{ "id": 4264239, "name": "THE VILLAGE OF FRANKFORT, Plaintiff-Appellant, v. THE ENVIRONMENTAL PROTECTION AGENCY et al, Defendants-Appellees", "name_abbreviation": "Village of Frankfort v. Environmental Protection Agency", "decision_date": "2006-06-30", "docket_number": "No. 1-05-1929", "first_page": "649", "last_page": "660", "citations": [ { "type": "official", "cite": "366 Ill. App. 3d 649" } ], "court": { "name_abbreviation": "Ill. App. Ct.", "id": 8837, "name": "Illinois Appellate Court" }, "jurisdiction": { "id": 29, "name_long": "Illinois", "name": "Ill." }, "cites_to": [ { "cite": "357 Ill. App. 3d 905", "category": "reporters:state", "reporter": "Ill. App. 3d", "case_ids": [ 4135119 ], "year": 2005, "pin_cites": [ { "page": "923" } ], "opinion_index": 0, "case_paths": [ "/ill-app-3d/357/0905-01" ] }, { "cite": "354 Ill. App. 3d 895", "category": "reporters:state", "reporter": "Ill. App. 3d", "case_ids": [ 3215112 ], "year": 2004, "pin_cites": [ { "page": "900" } ], "opinion_index": 0, "case_paths": [ "/ill-app-3d/354/0895-01" ] }, { "cite": "835 N.E.2d 61", "category": "reporters:state_regional", "reporter": "N.E.2d", "year": 2005, "opinion_index": 0 }, { "cite": "359 Ill. App. 3d 813", "category": "reporters:state", "reporter": "Ill. App. 3d", "case_ids": [ 5594535 ], "year": 2005, "pin_cites": [ { "page": "819" } ], "opinion_index": 0, "case_paths": [ "/ill-app-3d/359/0813-01" ] }, { "cite": "970 F.2d 1301", "category": "reporters:federal", "reporter": "F.2d", "case_ids": [ 10519122, 6518875, 10519076 ], "year": 1992, "pin_cites": [ { "page": "1304-05" } ], "opinion_index": 0, "case_paths": [ "/f2d/970/1301-02", "/br/143/1301-01", "/f2d/970/1301-01" ] }, { "cite": "239 F.3d 633", "category": "reporters:federal", "reporter": "F.3d", "case_ids": [ 11076245 ], "year": 2001, "pin_cites": [ { "page": "637" } ], "opinion_index": 0, "case_paths": [ "/f3d/239/0633-01" ] }, { "cite": "202 Ill. 2d 450", "category": "reporters:state", "reporter": "Ill. 2d", "case_ids": [ 1442056 ], "year": 2002, "pin_cites": [ { "page": "459" } ], "opinion_index": 0, "case_paths": [ "/ill-2d/202/0450-01" ] }, { "cite": "33 U.S.C. \u00a7 1313", "category": "laws:leg_statute", "reporter": "U.S.C.", "weight": 2, "year": 2000, "pin_cites": [ { "page": "(e)" }, { "page": "(e)" } ], "opinion_index": 0 }, { "cite": "101 N.E. 574", "category": "reporters:state_regional", "reporter": "N.E.", "year": 1913, "opinion_index": 0 }, { "cite": "258 Ill. 246", "category": "reporters:state", "reporter": "Ill.", "case_ids": [ 4723671 ], "weight": 6, "year": 1913, "pin_cites": [ { "page": "247" }, { "page": "247-48" }, { "page": "250" }, { "page": "252" }, { "page": "253" } ], "opinion_index": 0, "case_paths": [ "/ill/258/0246-01" ] }, { "cite": "99 N.E. 705", "category": "reporters:state_regional", "reporter": "N.E.", "year": 1912, "opinion_index": 0 }, { "cite": "255 Ill. 498", "category": "reporters:state", "reporter": "Ill.", "case_ids": [ 4701711 ], "weight": 3, "year": 1912, "pin_cites": [ { "page": "499" }, { "page": "502-03" } ], "opinion_index": 0, "case_paths": [ "/ill/255/0498-01" ] }, { "cite": "87 N.E. 417", "category": "reporters:state_regional", "reporter": "N.E.", "year": 1909, "opinion_index": 0 }, { "cite": "238 Ill. 258", "category": "reporters:state", "reporter": "Ill.", "case_ids": [ 3426614 ], "weight": 5, "year": 1909, "pin_cites": [ { "page": "262" }, { "page": "263" }, { "page": "277-78" }, { "page": "264" } ], "opinion_index": 0, "case_paths": [ "/ill/238/0258-01" ] }, { "cite": "1889 Ill. Laws 125", "category": "laws:leg_session", "reporter": "Ill. Laws", "opinion_index": 0 }, { "cite": "695 N.E.2d 374", "category": "reporters:state_regional", "reporter": "N.E.2d", "year": 1998, "opinion_index": 0 }, { "cite": "182 Ill. 2d 220", "category": "reporters:state", "reporter": "Ill. 2d", "case_ids": [ 864522 ], "year": 1998, "pin_cites": [ { "page": "228" } ], "opinion_index": 0, "case_paths": [ "/ill-2d/182/0220-01" ] }, { "cite": "6 Ill. Reg. 2597", "category": "laws:admin_register", "reporter": "Ill. Reg.", "weight": 3, "opinion_index": 0 }, { "cite": "33 U.S.C. \u00a7 1251", "category": "laws:leg_statute", "reporter": "U.S.C.", "year": 2000, "pin_cites": [ { "page": "et