Texas A&M University, Dave Parrott, and BG Joe Ramirez v. Gustavo Carapia , 2015 Tex. App. LEXIS 5496 ( 2015 )


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  •                                      IN THE
    TENTH COURT OF APPEALS
    No. 10-14-00280-CV
    TEXAS A&M UNIVERSITY, DAVE PARROTT,
    AND BRIGADIER GENERAL JOE RAMIREZ,
    Appellants
    v.
    GUSTAVO CARAPIA,
    Appellee
    From the 272nd District Court
    Brazos County, Texas
    Trial Court No. 14-002220-CV-272
    OPINION
    Gustavo Carapia is a student at Texas A&M University. He sued the University
    and University officials Dave Parrott and Brigadier General Joe Ramirez alleging a
    violation of due process and requested a temporary injunction. We collectively refer to
    the University and the officials as “TAMU.” TAMU filed a plea to the jurisdiction. The
    trial court denied the plea to the jurisdiction and granted a temporary injunction. 1
    1The hearing on the plea to the jurisdiction took place over the course of two days. On the second day
    and less than an hour before the scheduled hearing, Carapia amended his petition to include the
    Because the trial court erred in both determinations, the trial court’s orders are reversed
    and judgment is rendered that Carapia’s suit is dismissed for want of jurisdiction.
    BACKGROUND
    A disciplinary procedure was instituted against Carapia during his junior year at
    the University. After notice to Carapia and his attendance at an investigation meeting,
    a disciplinary “Information Session,” and a disciplinary hearing, Carapia was placed on
    conduct probation from the date of the disciplinary decision until his graduation from
    the University. He was also immediately suspended from the Corps of Cadets until
    December 14, 2014. Beginning December 15, 2014 and extending through May 15, 2015,
    Carapia was placed on Corps conduct probation.
    SOVEREIGN IMMUNITY
    In its first issue on appeal, TAMU contends that Carapia’s due process claim is
    barred by sovereign immunity. Specifically, TAMU argues that although an ultra vires
    claim is an exception to sovereign immunity, Carapia did not properly plead that type
    of claim against the University officials and cannot plead that type of claim against the
    University itself.
    Ultra Vires
    Generally, sovereign immunity deprives a trial court of jurisdiction over a
    University officials. The parties then argued the plea to the jurisdiction as if it was a plea by both the
    University and the officials. No one argues on appeal that the plea did not include the officials added by
    the amended petition.
    Texas A&M University v. Carapia                                                                    Page 2
    lawsuit in which a party has sued the State or a state agency unless the Legislature has
    consented to suit. Tex. Parks & Wildlife Dep't v. Sawyer Trust, 
    354 S.W.3d 384
    , 388 (Tex.
    2011). A suit against a government employee in his official capacity is a suit against his
    government employer, and an employee sued in his official capacity has the same
    governmental immunity, derivatively, as his government employer. Franka v. Velasquez,
    
    332 S.W.3d 367
    , 382-83 (Tex. 2011).
    Suits to require state officials to comply with statutory or constitutional
    provisions are not prohibited by sovereign immunity. City of El Paso v. Heinrich, 
    284 S.W.3d 366
    , 372 (Tex. 2009). To fall within this “ultra vires” exception, a suit must not
    complain of a government officer's exercise of discretion, but rather must allege, and
    ultimately prove, that the officer acted without legal authority or failed to perform a
    purely ministerial act. 
    Id. Ultra vires
    suits do not attempt to exert control over the
    State—they attempt to reassert the control of the State. 
    Id. Further, these
    types of suits
    cannot be brought against the State, which retains immunity, but must be brought
    against the State actors in their official capacity. 
    Id. at 373.
    Carapia argues that he did not make an ultra vires claim. That is, he did not bring
    a suit to require TAMU to comply with a statutory or constitutional provision.
    However, in his first amended petition, along with his claims that the University and
    the named officials violated his right to due course of law under the Texas Constitution,
    his claims for equitable relief in the form of an injunction because of that violation, and
    Texas A&M University v. Carapia                                                      Page 3
    his request for a declaration that the Student Conduct Code is unconstitutional, Carapia
    also asked that he be given due process by participating in a new disciplinary hearing
    in which Carapia could have counsel represent him. That request is a claim to require
    TAMU to comply with a constitutional provision, the due course of law provision, and
    thus, is an ultra vires claim.
    Because Carapia raises an ultra vires claim, the University, as the State agency, is
    immune from such a suit. City of El Paso v. Heinrich, 
    284 S.W.3d 366
    , 373 (Tex. 2009).
