The History of Texas Civil Procedure
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THE HISTORY OF TEXAS CIVIL PROCEDURE William V. Dorsaneo, III* I. Introduction ................................ ..... 714 II. Procedural Developments Before the Adoption of the Texas Rules of Civil Procedure ............................. 717 A. The Texas Pleading System ............... ..... 717 B. Forum Selection; Venue and Jurisdiction ....... ...... 721 C. Joinder of Claims and Parties .............. ..... 725 D. Discovery and Pretrial Practice ................... 728 E. The Trial Process ............................ 730 III. Rules of Practice Act ............................. 734 IV. New Rules of 1941 .......................... .... 737 A. Sources of Texas Rules of Civil Procedure ..... ..... 737 B. The Organization of the New Rules.......... ..... 737 C. The Pleading System .................... ..... 739 D. Joinder of Claims and Parties. ............... .... 740 E. Discovery and Pretrial Practice ............ ...... 744 F. The Jury Charge ............................. 745 G. Appellate Review; Preservation of Complaints................749 H. The "End" Product ...................... ..... 750 V. Amendments of 1941 Rules............................751 A. Pleadings ....................................... 755 B. Venue and Jurisdiction ............................ 761 * William V. Dorsaneo, III, Chief Justice John and Lena Hickman Distinguished Faculty Fellow and Professor of Law, Dedman School of Law, Southern Methodist University. I respectfully acknowledge the contributions made to this article and to the developments discussed and explained in it by the many past and present members of the Advisory Committee to the Supreme Court of Texas. I also want to thank my professional and academic colleagues who reviewed various drafts of the article during the many years of its preparation and particularly Chief Justice Nathan L. Hecht and Chief Justice Thomas R. Phillips, Professors Elizabeth Thornburg, Anthony Colangelo and Jeffrey Kahn, Luther A. Soules, III, Des Dorsaneo, Robert B. Gilbreath, Josiah Daniel, Carl Hamilton, as well as many, many research assistants including Paula J. Miller, Margaret Jewell, Parker Graham and Charley Dorsaneo. Finally, I gratefully acknowledge funding provided for preparation of the article by the Law School Excellence Fund. 714 BAYLOR LAWREVIEW [Vol. 65:3 1. Adoption and Interpretation of Special Appearance Rule..................................761 2. Changes in Venue Practice.......... ... ....... 764 C. Joinder of Claims and Parties.....................768 D. Class Actions..........................769 E. Discovery Practice ..................... ...... 773 F. Summary Judgment ..................... ..... 781 G. The Jury Charge.............................785 H. Post-verdict Motion Practice............. ......... 789 VI. Adoption and Unification of Rules of Civil and Criminal Evidence .............................. ...... 792 VII. Adoption and Revision of the Rules of Appellate Procedure ..793 VIII. Proposed Revision of Civil Procedure Rules.... ..........797 A. The 1991 Task Forces ........................ 797 B. The Task Force Reports ..............................799 IX. Adoption of the 1999 Discovery Rules ................. 802 X. Development of Closer Collaboration Between the Court and the Texas Legislature ........................... 806 XI. Continuing Need for Revision of the Rules of Civil Procedure ................................... 818 XII. Conclusion....................................823 I. INTRODUCTION The promulgation of rules of court by the Texas Supreme Court has been the principal mechanism for the regulation of proceedings in Texas courts. This article provides a historical overview of the development of these rules, the rule-making process, the impact of procedural rule-making on the administration of justice in Texas courts, and the continuing need for revision and reorganization of the Texas Rules of Civil Procedure. This article also acknowledges the enormous debt that is owed to the Texas judges, lawyers, and professors who have participated in the rule-making process, mostly without plaudits or even public recognition. In a small way, this paper attempts to pay that debt. "The Constitution of the Republic of Texas and the Constitutions of the State of Texas for 1845, 1861, 1866, and 1869, make no provision for rules of court, other than to say that trials shall be conducted according to 'rules 2013] HISTORY OF TEXAS CIVIL PROCEDURE 715 and regulations prescribed by law."" But the Texas Constitution of 1876 explicitly empowered the Texas Supreme Court to "make rules and regulations for the government of said court, and the other courts of the State, to regulate proceedings and expedite the dispatch of business therein." 