City of Beaumont v. Danny Stewart ( 2012 )

In The
Court of Appeals
Ninth District of Texas at Beaumont
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NO. 09-12-00316-CV
_________________
CITY OF BEAUMONT, Appellant
V.
DANNY STEWART, Appellee
________________________________________________________________________
On Appeal from the 58th District Court
Jefferson County, Texas
Trial Cause No. A-190,497
________________________________________________________________________
MEMORANDUM OPINION
This is an appeal from the trial court‟s denial of a plea to the jurisdiction. Danny
Stewart, appellee, sued the City of Beaumont (“City”) after he was involved in a two-car
collision with a vehicle operated by Ada Sariah, and owned by the City. At the time of
the accident Sariah was on her lunch break. The City filed a plea to the jurisdiction
arguing that the City was immune from suit and the trial court lacked subject matter
jurisdiction. The trial court concluded that Sariah was within the course and scope of her
employment at the time of the accident, and even if she had not been, the City would
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remain liable to Stewart pursuant to the Restatement of Torts and therefore denied the
City‟s motion. This appeal followed. We reverse the judgment of the trial court.
PLEA TO THE JURISDICTION
A. Sovereign Immunity
In Texas, sovereign immunity deprives a trial court of subject matter jurisdiction
for lawsuits in which the state or its political subdivisions, including cities, have been
sued unless the state consents to suit. Tex. Dep’t of Parks & Wildlife v. Miranda, 133
S.W.3d 217, 224 (Tex. 2004); Tex. Dep’t of Transp. v. Jones, 8 S.W.3d 636, 638 (Tex.
1999). “The Texas Torts Claims Act provides a limited waiver of sovereign immunity.”
Miranda, 133 S.W.3d at 224; see also Tex. Civ. Prac. & Rem. Code §§ 101.001-.109
(West 2005 & Supp. 2012);. Thus, the City is immune from suit unless the Tort Claims
Act has expressly waived immunity. See Miranda, 133 S.W.3d at 224-25 (citing Tex.
Civ. Prac. & Rem. Code Ann. §§ 101.001(3)(A), 101.021, 101.025).
The Tort Claims Act has been interpreted to waive sovereign immunity in three
areas: “„use of publicly owned automobiles, premises defects, and injuries arising out of
conditions or use of property.‟” Tex. Dep’t of Transp. v. Able, 35 S.W.3d 608, 611 (Tex.
2000) (quoting Lowe v. Tex. Tech Univ., 540 S.W.2d 297, 298 (Tex. 1976)). Section
101.021 of the Tort Claims Act provides in pertinent part that a governmental unit is
liable for:
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(1) property damage, personal injury, and death proximately caused by the
wrongful act or omission or the negligence of an employee acting within
his scope of employment if:
(A) the property damage, personal injury, or death arises from the
operation or use of a motor-driven vehicle or motor-driven equipment;
and
(B) the employee would be personally liable to the claimant according to
Texas law[.]
Tex. Civ. Prac. & Rem. Code Ann. § 101.021(1). The Tort Claims Act defines employee
as “a person, including an officer or agent, who is in the paid service of a governmental
unit by competent authority, but does not include an independent contractor, an agent or
employee of an independent contractor, or a person who performs tasks the details of
which the governmental unit does not have the legal right to control.” Id. § 101.001(2)
(West Supp. 2012).
B. Standard of Review
Because sovereign immunity from suit defeats a trial court‟s subject matter
jurisdiction, it is properly raised by filing a plea to the jurisdiction. Miranda, 133 S.W.3d
at 225-26; Jones, 8 S.W.3d at 637. Whether the trial court has subject matter jurisdiction
is a question of law. Miranda, 133 S.W.3d at 226. The plaintiff has the burden to show
that jurisdiction exists by alleging facts that affirmatively demonstrate the trial court‟s
subject matter jurisdiction. Tex. Ass’n of Bus. v. Tex. Air Control Bd., 852 S.W.2d 440,
446 (Tex. 1993). Whether the plaintiff has alleged facts that affirmatively demonstrate
the trial court‟s subject matter jurisdiction is a question of law reviewed de novo.
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Miranda, 133 S.W.3d at 226. “Likewise, whether undisputed evidence of jurisdictional
facts establishes a trial court‟s jurisdiction is also a question of law.” Id. When a plea to
the jurisdiction challenges the pleadings, we must determine whether the pleader has
alleged facts that affirmatively demonstrate the trial court‟s jurisdiction to hear the case.
