{"attribution":{"source":"legal.exploreworldai.com","canonical":"https://legal.exploreworldai.com/api/public/v1/judgment-text?id=us:texag-kp-0530-2026-09-17","cite_as":"NovaCopilot, legal.exploreworldai.com (https://legal.exploreworldai.com/api/public/v1/judgment-text?id=us:texag-kp-0530-2026-09-17)","license":"https://legal.exploreworldai.com/revision","version":"legal-2026-10-17","fingerprint":"ewai:us:e7344b","proof":"sha256:0dcf3ed3e6a91598a2a9f02a1e347c1a770877174ba6ecf084cf23d346f99110","jurisdiction":"us","lang":"en","publisher":"NovaCopilot by ExploreWorld Legal","terms":"https://legal.exploreworldai.com/om"},"brand_source":"Source: NovaCopilot","item":{"schema_version":"1.0.0","id":"us:texag-kp-0530-2026-09-17","jurisdiction":"us","lang":"en","brand_source":"Source: NovaCopilot","brand":{"product":"NovaCopilot","platform":"ExploreWorldAI","infrastructure":"ExploreWorld Legal","infrastructure_url":"legal.exploreworldai.com","legal_entity":"Valkiv Ventures 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matter","paragraphs":["para_1","para_2","para_3","para_4","para_5","para_6","para_7","para_8","para_9","para_10","para_11","para_12","para_13","para_14","para_15","para_16","para_17","para_18","para_19","para_20","para_21","para_22","para_23","para_24","para_25","para_26","para_27","para_28","para_29","para_30","para_31","para_32","para_33","para_34","para_35","para_36","para_37","para_38","para_39","para_40","para_41","para_42","para_43","para_44","para_45","para_46","para_47","para_48","para_49","para_50","para_51","para_52","para_53","para_54","para_55","para_56","para_57","para_58","para_59","para_60","para_61","para_62","para_63","para_64","para_65","para_66","para_67","para_68","para_69","para_70","para_71","para_72","para_73","para_74","para_75","para_76","para_77","para_78","para_79","para_80","para_81","para_82","para_83","para_84","para_85","para_86","para_87","para_88","para_89","para_90","para_91","para_92","para_93","para_94","para_95","para_96","para_97","para_98","para_99","para_100","para_101","para_102","para_103","para_104","para_105","para_106","para_107","para_108","para_109","para_110","para_111","para_112","para_113","para_114","para_115","para_116","para_117","para_118","para_119","para_120","para_121","para_122","para_123","para_124","para_125","para_126","para_127","para_128","para_129","para_130","para_131","para_132","para_133","para_134","para_135","para_136","para_137","para_138","para_139","para_140","para_141","para_142","para_143","para_144","para_145","para_146","para_147","para_148","para_149","para_150","para_151","para_152","para_153","para_154","para_155","para_156","para_157","para_158","para_159","para_160","para_161","para_162","para_163","para_164","para_165","para_166","para_167","para_168","para_169","para_170","para_171","para_172","para_173","para_174","para_175","para_176","para_177","para_178","para_179","para_180","para_181","para_182","para_183","para_184","para_185","para_186","para_187","para_188","para_189","para_190","para_191","para_192","para_193","para_194","para_195","para_196","para_197","para_198","para_199","para_200","para_201","para_202","para_203","para_204","para_205","para_206","para_207","para_208","para_209","para_210","para_211","para_212","para_213","para_214","para_215","para_216","para_217","para_218","para_219","para_220","para_221","para_222","para_223","para_224","para_225","para_226","para_227","para_228","para_229","para_230","para_231","para_232","para_233","para_234","para_235","para_236","para_237","para_238","para_239","para_240","para_241","para_242","para_243","para_244","para_245","para_246","para_247","para_248","para_249","para_250","para_251","para_252","para_253","para_254","para_255","para_256","para_257","para_258","para_259","para_260","para_261","para_262","para_263","para_264","para_265","para_266","para_267","para_268","para_269","para_270","para_271","para_272","para_273","para_274","para_275","para_276","para_277","para_278","para_279","para_280","para_281","para_282","para_283","para_284","para_285","para_286","para_287","para_288","para_289","para_290","para_291","para_292","para_293","para_294","para_295","para_296","para_297","para_298","para_299","para_300","para_301","para_302","para_303","para_304","para_305","para_306","para_307","para_308","para_309","para_310","para_311","para_312","para_313","para_314","para_315","para_316","para_317","para_318","para_319","para_320","para_321","para_322","para_323","para_324","para_325","para_326","para_327","para_328","para_329","para_330","para_331","para_332","para_333","para_334","para_335","para_336","para_337","para_338","para_339","para_340","para_341","para_342","para_343","para_344","para_345","para_346","para_347","para_348","para_349","para_350","para_351","para_352","para_353","para_354","para_355","para_356","para_357","para_358","para_359","para_360","para_361","para_362","para_363","para_364","para_365","para_366","para_367","para_368","para_369"],"kind":"front_matter"}],"paragraphs":[{"text":"September 17, 2026","paragraph_id":"para_1"},{"text":"The Honorable Joe Gonzales","paragraph_id":"para_2"},{"text":"Bexar County Criminal District Attorney","paragraph_id":"para_3"},{"text":"Paul Elizondo Tower","paragraph_id":"para_4"},{"text":"101 West Nueva","paragraph_id":"para_5"},{"text":"San Antonio, Texas 78205","paragraph_id":"para_6"},{"text":"Opinion No. KP-0530","paragraph_id":"para_7"},{"text":"Re: House Bill 4490 and the confidentiality of next of kin information under Article 49.25","paragraph_id":"para_8"},{"text":"of the Texas Code of Criminal Procedure (RQ-0617-KP)","paragraph_id":"para_9"},{"text":"Dear Mr. Gonzales:","paragraph_id":"para_10"},{"text":"You ask five questions regarding a county medical examiner’s duty under the Public","paragraph_id":"para_11"},{"text":"Information Act (“the PIA”) to release “information relating to the next of kin of a decedent” as","paragraph_id":"para_12"},{"text":"provided in Article 49.25, subsection 11(d) of the Code of Criminal Procedure.1 For context, you","paragraph_id":"para_13"},{"text":"explain that the county medical examiner “plays a critical role in locating next of kin to