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Affirmed and Opinion filed December 11,=20 2007.

 

In The

 

Fourteenth=20 Court of Appeals

____________

 

NO. 14-07-00163-CV

____________

 

ELISA=20 GRAVES, = Appellant

 

V.

 

KENNETH=20 MACK, IN HIS OFFICIAL CAPACITY AS CHIEF OF POLICE, AND THE CITY OF = GALVESTON, TEXAS, = Appellees

 

 

On Appeal from the = 122nd District Court

Galveston County,=20 Texas

Trial Court Cause = No. 06CV0526

 

 

O P I N I=20 O N

A former=20 police officer, who was on probation at the time of her = termination, sued=20 a city and its chief of police, alleging that they failed to = follow and=20 apply provisions of Chapter 614, Subchapter B of the Texas = Government Code=20 when terminating her employment.  This subchapter applies to = police=20 officers who are not covered by a civil service statute but = exempts=20 officers who are protected by a collective bargaining agreement = that meets=20 two requirements outlined in section 614.021(b).  The trial = court=20 granted summary judgment in favor of the city.  As a matter = of first=20 impression, the main issue on appeal is whether this subchapter = applies to=20 the city=3Ds=20 termination of the police officer.  Concluding that the trial = court=20 correctly determined that this subchapter does not apply, we = affirm the=20 trial court=3Ds summary=20 judgment.

I. Factual and Procedural=20 Background

Appellant/plaintiff=20 Elisa Graves appeals the summary judgment granted in favor of=20 appellees/defendants the City of Galveston and Kenneth Mack, in = his=20 official capacity as Chief of Police of the City of = Galveston.  The=20 dispute arises out of the City=3Ds=20 termination of Graves=3Ds=20 employment as a Galveston police officer while she was still in = the=20 probationary period of her employment.  The parties agree = that=20 Graves=3Ds=20 termination was based on a pattern of off-duty misconduct during = her=20 probationary period and an allegation of a specific incident of = off-duty=20 misconduct that occurred five days before her termination. =

Graves=20 asserts that prior to her termination, she was entitled to certain = procedural rights afforded to peace officers under sections = 614.022 and=20 614.023 of the Texas  Government Code.  These sections = provide=20 that the head of a police department must consider only a written, = signed=20 complaint against an officer and that the officer is entitled to = an=20 investigation and to receive a copy of the written complaint = before being=20 disciplined or terminated.

Under the=20 Fire and Police Employee Relations Act,[1]=20 the City and its police officers executed a collective bargaining=20 agreement.  This collective bargaining agreement was in = effect=20 throughout Graves=3Ds=20 employment from May 2, 2005 to October 25, 2005.  The City = also had=20 adopted the Fire Fighters=3D = and=20 Police Officers=3D = Civil=20 Service Act (hereinafter ACivil=20 Service Act@) which,=20 inter alia, provides for administrative procedures by which police = officers can appeal disciplinary actions.[2] =20 Article 28 of the collective bargaining agreement between the City = and its=20 police officers makes reference to the Civil Service Act = provisions for=20 appeals of disciplinary decisions.  The parties agree that = Graves was=20 not protected by the Civil Service Act at the time of her = termination=20 because she had not yet completed her probationary period.[3] =20 As a result, Graves was not entitled to the grievance or appeal = procedure=20 under the Civil Service Act following termination of her=20 employment.

Graves=20 filed this suit under the Texas Declaratory Judgments Act,[4]=20 seeking various declarations to the effect that Subchapter B of = Chapter=20 614 of the Texas Government Code (hereinafter ASubchapter=20 B@) applies=20 to her termination.  Both sides filed cross-motions for = summary=20 judgment as to whether Graves was entitled to the procedural = protections=20 of Subchapter B relating to investigation and discipline resulting = from a=20 complaint against an officer.  The City and Mack maintain = that=20 Subchapter B did not apply to Graves under the unambiguous = language of the=20 statute.  Moreover, the City and Mack maintain that=20 Graves=3Ds=20 employment rights, as a probationary peace officer, were defined = by the=20 collective bargaining agreement and Chapter 143 of the Texas Local = Government Code.  The trial court granted the = City=3Ds and=20 Mack=3Ds motion=20 for summary judgment and dismissed Graves=3Ds claims=20 with prejudice.

II. Issues = Presented

Graves presents two = issues=20 for review:

1.           = ;      =20 Did the trial court err by granting summary judgment in = favor of=20 the City and Mack and ruling that Subchapter B does not apply to = the=20 disciplinary proceedings of a probationary police officer in the = City of=20 Galveston Police Department?

2.           = ;      =20 Did the trial court err by failing to interpret and apply = the=20 procedural provisions of Subchapter B to a probationary police = officer in=20 the City of Galveston Police Department?