2 As a result, under the leadership of Chief Justice Oran M. Roberts3 the Texas Supreme Court promulgated a complete set of rules in 1877 for all Texas courts from the filing of suit in the trial court to the rendition of judgment in the Texas Supreme Court.4 In 1891, the provision was amended to allow rulemaking "not inconsistent with the laws of the State."5 With the passage of the Rules of Practice Act in 1939, the Texas Supreme Court was given the authority to promulgate procedural rules for use in Texas courts and, importantly, to repeal procedural statutes. With the aid of the original Texas Supreme Court Advisory Committee, the Texas Supreme Court promulgated the Texas Rules of Civil Procedure in 1940.7 These rules superseded procedural statutes and predecessor court 'W.M. HARRIS, RULES OF THE COURTS 7 (L. K. Smoot ed., 2d ed. 1921). 2Tex. Const. art. V, § 25 (amended 1891). Chief Justice Roberts was first elected to the Texas Supreme Court in 1856. Ford Dixon, Roberts, Oran Milo, Handbook of Texas Online, STATE HISTORICAL SOCIETY (Aug. 28, 2013, 10:30 PM), https//www.tshaonline.org/handbook/online/articles/frol8. After leading the passage of the ordinance removing Texas from the Union in 1861 and a short military career, Roberts returned to Austin as chief justice of the Texas Supreme Court in 1864. Id He held that position until 1865, when he was removed along with other state incumbents. Id In 1874, Roberts was appointed and then elected to the Texas Supreme Court. Id. He served as chief justice for four years. Id. In 1878, he was elected Governor of Texas, serving two terms. Id. After his retirement, he was appointed professor of law at the University of Texas, which had opened in 1883. Id. He held that position for ten years. Id. He wrote THE ELEMENTS OF PLEADING as a text for law students in 1890. Id. 4As explained by Chief Justice Roberts, "The members of the [Constitutional] Convention, in giving the Supreme Court 'the power to make rules and regulations,' for the express purpose of regulating the proceedings and expediting the business in the courts, must have designed more than the making of a few short rules of court, such as have formerly been made and practiced under." Tex. Land Co. v. Williams, 48 Tex. 602, 603 (1878). 5Tex. Const. art. V, § 25 (repealed 1985); See also Roy W. McDonald, The Background of the Texas ProceduralRules, 19 TEX. L. REv. 229, 239 (1941) ("[W]ith the amendment of the Constitution of 1891 . the earlier [rule-making] spirit seems to have waned . ."). 6See Acts of May 15, 1939, 46th Leg., R.S., ch. 25, 1939 Tex. Gen. Laws 201, 201-03, repealed by Act of June 12, 1985, 69th Leg., ch. 480, § 26(1), 1985 Tex. Gen. Laws 1720, 2048 (current version at TEX. Gov'T CODE ANN. § 22.004 (West Supp. 2012)). Jack Pope & Steve McConnico, Texas Civil ProcedureRule Making, 30 BAYLOR L. REV. 5, 11-12 (1978). 716 BAYLOR LAWREVIEW [Vol. 65:3 rules, but designedly did not make nonessential changes in Texas procedure. During the next four decades, the Texas Supreme Court promulgated a number of additional civil procedural rules and amended many others. By 1980 and during the 1980s and 1990s, continuing dissatisfaction with the Texas rulebook caused the rule-making process to greatly accelerate. But by the end of the twentieth century, the process of revision of the Texas Rules of Civil Procedure stalled before recodification of the rules could be completed. With the full recognition that rule-making is a never-ending process, this article explains what needs to be done to "finish" the job. My participation in the rule-making process began in the late 1970s, when I became a member of the State Bar of Texas Administration of Justice Committee. By 1982, I also became a member of the Advisory Committee to the Texas Supreme Court. I have served as a member of the Advisory Committee as a result of consecutive reappointments since my original appointment. Along the way, I served as one of the principal reporters to the Combined Committee that drafted the Texas Rules of Appellate Procedure, which were promulgated by the Texas Supreme Court and the Court of Criminal Appeals in 1984.9 In 1991, I was appointed by the Texas Supreme Court as the Chair of the Task Force on Revision of the Texas Rules of Civil Procedure, which developed a Recodification Draft of the Texas Rules of Civil Procedure and submitted the draft to the Advisory Committee in 1993.10 Thereafter, the Advisory Committee met every other month until it substantially completed a new Recodification Draft in late See Pope, supra note 7, at 10-11. Many rules, procedural statutes, and court decisions interpreting them have historical roots traceable to the Republic of Texas, Mexico and Spain. Joseph McKnight, The Spanish Influence on the Texas Law of Civil Procedure, 38 TEX.