seq." } ], "opinion_index": 0 } ], "analysis": { "cardinality": 1014, "char_count": 27512, "ocr_confidence": 0.74, "pagerank": { "raw": 5.722385695122928e-08, "percentile": 0.3590051002973532 }, "sha256": "8491948a9f858258caa689750d90b64b41a9abaabcf5583d56479b63df151d73", "simhash": "1:51a5cc5ae7585e50", "word_count": 4391 }, "last_updated": "2023-07-14T18:50:16.995484+00:00", "provenance": { "date_added": "2019-08-29", "source": "Harvard", "batch": "2018" }, "casebody": { "judges": [], "parties": [ "THE VILLAGE OF FRANKFORT, Plaintiff-Appellant, v. THE ENVIRONMENTAL PROTECTION AGENCY et al, Defendants-Appellees." ], "opinions": [ { "text": "JUSTICE CAMPBELL\ndelivered the opinion of the court:\nPlaintiff, the Village of Frankfort, Illinois (Frankfort), appeals from an order of the circuit court of Cook County dismissing its complaint against defendants, the Illinois Environmental Protection Agency (IEPA), the Village of Richton Park (Richton Park), and the Metropolitan Water Reclamation District of Greater Chicago (MWRD), for failure to state a cause of action pursuant to section 2 \u2014 615 of the Code of Civil Procedure (735 ILCS 5/2 \u2014 615 (West 2002)), in connection with the denial of Frankfort\u2019s application to extend its sewage treatment and transportation area into an unincorporated area of 853 acres located in Rich Township, Cook County (the Subject Area). On appeal, Frankfort contends that the MWRD does not have exclusive jurisdiction to provide sewage treatment service within its boundaries and therefore the trial court erred in dismissing Frankfort\u2019s complaint. For the following reasons, we affirm the judgment of the trial court.\nBACKGROUND\nA. The Parties\nPlaintiff, the Village of Frankfort, is an Illinois municipal corporation located in both Will and Cook Counties. Defendant, Village of Richton Park, is an Illinois municipal corporation located in Cook County, Illinois. Defendant Illinois Environmental Protection Agency is, inter alia, designated to prevent water pollution in the state for all purposes of the federal Water Pollution Control Act Amendments of 1972, as amended (33 U.S.C. \u00a7 1251 et seq. (2000)). 415 ILCS 5/4(d)(l) (West 2002). Defendant Metropolitan Water Reclamation District of Greater Chicago is authorized by the Metropolitan Water Reclamation District Act (MWRD Act) (70 ILCS 2605/7aa, 7e (West 2002)) to control, prevent and abate the pollution of any waters and to regulate the connection of sewage treatment systems within the District. The boundaries of the MWRD have been enlarged by statute over 100 times since 1913. 70 ILCS 2605/90 through 288 (West 2002).\nThe Subject Area, located in Rich Township, Cook County, is an 853-acre portion of approximately 1,470 unincorporated acres that comprise the southern third of section 30 and all of section 31 of Rich Township. Approximately 140 acres of the Subject Area are located within the corporate limits of Frankfort.\nB. The Sewage Treatment and Transportation Process\nThe process of providing sanitary sewage treatment and transportation is statutory and regulated by state agencies. The IEPA designates Facility Planning Areas (FPAs), geographic areas for the planning, treatment or transport of liquid domestic wastewater and its residual solids. FPAs are included within a Water Quality Management (WQM) plan adopted by the IEPA.\nThe Northeastern Illinois Planning Commission (NIPC) is an agency created by statute to consider applications to change FPA boundaries within the six Illinois counties of Cook, Will, Du Page, Kane, McHenry and Lake, and to make nonbinding recommendations on such applications to the IEPA. 70 ILCS 1705/1 et seq. (West 2002). The NIPC devises WQM plans according to criteria set forth by the IEPA and publishes a procedure manual for the WQM amendment process. The IEPA makes final decisions regarding WQM and FPA amendments. Part 351 of the Illinois Administrative Code contains the \u201cProcedures and Requirements for Conflict Resolution in Revising Water Quality Management Plans.\u201d 35 Ill. Adm. Code \u00a7 351.103, as amended by 6 Ill. Reg. 2597, eff. March 1, 1982. The rules contained in that section apply to amendments to FPA boundaries. 