    Accordingly, the trial court erred in denying the plea to the jurisdiction as to the
    University.
    Due Process
    Our review does not end here, however. TAMU also contends that immunity
    was not waived because Carapia did not plead a viable due process claim. Specifically,
    TAMU argues Carapia could not demonstrate a cognizable property or liberty interest
    and even if he could, he received all the process he was due.
    Suits for "equitable remedies for violation of constitutional rights are not
    prohibited" by immunity. City of Elsa v. M.A.L., 
    226 S.W.3d 390
    , 392 (Tex. 2007) (quoting
    City of Beaumont v. Bouillion, 
    896 S.W.2d 143
    , 149 (Tex. 1995). Thus, "suits for injunctive
    relief" may be maintained against governmental entities to remedy violations of the
    Texas Constitution.      
    Id. However, if
    the plaintiff fails to plead a viable claim, a
    governmental defendant remains immune from a suit for alleged constitutional
    Texas A&M University v. Carapia                                                      Page 4
    violations. See Andrade v. NAACP of Austin, 
    345 S.W.3d 1
    , 11 (Tex. 2011) (considering
    substance of equal protection claim against Secretary of State in reviewing ruling on
    plea to jurisdiction and explaining that Secretary retained immunity from suit unless
    plaintiffs pleaded "viable claim"); City of Paris v. Abbott, 
    360 S.W.3d 567
    , 583 (Tex.
    App.—Texarkana 2011, pet. denied) (noting that governmental defendant remains
    immune from suit absent plaintiff's pleading of viable claim).
    Carapia alleged in his first amended petition that TAMU violated his right to
    procedural due process under the due course of law guarantee of the Texas
    Constitution because he was not warned of his right to remain silent during the initial
    investigation of the misconduct and was denied the opportunity to be heard when he
    was denied counsel during the disciplinary hearing.2 See TEX. CONST. art. I, § 19.3
    While the Texas Constitution is textually different than the United States
    Constitution in that it refers to "due course" rather than "due process," those terms are
    regarded as without meaningful distinction. Univ. of Tex. Med. Sch. v. Than, 
    901 S.W.2d 926
    , 929 (Tex. 1995); Mellinger v. City of Houston, 
    68 Tex. 37
    , 
    3 S.W. 249
    , 252-53 (Tex.
    1887). As a result, in matters of procedural due process, we follow contemporary
    federal due process interpretations of procedural due process issues. 
    Id. A review
    of a
    2 Carapia argues in his brief that he was also not provided adequate notice. That ground was not raised
    in his first amended original petition. Thus, that argument is not properly before us. See Spring Branch
    I.S.D. v. Stamos, 
    695 S.W.2d 556
    , 559 (Tex. 1985).
    3“No citizen of this State shall be deprived of life, liberty, property, privileges or immunities, or in any
    manner disfranchised, except by the due course of the law of the land.”
    Texas A&M University v. Carapia                                                                      Page 5
    due course of law claim requires a two-part analysis: (1) whether the plaintiff has a
    liberty or property interest that is entitled to procedural due process protection; and (2)
    if so, what process is due. 
    Than, 901 S.W.2d at 929
    .
    TAMU argues that Carapia cannot demonstrate the existence of a cognizable
    property or liberty interest that is entitled to procedural due process protection.
    Carapia was suspended from participation in the Corps of Cadets. TAMU contends
    that Carapia’s suspension does not involve a constitutionally protected property or
    liberty interest because a student has no interest in participating in extracurricular
    activities, such as the Corps of Cadets.
    In 1985, the Texas Supreme Court noted federal courts had made it clear that the
    federal constitution's due process guarantees did not protect a student's interest in
    participating in extracurricular activities. Spring Branch I.S.D. v. Stamos, 
    695 S.W.2d 556
    ,
    561 (Tex. 1985). The Court then analyzed the Texas Constitution to determine whether
    its due process guarantees extended to a student's desire to participate in school-
    sponsored extracurricular activities.      It held the Texas Constitution did not.       
    Id. (“Nothing in
    either our state constitution or statutes entitles students to an absolute
    right to participation in extracurricular activities. We are in agreement, therefore, with
    the overwhelming majority of jurisdictions that students do not possess a
    constitutionally protected interest in their participation in extracurricular activities.”).
    The holding in Stamos has been validated by the Texas Supreme Court and extended to
    Texas A&M University v. Carapia                                                       Page 6
    college students. See NCAA v. Yeo, 
    171 S.W.3d 863
    , 865 (Tex. 2005) (“We conclude that
    the rule in Stamos applies….”); In re University Interscholastic League, 
    20 S.W.3d 690
    , 692
    (Tex. 2000) (per curiam); Eanes Indep. Sch. Dist. v. Logue, 
    712 S.W.2d 741
    , 742 (Tex. 1986).
