1

In The

Court of Appeals

Ninth District of Texas at Beaumont

__________________

NO. 09-19-00383-CV

__________________

SHANNA GLAWSON D/B/A ACE BAIL BONDS, Appellant

V.

POLK COUNTY BAIL BOND BOARD, AMERICAN SURETY CO., AND 

TONYA MCADAMS D/B/A ANYTIME BAIL BONDS, Appellees

__________________________________________________________________

On Appeal from the 258th District Court

Polk County, Texas

Trial Cause No. CIV33090

__________________________________________________________________

OPINION

After finding the plaintiff’s complaints over the Polk County Bail Bond 

Board’s decision to issue a license to another person who wanted to compete for bail 

bond business in Polk County, the trial court determined the plaintiff did not have 

standing to be heard on her complaints and dismissed the suit that the plaintiff, 

Shanna Glawson, filed against the Board, American Surety Company, and Tonya 
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McAdams, the person the Board decided qualified for a license.1 American Surety 

is the corporate surety that underwrites the bonds the Board licensed McAdams to 

write in Polk County.

Glawson appealed from the trial court’s ruling dismissing her suit. On appeal, 

she complains the trial court erred when it granted the motionsto dismiss filed by 

the Board, McAdams, and American Surety Company that resulted in the dismissal 

of her suit. She claims she had standing to challenge the Board’s decision to issue a 

license to McAdams.On appeal, Glawson filed a brief and raises two issues for our 

review. First, she argues the trial court had jurisdiction over the claims she filed 

challenging the Board’s decision to license McAdams. Second, she contends the trial 

court erred in concluding it lacked jurisdiction over the claims that she filed against 

McAdams and American Surety. 

Resolving Glawson’sissuesrequires that we answer two unrelated questions.

First, under Texas law, do courts have jurisdiction over disputesinvolving a bail

bond board’s administrative rulings when the purpose of the plaintiff’s suit is to 

challenge the Board’s decision to license someone other than the plaintiff who filed 

the suit? Second, Glawson argues the Board violated the Texas Open Meetings Act 

(TOMA)in handling some of the meetings it held after she sued. To decide whether 

1See Tex. Occ. Code Ann. §§ 1704.001-.306 (West 2012 & Supp. 2020)(the 

Act or the Bail Bond Act).
3

the trial court erred in dismissing the claims Glawson filed that rely on TOMA, we 

must decide whether Glawson’s pleadings, if true, allege factssufficient to show that 

the Board violated TOMA.2

We conclude the answers to these questions are no. We affirm the final 

judgment dismissing Glawson’s suit, which was assigned trial court cause number 

CIV33090.

Background

After conducting two administrative hearings, the Board approved McAdams’ 

application and licensed McAdams to write bail bonds in Polk County.3 After the 

Board gave McAdams a license, Glawson filed a lawsuit and named the Board, 

American Surety, and McAdams as defendants in her suit. In the suit, Glawson 

challenged the decision the Board made to license McAdams and claimed that 

McAdams did not have the work experience needed to qualify her for a license. 

Glawson asked the trial court to enjoin the defendants and to prevent McAdams from 

writing surety bonds in Polk County. 

As is relevant here, Texas law makes it unlawful for someone to write surety 

bonds in Texas “unless the person holds a license issued under this chapter.”4 In 

2Tex. Gov’t Code Ann. §§ 551.001-.146 (West & Supp. 2020) (Texas Open 

Meetings Act or TOMA). 3McAdams does business as Anytime Bail Bonds. 

4Tex. Occ. Code Ann. § 1704.151 (License Required).
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those counties that have elected to create bail bond boards, the Occupation Code 

gives such boards the authority to conduct hearings and decide whether an applicant 

is qualified to write bail bonds in the county or counties regulated by the board that 

issued the license.5 Polk County is one of the counties in Texas that has opted to 

have a bail bond board. Under the Act, where such boards exist, the Occupational 

Code authorizes the board to “conduct hearings and investigations and make

determinations relating to the issuance, denial, or renewal of licenses[.]”6 Applicants 

seeking a license to write surety bonds must demonstrate they possess the 

qualifications spelled out in the Occupational Code for getting a license.7

After the Board licensed McAdams, Glawson filed the suit at issue in this 

appeal.In the suit, Glawson alleged that McAdams did not qualify for a license and 

the Board erred when it found that she did. Specifically, Glawson alleged McAdams 

did not have two years of work experience in all phases of the bail bond business, 

which is listed as one of the criteria an applicant must meet to qualify for a license

to issue surety bonds.

