DAN MORALES

ATTORSEY CENERAL 

## QBffice

of tty Wxnep Btate of Qexae April22,1996 

## General

The HonorableChrisHarris Chair Senate

### Committee

on Administration Texas State Senate P.O. Box 12068 Austin,Texas 78711 Opiion No. DM-386

RC: Whether the Texas Education AS-Y my, under V.T.C.S. article 4413(29c), section 94 supply cc&icates of completionto a public school in the state whose driver education course does not meet the standards of and has not been approved by the Texas Education Agency
or the Department of Public Safety and related questions (RQ-839)

Dear Senator Harris:

You have requested our opinionas to whether the CentralEducation Agency may, under article 4413(29c), section 9A, V.T.C.S., supply certificates of completion to a public school in the state whose driver education course does not meet the standards of and has not been approved by the CentralEducation Agency or the Depamnent of Public Safety.~ You also ask whether a driving safety course that the State Board of Education has approved “c4xditionaUy” or “temporarily prior to September 1,1995. must be finally approved at&r September 1,199s.

Your questions require us to construe the Texas Driver and Tratlic Safety Education Act (the “act”), V.T.C.S. article4413(29c). The act purports to regulate both driver training and driving safety courses. See V.T.C.S. art. 4413(29c), 0 2. As you arplain, a driver education course teaches a student “how to drive, inchuiing the laws applicableto operating a motor vehicle.” See id. 8 3(4). A driving safety course, on the other hand, teaches a licenseddriver how to be.a better driver. See id. 8 3(6). Under the act, the Central Education Agency is authorki to regulate and oversee the system of driver education and driving safety schools. Id.84(a). Preliinarily, we note that the Central Bducation Agency is equivalent to the Texas Education Agency. “Areferencein lawto the CentralEducation Agency meansthe Texas Education Agency.” Act of May 27, 1995, 74th Leg., RS., ch. 260, 5 80, 1995The Honorable ChrisHarris - Page 2 (DM-386

Ten. Sess.Law Serv. 2207,2504. Accordingly,we willrefer onlyto the Texas Education Agency (the “agency”)throughoutthe remainderofthis opinion.

Your first question assumes that a driver education course offered in a public school does not meet the standards of and has not been approved by the agency or the Department of Public Safety. We will begin by consideringthe law as it relates to your 6rst question. A “driver education school”is

an enterprise that maintainsa place ofbusinessor solicitsbusinessin this state, that is operated by an individual,association, partnership,
or corporation for the education and training of persons at a primary
or branch location in driver education or driver education instructor development,andthat is not speci6callyexemptedby this Act.* V.T.C.S. art. 4413(29c). 5 3(18) (footnote added). Section 7(c) of the act exempts from all of the act except section 9A, see i&x, several types of driver education courses h~cluding a wurse offered by -a school that is otherwise regulated and approved under any other state law.“” A public school is regulated and approved under the Education Code. Seegenerally Educ. Codetit. 2.

~whavc~ollrlred~&Qnot,thacforr.conddawbahaarchoolir”w’manaprirethnt

. . mamtamaaplwcofhwinwsorao~tsburinco

. . ..thatisopaatcdbyaoilMmdwlusodrtion. putnenhip, or coQomtioo....” See BL.$x’s LAWDICIIONARY 476.77 (5th cd 1979); WEBSI ’ER’S Ntrmt NEWCOUEOIAIE DCIIONARY 415 (1990). If it is nat, of comse, it & not be px&aUy omdwtcdbysaiadivimual,wwclation,parmarhip,or~forthc ~nodtrpiningofpcrsons,dtbupraaicallyor~~,orbotbtoopaatcm.drivcmotor vehiclea

nd char& a cooaidemtion or toitioo

forsuch celviwa”dofitudthctann~commemlaldrivcrnainingschool. ” ~~Msy19,1%7,~~.,RS.,cb.332.~l(a),l%7T~Genlrws7~,794 (wdlfied at V.T.C.S. att. 4413(29c), 0 l(a)), umended by Act of May 25, 1991, 72d Leg. RS., ch. 835, ~1.1991Tcx.Ga~Lpwr28.75,2876. Theori@nlactdidnotdefinethctan~ ‘drivaabca!kmsclwot. ” In199lLbekgislaturrdelaedtbcwwd”~fronrthphrerc”drivanainingrcbod” UbdlmcndcdtbCddhitiOlltOiBClUdC entaprira03oducdogcomwatndrtvar~~,driving, tamctor developettt. See Act oft&y 25.19!21,72d Leg., RS.. ch.835.5 I, 1991 Tcx. Gcn. Laws zx75,2876. hl995lhclcgatuc-thnrtutcodcfuw"drivcr-~"~ SChOOlSOffCiiOgdliVUOdOWtiOOcGlrra~thOWOff~dlitingd~WUtWS. SeeMof May 29,1995,74th

Lag.. RS., ch. 1009,~ I, 1995Tcx &is. Law Serv. 5047.5049 (aalifmd at V.T.C.S. art. 4413(29c), 0 3(18)). Otkr changa to tk dctinition made by the 1995 am&matt wue nozmhah. Seeid.

