Untitled Texas Attorney General Opinion ( 2015 )


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  •                                                KEN PAXTON
    ATTORNEY GENERAL OF TEXAS
    December 4, 2015
    The Honorable Donna Bahorich                                 Opinion No. KP-0043
    Chair, State Board of Education
    1701 North Congress Avenue                                   Re: Authority of the State Board of
    Austin, Texas 78701-1494                                     Education to promulgate rules govelning the
    process used by school districts and charter
    schools in selecting instructional materials
    (RQ-0026-KP)
    Dear Ms. Bahorich:
    Your predecessor asked seven questions related to the authority of the State Board of
    Education ("SBOE") to promulgate rules regulating the process by which school districts and
    open-enrollment charter schools select instructional materials. 1 Alongside the seven questions
    relating to SBOE's authority to enact specific rules, your predecessor asked the general question
    of whether SBOE's "authority extend[s] to all local adoptions of instructional materials regardless
    of whether the materials are purchased from [SBOE's] list of adopted instructional materials."
    Request Letter at 2.
    To answer this general question, a review of the statutes explaining SBOE's and the school
    districts' respective authority is helpful. The Legislature has provided that SBOE "may perform
    only those duties relating to school districts or regional education service centers assigned to.
    [SBOE] by the constitution of this state or by this subchapter or another provision of this code."
    TEX. EDUC. CODE§ 7.102(a). "The school districts and charter schools created in accordance with
    the laws of this state have the primary responsibility for implementing the state's system of public
    education and ensuring student performance in accordance with this code." 
    Id. § 11.002.
    "The
    trustees of [an independent school district] have the exclusive power and duty to govern and
    oversee the management of the public schools of the district." 
    Id. § 11.151
    (b). "All powers and
    duties not specifically delegated by statute to [the Texas Education Agency or SBOE] are reserved
    for the trustees, and the agency may not substitute its judgment for the lawful exercise of those
    powers and duties by the trustees." 
    Id. Chapter 31
    of the Education Code governs the approval and adoption of instructional
    materials. 
    Id. §§ 31.001-.153.
    Subchapter A, titled "General Provisions," includes two relevant
    sections. Section 31.003 provides: "The State Board of Education may adopt rules, consistent with
    1
    See Letter from Honorable Barbara Cargill, Chair, State Bd. of Educ., to Honorable Ken Paxton, Tex. Att'y
    Gen. at 2 (June 8, 2015), https://texasattomeygeneral.gov/opinion/requests-for-opinions-rqs ("Request Letter"). Upon
    becoming Chair of SBOE, you asked that we proceed with the opinion. See Letter from Honorable Donna Bahorich,
    Chair, State Bd. of Educ., to Virginia Hoelscher, Chair, Op. Comm. (July 17, 2015) (on file with the Op. Comm.).
    The Honorable Donna Bahorich - Page 2              (KP-0043)
    this chapter, for the adoption, requisition, distribution, care, use, and disposal of instructional
    materials." 
    Id. § 31.003.
    Section 31.004 requires school districts and open-enrollment charter
    schools to determine annually whether students have instructional materials that cover the essential
    knowledge and skills ("TEKS") and to "certify to [SBOE] and the commissioner [of education]
    that ... the district provides each student with instructional materials that cover all elements of the
    [TEKS]." 
    Id. § 3
    l.004(a). In determining whether each student has the necessary instructional
    materials, a school district or open-enrollment charter school may consider, among other things,
    the instructional materials adopted by SBOE and materials "developed or purchased by the school
    district or open-enrollment charter school." Id.§ 31.004(b)(l), (5).
    Subchapter B of chapter 31, titled "State Funding, Adoption, and Purchase," provides
    specific mandates to SBOE regarding its duties related to textbook adoption. Section 31.023
    requires SBOE to "adopt a list of instructional materials" for each subject and grade level. 
