragraph_id": "para_1213" }, { "text": "[¶66] Zoning ordinances implicate the police power of the State. Schoeller v. Bd. of Cnty.", "paragraph_id": "para_1214" }, { "text": "Comm’rs of Park Cnty., 568 P.2d 869, 877 (Wyo. 1977) (quoting Alfred D. Jahr, Eminent", "paragraph_id": "para_1215" }, { "text": "Domain, Valuation and Procedure, § 4, p. 8 (1953)). They affect the property rights of", "paragraph_id": "para_1216" }, { "text": "individuals and are in derogation of the owner’s rights under the common law. Id. Zoning", "paragraph_id": "para_1217" }, { "text": "authorities must, therefore, be strictly construed and strictly followed. Id. Zoning authority", "paragraph_id": "para_1218" }, { "text": "“must be applied in such a way as to reasonably restrict the actions of boards of county", "paragraph_id": "para_1219" }, { "text": "commissioners.” Id. at 878. The authority of a county or municipality to adopt a zoning", "paragraph_id": "para_1220" }, { "text": "ordinance is limited by state statute, and the general grant of power to counties to adopt", "paragraph_id": "para_1221" }, { "text": "zoning laws in the interest of public welfare does not permit the local governing bodies to", "paragraph_id": "para_1222" }, { "text": "override the state law and the policies supporting it. Ahearn v. Town of Wheatland, 2002", "paragraph_id": "para_1223" }, { "text": "WY 12, ¶ 14, 39 P.3d 409, 415–16 (Wyo. 2002) (citing State ex rel. Baker v. Strange, 960", "paragraph_id": "para_1224" }, { "text": "P.2d 1016, 1018 (Wyo. 1998); City of Green River v. Debernardi Const. Co., Inc., 816", "paragraph_id": "para_1225" }, { "text": "P.2d 1287, 1290–91 (Wyo. 1991); Vandehei Developers v. Public Service Comm’n of", "paragraph_id": "para_1226" }, { "text": "Wyoming, 790 P.2d 1282, 1286–87 (Wyo. 1990); River Springs Ltd. Liability Co. v. Bd. Of", "paragraph_id": "para_1227" }, { "text": "Conty. Comm’rs of Teton, 899 P.2d 1329 at 1337)).", "paragraph_id": "para_1228" }, { "text": "[¶67] Indeed, both counties and the other public entities created by the Legislature for", "paragraph_id": "para_1229" }, { "text": "special statutory purposes exist for the convenient administration of the state government", "paragraph_id": "para_1230" }, { "text": "and are created to carry out the will of the State as a whole. See Bd. of Cnty. Comm’rs of", "paragraph_id": "para_1231" }, { "text": "Cnty. of Boulder v. Hygiene Fire Prot. Dist., 221 P.3d 1063, 1068 (Colo. 2009) (citing Bd.", "paragraph_id": "para_1232" }, { "text": "of Cnty. Comm’rs of Douglas Cnty., Colo. v. Bainbridge, Inc., 929 P.2d 691, 699 (Colo.", "paragraph_id": "para_1233" }, { "text": "1996); Romer v. Fountain Sanitation Dist., 898 P.2d 37, 41 (Colo.1995)). Thus, although", "paragraph_id": "para_1234" }, { "text": "counties have broad authority to control land use in their county through planning, zoning,", "paragraph_id": "para_1235" }, { "text": "and subdivision, they are not superior to other public entities created by the Legislature for", "paragraph_id": "para_1236" }, { "text": "specific purposes. Id. The Legislature is free to determine the scope of county authority,", "paragraph_id": "para_1237" }, { "text": "the limitations on county authority, which authority shall be granted to other state agencies", "paragraph_id": "para_1238" }, { "text": "or statutory political subdivisions, and how multiple authorities should be coordinated. Bd.", "paragraph_id": "para_1239" }, { "text": "of Cnty. Comm’rs of Cnty. of Boulder, 221 P.3d at 1069–70. When the Legislature makes", "paragraph_id": "para_1240" }, { "text": "such determinations, it has made policy decisions we must respect. Id.", "paragraph_id": "para_1241" }, { "text": "[¶68] Accordingly, it is important to consider the authority granted to other State entities", "paragraph_id": "para_1242" }, { "text": "relating to water. The expression of the statewide importance of water begins in the", "paragraph_id": "para_1243" }, { "text": "Wyoming Constitution. Article 1, § 31 provides, “Water