## COURT OF APPEALS SECOND DISTRICTOFTEXAS FORT WORTH
NO. 2 - 0 7 - 0 1 2 - CV
J. DO E, I ND I VI DU ALL Y AN D A S NEXT APPE L L AN TS FRI EN D O F F. D O E AN D R. D O E, CH I LDR EN V . TA RRA N T C O U N TY D I STR I C T A PPELL EE ATT ORNE Y’ S OF F I CE

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FR O M THE 67TH DI STRI CT CO URT O F TARRA NT CO UN TY

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### OP I NI ON

----- ----- -- A ppe l l ant s J. D oe, i ndi vi dua l l y, an d a s nextf r i end ofF. D oe and R. D oe ( col l ec t i vel y, “ D oe” ) ap pea l f r om a t r i alco urtor derde nyi ng t hei rcr os s- cl ai m f or
w r i tofm andam us seeki ng t o com pel appellee Tar r antC oun t y D i st r i ct1 ... A s l egal counsel t o t he sher i f f ’ s of f i ce, t he D A pr ovi des l egal advi ce

c o n c e rn i n g o p e n re c o rd sre q u e s ts .

2 ... Tex. G ov’ tCode Ann. § 552. 301 ( V er non Supp . 2 0 08) ( r equ i r i ng g o v e r n m e n ta l e n ti tyth a t w i s h e sto w i th h o l d d o c u m e n ts fro m d i s c l o s u re pur su antt o ope n r ec or dsr equ es tt o t i m el y s ee k a nd ob t ai n w r i t t en r ul i ng f r om A G ). 2 A t t or ney’ s O f f i ce ( “D A ”) t o f or m al l y di scl ose docum ent s i nadvert ent l y r el eased p u rs u a n t to a p u b l i c i n fo rm a ti o n re q u e s t. W e a ffir m . Back gr ound J a c o b M u n i z p l e d g u i l ty to i n d e c e n c yw i th a c h i l d an d w a s s e n ten c e d to f ourye ar s’ co nf i nem ent . The i nci den t occ ur r ed w hi l e M uni z w asem pl oye d by Boysan d Gi r l s C l ubso f G re a te r FortW ort h, I nc. an d Boysan d Gi r l s C l ubsof A m er i ca ( col l ect i vel y, t he “C l ubs”) . F. D oe w as a vi ct i m ofM uni z’ s cr i m e. I n i n v e sti g a ti n g p o ten ti a l c i v i l c l a i m s, D o e se n t p u b l i c i n fo rm a ti o n req u e sts t o t he D A and t o t he T ar r antC oun t y S her i f f ’ s O f f i ce ( t he “sher i f f ’ s of f i ce”)
se ek i ng do cum ent s r el at i ng t o M uni z ’ s i nve st i gati on, pr os ec ut i on, an d i n c a r c e r a t i o n . T h e s h e r i f f ’ s o f f i c e f o r wa r d e d t h e r e q u e s ti tr e c e i v e d t o t h e DA f orr evi ew and w r i t t en r esponse. 1 The D A dr af te d a lett ert o t he A t t or ney G ene r al ofTexa s ( t he “AG ”) as ki ng f or an opi ni on on w het her 277 pa gesoft he
r equest ed docu m ent s w er e exem ptf r om publ i c di scl osur e. 2T h e D A , h o w e v e r, i nadvert ent l y sentt hi s l et t er , and t he al l egedl y exem pt docu m ent s, onl y t o D oe.3 ... The A G pr ovi ded a l ett err ul i ng i n r es pons e t o t he D A ’ s r equ es t . Tex .

A t t ’yG e n . O R 2 0 0 6 -0 9 5 9 0 (2 0 0 6 ). In a d d it io n t o a d d r e s s in g t h e D A ’s c la im s ofco nf i den t i al i t y, t hi s l ett ernot ed, w i t hout di sc us si ng t he er r ori n s end i ng t he or i gi nalr equ es tt o Doe, t hatt he D A ’ s r equ es tw asunt i m el y.

4 ... T e x . G o v ’t C o d e A n n . § 5 5 2 .3 0 1 . 3 D oe su ed M uni zan d t he C l ubs , al l egi ng am ong o t hert hi ngst hatt he C l ubs negl i gentl y hi r ed M uni z r esul t i ng i n t he sexual assaul t of F. D oe. D oe pr ovi ded t h e D A d o c u m e n t st o t h e C lu b sin d is c o v e rya n d u s e d s o m e o ft h e m in d e p o s i t i ons. The D A , upon l ear ni ng t hatt he A G had not r ecei ved i t s l et t er
r equ es t i ng a n opi ni on on D oe’ s publ i c i nf or m at i on r equ es t, i m m e d i at el y s ent D oe a f or m al w r i t t en dem and seeki ng r et ur n oft he docu m ent s and subm i t t ed
a new l et t ert o t he A G r equest i ng an op i ni on r egar di ng D oe’ s r equest s. 3 D o e
r e f u s e d t o r e t u r n t h e d o c u m e n t s , a s s e rt in g t h a tt h e D A f a ile d t o (1 ) t im e ly
r equesta deci si on f r om t he A G , ( 2) pr ovi de D oe w i t h a w r i t t en st at em entt hat th e D A d e sir e d to w i th h o l d th e req u e ste d i n fo rm a ti o n , a n d ( 3 ) p rov i d e D o e w i th
a c opy oft he D A ’ s r equ es tt o t he A G asr equ i r ed b y s e c ti o n 552 . 301 oft he governm entcode. 4 The D A t h e n i n t e rv e n e d i n t h e u n d e r l y i n g l a ws u i t a n d r e q u e s t e d a pr ot ect i ve or der . A f t era hea rin g , t he t r i al courtent er ed a pr ot ect i ve or der req u i ri n g D o e to retu rn a l l i n a d v e rt e n tl yd i sc l o se d d o c u m e n ts to the D A an d to t ur n overf ori n cam er a i nspect i on al l or i gi nal s and copi es ofdeposi t i ons t aken5 ... See i d. § 5 5 2 .3 0 2 ( p rov i d i n g tha t w h e n g o v e rnm e n tal b o d yfai l s to tim el y r equestA G opi ni on, docum ent s ar e subj ectt o pub l i c di scl osur e unl ess th e re i s a c o m p e l l i n g re a s o n t o w i th h o l d th e m ), § 552 . 321 ( Ver no n 2004) (pro v i d i n g tha t i f go v e rnm e n tal b o d yd o e s n o t r e q u e st A G o p i n i o n o r refu se s to su ppl y pu bl i c i nf o rm a ti on, r equ es t orm ay f i l e s ui tf orw r i tofm and am us com pel l i ng di scl osur e) . The D A does notcon te s t th ati t s A G r equestw as unt i m el y.