%ctioo 7(c)(5)

ofarticle

4413(29c).

V.T.C.S., actuattyprwidcs as follows: AdrivcrakationcomxisexemptfromthisAa,cxcqtScction9Aofthis Auiritir:

(5) aachoolthatiaotkrwkragulatedandappn3wdtmderanyothcrrtatc law.

p. 2119The HonorableChrisHarris - Page 3 (~~-386)

Section 9A of the act, the only provision of the act to which a public school is subject,provides as follows:

Tbe agency &all print and supplyto licensedand exempt driver education schools serially numbered driver education certikates to be used for certi& completion of an approved driver education wttrse for the purposes of Section 7(a),

. . . Article 6687b. P.T.C.S.]. The agency by rule shall provide for the design and diPtn’butionofthecatificat#,iaamsnaerthattotbegrratesrextent possible pmvents the unauthorized reproduction or misuse of tbe catifiuttes. Article 6687b. V.T.C.S.. provides for the licensingof drivers, chauffeurs,and wmmercial operators. Section 7(a) of that article authorizes the Department of Public Safety, see V.T.C.S. art. 6687b. 8 l(1) (defining “department”), to license as a class c* driver an individualunder the age of eighteen if, among other things, the individual“has 

### submitted to the Department a driver education certifkte provided for by Section 9A [of the act], indicatingthat the person has completed and passed a driver education course approved by the Department under Section 7A [of article 6687b] or by the” agency.5 Even if the Department of Public Safety has not approved a public school’ s driver education course, we wnclude that a student successMy completing such a course is entitled to receive a certiScate of completion necemary for obtaining a class C license under V.T.C.S. article 4413(29c), section 9A. Our conclusion is premised on a determinanon that a public school’ sdriver educationcourse is “approvedby” the agency for purposes of section9A if the public school’ scourse adheresto the curricui~ devisedby the agency.
Section 6(b) of the act rquires the wmmissioner of the agency to establish, by rule, the atrriculum and designatethe textbooks that must be used in a driver education course.6 The act does not otherwise provide for the approval or monitoring of a driverTbe HonorableChrisHarris - Page 4 (DM-386)

education c~urse.~ A public schoolis, of wurse, exempt6om section 6(b). See V.T.C.S. art. 4413(29c), $8 3(18). 7(c)(5).

Section 29902(a) of the Education Code requks the agency to “develop a program of organi& instruction in driver education and tratlic safety for public school students.“* In our opinion,because the agency is responsibleto organize the program of instruction in driver education and tratfic safety for public school students, we believeany public school that offers a course of instruction pursuant to the agency’ s guidelines is approved by the agency for purposes of section 9A of the act. The agency must, accordingly, supply the cutikates of completion descrii in section 9A to a public school offering a driver education course in wmpliance with agency directives. The public school need not complywith any other requirementsunder the act to whichprivate driver education courses are subject. Indeed, to require a public school to comply with sections of the act other than section 9A simplyto receive the certhkates of completion wntravenes the act’ s express statementthat a publicschool is exemptfrom all sectionsbut section 9A
With respect to the oversight of a public school’ s driver education wurse, the 1995 amendmentsto the act actually make little change in the law. Prior to the effective date of the 1995 amendments, a public school’ s driver education course was wholly exempt from the act. Thus, previous law did not require a public school to license its driver education course, nor was a public school’ s driver education wurse subject to
7Adriverakcationschool~howva,dUinaliceneebmtkPgcrry. Seeid.@lO.