    Carapia does not contest that the Corps of Cadets is an extracurricular activity at
    the University. He instead argues that TAMU’s reliance on the Texas Supreme Court’s
    opinion in Yeo, which extended the Stamos holding to college students, is misplaced
    because Yeo did not involve a disciplinary hearing. This makes no difference. It is the
    nature of the interest at stake that determines its due process protection; nothing else.
    See 
    Yeo, 171 S.W.3d at 869
    (citing Board of Regents of State Colleges v. Roth, 
    408 U.S. 564
    ,
    570-571, 
    33 L. Ed. 2d 548
    , 
    92 S. Ct. 2701
    (1972)). The nature of the interest at stake here is
    participation in extracurricular activities. It does not change because of a disciplinary
    hearing.    Thus, because there is no due process protection for participating in
    extracurricular activities, there is no due process protection at a disciplinary hearing
    which affects participation in extracurricular activities.
    Carapia further argues that because he faced possible expulsion when he was
    placed on conduct probation, he was entitled to due process. Courts have held a
    student has a property or liberty interest in receiving a primary/secondary, collegiate, or
    graduate education. See e.g. Goss v. Lopez, 
    419 U.S. 565
    , 574-575, 
    95 S. Ct. 729
    , 736 (1975)
    (primary/secondary—property and liberty); Dixon v. Alabama State Board of Education,
    
    294 F.2d 150
    , 157 (5th Cir. 1961) (collegiate—property); Univ. of Tex. Med. Sch. v. Than,
    Texas A&M University v. Carapia                                                         Page 7
    
    901 S.W.2d 926
    , 930 (Tex. 1995) (graduate—liberty).       These interests, however, are
    present when a student is prevented from receiving an education, such as when the
    student is suspended or expelled. See 
    id. Carapia was
    not prevented from receiving an
    education. He was neither expelled nor even suspended from the University. Instead,
    he was placed on conduct probation and suspended only from the Corps of Cadets
    which, we have held, is not a protected interest. Further, although he argues his pursuit
    of higher education may be affected in the future, there is no indication in the record
    that Carapia has been or will be prevented from pursuing a post-graduate degree
    because of being placed on conduct probation. Carapia has provided no authority, and
    we have found none, that holds there is a protected property or liberty interest in
    possibly being expelled from school and possibly not getting an education. It is Carapia’s
    burden to plead a viable due process claim, and he has not done so.
    Accordingly, Carapia cannot demonstrate the existence of a property or liberty
    interest that is entitled to procedural due process protection, and the University and the
    officials remain immune from suit.        Because we determine that Carapia cannot
    demonstrate the existence of a property or liberty interest that is entitled to procedural
    due process protection, we need not discuss whether or not Carapia received all the
    process that was due.
    The trial court should have granted TAMU’s plea to the jurisdiction as to
    Texas A&M University v. Carapia                                                     Page 8
    Carapia’s due process claim. TAMU’s first issue is sustained.4
    UNIFORM DECLARATORY JUDGMENTS ACT
    Carapia also stated a claim pursuant to the Uniform Declaratory Judgments Act
    (UDJA). In its second issue, TAMU contends sovereign immunity also bars this claim.
    The UDJA generally permits a person who is interested in a deed, or whose
    rights, status, or other legal relations are affected by a statute, to obtain a declaration of
    rights, status, or other legal relations thereunder.            TEX. CIV. PRAC. & REM. CODE §
    37.004(a) (West 2008); Tex. Parks & Wildlife Dep't v. Sawyer Trust, 
    354 S.W.3d 384
    , 388
    (Tex. 2011).     And while the UDJA waives immunity for certain claims, such as
    challenges to the validity of a municipal ordinance or statute, it is not a general waiver
    of immunity. TEX. CIV. PRAC. & REM. CODE ANN. § 37.006(b) (West 2008); Sawyer 
    Trust, 354 S.W.3d at 388
    ; City of El Paso v. Heinrich, 
    284 S.W.3d 366
    , 373 n.6 (Tex. 2009). In
    other words, there is no general right to sue a state agency for a declaration of rights.
    Sawyer 
    Trust, 354 S.W.3d at 388
    . Thus, immunity will bar even an otherwise proper
    UDJA suit that has the effect of establishing a right to relief against the State or its
    political subdivisions for which the Legislature has not waived immunity. 
