QBfficeof tip 5ZUtornep
Qhmral
&date of llCexae
DAN MORALES
ATTORSEY
GENERAL tieptmk3,1993
Mr. Dmiel S. Owllute OpinionNo. DM-249
Cll8k
Texas State University System Re: wbuber,uldercertabl-
333Guadalupe,Box 3810 a nomsidat achohhip recipient is eliSibld
Aus& Texas 78701-3942 for resident tuition rates under section
54.064 of the Bdwxtion Code and related
quertio= fw-~)
Dar Mr. oudlette:
You lme asked about a scholarshiprecipient’sdigii for midat tuition under
section 54.064 of the Education Code. You &o inquire about the validity of section
21.31 of title 19, Texas AdministmtiveCode. You state as follows:
ThcBoardofRegmyTexasStateUnivaritySystan,hs
acqtedgiftsofmoneyfhnntwodonon. Bothdonorsstip&ted
tlWtll&gitblllUStbelldforSCbOl8dlipStO~ladaniC
CXCCllCllCC!illtllC~alliCprogMlillWlliCbtbCrecipientiSemOllUl.
Bothdonmsrequhdthatstudaamustappiymtioompetetorthe
sclloluallips. Tlleflrstdollorspecifledtll8ttllerecipiultksdeoted
fknllstudalt-atblueset- TexasStateUnksity. The
aecmldonorspecikittutthescholarahiptipientbeselectcd6.om
studem at SWTs music depmmt who participate in m
nmaurin~lllllSiC~,SU&LptllClllliVUXitymarchingband
~rymphony-
The Board of Rqaxts acqted both gitts u&x 0 95.34 of the
Education Code’ end asked So&west Texas State Univkty’s
p. 1295
Mr. Daniel S. oUellette - Page 2 (DM-249)
mo&edstMambip-towkcttberecipimts. Tobe
digiile for comiderati~ shknts must apply for the
scllo~ps. ...
Texasresidentsandnonrtsi~willoompeteforthe
acbolarsbips. we anticipate that some oftlle studam selected will be
nonresidumi. . . .
we believe that llomdad studalts Kktal for Icbolarships
cirammmwillbeeligiileforrc$ideattuitionbeuure
~~lBwttbc~oftlleuatuteafld~crituia
developcdbytkTcxasHigherEduationCoordinrtiagBwd.
However,theExecuhViPreaidentat SohwestTexasState
Univasityhr~alUter~tbe~Colmnuun * ‘OIlerfor
StlldUlttkWiWSrttheCOOrdbMblgBOMlilldiCJUillgthdSllCb
studem would not be eligiile. poomote added.]
Because we conclude that section 21.31 of title 19, Texas Administntive Code, k valid,
wedecli~toamveryour6rstquestion. Hmce,thisopinionwiUdisamonlythevalidity
ofsection21.31 oftitle 19,TexasAdod&m&Code.
In BaraJ pumant to se&m 54.051(c) oftk Eduutkm code. tuition tix a
~~ofthcS~ofTexyrtagmarl~cmic~hutitutiodirthegnrtaof
(1) $120 for ucb saoesmortwdvawalcslmnDer susiollalld86otoreacllsix-d
aunmatam;or(2) s32persuMster aeditbour. Ontheotberhd,mhct.ion(d)of
tbatswtiongamallympireaa noaresidentstudwtatagamralaademictwcbing
Mitutiontopayanamuuntpersancsta aedithoureqWlto1OOpeccultofthetotalcost
of education. &e Educ. Code 5 54.052 @rovidinSgaKnl rules for dctamining residence
or non;esidence). Sahns 54.055 tbrougb 54.064 contain sevual lhitations and
exceptionstotbegenalnrlethtanollreridmtrtudent~pryahighatuitionthPna
p. 1296
Mr. Daniel s. olldlette - Page 3 (DM-249)
residentstudent. Yourquestionra~~&~ustoconsmeseuion54.064,wbichprovidesas
fOllOWS:
(a) Ashuhtwhohoidsacomp&veaadanic~of
atleastS2ODfbrtheacademicyurorsummer fbrwbidltlleshldalt
ismtrolledandwhoiseitkfanonr&htorac&enofaaxmtry
otbatiMlltkUtlitedStateSofAmaicriSUltitkdtoptyttEfeer
andchargcdreq&edofTexasresideetswithoutregardtotheleq$b
oftimethestudatth~ruidaJioTaur. Thestudattmustcompete
WithothaStUd&&~TaPrnd~fwtheaUdaUiC
scbolarsbip8ndtbescbolanbipmustbe8wardedbya~larsbip
commW~~bytbe~ollandbe
approwdbytbeTexasHigkrEducationCoo&&qgBoardMdpr
criteriack&pedby~llaard.