    Id. § 3
    1.023(a). The list is to include "each instructional materi~l submitted [by a publisher] for the
    subject and grade level that ... contains material covering at least half of the elements of the
    [TEKS]." 
    Id. Separately, the
    commissioner of education must adopt a list of materials with regard
    to certain subjects, grade levels, and types of material. 
    Id. § 3
    1.0231. Section 31.024 requires
    SBOE to "provide the list of adopted instructional materials to each school district" not later than
    December 1 of the year preceding the school year for which the materials will be purchased. 
    Id. § 3
    1.024(b).
    Subchapter C of chapter 31, titled "Local Operations," outlines the authority and duties of
    school districts and open-enrollment charter schools with regard to instructional materials. Section
    31. l 01 provides:
    (a) Each year, during a period established by [SBOE], the board of
    trustees of each school district and the governing body of each
    open-enrollment charter school shall:
    (1) for a subject in the foundation curriculum, notify [SBOE] of
    the instructional materials selected by the board of trustees
    or governing body for the following school year from the
    instructional materials list, including the list adopted under
    Section 31.0231; or
    (2) for a subject in the enrichment curriculum:
    (A) notify [SBOE] of each instructional material selected by
    · the board of trustees or governing body for the following
    school year from the instructional materials list,
    including the list adopted under Section 31.0231; or
    (B) notifj; [SBOE] that the board of trustees or governing
    body has selected instructional material that is not on the
    list.
    The Honorable Donna Bahorich - Page 3                      (KP-0043)
    
    Id. § 3
    1.101 (emphasis added). 2 Section 31.106 provides that "[i]n addition to any instructional
    material selected under this chapter, a school district or open-enrollment charter school may use
    local funds to purchase any instructional materials." 
    Id. § 3
    1.106.
    In determining the extent of SBOE's rulemaking authority with regard to the adoption of
    textbooks, we must analyze the statute granting that authority alongside the statutory provisions
    addressing SBOE's and the school district's and open-enrollment charter school's respective
    authorities. See In re Bridgestone Ams. Tire Operations, L.L.C., 
    459 S.W.3d 565
    , 572 (Tex. 2015)
    ("We analyze statutory language in context, considering the specific section at issue as well as the
    statute as a whole."). While section 31.003 gives SBOE rulemaking authority over the adoption
    of textbooks, that authority must be considered alongside the legislative mandate that "[a]ll powers
    and duties not specifically delegated by statute to [the Texas Education Agency or SBOE] are
    reserved for the trustees, and the agency may not substitute its judgment for the lawful exercise of
    those powers and duties by the trustees." TEX. EDUC. CODE§§ ll.151(b),.31.003 (emphasis
    added). Texas courts have observed that the word "specifically" means "with exactness and
    precision: in a definite manner." Medlin v. Medlin, 
    830 S.W.2d 353
    , 354 (Tex. App.-Amarillo
    1992, writ denied) (quotation marks omitted); see also Collins v. Smith, 
    175 S.W.2d 407
    , 409 (Tex.
    1943) (defining "specify" as "to mention or name in a specific or explicit manner" (quotation
    marks omitted)). Thus, in answering your predecessor's questions about SBOE's authority to
    regulate school district and open-enrollment charter school adoption of instructional materials, we
    must look to what SBOE has been "specifically delegated by statute." TEX. EDUC. CODE
    § l l.151(b).
    Your predecessor first asked whether SBOE by rule may "require public schools to follow
    a process in the local adoption of instructional materials that allows for public input and
    participation during the local review and adoption process." Request Letter at 2. As discussed
    above, SBOE is authorized to "adopt rules, consistent with [chapter 31 of the Education Code], for
    the adoption, requisition, distribution, care, use, and disposal of instructional materials." TEX.
    EDUC. CODE § 31.003. Chapter 31 contains no mention of public input and participation with
    regard to the adoption of instructional materials. Cf 
    id. § 28.002(c)
    (requiring SBOE "with the
    direct participation of ... parents" to identify the essential knowledge and skills of each subject).
