CLAYTON, Justice.
Our prior opinion in this cause is withdrawn, and this opinion is substituted in lieu thereof.
Appellant, City of Manvel, filed suit in the district court of Travis County against the Texas Department of Health Resources (hereinafter referred to as Department) and the City of Pearland, appealing from the administrative order of the Department granting the City of Pearland a permit to operate a sanitary landfill within the corporate limits...
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