HB 5083

relating to the adoption and review of rules by state agencies.
BE IT ENACTED BY THE LEGISLATURE OF THE STATE OF TEXAS:
SECTION 1.  Section 28.002(m), Education Code, is amended to
(m)  Section 2001.0395 [2001.039], Government Code, [as
added by Chapter 1499, Acts of the 76th Legislature, Regular
Session, 1999,] does not apply to a rule adopted by the State Board
of Education under Subsection (c) or (d).
SECTION 2.  Subchapter A, Chapter 2001, Government Code, is
amended by adding Section 2001.008 to read as follows:
Sec. 2001.008.  EXPRESS STATUTORY AUTHORITY FOR RULE OR
GUIDANCE DOCUMENT REQUIRED.  (a)  In this section, "guidance
document" means any letter, opinion, compliance manual, or other
statement issued by a state agency that explains or interprets one
or more of the state agency's rules.
(b)  A state agency may not adopt a rule or issue a guidance
document unless the agency has been granted an express statutory
delegation of authority to adopt the rule or issue the guidance
(c)  For purposes of Subsection (b), a state agency does not
have an express statutory delegation of authority to adopt a rule or
issue a guidance document solely because the rule or guidance
document is reasonably related to the purpose of the state agency's
enabling legislation or to a general statutory power or duty of the
SECTION 3.  Subchapter B, Chapter 2001, Government Code, is
amended by adding Section 2001.0227 to read as follows:
Sec. 2001.0227.  CERTAIN RULES PROHIBITED BASED ON COSTS OF
COMPLIANCE; COST-BENEFIT ANALYSES REQUIRED.  (a)  A state agency
shall prepare a cost-benefit analysis for each proposed rule as
(b)  The cost-benefit analysis must include:
(1)  a cost-benefit analysis estimating for each year
of the first six years that the rule will be in effect:
(A)  the public benefits expected as a result of
(B)  the expected economic costs to persons
required to comply with the rule;
(2)  an explanation of all assumptions, methods,
supporting data, and, if any, discount rates used in preparing the
(3)  a clear statement of the total expected economic
costs to persons required to comply with the rule and the total
public benefits expected as a result of the adoption of the rule.
(c)  A state agency may not adopt a proposed rule:
(1)  for which the cost-benefit analysis under
Subsection (b) states that the total expected economic costs to
comply with the rule exceed the total public benefits expected as a
result of the adoption of the proposed rule; or
(2)  if there are alternative methods of regulation
that could accomplish the legislature's intent in authorizing the
rule and any statutory purposes provided by the legislature at a
lower economic cost to persons required to comply with the rule.
(d)  If the proposed rule takes effect and remains in effect
at least six years, the state agency shall:
(1)  solicit from interested stakeholders data
regarding the stakeholders' experience and actual economic costs of
(2)  conduct a retrospective cost-benefit analysis
(A)  estimates made under Subsection (b)(1)
regarding the economic costs of compliance; and
(B)  the actual economic costs of compliance based
on the data provided under Subdivision (1) and any other readily
available data relevant to this purpose.
(e)  If a state agency uses a discount rate in preparing an
analysis under Subsection (b) or (d), the state agency shall
(1)  a reasoned justification for the use of the
(2)  another cost-benefit analysis for the same rule
that does not include the use of the discount rate.
(f)  A state agency that prepares an analysis under
Subsection (b) or (d) shall publish on the agency's publicly
accessible Internet website all documentation and other materials
used to prepare the analysis in a machine-readable format.
(g)  A reference to an existing rule under this section
includes any amendments to the rule, and, to the extent feasible,
the state agency shall prepare the analysis required under
Subsection (b) based on the terms of the rule as amended.