ensure","paragraph_id":"para_14"},{"text":"proper communication” about various topics concerning the decedent. Request Letter at 1. The","paragraph_id":"para_15"},{"text":"Legislature recently amended the medical examiner’s duties in this regard via the passage of House","paragraph_id":"para_16"},{"text":"Bill 4490, implementing new subsection 11(d), which excepts a decedent’s next-of-kin","paragraph_id":"para_17"},{"text":"information from public disclosure under the PIA.2 This amendment has resulted in a lack of clarity","paragraph_id":"para_18"},{"text":"regarding the status of next-of-kin information, i.e., whether House Bill 4490 makes it confidential","paragraph_id":"para_19"},{"text":"and thus prohibits disclosure. Id. at 3, 10. As a result, there is also “uncertainty for counties,","paragraph_id":"para_20"},{"text":"medical examiners, and nonprofit donation organizations, with potential [disclosure] violations","paragraph_id":"para_21"},{"text":"exposing county personnel and medical examiners to criminal penalties.” Id. at 10; see TEX. GOV’T","paragraph_id":"para_22"},{"text":"CODE § 552.352 (specifying penalties for unlawful disclosure of confidential public information).","paragraph_id":"para_23"},{"text":"Within this context you ask a series of questions seeking clarification about subsection 11(d) and","paragraph_id":"para_24"},{"text":"its application, which we address in turn. Request Letter at 3.","paragraph_id":"para_25"},{"text":"1 Letter and Exhibits from Hon. Joe Gonzales, Bexar Cnty. Crim. Dist. Att’y, to Hon. Ken Paxton, Tex. Att’y","paragraph_id":"para_26"},{"text":"Gen. at 3 (Sept. 19, 2025), https://www.texasattorneygeneral.gov/sites/default/files/request-files/request/2025/","paragraph_id":"para_27"},{"text":"RQ0617KP.pdf (“Request Letter” and “Exhibits,” respectively).","paragraph_id":"para_28"},{"text":"2 Act of May 25, 2025, 89th Leg., R.S., ch. 459, § 1, 2025 Tex. Gen. Laws 1072, 1072 (codified at TEX.","paragraph_id":"para_29"},{"text":"CODE CRIM. PROC. art. 49.25, § 11(d)).","paragraph_id":"para_30"},{"text":"The Honorable Joe Gonzales - Page 2","paragraph_id":"para_31"},{"text":"Article 49.25 excepts next-of-kin information from mandatory disclosure but does not","paragraph_id":"para_32"},{"text":"make the information confidential.","paragraph_id":"para_33"},{"text":"The State’s policy is to make state information public.3 TEX. GOV’T CODE § 552.001(a).","paragraph_id":"para_34"},{"text":"After all, “[s]unlight is said to be the best of disinfectants.” LOUIS D. BRANDEIS, OTHER PEOPLE’S","paragraph_id":"para_35"},{"text":"MONEY, AND HOW THE BANKERS USE IT (1914), https://law.louisville.edu/lawlibrary/special-","paragraph_id":"para_36"},{"text":"collections/louis-d-brandeis-collection/writings-louis-d-brandeis/other-peoples-money-3.4 The","paragraph_id":"para_37"},{"text":"PIA is therefore “liberally construed in favor of granting a request for information,” TEX. GOV’T","paragraph_id":"para_38"},{"text":"CODE § 552.001(b), and any exceptions to disclosure are narrowly construed to effectuate that","paragraph_id":"para_39"},{"text":"purpose, Jackson v. State Off. of Admin. Hearings, 351 S.W.3d 290, 299 (Tex. 2011).","paragraph_id":"para_40"},{"text":"“[P]ublic information” is information that is “written, produced, collected, assembled, or","paragraph_id":"para_41"},{"text":"maintained under a law or ordinance or in connection with the transaction of official business.”","paragraph_id":"para_42"},{"text":"TEX. GOV’T CODE § 552.002(a). Such information falls within one of three categories under the","paragraph_id":"para_43"},{"text":"PIA: “information required to be disclosed, information excepted from mandatory (but not","paragraph_id":"para_44"},{"text":"voluntary) disclosure, and confidential information that is prohibited from disclosure and subject","paragraph_id":"para_45"},{"text":"to criminal penalties.” Univ. of Tex. at Austin v. GateHouse Media Tex. Holdings II, Inc., 711","paragraph_id":"para_46"},{"text":"S.W.3d 655, 658 (Tex. 2024) (quoting Tex. Comptroller of Pub. Accts. v. Att’y Gen. of Tex., 354","paragraph_id":"para_47"},{"text":"S.W.3d 336, 360 (Tex. 2010) (Wainwright, J., dissenting in part and concurring in part)).","paragraph_id":"para_48"},{"text":"Information such as a medical examiner’s “completed report, audit, evaluation, or investigation”","paragraph_id":"para_49"},{"text":"is public information subject to required disclosure. TEX. GOV’T CODE § 552.022(a)(1). But not all","paragraph_id":"para_50"},{"text":"public information may be accessed by the public under the PIA.","paragraph_id":"para_51"},{"text":"Certain information is excepted from disclosure if it is “considered to be confidential by","paragraph_id":"para_52"},{"text":"law, either constitutional, statutory, or by judicial decision.” Id. § 552.101; accord id.","paragraph_id":"para_53"},{"text":"§§ 552.022(a), .007(a). Confidential information is the most protected public information, as it is","paragraph_id":"para_54"},{"text":"highly sensitive and thus must not be disclosed. See id. § 552.101; Tex. Comptroller, 354 S.W.3d","paragraph_id":"para_55"},{"text":"at 360 (Wainwright, J., dissenting in part and concurring in part). Indeed, the PIA makes disclosure","paragraph_id":"para_56"},{"text":"of such information a misdemeanor crime punishable by “fine, confinement, or both.” TEX. GOV’T","paragraph_id":"para_57"},{"text":"CODE § 552.352(a), (b). Information excepted from mandatory disclosure, by contrast, may be","paragraph_id":"para_58"},{"text":"voluntarily shared without triggering a criminal violation. See id. § 552.007(a) (permitting","paragraph_id":"para_59"},{"text":"voluntary public disclosure unless disclosure is “expressly prohibited by law or the information is","paragraph_id":"para_60"},{"text":"confidential under law”). The PIA’s text shows that the “Legislature intended the word","paragraph_id":"para_61"},{"text":"‘confidential’ to have a specific meaning in the PIA, separating highly sensitive information that","paragraph_id":"para_62"},{"text":"3 In this respect, the Legislature did not mince words. Subsection 552.001(a) states:","paragraph_id":"para_63"},{"text":"the fundamental philosophy of the American