35 Ill. Adm. Code \u00a7 351.502, as amended by 6 Ill. Reg. 2597, eff. March 1, 1982. The rules also apply to revisions of WQM plans, unless otherwise determined by the Director of the IEPA. 35 Ill. Adm. Code \u00a7 351.103(b)(3), as amended by 6 Ill. Reg. 2597, eff. March 1, 1982.\nFrankfort is a Designated Management Agency (DMA) and provides sewage services within its own designated FPA. Frankfort\u2019s waste water treatment facility for its FPA is located in the Hickory Creek Watershed and serves an area primarily within the Hickory Creek Watershed. An eight-inch sanitary sewer located in Frankfort\u2019s FPA is adjacent to the southern third of section 30 of Rich Township.\nC. Frankfort\u2019s Application\nOn December 16, 2002, Richton Park filed an application with the NIPC seeking to transfer approximately 1,470 acres, including the 853-acre Subject Area, into the FPA of the MWRD.\nOn January 7, 2003, Frankfort filed a written objection to Richton Park\u2019s application. Frankfort complained that although Richton Park sought to transfer the Subject Area into its own FPA, Richton Park had no FPA of its own at that time. Therefore, Frankfort argues, Rich-ton Park\u2019s application violated the regulatory provisions regarding FPA boundaries set forth in Title 35, part 351, section 351.502, of the Administrative Code, as well as the NIPC Manual that sets forth prerequisite criteria for WQM.\nOn February 7, 2003, Frankfort filed an application with the NIPC requesting an amendment to its own FPA to provide sanitary sewage treatment and services to the Subject Area. In addition, Frankfort sought an injunction against Richton Park to prevent construction of any sewer lines until following a full, fair and complete determination on Frankfort\u2019s application.\nOn February 13, 2003, the NIPC recommended against approval of Richton Park\u2019s application based on its finding that: (1) the proposal did not meet the requirement that the amendment should not reduce the effectiveness of the water quality improvement strategy contained in the original WQM plan; and (2) Richton Park\u2019s application did not have substantial support by the municipalities within the affected area and the proposed change adversely affected adjoining units of government. The NIPC Water Resource Committee voted to defer further consideration of Richton Park\u2019s application in order to allow review and comparison of Frankfort\u2019s application with Richton Park\u2019s application.\nOn March 6, 2003, the MWRD adopted a resolution supporting Richton Park\u2019s application. On March 12, 2003, the MWRD sent the resolution to the NIPC along with a cover letter stating that the MWRD supported Richton Park\u2019s application \u201cinto the MWRD FPA.\u201d On March 13, 2003, the NIPC Water Resource Committee voted to support Richton Park\u2019s application. On March 25, 2003, the NIPC issued a recommendation to support Richton Park\u2019s application.\nOn May 13, 2003, the IEPA issued its decision accepting the NIPC\u2019s recommendation for and approving Richton Park\u2019s request to transfer 1,150 acres from a nonfacility region into the MWRD FPA.\nOn June 4, 2003, the NIPC returned Frankfort\u2019s application and the application fee along with a letter stating that the NIPC was \u201cwithout jurisdiction to consider the FPA Application submitted by the Village of Frankfort.\u201d The letter explained that in exercising \u201cits due diligence,\u201d the NIPC learned that the Subject Area had been annexed to the MWRD in 1998 by Public Act 90 \u2014 780 (Pub. Act 90 \u2014 780, \u00a7 5, eff. August 14, 1998). 70 ILCS 2605/273 (West 1998).\nOn June 16, 2003, Frankfort filed an appeal with the IEPA. No action had been taken by the IEPA at the time of the appeal to this court. On December 23, 2003, Frankfort sent a letter to the IEPA requesting that Richton Park not be granted a permit to install a sewer main until the IEPA had ruled on Frankfort\u2019s petition. On December 30, 2003, the IEPA responded that the permit had already been issued.