SECTION 4.  Section 2001.024(a), Government Code, is amended
(a)  The notice of a proposed rule must include:
(1)  a brief explanation of the proposed rule;
(2)  the text of the proposed rule, except any portion
omitted under Section 2002.014, prepared in a manner to indicate
any words to be added or deleted from the current text;
(3)  a statement of the statutory or other authority
under which the rule is proposed to be adopted, including:
(A)  a concise explanation of the particular
statutory or other provisions under which the rule is proposed;
(B)  the section or article of the code affected;
(C)  if applicable, the bill number for the
legislation that enacted the statutory authority under which the
rule is proposed to be adopted if the legislation was enacted during
the four-year period preceding the date notice of the proposed rule
(D)  a certification that the proposed rule has
been reviewed by legal counsel and found to be within the state
(4)  a fiscal note showing the name and title of the
officer or employee responsible for preparing or approving the note
and stating for each year of the first five years that the rule will
(A)  the additional estimated cost to the state
and to local governments expected as a result of enforcing or
(B)  the estimated reductions in costs to the
state and to local governments as a result of enforcing or
(C)  the estimated loss or increase in revenue to
the state or to local governments as a result of enforcing or
(D)  if applicable, that enforcing or
administering the rule does not have foreseeable implications
relating to cost or revenues of the state or local governments;
(5)  the cost-benefit analysis required under Section
2001.0227 [a note about public benefits and costs showing the name
and title of the officer or employee responsible for preparing or
approving the note and stating for each year of the first five years
that the rule will be in effect:
[(A)  the public benefits expected as a result of
adoption of the proposed rule; and
[(B)  the probable economic cost to persons
required to comply with the rule];
(6)  the local employment impact statement prepared
under Section 2001.022, if required;
(7)  a request for comments on the proposed rule from
(8)  any other statement required by law.
SECTION 5.  Section 2001.033, Government Code, is amended by
amending Subsection (a) and adding Subsection (c) to read as
(a)  A state agency order finally adopting a rule must
(1)  a reasoned justification for the rule as adopted
(A)  a summary of comments received from parties
interested in the rule that shows the names of interested groups or
associations offering comment on the rule and whether they were for
(B)  a summary of the factual basis for the rule as
adopted which demonstrates a rational connection between the
factual basis for the rule and the rule as adopted; and
(C)  the reasons why the agency disagrees with
party submissions and proposals;
(2)  a concise restatement of the particular statutory
provisions under which the rule is adopted and of how the agency
interprets the provisions as authorizing or requiring the rule;
(3)  a certification that the rule, as adopted, has
been reviewed by legal counsel and found to be a valid exercise of
the agency's legal authority; and
(4)  the cost-benefit analysis required under Section
2001.0227 updated to reflect reasonable public commentary on the
state agency's calculations of the costs and benefits of the rule or
a reasoned justification for why the agency did not update the
cost-benefit analysis based on the public commentary.
(c)  A state agency rule may not be arbitrary or capricious.
SECTION 6.  Section 2001.038, Government Code, is amended by
adding Subsection (g) to read as follows:
(g)  A respondent subject to an enforcement action by a state
agency for the violation of a rule may request a declaratory
judgment from the court finding a rule invalid if the state agency
lacks express statutory delegation of authority to adopt the rule
on which the enforcement action is based, including if the state
agency relies on a guidance document to interpret the rule for
purposes of the enforcement action.  A court shall award a
respondent that prevails on the ground provided by this subsection
reasonable attorney's fees and court costs.  For purposes of this
section, "guidance document" has the meaning assigned by Section
SECTION 7.  Subchapter B, Chapter 2001, Government Code, is
amended by adding Sections 2001.0395 and 2001.042 to read as
Sec. 2001.0395.  EXPIRATION OF RULES.  (a)  Each state agency
rule expires on the 12th anniversary of the rule's effective date
unless the state agency that adopted the rule readopts the rule
before the rule's expiration date in accordance with this section.
(b)  The expiration date for a readopted rule is the 12th
anniversary of the readopted rule's effective date.