6 ... D oe al so f l ed a pet i t i on f orw r i tofm andam us seeki ng t he sam e r el i ef s o u g h t b yw a yo f th i sa p p e a l . T h i s c o u rt d e n i e d D o e ’sm a n d a m u sp e ti ti o n . In 4 i n t he l i t i gat i on. The orderf urt herr equi r ed D oe t o subm i tan i n cam er a l et t er i denti f yi ng anypart y and per son t o w hom D oe had di scl osed orf urt her di ss em i nat ed t he d o c u m ent s. Fi nal l y, t he or derpr ohi bi t ed al l pa rt i esf r om f urt hercopyi ng ordupl i cat i ng, i n any w ay, any oft he docu m ent s. Th er eaf t er , D oe f i l ed a cr oss- cl ai m f or w r i t of m andam us seeki ng an or der
r e q u ir in g t h e D A t o re le a s e a ll t h e d o c u m e n t st h a th a d b e e n in a d v e rt e n t ly p r o d u c e d t o Do e . Do e a s s e rt e d t h a tt h e DA ’ sf a i l u r e t o t i me l yr e q u e s ta n AG opi ni on r es ul t ed i n a pr es um pt i on t hat t he doc um ent s w er e publ i c a nd t hatt he D A d id n o tm e e tit sb u r d e n t o o v e r c o m e t h isp r e s u m p t io n b e c a u s e t h e D A d id not pr esentany evi dence of a “com pel l i ng r eason” t o w i t hho l d t he docu m ent s. 5 A f t era h e a r i n g o n Do e ’ s c r o s s - c l a i m, t h e t r i a l c o u rt f o u n d t h a t t h e r e wa s a co mp e l l i n g r e a s o n t o wi t h h o l d t h e d o c u me n t s a n d d e n i e d D o e ’ s wr i tof
m and am us . The t r i alco urts eve r ed t he m and am usac t i on f r om t he unde r l yi ng la w s u it , a n d D o ep e r f e c t e d t h isa p p e a l. 6re Doe , N o. 02- 07- 000 10- C V , 200 7 W L 530 008 ( Tex. A pp. –FortW ort h, Fe b.

2 2 , 2 0 0 7 , o ri g . p ro c e e d i n g ).

7 ... See g eneral

ly i d. § § 5 5 2 .0 0 1

– .3 5 3 (V e rn o n 2 0 0 4& S u p p . 2 0 0 8 ).
8 ... Id. § 5 5 2 .0 0 2 (a ).
9 ... Id. § 552 . 021.
10 ... See, e. g. , i

d. § § 5 5 2 .1 0 1 , 5 5 2 .0 2 2 (a ), (b ).

5 A ppl i cabl e Law A . Tex as Publ i c I nf or m at i on A ct T h e T e x a s P u b lic In f o r m a t io n A c t (t h e “ A c t ” ) r e q u ir e sd is c lo s u r e o fp u b lic d o cum ent s and i nf or m at i on up on r equ es tt o a gov er nm ent alen t i t y. 7 I nf or m at i on is c o nsi der ed pub l i c i fi ti s “col l ect ed, assem bl ed, orm ai nt ai ned und era l aw oror di nance ori n conn ect i on w i t h t he t r ans a c ti on of of f i ci al bus i nes s: ( 1) by a gov er nm ent albody ; or( 2) f ora gove r nm ent albodyan d t he g o v e rn m e n ta l b o d yo w n sth e i n fo rm a ti o n o r h a sa ri g h t o f a c c e s sto i t.” 8 S e c t io n 5 5 2 .0 2 1 o ft h e A c tre q u ir e st h a tp u b lic in f o r m a t io n b e m a d e a v a ila b le t o t he publ i c d ur i ng no r m albus i nes s hour s oft he gove r nm ent albody . 9 H o w e v e r , s o m e c a t e g o r ie s o f in f o r m a t io n t h a tw o u ld o t h e r w is e b e p u b lic und ert he A ctar e m ade confi denti a l b y l aw ot hert han t he A ct , and t he A ct
e xc e pt s s uc h i nf or m a t i on f r om t he di s c l os ur e r e qu i r e m e nti n s e c t i on 552. 021. 10 Sect i on 552. 101 oft he A ct pr ovi des t hat“ [ i ] nf or m at i on i s exc ept ed f r om t he11 ... Id. § 552. 101 . Sec t i on 552. 022 oft he A ctal so cr ea t esex ce pt i ons

to d i s c l o s u re fo r i n fo rm a ti o n th a t i s “ e x p re s s l y ” c o n fi d e n ti a l “ u n d e r o th e r l a w .” Id. § 5 5 2 .0 2 2 (a ), (b ). T h e s e p r o v is io n sa r e n o ta tis s u e in t h isa p p e a l.

12 ... I n re City o f

G e o r g e to wn , 5 3 S .W .3 d 3 2 8 , 3 4 0 ( T e x . 2 0 0 1 ) (A b b o tt, J ., d i s s e n ti n g ).

