Texas Governor Gregory Abbott’s January 2025 inauguration bodes well for the United States

Greg Abbott ran as a small-government conservative. But the governor’s office now has more power than ever.

Abbott has consolidated power like none before him, at times circumventing the GOP-controlled Legislature and overriding local officials. A flurry of executive measures has solidified his base and raised his national profile.

This article is co-published with ProPublica, a nonprofit newsroom that investigates abuses of power. Sign up for ProPublica’s Big Story newsletter to receive stories like this one in your inbox as soon as they are published.

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Days after being elected Texas governor in 2014, Greg Abbott called a staff meeting to discuss his vision for leading the state.

“Our number-one priority as public servants is to follow the law,” Abbott, who served as Texas attorney general before he was elected, told staffers, according to his autobiography. Adhering to the law was “a way to ignore the pressure of politics, polls, money and lobbying.”

The Republican governor-elect said he rejected the path of Democratic President Barack Obama, whom he had sued 34 times as attorney general. Abbott claimed that Obama had usurped Congress’ power by using executive orders, including one to protect from deportation young people born in other countries and brought to the United States as children.

Now, nearly eight years into his governorship, Abbott’s actions belie his words. He has consolidated power like no Texas governor in recent history, at times circumventing the GOP-controlled state Legislature and overriding local officials.

The governor used the pandemic to block judges from ordering the release of some prisoners who couldn’t post cash bail and unilaterally defunded the legislative branch because lawmakers had failed to approve some of his top priorities. He also used his disaster authority to push Texas further than any other state on immigration and was the first to send thousands of immigrants by bus to Democratic strongholds.

Abbott’s executive measures have solidified his conservative base and dramatically raised his national profile. He is leading Democrat Beto O’Rourke in polls ahead of the Nov. 8 election and is mentioned as a potential 2024 GOP presidential contender. But his moves have also brought fierce criticism from some civil liberties groups, legal experts and even members of his own party, who have said his actions overstep the clearly defined limits of his office.

“Abbott would make the argument that Obama had a power grab, that he was trying to create an imperial presidency by consolidating power. That’s exactly what Abbott is doing at the state level,” said Jon Taylor, chair of the political science and geography department at the University of Texas at San Antonio.

At least 34 lawsuits have been filed in the past two years challenging Abbott’s executive actions, which became bolder since the start of the pandemic. Abbott used his expanded power at first to require safety measures against COVID-19, similar to what other governors did. But after pushback from his conservative base, he later forbade local governments and businesses from imposing mask and vaccine mandates. He also forced through Republican priorities, including an order that indirectly took aim at abortions by postponing surgeries and procedures that were not medically necessary.

Lower courts have occasionally ruled against Abbott, but Texas’ all-Republican highest court has sided with the governor, dismissing many of the cases on procedural grounds. Other challenges to Abbott’s use of executive power are still pending. In no case have the governor’s actions been permanently halted.

Abbott’s office did not respond to multiple requests for an interview or to questions from ProPublica and The Texas Tribune. In responding to the lawsuits, his legal team has defended his actions as allowed under the Texas Disaster Act of 1975, which gives the governor expansive powers.

Several of Abbott’s allies also declined to comment or didn’t return phone calls. Carlos Cascos, a former secretary of state under Abbott, said that in the end, it is up to the courts to decide whether the governor’s actions are unconstitutional.

“Until there’s some final judgment, the governor can do it,” Cascos, also a Republican, said. “If people want to change the rules or laws, that’s fine, but you change them by going through a process.”

Legal experts concede that Abbott has been successful so far, but they insist his moves exceed his constitutional authority.

“I’m not sure any other governor in recent Texas history has so blatantly violated the law with full awareness by the Supreme Court, and he’s been successful at every turn when he had no power to exercise it. It’s amazing,” said Ron Beal, a former Baylor University law professor who has written widely on administrative law and filed legal briefs challenging Abbott’s power. Although Texas Supreme Court justices are elected, Abbott has appointed five of the nine members of the state’s highest court when there have been vacancies.