(c)  The adoption of an amendment to an existing rule does
not affect the expiration date of the rule under this section unless
the amendment is made as part of a readoption of the entire rule or
chapter of the Texas Administrative Code containing the amended
(d)  The procedures of this subchapter required for the
adoption of a rule apply to the readoption of a rule under this
(1)  preparing a cost-benefit analysis under Section
(2)  providing opportunity for public comment under
(3)  responding to substantive public comments, as
required under Section 2001.033(a)(1)(C); and
(4)  providing an updated cost-benefit analysis under
(e)  In readopting a rule under this section, a state agency
(1)  provide an assessment of whether the reasons for
initially adopting the rule continue to exist;
(2)  provide an assessment of whether the rule is
obsolete, unnecessary, or duplicative or conflicts with other
(3)  consider public comments that provide data and
information on the actual economic costs to persons required to
(4)  to the fullest extent practicable, base estimates
on expected economic costs to persons required to comply with the
rule on data and information described by Section 2001.0227(d)(1);
(5)  publish all notices, analyses, and responses to
public comments on the state agency's publicly accessible Internet
(f)  Each state agency shall with respect to the state
(1)  publish on the state agency's publicly accessible
Internet website the expiration date for each rule; and
(2)  make the expiration date of each rule available
through an application programming interface that allows automated
access and monitoring of the rules' expiration dates.
(g)  The secretary of state shall include a rule's expiration
date in the online publication of the Texas Administrative Code in a
standardized metadata field that accompanies each section of the
(h)  Notwithstanding any other provision of this section, a
rule does not expire under this section if the governor in writing
exempts a rule from the application of this section.  On the written
request from a state agency, the governor shall exempt a rule that:
(A)  to comply with federal law; or
(B)  because federal funding is conditioned on the
(2)  is authorized or required by the constitution.
(i)  A state agency that administers a rule exempted under
Subsection (h) shall every 12 years after the date of the exemption
consider less burdensome alternatives to the rule, solicit public
commentary on those potential alternatives, and in determining
whether to adopt less burdensome alternatives, calculate the
expected economic costs to persons required to comply with the rule
based on data and information provided by persons subject to the
(j)  On written request by a state agency, the governor may
extend a rule's expiration date under this section for a period not
to exceed one year following the date on which the extension is
granted.  A written request under this subsection to extend a rule's
(1)  explain the reason the state agency cannot
complete the readoption of the rule under this section before the
(2)  describe the harm to the public's health, safety,
or welfare that would result if the rule expired.
(k)  Any extension granted under Subsection (j) must be
accompanied by findings affirming the conditions described by
Sec. 2001.042.  CERTAIN ENFORCEMENT ACTIONS INVALID
REGARDLESS OF COMMENCEMENT DATE.  An enforcement action brought by
a state agency shall be dismissed if the enforcement action is based
on the violation of a rule that expired, regardless of whether the
enforcement action commenced before the date the rule expired.
SECTION 8.  Section 801.022(e), Occupations Code, is amended
(e)  Not later than December 31, 2026, the department shall
conduct a review under former Section 2001.039, Government Code, of
each rule under 22 T.A.C. Part 24.  In conducting the review under
this subsection, the department shall ensure that license holders
and the public have a meaningful opportunity to provide input and
recommend changes to the rules.
SECTION 9.  Section 2001.039, Government Code, is repealed.
SECTION 10.  (a)  Notwithstanding Section 2001.0395,
Government Code, as added by this Act, a state agency shall assign
the state agency's rules that exist on the effective date of this
section eight different expiration dates for the purpose of
staggering the expiration dates of the rules and implementing that
(b)  An expiration date assigned to a rule under this section
may not be later than January 1, 2040.
(c)  Not later than December 1, 2025, each state agency shall
report to the governor the expiration dates assigned under this
(d)  The governor shall publish on the office's publicly
accessible Internet website a schedule of all the expiration dates
(e)  This section takes effect September 1, 2025.
SECTION 11.  The changes in law made by this Act to
Subchapter B, Chapter 2001, Government Code, apply only to a
proposed state agency rule for which notice is filed with the
secretary of state under Section 2001.023, Government Code, on or
after the effective date of this Act.
SECTION 12.  Except as otherwise provided by this Act, this
Act takes effect January 1, 2026.