8

But while Glawson alleged that McAdams did not have the required work 

experience to qualify for a license, she then failed to provide the trial court with all

5See id. § 1704.052 (Discretionary Creation of Board).

6Id. § 1704.101(5).

7Id. § 1704.152(a). 

8Id. § 1704.152(a)(4).
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the information the Board considered in the administrative processwhen the Board 

licensed McAdams.Instead, Glawson provided the trial court with evidence not seen 

or considered by the Board. For example, Glawson filed an affidavit signed by 

Anthony Kroon to support her claims. In his affidavit, Kroon states that he is in the 

bail bond business and McAdams previously worked for him for about a year. But 

when she worked for him, Kroon continued, she did not acquire the work experience 

that is required to fulfil the licensing requirements under the Occupational Code that 

are needed to obtain a surety bond license. Kroon also stated while working for him, 

McAdams had not worked in all phases of the bail bond business even though she 

worked “at least 30 hours a week.”9 Kroon concludes that McAdams’s experience, 

while working for him, did not meet the work-experience requirements necessary to 

be licensed.

Relying on Kroon’s affidavit and the allegations in her pleadings, Glawson 

argued the Declaratory Judgment Act (DJA) gave the trial court the authority to 

enjoin the defendants to prevent McAdams from using her license. Glawson also 

asked the trial court to enjoin McAdams from writing bonds.

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9Kroon signed his affidavit the same day McAdams filed suit. Thus, Kroon’s 

affidavit could not have been one of the exhibits the Board considered during the 

administrative hearings that resulted in the decision the Board made to license 

McAdams. 

10See Tex. Civ. Prac. & Rem. Code Ann. §§ 37.001-.011 (Declaratory 

Judgment Act or DJA).
6

After answering, the defendants moved to dismissthe suit. In their respective 

motions to dismiss, the defendants argued the trial court lacked jurisdiction over 

lawsuits challenging the Board’s licensing decision when the plaintiff who filed the 

suit was someone other than the person seeking to be licensed.11 According to the 

defendants, the DJA does not give trial courts the right to exercise jurisdiction over 

a suit filed by a stranger to the license the Board issued. 

After Glawson filed suit, the Board conducted another meeting. Glawson 

added a claim after the Board held this meeting and claimed that the Board, in the 

post-suit meeting, violated the rules that apply to governmental bodies, rules that 

generally require the meetings to be open to the public. The record shows that the 

Board conducted an emergency meeting shortly after Glawson filed the suit on less 

than 72 hours’ notice to the public. As posted, the purpose of the meeting was to 

allow the Board to discuss litigation. The public notice the Board posted states the 

Board planned to meet in executive session to discuss litigation involving or 

contemplated by the Board. While the agenda for the meeting mentions litigation

generally, nothing in the notice the Board posted contains anything specific to show 

the meeting concerned Glawson’s recently filed suit.

11Tex. Occ. Code Ann. § 1704.255(a) (providing only the applicant for the 

license or the license holder whose license is denied, suspended, or revoked may 

appeal from an order of a board denying an application, renewal, suspension, or 

revocation of a bail bond license). 
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Days after the emergency meeting, the attorney representing the Board filed a 

plea to the jurisdiction in Glawson’s lawsuit. The plea asserts the trial court did not 

have jurisdiction over the Board based on the claims that Glawson alleged in her 

suit. In the plea, Polk County adopted the arguments filed in an earlier pleading filed 

by American Surety and McAdams to dismiss Glawson’s suit.12 In addition to 

adopting the arguments of American Surety and McAdams, the Board also alleged 

it was immune from suit based on Glawson’s allegations because the legislature had 

not waived the Board’s immunity from suits like Glawson’s, a suit filed by someone 

who is a stranger to the license that was issued by the Board.

In response to the defendant’s motions, Glawson argued the license she had 

to write bail bonds in Polk County created a vested property interest that gave her 

the right to protect her license. That interest, Glawson claimed, gave the trial court 

jurisdiction to consider and to resolve the complaints she included in her petition 

complaining about the Board’s decision to licenseMcAdams.

Three days before the trial court conducted a hearing on the motions to 

dismiss, Glawson filed a supplemental petition. For the first time, Glawson added 

an additional claim asserting the Board violated TOMA based on the manner it 

conducted the post-suit emergency meeting. Glawson also claimed the Board, during 

12Tex. R. Civ. P. 58 (allowing parties to adopt another party’s pleadings by 

reference). 
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the emergency meeting, violated TOMA by discussing subjects that concerned 

matters that exceeded the matters listed on the agenda the Board posted before 

conducting the meeting. That said, Glawson never pleaded or filed any evidence to 

support her claim that the matters discussed in the emergency meeting included 

matters outside the scope of the agenda that was posted for the meeting. In her 

supplemental pleading, Glawson asked the trial court to order the Board “to reverse 

the action taken at this meeting,” but she never alleged or proved what actions the 

Board took during the emergency meeting.