\nD. Frankfort\u2019s Lawsuit\nOn February 4, 2004, Frankfort filed an action against Richton Park and the IEPA. Frankfort later amended its complaint to add the MWRD as a necessary party. On June 9, 2004, Frankfort filed its second amended complaint in six counts against defendants. In counts I, II, III and iy Frankfort demanded a writ of mandamus to compel defendant IEPA to conduct a review and fair hearing of Frankfort\u2019s application to the NIPC; conduct a hearing on Frankfort\u2019s IEPA appeal; revoke its acceptance of Richton Park\u2019s application and revoke any permits issued by the IEPA based upon the IEPA\u2019s granting of Richton Park\u2019s application. Frankfort further demanded a writ of certiorari to obtain limited review of the decision on the amendment of the FPA to grant Richton Park\u2019s application.\nFrankfort further requested preliminary and permanent injunctions against Richton Park to prevent the construction of sewer lines within the Subject Area and sought a declaratory judgment that the area within the boundaries of the MWRD area was in the exclusive province of the MWRD for obtaining an FPA.\nOn November 12, 2004, the trial court denied Frankfort\u2019s motion for a preliminary injunction. All three defendants filed a motion to dismiss Frankfort\u2019s second amended complaint for failure to state a claim. The IEPA argued that the MWRD had exclusive jurisdiction to provide sewage treatment within its boundaries and therefore Frankfort\u2019s application was properly rejected.\nAt the same time, the MWRD filed its own motion to dismiss, stating that its role was only \u201cadvisory.\u201d Therein, the MWRD stated:\n\u201cAt issue is the Illinois [FPA] which was designed to provide wastewater treatment throughout the area in an organized fashion. The MWRD operates sewage treatment facilities throughout the greater metropolitan area. Often local municipalities are interested in constructing their own facilities. Any such request by law is handled by the [IEPA]. The IEPA approves or disapproves requests and border disputes. IEPA is the agency with the expertise and is statutorily authorized to do so. The [NIPC] was created by statute and has a contract with the IEPA to review and to make recommendations as to any such application ***. The IEPA makes the final determination on a facility planning application, and its decision is subject only to administrative review. The MWRD has no authority in the matter, but in this instance voices an opinion in favor of the Village of Richton Park\u2019s application.\u201d\nOn May 3, 2005, the trial court denied defendants\u2019 motions to dismiss.\nOn May 20, 2005, the IEPA and the MWRD entered into a stipulation that provided in part:\n\u201cThe General Assembly extended the MWRD\u2019s corporate boundaries to include the additional territory involved in the present matter (\u2019Subject Area\u2019), pursuant to its authority and the provisions of the MWRD Act. Upon the General Assembly\u2019s action to extend the MWRD\u2019s corporate boundaries to include the Subject Area, the Northeastern Illinois Planning Commission and the IEPA ceased to have a role in determining what entity has the right to provide sewer service within the Subject Area, through the [FPA] process.\n* * *\nOnce the Subject Area was added to the MWRD\u2019s corporate boundaries by the General Assembly, MWRD had and continues to have exclusive jurisdiction and authority to decide who provides sewer service within that area. The IEPA has regulatory responsibility for issuing permits authorizing the construction of sewers within the Subject Area. The MWRD\u2019s boundaries were extended to include the Subject Area by legislative act, as authorized by Section 1 of the MWRD Act, and did not require an FPA amendment pursuant to 35 Ill. Adm. Code Part 351.\u201d\nBased on the above stipulation, the trial court entered an agreed order between the IEPA and the MWRD that provided that there was no inconsistency or conflict between the jurisdiction or authority of the MWRD and the IEPA regarding providing sewage treatment service within the MWRD\u2019s corporate limits. The trial court concluded that the MWRD had the exclusive jurisdiction to provide sewer service within its boundaries and dismissed Frankfort\u2019s complaint for failure to state a cause of action. This timely appeal followed.