being essential to industrial", "paragraph_id": "para_1244" }, { "text": "prosperity, of limited amount, and easy of diversion from its natural channels, its control", "paragraph_id": "para_1245" }, { "text": "32", "paragraph_id": "para_1246" }, { "text": "must be in the state, which, in providing for its use, shall equally guard all the various", "paragraph_id": "para_1247", "court_paragraph": 32 }, { "text": "interests involved.” The Constitution further declares that the State of Wyoming owns all", "paragraph_id": "para_1248" }, { "text": "ground and surface waters of the State. Wyo. Const. art. 8 §§ 1, 3. The State of Wyoming", "paragraph_id": "para_1249" }, { "text": "has placed the authority for the regulation of appropriation and use of water in the exclusive", "paragraph_id": "para_1250" }, { "text": "jurisdiction of the Wyoming Office of State Engineer and Board of Control. See Wyo.", "paragraph_id": "para_1251" }, { "text": "Const. art 8, §§ 2, 5; Wyo. Stat. Ann. § 41-3-909.", "paragraph_id": "para_1252" }, { "text": "[¶69] Through the Environmental Quality Act (EQA), the Legislature has decided to place", "paragraph_id": "para_1253" }, { "text": "the authority for the regulation of water quality with the Wyoming Department of", "paragraph_id": "para_1254" }, { "text": "Environmental Quality (DEQ). See Wyo. Stat. Ann. §§ 35-11-102, -105, 109–110, -114;", "paragraph_id": "para_1255" }, { "text": "35-11-301 through -314. As it relates to water, the EQA is comprehensive in the authority", "paragraph_id": "para_1256" }, { "text": "it grants to DEQ. The Legislature used expansive language when it granted authority to", "paragraph_id": "para_1257" }, { "text": "DEQ to govern water quality including to set standards for water quality, effluent", "paragraph_id": "para_1258" }, { "text": "standards, and the limitations of discharges to the waters of the state. See e.g. Wyo. Stat.", "paragraph_id": "para_1259" }, { "text": "Ann. § 35-11-102; 35-11-302(a)(i-iii). The powers and duties to promulgate, administer,", "paragraph_id": "para_1260" }, { "text": "and enforce the act is vested with the director of the DEQ. DEQ has adopted rules which", "paragraph_id": "para_1261" }, { "text": "are designed to protect water quality and potential sources of contamination. The rules", "paragraph_id": "para_1262" }, { "text": "DEQ has adopted in accordance with these authorities are, like the statutes, comprehensive.", "paragraph_id": "para_1263" }, { "text": "See e.g. Wyo. Stat. Ann. § 35-11-114(a) (providing for comprehensive plans to prevent", "paragraph_id": "para_1264" }, { "text": "water pollution and protect public water supplies); Wyoming Department of", "paragraph_id": "para_1265" }, { "text": "Environmental Quality, Water Quality Rules, Ch. 3, 8, 9, 11, 23, 25, 26. DEQ has also", "paragraph_id": "para_1266" }, { "text": "created a Watershed Protection Program and a Source Water Wellhead Protection Program.", "paragraph_id": "para_1267" }, { "text": "[¶70] In short, the Legislature has entrusted DEQ with the authority for water quality", "paragraph_id": "para_1268" }, { "text": "statewide; and in my view, the EQA shows the Legislature has determined it is the policy", "paragraph_id": "para_1269" }, { "text": "of that State that water quality be regulated by DEQ. The statutes and rules are", "paragraph_id": "para_1270" }, { "text": "comprehensive, interwoven, and complex. Given the express and comprehensive grant of", "paragraph_id": "para_1271" }, { "text": "authority to DEQ for water quality, I cannot agree the Legislature’s less specific grant of", "paragraph_id": "para_1272" }, { "text": "authority to counties to regulate land use was intended to include the implied authority to", "paragraph_id": "para_1273" }, { "text": "regulate the water quality in the county in some general sense.", "paragraph_id": "para_1274" }, { "text": "[¶71] Indeed, as recognized by the majority opinion, within the EQA, the Legislature has", "paragraph_id": "para_1275" }, { "text": "at