‘Seotioo 29.902 becarw &ctivc May 30.1995. See Act of May 27, 1995,74th Leg.. RS.. ch. 26O.p 866, 1995 Tcx. Se% Law Serv. 2207.2505. The day before section 29.902 kcame dktive, May29,1995, the le@slatmc amended hy the ewctmwt of seaate Bii 964, fatioa 21.102 of the Education Code. Scr Act of May 29, 1995,74th Leg.. RS., ch. 1009. 8 I, 1995 Ta Scss. Law Sav. 5047,504748. Wi* qsrd to the authority to ‘dewkp a pmgram of orSanbd inmwxion in driver cducationaadtratficsafctyforplblicrbool~ ”ScnatcBill964rrtaintdruchputborityinthc Texas Education A8cncy. See id. at 504748 (ammdiq Educ. Code 0 21.902(a)). Inregardtotheagencyauthoridtodaviscadriverdwation-brpahlicwhoolb%udw& ScnatcBii964diwlycordlicfswithSaatcBiil. Gaimuy,wbcrroBe&ofthclegirlrturehrr ~~le~tothesameMtutc, “ thclate6airldacofewcnnwt pttmils. ” wt Cuk 8 311.025(b); see o&o 82 C.J.S.Statutes 5 9. ti 25 (1953) (Uatiq that during session lcgirlptivc body’mayQ~nd,Eoruiderandrsonsida,rccdtcnu”itsmemknthinkpropcr~”onlythe 6nalmsultwiUkrc8ard&asthcthingdonc” ). Inthiscasqhowver,SaateBitll@kitlypaovidgto thewnuary. Scction8lofthcbiiprovidaasfollowr: ~Actprevaibowanyw~Actoftk 74tbLcgirkturc,RcgularScsEion,1995,thatuncaborrrpcalsapmviriondTitlclor5Education code,tegads6ofthemla~datcaof wactmw~tmlwstheothercosltlistingAct~provider cuhcmiw. ” Act ofMay 27,1995,74lh Leg., RS.. ch. 260.0 81.1995 Ta .%ss. Law Serv. 2207.2504. siisenaleBii964dwaaotcxprrPdyRlpcncdcscwIeBi1,th amcdmamtotheaubuwo3of aatioo 21.102 (now &on 29.902) of tk Education Code in Senate Bii 1 pva% cj: Act & May29.1995, 74th Le& RS., ch. 426, 0 33(c), 1995 Tex. Sess. Law Serv. 3084. 3096 @ro~id@ arplicittythatpmvidwsdthatnatuteprevPilovaanyrevidonsmdebyScnMcBilll);MoC May 10.1995.74lb kg., RS., ch. 141,# 4.1995 Tea. Se.% Law SUV.989,990 (ramC).

p. 2121The HonorableChrisHarris - Page 5 (DM-386)

monitoringby the agency. Relevantto the issue you raise, the only substantivechangethe amendmentsto the act e&ted is the requirement,in newly enacted section 9A, V.T.C.S. article 4413(29c), that the agency supply to “lkcnsed and exempt driver education schools” driver education ccrtitlcates. The 1995 amendmentsfurther require an applicant for a class C driver’ s licenseto present the certi6cate of completionto the Department of Public Sdety.9
We turn now to your second question: whether the wmmissioner of education (the “wmmissione?) must, afk September 1, 1995, finally approve a driving safety
course that the wmmLssiottes approved “wnditionall~ or Yemporaril~ prior to September 1. 1995. &e V.T.C.S. art. 4413(29c). §3(16) (defining “approved driving safety wurse”). Article 4413(29c), section 13(a-I), V.T.C.S., requires the commissioner to approve the applicationof a driving safety school ifthe school meets certain criteria.~O

ptiortothewwnwnt ofthl995~a&mhatdy54X@pwple ha[q~tothmtificataofw~l~onfor~ralcty~. Thiseasy -ha9madeadliogthaeb7edcmaforapria,withcmttakiegthe-. atltooeomnma HouseRcsw1chOrg..BiiAwlysk,S5.964,74thLc~. 116(1995). Webdkvewcmsyinferthstthckgjdatadmirattoptevent-wholladmtwtttpktaiattPgprovcddriwcdwmioathmugbalicenrtdororanpdrivcrcducatwrcboo]~obtrininga~cuedEompletioqwhich mntldatabletkindividwltoapplyforadxivdsliwnse. Ourwnclwionheredownottuukmiwtbat kgidakde6ire.

1% Seventy-fourth Le&latm added s§ion (a-l) to tick 4413(29c), section 13. V.T.C.S. See Aa ofMay 29, 1995, 74th Lq., RS.. ch 1009, 0 15, 1995 Tcx. Scss. hw Serv. 5047, 5052 (aditkd at V.T.C.S. art. Ul3(29c), 8 13(&l)). The Seventy-fimlh Lc@atum ako amended a&ion 13(a) to apply only to driver cducaho schwk. &e id.(mdifial at V.T.C.S. art. Ul3(29c), 0 13(a)). Prior to Scptmbm I, 1995, the act providal tbr tk wmmissionu to approve both types of dtivar miaiag whools under scotion 13(a). See Act ofMay 25. 1991,726 Leg, RS.. ch 835. 0 I. 1991 Tu. &u Laws 2875, 2879-80 (wdi6aJ at V.T.C.S. art. Ul3(29c), p 13(a)), amended by AU of May 29.1995.74tb Leg., RS., ch 1009.§ IS. 1995Ta Set& Law Sav. 5047.5052. Tk amdrmts

p. 2122The Honorable ChrisHarris - Page 6 (DM-386)