\nOPINION\nOn appeal, Frankfort argues that there is no provision within the MWRD Act that grants the MWRD exclusive jurisdiction to provide sewage treatment within its boundaries, and therefore the trial court erred in dismissing Frankfort\u2019s complaint. We review an order dismissing a cause for failure to state a claim de novo. People ex rel. Sklodowski v. State, 182 Ill. 2d 220, 228, 695 N.E.2d 374 (1998).\nOur analysis of Frankfort\u2019s appeal is aided by an examination of the history of the MWRD. Originally established by the Illinois General Assembly in 1889, the \u201cSanitary District\u201d was empowered to treat sewage within its stated boundaries in Chicago. See 1889 Ill. Laws 125 (\u00a7 7), (effective July 1, 1889); 70 ILCS 2605/1 (West 2002). Section 7 of the MWRD Act expressly grants to the MWRD the following exclusive powers: (1) to provide for the drainage of the district of surface water and sewage; (2) establish treatment plants and works; (3) prevent pollution of waters (section 7a); (4) prevent pollution in the sewage system (section 7a); (5) storm water management in all of Cook County (section 7h); and (6) regulation of construction and installation of municipal sewage systems discharging to the MWRD (sections 7(b) and 7(f)). The MWRD is further authorized to \u201cpass all necessary ordinances, orders, rules, resolutions and regulations for the proper management and conduct of the business of the board of commissioners and the corporation and for carrying into effect the object for which the sanitary district is formed.\u201d 70 ILCS 2605/4 (West 2002). The corporate limits of the District \u201cmay be extended [by legislative action] to include any area of contiguous territory within *** Cook County wherein the construction, maintenance and operation of sewers and sewage treatment plants *** will conduce to the preservation of the public health.\u201d 70 ILCS 2605/1 (West 2002).\nFrankfort contends that despite the powers granted by the MWRD Act, cited above, case law supports the proposition that municipalities within the District are permitted to construct their own sewers. Frankfort relies on City of Chicago v. Green, 238 Ill. 258, 87 N.E. 417 (1909), City of Berwyn v. Berglund, 255 Ill. 498, 99 N.E. 705 (1912), and Judge u. Bergman, 258 Ill. 246, 101 N.E. 574 (1913), arguing that these cases hold that the MWRD does not have the exclusive authority to provide sewage treatment for the area within its corporate limits. Frankfort argues that the IEPA mistakenly cited these three cases for the opposite proposition and that the trial court improperly relied on them as providing that the MWRD has the exclusive authority to provide sewage treatment within its boundaries.\nIn Green, the plaintiff, the City of Chicago, instituted proceedings for a special sewer assessment to construct a sewer improvement within Kedzie Avenue, Chicago, across the right-of-way and under the bottom of the Illinois and Michigan Canal by means of a siphon. The canal commissioners adopted a resolution granting the application of the City of Chicago, after concluding that the area was adjacent to the \u201cSanitary District of Chicago\u201d and was necessary for proper local drainage. Green, 238 Ill. at 262. The Sanitary District objected, arguing that because the proposed sewer was \u201c \u2018adjunct,\u2019 \u201d or \u201c \u2018in addition to\u2019 \u201d the main channel of the District, the District was responsible for constructing the improvement and was authorized to levy and collect the assessment for construction. Green, 238 Ill. at 263. Our supreme court held that the District was intended to empower the municipalities within its limits to take charge of making their own local improvements for sewage and drainage and this sewer was purely a local improvement and should be constructed and paid for by special assessment. Green, 238 Ill. at 277-78.\nGreen is distinguishable from the present case. Unlike the Chicago street at issue in Green, here, the Subject Area was not within Frankfort\u2019s jurisdiction and was therefore not a local improvement.