The Texas Agriculture Code, §74.1042, provides the commissioner of agriculture with the authority, by rule, to designate an area of the state as a proposed eradication zone as long as the area is not within a statutory eradication zone that has approved an eradication program by referendum. Senate Bill 1814, 75th R.S. ch. 463, §1.27(d) (SB 1814, §1.27(d)), provides the commissioner with the authority, by rule, to divide a statutory eradication zone, after solicitation and consideration of public opinion and to fairly apportion any debt to each portion of an eradication zone divided by rule in accordance with SB 1814, §1.27(d).