13 ... T e x . G o v ’t C o d e A n n . § 5 5 2 .3 0 1 (a ), (b ).
14 ... Id. § 5 5 2 .3 0 1 (d ). 6 r equ i r em ent s ofs ec t i on 552. 021 i fi ti s i nf or m at i on c ons i der ed t o be
c o n f i d e n ti a l b yl a w , e i th e r c o n s ti tu ti o n a l , st a tu to ry , o r b yj u d i c i a l d e c i s i o n .” 11

“ [G ]o v e r n m e n t a l c o m p lia n c e w it h c o n f id e n t ia lit y la w s ism a n d a t o ry , a n d t h e ir p ro te c ti o n sm a yn o t b e w a i v e d b yg o v e rn m e n ta l e n ti ti e s .” 12 I fa gove r nm ent al age ncy r ec ei ves a w r i t t en r equ es tf orpubl i c i nf or m at i on t hat i t bel i eve s t o be w i t hi n an exc ept i on t o di sc l os ur e, t he age ncym us tas k t he A G , i n w r i t i ng a nd w i t hi n t en day s ofr ec ei vi ng t he r equ es t , f oran opi ni on a bout t he app l i ca bi l i t y oft he exc ept i on. 13 A l so w i t hi n t en day s ofr ec ei vi ng t he
r e q u e s t , t h e a g e n c ymu s tn o t i f yt h e r e q u e s t o ro fi t sd e c i s i on t o see ka n AG opi ni on a nd pr ovi de t he r equ es t orw i t h a co py o ft he w r i t t en com m uni ca t i ons t o t h e AG. 14I ft he age ncyf ai l s t o t i m el y r equ es tan ope n r ec or dsde ci si on f r om t h e A G , t h e in f o r m a t io n r e q u e s t e d isp r e s u m e d t o b e s u bje c tt o re q u ir e d p u b lic15 ... Id. § 5 5 2 .3 0 2 . 16 ... Id. § 5 5 2 .3 2 1 ; see Si m m ons v. Kuzm i

ch , 166 S. W . 3d 342, 348 (T e x . A p p .— F o rt W o rth 2 0 0 5 , n o p e t.).

17 ... A n derso nv. City o f Se venPo i n ts , 806 S. W . 2d 791, 792 n. 1 ( Tex. 1 9 9 1 ); City o f F

o rt Wo rthv. A b b o tt, 2 5 8 S .W .3 d 3 2 0 , 3 2 3 (T e x . A p p .— A u s t in 2 0 0 8 , n o p e t.).

18 ... Si m m ons , 1 6 6 S .W .3 d a t 3 4 8 . A l th o u g h D o e ’si s s u e so n a p p e a l a re f r am ed i n t er m s oft he abuse of di scr et i on st andar d, w e r evi ew D oe’ s i ssues u n d e r th e a p p ro p ri a te s ta n d a rd so f re v i e w . Id. a t348 n. 2. 7 di scl osur e and m ustbe r el eased unl ess t he gov er nm ent al agency pr ovi de s a “c om pel l i ng r ea so n”t o w i t hhol d t he i nf or m at i on. 15 B. S t andar d ofRev i ew O ncet he r equ es t ed i nf or m at i on i s pr es um ed t o b e p ubl i c i nf or m at i on bec aus e of an age ncy ’ s f ai l ur e t o m ak e a t i m el y r equ es tf oran A G opi ni on, t he part y r equest i ng t he i nf or m at i on m ay seek a w r i tofm a n d a m u s t o com pel
r el ea seoft he i nf or m at i on. 16 A n ac t i on f or a w r i tofm and am usi ni t i at ed i n t he tr i a l co u rti s a civi l ac ti o n su bj e c t t o a p p e a l l i k e an yo th e r ci v i l su i t. 17 A ccor di ngl y, al t hou gh pl ed as a m andam us act i on, w e do not em pl oy t he abuse
o f disc reti o n sta n d a rd a p p l i c a b l e to o ri g i n a l p roc e e d i n g s i n the a p p e ll a te
court s. 18Rat her , w e r evi ew t he t r i a l c ourt ' s f i ndi ngsoff ac tan d c onc l us i ons o fla w , w h e t h e re x p r e s so r im p lie d , in a c c o r d a n c e w it h t h e s t a n d a r d sg e n e r a lly19 ... A nder son , 8 0 6 S .W .2 d a t 7 9 4n .2 ; Si m m ons , 166 S. W . 3d a t346.
20 ... Si m m ons , 1 6 6 S .W .3 d a t 3 4 6 ; D al l as A rea Rapi

d Transit v. City of D al l as , 4S .W .3 d 4 6 9 , 4 7 3 (T e x . A p p .— D a l l a s1 9 9 9 , n o p e t.).
21 ... Ph a ro v. Ch a m b ers Co un ty , 9 2 2 S .W .2 d 9 4 5 , 9 4 8 (T e x . 1 9 9 6 ).
22 ... T e x . R . A p p . P . 3 4 .6 (c )(4 ); BM C Soft ware Bel g. , N. V. v. Marchand, 8 3 S .W .3 d 7 8 9 , 7 9 5 (T e x . 2 0 0 2 ).

23 ... Worf

ord v. Stamper, 8 0 1 S .W .2 d 1 0 8 , 1 0 9 (T e x . 1 9 9 0 ). 8 a p p l i c a b l e to a tri a l c o u rt's fi n d i n g s a n d c o n c l u s i o n si n a n yc i v i l m a tte r. 19 T h a t i s, w e r evi ew f i ndi ngsoff ac t f orl ega l an d f ac t ualev i den t i ary s upport , an d w e
r evi ew co ncl us i onsofl aw denov o. 20 In a tri a l to th e c o u rt w h e re n o fi n d i n g s o f fa c t o r c o n c l u s i o n s o f l a w a re fi l e d , th e tri a l c o u rt’sj u d g m e n t i m p l i e s a l l fi n d i n g so f fa c t n e c e s s a ryto s u p p o rt i t. 21 W her e a r epo rt er ’ s r ec or d i s f i l ed, how eve r , t hes e i m pl i ed f i ndi ngsar e n ot
con cl us i ve, an d a n a ppe l l antm ay cha l l eng e t hem , asD oe t ac i t l y do eshe r e, by contes t i ng t he l egal suf f i ci ency of t he evi dence t o suppo rtsuch im p l i ed f i ndi ngs. 22The j udg m ent m u s tbe af f i r m ed i fi tcan be uph el d on anyl egal t heor y t hatf i nds suppo rti n t he evi dence. 23 W e m a ys u s ta i n a l e g a l s u fficie n c yc h a l l e n g e o n l yw h e n (1 ) th e re c o rd di scl oses a com pl et e absence ofevi dence ofa vi t al f act ; ( 2) t he courti s bar r ed by r ul es of l aw or of evi dence f r om gi vi ng w ei ght t o t he onl y evi dence off er ed to p ro v e a v i ta l fa c t; (3 ) th e e v i d e n c e o ffe re d to p r o v e a v i ta l fa c t i sn o m o re24 ... Uni royal G oodr i ch T i re Co. v. Marti

nez , 977 S . W . 2d 328, 334 ( Tex. 1 9 9 8 ), cert. denied, 5 2 6 U .S . 1 0 4 0 (1 9 9 9 ); R o b e rt W . C a l v e rt, "No Evidence" and "I ns uf f i ci ent E vi den ce " Poi

nts of Er ror, 38 T e x. L . Re v. 361, 362– 63 (1 9 6 0 ).