\nIn Berwyn, the plaintiff objected to the petition of the City of Berwyn to levy a special assessment for the cost of constructing a sewer. The record revealed that the contemplated sewer extended beyond the limits of Berwyn into Cicero. The Cicero board of trustees passed an ordinance granting Berwyn permission and authority to construct, operate, control and maintain the sewer. The defendant argued that because the land upon which Berwyn planned to construct the proposed sewer was outside the Berwyn city limits and vested by law in the Sanitary District, Berwyn could not levy the assessment and construct the sewer. The trial court dismissed Berwyn\u2019s petition, holding that the Cicero ordinance was a mere revocable license and not a grant of any right or easement in the street and, therefore, Berwyn had not acquired the land necessary for the proposed improvement. Berwyn, 255 Ill. at 499.\nOn appeal, our supreme court reversed. The court acknowledged that while a license is distinct from a grant of exclusive possession, towns are vested with control of their streets and are authorized to make or permit to be made any use not inconsistent with the purpose for which they were dedicated and therefore may permit another municipal corporation to make and maintain a sewer in their streets. Berwyn, 255 Ill. at 502-03.\nBerwyn does not support Frankfort\u2019s position that an outside entity can divert sewage treatment from the MWRD to its own disposal system. Berwyn confirmed the right of municipalities located within the Sanitary District to construct local sewers that operate to treat and transport sewage via the Sanitary District system.\nJudge addressed a similar, but inverted, citizen complaint to enjoin the trustees of the Sanitary District from constructing and maintaining a proposed system of conduits and sewers and a pumping station in the City of Evanston and from expending Sanitary District funds for such improvements. The plaintiff argued that the proposed improvements were \u201cpurely local,\u201d designed to supplement the local sewer system of Evanston and should be constructed and paid for by Evanston and by special assessment. Judge, 258 Ill. at 247. The trial court dismissed the complaint and this court affirmed, allowing appeal to the Illinois Supreme Court. Judge, 258 Ill. at 247-48.\nOur supreme court found that Evanston is wholly within the Sanitary District and that the purpose of the improvement was consistent with the primary objective of the Sanitary District: \u201cto dispose of the sewage without pollution of the waters of Lake Michigan.\u201d Judge, 258 Ill. at 250. Judge had argued that the trustees had no power to construct this improvement, but the supreme court held that \u201cthe preservation of the public health is one of the paramount objects of government,\u201d and the legislature, in the exercise of its police power, could enact any appropriate legislation to accomplish this object, or to delegate this power to cities, towns, villages and other municipal corporations which may better accomplish this \u201cparamount object.\u201d Judge, 258 Ill. at 252.\nJudge follows Green in interpreting the \u201cSanitary District Act\u201d (MWRD Act) as giving the District the exclusive authority to provide sewage treatment for the areas within its corporate District boundaries by constructing a main channel to provide a common outlet for individual sewers constructed by the municipalities. Both cases held that the municipalities retained the authority to construct sewers and provide service to their inhabitants, but that the District was responsible for the ultimate treatment and disposal of the wastewater; such treatment would be financed by the District\u2019s taxing authority. Green, 238 Ill. at 264; Judge, 258 Ill. at 253.