Opinion filed July 28, 2022

In The

Eleventh Court of Appeals __________

No. 11-22-00197-CV

__________

IN RE KIMBERLY GANDY

Original Mandamus Proceeding 

 O P I N I O N

Relator, Kimberly Gandy, is the alleged paternal grandmother of R.M., the 

child that is the subject of the underlying suit affecting the parent-child relationship 

(SAPCR) and for termination of parental rights. She has filed a petition for writ of 

mandamus and request for emergency relief in this court. In her petition, Relator

requests that we direct the Honorable April R. Propst, associate judge of the 326th 

District Court, to withdraw her order striking Relator’s petition in intervention and 

to allow her to intervene in the underlying suit.1

 Relator further requests that this 

1

See TEX. GOV’T CODE ANN. § 22.221(b)(3) (West Supp. 2021) (authorizing courts of appeals to 

issue a writ of mandamus against an associate judge in certain family law cases).
2

court stay all proceedings in the underlying suit until we issue the mandate and

Relator is reinstated as an intervenor, or until Relator exhausts her appellate 

remedies. After reviewing the petition and the responses, considering the question 

of law and construing the applicable Texas Family Code provision de novo, we 

conclude that the trial court abused its discretion in granting the motion to strike the

intervention and therefore conditionally grant in part Relator’s petition for writ of 

mandamus. 

Factual and Procedural History

Real party in interest and mother, A.M., has two children that are the subject 

of an underlying suit for termination of her parental rights, including R.M. On 

March 24, 2021, real party in interest Texas Department of Family and Protective 

Services (the Department) filed for protection, conservatorship, and termination of 

parental rights of both children.

2

 On September 8, 2021, Relator, as the alleged 

grandmother of R.M. through her deceased biological son, filed a petition in 

intervention pertaining to R.M. Relator’s petition requested adoption of R.M. should

the mother’s parental rights be terminated, or in the alternative, that Relator be 

appointed sole managing conservator or possessory conservator of R.M. Relator 

participated in the proceedings, including hearings and trial, following the filing of 

her petition.

The Department began its case in chief on February 14, 2022, and, after a 

continuance, rested its case on March 3, 2022. The trial court resumed on March 17, 

2022. After discovering that a presumed father to R.M. was listed in a divorce decree

in Taylor County, Texas, Relator filed a motion to dismiss R.M. from 

2

The foster parents are designated together as a real party in interest. Because this appeal only 

relates to Relator’s intervention, we do not address the procedural history relating to the foster parents’

involvement in the proceedings.
3

the termination suit for failure to notify the presumed father, a necessary 

party to the SAPCR, of the trial date. The Department filed a motion to strike 

Relator’s intervention later the same day. The court sua sponte declared a mistrial

and severed R.M. from the case on April 4, 2022. Following a hearing, the trial 

court granted the Department’s motion to strike Relator’s petition in intervention

and dismissed her from the suit.

Availability of Mandamus Review

Mandamus is an extraordinary remedy. See In re Sw. Bell Tel. Co., 235 

S.W.3d 619, 623 (Tex. 2007) (orig. proceeding). For an appellate court to issue 

mandamus, a relator must show that (1) the trial court abused its discretion and

(2) the relator has no adequate remedy on appeal. See In re C.J.C., 603 S.W.3d 804, 

811 (Tex. 2020) (orig. proceeding); In re Prudential Ins. Co. of Am., 148 S.W.3d 

124, 135–36 (Tex. 2004) (orig. proceeding). While an appellate court defers to the 

trial court’s factual determinations, mandamus may issue when the trial court “fails 

to correctly analyze or apply the law.” In re C.J.C., 603 S.W.3d at 811 (quoting In 

re Ford Motor Co., 165 S.W.3d 315, 317 (Tex. 2005) (per curiam) (orig. 

proceeding)).

Analysis

Standing, like other issues implicating a court’s subject-matter jurisdiction, is 

a question of law and is therefore reviewed de novo. In re H.S., 550 S.W.3d 151, 

155 (Tex. 2018). When determining whether standing exists in a particular case, the 

reviewing court construes the pleadings in the light most favorable to the plaintiff 

and “consider[s] relevant evidence offered by the parties.” Id.; see also In re N.L.D., 

344 S.W.3d 33, 37 (Tex. App.—Texarkana 2011, no pet.) (“In our de novo review 

of the trial court’s determination of standing, we must take as true all evidence 
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favorable to the challenged party and indulge every reasonable inference and resolve 

any doubts in the challenged party’s favor.” (citing Tex. Dep’t of Parks & Wildlife v. 