    Thus, a court. would likely determine that no statute specifically delegates to SBOE the authority
    to require school districts to adopt a public input and participation process, and such a rule would
    exceed SBOE's rulemaking authority. 3
    Your predecessor asked in her second question whether SBOE by rule may "require public
    schools to adopt procedures ensuring prior local approval of changes in content made by a
    publisher to instructional materials that are not purchased from [SBOE's] approved list." Request
    2
    Section 28.002 of the Education Code explains that "foundation curriculum" includes English, math,
    science, and social studies; ~'enrichment curriculum" includes other languages, health, physical education, fine arts,
    career and technology education, technology applications, religious literature, and financial literacy. TEX. EDUC.
    CODE § 28.002(a).
    3
    Whether school districts could independently provide for a public input and participation process before
    they adopt instructional materials is a separate question that we do not address.
    The Honorable Donna Bahorich - Page 4            (KP-0043)
    Letter at 2. She explained that such a rule would require the school district to "grant approval to
    a publisher before the publisher [could] change [the] content ofinstructional materials purchased
    by a public school that were not on [SBOE's] approved list." 
    Id. at 5.
    Chapter 31 requires that a
    publisher's materials must be free from factual error; however, nothing in chapter 31 speaks to
    requiring a publisher to obtain approval from a school district before making any changes in
    content. See TEX. EDUC. CODE§ 31.15l(a)(9) (requiring publishers to certify that instructional
    materials are free of factual errors). It seems reasonable, however, for SBOE to require publishers
    to notify it of changes made to the content of materials, as it has done through ari administrative
    rule. See 19 TEX. ADMIN. CODE§ 66.79 (2015). A school district could adopt its own policy or a
    contract term with a publisher, requiring this on the local level, as SBOE has done on the state
    level. A court would likely conclude, however, that the Legislature has not specifically delegated
    authority to SBOE to require school districts to do so.
    In her third question, your predecessor asked whether SBOE may by rule "require public
    schools to specify which TEKS are covered by each locally-adopted instructional material and
    make this information publically available" and whether SBOE may "impose a requirement on
    public schools to identify which passage(s) in each of those instructional materials cover(s) which
    specific elements of the TEKS." Request Letter at 2.
    Section 31.004 of the Education Code requires:
    Each school district and open-enrollment . charter school shall
    annually certify to [SBOE] and the commissioner [of education]
    that, for each subject in the required curriculum under Section
    28.002, other than physical education, and each grade level, the
    district provides each student with instructional materials that cover
    all elements of the essential knowledge and skills adopted by
    [SBOE] for that subject and grade level.
    TEX. EDUC. CODE§ 31.004(a) (emphasis added). Subsection 31.004(b) establishes that it is the
    school district or open-enrollment charter school that "determine[s] whether each student has
    instructional materials that cover all elements of the essential knowledge and skills." 
    Id. § 3
    l.004(b).
    Common understandings of the word "certify" include "[t]o attest as being true or as
    meeting certain criteria," and "attest or confirm in a formal statement." BLACK'S LA w
    DICTIONARY 258 (9th ed. 2009); NEW OXFORD AM. DICTIONARY 284 (3d ed. 2010). Had the
    Legislature intended that school districts be required to provide documentation or evidence
    alongside the certification, it could have required them to do so. Instead, the Legislature required
    a school district to certify, or· confirm, to SBOE only that its instructional materials cover all
    elements of the TEKS. TEX. EDUC. CODE § 3 l.004(a). As your predecessor noted, "there is no
    provision in statute that requires a public school to identify where in the instructional materials
    each of the TEKS is covered." Request Letter at 5. Thus, because the Legislature has not
    "specifically delegated" to SBOE the authority to require public schools to specify which TEKS
    are covered by each locally-adopted instructional material, requiring this by rule would appear to
    exceed SBOE's rulemaking authority. See TEX. EDUC. CODE§ l l.15l(b).