(b)TktOtdlWllbCXOfWldMtS8t~ilMiMiOll~
residenttuitionuadathissectionforapahdar#meba
instbtionfbrtheaame WlllWWOfthepW!dbg8WdUlliCyC8l.
pmpbasisadded.]
Youbelievethatthetwo8cholarshipsaboutwhichyouinquksati@the
re@mmts of necbm 54.064(a~ which you list as: (1) award of 8 compuidve
acukmic 8cbohhip; (2) a annpedh pool thet inchda both kdaits and
mmfaidalts;(3) thesclloiershipnnlstbe~atkasts2~*(4) tbercbdurbiplllllstbe
scholarshipawefdmaynotexcecdfivepaantoftbenumberofnudentr~for
tbemlle samstertheprsadineawdemicyar.’ Yollst8&llowm!r,tll8ttlleboanillas
rddedarequiranentin~ruk,fouadittitlelgoftheTacrc~Code,rection
21.31. The~Iestatesinpe&entpar&asfbknvs:
CUthlStUddSreceivingcompditive8C8dMliC~lalYhip
lMykexanptdfromp8yhgnonresidalttuitioilrates.
(1) To qualify for exemption kom paying nonresidaa
tuitionratesastudabtmwtkawardedacump&iwacademic
rchokrsbipintbe~ofuooormonfortbe~rmicyeu,tbe
allnmerrea9ioqorbothbyanoffidrlrcboluohip-or
9. 1297
Mr.Daniels.odlette - Page 4 (DM-249)
aJmmm48oftbcpublicillshtionofbighcrtcluatioabcorskis
auading. Ifnonresidmtsorforei8nstudaesincompetitionwith
othcrstudents,iaclu~Tcxasretti~obtainthesccompetitive
8udallic~tbertudmt,mayp8ytbesallletuitiollas8
lWidMofTeOrdUfillgtbG@Stl8tiotlpOlioditlWtlidltk
compcewaudanicscluJhEpbio~ Attktimtk
competitiveaadallic~~ptnl8de,thc~maalst
daigmtcthetamortamsiawhichtbescbo~wiUbein~.
Acmpeti~dmicschdclnhiprhrrrqucrlifirs~thr~
lwiwrofthcdi~~bc~entiwtui~andwpgcdto~ond
-~Iltsshaubed~#le~pvrposr
erlwmging~cexcenenceitldle~c~inwhidl
thestubnismdlcd. ElTt&eiatbel989-199Oaudanic~m
iMtitU6OllSll3llllOtwrive nonresidatttuitionoothebaaiaof
co- acadanic scbolarsllips fix more tllsll 5.0% of its total
wroumwtintbe~~remrta orteraloftllepreviolls
audanicye8r. plbpbisadded.]
. . .