constitutional form of","paragraph_id":"para_64"},{"text":"representative government that adheres to the principle that government is the","paragraph_id":"para_65"},{"text":"servant and not the master of the people, it is the policy of this state that each","paragraph_id":"para_66"},{"text":"person is entitled, unless otherwise expressly provided by law, at all times to","paragraph_id":"para_67"},{"text":"complete information about the affairs of government and the official acts of","paragraph_id":"para_68"},{"text":"public officials and employees.","paragraph_id":"para_69"},{"text":"TEX. GOV’T CODE § 552.001(a).","paragraph_id":"para_70"},{"text":"4 The statement and related discussion are located in Chapter V titled “What Publicity Can Do.”","paragraph_id":"para_71"},{"text":"The Honorable Joe Gonzales - Page 3","paragraph_id":"para_72"},{"text":"is prohibited from disclosure (such as the home address of a peace officer) from sensitive","paragraph_id":"para_73"},{"text":"information that is merely excepted from disclosure (such as information in a student record).”","paragraph_id":"para_74"},{"text":"Tex. Comptroller, 354 S.W.3d at 360 (Wainwright, J., dissenting in part and concurring in part).","paragraph_id":"para_75"},{"text":"With this background, we turn to your first question.","paragraph_id":"para_76"},{"text":"You ask whether subsection 11(d) excepts next-of-kin information “from mandatory","paragraph_id":"para_77"},{"text":"disclosure,” thus “prohibit[ing] a county medical examiner from disclosing” this information to","paragraph_id":"para_78"},{"text":"“tissue and corneal donation organizations” under the PIA. Request Letter at 3. Article 49.25","paragraph_id":"para_79"},{"text":"addresses a medical examiner’s duties related to “[i]nquests upon [d]ead [b]odies.” See TEX. CODE","paragraph_id":"para_80"},{"text":"CRIM. PROC. arts. 49.01−.52 (addressing a medical examiner’s office and duties). Relevant here,","paragraph_id":"para_81"},{"text":"section 11 addresses a decedent’s records that are in the medical examiner’s possession. Id. art.","paragraph_id":"para_82"},{"text":"49.25, § 11. Subsection 11(d), about which you inquire, provides that a decedent’s next-of-kin","paragraph_id":"para_83"},{"text":"information is “excepted from required public disclosure in accordance with” the PIA, “but is","paragraph_id":"para_84"},{"text":"subject to disclosure under subpoena or authority of other law.” Id. § 11(d). Thus, the main inquiry","paragraph_id":"para_85"},{"text":"is whether the phrase “excepted from required public disclosure” bars disclosure by rendering the","paragraph_id":"para_86"},{"text":"information confidential or only exempts it from mandatory disclosure. Request Letter at 3.","paragraph_id":"para_87"},{"text":"In construing subsection 11(d), “our primary objective is to ascertain and give effect to the","paragraph_id":"para_88"},{"text":"Legislature’s intent without unduly restricting or expanding the [subsection’s] scope.” Greater","paragraph_id":"para_89"},{"text":"Hous. P’ship v. Paxton, 468 S.W.3d 51, 58 (Tex. 2015). We begin with the text. Id. Subsection","paragraph_id":"para_90"},{"text":"11(d) provides that “[t]he information relating to the next of kin of a decedent is excepted from","paragraph_id":"para_91"},{"text":"required public disclosure in accordance with” the PIA “but is subject to disclosure under subpoena","paragraph_id":"para_92"},{"text":"or authority of other law.” TEX. CODE CRIM. PROC. art. 49.25, § 11(d). Applying the text as written,","paragraph_id":"para_93"},{"text":"subsection 11(d) does not make next-of-kin information expressly confidential. But cf. TEX. GOV’T","paragraph_id":"para_94"},{"text":"CODE § 418.182(a) (designating certain government security information “confidential”); Tex.","paragraph_id":"para_95"},{"text":"Dep’t of Pub. Safety v. Abbott, 310 S.W.3d 670, 675 (Tex. App.—Austin 2010, no pet.)","paragraph_id":"para_96"},{"text":"(determining that DVDs containing video recorded by security cameras in a Texas Capitol hallway","paragraph_id":"para_97"},{"text":"were confidential under subsection 418.182(a)). Instead, subsection 11(d) excepts this information","paragraph_id":"para_98"},{"text":"from “required public disclosure” under the PIA. TEX. CODE CRIM. PROC. art. 49.25, § 11(d). This","paragraph_id":"para_99"},{"text":"is not necessarily dispositive as to confidentiality, however, as the Texas Supreme Court has","paragraph_id":"para_100"},{"text":"opined that “[a] law does not have to use the word ‘confidential’ to expressly impose","paragraph_id":"para_101"},{"text":"confidentiality.” In re City of Georgetown, 53 S.W.3d 328, 334 (Tex. 2001) (finding","paragraph_id":"para_102"},{"text":"confidentiality in the context of consulting reports). But our “text-based approach to statutory","paragraph_id":"para_103"},{"text":"construction requires us to study the language of the specific provision at issue, within the context","paragraph_id":"para_104"},{"text":"of the statute as a whole, endeavoring to give effect to every word, clause, and sentence.” Malouf","paragraph_id":"para_105"},{"text":"v. State ex rels. Ellis, 694 S.W.3d 712, 726 (Tex. 2024) (quoting Ritchie v. Rupe, 443 S.W.3d 856,","paragraph_id":"para_106"},{"text":"867 (Tex. 2014)). Here, the statutory context proves instructive.","paragraph_id":"para_107"},{"text":"Unlike subsection 11(d), subsection 11(c) classifies an autopsy report as confidential with","paragraph_id":"para_108"},{"text":"express language, providing that it is “confidential” and “not subject to disclosure” under the PIA.","paragraph_id":"para_109"},{"text":"TEX. CODE CRIM. PROC. art. 49.25, § 11(c) (emphasis added). When the Legislature added","paragraph_id":"para_110"},{"text":"subsection 11(d), it could have declared next-of-kin information confidential, as it did previously","paragraph_id":"para_111"},{"text":"with autopsy reports in subsection 11(c), but elected not to do so. Likewise, the Legislature could","paragraph_id":"para_112"},{"text":"have designated the information “not subject to disclosure” under the PIA, id. § 11(c) (emphasis","paragraph_id":"para_113"},{"text":"The Honorable Joe Gonzales - Page 