LEE YEAKEL, Justice.
This appeal arises from a dispute between appellant Richard Quimby, a licensed tow truck operator, and appellee Texas Department of Transportation ("TxDOT") concerning the construction and enforcement of a provision of the Texas Motor Carrier Rules and Regulations setting forth the requirements for the release of a motor vehicle from a vehicle storage facility ("VSF") to a tow truck operator. See 43 Tex.Admin.Code § 18.92(a)(2) (1999...
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