times allowed DEQ to delegate authority or invite local authorities to participate in water", "paragraph_id": "para_1276" }, { "text": "quality matters. When it does so, it is explicit. See e.g. Wyo. Stat. Ann. §§ 35-11-304; 35-", "paragraph_id": "para_1277" }, { "text": "11-306(c); 35-11-309(e). To me, the inclusion of specific language inviting local", "paragraph_id": "para_1278" }, { "text": "authorities into certain water quality matters shows the Legislature knows how to delegate", "paragraph_id": "para_1279" }, { "text": "authority for water quality matters to counties when it intends to do so. See e.g. Wyo. Stat.", "paragraph_id": "para_1280" }, { "text": "Ann. § 35-11-304. Because the EQA is explicit in certain delegations of water quality", "paragraph_id": "para_1281" }, { "text": "authority, I would find the Legislature only intends local governments to have authority for", "paragraph_id": "para_1282" }, { "text": "water quality matters in those specific areas. “We presume that the legislature acts", "paragraph_id": "para_1283" }, { "text": "intentionally when it uses particular language in one statute, but not in another.” Matter of", "paragraph_id": "para_1284" }, { "text": "Est. of Haack, 2026 WY 17, ¶ 17, 583 P.3d 690, 696 (Wyo. 2026). Specific designations", "paragraph_id": "para_1285" }, { "text": "in some areas shows the Legislature has determined how multiple authorities should be", "paragraph_id": "para_1286" }, { "text": "33", "paragraph_id": "para_1287" }, { "text": "coordinated and local authority only exists in those areas so designated. See Bd. of Cnty.", "paragraph_id": "para_1288", "court_paragraph": 33 }, { "text": "Comm’rs of Cnty. of Boulder, 221 P.3d at 1069–70.", "paragraph_id": "para_1289" }, { "text": "[¶72] Considering all these authorities, I would find that the Legislature has made a policy", "paragraph_id": "para_1290" }, { "text": "decision that water quality is regulated exclusively by DEQ, absent statutory language", "paragraph_id": "para_1291" }, { "text": "granting DEQ the authority to delegate some of its authority for water quality matters to", "paragraph_id": "para_1292" }, { "text": "other entities. In this instance, I cannot find a delegation of authority to the county to", "paragraph_id": "para_1293" }, { "text": "regulate water quality in the manner it has.", "paragraph_id": "para_1294" }, { "text": "[¶73] It, therefore, follows that I also do not find the zoning authority found in §18-5-201", "paragraph_id": "para_1295" }, { "text": "includes the power to create water quality regulations. The State of Wyoming and the", "paragraph_id": "para_1296" }, { "text": "Legislature are careful and measured when it comes to water. Given how explicit both the", "paragraph_id": "para_1297" }, { "text": "Wyoming Constitution and the Legislature are when they discuss water, I do not believe", "paragraph_id": "para_1298" }, { "text": "the Legislature would have implied authority to regulate water quality in a statute that does", "paragraph_id": "para_1299" }, { "text": "not even contain the word “water.” Allowing local zoning regulations to regulate water", "paragraph_id": "para_1300" }, { "text": "quality does not reflect the Legislature’s intent to harmoniously regulate water quality", "paragraph_id": "para_1301" }, { "text": "throughout the State. It has the potential to create a maze of inconsistent water quality", "paragraph_id": "para_1302" }, { "text": "regulations, which does not appear to be the Legislature’s intent with respect to water", "paragraph_id": "para_1303" }, { "text": "quality. See, Wyo. Stat. Ann. § 35-11-301 through -304.", "paragraph_id": "para_1304" }, { "text": "[¶74] I further find it telling that the Board removed the original purpose statement which", "paragraph_id": "para_1305" }, { "text": "specified that the proposed zoning was for water quality purposes. If the Board was", "paragraph_id": "para_1306" }, { "text": "confident it had the authority to zone for this purpose, there would be no need to