After conducting a hearing on the defendants’ motions to dismiss, the trial 

court granted the motions. Later, this Court abated the appeal to allow the trial court 

to determine whether it wanted to sign a final, appealable judgment to finalize the 

orders it signed granting the motions to dismiss. Following the abatement of the 

appeal, the trial court signed a final judgment and dismissed the suit Glawson filed 

against the Polk County Bail Bond Board, American Surety, and Tonya McAdams. 

The final judgment includes language of finality, language sufficient to establish this 

Court’s jurisdiction over the appeal.

On appeal, Glawson arguesthe trial court erred in dismissing her suit for lack 

of jurisdiction.
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Standard of Review

In Texas, courts cannot resolve disputes without the subject-matter 

jurisdiction they need to do so.13 Glawson’s primary argument is that the trial court 

erred in dismissing her suit. We review appeals complaining about a trial court’s 

dismissal of a suit for lack of jurisdiction de novo.14

The defendants’ motions to dismiss claim Glawson failed to allege sufficient 

facts to demonstrate the trial court has jurisdiction over her claims. On appeal, we 

decide whether facts alleged in the plaintiff’s pleadings, together with the 

jurisdictional evidence the trial court considered in deciding the motions to dismiss, 

were sufficient to establish that the trial court could exercise jurisdiction over the 

plaintiff’s claims.

15 When trial courts dismiss suits based on a defendant’s claim the 

plaintiff’s pleadings are insufficient, the pleadings are construed liberally and in 

favor of the pleader.16 If the pleadings are insufficient because they fail to allege 

enough facts for the trial court to determine whether jurisdiction exists, but the 

problem can be cured by amendment, the trial court must allow the plaintiff the 

opportunity to amend the pleadings before dismissing the suit.17 On the other hand, 

13The State Bar of Tex. v. Gomez, 891 S.W.2d 243, 245 (Tex. 1994).

14See Tex. Dep’t of Parks & Wildlife v. Miranda, 133 S.W.3d 217, 225-26, 

228 (Tex. 2004);Brown v. Todd, 53 S.W.3d 297, 305 & n.3 (Tex. 2001); Tex. Nat. 

Res. Conservation Comm’n v. White, 46 S.W.3d 864, 866-67 (Tex. 2001). 15See Miranda, 133 S.W.3d at 226-27. 16Heckman v. Williamson Cty., 369 S.W.3d 137, 150 (Tex. 2012). 17Miranda, 133 S.W.3d at 226-27. 
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when the pleadings affirmatively negate the trial court’s jurisdiction over the dispute, 

the trial court must grant the plea without allowing the plaintiff an opportunity to 

replead.18

Analysis 

First, we address whether the trial court correctly decided it did not have 

subject-matter jurisdiction over the licensing decision made by the Board. For our 

purposes, the legislature gave bail bond boards in counties that opted to create them 

like Polk County, the right to decide what persons are eligible to be licensed.

19

Generally, Texas law provides parties with no “right to judicial review of an 

administrative order unless a statute provides a right or unless the order adversely 

affects a vested property right or otherwise violates a constitutional right.”20

The Bail Bond Act contains no provisionsthat purport to allow someone like 

Glawson, a stranger to McAdams’ license, the right to challenge the Board’s 

licensing decision before a court. To avoid that problem, Glawson alleged that 

because she has a license, the vested property rights she has under her license give 

her standing to protect it by challenging the licenses of competitors like McAdams, 

whom she claims does not have the qualificationsshe needed to obtain a license.

18Id. at 227. 

19Tex. Occ. Code Ann. § 1704.101 (Administrative Authority) (Supp. 2020).

20Cont’l Cas. Ins. Co. v. Functional Restoration Assocs., 19 S.W.3d 393, 397

(Tex. 2000).
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The Bail Bond Act creates an administrative process for applicants who are 

seeking a license. Even so, nothing in the Act allows someone like Glawson, a 

stranger to McAdams’ license, to challenge licensing decisions of bail bond boards

by filing an appeal of a board’s decision to a court.21 In legal terms, the Act omits a 

private cause of action for someone like Glawson, a stranger to the license at issue 

in the appeal.22

Our analysis does not end there, however, since Glawson also alleged that the 

property interest she has in her license is sufficient to give her standing to complain 

about a board’s licensing decisions that concern other licensees. The trial court did 

not make any specific findings in the judgment that address that claim. Even so, we 

imply from the judgment dismissing the suit that the trial court found Glawson’s 

property interest in her own license were insufficient to provide her with standing to 

challenge the Board’s decision to license McAdams in a court.