25 ... City of

Kel ler v. W i l son , 1 6 8 S .W .3 d 8 0 2 , 8 0 7 , 8 2 7 (T e x . 2 0 0 5 ).
26 ... City of Gar

l and v. D al

l as Mor ni ng News , 22 S. W . 3d 351 , 357 ( Tex. 2 0 0 0 ) (p l u ra l i tyo p i n i o n ); Si m m ons , 166 S. W . 3d a t345– 46.
27 ... City of

Gar l and, 2 2 S .W .3 d a t 3 5 7 ; Si m m ons , 166 S. W . 3d a t346.
28 ... Cont ’

l Cas. Co. v. D owns , 8 1 S .W .3 d 8 0 3 , 8 0 5 (T e x . 2 0 0 2 ).
29 ... Thom asv. Cor

nyn , 71 S . W . 3d 473, 481 ( Te x. App . — Aus t i n 2002, n o p e t.). 9 th a n a m e re s c i n ti l l a ; o r (4 ) th e e v i d e n c e es tab l i sh e s c o n c l u sive l ythe o p p o sit e o f a v i tal fac t. 24I n d e term i n i n g w h e th e r t h e re i s l e g a l l ysu ffi c i e n t ev i d e n c e to
su pportt he f i ndi ng unde r r evi ew , w e m us tco ns i derev i den cef avo r abl e t o t he f i ndi ng i fa r ea so nab l e f ac t - f i nde rco ul d a nd di sr ega r d e vi den ceco nt r ary t o t he fi n d i n g u n l e ss a re a so n a b l e fac t- fi n d e r co u l d n o t. 25 W h e t h e r i n fo rm a ti o n i s s u bj e c t t o the A c t an d w h e th e r an ex c e p ti o n to d i s c l o s u re a p p l i e sto th e i n fo rm a ti o n a re q u e s ti o n so f l a w i n v o l v i n g s ta tu to ry con st r uct i on. 26 W e r evi ew a t r i alco urt ’ s con st r uct i on ofa st at ut e d e n ovo. 27 T h e o v e rri d i n g g o a l o f s ta tu to ryi n te rp re ta ti o n i s to d e te rm i n e th e l e g i s l a tu re 's i n ten t. 28W hen pos si bl e, t he cou rtm us tf i nd l egi sl at i ve i nt ent i n t he pl ai n a nd
com m on m eani ng of t he w or ds used i n t he st at ut e. 29 M or eov er , i n c ons t r ui ng30 ... Ja ckso nv. Tex . D ep ’t o f Pub . Sa fety , 243 S. W . 3d 754 , 758 ( Tex. A pp. — C or pusChr i st i2 0 0 7 , pet . de ni ed) ( ci t i ng Pack v. Crossroads, I nc. , 53 S .W .3 d 4 9 2 , 5 0 4(T e x . A p p .— F o rt W o rth 2 0 0 1 , p e t. d e n i e d )).

31 ... Id.
32 ... S p e c i fi c a l l y , D o e req u e ste d the foll o w i n g : M u n i z’s T a rr a n t C o u n ty Jai l t el epho ne cal l l og and t el epho ne r ecor d ver i fi cat i on and m at ch r esul t s; M u n iz ’s T a r r a n tC o u n t yJ a il v is it a t io n lo g ; M u n iz ’s T a r r a n tC o u n t yJ a il d i sc i p l i n a ry rec o rds ; a l l T e x a s D e p a r t m e n t of C ri m i n a l J u sti c e d o c u m e n ts pr ovi di ng i nf or m at i on r el at i ng t o M uni z’ s 19 80 and 1 9 88 convi ct i ons; p e n it e n t ia r y p a c k e t s ; F . D o e ’s s c h o o l, m e d ic a l, a n d p s y c h o lo g ic a l re c o r d s ; a ll w i t ness st at em ent s and sum m ar i es of w i t ness st at em ent s; nam es, addr esses , a n d t e le p h o n en u m b e r so fa ll w i t n e s s e st h e D A in t e rv ie w e d o rc o n t a c t e d ; a ll d o c u me n t s p e rt a i n i n g t o t h e c r i mi n a l h i s t o ry o f a n y wi t n e s s o r vi ct i m ; an d 10 st at ut es , w e g i ve dueco ns i der at i on t o A G dec i si ons eve n t hough t heyar e n ot bi ndi ng. 30Thi s i s especi al l y so i n cases i nvol vi ng pub l i c i nf or m at i on r equest s, as t he l egi sl at ur e has i m pos ed on t he A G t he dut y t o pr ovi de w r i t t en opi ni ons t o gov er nm ent alen t i t i est hats ee k t o w i t hhol d i nf or m at i on r equ es t ed unde rt he A c t. 31 A n a ly s is A . S e c ti o n 5 5 2 .1 0 1 E x e m p ti o n sfro m D i s c l o s u re Doe r e qu e s t e d do c um e nt sf r om t he DA t ha t f a l l i nt o t hr e e c a t e go r i e s : ( 1) doc um ent s us ed orde vel ope d i n t he i nve st i gat i on of abu se or neg l ec tofa chi l d; (2 ) M u n iz ’s T a r r a n tC o u n t yJ a il v is it a t io n c a r d s ; a n d (3 ) N a t io n a l C r im e I nf or m at i on C ent er ( “N C I C ”) and Tex as C r i m e I nf or m at i on C e n te r ( “TC I C ”)
r eport s. 32D o e ’s f ir s t i s s u e o n a p p e a l isw h e t h e rt h e D A , a ft e rn o tt im e lydi agr am s, m aps, orsket ches oft he C l ubs’ bui l di ngs. 33 ... T h e D A i d e n ti fi e d alm o st 1 ,0 0 0 d o c u m e n ts th a t i t w a s w i l l i n g to p ro v i d e t o D o e u p o n p a y m e n t o f th e a p p ro p ri a te fe e s . S eeTex. G ov’ tCode A nn . § 552 . 261 5( a) ( r equ i r i ng go ver nm ent albody , i fr equ es tf ori nf or m at i on w i l l r es ul t i n cos t s ove r $40 . 00, t o pr ovi de cos t es t i m at e to r equ es t or i den t i f yi ng a nd exp l ai ni ng c har gest o bei m pos ed) . Thos e d ocu m ent s ar e n ot t h e s u bj e c t o f t h i s a p p e a l ; t h e o n l yd o c u me n t sa ti s s u e h e r e a r e t h o s e t h e DA so ughtt o w i t hhol d.