    The Honorable Donna Bahorich - Page 5                (KP-0043)
    Your predecessor asked in her fourth question whether SBOE may "by rule establish an
    administrative penalty for a publisher who fails to correct a factual error identified by a public
    school contained in an instructional material that was not on [SBOE's] approved list." Request
    Letter at 2. Section 31.151 of the Education Code requires a publisher of instructional materials
    to "guarantee that each copy of instructional material sold in this state is ... free from factual
    error" and to "submit to [SBOE] an affidavit certifying any instructional material the publisher ...
    offers in this state to be free of factual errors at the time the publisher executes" its required contract
    with SBOE. TEX. EDUC. CODE § 31.15l(a)(4), (9). That section further authorizes SBOE to
    "impose a reasonable administrative penalty against a publisher or manufacturer who knowingly
    violates" those requirements. 
    Id. § 3
    1.151 (b). Thus, the statute authorizes SBOE to impose an
    administrative penalty on a publisher that violates section 31.151 by selling instructional materials
    that contain factual errors about which they have been notified. See Tex. Att'y Gen. Op. No. GA-
    . 0823 (2010) at 6 ("subchapter D, chapter 31 of the Education Code authorizes the SBOE to impose
    an administrative penalty on a university [publisher]" for violating that subchapter). Pursuant to
    this provision, SBOE has already adopted a rule authorizing a penalty "for failure to correct a
    factual error." 19 TEX. ADMIN. CODE § 66.10 (2015). The broad language in this statute would
    appear to allow a penalty regardless of which entity identifies the factual error. The validity of
    any specific rule could be determined only after analyzing its specific requirements.
    In her fifth question, your predecessor asked whether SBOE may "by rule require public
    schools to develop conflicts of interest policies and require public schools and publishers to keep
    contact registers between school officials and publishers." Request Letter at 2. Section 31.152 of
    the Education Code provides, in part:
    (a) A school trustee, administrator, or teacher commits an offense ifthat
    person receives any commission or rebate on any instructional
    materials or technological equipment used in the schools with which
    the person is associated as a trustee, administrator, or teacher.
    (b) A school trustee, administrator, or teacher commits an offense if the
    person accepts a gift, favor, or service that:
    (1) is given to the person or the person's school;
    (2) might reasonably tend to influence a trustee, administrator, or
    teacher in the selection of instructional material or technological
    equipment; and
    (3) could not be lawfully purchased with state instructional
    materials funds.
    (c) An offense under this section is a Class B misdemeanor.
    TEX. EDUC. CODE§ 31.152(a)-(c). Nothing in the statute suggests that SBOE is authorized to
    require school districts to develop their own individual policies regarding conflicts of interests or
    The Honorable Donna Bahorich - Page 6             (KP-0043)
    keep contact registers, and requiring such policies would therefore likely exceed SBOE's
    rulemaking authority.
    In her sixth question, your predecessor asked whether SBOE may "by rule require a public
    school to adopt only instructional materials that provide an end-of-section review exercise, an end-
    of-chapter activity, a unit test, or its electronic equivalent, documenting TEKS coverage in the
    student version when purchasing instructional materials that are not on [SBOE's] approved list."
    Request Letter at 2. Chapter 31 does not address end-of-section review exercises or testing, and
    an SBOE rule mandating that school districts require them would likely exceed SBOE's
    rulemaking authority.
    In her final question, your predecessor asked whether SBOE may "by rule require a public
    school to ensure that all locally-adopted instructional materials that are not on [SBOE's] approved
    list comply with Texas Education Code section 28.002(h)," and, in the alternative, whether
    "section 28.002(h) impose[s] a mandate on public schools to ensure that locally-adopted
    instructional materials meet that requirement." 
    Id. at 2.