Id. The Court further stated:
However, if a plea to the jurisdiction challenges the existence of
jurisdictional facts, we consider relevant evidence submitted by the parties
when necessary to resolve the jurisdictional issues raised, as the trial court
is required to do. . . . If the evidence creates a fact question regarding the
jurisdictional issue, then the trial court cannot grant the plea to the
jurisdiction, and the fact issue will be resolved by the fact finder. However,
if the relevant evidence is undisputed or fails to raise a fact question on the
jurisdictional issue, the trial court rules on the plea to the jurisdiction as a
matter of law.
Id. at 227-28. When considering evidence submitted in support of the plea to the
jurisdiction, “we take as true all evidence favorable to the nonmovant” and “indulge
every reasonable inference and resolve any doubts in the nonmovant‟s favor.” Id. at 228;
see also City of Waco v. Kirwan, 298 S.W.3d 618, 622 (Tex. 2009).
C. Analysis
In its plea to the jurisdiction, the City argued that the trial court lacked subject matter
jurisdiction over the suit because Sariah was not in the paid service of the City or acting
within the scope of her employment at the time of the accident. See Tex. Civ. Prac. &
Rem. Code Ann. §§ 101.001(2), (3)(B), 101.021. As evidence in support of its plea to
the jurisdiction the City attached an affidavit by Sariah. In her affidavit, Sariah stated
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that she was an employee of the City and was paid on an hourly basis. Sariah averred
that she was not paid for the time she was “„off the clock[.]‟” Sariah‟s affidavit further
provided:
As a City employee in the Streets and Drainage Department, we are
not paid for the time we are off work for lunch. We have forty-five (45)
minutes for lunch. If we drive a City vehicle, we cannot take it out of our
work area for lunch but, otherwise, we are free to go where we want during
lunchtime.
. . . On [the day of the accident] I was assigned, along with my
helper . . . to patch potholes in the street close to the intersection of Weiss
and Magnolia. At approximately 12:00 p.m., my helper and I stopped
working, put up our tools and took off work for lunch. We left the area of
Weiss and Magnolia, traveled in the City‟s vehicle to the Church‟s Chicken
at the corner of Magnolia and Glasshouse where [my helper] purchased
items for lunch. We then left Church‟s and headed to my house, which is
in the City further north of Church‟s, but still in our work area. My lunch
was at my house and [my helper] and I were going to both eat lunch at my
house. Once lunch was over, we planned to return to work for the City.
Sariah stated that the accident occurred after they left Church‟s Chicken, while en route
to her house to eat lunch. Sariah further stated:
At the time of the accident in question, I was not in the paid service
of the City and I was not performing any duties or tasks for the City. I was
simply driving to my home for my own benefit of eating lunch. I could
have brought my lunch that day if I had chosen to do so and not left the
work site.
In his response to the City‟s plea to the jurisdiction, Stewart argued that Sariah
was in the scope of her employment at the time of the accident. The only evidence
provided by Stewart in response to the plea was a copy of the City‟s plea to the
jurisdiction, which included Sariah‟s affidavit. Stewart did not present any evidence
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disputing or contradicting the statements made in Sariah‟s affidavit.1 Citing Texas
common law, Stewart argued that because Sariah was driving a City-owned vehicle at the
time of the accident, a presumption arose that she was acting within the scope of her
employment. Additionally, Stewart argued, based on the statements made in Sariah‟s
affidavit, that at the time of the accident Sariah was “under the direction of the City”
regarding where she was allowed to take the vehicle, and she was driving the vehicle
“within the designated work area assigned to her[.]” Based on the foregoing, Stewart
asserted that a fact issue existed regarding whether Sariah was within the scope of her
employment at the time of the accident.
Under Texas common law,
To impose liability on an employer for the tort of his employee under the
doctrine of respondeat superior, the employee‟s act must fall within the
scope of the employee‟s general authority and must be in furtherance of the
employer‟s business and for the accomplishment of the object for which the
employee was hired.
1
Stewart attached a copy of Sariah‟s deposition to his brief and cited and quoted
portions of the deposition testimony in support of his appellate argument before this
Court. However, Sariah‟s deposition was not made part of the record in the trial court,
and thus, is not in the record before us on appeal. We cannot consider documents
attached to briefs that are not included in the clerk‟s record or the reporter‟s record. See
Tex. R. App. P. 34.1; Fox v. Wardy, 234 S.W.3d 30, 33 (Tex. App.—El Paso 2007, pet.
dism‟d w.o.j.); Nguyen v. Intertex, Inc., 93 S.W.3d 288, 293 (Tex. App.—Houston [14th
Dist.] 2002, no pet.) (“The attachment of documents as exhibits or appendices to briefs is
not formal inclusion in the record on appeal and, therefore, the documents cannot be
considered.”); Till v. Thomas, 10 S.W.3d 730, 733 (Tex. App.—Houston [1st Dist.] 1999,
no pet.) (“We cannot consider documents attached to an appellate brief that do not appear
in the record.”).
