Texas lawmakers set record for pre-filing bills as 2025 legislative session nears

On the first day of pre-filing for the 2025 Texas Legislative session, lawmakers set a new record, filing more than 1,500 bills, signaling an intense and wide-ranging legislative session ahead. While many of the proposals remain in early stages and are not yet considered official priorities, a diverse mix of border security measures, social issues, and tax reforms stand out as potential flashpoints in the upcoming session.

Hot-Button Issues Take Center Stage

Among the first bills filed were proposals that span the political spectrum, from controversial social issues to border security and property taxes. Rep. Terri Leo Wilson (R-Galveston) led off with House Bill 160, which seeks to eliminate in-state tuition for individuals without legal status in Texas. This bill aims to change current law, which mandates that all Texas residents—regardless of immigration status—receive the discounted tuition rate. The issue has long been a point of contention in Texas courts, with legal battles continuing to play out.

Rep. Ryan Guillen (R-Rio Grande City) filed two border security-related bills, one establishing a compact with Mexican states and another with U.S. states, underscoring the growing concern over border enforcement. Meanwhile, Rep. Keith Bell (R-Forney) proposed legislation to reduce the homestead appraisal cap from 10 percent to 5 percent, a measure aimed at helping homeowners keep their property taxes manageable.

Rep. Will Metcalf (R-Conroe) filed a bill that would make permanent the 20 percent appraisal cap for small businesses that was part of last year’s property tax reform package. The so-called “circuit breaker” provision, a key component of the property tax deal, is set to expire after the 2026 tax year, but Metcalf’s proposal would make it a permanent feature.

Other notable filings include Rep. Caroline Harris Davila’s (R-Round Rock) bill to eliminate the first-year fees for newly established businesses, and Rep. Joe Moody's (D-El Paso) series of bills addressing the ongoing legal case of death row inmate Robert Roberson. Moody's proposals include requiring written opinions from the Court of Criminal Appeals when it denies habeas corpus petitions and calling for the abolition of the death penalty in Texas.

Border Security and Foreign Land Purchases

Rep. David Spiller (R-Jacksboro) filed a high-profile bill that would prohibit foreign adversaries, including China and its agents, from purchasing land in Texas. This measure has gained significant traction among conservative lawmakers, with even House leadership signaling support for action on the issue in the upcoming session. Rep. Briscoe Cain (R-Deer Park) also filed bills aimed at reviving the Texas Border Protection Unit and banning "red-flag" laws.

The issue of foreign ownership of Texas land, particularly by hostile nations, is expected to remain a major point of debate in 2025. State Rep. Cole Hefner (R-Mt. Pleasant), chair of a select committee focused on this issue, held the first of several hearings on the matter in July, and many believe the bill will gain strong backing in both the House and Senate.

Social and Cultural Proposals

As expected, social issues remain a central focus for many lawmakers, particularly in light of the 2024 election results, where debates over transgender rights and social policy were front and center. Rep. Mayes Middleton (R-Galveston) and Rep. Ellen Troxclair (R-Lakeway) both filed identical versions of a bill to ban taxpayer-funded lobbying, a proposal that has failed to pass in previous sessions but is now considered a higher priority for the Texas GOP.

Middleton also filed the Texas Women's Privacy Act, alongside Rep. Valoree Swanson (R-Spring), which would require individuals in public facilities to use bathrooms and changing rooms based on their biological sex—a policy reminiscent of the 2017 “bathroom bill” that sparked fierce opposition. Given the success of similar issues in the 2024 election, some believe the bill may have a better chance of passing this session.

Additionally, Rep. Jeff Leach (R-Plano) proposed legislation requiring insurance companies to cover detransitioning procedures if they cover gender modification treatments. The proposal is part of a broader conservative push around transgender-related policies.

Education, Wages, and Health Care

Education and health care proposals also figure prominently in the 2025 pre-filings. Among the bills filed by Democrats, Rep. Armando Walle (D-Houston) introduced a bill to raise the state’s minimum wage to $15 per hour, while Rep. John Bucy (D-Austin) filed a measure to expand Medicaid in Texas, an issue that has been a consistent point of contention in the state.

Rep. Donna Howard (D-Austin) also filed a bill seeking exceptions for rape and incest in Texas' abortion laws, which remains a polarizing issue. Rep. Jon Rosenthal (D-Houston) proposed a repeal of the state’s anti-Environmental, Social, and Governance (ESG) laws, while Bucy also filed a bill to repeal last year’s ban on diversity, equity, and inclusion (DEI) offices at Texas universities.

Education-focused bills include Rep. Jared Patterson’s (R-Frisco) attempt to supplement the 2023 READER Act, which bans sexually explicit material in school libraries. Patterson also filed a bill to push back the start of the school year to after Labor Day—a move that would have significant implications for school schedules statewide.

Additionally, Rep. Troxclair proposed a bill that would ban the use of cell phones by students in public schools, drawing support from parents and educators concerned about the growing role of smartphones in the classroom.

Looking Ahead: A Busy 2025 Session

With 1,500 bills filed on day one, Texas lawmakers are bracing for a busy 2025 session. The Legislature’s priorities will likely be solidified as both the House and Senate leaders release their official legislative agendas in the coming months. Speaker Dade Phelan (R-Beaumont) emphasized that bill numbers 1 through 39 in the House are reserved for high-priority legislation, with the remaining bills subject to further negotiation and debate.

As for the Senate, the number of filed bills—while large—still pales in comparison to the House’s 1,500. But with both chambers gearing up for a session that will tackle some of the state’s most divisive and urgent issues, lawmakers will have their hands full. The outcome of these early filings will shape the agenda for the next two years, and with leadership changes on the horizon, both parties will be closely watching as the 2025 legislative session takes shape.

The legislative session officially kicks off in January, but it’s clear that Texas lawmakers are already hard at work preparing for what is expected to be a contentious and high-stakes year in the state Capitol.