 

III. Standard of=20 Review

In=20 a traditional motion for summary judgment, if the = movant=3Ds motion and = summary-judgment=20 evidence facially establish its right to judgment as a matter of = law, the=20 burden shifts to the nonmovant to raise a genuine, material fact = issue=20 sufficient to defeat summary judgment.  M.D. Anderson = Hosp. &=20 Tumor Inst. v. Willrich, 28 S.W.3d 22, 23 (Tex. = 2000). = In our de=20 novo review of a trial court=3Ds summary=20 judgment, we consider all the evidence in the light most favorable = to the=20 nonmovant, crediting evidence favorable to the nonmovant if = reasonable=20 jurors could, and disregarding contrary evidence unless reasonable = jurors=20 could not.  Mack Trucks, Inc. v. Tamez, 206 S.W.3d = 572, 582=20 (Tex. 2006).  The evidence raises a genuine issue of fact if=20 reasonable and fair-minded jurors could differ in their = conclusions in=20 light of all of the summary-judgment evidence.  Goodyear = Tire=20 & Rubber Co. v. Mayes, No. 04-0993, CS.W.3dC,=20 C, 2007 WL=20 1713400, at *1B2 (Tex.=20 June 15, 2007).  When, as in this case, the order granting = summary=20 judgment does not specify the grounds upon which the trial court = relied,=20 we must affirm the summary judgment if any of the independent=20 summary-judgment grounds is meritorious.  FM Props. = Operating Co.=20 v. City of Austin, 22 S.W.3d 868, 872 (Tex. 2000).  =

IV.=20 Analysis

Did the trial court = err in=20 granting summary judgment in favor of the City and its Chief of = Police by=20 finding that Subchapter B does not apply to the proceedings by = which a=20 probationary police officer was terminated?

 

Graves, in=20 her first issue, maintains that the trial court erred in granting = summary=20 judgment in favor of the City and Mack by concluding that = Subchapter B did=20 not govern grievances stemming from investigations or disciplinary = matters=20 pertaining to the City=3Ds peace=20 officers.

Application=20 of Chapter 614 of the Texas Government Code

Chapter=20 614 of the Texas Government Code outlines general provisions = applicable to=20 peace officers and fire fighters employed by political = subdivisions within=20 the state.  See Tex.=20 Gov=3Dt=20 Code Ann. '' = 614.001,=20 et seq. (Vernon 2006).  Subchapter B provides rights = and=20 procedures regarding the investigation of complaints and = discipline of=20 employees.  Id. ''  614.021B.023=20 (providing administrative procedures by which certain employees = may appeal=20 disciplinary actions against them).  However, under section=20 614.021(b), these procedures and rights do not apply to certain = peace=20 officers and fire fighters:

[S]ubchapter [B] = does not=20 apply to a peace officer or fire fighter appointed or employed by = a=20 political subdivision that is covered by a meet and confer or = collective=20 bargaining agreement under Chapter 143 or 174, Local Government = Code, if=20 that agreement includes provisions relating to the investigation = of, and=20 disciplinary action resulting from, a complaint against a peace = officer or=20 fire fighter, as applicable.

 

Id. = ' 614.021(b).=20 Under section 614.021(b), when a collective bargaining agreement = exists=20 under Chapter 143 or 174 of the Texas Local Government Code[5]=20 and provisions in that agreement relate to the investigation of, = and=20 disciplinary action resulting from, a complaint against a peace = officer,=20 peace officers covered by the agreement are not covered by = subchapter=20 B.  See id.

 

 

Interpreting=20 the Second Requirement of Section 614.021(b)

 In=20 interpreting a statute, a court must determine and apply = legislative=20 intent.  American Home Prods. Corp. v. Clark, 38 = S.W.3d 92, 95=20 (Tex. 2000). =  If a=20 statute is unambiguous, a court should interpret the statute = according to=20 the plain meaning of the statute=3Ds words.=20  Fitzgerald v. Advanced Spine Fixation Sys., Inc., 996 = S.W.2d=20 864, 865 (Tex. 1999).  Legislative intent is gleaned from the = statute=20 as a whole, and statutes are interpreted to give effect to every = part of=20 the whole.  State ex rel. State Dep=3Dt of=20 Highways & Public Transp. v. Gonzalez, 82=20 S.W.3d 322, 327 (Tex. 2002);  Jones v. Fowler, 969 = S.W.2d 429,=20 432 (Tex. 1998).

The=20 parties agree that the collective bargaining agreement between the = City=20 and its officers exists under Chapter 174 of the Texas Local = Government=20 Code as recognized in Article 3(A) of the agreement.  = Therefore, the=20 first requirement of the exemption in section 614.021(b) is = met. =20 However, the parties disagree as to whether, under the unambiguous = language of the statute, the agreement=3Ds=20 provisions  meet the second requirement that the provisions = relate to=20 the investigation of, and disciplinary action resulting from, a = complaint=20 against a peace officer.  Tex. Gov=3Dt=20 Code Ann. ' = 614.021(b).

Under the=20 second requirement, to be exempt from Subchapter B coverage, = provisions=20 within a collective bargaining agreement must relate to the = investigation=20 of, and disciplinary action resulting from, a complaint against = the peace=20 officer.  Id.  The parties have not cited, and = this court=20 has not found, any cases interpreting this language from section=20 614.021(b) of the Government Code.  One issue is whether, to = fall=20 under the second requirement, the agreement must provide = procedures for=20 investigation and disciplinary action.

