Opinion
No. 13-03-00169-CV
Opinion Delivered and Filed September 29, 2005.
On Appeal from the 357th District Court of Cameron County, Texas.
Before Justices HINOJOSA, YAZEZ, and CASTILLO.
OPINION
Appellant, the City of Harlingen ("the City"), appeals from (1) the trial court's order denying its plea to the jurisdiction and (2) judgment denying its motion for summary judgment and granting the motion for summary judgment of appellee, Eddie Alvarez. We reverse the trial court's judgment, render in part, and remand in part.
A. FACTUAL BACKGROUND
On March 6, 2001, J.L. Garcia was "indefinitely suspended" from his position of fire captain/assistant fire marshal with the City of Harlingen Fire Department for insubordination, being absent without leave, and violating local rules. On October 18, 2001, Garcia's indefinite suspension was affirmed by an independent hearing examiner appointed to hear his appeal. As a result of Garcia's discharge, a vacancy occurred in a classified position in the Harlingen Fire Department.
Under the Civil Service Act ("the Act"), the City is required to fill promotional vacancies from eligibility lists created as a result of competitive promotional examinations. See TEX. LOC. GOV'T CODE ANN. § 143.036 (Vernon 1999). If an eligibility list exists on the date a vacancy occurs, the vacancy must be filled from that list within sixty days. Id. On March 6, 2001, Alvarez was the top-ranked and only candidate on the eligibility list.
On March 9, 2001, Garcia appealed his indefinite suspension. However, it was not until October 18, 2001, that the hearing examiner issued the decision affirming the indefinite suspension. By that time, the promotional eligibility list in existence on March 6, 2001, had expired and a new one had been established. Alvarez was ranked number four on the new eligibility list, and the fire chief promoted the first-ranked candidate from the new eligibility list on December 5, 2001.
Alvarez sued the City, alleging that he was entitled to the promotion because he was the highest-ranked candidate on the eligibility list when the vacancy occurred on March 6, 2001. The City asserted the vacancy occurred on October 18, 2001, when the hearing examiner's decision was issued. The City filed a plea to the jurisdiction, asserting that Alvarez had failed to exhaust the administrative remedies set forth in the Act, but the plea was denied by the trial court. Then, based upon a "Joint Stipulation of Facts," the parties filed cross-motions for summary judgment. The trial court denied the City's motion and granted Alvarez's motion for summary judgment. In its final judgment, the trial court (1) declared that a vacancy in the position of fire captain occurred on March 6, 2001, as a result of Garcia's discharge; (2) ordered the City to promote Alvarez retroactively; and (3) awarded him back pay and attorney's fees.
B. PLEA TO THE JURISDICTION
In subpart one of its second issue, the City contends the trial court erred in denying its plea to the jurisdiction. Specifically, the City asserts the trial court did not have jurisdiction over this case because Alvarez failed to exhaust his administrative remedies before filing suit.
1. Standard of Review
A plea to the jurisdiction is a dilatory plea; its purpose is "to defeat a cause of action without regard to whether the claims asserted have merit." Bland Indep. Sch. Dist. v. Blue, 34 S.W.3d 547, 554 (Tex. 2000). The plea challenges the trial court's authority to determine the subject matter of a pleaded cause of action. City of Midland v. Sullivan, 33 S.W.3d 1, 6 (Tex.App.-El Paso 2000, pet. dism'd w.o.j.); State v. Benavides, 772 S.W.2d 271, 273 (Tex.App.-Corpus Christi 1989, writ denied).
Because subject matter jurisdiction is a question of law, we review a trial court's ruling on a plea to the jurisdiction under a de novo standard of review. State v. Gonzalez, 82 S.W.3d 322, 327 (Tex. 2003). In determining whether jurisdiction exists, rather than looking at the claim's merits, we look to the allegations in the pleadings, accept them as true, and construe them in favor of the pleader. See County of Cameron v. Brown, 80 S.W.3d 549, 555 (Tex. 2002); Tex. Ass'n of Bus. v. Tex. Air Control Bd., 852 S.W.2d 440, 446 (Tex. 1993). We consider the facts alleged in the petition, and to the extent it is relevant to the jurisdictional issue, any evidence submitted by the parties to the trial court. Tex. Natural Res. Conservation Comm'n v. White, 46 S.W.3d 864, 868 (Tex. 2001); Blue, 34 S.W.3d at 555.