4","paragraph_id":"para_114"},{"text":"added), but instead excepted next-of-kin information from “required . . . disclosure” only, id.","paragraph_id":"para_115"},{"text":"§ 11(d) (emphasis added). In construing subsection11(d), “[w]e must presume that every word of","paragraph_id":"para_116"},{"text":"a statute was used for a purpose, and that every word excluded from a statute was excluded for a","paragraph_id":"para_117"},{"text":"purpose.” Tex. Dep’t of Pub. Safety, 310 S.W.3d at 673. Since we “ascertain and give effect to the","paragraph_id":"para_118"},{"text":"[L]egislature’s intent as expressed by the plain meaning of the words in the statute,” id., we","paragraph_id":"para_119"},{"text":"conclude from the plain language here that the Legislature intended to make information under","paragraph_id":"para_120"},{"text":"subsection 11(c) confidential, whereas information under subsection 11(d) is excepted from","paragraph_id":"para_121"},{"text":"mandatory disclosure only, cf. Univ. of Tex. at Austin, 711 S.W.3d at 663 (concluding same where","paragraph_id":"para_122"},{"text":"statutory text at issue permitted but did not require disclosure). In sum, subsection 11(d) does not","paragraph_id":"para_123"},{"text":"render next-of-kin information confidential; it does, however, grant the medical examiner’s office","paragraph_id":"para_124"},{"text":"discretion to withhold the information.5","paragraph_id":"para_125"},{"text":"Information indirectly identifying next-of-kin constitutes information “relating to”","paragraph_id":"para_126"},{"text":"next-of-kin.","paragraph_id":"para_127"},{"text":"Your last question focuses on the scope of information that can be withheld by a medical","paragraph_id":"para_128"},{"text":"examiner under subsection 11(d). Request Letter at 3. You ask whether “information that indirectly","paragraph_id":"para_129"},{"text":"identifies” or “could be used to contact a decedent’s next of kin” constitutes “information relating","paragraph_id":"para_130"},{"text":"to the next of kin of a decedent” in subsection 11(d). Id.; see TEX. CODE CRIM. PROC. art. 49.25,","paragraph_id":"para_131"},{"text":"§ 11(d). Article 49.25 does not define “relating to” so we apply the term’s ordinary meaning,","paragraph_id":"para_132"},{"text":"looking first to the term’s dictionary definition. See Tex. State Bd. of Exam’rs of Marriage & Fam.","paragraph_id":"para_133"},{"text":"Therapists v. Tex. Med. Ass’n, 511 S.W.3d 28, 35 (Tex. 2017). “Relating to” means “to have some","paragraph_id":"para_134"},{"text":"connection to” or “to stand in relation to.” BLACK’S LAW DICTIONARY 1537 (12th ed. 2024)","paragraph_id":"para_135"},{"text":"(defining “relate”); see also Tex. Dep’t of Pub. Safety, 310 S.W.3d at 675 n.2 (referring to Black’s","paragraph_id":"para_136"},{"text":"Law Dictionary’s definition of “relate” to interpret “relating to”). The Legislature’s use of the","paragraph_id":"para_137"},{"text":"phrase “information relating to” the next of kin suggests the information extends beyond direct","paragraph_id":"para_138"},{"text":"information, such as the next-of-kin’s listed address or phone number. And this is consistent with","paragraph_id":"para_139"},{"text":"Texas court holdings. For example, one Texas court examined a confidentiality provision within","paragraph_id":"para_140"},{"text":"the context of the PIA and held that “information that . . . relates to a motor vehicle accident”","paragraph_id":"para_141"},{"text":"broadened the scope of information to “render more than the actual accident reports confidential.”","paragraph_id":"para_142"},{"text":"City of San Antonio v. Abbott, 432 S.W.3d 429, 432 (Tex. App.—Austin 2014, pet. denied)","paragraph_id":"para_143"},{"text":"(alteration in original); see also Texas Dep’t of Pub. Safety, 310 S.W.3d at 674–75 (determining","paragraph_id":"para_144"},{"text":"that DVDs containing video recorded by security cameras in a Texas Capitol hallway were","paragraph_id":"para_145"},{"text":"confidential because information on them “relates to the specifications, operating procedures or","paragraph_id":"para_146"},{"text":"location of a security system used to protect public or private property from an act of terrorism”).","paragraph_id":"para_147"},{"text":"Thus, the court concluded that the statute “did not limit the scope of the confidentiality . . . to either","paragraph_id":"para_148"},{"text":"the accident reports themselves or to defined categories of information” but extended to","paragraph_id":"para_149"},{"text":"information relating to the motor vehicle accident. City of San Antonio, 432 S.W.3d at 432–33.","paragraph_id":"para_150"},{"text":"The same reasoning applies here. Subsection 11(d) is not limited to the next-of-kin’s direct","paragraph_id":"para_151"},{"text":"information. If the information relates to the next of kin, meaning it has some connection, it can","paragraph_id":"para_152"},{"text":"be withheld from required disclosure under the PIA. Thus, if the decedent and next of kin have a","paragraph_id":"para_153"},{"text":"5 Since we conclude the information is not confidential, we do not address your fourth question asking about","paragraph_id":"para_154"},{"text":"criminal liability, as section 552.352 would not be implicated in the sharing of information under subsection 11(d).","paragraph_id":"para_155"},{"text":"See Request Letter at 4; TEX. GOV’T CODE § 552.352 (applying only to unauthorized disclosures of confidential","paragraph_id":"para_156"},{"text":"information).","paragraph_id":"para_157"},{"text":"The Honorable Joe Gonzales - Page 5","paragraph_id":"para_158"},{"text":"“shared home address, “home telephone number,” or “other similar contact information,” such","paragraph_id":"para_159"},{"text":"information constitutes “information relating to the next of kin of a decedent” and may be withheld.","paragraph_id":"para_160"},{"text":"Request Letter at 3.","paragraph_id":"para_161"},{"text":"A contractual agreement between a county and a nonprofit tissue and corneal","paragraph_id":"para_162"},{"text":"donation organization is “other law” under subsection 11(d) of Article 49.25.","paragraph_id":"para_163"},{"text":"Your second question concerns the meaning