    Id. Carapia challenged
    the constitutionality of the University’s Student Conduct
    4 TAMU asks us to render a judgment in its favor if we sustain its issues regarding its plea to the
    jurisdiction. A plaintiff deserves "a reasonable opportunity to amend" his petition unless the pleadings
    affirmatively negate the existence of jurisdiction. Tex. A&M Univ. Sys. v. Koseoglu, 
    233 S.W.3d 835
    , 839
    (Tex. 2007); Harris County v. Sykes, 
    136 S.W.3d 635
    , 639 (Tex. 2004). After reviewing Carapia’s first
    amended petition, we determine that the jurisdictional defects cannot be cured; and Carapia has not
    suggested any way that they could be. See 
    id. Accordingly, a
    remand would serve no purpose because
    there is no violation of due process claim that could be alleged under these facts. See 
    id. Texas A&M
    University v. Carapia                                                                  Page 9
    Code. He did not challenge the validity of a statute or ordinance as described by the
    UDJA. Further, he has presented nothing to suggest that the Student Conduct Code is
    the equivalent of a statute or ordinance so that immunity could be waived.                It is
    Carapia’s burden to plead facts establishing jurisdiction, and he has not done so. See
    Tex. Dep't of Parks & Wildlife v. Miranda, 
    133 S.W.3d 217
    , 226 (Tex. 2004). Accordingly,
    the trial court erred in denying TAMU’s plea to the jurisdiction as to Carapia’s
    declaratory judgment claim.
    TAMU’s second issue is sustained.
    TEMPORARY INJUNCTION
    To the extent the temporary injunction remains viable after our disposition of
    TAMU’s first issue, we discuss TAMU’s third issue. In that issue, TAMU contends the
    temporary injunction is void because it was not specific enough as required by Rule 683
    of the Texas Rules of Evidence and did not contain a bond fixed by the trial court as
    required by Rule 684 of the Texas Rules of Evidence.
    Rule 683 provides:
    Every order granting an injunction and every restraining order shall set
    forth the reasons for its issuance; shall be specific in terms; shall describe
    in reasonable detail and not by reference to the complaint or other
    document, the act or acts sought to be restrained….
    ***
    Every order granting a temporary injunction shall include an order setting
    the cause for trial on the merits with respect to the ultimate relief sought.
    TEX. R. CIV. P. 683.
    Texas A&M University v. Carapia                                                         Page 10
    The requirements of Rule 683 are mandatory and must be strictly followed.
    When a temporary injunction order does not adhere to the requirements of Rule 683 the
    injunction order is subject to being declared void and dissolved. Interfirst Bank San
    Felipe, N.A. v. Paz Constr. Co., 
    715 S.W.2d 640
    , 641 (Tex. 1986). In this case, the only
    document evidencing an intent to have a temporary injunction is the trial court’s order
    granting Carapia’s request for a temporary injunction signed on September 12, 2014.
    This order contains none of the requirements of Rule 683.       For these reasons, the
    temporary injunction is void.
    Further, Rule 684 is clear and specific in its requirements for the issuance of a
    temporary injunction:
    In the order granting any temporary restraining order or temporary
    injunction, the court shall fix the amount of security to be given by the
    applicant. Before the issuance of the temporary restraining order or
    temporary injunction the applicant shall execute and file with the clerk a
    bond to the adverse party, …
    TEX. R. CIV. P. 684.
    The provisions of Rule 684 are also mandatory, and an order of injunction issued
    without a bond is void. Ex parte Lesher, 
    651 S.W.2d 734
    , 736 (Tex. 1983). The intent of
    the Texas Supreme Court in promulgating Rule 684 was to require a bond payable to a
    party against whom a temporary restraining order or injunction is issued before the
    order may lawfully issue. 
    Id. Without such
    a bond the order is void. 
    Id. The order
    granting Carapia’s request for temporary injunction in this case does
    Texas A&M University v. Carapia                                                     Page 11
    not include a bond. Thus, for this additional reason, the temporary injunction is void.
    TAMU’s third issue is sustained.
    CONCLUSION
    Having sustained each of TAMU’s issues on appeal, we reverse the trial court’s
    Order Overruling Plea to Jurisdiction and its Order Granting Plaintiff’s Request for a
    Temporary Injunction. Because Carapia cannot amend his petition to bring his claim
    within a waiver of immunity, we render a judgment dismissing Carapia’s lawsuit for
    want of jurisdiction.
    TOM GRAY
    Chief Justice
    Before Chief Justice Gray,
    Justice Davis, and
    Justice Scoggins
    Reversed and rendered
    Opinion delivered and filed May 28, 2015
    [CV06]
    Texas A&M University v. Carapia                                                   Page 12