34 ... Id. § 5 5 2 .1 0 1 . 35 ... Bec aus e w e con cl udet hatt he D A pr ovi ded ev i den cet o s upportt he t r i al co urt ’ s det er m i nat i on t hat t her e w er e com pel l i ng r ea so ns t o w i t hhol d t he doc um ent s f r om di sc l os ur e, w e d o notr ea ch t he D A ’ s ar gum ent t hat i tw asnot r equ i r ed t o s how a com pel l i ng r ea so n. 11 se ek i ng a n ope n r ec or ds r ul i ng, f ai l ed t o pr es entan y e vi den ceofa com pel l i ng
r eason suf f i ci entt o r ebut t he pr esum pt i on t hatt he i nf or m at i on D oe r equest ed i s publ i c i nf or m at i on. 33 Re l yi ng on s e c t i on 552. 101, 34t he D A ar gues t hatt hese doc um ent s ar e e xem ptf r om publ i c di sc l os ur e bec aus e t hey ar e “c onf i den t i al by l aw ” and, t her ef or e, t he r equi r em ent i n sect i on 5 52 . 30 2 thatt he gov er nm ent al b o d ym u st ti m e l yreq u e st a n A G o p i n i o n o r el se the i n fo rm a ti o n i s p res u m e d to be open does notappl y. A lte rn at i vel y, t he D A ar gues t hati tpr esent ed “com pel l i ng r easons” t o w i t hho l d t he docu m ent s. W e agr ee w i t h t he D A t hat i tde m ons t r at ed com pel l i ng r ea so nst o w i t hhol d t he i nf or m at i on. 3536 ... 1 6 6 S .W .3 d 3 4 2 (T e x . A p p .— F o rt W o rth 2 0 0 5 , n o p e t.).
37 ... Id. a t350.
38 ... Id. ( “[ T] he gov er nm ent al bodym ust. . . s h o w t hati t s cl ai m ed e x c e p ti o n to d i s c l o s u re fa l l s w i th i n o n e o f th e s ta tu to rye x c e p ti o n sto d i s c l o s u re and h o w t hatex ce pt i on c r ea t esa com pel l i ng r ea so n t o w i t hhol d t he i n fo rm a ti o n .” ); se e i d. at351– 52 ( C ayc e, C. J. , d i ss ent i ng) ( st at i ng t hat , by pr esent i ng evi de n c e t hatr el easi ng i nf or m at i on cou l d com pr om i se cr i m i nal in v e s t ig a t io n , g o v e r n m e n t a l a c t o r d e m o n s t r a t e d c o m p e llin g re a s o n t o w it h h o ld i n fo rm a ti o n ). 12 1. C om pel l i ng Rea so ns Rel yi ng he avi l y on t hi s cou rt ’ s opi ni on i n Si m m ons v. Kuzm i

ch , 36 D o e as se rts t hatt he D A ’ s f ai l ur e t o t i m el y r equ es tan A G opi ni on m ea nst hatt he docu m ent s ar e pr esum ed t o be pub l i c i nf or m at io n and t hatt he D A w as obl i gat ed t o pr ovi de evi de n c e ofa com pel l i ng r ea so n t o w i t hhol d t he doc um ent s. I n Si

m m ons , t hi s cou rthe l d t hata gove r nm ent alen t i t y a t t em pt i ng t o over com e t he pr esum pt i on cann otsi m pl y assertan except i on t o di scl osur e;
r at her , t he ent i t y m us t pr es entev i den ceofa com pel l i ng r ea so n t o pr eve nt di sc l os ur e u nde rt hatex ce pt i on. 37 In r e a c h in g t h isc o n c lu s io n , h o w e v e r , w e d id not exam i ne w hat w oul d const i t ut e a “com pel l i ng r eason” f ora gover nm ent al act ort o w i t hho l d i nf or m at i on. W e hel d onl y t hatw het heran except i on app l i es isa d if f e r e n tin q u iryt h a n w h e t h e rt h e r e isa c o m p e ll i n g r e a s o n t o w it h h o ld in f o r m a t io n a n d t h a t t h e g o v e r n m e n t a l a c t o rm u s td o b o t h in o r d e rt o w it h h o ld i nf or m at i on. 3839 ... T e x . A tt’yG e n . O R D -6 3 0 (1 9 9 4 ); see al soTe x. At t ’ y Gen . ORD

- 150 (1 9 7 7 ) (“T h is p r e su m p ti o n [ o f op e n n e ss afte r a g o v e rnm e n tal ac to r f a i l s to t i m el y r equ es tan A G o p i n i o n ] ca n onl y beove r com e b y a co m pel l i ng dem onst r at i on t hatt he i nf or m at i on s h o u ld not be r el eased t o t he pub l i c, as m i ght be t he case i ft he in fo r m at i on i s deem ed confi denti al by som e ot her so u rce o f l a w , o r i f a n e x c e p ti o n d e sign e d to p rote c t th e i n tere st o f a th i rd p a rt y i sa p p l i c a b l e .” ).