amend", "paragraph_id": "para_1307" }, { "text": "the purpose statement.16 Regardless, in my view, the record makes clear it is the Board’s", "paragraph_id": "para_1308" }, { "text": "intent to regulate the water quality of the State. As noted above, as I see it, the Legislature", "paragraph_id": "para_1309" }, { "text": "did not intend the broad but general grant of authority to counties to zone land use to", "paragraph_id": "para_1310" }, { "text": "include authority to regulate water quality when it expressly granted that specific", "paragraph_id": "para_1311" }, { "text": "comprehensive authority to the DEQ.", "paragraph_id": "para_1312" }, { "text": "[¶75] Certainly, I recognize what this Court said in River Springs Liab. Co., 899 P.2d at", "paragraph_id": "para_1313" }, { "text": "1336, as discussed in ¶ 22 above. Even so, Rivers Springs is illustrative of the point that", "paragraph_id": "para_1314" }, { "text": "the authority of counties is limited by the authority granted to DEQ by the language of the", "paragraph_id": "para_1315" }, { "text": "EQA. Id. Thus, while our task is to harmonize different statutory provisions and endeavor", "paragraph_id": "para_1316" }, { "text": "to afford legitimate effect to all of them; we recognized the land quality provisions of the", "paragraph_id": "para_1317" }, { "text": "EQA are comprehensive, explicit, and specific in their grant of authority to DEQ and the", "paragraph_id": "para_1318" }, { "text": "pervasiveness of the DEQ’s authority was demonstrated by the EQA’s exhaustive", "paragraph_id": "para_1319" }, { "text": "requirements. Id. at 1335–36. I find this even more apparent in the realm of water quality.", "paragraph_id": "para_1320" }, { "text": "16 I find removing a purpose statement because someone has pointed out a potential problem with your", "paragraph_id": "para_1321" }, { "text": "authority especially troubling because it causes citizens to suspect that nefarious government action is afoot.", "paragraph_id": "para_1322" }, { "text": "Such actions damage the public confidence in government, including proper and appropriate government", "paragraph_id": "para_1323" }, { "text": "actions.", "paragraph_id": "para_1324" }, { "text": "34", "paragraph_id": "para_1325" }, { "text": "[¶76] Furthermore, I find a distinction that in River Springs the Court was harmonizing", "paragraph_id": "para_1326", "court_paragraph": 34 }, { "text": "the zoning of land uses and land quality regulations. Id. In River Springs, we had before", "paragraph_id": "para_1327" }, { "text": "us a land use that DEQ would allow that might have otherwise been inconsistent with the", "paragraph_id": "para_1328" }, { "text": "character and nature of the land use the county envisioned in that area. Id. Here we have", "paragraph_id": "para_1329" }, { "text": "a different situation. Here, we are comparing land use zoning regulations to water quality", "paragraph_id": "para_1330" }, { "text": "regulations. River Springs did not consider how land use zoning fits together with water", "paragraph_id": "para_1331" }, { "text": "quality matters. As discussed above, I believe the State of Wyoming has taken a very", "paragraph_id": "para_1332" }, { "text": "considered and measured approach with water, beginning in the Wyoming Constitution. It", "paragraph_id": "para_1333" }, { "text": "has demonstrated its extra concern for the water resources of the State and signaled water", "paragraph_id": "para_1334" }, { "text": "as a matter of state level concern. See Art. 1, § 31. Following suit, the Legislature is careful", "paragraph_id": "para_1335" }, { "text": "when it comes to authority for water related matters.", "paragraph_id": "para_1336" }, { "text": "[¶77] The clarification of the applicability of the arbitrary and capricious standard, with", "paragraph_id": "para_1337" }, { "text": "which I agree, further clarifies the matter for me.17 The arbitrary and capricious standard", "paragraph_id": "para_1338" }, { "text": "is deferential to agency decision