It is the plaintiff's burden to allege facts affirmatively demonstrating the trial court's jurisdiction. Tex. Ass'n of Bus., 852 S.W.2d at 446; Mission Consol. Indep. Sch. Dist. v. Flores, 39 S.W.3d 674, 676 (Tex.App.-Corpus Christi 2001, no pet.). When a plaintiff fails to plead facts that establish jurisdiction, but the petition does not affirmatively demonstrate incurable defects in jurisdiction, the issue is one of pleading sufficiency, and the plaintiff should be afforded the opportunity to amend. Brown, 80 S.W.3d at 555. On the other hand, if the pleadings affirmatively negate the existence of jurisdiction, then a plea to the jurisdiction may be granted without allowing the plaintiff an opportunity to amend. Id.
2. Analysis
In his petition, Alvarez alleged the City violated his rights under section 143.036 of the Act by failing and refusing to promote him to the classified position of fire captain within sixty days after a vacancy was created in that classification as a result of Garcia's discharge. See TEX. LOC. GOV'T CODE ANN. § 143.036(h) (Vernon 1999).
When an agency has exclusive jurisdiction, a party must exhaust all administrative remedies before seeking judicial review of the agency's claim. Thomas v. Long, 97 S.W.3d 300, 303 (Tex.App.-Houston [14th Dist.] 2003, pet. filed) (citing Subaru of Am., Inc. v. David McDavid Nissan, Inc., 84 S.W.3d 212, 221 (Tex. 2002)). Until the exhaustion of administrative remedies, the trial court lacks subject matter jurisdiction and must dismiss all claims within the agency's exclusive jurisdiction. Subaru of Am., 84 S.W.3d at 221.
However, an agency has exclusive jurisdiction only when a pervasive regulatory scheme indicates that the legislature intended for the regulatory process to be the exclusive means of remedying the problem to which the regulation is addressed. See id. Whether an agency has exclusive jurisdiction depends upon statutory interpretation. Id.
An administrative agency such as the Civil Service Commission has only such powers as are expressly granted to it by statute, together with those necessarily implied from the authority conferred or duties imposed. Stauffer v. City of San Antonio, 344 S.W.2d 158, 160 (Tex. 1961). Where the statute does not provide for appeal to the commission, there is no administrative remedy to exhaust prior to appeal to the district court. Perez v. City of Laredo, 21 S.W.3d 371, 374 (Tex.App.-San Antonio 2000, no pet.).
The Act outlines specific procedures for making promotional appointments. A fire fighter eligible for promotion demonstrates entitlement to promotion by taking a promotional examination. Klinger v. City of San Angelo, 901 S.W.2d 669, 674 (Tex.App.-Austin 1995, writ denied); see TEX. LOC. GOV'T CODE ANN. § 143.032 (Vernon 1999). An eligibility list is created by ranking the examinees based upon their results on the examination. TEX. LOC. GOV'T CODE ANN. 143.033 (Vernon 1999). Each promotional eligibility list remains in existence for one year after the date on which the examination is given, unless exhausted. TEX. LOC. GOV'T CODE ANN. 143.036(h) (Vernon 1999). If an eligibility list exists on the date a vacancy occurs, the position must be filled within sixty days after the date the vacancy occurs. TEX. LOC. GOV'T CODE ANN. § 143.036(e) (Vernon 1999). The promotional eligibility list used to fill the vacancy is the one that exists on the date the vacancy occurs, even if that list expires before the position is actually filled. Bostick v. Owens, 423 S.W.2d 471, 472 (Tex.Civ.App.-Fort Worth 1968, writ ref'd n.r.e.). The eligible promotional candidate with the highest grade on the eligibility list shall be appointed unless the department head has a valid reason for not appointing that person. TEX. LOC. GOV'T CODE ANN. § 143.036(f) (Vernon 1999). If a valid reason exists for not appointing the candidate with the highest grade, the department head must personally discuss the reason with the person being bypassed before appointing another person and file the reason in writing with the commission. Id. "On application of the bypassed eligible promotional candidate, the reason the department head did not appoint that person is subject to review by the commission." Id.
The City argues that section 143.036(f) grants the commission power to review Alvarez's claim. While we agree that section 143.036(f) expressly authorizes a civil service commission to hear appeals from promotional pass-overs, see Stauffer, 344 S.W.2d at 160 and Cantu v. Perales, 97 S.W.3d 861, 863 (Tex.App.-Corpus Christi 2003, no pet.), the issue in this case does not involve a promotional pass-over.