of “other law”—whether a “pre-existing no-","paragraph_id":"para_164"},{"text":"fee contractual agreement between a county and a nonprofit tissue and corneal donation","paragraph_id":"para_165"},{"text":"organization[]” constitutes “other law,” requiring the disclosure of next-of-kin information under","paragraph_id":"para_166"},{"text":"subsection 11(d). Id. Although “other law” is not defined in Article 49.25, section 11, or the PIA,","paragraph_id":"para_167"},{"text":"the term “is not limited to other statutes.” In re City of Georgetown, 53 S.W.3d at 332. The Texas","paragraph_id":"para_168"},{"text":"Supreme Court has concluded that “other law” encompasses judicial decisions, procedural and","paragraph_id":"para_169"},{"text":"evidentiary rules, as well as common law—varying types of binding and enforceable legal","paragraph_id":"para_170"},{"text":"mandates. Id. The essential question then is whether a contract has the same force and effect to fit","paragraph_id":"para_171"},{"text":"within the “other law” category. We conclude it does. This conclusion relies on the determination","paragraph_id":"para_172"},{"text":"that disclosure under subsection 11(d) is discretionary.","paragraph_id":"para_173"},{"text":"A contract is somewhat unique from the types of “other law” referenced above as it is an","paragraph_id":"para_174"},{"text":"agreement founded upon “a promise or a set of promises” between contracting parties. See","paragraph_id":"para_175"},{"text":"RESTATEMENT (SECOND) OF CONTRACTS § 1 (1981). But it is not wholly distinct. A valid contract","paragraph_id":"para_176"},{"text":"is binding and enforceable under the law—“the breach of which the law gives a remedy” as well","paragraph_id":"para_177"},{"text":"as “the performance of which the law in some way recognizes as a duty.” Id. In fact, Texas courts","paragraph_id":"para_178"},{"text":"have affirmed the binding terms of contracts as “sacred” and that they “shall be enforced by Courts","paragraph_id":"para_179"},{"text":"of justice.” Shields Ltd. P’ship v. Bradberry, 526 S.W.3d 471, 481 (Tex. 2017) (internal quotation","paragraph_id":"para_180"},{"text":"omitted) (citations omitted). And this “paramount public policy mandates that courts are not lightly","paragraph_id":"para_181"},{"text":"to interfere with this freedom of contract.” Id. (internal quotations omitted) (citations omitted).","paragraph_id":"para_182"},{"text":"Therefore, as long as a contract “does not violate the law or public policy,” courts “must respect","paragraph_id":"para_183"},{"text":"and enforce the terms.” Id. (citations omitted). Thus, like a judicial decision, statute, or rule of civil","paragraph_id":"para_184"},{"text":"procedure, a contract is a binding and enforceable legal mandate constituting “other law.”6 TEX.","paragraph_id":"para_185"},{"text":"CODE CRIM. PROC. art. 49.25, § 11(d).","paragraph_id":"para_186"},{"text":"And the context of subsection 11(d) supports this conclusion. Subsection 11(d) permits","paragraph_id":"para_187"},{"text":"disclosure “under subpoena or authority of other law.” Id. (emphasis added). Applying noscitur a","paragraph_id":"para_188"},{"text":"sociis, a statutory construction tool, the meaning of statutory terms may be “ascertained by","paragraph_id":"para_189"},{"text":"reference to words associated with them in the statute.” City of Fort Worth v. Cornyn, 86 S.W.3d","paragraph_id":"para_190"},{"text":"320, 327 (Tex. App.—Austin 2002, no pet.); see also ANTONIN SCALIA & BRYAN A. GARNER,","paragraph_id":"para_191"},{"text":"READING LAW: THE INTERPRETATION OF LEGAL TEXTS 195−98 (2012) (discussing noscitur a","paragraph_id":"para_192"},{"text":"sociis). Where “two or more words of analogous meaning are employed together in a statute, they","paragraph_id":"para_193"},{"text":"6 The medical examiner’s discretionary disclosure authority is dispositive as to whether a contract qualifies","paragraph_id":"para_194"},{"text":"as “other law.” See supra pp. 2−4. In no event may a contract convert what is unlawful into lawful conduct; for","paragraph_id":"para_195"},{"text":"instance, it cannot negate the confidential nature of public information. See Kokernot v. Gilstrap, 143 Tex. 595, 600,","paragraph_id":"para_196"},{"text":"187 S.W.2d 368, 370−71 (1945) (concluding a contract was illegal, void, and unenforceable where transaction","paragraph_id":"para_197"},{"text":"violated the law).","paragraph_id":"para_198"},{"text":"The Honorable Joe Gonzales - Page 6","paragraph_id":"para_199"},{"text":"are understood to be used in their cognate sense, to express the same relations and give color and","paragraph_id":"para_200"},{"text":"expression to each other.” Id. (citation omitted). Subsection 11(d) not only identifies “authority of","paragraph_id":"para_201"},{"text":"other law” as an avenue for disclosure but also links that authority with disclosure under a","paragraph_id":"para_202"},{"text":"subpoena. TEX. CODE CRIM. PROC. art. 49.25, § 11(d). A subpoena is “[a] writ or order","paragraph_id":"para_203"},{"text":"commanding a person to appear before a court or other tribunal, subject to a penalty for failing to","paragraph_id":"para_204"},{"text":"comply.” BLACK’S LAW DICTIONARY 1732 (12th ed. 2024); accord Ex parte Gould, 60 Tex. Crim.","paragraph_id":"para_205"},{"text":"442, 452, 132 S.W. 364, 369 (1910) (describing a subpoena duces tecum as a “process by which a","paragraph_id":"para_206"},{"text":"court, at the instance of a suitor, commands a person, who has in his possession or control some","paragraph_id":"para_207"},{"text":"document or paper that is pertinent to the issues of the pending controversy, to produce it for use","paragraph_id":"para_208"},{"text":"at the trial” (citation omitted)). Akin to a contract, a subpoena pertains to specific parties. See TEX.","paragraph_id":"para_209"},{"text":"R. CIV. P. 176.1, .2. Likewise, it is formalized and executed under the law rendering it binding and","paragraph_id":"para_210"},{"text":"enforceable. Id. 176.4, .8. This indicates that the phrase “authority of other law,” when considered","paragraph_id":"para_211"},{"text":"in relation to a subpoena, refers to legally binding and enforceable