Upon approd the driving safety school receives a license from the wmmissionex See V.T.C.S. art. 4413(29c), Q 13(d)(l); d Act of May 30. 1993, 73d Leg., RS., ch. 954, 0 5, 1993 Tar. Gen. Laws 4071.4073 (codi6ed at V.T.C.S. art. 4413(29c), Q 13(d)(l)), umenukdby Act of May 29, 1995.74th Leg.. RS., ch. 1009, 5 15, 1995 Tar. Sess. Law Serv. 5047. 5055. A licensemay not exceed one year in term. V.T.C.S. art. 4413(29c). 5 

### WX2).
Section 13(f) authorizes the commissionerto revoke a driving safety 8chool’ 8 iicutse or impose reasonable conditions on the license.. The wmmissioner also may revoke or make wnditional any license if the commissioner has reason to believe the licwsee violatedthe act or any rule adopted pursuantto the act. V.T.C.S. art. 4413(29c). 8 13(f)(2). We findno explicitauthority for a temporary license.
Prior to September 1,1995, the act required a driving safety school to submit to the commissioneran initiallicensefee of $1,700 plus $850 for each branch location. See Act of Uay 30, 1993, 73d Leg., RS., ch. 954, 5 5, 1993 Tar. Gen. Laws 4071, 4072 (cod&d at V.T.C.S. art. 4413(29c), Q 13(b)(l)(A)), mergded by Act of May 29, 1995, 74th Leg., RS.. ch. 1009.~ IS.1995 Tex. Sess. Law Serv. 5047.5054. We do not iind inthe~cthitacistedpriortoSeptemba1,1995,~yrequiranmt~afwaccompMy
an applicationfor approvalof a driving safety course.
The Sevmty-fourth Legislatureamendedarticle4413(29c), section 13(b)(l)(G), to require a nonrefbndablefw of $9,000 to accompany an “application for approval of a driving safety wurse that has not been evshted by the State Board of Education.” See Act of May 29, 1995.74th Leg., RS.. ch. 1009, 4 15, 1995 Tar. Sess. Law &IV. 5047, 5054. Notwithstanding this section, a driving safety wurse that. the agency approved prior to September 1, 1995, need not be reapproved, “and no fee is owed in relation to approval ofthe course unlessthe fee becamedue before” September 1,199s. Id. 5 32(b), at5065.

As we understand your question, you are uncertain as to **wheth~** a licenseeupon whom the wmmissioner of education imposed w&ions prior to September 1, 1995, must again apply for a license and submitthe $9,000 applicationfee to regain permanent liwnsure status after September 1,1995. We note that tbe wmmissioner may impose wnditions only on a driving safety school. See V.T.C.S. art. 4413(29c). 6 13(f). Gn the
0th~ hand, the $9.000 applicationfee is to accompany an applicationfor “approval of a driving safety course. ”Id. 5 13(b)(l)(G) (emphasis addedj. Conseqttently~we tind nothing on the face of the act that requires a drivingsaf* school holdinga licen.% **dthK** conditional or unconditional,to pay the applicationfee under section 13(b)(l)(G) unless the school desiresto changethe drivingsafety course it offers.

p. 2123The HonorableChrisHatris - Page 7 (DM-386)

Moreov~, we do not believethat a driving safety school upon whose license the wnunissioner has imposed wndhions must reapply for a license. Article 4413(29c), section 13(t) provides the wmmissioner with a choice: either the wmmissioner may revoke the licenseof a driving safety school, or the wnunissioner may impose conditions upon the ticense. Unless a driving safety school’ slicenseis revoked its licenserem&s in e-&t, and the driving safety schoolneed not apply for a newlicense.

SUMMARY Any public school offeringthe program of otganimd instruction in drive education and tra5c safety that the Texas Education Agency has adopted purmant to section 29902(a) of the Education Code is offering an “approved driver education course” for purposes of V.T.C.S. attide 4413(29c), section 9A. The Texas Education Agency must, in accordance with article 4413(29c), section 94 supply such a public schoolwith “seriallynmbered driver education certiticatesto be used for certif& completion”of the course. Nothing in article 4413(29c), V.T.C.S., requires a licensed driving safety school. upon which license the wmmissioner of education has imposed wnditiom purmant to article. 4413(29c), section 13(f), to pay an application f# under section 13@)(I)(G) unlessthe school desiresto changethe driving ssfety course it offers. Additionally,a licenseddriving s&y school,upon which licensethe wmmissioner has imposed wnditions, need not apply for a new liwnse.

DAN MORALES Attorney Generalof Texas

JORGEVEGA Pii Assistant Attorney General
SARAHJ. SHIRLEY Cbair,Opiion c0tinc.e Prepared by KytnberlyK. Oltrogge hsistant Attorney General

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