Because the City determined October 18, 2001, as the date the vacancy occurred, the City utilized the eligibility list in existence on that date. Unlike the eligibility list in existence on March 6, 2001, Alvarez was no longer the top-ranking candidate, but now the fourth-ranked candidate on the promotional eligibility list. Thus, he was not bypassed; rather, the first-ranked candidate on the eligibility list was promoted. Since Alvarez was not bypassed, there was no required discussion regarding the reason for being bypassed before appointing the first-ranked candidate, and such reason was not filed in writing with the commission as would otherwise have been required by section 143.036(f). See TEX. LOC. GOV'T CODE ANN. § 143.036(f) (Vernon 1999). Alvarez was not a "bypassed eligible promotional candidate," and no "reason the department head did not appoint that person" was provided to the commission. Therefore, Alvarez was not required to appeal to the commission under section 143.036(f) because, under the facts of this case, there was nothing for him to appeal.
The issue presented to the trial court was whether the vacancy occurred (1) on March 6, 2001, when Garcia was indefinitely suspended, or (2) on October 18, 2001, when Garcia's suspension was affirmed by the independent hearing examiner. Neither section 143.036(f) nor any other provision of chapter 143 of the local government code authorize the commission to determine this issue. Because the Act does not provide for appeal to the commission, we conclude there is no administrative remedy to exhaust prior to an appeal to the district court. See Perez, 21 S.W.3d at 374. We therefore have jurisdiction to consider this appeal. Subpart one of the City's second issue is overruled.
C. SUMMARY JUDGMENT 1. Standard of Review
We review the granting of a traditional motion for summary judgment de novo. See Natividad v. Alexsis, Inc., 875 S.W.2d 695, 699 (Tex. 1994); Tex. Commerce Bank Rio Grande Valley v. Correa, 28 S.W.3d 723, 726 (Tex.App.-Corpus Christi 2000, pet. denied). To prevail, the moving party has the burden of showing that there is no genuine issue of material fact and that it is entitled to judgment as a matter of law. Tex. R. Civ. P. 166a(c); Lear Siegler, Inc. v. Perez, 819 S.W.2d 470, 471 (Tex. 1991). In deciding whether there is a genuine issue of material fact, evidence favorable to the nonmovant will be taken as true, and all reasonable inferences made, and all doubts resolved, in its favor. Am. Tobacco Co. v. Grinnell, 951 S.W.2d 420, 425 (Tex. 1997). Summary judgment is proper if the movant disproves at least one element of each of the plaintiff's claims or affirmatively establishes each element of an affirmative defense to each claim. Id. A defendant moving for summary judgment on an affirmative defense has the burden to conclusively establish that defense. Velsicol Chem. Corp. v. Winograd, 956 S.W.2d 529, 530 (Tex. 1997). When, as here, both sides move for summary judgment and the trial court grants one motion and denies the other, the reviewing court should review the summary judgment evidence presented by both sides and determine all questions presented. Comm'rs Court of Titus County v. Agan, 940 S.W.2d 77, 81 (Tex. 1997); Jones v. Strauss, 745 S.W.2d 898, 900 (Tex. 1988).
2. Sovereign Immunity
In subpart two of its second issue, the City contends the trial court erred in denying its motion for summary judgment because Alvarez's suit is barred by sovereign immunity from liability.
Sovereign immunity, unless waived, protects the State of Texas from lawsuits for damages absent legislative consent. Gen. Servs. Comm'n. v. Little-Tex Insulation Co., 39 S.W.3d 591, 594 (Tex. 2001). Sovereign immunity encompasses two principles: immunity from suit and immunity from liability. Fed. Sign v. Tex. S. Univ., 951 S.W.2d 401, 405 (Tex. 1997). Immunity from liability protects the State from judgments, even where there is an express consent on the part of the legislature to permit a suit. Id. Immunity from liability is an affirmative defense that is waived if not pleaded. Tex. Dep't of Transp. v. Jones, 8 S.W.3d 636, 638 (Tex. 1999) (citing Davis v. City of San Antonio, 752 S.W.2d 518, 519-20 (Tex. 1988)). Immunity from suit, on the other hand, bars a suit against the State unless the State expressly gives consent to the suit. Fed. Sign, 951 S.W.2d at 405. Immunity from suit then deprives a trial court of subject matter jurisdiction over the governmental agency, even if liability is undisputed. Travis Co. v. Pelzel Assocs., Inc., 77 S.W.3d 246, 248 (Tex. 2002) (citing Jones, 8 S.W.3d at 638).