authority similar to that inherent","paragraph_id":"para_212"},{"text":"in a contract.","paragraph_id":"para_213"},{"text":"A United States Supreme Court decision further supports this conclusion. In Norfolk and","paragraph_id":"para_214"},{"text":"Western Railway Co. v. American Train Dispatchers Ass’n, the phrase “all other law” was a point","paragraph_id":"para_215"},{"text":"of contention in an Interstate Commerce Act provision that provided, in part, a merger “transaction","paragraph_id":"para_216"},{"text":"is exempt from the antitrust laws and from all other law” necessary to carry out the transaction.","paragraph_id":"para_217"},{"text":"499 U.S. 117, 127 (1991) (emphasis added) (quoting language in current 49 U.S.C. § 11321,","paragraph_id":"para_218"},{"text":"formerly in 49 U.S.C. § 11341(a)). The issue was whether “all other law” included legal","paragraph_id":"para_219"},{"text":"obligations under a collective bargaining agreement. Id. The Court observed that this language was","paragraph_id":"para_220"},{"text":"“clear, broad, and unqualified” and did not distinguish “between positive enactments and common-","paragraph_id":"para_221"},{"text":"law rules of liability.” Id. at 128. Concluding that a contract, lacked “legal force apart from the law","paragraph_id":"para_222"},{"text":"that acknowledges its binding character,” id. at 130, the Court held that “other law” encompassed","paragraph_id":"para_223"},{"text":"laws imposing legal obligations on the parties and compelling them to perform their agreement,","paragraph_id":"para_224"},{"text":"id. at 129. In sum, the Court concluded that “all other laws” included contractual obligations. Id.","paragraph_id":"para_225"},{"text":"Ultimately, where a medical examiner and a nonprofit organization enter into a valid and","paragraph_id":"para_226"},{"text":"enforceable contractual agreement that “facilitates the harvesting of tissue and provides related","paragraph_id":"para_227"},{"text":"facility access,” Request Letter at 3, that agreement constitutes “other law” where it requires","paragraph_id":"para_228"},{"text":"disclosure of next-of-kin information by a medical examiner to the nonprofit organization.7","paragraph_id":"para_229"},{"text":"The Texas Anatomical Gift Act and Glenda Dawson Donate Life-Texas Registry do","paragraph_id":"para_230"},{"text":"not require disclosure of next-of-kin information by a medical examiner.","paragraph_id":"para_231"},{"text":"Your third question asks whether “other Texas statutes, including those governing organ","paragraph_id":"para_232"},{"text":"and tissue donation” as well as the “Donate Life Texas Registry” “authorize or require[]” a medical","paragraph_id":"para_233"},{"text":"examiner to disclose next-of-kin information “notwithstanding the confidentiality requirements”","paragraph_id":"para_234"},{"text":"in subsection 11(d). Id. As discussed, subsection 11(d) does not impose confidentiality","paragraph_id":"para_235"},{"text":"requirements so we address this question in the context of discretionary disclosure. See supra pp.","paragraph_id":"para_236"},{"text":"2−4. While your question does not specifically identify any statutory provisions, you and multiple","paragraph_id":"para_237"},{"text":"briefing parties reference various provisions in the Health and Safety Code, offering different","paragraph_id":"para_238"},{"text":"7 We note that no specific contract provisions were provided, but even if they were, the Committee does not","paragraph_id":"para_239"},{"text":"construe contracts. See Tex. Att’y Gen. Op. No. KP-0479 (2025) at 2.","paragraph_id":"para_240"},{"text":"The Honorable Joe Gonzales - Page 7","paragraph_id":"para_241"},{"text":"positions on whether next-of-kin information may or may not be shared under those provisions.8","paragraph_id":"para_242"},{"text":"We limit our review to the provisions raised,9 beginning with the Texas Anatomical Gift Act. TEX.","paragraph_id":"para_243"},{"text":"HEALTH & SAFETY CODE §§ 692A.001−.023 (“the Gift Act”).","paragraph_id":"para_244"},{"text":"The Gift Act governs “an anatomical gift or amendment to, revocation of, or refusal to","paragraph_id":"para_245"},{"text":"make an anatomical gift.” Id. § 692A.003. “Anatomical gift” means “a donation of all or part of a","paragraph_id":"para_246"},{"text":"human body to take effect after the donor’s death for the purpose of transplantation, therapy,","paragraph_id":"para_247"},{"text":"research, or education.” Id. § 692A.002(3). The Gift Act’s provisions address related topics such","paragraph_id":"para_248"},{"text":"as donor consent, authorization and manner of making a gift, and rights of and coordination with","paragraph_id":"para_249"},{"text":"procurement organizations. See generally id. §§ 692A.001−.023. One briefing party suggests that","paragraph_id":"para_250"},{"text":"section 692A.014 “authorizes an information exchange outside of the Public Information Act.”10","paragraph_id":"para_251"},{"text":"Again, we look to the text. Greater Hous. P’ship, 468 S.W.3d at 58.","paragraph_id":"para_252"},{"text":"Section 692A.014 governs the rights and duties of procurement organizations and other","paragraph_id":"para_253"},{"text":"related entities. TEX. HEALTH & SAFETY CODE § 692A.014. “Procurement organization” means","paragraph_id":"para_254"},{"text":"“an eye bank, organ procurement organization, or tissue bank.”11 Id. § 692A.002(24). Relevant","paragraph_id":"para_255"},{"text":"here, subsection 692A.014(a) requires a procurement organization, upon the receipt of a hospital","paragraph_id":"para_256"},{"text":"referral of “an individual at or near death,” to “make a reasonable search of the records of the","paragraph_id":"para_257"},{"text":"Department of Public Safety” (“DPS”) as well as “any donor registry that it knows exists for the","paragraph_id":"para_258"},{"text":"geographical area in which the individual resides.” Id. § 692A.014(a); see also id. § 692A.014(b)","paragraph_id":"para_259"},{"text":"(“A procurement organization must be allowed reasonable access to information in the records of","paragraph_id":"para_260"},{"text":"the Department of Public Safety to ascertain whether an individual at or near