23

Of course, due process concerns arise if the facts in the pleadings show the 

State (or its agents) deprived a person of a vested interest in their property.24But the 

21See id. at 397, 404; Tex. Occ. Code Ann. § 1704.255.

22Id. 23See BMC Software Belg., N.V. v. Marchand, 83 S.W.3d 789, 795 (Tex. 

2002) (explaining that when no party requests findings of fact and conclusions of 

law, “all facts necessary to support the judgment and supported by the evidence are 

implied”).

24See Bd. of Regents of State Colleges v. Roth, 408 U.S. 564, 569-70 (1972) 

(recognizing procedural due process is implicated if the person has a protected 

interest giving the person “the right to some kind of prior hearing”); see also U.S. 
12

Board’s decision to license McAdams did not prevent Glawson from competing for 

any business regulated under her license because the suit challenges the Board’s 

decision to license McAdams. Glawson also claimed that her rights to due process 

obligated the trial court to exercise jurisdiction over her claims and decide whether 

there was sufficient evidence before the Board to prove McAdams had the workexperience requirements to qualify for a license under the Act. But Glawson’s 

pleadings contain no facts that support her due process claim. Instead, they show 

Glawson received the process she was due given that the pleadings before the trial 

court show the Board conducted two administrative licensing hearings before 

deciding to grant McAdams a license.25 And we find nothing in Glawson’s pleadings 

that allege the Board failed to give the public the required notice of the 

administrative proceedingsit conducted before licensing McAdams, the meeting that 

occurred before the emergency meeting that is the subject of Glawson’s TOMA

claim. 

CONST. amend. XIV, § 1 (“[n]o state shall . . . deprive any person of life, liberty, or 

property, without due process of law[.]”); Tex. Const. art I, § 19 (“No citizen of this 

State shall be deprived of life, liberty, property, privileges or immunities . . . except 

by the due course of the law of the land.”). 25See Tex. Occ. Code Ann. § 1704.102(b)(2) (giving bail bond boards the right 

to conduct hearings, administer oaths, examine witnesses, and compel the 

production of pertinent records); S.C. San Antonio, Inc. v. Tex. Dep’t of Human 

Servs., 891 S.W.2d 773, 778 (Tex. App.—Austin 1995, writ denied) (noting that 

“after determining that a protected interest is involved, the reviewing court focuses 

on whether due process was afforded in the administrative process”).
13

The pleadings before the trial court reflect the Board investigated McAdams’ 

qualifications and held hearings before deciding whether McAdams was eligible for 

a license.26 Since Glawson is a stranger to McAdams’ license, we conclude that 

Glawson failed to plead facts sufficient to show she did not receive the process she 

was due in the administrative licensing processinvolving McAdams’ license. 

In the end, Glawson’s pleadings do no more than show that she disagrees with 

the administrative decision the Board made to grant McAdams a license. Yet 

Glawson’s pleadings reflect the Board investigated McAdams’ qualifications, 

holding two administrative hearings before deciding McAdams qualified for a bail 

bond license.27 Thus, Glawson’s pleadings affirmatively negate her due process 

claim since they show that Glawson had “an opportunity to be heard at a meaningful 

time and in a meaningful manner” about whether McAdams was qualified to be 

licensed.28 While on this record we don’t know whether Glawson objected to 

McAdams license in the administrative hearings process, Glawson failed to both 

allege and to provide the trial court with evidence to show the Board violated any 

open meetings act rules in the administrative hearings it conducted before it decided 

26Tex. Occ. Code Ann. § 1704.157. 

27Id. § 1704.102(b)(2) (allowing the board to administer oaths and examine 

witnesses); § 1704.158(a) (requiring bail bond boards to conduct hearings on 

licensing applications). 

28Univ. of Tex. Med. Sch. at Houston v. Than, 901 S.W.2d 926, 930 (Tex. 

1995).
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to approve McAdams’ application for a license. We conclude the trial court properly 

dismissed Glawson’s claims that challenge the Board’s decision to license 

McAdams.29

That leads us to the second question, whether Glawson’s pleadings allege 

facts that, if true, are sufficient to demonstrate that a bona fide question of fact exists 

on Glawson’s claim alleging the Board violated TOMA when it conducted the postlawsuit emergency meeting? We conclude the answer is no.30 The DJA does not 

create jurisdiction when jurisdiction does not already exist either based on a statute 

providing the plaintiff with a claim or under the constitution.31 As to the emergency 

meeting, Glawson’s petition alleges the Board failed to provide the public with 72 

hours’ notice of the emergency meeting. She also claimed the Board, when it 

conducted the emergency meeting, discussed matters that exceeded the scope of the 

agenda the Board posted prior to the meeting.