Miranda, 133 S.W.3d 217, 228 (Tex. 2004))). We look not to whether the party will 

prevail on the merits but whether he or she may intervene in the suit in the first 

instance. See In re H.S., 550 S.W.3d at 154–55.

When the legislature “confer[s] standing by statute, ‘the analysis is a straight

statutory construction of the relevant statute.’” Creekside Rural Invs., Inc. v. Hicks,

644 S.W.3d 896, 905 (Tex. App.—Eastland 2022, no pet.) (quoting In re Sullivan,

157 S.W.3d 911, 915 (Tex. App.—Houston [14th Dist.] 2005, orig. proceeding)).

The Texas Family Code allows a grandparent or other person to intervene in a 

pending SAPCR if such person meets the requirements of Section 102.004(b) of the 

Texas Family Code. Section 102.004(b) provides: 

An original suit requesting possessory conservatorship may not be filed 

by a grandparent or other person. However, the court may grant a 

grandparent or other person, subject to the requirements of Subsection 

(b-1) if applicable, deemed by the court to have had substantial past 

contact with the child leave to intervene in a pending suit filed by a 

person authorized to do so under this chapter if there is satisfactory 

proof to the court that appointment of a parent as a sole managing 

conservator or both parents as joint managing conservators would 

significantly impair the child’s physical health or emotional 

development. 

TEX. FAM. CODE ANN. § 102.004(b) (West 2019). 

As an initial matter, the Department and the respondent argue that Relator has 

provided insufficient proof that she is the paternal grandmother of R.M. We 

disagree. In reviewing the pleadings in the light most favorable to Relator and 

considering the relevant evidence offered by the parties, we conclude that Relator
5

provided sufficient proof of her relationship to R.M. to allow her to intervene in the 

underlying SAPCR. 

Relator’s pleadings and testimony provide sufficient proof that she is the 

paternal grandmother of R.M. In her petition for intervention, Relator stated that

she is the alleged paternal grandmother to R.M., that she has adopted siblings of 

R.M, and that Christopher Solomon is the father of the child. At the hearing on the 

motion to strike, Relator testified that, while the presumed father was incarcerated,

Relator’s biological son and A.M. were in a “romantic relationship” during the time 

period relating to R.M.’s conception. She testified that both her biological son and 

A.M. told her that Relator’s biological son was the father of R.M, sent her pictures 

of an ultrasound, and posted the pictures publicly. 

Relator testified that when R.M. was removed from A.M.’s home, the 

Department contacted Relator and advised her that her “granddaughter was in CPS 

custody.” Relator attended numerous conferences and hearings as R.M.’s alleged 

grandmother, and she testified that she has “been to every conference, every hearing. 

I have been here constantly, and anything that I could be.” Relator testified that no 

other person has come forward as R.M.’s father, nor had the Department told her 

that a person other than her biological son was R.M’s father. 

Relator also testified that A.M. wants R.M. placed with family and therefore 

agreed to submit to DNA testing to prove that Relator was “family.” Relator 

maintained her belief that she is R.M.’s grandmother after DNA testing was 

complete, and she shared the results with R.M.’s mother, A.M. Relator testified that 

R.M. resembles her biological son and that a “familial bond” existed between 

Relator, R.M., and R.M.’s alleged half-sibling. Relator then testified that she had 
6

twenty to twenty-five visits with R.M. following her removal and that R.M. “points 

to me and says ‘Grandma’ in the visits.” 

The parties have repeatedly referred to Relator’s deceased biological son as 

R.M.’s biological father, and he has been listed as R.M.’s father in the Department’s 

pleadings. In fact, the Department stated that Relator is the grandmother of R.M. in 

its motion to strike her intervention. Although R.M. has a presumed father based on 

Section 160.204(a)(2) of the Texas Family Code, a paternity suit is pending in Taylor 

County that purports to rebut such a presumption in favor of the deceased biological 

father based on DNA test results taken by Relator.

The record of the hearing on the motion to strike shows that Relator provided 

the court with sufficient proof, for purposes of her petition to intervene, that she is 

R.M.’s paternal grandmother. Therefore, we turn to Relator’s principal argument: 

that Relator has standing to intervene pursuant to Section 102.004(b). 