40 ... T e x . G o v ’t C o d e A n n . § 5 5 2 .3 5 2 ; see al so Te x. At t ’ y Gen . ORD

- 676 ( 200 2) ( “Se ct i on [ 552 . 101 ] . . . r ef er s t o i nf or m at i on t hata gove r nm ent albody m a y n o tc ho os e t o r el ea se, an d t he i m prop er di scl os ure of w hi ch r esu l t s in cr i m i nalpe nal t i esunde rt he [ A ct ] . Thus , w hen s ec t i on 5 5 2 .1 0 1 app l i es , t he 13 Th e A G has artic u l at ed a “gener al r ul e” aboutw hatconst i t ut es a “c om pel l i ng r ea so n”t o w i t hhol d i nf o rm a ti on f r om t he publ i c i n l i ghtoft he sect i on 5 52 . 30 2 p r esum pt i on of open ness. S peci f i cal l y, t he A G has i denti f i ed t w o “ com pel l i ng r ea so ns ” f ora gove r nm ent alac t ort o w i t hhol d i nf or m at i on: [ T] hi s pr esum pt i on m ay be over com e w her e [ 1] t he i nf or m at i on at i ss ue i s dee m ed con f i den t i alby so m e so ur ceofl aw out si de t he [ A ] ct , an d i s t her ef or e e xce pt ed f r om di sc l os ur e by se ct i on 55 2. 10 1 . . . , or [ 2] w her e t he i nt er est of a t hi r d part y i s atst ake. Forex am pl e, w her e i nf or m at i on i s co n fi d e n t i alby st at ut e o r i m pl i ca t esthe pr i vac y i nt er es t s ofa t hi r d pa rt y, t he i nf or m at i on m us tbew i t hhe l d f r om p ubl i c d i sc l os ur e e ven t hough t he governm ent al body m ai nt ai ni ng t he i nf or m at i on has f ai l ed t o m ake a t i m el y r equ es tf oran ope n r ec or dsde ci si on. 39 S t a t u t o rya n d c a s e la w s u p p o rtt h e A G ’s g e n e r a l r u l e . T h e A c tit s e lf p r o v id e s a “ c o m p e llin g re a s o n ” f o ra g o v e r n m e n t a l a c t o rt o w it h h o ld i nf or m at i on byi m posi ng cr i m i nal penal t i es on any per son w ho “ d is t r i butes i n fo rm a ti o n c o n s i d e re d c o n fi d e n ti a l u n d e r th e te rm s o f [th e A c t].” 40M o re o v e r,[ A ct ] p roh i bi t s t he gov er nm ent al bodyf r om di scl osi ng t he i nf or m at i on. ”)

(fo o tn o te so m i tte d ).

41 ... Jacks on , 243 S. W . 3d at 757 –58 ( hol di ng t hatTr ans port at i on Code sect i on 5 52 . 05 1 p r ohi bi t s di scl osur e ofi nf or m at i on i n basi c dr i ver ’ s l i cense rec o rd fi l e , a n d b e c a u se T D P S d e m o n strate d tha t statu te req u i red T D P S to m ai nta i n c onf i den t i al i t y oft hi s i nf or m at i on, TD PS sa t i sf i ed bur den t o s how c o m p e l l i n g re a s o n to w i th h o l d i n fo rm a ti o n ).

42 ... I ndus . Found. of

th e S. v. Tex. I

ndus . A cci

den tBd. , 540 S. W . 2d 6 6 8 , 6 7 9 (T e x . 1 9 7 6 ), cert. denied, 43 0 U . S . 93 1 ( 19 77 ) . The A G has al so con si st ent l y op i ned t hatt he A ctdoe s notco m peldi sc l o s u re o fi nf or m at i on w h e re “ re l e a s e o f th a t i n fo rm a ti o n w o u l d i m p a i r s o m e c o n s ti tu ti o n a l ri g h t.” T e x . A tt’ y G e n . O R D -4 3 0 ( 1 9 8 5 ) (ho l d i n g tha t l i sts o f pe rso n s w h o v i sit e d w i th i nm at esar e e xem ptf r om di sc l os ur e b ec aus e i nf or m at i on i s con f i den t i al by c o n s ti tu ti o n a ll a w ); see al so Tex. A t t ’ y G en. O RD
- 185 ( 197 8) ( hol di ng t hatl ogs o f i n m a te c o r r e s p o n d e n c e a re c o n fi d e n ti a l b yc o n s ti tu ti o n a l l a w ); T e x . A tt’y G en. O RD
- 100 ( 197 5) ( hol di ng t hatport i ons of l i br ary ci r cul at i on r ec or dsl i nki ng i d e n ti ti e s o f i n d i v i d u a l p a tro n s t o m a t e ri a l sa c c e s s e d b yth o s e p a tro n sa re c o n fi d e n ti a l b yc o n s ti tu ti o n a l l a w ). 14 th e C o rpu s C h ri sti C o u rt o f A p p e a l s re c e n tl yag ree d w i th the A G tha t a gove r nm ent alac t o rd e mo n st r at esa “c om pel l i ng r ea so n”t o w i t hhol d i nf or m at i on
w hen th a t a c t orest abl i shes t hatt he i nf or m at i on i s conf i denti al by st at ut e. 41 A nd t he Texa s Supr em e Courtha s r ec ogni z ed t hatan “ i ndi v i d u a l doe s not fo rf e i t al l ri g h t t o c o n tr o l a c c e ss to i n ti m a te fa c ts c o n c e rning h i s p e rso n a l l i fe
m er el y because t he S t a te has a l egi t i m at e i nt er esti n obtai ni ng t hat i n fo rm a ti o n .” 42 A ccor di ngl y, w e co n c l ude t hata gover nm ent al act ordem onst r at es a “com pel l i ng r eason” t o w i t hho l d pub l i c i nf or m at i on w hen t he act or show s t hat43 ... T e x . G o v ’t C o d e A n n . § § 5 5 2 .1 0 1 , 5 5 2 .3 0 2 ; I n dus . Found. , 540 S .W .2 d a t 6 7 8 -7 9 ; Jacks on , 2 4 3 S .W .3 d a t 7 5 7

– 5 8 ; s e e a l s o s up ran . 3 9 . We e m p h a s iz e t h a tt h is o p in io n s h o u ld n o tb e c o n s t r u e d a sid e n t if y in g t h e o n ly “c om pel l i ng r ea so ns ” t o w i t hhol d i nf or m at i on; t her e m ay be ot hers uch r ea so ns t h a ta r e n o tre le v a n tt o t h e d is p o s it io n o ft h isa p p e a l. 15 ( 1) i ti s pr ohi bi t ed by st at ut e f r om di scl osi ng cert ai n i nf or m at i on and , t her ef or e, t hati nf or m at i on i s exe m pt f r om di sc l os ur e u nde rs ec t i on 552. 101 , or( 2) t he di scl osur e oft he i nf or m at i on i m pl i cat es t he const i t ut i onal l y pr ot ect ed pr i vacy i nt er es tofa part y ot hert han t he gove r nm ent albody . 43 2 . I n fo rm a ti o n tha t i s c o n fi d e n ti a lb ysta tu te D oe’ s ope n r ec or ds r equ es t so ughti nf or m at i on r ega r di ng i nve st i gat i ons i nt o al l ega t i ons of chi l d a bus e, an d i tal so s oughtN C I C an d TCI C r epo rt s. The D A u rge d , a n d the tr i a l c o u r t h e l d , th a t t h e D A h a d a c o m p e l l i n g rea so n to
w i t hho l d t hi s i nf or m at i on becau se i ti s m ade confi denti al by st at ut e.