\nIn this case, Frankfort sought to amend its FPA to provide sewage treatment and transportation for the Subject Area, separate from the MWRD system. When the IEPA discovered that the Subject Area was within the boundaries of the MWRD, the IEPA properly declined to consider Frankfort\u2019s request and returned Frankfort\u2019s application fee. The FPA amendment process is used to determine what entity will be the DMA for wastewater treatment for a given area. As the DMA of the Subject Area since 1998, the MWRD is authorized to provide overall sewage treatment and transportation for the Subject Area, even though other municipalities may construct their own sewers should their corporate boundaries fall within the Subject Area. The FPA process, therefore, did not apply to the construction of sewer lines within the Subject Area. While the Subject Area is unincorporated, it lies within Cook County, and within the MWRD. As the IEPA and the MWRD stipulated that the MWRD is authorized to determine what entity would provide sewage treatment to the Subject Area, we find no error in the determination of the MWRD to return Frankfort\u2019s application as inappropriate for consideration. The cases cited above do, in fact, support the position of the defendants that the MWRD has the exclusive authority to provide sewage treatment and transportation within its legislated District.\nFrankfort further contends that the IEPA\u2019s \u201cdeferral\u201d to the MWRD to determine its boundaries violates the Clean Water Act (33 U.S.C. \u00a7 1313(e) (2000)), the IEPA Act and the supremacy clause of the United States Constitution. Section 1313(e) of the Clean Water Act of 1977 (FCWA) (33 U.S.C. \u00a7 1313(e) (2000)) requires each state to have a continuing, unified planning process, approved by the United States Environmental Protection Agency (USEPA), resulting in a WQM plan. Frankfort argues that the Environmental Protection Act (EPA Act) (415 ILCS 5/4 et seq. (West 2000)) that establishes the IEPA as the pollution control agency for the State for all purposes of the FCWA does not mention the MWRD. Frankfort argues that there is nothing in the EPA Act that limits the IEPA\u2019s powers to determine FPA boundaries within the MWRD, nor is there any provision that vests the MWRD with any power concerning FPAs. Frankfort asserts that there is no unified state-wide system in place if the IEPA must defer to the \u201cpolitical boundaries and decisions of the MWRD.\u201d Frankfort concludes that if the MWRD Act limits the power of the IEPA to establish FPA boundaries, it is a violation of the supremacy clause because the effect is that the EPA Act has priority over the MWRD Act. Frankfort argues that the EPA Act is based on the USEPA Act and under the Constitution, \u201cfederal laws shall be the supreme law of the land.\u201d\nFrankfort mischaracterizes the statutory interaction of the IEPA and the MWRD. The IEPA does not \u201cblindly defer\u201d to the MWRD in recognizing an FPA. The legislature, responsible for creating both the IEPA and the MWRD, must implement the \u201cunified planning process\u201d for clean water. The IEPA sets forth requirements for pollution control and the MWRD ensures compliance with these regulations in the treatment and transportation of sewage within its boundaries. Courts presume that the legislature intended that two or more statutes relating to the same subject be read harmoniously so that no provisions are rendered inoperative. Knolls Condominium Ass\u2019n v. Harms, 202 Ill. 2d 450, 459 (2002). Within the stipulation entered into between the IEPA and the MWRD, the MWRD has the authority to regulate, via permit, entities seeking to connect to the MWRD, while the IEPA will issue permits if the applicant can demonstrate that its collection and transportation of wastewater will not cause, threaten or allow water pollution in violation of the EPA Act. The IEPA and the MWRD, in fact, work in tandem.\nFrankfort\u2019s further argument that defendants\u2019 interpretation of the MWRD Act conflicts with the FCWA, thus rendering the MWRD Act inoperative under the supremacy clause, is erroneous. The supremacy clause makes federal law \u201cthe supreme Law of the Land.\u201d U.S. Const., art. VI, cl. 2. As such, federal statutes and regulations properly enacted and promulgated \u201c \u2018can nullify conflicting state or local actions.