For purposes of standing, the parties disagree as to whether 

Section 102.004(b) requires a grandparent to prove that he or she has “had 

substantial past contact with the child” or if such qualifying phrase only applies to 

“other persons” requesting leave to intervene. Relator argues that, in order to defeat 

the motion to strike her intervention, Section 102.004 only required her to prove that 

the “appointment of a parent as a sole managing conservator . . . would significantly 

impair [R.M.’s] physical health or emotional development” without the need to 

additionally prove that Relator had “substantial past contact” with R.M. In so 

arguing, Relator relies on In re Nelke, 573 S.W.3d 917, 922–23 (Tex. App.—Dallas 

2019, orig. proceeding), a case that based its holding in part on the “last-antecedent” 

canon of construction. The “last-antecedent” doctrine states that “a qualifying 

phrase should be applied only to the words or phrase immediately preceding it to 
7

which it may be applied without impairing the meaning of the sentence.” See In re 

C.J.N.–S., 540 S.W.3d 589, 592 (Tex. 2018) (citing Spradlin v. Jim Walter Homes, 

Inc., 34 S.W.3d 578, 580–81 (Tex. 2000)). 

The Department urges that we instead adopt and apply the “series-qualifier 

doctrine” canon of construction, which states that “[w]hen there is a straightforward, 

parallel construction that involves all nouns or verbs in a series, a prepositive or 

postpositive modifier normally applies to the entire series.” Sullivan v. Abraham,

488 S.W.3d 294, 297 (Tex. 2016) (quoting Antonin Scalia & Bryan A. Garner, 

Reading Law: The Interpretation of Legal Texts 147 (2012)). 

We agree with Relator’s reading of Section 102.004(b) and hold that the “lastantecedent” doctrine is the more appropriate canon of construction to apply in this 

instance. See Perryman v. Spartan Tex. Six Cap. Partners, Ltd., 546 S.W.3d 110, 

121 (Tex. 2018) (absence of a comma after term “indicates an intent to limit the . . .

modifier to the last item in the series” (quoting Sullivan, 488 S.W.3d at 298)); In re 

C.J.N.–S., 540 S.W.3d at 592; In re Nelke, 573 S.W.3d at 922–23. It is instructive 

how the Texas Supreme Court used the last antecedent rule in In re C.J.N.–S. with 

regard to the construction of a Texas Family Code section addressing standing to 

bring suit for adult child support. We find no case more analogous or authoritative. 

The phrase to be construed in that case was: “a parent of the child or another person 

having physical custody or guardianship of the child under a court order.” 540 

S.W.3d at 590 (emphasis added). The court noted the absence of commas and held 

that the last phrase “having physical custody or guardianship” modified only 

“another person” and not “a parent of the child.” Id. at 592. The court’s 

interpretation of the statute was that a parent, even without physical custody or 

court-ordered guardianship, had standing to bring suit for child support. Id. The 
8

phrasing in Section 102.004(b) regarding standing of a grandparent may be similarly 

construed, particularly when we review the statute’s wording and punctuation

immediately before subsection (b-1) was added. Subsection (b-1) was added to 

Section 102.004 by amendment in 2017. That 2017 amendment also added to 

subsection (b) the phrase set off by commas “, subject to the requirements of 

Subsection (b-1) if applicable,” in support of the new subsection (b-1) provision. 

Accordingly, prior to the 2017 amendment that added subsection (b-1), 

Section 102.004(b) read as follows: 

(b) An original suit requesting possessory conservatorship may 

not be filed by a grandparent or other person. However, the court may 

grant a grandparent or other person deemed by the court to have had 

substantial past contact with the child leave to intervene in a pending 

suit filed by a person authorized to do so under this subchapter if there 

is satisfactory proof to the court that appointment of a parent as a sole 

managing conservator or both parents as joint managing conservators 

would significantly impair the child’s physical health or emotional 

development.

Act of May 29, 2005, 79th Leg., R.S., ch. 916, § 3, 2005 Tex. Gen. Laws 3148, 3149 

(emphasis added), amended by Act of May 19, 2017, 85th Leg., R.S., ch. 341, § 1, 

2017 Tex. Gen. Laws 985. Applying the same principles of construction used in In 

re C.J.N.–S. to the statute as originally drafted, the apparent intent of the legislature 

in drafting Section 102.004(b) is to apply the requirement of “deemed by the court 

to have had substantial past contact with the child” only to “or other person” and not 

to “a grandparent.”

We presume that the legislature “chose its words carefully” in drafting 

Section 102.004 and that, in drafting such statute, it did not intend to render any 

words a nullity. See In re C.J.N.–S., 540 S.W.3d at 592; Spradlin, 34 S.W.3d at 580. 