a . Fa m i l y Cod eSe c t i on 261. 201 S e c t io n 2 6 1 .2 0 1 o ft h e F a m ilyC o d e c le a r lyre m o v e sin f o r m a t io n w it h in i t s sc opef r om di sc l os ur e u nde rt he A ct . Thats ec t i on de cl ar est he f ol l ow i ng: (a ) T h e f o llo w in g in f o r m a t io n i s c o n f id e n t ia l, is n o ts u bje c tt o p u b lic r el ease under[ t he A ct ] , and m ay be di scl osed onl y f orpur po s es c o nsi st entw i t h t hi s code and app l i cabl e f eder al orst at e l aw orunder r ul esad opt ed by a n i nve st i gat i ng a gen cy: ( 1) a r e p o rt o fal l eged orsuspect ed abuse ornegl ectm ade und er t hi s cha pt eran d t he i den t i t y oft he per so n m ak i ng t he r epo rt ; an d44 ... T e x . F a m . C o d e A n n . § 2 6 1 .2 0 1 (a ) (V e rn o n S u p p . 2 0 0 8 ); see al so Co a chm a nv. S tate , 6 9 2 S .W .2 d 9 4 0 , 9 4 5 (T e x . A p p .— H o u s to n [ 1 s t D i s t.] 1 9 8 5 , w ri t re f’d ).

45 ... See Tex. D ept. of Hum an Servs . v. Bens on , 893 S. W . 2d 236, 242 (T e x . A p p .— A u s ti n 1 9 9 5 , w ri t d e n i e d ).

46 ... S e e Penn s ylva nia v. Ritchie , 480 U. S. 39, 57, 107 S . Ct . 989, 1001 ( 198 7) ( des cr i bi ng c om pel l i ng i nt er es ti n pr ot ec t i ng c hi l d- abu sei nf or m at i on ); Bens on , 8 9 3 S .W .2 d a t2 4 2 (n o t i n g p u r p o s e o fc o n f id e n t ia lit yp r o t e c t io n sin fa m i l yc o d e to e n c o u ra g e re p o rti n g o f s u s p e c te d c h i l d a b u s e ). 16 ( 2) exceptas ot her w i se pr ovi ded i n t hi s sect i on, t he f i l es, r eport s, r ec or ds , co m m uni ca t i ons , au di ot ape s, vi deo t ape s, an d w or ki ng pap er s us ed orde vel ope d i n a n i nve st i gat i on un dert hi s cha pt eror i n pr ovi di ng s ervi ce s asa r es ul tofan i nve st i gat i on. 44 C onf i den t i al i t y i s ce nt r al t o t he f am i l y c odepr ovi si onsgov er ni ng t he r epo rt i ng o f c h il d abuse, 45 a n d t h e S t a t e h a s a c o mp e l l i n g i n t e r e s t i n p r o t e c t i n g t he
con f i den t i al i t y of i nf or m at i on us ed orobt ai ned i n a n i nve st i gat i on ofal l ege d or suspect ed chi l d abuse. 46 The t er m s ofs ec t i on 261. 201 al one pr ovi de a “c om pel l i ng r ea so n”f ort he D A t o w it h h o ld s o m e o ft h e in f o r m a t i o n D o e re q u e s t e d . B ye x p r e s s ly
exe m pt i ng i nf or m at i on w i t hi n t he sc ope of se ct i on 261. 201 f r om t he sc opeof t h e A c t , t h e le g is la t u r e im p o s e d o n t h e g o v e r n m e n t a l b o d y a d u t y t o m a in t a in t he con f i den t i al i t y oft hati nf or m at i on. A cc or di ngl y, t he onl y i ss ue f ort he t r i alco urtt o r es ol ve w as w het hert he do c um e nt s c on t a i ne d i nf or m a t i on w i t hi n t he s c op e of s e c t i on 2 6 1 . 201.47 ... Wo rfo rd, 801 S. W . 2d a t109.
48 ... T e x . A tt’yG e n . O R 2 0 0 6 -0 9 5 9 0 (2 0 0 6 ). 17 B e c a u s e th e tri a l c o u rt d i d n o t e n te r fi n d i n g s o f fa c t o r c o n c l u s i o n so f l a w , w e
m us taf f i r m t he t r i alco urt ’ s or der i ft her e i s anyev i den cet o s upportt he
c on c l us i on t ha tt hei nf or m a t i on i sw i t hi n t hes c op e o fs e c t i on 261. 201. 47 T h e tri a l c o u rt to o k j u d i c i a l n o ti c e o f th e e n ti re re c o rd i n th i s p ro c e e d i n g . T h e re c o rd i ncl ude d t he doc um ent s at i ss ue, w hi ch had be en su bm i t t ed i n c am er a t o t he tr i a l co u rt . T h e rec o r d a l so i n c l u d e d the A G rul i n g p rov i d e d i n res p o n se to D o e ’s o p e n rec o rds req u e st, i n w h i c h the A G d e term i n e d tha t t h o se d o c u m e n ts i denti f i ed by t he D A as w i t hi n t he sco pe ofsect i on 2 61 . 20 1 “m ust[ be]
w i th h [e ]l d . . . u n d e r s e c ti o n 5 5 2 .1 0 1 .” 48 Thi s w ass uf f i ci entev i den cef ort he t r i al co urtt o ha ve det er m i ned t hats om e o ft he doc um ent s w er e w i t hi n t he
sc o p e o f se c ti o n 2 6 1 .2 0 1 an d , th e refo re, t h e D A h a d a co m p e l l i n g rea so n to
w i t hho l d t hem f r om di scl osur e.

b. Gove r nm e ntCod eSe c t i on 411. 083 D oe al so s oughti nf or m at i on c ont ai ned i n NC I C an d TCI C r epo rt s r el at i ng t o M uni z. Sect i on 4 11 . 08 3 oft he G over nm entC ode pr ovi des t hat“[ c] r i m i nal h is t o ryre c o r d in f o r m a t io n m a in t a in e d b yt h e [D e p a rt m e n to fP u b lic S a f e t y ] is confi denti al i nf or m at i on f ort he use of t he depart m entand, exceptas pr ovi ded49 ... T e x . G o v ’t C o d e A n n . § 4 1 1 .0 8 3 (V e rn o n S u p p . 2 0 0 8 ).
50 ... See, e. g. , Te x. At t ’ y Gen . O R2008

- 12058 ( 2008) , OR2008- 12002 (2 0 0 8 ).

