Opinion ID: 2540054
Heading Depth: 2
Heading Rank: 3

Heading: The Status and Authority of Open-Enrollment Charter Schools Arise From Statute.

Text: Open-enrollment charter schools, governed by Chapter 12 of the Education Code, are indisputably part of the Texas public-education system. Several statutes in the Education Code and elsewhere amply demonstrate that open-enrollment charter schools derive their governmental status and authority from legislative enactments. Capped at 215 statewide, [16] open-enrollment charter schools are one of three classes of charter schools created by Chapter 12. [17] These open-enrollment charter schools are authorized to operate in a facility of a commercial or nonprofit entity, an eligible entity, or a school district, including a home-rule school district. [18] Chapter 12 of the Education Code, which authorizes the operation of charter schools, seeks to ensure[ ] the fiscal and academic accountability of charter holders while still preserving the innovations of charter schools from excessive regulation. [19] As publicly funded institutions, [20] charter schools are designed to spark academic innovation and thus boost student learning. [21] Additionally, charter schools increase the choice of learning opportunities within the public school system, create professional opportunities that will attract new teachers to the public school system, and establish a new form of accountability for public schools. [22] As for status, Section 12.105 of the Education Codetitled Statusstatutorily (and categorically) declares open-enrollment charter schools to be part of the public school system of this state. [23] In addition, Section 11.002 explains that charter schools are created in accordance with the laws of this state and, together with traditional public schools, have the primary responsibility for implementing the state's system of public education.... [24] Moreover, Section 12.1053 confers governmental entity status, political subdivision status, and local government status on open-enrollment charter schools for purposes of myriad public purchasing and contracting laws (like dealings with construction companies). [25] As for authority, that too derives from laws passed by the legislature under the constitution. [26] Several statutes discuss the authority that open-enrollment charter schools may exercise under their charters. The most explicit grant of authority is Section 12.104(a), which provides that open-enrollment charter schools have the powers granted to [traditional public] schools under Title 2 of the Education Code. [27] The scope of a charter school's authority is further detailed in Section 12.102, titled Authority Under Charter: An open-enrollment charter school is governed under the governing structure described by the charter and retains authority to operate under the charter assuming acceptable student performance. [28] But just as importantly, that section is also authority-limiting, itemizing what powers open-enrollment charter schools do not possessnamely, broad authority to impose taxes [29] and tuition. [30] Put simply, open-enrollment charter schools wield many of the same powers as traditional public schools. They have statutory entitlements to state funding [31] and to the same services that school districts receive; [32] they are generally subject to state laws and rules governing public schools; [33] and they are subject to the specifically provided provisions of and rules adopted under the Education Code. [34] Many specific provisions applicable to the educational programs of traditional public schools also apply to open-enrollment charter schools, including provisions relating to the Public Education Information Management System, reading instruments and instruction, high school graduation, special education, bilingual education, prekindergarten programs, health and safety, and public school accountability. [35] Chapter 12 further subjects open-enrollment charter schools to a host of statutes that govern governmental entities outside the Education Code. For example, for purposes of the Government Code's regulation of open meetings and access to public information, the governing body of an open-enrollment charter school [is] considered to be [a] governmental bod[y]. [36] Likewise, for purposes of the Government Code's and Local Government Code's regulation of government records, an open-enrollment charter school is considered to be a local government and its records are government records for all purposes under state law. [37] And lastly, under Section 12.1053, as noted above, an open-enrollment charter school is considered to be: (1) a governmental entity for purposes of Government Code and Local Government Code provisions relating to property held in trust and competitive bidding; (2) a political subdivision for purposes of Government Code provisions on procurement of professional services; and (3) a local government for purposes of Government Code provisions on authorized investments. [38] In sum, numerous provisions of Texas law confer status upon and grant authority to open-enrollment charter schools. Their status as part of the public school system of this state [39] and their authority to wield the powers granted to [traditional public] schools [40] and to receive and spend state tax dollars [41] (and in many ways to function as a governmental entity [42] )derive wholly from the comprehensive statutory regime described above. With this legislative backdrop in mind, we are confident that the Legislature considers Universal Academy to be an institution, agency, or organ of government under the Tort Claims Act [43] and thus entitled to take an interlocutory appeal here. [44]