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Wilson v. H.E. Butt Grocery Co., 758 S.W.2d 904, 906 (Tex. App.—Corpus Christi 1988,
no writ) (italics omitted) (citing Robertson Tank Lines, Inc. v. Van Cleave, 468 S.W.2d
354, 357 (Tex. 1971)). The Tort Claims Act defines “scope of employment” as “the
performance for a governmental unit of the duties of an employee‟s office or employment
and includes being in or about the performance of a task lawfully assigned to an
employee by competent authority.” Tex. Civ. Prac. & Rem. Code Ann. § 101.001(5).
In determining whether an employee was acting within the scope of his
employment, courts have considered whether the employer had “the right and power to
direct and control the [employee] in the performance of the causal act or omission at the
very instance of its occurrence.” Wilson, 758 S.W.2d at 907. In this vein, Texas courts
have concluded that when an “employer neither requires any particular means of travel
nor directs the employee to take a particular route, the employee is not engaged in the
furtherance of [his employer‟s] business.” Id. Stewart correctly argues, under Texas
common law, when it is proved that a vehicle involved in an accident is owned by the
defendant and the driver was an employee of the defendant, “a presumption arises that
the driver was acting within the scope of his employment when the accident occurred.”
Robertson Tank Lines, 468 S.W.2d at 357. However, the presumption only prevails when
it is unrefuted. See id. Where there is evidence that the driver was on a personal errand,
or otherwise not in the furtherance of his employer‟s business, ownership of the vehicle
and the fact that the driver was an employee of the defendant are insufficient to raise a
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fact issue regarding scope of employment. Id. at 358. To the extent the Texas common
law framework applies here, we find the presumption that Sariah was within the scope of
her employment at the time of the accident rebutted by her affidavit. Once the
presumption is rebutted, the burden is on the plaintiff to produce other evidence that the
driver was within the scope of her employment. See id.; J & C Drilling Co. v. Salaiz, 866
S.W.2d 632, 637 (Tex. App.—San Antonio 1993, no writ). Unaided by the presumption
or other affirmative evidence, the fact that the driver was driving her employer‟s vehicle
at the time of the accident does not constitute probative evidence that the employee was
acting within the scope of her employment and is insufficient to raise a fact issue. See
Robertson, 468 S.W.2d at 358. We are unpersuaded by Stewart‟s argument that Sariah
was under the direction and control of the City at the time of the accident because she
was driving the City vehicle within her designated work area, in accordance with her
employer‟s policy. Contrary to Stewart‟s contention, this fact does not constitute
probative evidence that Sariah was acting in furtherance of her employer‟s business or
that she was “in or about the performance of a task lawfully assigned” to her by the City.
See id.; see also Tex. Civ. Prac. & Rem. Code Ann. § 101.001(5). The evidence
established that at the time of the accident Sariah was driving to her house to eat lunch.
Going home for lunch was an action neither assigned, dictated nor directed by her
employer.
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It is well settled under Texas law, “[w]hen an employee deviates from the
performance of his duties as an employee for his own, personal purposes, his employer is
neither responsible nor liable on a respondeat superior theory for what occurs during that
deviation.” Drooker v. Saeilo Motors, 756 S.W.2d 394, 397 (Tex. App.—Houston [1st
Dist.] 1988, writ denied); see also Hudiburgh v. Palvic, 274 S.W.2d 94, 100-101 (Tex.
Civ. App.—Beaumont 1955, writ ref‟d n.r.e.). Moreover, other courts applying Texas
common law have held that an employee driving a company vehicle while going to or
from lunch or dinner break was not within the scope of his employment. See Gant v.
