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 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 of agriculture with the authority, by rule, to divide a statutory zone, after solicitation and consideration of public opinion and to fairly apportion any debt to each portion of a zone divided by rule in accordance with SB 1814, §1.27(d).