...Rule 691-40.103 prohibits expenditures from state funds, unless expressly provided by law, for enumerated items, including “(6) Decorative items (globes, statues, potted plants, picture frames, etc.).” According to the rule, it was adopted in 1975, amended in 1995, and was created under the authority of section 17.29, Florida Statutes, which provides: 17.29....
...The Chief Financial Officer may make payments by state warrant if deemed administratively necessary. The ALJ concluded that rule 691-40.103 was an invalid exercise of the Chief Financial Officer’s (the “CFO”) rulemaking authority because it was not specifically authorized by its enabling statute, section
17.29, Florida Statutes (2012). The ALJ reasoned that while section
17.29 conferred broad powers and duties on the CFO to process day-to-day payments, it did not explicitly authorize the CFO to restrict expenditures. With respect to each of the subsections in section
17.29, the ALJ stated that section
17.29(1) specifically authorizes the CFO only to process expenditures, not to prohibit them. Section
17.29(2) only relates to procedures for processing interagency and interagency [sic] payments, which is not related to the challenged rule. Additionally, subsections
17.29(3) and (4), deal with electronic means for payments, which are not issues relating to what is reimbursable as an expenditure. The ALJ concluded that “there is simply no language within the text of section
17.29 which suggests that the CFO is authorized to adopt rules restricting expenditures. Therefore, rule 691^10.103 does not implement or interpret any specific power or duty granted by section
17.29.” We agree with the ALJ’s interpretation of section
17.29 and her conclusion on this point. In addition to listing section
17.29 as its specific authority, rule 691-40.103 also lists sections
17.001,17.03, and
215.42, Florida Statutes, as “law implemented.” Section
120.52(2), Florida Statutes (2012), defines “law implemented,” as “the language of the enabling statute being carried out or interpreted by an agency through rulemaking.” As it did below, Appellant also contends that section
17.29(1) and
17.03(1) together provide sufficient authority for the rule. The ALJ rejected Appellant’s argument that she should look to both section
17.29 and section
17.03 to find authority for the rule....
...The CFO has no authority to supervise the operation of other state officers or state agencies in the exercise of the discretion vested in them by law. Fla. Dev. Comm’n v. Dickinson,
229 So.2d 6, 8 (Fla. 1st DCA 1969). We accordingly conclude that section
17.03(1), whether separately considered or in combination with *728 section
17.29, does not provide a specific grant of legislative authority for rule 691-40.103....