Estimated Time to Read: 5 minutes
The second special session of the 89th Legislature began on August 15, 2025, almost immediately after leadership in both legislative chambers abruptly ended the first session, having collapsed due to a Democratic quorum break, but Gov. Greg Abbott (R) didn’t stop at his initial call. He expanded the agenda three separate times, on August 20, 25, and 26, each time adding new priorities.
By the end, Abbott’s special session agenda had ballooned to include issues like:
- Youth camp safety and flood preparedness reforms.
- Abortion pill restrictions and the bathroom bill.
- STAAR test replacement with a new Student Success Tool.
- Property tax relief and spending caps for local governments.
- Hemp/THC regulation and restrictions on sales to minors.
- Taxpayer-funded lobbying ban.
- Election integrity reforms, including restoring the attorney general’s prosecutorial authority and prohibiting same-day voter registration.
- Law enforcement protections, including shielding unsubstantiated complaints from disclosure.
- Judicial administration, title theft prevention, human trafficking protections, and Ivermectin access.
Redistricting: GOP Pushes Through New Congressional Maps
Lawmakers approved new congressional maps after a quorum break delayed the process earlier in the summer. The maps were signed into law by Abbott and are expected to face legal challenges. Estimates believe the new maps can provide 5 additional seats favoring Republicans, potentially solidifying partisan control of the U.S. Congress in the upcoming elections.
Quorum Break Penalties: Retaliation for Walkouts
The House adopted new rules penalizing quorum breaks, including fines, loss of seniority, and reduced office budgets. The changes are prospective only and do not apply retroactively to the recent walkout.
Abortion Medication: HB 7
House Bill 7, authored by State Rep. Jeff Leach (R-Allen), prohibits the manufacture, mailing, and distribution of abortion-inducing drugs in Texas. The bill relies on a civil enforcement model similar to SB 8, the Heartbeat Act (2021), allowing private citizens to bring lawsuits with damages of at least $100,000 per violation.
The measure includes exceptions for medical emergencies, miscarriages, and ectopic pregnancies. It also provides protection for physicians prescribing the drugs for legitimate medical purposes and adds privacy safeguards for patients.
Restroom Policies: SB 8
Senate Bill 8, authored by State Sen. Mayes Middleton (R-Galveston), requires government-owned facilities, schools, universities, prisons, and shelters to designate restrooms and changing spaces according to biological sex. Agencies that fail to comply may face fines starting at $25,000.
The law authorizes both the attorney general and private citizens to enforce compliance through lawsuits, provisions direct appeals to the Fifteenth Court of Appeals.
Flood Safety and Youth Camp Standards: SB 1
Senate Bill 1, authored by State Sen. Charles Perry (R-Lubbock), the Heaven’s 27 Camp Safety Act, requires youth camps located in FEMA-designated floodplains to meet stricter standards before being licensed. Camps must also submit annual emergency preparedness plans and adopt new infrastructure requirements.
Supporters view the law as necessary after the July 4 floods that caused more than 130 deaths. Camp operators in Kerr County and elsewhere have raised concerns about compliance costs, potential closures, and broader impacts on local economies.
Education Testing: HB 8
House Bill 8, authored by State Rep. Brad Buckley (R-Salado), phases out the STAAR test and replaces it with a “Student Success Tool,” which measures student progress using beginning-, middle-, and end-of-year assessments.
Supporters say the model offers more consistent feedback, while critics note it significantly increases the number of state-mandated tests. The system is scheduled to be implemented statewide in the 2027–28 school year.
Property Tax Relief Stalls
Senate Bill 10, authored by State Sen. Paul Bettencourt (R-Houston), which lowered the voter approval tax rate from 3.5% to 2.5% for certain jurisdictions, did not advance after opposition in the House. Critics argued it was too narrow, as it excluded school districts and applied to fewer than 60 taxing entities statewide.
House members sought broader reforms requiring voter approval for all property tax increases and stricter limits on local spending growth. Without agreement between the chambers, property tax relief remains unresolved.
Hemp/THC Regulation Fails
Efforts to ban or strictly regulate hemp-derived THC products also failed. The Senate advanced Senate Bill 6, authored by State Sen. Charles Perry (R-Lubbock), which would have prohibited most consumable hemp products, but the House declined to move the bill forward.
Public opinion polling showed mixed results: while some Republican primary voters supported prohibition, statewide surveys indicated most Texans preferred regulation with safeguards such as age limits and packaging rules over an outright ban. For now, hemp-derived THC products remain legal in Texas.
Confidential Police Records: HB 15
House Bill 15, authored by State Rep. Cole Hefner (R-Mount Pleasant), proposed requiring law enforcement agencies to maintain confidential personnel files, sometimes called “G-files”, containing internal documents and unsubstantiated complaints. These files would be exempt from the Public Information Act but accessible to licensing authorities and other agencies during hiring.
Supporters argued the bill would protect officers from reputational harm due to unsubstantiated allegations. Critics raised concerns about transparency, due process, and the potential for agencies to retain career-affecting information without oversight. The measure passed both chambers in varying forms, but ultimately, neither could come to an agreement on differences.
Other Items Left Unfinished
Several other items on Abbott’s call failed to reach his desk before adjournment, including:
- A ban on taxpayer-funded lobbying
- Expanded election reforms, such as prohibiting same-day voter registration
- Certain judicial administration bills
What Comes Next
With the session adjourned sine die, Abbott has 20 days to sign or veto passed bills, or allow them to take effect without his signature. Unresolved issues, including property tax relief, hemp regulation, and police record transparency, may be revisited in another special session or delayed until the 2027 regular session.
Conclusion
The second special session of the 89th Texas Legislature produced significant policy changes in areas such as abortion, restroom use, disaster safety, and education accountability. At the same time, major proposals on property taxes, hemp products, and police transparency did not advance.
Whether these unresolved issues reappear in another special session or wait until the next biennial session will shape the next phase of Texas policymaking.
Texas Policy Research relies on the support of generous donors across Texas.
If you found this information helpful, please consider supporting our efforts! Thank you!