Dumas Glass & Mirror, Inc., 935 S.W.2d 202, 212-13 (Tex. App.—Amarillo 1996, no
writ) (holding that employee was not within the scope of employment when the accident
occurred while he was in his company vehicle en route back to work after “attending his
personal business of eating lunch”); Drooker, 756 S.W.2d at 397-98 (finding no evidence
that employee was acting within scope of his employment where employee left work in
employer‟s vehicle with two co-workers for a dinner break, intended to return to work
after the meal, and was en route to dinner when the accident occurred); see also J & C
Drilling Co., 866 S.W.2d at 637-38 (holding that plaintiff failed to raise a fact issue
regarding whether driver was within the scope of his employment where driver, who was
in his company vehicle and was on 24-hour call, got into an accident returning to his rig
site, after having left the site to have dinner in another town); see also Robertson, 468
S.W.2d at 358-59 (discussing cases holding that presumption of course and scope is
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rebutted where the evidence establishes that the driver turned aside, even briefly, for a
personal errand); cf. Bell v. VPSI, Inc., 205 S.W.3d 706, 718 (Tex. App.—Fort Worth
2006, no pet.) (recognizing that “[e]ven when driving a vehicle furnished by the
employer, the employee is generally not in the course and scope while going to and
returning from work unless he is directed by his employer or furthering the employer‟s
business.”).
Generally, whether an employee is acting within the scope of her employment at a
given time depends on whether the act from which the injury arose was in furtherance of
her employer‟s business and for the accomplishment of the objective for which the
employee was employed. City of Balch Springs v. Austin, 315 S.W.3d 219, 225 (Tex.
App.—Dallas 2010, no pet.) (applying the Texas Tort Claims Act); see also Terrell ex
rel. Estate of Terrell v. Sisk, 111 S.W.3d 274, 277-78 (Tex. App.—Texarkana 2003, no
pet.) (applying the Texas Tort Claims Act); compare Harris Cnty. v. Gibbons, 150
S.W.3d 877, 882-84 (Tex. App.—Houston [14th Dist.] 2004, no pet.) (applying the Texas
Tort Claims Act). Sariah‟s uncontroverted affidavit established that at the time of the
accident she was not performing a task or duty assigned to her by the City, and she was
not paid during her lunch break. Moreover, Sariah‟s affidavit established that she was
only required to stay within her work area if she went to lunch in the City vehicle;
otherwise she was free to go wherever she wanted during her 45-minute lunch break.
The City presented evidence that Sariah was not acting within the scope of her
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employment at the time of the accident. Stewart failed to present evidence that Sariah
was acting either in furtherance of her employer‟s business at the time of the accident or
otherwise within the scope of her employment.
D. Conclusion
Stewart‟s claim against the City is barred by the doctrine of governmental
immunity.2 See City of Balch Springs, 315 S.W.3d at 227; cf. Drooker, 756 S.W.2d at
2
In its order denying the City‟s plea to the jurisdiction, the trial court concluded
that the City could be held liable for Sariah‟s actions even if Sariah was not acting within
the scope of her employment. In support of this conclusion, the trial court relied on
section 317 of the Restatement of Torts. Section 317 provides:
A master is under a duty to exercise reasonable care so to control his
servant while acting outside the scope of his employment as to prevent him
from intentionally harming others or from so conducting himself as to
create an unreasonable risk of bodily harm to them, if
(a) the servant
(i) is upon the premises in possession of the master . . ., or
(ii) is using a chattel of the master, and
(b) the master
(i) knows or has reason to know that he has the ability to control his
servant, and
(ii) knows or should know of the necessity and opportunity for
exercising such control.
RESTATEMENT (SECOND) OF TORTS § 317 (1965).
Stewart has not presented evidence that raises a fact issue with regard to the application
of section 317. We find section 317 inapplicable to the present case. Additionally, we
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397-98. We sustain issue one. We reverse the order of the trial court denying the City‟s
plea to the jurisdiction and dismiss the case for lack of jurisdiction.
REVERSED AND DISMISSED.
___________________________
CHARLES KREGER
Justice
Submitted on October 10, 2012
Opinion Delivered November 1, 2012
Before McKeithen, C.J., Kreger and Horton, JJ.
are not persuaded that the intent of the Tort Claims Act to provide an express, limited
waiver of sovereign immunity may be undercut by the Restatement of Torts. We also
find the workers‟ compensation cases cited by the parties in their briefs before this Court
inapplicable to the present case. We find significant that the workers‟ compensation
statute was intended to protect injured workers and involves a liberal construction in
favor of injured workers; whereas, the doctrine of governmental immunity and the Tort
Claims Act are based on policy considerations aimed at protecting governmental entities.
In the absence of the State‟s consent to suit, the trial court lacks jurisdiction and must
dismiss the case. See Terrell, 111 S.W.3d at 276.
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