\u2019 \u201d National Home Equity Mortgage Ass\u2019n v. Face, 239 F.3d 633, 637 (4th Cir. 2001), quoting Worm v. American Cyanamid Co., 970 F.2d 1301, 1304-05 (4th Cir. 1992). State law is preempted under the supremacy clause in three circumstances: (1) when Congress has clearly expressed an intention to do so (\u201cexpress preemption\u201d); (2) when Congress has clearly intended, by legislating comprehensively, to occupy an entire field of regulation (\u201cfield preemption\u201d); and (3) when a state law conflicts with federal law (\u201cconflict preemption\u201d). Van Der Molen v. Washington Mutual Finance, Inc., 359 Ill. App. 3d 813, 819, 835 N.E.2d 61 (2005). In reviewing a claim of preemption under the supremacy clause, courts must presume that Congress did not intend to displace state law. Resource Technology Corp. v. Illinois Commerce Comm\u2019n, 354 Ill. App. 3d 895, 900 (2004).\nFrankfort has not specified which of the three types of preemption allegedly applies to the present case. The IEPA argues that because Frankfort did not describe any express preemption, either field preemption or conflict preemption must be assumed. Implied field preemption arises only when the federal regulation is so pervasive in a particular area that there is no room left for the state to regulate on the same subject. Implied field preemption, however, does not apply here, as courts have held that the \u201cClean Water Act does not occupy the entire field of water pollution control and abatement.\u201d Valstad u. Cipriano, 357 Ill. App. 3d 905, 923 (2005). Finally, the facts of the present case do not support an allegation of conflict preemption, as there is no such conflict between the MWRD Act and the FCWA. The decision of the legislature to allow both the MWRD and the IEPA to participate in the statewide process of sewage management does not fall under any of the three circumstances under which the supremacy clause is violated. The process of involving both the IEPA and the MWRD in the goal of clean water does not create any disunity in violation of federal law.\nUnder the specific facts and circumstances of this case, Frankfort has failed to allege any facts showing that the MWRD does not have the exclusive authority to provide sewage treatment facilities for the Subject Area, which falls within the legislative boundaries of the MWRD. The NIPC properly returned Frankfort\u2019s application and paid fee once the Subject Area was found to lie within the MWRD District. The stipulation between the MWRD and the IEPA clarified that the NIPC and the IEPA have no role in determining what entity has the right to provide sewer services to the Subject Area because it was annexed to the MWRD by law in 1998. We therefore conclude that the trial court properly dismissed Frankfort\u2019s second amended complaint for failure to state a cause of action pursuant to section 2 \u2014 615 of the Code of Civil Procedure.\nAffirmed.\nGREIMAN and MURPHY, JJ., concur.", "type": "majority", "author": "JUSTICE CAMPBELL" } ], "attorneys": [ "Mahony, Silverman & Cross, Ltd., of Joliet (James A. Murphy, of counsel), for appellant.", "Metropolitan Water Reclamation District of Greater Chicago, of Chicago (Frederick M. Feldman, Diane Shelley, and Ronald M. Hill, of counsel), for appellee Metropolitan Water Reclamation District of Greater Chicago.", "Lisa Madigan, Attorney General, of Chicago (Gary Feinerman, Solicitor General, and Ellen B. Stanfield, Assistant Attorney General, of counsel), for appellee Environmental Protection Agency.", "Rosenthal, Murphey & Coblentz, of Chicago (John B. Murphey, of counsel), for appellee Village of Richton Park." ], "corrections": "", "head_matter": "THE VILLAGE OF FRANKFORT, Plaintiff-Appellant, v. THE ENVIRONMENTAL PROTECTION AGENCY et al, Defendants-Appellees.\nFirst District (4th Division)\nNo. 1-05-1929\nOpinion filed June 30, 2006.\nMahony, Silverman & Cross, Ltd., of Joliet (James A. Murphy, of counsel), for appellant.\nMetropolitan Water Reclamation District of Greater Chicago, of Chicago (Frederick M. Feldman, Diane Shelley, and Ronald M. Hill, of counsel), for appellee Metropolitan Water Reclamation District of Greater Chicago.\nLisa Madigan, Attorney General, of Chicago (Gary Feinerman, Solicitor General, and Ellen B. Stanfield, Assistant Attorney General, of counsel), for appellee Environmental Protection Agency.\nRosenthal, Murphey & Coblentz, of Chicago (John B. Murphey, of counsel), for appellee Village of Richton Park." }, "file_name": "0649-01", "first_page_order": 667, "last_page_order": 678 }