-w-Y-~~powar~~kim-
StMltC$bUcwhned”pOllktoeahrWitbtllOWpoam.~~d~tbC
po==ardlJtkcqmdslygivm. AaomyGenarl~JM-1102(1989)rt2;
Jh4-1017(1989)at3(cithg2TEx.NR3d,4&nNmMLmv~2).Tbe~tuay
wtholiwall8gwcytopromulgateNlesandreguluiollsiIl8idoftllertrtutoryautllority
tkk&vhrebasmnfdupwtbeagency. KrUyv.J~A~Bd,358
S.W.2d 874, 876 ~fex. Cii. App.-Austin 1%2, writ refd) (citing 1 TEx. JLR 2d
A&mLowgll). Theagmcym8ynot,bowew&pIkmluI~tuksmtd
EgUlUiOllStbUilllpOSG8dditiOO8lbUfdWS,COUditiO~Orl8StliCtiOllSthUGXCWdOrUC
inconsistent with the stahitory provisions. Id. at 87677; Attomey Gamal Ophion
JM-l017U3(~KrliyV.Inr&FbicrlAcddmr&1).
~audomc~~tborfacrcQrnollddcr.wMbalstimW.06Y1)dtbcEQEmioll
cakvalidlyddeg’tuautbc4tIytodlelmldtoprollmlgamlule’and~. sce,e.g.,.%nlunve4wm
Swings& Lam Asroc ofHoustonv. Fodhcr. 3318.W.M 917.921(Tar 1960);HauingAuth. of Cl@
ofDollar v. Hi~inbothm 143S.W.2d79.87 CTa. 1940);OIjbrd v. Hill, 558S.W.2d 557.560(TUL
Civ. App.-hiin 1977. writ x&d); Willimw v. Sate0 514 8.W.M 7l2, m-16 (Tex. Cii.
App-Bammd 1914.wit rd’d ar.e.).
p. 1298
Mr. Dankl s. ollelktte - PaSe 5 (DM-249)
academic schohrship that qualilies its mcipient for resident tuition rates. To that ar4
~on54.06ya)aqmsdyruthorizestheboardtodmlopcritairfortheborrd’susein
detamining wbetber a scholarship is a competitive academic scholarship for plrposes of
waivingthcdiE~cebctweenthctuitionchargedtoresidcntmd nonresident mdents.
Theboardhasdewlopedruchcritairintitlel9T~~code,rection
21.31(l). In uur opinion, by dehing %m&tive academic scholarship” in section
21.31(l) as a scholarship that is %warded for the pwpose of encma&~ academic
accellenceinthelcadanicprogMlinwhichthertudent~enroll~theborrd~~yhas
developed a cziterionin wordanw with section 54.064(a) of the Education Code. We do
not believe that the rqukmy csiterion exceeds or is inconsistent with section 54.064(a).
cOnseq~ently;we believethat the boardactedwithinits authity undersection54064(a)
wllal it promulgated
thislllle.s
You also question the validity of title 19 of the Texas Administrath Code, section
21.31 on procedural grounds. The board adopted section 21.31 “under the Texas
Education Code, 5 61.027 and 0 52.54, Texas Civil Statutes.” Tar. Higher Educ.
. .
coodmbq Bd.. 16 Tar. Reg. 3254 (1991); SC u&u Tex. Higher Educ. coordinating
Bd., 16 Tex. Reg. 1341 (1991) (propoping section 21.31). Section 61.027 of the
Education Code provides as follows:
TbeboardslldadoptandpublisbnlksMdreguktiollsin
accordanwwitllalldlmdertbeconditiollsapplkdtoother~es
bytheAdministmtiveProcedureandTexasRe&terAct(hick
6252-134 W.T.C.S.]). to &cfuate the provisions of this chapter.
TheboardsbaUgraatanyiastihonofhiShereducrtionaheuiag
qmnrequestandafkrmsonabkaotkc. MiautgofJImeuiuga
sbdl be availableia the board%office for public -on.
p. 1299
Mr. Daniel S. Ch~ellette- Page 6 (DM-249)
Section 61.027 merely prescrii a procedure by which the board must promulgate rules;
itdoesno&inandofit&authorizetheboardtopromulgatendes. Section52.54,
V.T.C.S., the other statute the board cites, is a nonexistent statute. Section 52.54 of the
Educationcode,towhichtheboard~havemernttonfa,provideEwsuo~:
(a) TlleboardsballadoptMdpublisllllllesMdreguktiollsto
effktuatethepuqKmsoftbischaptarin -withandunder
the conditions applkd to other agwciu by P.T.C.S. art. 6252-13a].