51 ... Te x. At t ’ y G e n . O RD- 430 ( 1985) , ORD

- 428 ( 1985) , ORD

- 185 (1 9 7 8 ). 18 b yth i s s u b c h a p te r, m a yn o t b e d i s s e m i n a te d b yth e d e p a rtm e n t.” 49As w i t h t he ot hercat egor i es ofdocum ent s at i ssue her e, t he A G has consi st ent l y hel d t hat i nf or m at i on w i t hi n t he sc opeofs ec t i on 411. 083 i s exe m ptf r om di sc l os ur e b y s e c t i on 552. 101. 50 A s w i t h t he docu m ent s underse c tio n 2 61 . 20 1, t he t r i al courtw as p r ov i de d t heNCI C an d TCI C r e po rt sf ori n c a m e r a r e vi e w . Se c t i on 411. 083 pr ovi desa com pel l i ng r ea so n t o w i t hhol d s uch r epo rt s. The t r i alco urtdi d not
er ri n deny i ng m andam us r el i eft o D oe r egar di ng t hese r eport s. 3. I nf or m at i on t hati s conf i denti alby const it ut i onall aw R e ly in g o n t h e e x e m p t io n in s e c t i o n 5 5 2 .1 0 1 f o rin f o r m a t io n t h a tis
con f i den t i alba se d on con st i t ut i ona l l aw , t he D A s oughtt o w i t hhol d f r om di sc l os ur e t o Doe vi si t at i on l ogs and ot her m at er i al s r ef l ec t i ng c om m uni ca t i ons bet w ee n M uni zan d ot herpe r so ns . The A G has opi ned t hats uch i nf or m at i on i s exe m pt ed f r om di sc l os u re u n d e rt he A ctbe ca us e i ti m pl i ca t est he const i t ut i onal l y pr ot ect ed pr i vacy i nt er est s oft hi r d part i es. 51 In p a rt ic u la r , itis
e sta b l i sh e d co n sti tu ti o n a ll a w th a t, su bj e c t to reg u l a ti o n s re a so n a b l yrel a ted to52 ... S e es up ran . 50.
53 ... S ee T e x . R . Ap p . P . 3 8 . 1 ( h ) ( “ T h e [ a p p e l l a t e ] b r i e f mu s t c o n t a i n a cl ea ran d con ci se ar gum entf ort he con t ent i on m ade , w i t h a ppr opr i at e c i t at i ons 19 t he st at e’ s i nt er es ti n t he or deran d s ec ur i t y ofpe nali ns t i t ut i ons , i nm at esan d pr i vat e p er so nsha ve a c ons t i t ut i ona l pr i vac y i nt er es ti n m ai nt ai ni ng t he confi denti al i t y ofcor r espond ence and com m uni cat i ons bet w een t hem . 52 A s w i t h docu m ent s r ef l ect i ng i nf or m at i on m ade confi denti al by st at ut e, th e rec o rd i n c l u d e d d o c u m e n ts refl e c ti n g M u n i z’s c o m m u n i c a ti o n s w i th p ri v a te p e r s o n s , a st h o s e d o c u m e n t sw e r e s u b m it t e d in c a m e r a . T h isin f o r m a t io n is
exe mp t f r o m d i s c l o s u r e u n d e r t h e Ac t b e c a u s e i t i s c o n f i d e n t i al by
con st i t ut i ona ll aw . Accor di ngl y, t he t r i al cou rtdi d noter ri n c onc l udi ng t hatt he i nf or m at i on i n t hese docum ent s w as exem ptf r om di scl osur e. H a v in g c o n c lu d e d t h a t t h e D A s h o w e d a c o m p e llin g re a s o n t o w it h h o ld t he docu m ent s ati ssue, w e over r ul e D oe’ s f i r sti ssue. B . D e p o sit i o n T ran sc ri p ts Doe ’ s s e c on d i s s ue on a pp e a l a l l e ge s t ha t t he t r i a l c ou rt a bu se d i ts di sc r et i on i n r em ovi ng e nt i r e w i t nes s dep os i t i on t r ans cr i pt s from t he r ec or d,
w i th o u t co n d u c ti n g an i n ca m e r a in s p e c ti o n . D o e , h o w e v e r, w h o l l yfai l e d to pr ovi de us w i t h any ar gum entoraut hor i t i es i n suppo rtoft hi s i ssue as r equi r ed b ya p p e l l a te ru l e 3 8 .1 (h ). 53An i ss ue on a p p e aluns upport ed by a r gum entorto a u th o ri ti e sa n d to th e re c o rd .” ).
54 ... Strang e v. Cont ’ l Cas. Co. , 12 6 S . W . 3d 67 6, 67 8 ( Tex . A pp. — D al l as 2 0 0 4 , p e t. d e n i e d ), cert. denied, 5 4 3 U .S . 1 0 7 6 (2 0 0 5 ). 20 ci t at i on t o any l egal aut hor i t y pr esent s not hi ng f ort he courtt o r evi ew . 54 I s s u e t w o i s ove r r ul ed. C onc l us i on H avi ng ov er r ul ed both ofD oe’ s is s u e s on appeal , w e af f i r m t he t r i al
c o u rt’sj u d g m e n t.

J OHN CAYCE CHI E FJ UST I CE PA N EL: CA YC E, C. J. ; LI V I N G STO N an d DA U PH I N O T, JJ. DEL I VERE D: Oct ob e r9, 2008