Applying the “substantial past contact” qualifying statement to a grandparent 
9

requesting standing would render the word “grandparent” a nullity, as a grandparent 

is necessarily a “person.” Clearly, the 2017 amendment to Section 102.004 provided 

an additional qualifier for an “other person” seeking to intervene in a pending suit, 

without change to a grandparent’s requirements under the statute. See Act of 

May 19, 2017, 85th Leg., R.S., ch. 341, § 1, 2017 Tex. Gen. Laws 985 (codified at 

TEX. FAM. CODE § 102.004(b), (b-1)) (foster parent, as an “other person,” may only 

intervene under subsection (b) if he or she would have standing to file an original 

suit under Section 102.003(a)(12)).

A plain reading of the statute indicates that the legislature intended to group 

“grandparents” separately from “other persons” for purposes of intervening, thereby 

providing standing to (1) a grandparent to intervene or (2) an “other person” who 

has had substantial past contact with the child to intervene. In re Nelke, 573 S.W.3d 

at 922–23 (the phrase “substantial past contact” only modifies “other person,” not

“both items in the list of persons with standing”). 

We conclude that Relator has standing to intervene in the pending SAPCR 

pursuant to Section 102.004(b). Accordingly, at the hearing, Relator needed only to 

provide “satisfactory proof to the court that appointment of a parent as a sole 

managing conservator or both parents as joint managing conservators would 

significantly impair the child’s physical health or emotional development.” FAM.

§ 102.004(b). As used in the Texas Family Code, the term “satisfactory proof” 

requires only proof by a preponderance of the evidence. Mauldin v. Clements, 428 

S.W.3d 247, 263 (Tex. App.—Houston [1st Dist.] 2014, no pet.); In re C.A.H.,

No. 11-10-00040-CV, 2011 WL 947082, at *2 (Tex. App.—Eastland Mar. 3, 2011, 

no pet.) (mem. op.). We review the child’s circumstances at the time the intervention 

was filed. Mauldin, 428 S.W.3d at 263 (citing In re S.M.D., 329 S.W.3d 8, 13 (Tex. 
10

App.—San Antonio 2010, pet. dism’d)). Relator stated that the Department’s 

caseworker was told that A.M.’s current husband broke R.M.’s arm. Relator 

expressed concern for R.M.’s well-being if she maintained “ongoing contact with 

someone that broke her arm,” specifically that such contact would hinder her 

emotional development after being exposed to “preverbal trauma.” Relator provided 

satisfactory proof to the trial court that appointment of the parents as managing 

conservators would significantly impair the child’s health or emotional 

development. 

Furthermore, Relator’s intervention will not complicate the case, and 

“intervention is almost essential” to effectively protect Relator’s interest. See Guar. 

Fed. Sav. Bank v. Horseshoe Operating Co., 793 S.W.2d 652, 657 (Tex. 1990)

(holding that trial court abused its discretion when it struck plea in intervention). 

Because Relator hasshown (1) that the trial court abused its discretion in that it failed 

to correctly analyze or apply the law and (2) that Relator has no adequate remedy on 

appeal, Relator is entitled to mandamus relief. See In re C.J.C., 603 S.W.3d at 811.

Relator’s Motion for Emergency Relief

In her motion for emergency relief, Relator requests that we stay proceedings 

in the trial court until Relator is reinstated as a party or she exhausts all her appeals. 

Section 263.401(b-1) of the Texas Family Code permits a trial court to extend its 

jurisdiction to hear a SAPCR in the event of a mistrial if the trial court (1) renders 

an order that schedules an automatic dismissal date not to exceed 180 days after the 

date the motion was granted, (2) sets a new trial date within the equivalent

timeframe, and (3) makes temporary orders for the safety and welfare of the child as 

necessary to avoid further delay. FAM. § 263.401(b-1) (West Supp. 2021). On 

April 27, 2022, the trial court entered an order retaining the suit on its docket and set 
11

an automatic dismissal deadline of September 13, 2022. Therefore, Relator’s request 

to stay proceedings is denied.

This Court’s Ruling

Having failed to correctly analyze or apply the statute, the trial court abused 

its discretion when it granted the Department’s motion to strike Relator’s 

intervention. We conditionally grant in part Relator’s petition for writ of mandamus.

Given the automatic dismissal deadline of September 13, 2022, and the upcoming 

scheduled hearing dates, time is of the essence. Respondent is directed to vacate her 

order granting the Department’s motion to strike Relator’s plea in intervention. If 

Respondent fails to do so on or before August 4, 2022, mandamus will issue. This 

court denies any further relief requested, including Relator’s request for emergency 

relief.

W. BRUCE WILLIAMS

JUSTICE

July 28, 2022

Panel consists of: Bailey, C.J., 

Trotter, J., and Williams, J.