Generally, the Texas Open Meetings Act allows the public the right to access 

meetings conducted by governmental bodies to allow the public to learn what 

government officials are considering when they are deciding mattersthat affect the 

public.32 Even so, exceptions exist in the Open Meetings Act to the general 

29See Tex. Nat. Res. Conservation Comm’n v. IT-Davy, 74 S.W.3d 849, 855 

(Tex. 2002); Phillips, 94 S.W.2d at 141. 

30See Tex. Civ. Prac. & Rem. CodeAnn. § 37.004(a).

31Chenault v. Phillips, 914 S.W.2d 140, 141 (Tex. 1996). 32Tex. Gov’t Code Ann. § 551.002.
15

requirement that favors public meetings. Meetings held to discuss litigation is one 

of these exceptions, since the Open Meetings Act allows governmental entities to 

close meetings to the public to consult and seek the advice of attorneys on “pending 

or contemplated litigation[.]”33 The agenda that was posted for the September 11 

meeting states the Board planned to consider pending litigation in the emergency 

meeting. No other subject is listed on the agenda about what was to be discussed. 

Specifically, the agenda the Board posted states: “Executive Session to discuss 

pending litigation with the Polk County Bail Bond Board.” 

Glawson alleged the Board met in an emergency meeting shortly after she 

filed suit. Thus, even if the Board did discuss Glawson’s lawsuit in the meeting (and 

she did not even allege that it did) her suit was “pending” the day the meeting

occurred. Glawson also alleged the Board discussed matters that went beyond the 

matters stated in the posted agenda. Even so, the pleadings Glawson filed never 

alleged any factual basis for that claim.

The topic in the agenda the Board posted for the meeting is broad. The Texas 

Supreme Court has also explained that under the Open Meetings Act, “it is not 

necessary to state all of the consequences which may flow from consideration of the 

33Id. § 551.001(2) (defining closed meeting), § 551.071(1)(A) (Consultation 

with Attorney; Closed Meeting).
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topic.”34 We conclude Glawson’s pleadings are conclusory and as such, fail to allege 

facts sufficient to support her Open Meetings Act claim as it relates to the emergency 

meeting.35

Last, Glawson complains the Board gave the public less than the required 72 

hours’ notice of its emergency meeting. But Glawson’s own pleadings affirmatively 

demonstrate that allegation, even if true, is not a violation of TOMA. Under TOMA, 

governmental bodies may conduct emergency meetings on one hour’s notice of the 

meeting.36 Glawson never claimed, alleged, or argued the Board notified the public 

of the emergency meeting on less than one hour’s notice. 

Conclusion

We hold the trial court did not err in granting the defendants’ motions to 

dismiss. Glawson has never claimed that she could have cured the deficiencies the 

defendants pointed out in the motions to dismiss had she been allowed to amend her 

pleadings. While Glawson supplemented her pleadings by adding a TOMA claim

that concerns the Board’s emergency meeting, her pleadings show that claim, like 

her others, lacks merit. For these reasons, we conclude the trial court was not 

34Cox Enters., Inc. v. Bd. of Trs. of Austin Indep. Sch. Dist., 706 S.W.2d 956, 

958-59 (Tex. 1986). 35See City of Elsa v. Gonzalez, 325 S.W.3d 622, 625 (Tex. 2010) (explaining 

that when pleading jurisdictional facts, the pleadings may not be conclusory and 

must include sufficient jurisdictional facts to allow the court to determine whether it 

has jurisdiction over the dispute). 36Tex. Gov’t Code Ann. §§ 551.043, 551.045(a).
17

required to allow Glawson an opportunity to replead before ordering the suit 

dismissed.

37 In this Court, Glawson has not argued that she could cure her pleadings

if allowed to amend or explain how the pleadings could be amended in some way 

that would demonstrate that she has a good faith basis for the claims the trial court 

dismissed. 

For the reasons explained above, the trial court’s judgment dismissing

Glawson’s suit is affirmed. 

AFFIRMED.

_________________________

HOLLIS HORTON

Justice

Submitted on March 24, 2021

Opinion Delivered January 13, 2022

Before Kreger, Horton and Johnson, JJ.

37See Tex. A & M Univ. Sys. v. Koseoglu, 233 S.W.3d 835, 839 (Tex. 2007).