death is a donor.”).","paragraph_id":"para_261"},{"text":"The procurement organization must also make a “reasonable search for any person” listed in","paragraph_id":"para_262"},{"text":"section 692A.009 who has “priority to make an anatomical gift on behalf of a prospective donor.”","paragraph_id":"para_263"},{"text":"Id. § 692A.014(g); see also id. §§ 692A.014(f) (requiring same to locate parents of a minor), .009","paragraph_id":"para_264"},{"text":"(governing who may make an anatomical gift). These provisions put the onus on the organization","paragraph_id":"para_265"},{"text":"to locate information and any person implicated by the anatomical gift, and allocate resources for","paragraph_id":"para_266"},{"text":"the organization to do so, such as access to DPS records and donor registries. Id. § 692A.014(a)–","paragraph_id":"para_267"},{"text":"(b), (f)–(g). Yet, they do not grant access to a medical examiner’s next-of-kin records or, in fact,","paragraph_id":"para_268"},{"text":"make any mention of a medical examiner. See id. And we are not permitted to expand upon what","paragraph_id":"para_269"},{"text":"the Legislature has expressly provided. See Greater Hous. P’ship, 468 S.W.3d at 58.","paragraph_id":"para_270"},{"text":"8 See generally Request Letter; Brief from Audra Taylor, S. Tex. Blood & Tissue, to Off. of the Tex. Att’y","paragraph_id":"para_271"},{"text":"Gen, Op. Comm. (rec’d Oct. 22, 2025) (“Taylor Brief”) (on file with the Op. Comm.); Brief from Adam Robison,","paragraph_id":"para_272"},{"text":"King & Spalding LLP, to Hon. Ken Paxton, Tex. Att’y Gen. (Oct. 21, 2025) (“Robison Brief”) (on file with the Op.","paragraph_id":"para_273"},{"text":"Comm.); Brief from J. Keith Pinckard, MD, PhD, Chief Med. Exam’r, Travis Cnty. Med. Exam’r, to Hon. Ken","paragraph_id":"para_274"},{"text":"Paxton, Tex. Att’y Gen. (rec’d Oct. 23, 2025) (“Pinckard Brief”) (on file with the Op. Comm.).","paragraph_id":"para_275"},{"text":"9 Because an “exhaustive treatment” of your question is outside the scope of an opinion, we consider only","paragraph_id":"para_276"},{"text":"the statutory provisions raised before the Committee. See Tex. Att’y Gen. Op. No. AC-0003 (2023) at 2 n.5.","paragraph_id":"para_277"},{"text":"10 Pinckard Brief at 2; see also Robison Brief at 2−3 (suggesting chapters 692A and 693 as well as Article","paragraph_id":"para_278"},{"text":"4925, subsection 11(d) together permit exchange of information to carry out donation purpose).","paragraph_id":"para_279"},{"text":"11 An “[o]rgan procurement organization” is “a person designated by the secretary of the United States","paragraph_id":"para_280"},{"text":"Department of Health and Human Services as an organ procurement organization.” TEX. HEALTH & SAFETY CODE","paragraph_id":"para_281"},{"text":"§ 692A.002(19). A “[t]issue bank” is “a person licensed, accredited, or regulated under federal or state law to engage","paragraph_id":"para_282"},{"text":"in the recovery, screening, testing, processing, storage, or distribution of tissue.” Id. § 692A.002(35).","paragraph_id":"para_283"},{"text":"The Honorable Joe Gonzales - Page 8","paragraph_id":"para_284"},{"text":"Subsection 692A.014(d), however, presents a slightly different picture. It applies “at any","paragraph_id":"para_285"},{"text":"time after a donor’s death” and provides that “the person to which a[n] [anatomical gift] passes","paragraph_id":"para_286"},{"text":"under Section 692A.011 may conduct any reasonable examination necessary to ensure the medical","paragraph_id":"para_287"},{"text":"suitability of the body or part for its intended purpose.” TEX. HEALTH & SAFETY CODE","paragraph_id":"para_288"},{"text":"§ 692A.014(d). The examination “may include an examination of all medical and dental records","paragraph_id":"para_289"},{"text":"of the donor.” Id. § 692A.014(e). Section 692A.011 identifies who may receive an anatomical gift,","paragraph_id":"para_290"},{"text":"which includes an organ procurement organization or tissue bank. Id. § 692A.011(a)(1), (4). Thus,","paragraph_id":"para_291"},{"text":"if an organization receives an anatomical gift in compliance with section 629A.011, that","paragraph_id":"para_292"},{"text":"organization is permitted to examine “all medical and dental records of the donor,” which would","paragraph_id":"para_293"},{"text":"include next-of-kin information should it be located within those records. Id. § 692A.014(e). This","paragraph_id":"para_294"},{"text":"review does not implicate the PIA, as it is not a request for information but a piece of the","paragraph_id":"para_295"},{"text":"examination process to determine medical suitability under the Gift Act. Compare id., with TEX.","paragraph_id":"para_296"},{"text":"GOV’T CODE § 552.003(6) (“‘Requestor’ means a person who submits a request to a governmental","paragraph_id":"para_297"},{"text":"body for inspection or copies of public information.” (emphasis added)), and Boeing Co. v. Paxton,","paragraph_id":"para_298"},{"text":"466 S.W.3d 831, 833 (Tex. 2015) (“Typically, a request for public information involves two","paragraph_id":"para_299"},{"text":"parties, the governmental body holding the information and the citizen requesting it[] . . . .”).","paragraph_id":"para_300"},{"text":"Nonetheless, since the organization’s access to information is restricted to an assessment needed","paragraph_id":"para_301"},{"text":"to confirm the medical suitability of a body or part for its intended use, subsection 692A.014(d)","paragraph_id":"para_302"},{"text":"does not require the disclosure of next-of-kin information to support a donation; it is solely for","paragraph_id":"para_303"},{"text":"evaluating the medical eligibility of an anatomical gift. See TEX. HEALTH & SAFETY CODE","paragraph_id":"para_304"},{"text":"§ 692A.014(d), (e). Thus, in response to your inquiry, the Gift Act does not require or authorize a","paragraph_id":"para_305"},{"text":"medical examiner to disclose next-of-kin; instead, it provides access to information when a","paragraph_id":"para_306"},{"text":"donation has already been made. Id. § 692A.014(d). Although section 692A.014 permits or","paragraph_id":"para_307"},{"text":"requires a procurement organization