(b) TheboardmayadoptNluandrquktiollsnuusary~
palticipationinthefedaJguarantecdloanprogramprovidedbythe
Higher Education Act of 1964 (Public Law 89-329). Footnotes
Wlitted.]
Obviously, section 52.54(a) does not autbork the board to promulgate a rule under
cbpter 54. In addition, we are not aware that the promulgation of title 19 of tba Texas
. . .
~code,rection2l.3lwuneassyrtocomplywitht&fedarlguulntad
loanprogram Wetbed0reagreetbattbestatute3tbeboardcitedrrautho~itto
promulgatetitle19oftheTcxasAdmhhahCode,section21.31 donotsoauthork
However, we belkve that section 54.064(a) of the Education Code itself
~rizcstheborrdtopromulgatertction21.31~~~54.064(a)urthoritesthe
boardtodeveiopcrhiaforitsuseinevahmt&scbolarships. Wenotethatsection
S(c-l)(2) of the Mmhismk Promdue and Texas Regism Act (“APTRA”). V.T.C.S.
article 6252-13a, to which the board is quired to adhere, = Educ. Code 8 61.027,
ze.qudanagencyfinallyadoptkgandewnckelytostateinitsordu”tbepartiwkr
~~provisionruadawhich”thergcacy~~t&rule~”&wthergency
interpretstbeseprovisionsaswtbo~orrequbkgtberule.” Ontbeotberhand,
section S(e) of APTlU validates any agency rule that is adopted “in substantial
wmplknw” with section 5. You suggest that the board’s citation of two inappropriate
sections of the Education Code halidates section 21.31 of title 19, Texas Admihthve
Code,asrmatterofkw. Wbilewedonotcondonemagen@scitationofimppqdte
~o~~~,wecrnaotconclude~rucbmarorbyitselt,whaetbe~arcyis
drewhaeluthoriztdtopromylgatctherule,LNalidateraruleurarmtteroflrw.
SUMMARY
A nonresident scholarship recipient is ineligiile fix resident
tuition under section 54.064(a) of the Education Code if the
~larshipdoesnotcomplywiththecrimiatluttkTexasHiShex
EducationCoordhtingBaardhasdevelopedtodetemhewbetka
scholarship is a competitive academic scholarship, unless the criteria
exceed or are inconsistent with section 54.064(a). The board’s
p. 1300
Mr.Dallkls.chldkne * Page 7 @M-249)
promulgation of section 21.31 of title 19. Texas Adminitive
code?wllichprovidestbat”[a]kTLq&ve-c~~p~
@ilks the holder [for r&dent tuition rates] shall be awarded for
thepulposeofencwnging acadullk excellarce ill the acadallic
propminwbichtkstudattisuuollcd,“docsnotaceedtbe
hods authority under section 54.064(r) of the Education Code, nor
k it inconsktwt with section 54.064(a) of the Educntion Code.
Furthumore,wecannotcxmcludehtaection21.31 oftitle 19ofthe
TexasMmini&ativeCodeishaliduamatterofiawbnsedonthc
f&ct tllat tile board, in its order hauy adopting tile nllq cited
~riatestatutc3r9adorEngtbeboardtopromulgatetbe
DAN MORALES
Attorney Oeneral of Texas
WILL PRYOR
FtibiStMtAttOAnomeyGUld
MARYKELLER
Deputy AttOmey General for Litigation
RBNEAHICKS
State solicitor
MADELEINE B. JOHNSON
Chair, Opinion Committee
p. 1301