The City does not contest that immunity from suit is expressly waived by statute. See TEX. LOC. GOV'T CODE ANN. § 51.075 (Vernon 1999) ("The municipality may plead and be impleaded in any court"); see also Webb v. City of Dallas, Texas, 314 F.3d 787, 795-96 (5th Cir. 2002) (citing Mo. Pac. Ry. Co. v. Brownsville Navigation Dist., 453 S.W.3d 812, 813 (Tex. 1970)) (holding section 51.075 of the local government code constitutes express waiver of municipality's immunity from suit). The City does argue that it is immune from liability. Nevertheless, because the City failed to plead immunity from liability as an affirmative defense, the defense is waived. See Jones, 8 S.W.3d at 638.
The City asserts that Alvarez failed to argue that the City waived the defense of immunity from liability in his response to the City's motion for summary judgment, and thus, he waived his "waiver" argument. However, on page 11 of "Plaintiff's Motion for Summary Judgment and Response to Defendant's Motion for Summary Judgment," Alvarez specifically stated, ". . . the City has not pled the affirmative defense of immunity from liability. . . . It has therefore waived that defense."
We conclude the trial court did not err in denying the City's motion for summary judgment on the basis of sovereign immunity. Subpart two of the City's second issue is overruled.
3. Vacancy
In its first issue, the City contends the trial court erred in finding that a vacancy in the position of fire captain occurred on March 6, 2001, when Garcia was indefinitely suspended. The City asserts that a vacancy did not occur until the independent hearing officer determined whether permanent dismissal was appropriate. Because the term "vacancy" is not defined by chapter 143, the issue before us is one of statutory construction.
We review matters of statutory construction de novo. City of San Antonio v. City of Boerne, 111 S.W.3d 22, 25 (Tex. 2003); City of Garland v. Dallas Morning News, 22 S.W.3d 351, 357 (Tex. 2000). In construing a statute, our primary objective is to determine and give effect to the Legislature's intent. Tex. Dep't of Transp. v. City of Sunset Valley, 146 S.W.3d 637, 642 (Tex. 2004); City of San Antonio, 111 S.W.3d at 25; Gonzalez, 82 S.W.3d at 327; see TEX. GOV'T CODE ANN. 312.005 (Vernon 1998). In discerning that intent, we look first to the plain and common meaning of the statute's words. Gonzalez, 82 S.W.3d at 327. We determine legislative intent from the entire act and not just isolated portions of the act. City of Sunset Valley, 146 S.W.3d at 642; City of San Antonio, 111 S.W.3d at 25. If the statutory language is unambiguous, we must interpret it according to its terms, giving meaning to the language consistent with other provisions in the statute. City of Sunset Valley, 146 S.W.3d at 642. We also consider the objective the statute seeks to obtain and the consequences of a particular construction. Id.; see TEX. GOV'T CODE ANN. § 311.023(3), (5) (Vernon 1998). With these principles in mind, we turn to the statutory language to be construed.
Section 143.036 reads, in relevant part:
(a) When a vacancy occurs in a nonentry position . . . the vacancy shall be filled as prescribed by this section . . . as applicable.
* * * * * * *
(e) If an eligibility list exists on the date a vacancy occurs, the department head shall fill the vacancy by permanent appointment from the eligibility list furnished by the commission within 60 days after the date the vacancy occurs . . .
TEX. LOC. GOV'T CODE ANN. § 143.036(a), (e) (Vernon 1999).
A vacancy occurs as soon as the employee is permanently disqualified from further service. Gibson v. Barbe, 907 S.W.2d 646, 648 (Tex.App.-San Antonio 1995, no pet.). Thus, we must determine when Garcia was permanently disqualified from further service.
Alvarez argues that Garcia was permanently disqualified on March 6, 2001, when he was indefinitely suspended by the fire chief. Alvarez contends that section 143.052(b), which provides that "[a]n indefinite suspension is equivalent to dismissal from the department," supports his position. Tex. Loc. Gov't Code Ann. § 143.052(b) (Vernon 1999). However, we must look at the Act as a whole to determine whether such a "dismissal" is the equivalent of permanent disqualification.
Section 143.052(b) of the Act authorizes the department head to only suspend a fire fighter under the department head's supervision for the violation of a civil service rule. Tex. Loc. Gov't Code Ann. § 143.052(b) (Vernon 1999). The Act provides that a suspended fire fighter may appeal the suspension to the commission. TEX. LOC. GOV'T CODE ANN. 143.052(d) (Vernon 1999). In rendering a decision on the appeal of a disciplinary suspension, the commission must state whether the suspended fire fighter is (1) permanently dismissed from the fire department, (2) temporarily suspended from the department, or (3) restored to the person's former position or status in the department's classified service. Tex. Loc. Gov't Code Ann. § 143.053(e) (Vernon 1999). Only after a finding by the commission of the truth of specific charges against the fire fighter may the commission suspend or dismiss a fire fighter for violation of civil service rules. TEX. LOC. GOV'T CODE ANN. § 143.053(g) (Vernon 1999).