to access certain information, none of these provisions require","paragraph_id":"para_308"},{"text":"or authorize a medical examiner to disclose next-of-kin information under the PIA to an","paragraph_id":"para_309"},{"text":"organization for the purpose of facilitating a donation.","paragraph_id":"para_310"},{"text":"Briefers also suggest that sections 693.002 and 693.003 require a medical examiner’s office","paragraph_id":"para_311"},{"text":"to share next-of-kin information with procurement organizations to facilitate organ and tissue","paragraph_id":"para_312"},{"text":"donation.12 Chapter 693 addresses the removal of body parts and tissue. See generally id.","paragraph_id":"para_313"},{"text":"§§ 693.001−.024. Relevant here, subsection 693.002(b) provides that a medical examiner “may","paragraph_id":"para_314"},{"text":"permit the removal of tissue” upon a tissue bank’s request.13 Id. § 693.002(b). Section 693.003","paragraph_id":"para_315"},{"text":"similarly authorizes a county court to permit removal of tissue in certain circumstances where","paragraph_id":"para_316"},{"text":"consent cannot be obtained. Id. § 693.003. But both provisions are silent as to information access","paragraph_id":"para_317"},{"text":"or mandatory disclosure. Id. §§ 693.002(b), .003. If the statutory text “is not hazy, we must . . .","paragraph_id":"para_318"},{"text":"take the Legislature at its word.” Entergy Gulf States, Inc., 282 S.W.3d at 475 (Willett, J.,","paragraph_id":"para_319"},{"text":"concurring) (internal quotation omitted) (citation omitted). Neither section 693.022 nor 693.033","paragraph_id":"para_320"},{"text":"provides an exception to subsection 11(d) that would implicate either an authorization or","paragraph_id":"para_321"},{"text":"mandatory duty to disclose next-of-kin information by a medical examiner.","paragraph_id":"para_322"},{"text":"You also ask if the “Donate Life Texas Registry” requires disclosure of next-of-kin","paragraph_id":"para_323"},{"text":"information. Request Letter at 3. We assume you are referring to the Glenda Dawson Donate Life-","paragraph_id":"para_324"},{"text":"12 See Robison Brief at 3; Pinckard Brief at 1−2.","paragraph_id":"para_325"},{"text":"13 See supra note 11.","paragraph_id":"para_326"},{"text":"The Honorable Joe Gonzales - Page 9","paragraph_id":"para_327"},{"text":"Texas Registry. See TEX. HEALTH & SAFETY CODE § 692A.020. The registry is a “statewide","paragraph_id":"para_328"},{"text":"Internet-based registry of organ, tissue, and eye donors.” Id. § 692A.020(c). Per the governing","paragraph_id":"para_329"},{"text":"statute, a nonprofit organization maintains and administers the registry, while DPS is charged with","paragraph_id":"para_330"},{"text":"transferring donor information to the administering nonprofit. Id. § 692A.020(a)−(d). The","paragraph_id":"para_331"},{"text":"nonprofit must make donor information available to procurement organizations, while the","paragraph_id":"para_332"},{"text":"organizations are charged with “protect[ing] the confidentiality and privacy of the individuals","paragraph_id":"para_333"},{"text":"providing information.” Id. § 692A.020(e)(4). And, while subsection (f) identifies the entities to","paragraph_id":"para_334"},{"text":"which the procurement organization may share information, it is silent as to a medical examiner’s","paragraph_id":"para_335"},{"text":"duty to share next-of-kin information. Id. § 692A.020(f). At bottom, section 692A.020 addresses","paragraph_id":"para_336"},{"text":"only the duties of the administering nonprofit, DPS, and procurement organizations. The registry’s","paragraph_id":"para_337"},{"text":"governing law does not mandate or authorize sharing next-of-kin information by a medical","paragraph_id":"para_338"},{"text":"examiner.14","paragraph_id":"para_339"},{"text":"14 Your request is limited to “Texas statutes,” see Request Letter at 3, but at least one briefing party raised","paragraph_id":"para_340"},{"text":"federal requirements under the Health Insurance Portability and Accountability Act (“HIPAA”) Privacy Rule, Taylor","paragraph_id":"para_341"},{"text":"Brief at 2 (citing to 45 C.F.R. § 164.512(h)). While we limit our response to Texas statutes, we note that subsection","paragraph_id":"para_342"},{"text":"164.512(h) provides that a “covered entity may . . . disclose” protected health information to certain procurement","paragraph_id":"para_343"},{"text":"organizations but does not mandate it. 45 C.F.R. § 164.512(h) (emphasis added). Assuming arguendo that a medical","paragraph_id":"para_344"},{"text":"examiner is a “covered entity” under HIPAA and next-of-kin information is “protected health information,” a medical","paragraph_id":"para_345"},{"text":"examiner is not required to disclose such information.","paragraph_id":"para_346"},{"text":"The Honorable Joe Gonzales - Page 10","paragraph_id":"para_347"},{"text":"S U M M A R Y","paragraph_id":"para_348"},{"text":"We must apply statutory text as written by the Legislature.","paragraph_id":"para_349"},{"text":"When it amended the Code of Criminal Procedure article 49.25,","paragraph_id":"para_350"},{"text":"adding subsection 11(d), the Legislature elected to except next-of-","paragraph_id":"para_351"},{"text":"kin information from required disclosure under the Public","paragraph_id":"para_352"},{"text":"Information Act but chose not to make the information confidential.","paragraph_id":"para_353"},{"text":"Therefore, subsection 11(d) permits a medical examiner’s office to","paragraph_id":"para_354"},{"text":"withhold next-of-kin information from mandatory disclosure under","paragraph_id":"para_355"},{"text":"the PIA but does not bar disclosure.","paragraph_id":"para_356"},{"text":"Very truly yours,","paragraph_id":"para_357"},{"text":"K E N P A X T O N","paragraph_id":"para_358"},{"text":"Attorney General of Texas","paragraph_id":"para_359"},{"text":"BRENT WEBSTER","paragraph_id":"para_360"},{"text":"First Assistant Attorney General","paragraph_id":"para_361"},{"text":"RALPH MOLINA","paragraph_id":"para_362"},{"text":"Deputy First Assistant Attorney General","paragraph_id":"para_363"},{"text":"D. 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