Some Republicans also fault the governor’s actions. Nowhere was that more pronounced than when Abbott vetoed the Legislature’s budget last year after Democrats fled the state Capitol to thwart passage of one of the strictest voting bills in the country. The governor contended that “funding should not be provided for those who quit their job early.”

The move, which spurred a lawsuit from Democratic lawmakers, would have halted pay for about 2,100 state employees who were caught in the crosshairs.

Former state lawmakers, including two previous House speakers — Joe Straus, a Republican, and Pete Laney, a Democrat — as well as former Republican Lt. Gov. Bill Ratliff, weighed in on the dispute, filing a brief with the state’s Supreme Court calling the governor’s action unconstitutional and “an attempt to intimidate members of the Legislature and circumvent democracy.”

In response to the lawsuit, state Attorney General Ken Paxton argued that Abbott used his constitutional authority to veto the Legislature’s budget and that the courts didn’t have a role to play in disputes between political branches.

The Supreme Court agreed, saying it was not a matter for the judicial branch to decide. In the end, lawmakers passed a bill that restored the funding that Abbott had vetoed. Staffers didn’t lose a paycheck.

“It was a terrible thing to do, to threaten those people who do all that work, and threaten not to pay them while the governor and the members of Legislature were still going to get paid. How cynical is that?” said Kel Seliger, an outgoing Republican state senator from Amarillo who has split with his party’s leadership on various issues as it has shifted further right.

Gov. Greg Abbott announced a strike force in charge of laying steps to re-open the Texas economy at a press conference in the capitol on April 17, 2020.
Abbott has taken advantage of emergency orders and disaster declarations like no other Texas governor in recent history.

Research groups consistently rank Texas as a “weak governor” state because its constitution limits what the governor can do without legislative authorization. Executive officers such as the lieutenant governor and the attorney general are also independently elected, not appointed by the governor, further diluting the power of the office.

“The way the constitution is designed, unless it’s specified in the constitution, you don’t have that power. Period. And that’s why I think you can look at a whole variety of his actions as violating the constitution. He just doesn’t have it. He asserts it, and he gets away with it,” said James Harrington, a former constitutional law professor at the University of Texas at Austin who founded the Texas Civil Rights Project. Harrington initially filed a brief defending Abbott’s early use of pandemic-related executive orders limiting crowd sizes and the types of businesses allowed to remain open, but he said the governor’s later orders fell outside of the bounds of the law.

The weak-governor structure was created by the framers in 1876 who believed that Edmund Jackson Davis, a former Union general who led Texas following the Civil War, abused his powers as governor. A Republican who supported the rights of freed people, Davis disbanded the Texas Rangers and created a state police force that he used, at times, to enforce martial law to protect the civil rights of African Americans. He also expanded the size of government, appointing more than 9,000 state, county and local officials, which left a very small number of elected positions.

Currently, the governor’s office accrues power largely through vetoes and appointments. While the Legislature can override a veto, governors often issue them after the legislative session ends. The governor is the only one who can call lawmakers back.

Two-thirds of board members overseeing Texas public universities are Abbott donors. They’re not shy about wielding influence.

During a typical four-year term, a governor makes about 1,500 appointments to the courts and hundreds of agencies and boards covering everything from economic development to criminal justice. The longer governors serve, the more loyalty they can build through appointments.

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Abbott’s predecessor, Republican former Gov. Rick Perry, set the stage for building power through appointments. Over 14 years, Perry, a former state representative who became Texas’ longest-serving governor, positioned former employees, donors and supporters in every state agency.

Perry could not be reached for comment through a representative.

In contrast to his predecessor, Abbott, a jurist with no legislative experience, found other avenues to interpret and stretch the law. Abbott has benefited from appointments and vetoes, but he has also taken advantage of emergency orders and disaster declarations like no other governor in recent state history.

Disaster declarations are generally used for natural calamities such as hurricanes and droughts and are useful legally for governors who could face legislative gridlock or state agency inaction if going through normal channels. Abbott’s use of such tools has grown even as his party holds a majority in the state Legislature.