    Subsection 28.002(h) states:
    The State Board of Education and each school district shall foster
    the continuation of the tradition of teaching United States and Texas
    history and the free enterprise system in regular subject matter and
    in reading courses and in the adoption of instructional materials. A
    primary purpose of the public school curriculum is to prepare
    thoughtful, active citizens who understand the importance of
    patriotism and can function productively in a free enterprise society
    with appreciation for the basic democratic values of our state and
    national heritage.       ·
    TEX. EDUC. CODE § 28.002(h). Under the plain language of subsection 28.002(h), a school district
    must offer instruction in United States and Texas history and the free enterprise system ~nd must
    adopt instructional materials accordingly. See TEX. Gov'T CODE § 311.016(2) ('"Shall' imposes
    a duty."). Furthermore, in accordance with the second sentence in subsection (h), a school district
    should ensure that its curriculum emphasizes patriotism and democratic values. Because the
    Legislature has not specifically delegated authority to SBOE to ensure school district compliance
    with section 28.002, a rule doing so would likely exceed SBOE's rulemaking authority.
    When the Legislature delegates authority, and establishes broad standards, it generally
    leaves to the agency the making of rules and the determination of facts to effectuate the legislative
    policy. R.R. Comm 'n ofTex. v. Lone Star Gas Co., 
    844 S.W.2d 679
    , 689 (Tex. 199_2). With regard
    to textbooks, however, the Legislature has delegated authority to multiple entities: SBOE, TEA,
    and individual school districts. While the rules proposed by your predecessor with regard to the
    local adoption of textbooks may well be permitted in the absence of this multifaceted delegation,
    SBOE's powers are restricted by the authority granted by the Legislature to the individual school
    districts and must be considered in that light.
    The Honorable Donna Bahorich - Page 7            (KP-0043)
    SUMMARY
    The Legislature has provided, pursuant to section 11.151 of
    the Education Code, that with regard to the regulation of school
    districts, the State Board of Education ("SBOE") has only those
    powers and duties "specifically delegated by statute," and that
    SBOE "may not substitute its judgment for the lawful exercise of
    those powers and duties by the trustees" of the school districts.
    The Legislature has not specifically delegated authority to
    SBOE to require school districts, in their adoption of instructional
    materials, to: (1) adopt a public input and participation process; (2)
    adopt procedures ensuring prior local approval of changes in content
    made by a publisher to instructional materials that are not purchased
    from SBOE's approved list; (3) specify which essential knowledge
    and skills ("TEKS") are covered by each locally-adopted
    instructional material and identify which passages in each of those
    instructional materials cover which specific elements of the TEKS;
    or (4) develop conflicts of interest policies and require public
    schools and publishers to keep contact registers between school
    officials and publishers.
    Section 31.151 of the Education Code authorizes SBOE to
    impose a reasonable administrative penalty against a publisher or
    manufacturer who knowingly violates the requirement that its
    instructional materials be free from factual errors. Because the
    statute does not specify the entity that must identify the factual error,
    SBOE has authority to impose an administrative penalty against a
    publisher for a factual error identified by a school district.
    Subsection 28.002(h) of the Education Code requires a
    school district to offer instruction in United States and Texas history
    and the free enterprise system and adopt instructional materials
    accordingly. It also requires that a school district ensure that its
    curriculum emphasizes patriotism and democratic values. Because
    the Legislature has not specifically delegated authority to SBOE to
    ensure school district compliance with subsection 28.002(h), a rule
    doing so would likely exceed SBOE's rulemaking authority.
    Very truly yours,
    ~?~
    KEN PAXTON
    Attorney General of Texas
    The Honorable Donna Bahorich - Page 8           (KP-0043)
    CHARLES E. ROY
    First Assistant Attorney General
    BRANTLEY STARR
    Deputy Attorney General for Legal Counsel
    VIRGINIA K. HOELSCHER
    Chair, Opinion Committee
    Assistant Attorney General, Opinion Committee
    

Document Info

Docket Number: KP-0043

Judges: Ken Paxton

Filed Date: 7/2/2015

Precedential Status: Precedential

Modified Date: 2/10/2017