Under the clear language of the Act, the department head may only suspend a fire fighter. Nothing in the statute gives the department head the power to permanently dismiss a fire fighter. This authority is specifically reserved for the commission, after a finding of the truth of the charges against the fire fighter. See TEX. LOC. GOV'T CODE ANN. § 143.053(e), (g) (Vernon 1999). Therefore, we hold that Garcia's indefinite suspension did not create a vacancy. It was only after the commission made a finding on October 18, 2001, of the truth of the charges against Garcia and decided to permanently dismiss Garcia that a vacancy occurred. The City's first issue is sustained.
Because the statute does not define "suspend" or "suspension," we must construe the term according to its ordinary meaning. See TEX. GOV'T CODE ANN. § 312.005 (Vernon 1998). "Suspension" is ordinarily defined as "temporary withdrawal or cessation from employment as distinguished from permanent severance accomplished by removal." BLACK'S LAW DICTIONARY 1447 (6th ed. 1990).
D. ATTORNEY'S FEES
In its third issue, the City contends the trial court erred in awarding Alvarez attorney's fees under the Declaratory Judgment Act. See TEX. CIV. PRAC. REM. CODE ANN. § 37.009 (Vernon 1997). Specifically, the City argues that it is an abuse of discretion to award attorney's fees under the Declaratory Judgment Act when it is relied on solely as a vehicle to recover attorney's fees.
Section 37.004 of the Declaratory Judgment Act provides that "[a] person . . . whose rights, status, or other legal relations are affected by a statute . . . may have determined any question of construction or validity arising under the . . . statute . . and obtain a declaration of rights, status, or other legal relations thereunder." See Tex. Civ. Prac. Rem. Code Ann. § 37.004 (Vernon 1997). In his original petition, Alvarez (1) asked the trial court to declare that the City's failure to promote him within sixty days after a vacancy occurred on March 6, 2001, violated his rights under section 143.036 of the local government code, and (2) requested attorney's fees under section 34.009 of the civil practice and remedies code. We conclude that his claim for declaratory relief required the construction of a statute and a declaration of his rights under the statute. Id. Therefore, his claim for declaratory relief was not merely incidental to an unrelated action.
The declaratory judgment act permits a trial court to award reasonable and necessary attorney's fees as are equitable and just. TEX. CIV. PRAC. REM. CODE ANN. § 37.009 (Vernon 1997). The grant or denial of attorney's fees in a declaratory judgment action is within the discretion of the trial court, and its decision will not be reversed on appeal absent a clear showing that it abused its discretion. Oake v. Collin County, 692 S.W.2d 454, 455 (Tex. 1985). It may be appropriate to award attorney's fees to the prevailing party if such an award is equitable and just and the fees are reasonable and necessary. See Sava Gumarska In Kemijjska Industria v. Advanced Polymer Sciences, Inc., 128 S.W.3d 304, 323 (Tex.App.-Dallas 2004, no pet.). However, in a declaratory judgment action, the prevailing party is not entitled to attorney's fees as a matter of law. Id. at 324. In the exercise of its discretion, the trial court may decline to award attorney's fees to either party, or the trial court may award attorney's fees to the nonprevailing party. Id.
Reversal of the trial court's decision on a declaratory judgment does not necessarily mean the award of attorney's fees to the party who prevailed in the trial court was an abuse of discretion. Id. Awarding attorney's fees to the nonprevailing party is not in itself an abuse of discretion. Id. However, after a declaratory judgment is reversed on appeal, an award of attorney's fees may no longer be equitable and just. Id. Therefore, when we reverse a declaratory judgment, and the trial court awarded attorney's fees to the party who prevailed at trial, we may remand the attorney's fee award for reconsideration in light of our disposition on appeal. See id. Because an award of attorney's fees under the declaratory judgment statutes falls within the trial court's discretion, we remand so the trial court may reconsider its decision to award attorney's fees in light of our disposition of this case.
E. CONCLUSION
We reverse the trial court's judgment declaring that a vacancy in the position of fire captain occurred on March 6, 2001, and render judgment declaring that a vacancy in the position of fire captain occurred on October 18, 2001. We remand the issue of whether to award attorney's fees under the declaratory judgment act to the trial court.