making in part because it flows from the scope of authority", "paragraph_id": "para_1339" }, { "text": "granted to the agency which generally carries a level of expertise within that scope. See", "paragraph_id": "para_1340" }, { "text": "discussion above, ¶¶ 33–41. Because the matters the Court reviews are within the scope", "paragraph_id": "para_1341" }, { "text": "of authority granted and the expertise within the responsible agency, the Court gives the", "paragraph_id": "para_1342" }, { "text": "agency considerable deference. The expertise in water quality matters lies with DEQ. The", "paragraph_id": "para_1343" }, { "text": "county may very well have expertise in what it wants its county to look like in terms of", "paragraph_id": "para_1344" }, { "text": "dividing “land into zones and within these zones the regulation of both the nature of land", "paragraph_id": "para_1345" }, { "text": "usage and the physical dimensions of these uses including height setbacks and minimum", "paragraph_id": "para_1346" }, { "text": "area.” Pedro/Aspen, Ltd. v. Bd. of Cnty. Comm’rs for Natrona Cnty., 2004 WY 84, ¶ 24,", "paragraph_id": "para_1347" }, { "text": "94 P.3d 412, 419 (Wyo. 2004) (citation omitted) (defining “zoning”). But the expertise for", "paragraph_id": "para_1348" }, { "text": "water quality lies with DEQ.", "paragraph_id": "para_1349" }, { "text": "[¶78] Lastly, I note that zoning “must be reasonably calculated to meet the evil and not", "paragraph_id": "para_1350" }, { "text": "exceed the public need.” Pheasant Bridge Corp. v. Twp. of Warren, 777 A.2d 334, 339", "paragraph_id": "para_1351" }, { "text": "(N.J. 2001) (citation omitted). The zoning regulation “must be reasonably designed to", "paragraph_id": "para_1352" }, { "text": "resolve the problem without imposing unnecessary and excessive restrictions on the use of", "paragraph_id": "para_1353" }, { "text": "private property.” Berger v. State, 364 A.2d 993, 1002 (N.J. 1976). “Zoning regulations,", "paragraph_id": "para_1354" }, { "text": "as an exercise of the police power, are subject to the fundamental rule regarding the", "paragraph_id": "para_1355" }, { "text": "exercise of that power: that there is some evil extant or reasonably to be apprehended which", "paragraph_id": "para_1356" }, { "text": "the police power may be invoked to prevent.” Salamar Builders Corp. v. Tuttle, 275", "paragraph_id": "para_1357" }, { "text": "N.E.2d 585, 589 (N.Y. 1971). In this instance, I would not find any of these criteria were", "paragraph_id": "para_1358" }, { "text": "met because DEQ is regulating and protecting the water quality of the State. Simply put,", "paragraph_id": "para_1359" }, { "text": "the Board is attempting to substitute its judgment for DEQ’s, which is not what the statutes", "paragraph_id": "para_1360" }, { "text": "contemplate. Indeed, the regulatory scheme designed by the statutes and the DEQ would", "paragraph_id": "para_1361" }, { "text": "not prohibit all discharges to the waters of the State but instead implements a permit system", "paragraph_id": "para_1362" }, { "text": "to allow for discharges so long as water quality standards are protected. See, Water Quality", "paragraph_id": "para_1363" }, { "text": "17 To be clear, I agree that the arbitrary and capricious standard is applicable to legislative type actions such", "paragraph_id": "para_1364" }, { "text": "as zoning.", "paragraph_id": "para_1365" }, { "text": "35", "paragraph_id": "para_1366" }, { "text": "Rules, Ch. 8, § 4. Although I understand the Board’s concern for this sensitive aquifer,", "paragraph_id": "para_1367", "court_paragraph": 35 }, { "text": "“zoning is not a boundless license to structure a [county], and it cannot be used as a means", "paragraph_id": "para_1368" }, { "text": "to solve all collateral [county] problems.” 101A C.J.S. Zoning and Land Planning § 7.", "paragraph_id": "para_1369" }, { "text": "And it certainly cannot be used in excess of the authority granted. 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