The United=20 States Supreme Court and the Texas Supreme Court have determined = that the=20 ordinary meaning of Arelating=20 to@ = is=20 Ahaving a=20 connection with or reference to@ = and that=20 this is a broad term.  See Metro. Life Ins. Co. = v. =20 Massachusetts, 471 U.S. 724, 739, 105 S. Ct. 2380, = 2388B89, 85=20 L.Ed.2d 728 (1985); Cathey v. Metro. Life Ins. Co., 805 = S.W.2d 387,=20 389B90 (Tex.=20 1991).  We conclude that, under the plain and ordinary = meaning of=20 Arelating=20 to,@ = the=20 agreement in question need only include provisions having a = connection=20 with or  reference to the investigation of, and disciplinary = action=20 resulting from, a complaint against peace officers or fire = fighters, to=20 satisfy the second requirement of section 612.021(b). See = Metro.=20 Life Ins. Co., 471 U.S. at 739, 105 S. Ct. at 2388B89;=20 Cathey, 805 S.W.2d at 389B90. The=20 agreement need not provide or set forth procedures for = investigation and=20 disciplinary action.

The=20 Collective Bargaining Agreement and Applicable=20 Provisions

Article 33=20 of the City=3Ds=20 collective bargaining agreement contains provisions relating to = both the=20 investigation of, and disciplinary action resulting from, = complaints=20 against police officers.  Additionally, Article 28 relates to = discipline within the plain meaning of the phrase.  We = conclude that=20 the agreement=3Ds=20 provisions relate to both investigation and discipline.  As a = result,=20 these provisions satisfy the second requirement of section = 614.021(b),=20 which exempts the City from subchapter B.

Article 33=20 sets forth a APolice=20 Officer Bill of Rights.@ = This Bill=20 of Rights has a connection with and refers to the investigation of = a=20 complaint against a peace officer.  Therefore, this = article=20 sufficiently relates to investigation by incorporating detailed = procedures=20 to be followed during an investigation.  See Metro. = Life=20 Ins. Co., 471 U.S. at 739, 105 S. Ct. at 2388B89;=20 Cathey, 805 S.W.2d at 389B90. =20 Although Graves argues that Article 33 applies only to = interrogation or=20 polygraph exams, the contractual language shows that Article 33 = provides=20 detailed procedures that apply to a police officer Abeing=20 questioned by the City as an object of an investigation which a = reasonable=20 person could believe will lead to discharge or criminal=20 prosecution.@ =20 Additionally, Article 33(B) provides that Article 33 shall not = infringe=20 upon an employer=3Ds=20 Aright and=20 power to fully investigate matters it deems = appropriate.@ =20 This provision refers to investigation of a complaint against a = peace=20 officer.

Moreover,=20 Article 33(C) provides that Article 33 shall not infringe upon an=20 employer=3Ds=20 Aright and=20 power to discipline employees.@ =20 Although the article does not incorporate detailed procedures with = respect=20 to discipline, under the plain meaning of the phrase Arelates=20 to,@ = the=20 provision has a connection with and refers to disciplinary action=20 resulting from a complaint against a police officer.  = See=20 Metro. Life Ins. Co., 471 U.S. at 739, 105 S. Ct. at=20 2388B89;=20 Cathey, 805 S.W.2d at 389B90. =20 Because Article 33 of the agreement relates to both investigation = and=20 discipline, the City is exempt from Subchapter B under section=20 614.021(b).

In=20 addition, Article 28 of the collective bargaining agreement also = relates=20 to disciplinary matters.  Article 28 states that A[d]isciplinary=20 matters shall not be subject to any of the terms of this = Agreement. =20 Any appeals of disciplinary decisions of the City shall comply = with the=20 requirements of the Texas Fire Fighters=3D = and=20 Police Officers=3D = Civil=20 Service Act, Chapter 143, Local Government Code.@ =20 Graves contends that under Article 28, no provisions within the = agreement=20 govern discipline and that Article 28 adopts Chapter 143 for = appeals=20 only.  Graves argues that the first sentence of Article 28 = negates=20 application of the agreement and its provisions to any = disciplinary=20 matters such that the agreement no longer relates to = discipline. =20

In Article=20 28, the parties appear to be saying that disciplinary matters = shall be=20 handled under the procedures of the Civil Service Act rather than = under=20 procedures set forth in the collective bargaining agreement.  = Nonetheless, presuming without deciding that Graves=3Ds=20 interpretation of Article 28 is correct, this article would adopt = appeals=20 procedures regarding disciplinary decisions and therefore would = relate to=20 discipline.[6] =20 See Metro. Life Ins. Co., 471 U.S. at 739, 105 S. = Ct. at=20 2388B89;=20 Cathey, 805 S.W.2d at 389B90. =20

Under the=20 unambiguous meaning of Articles 28 and 33, we conclude that the = collective=20 bargaining agreement meets the second requirement of section = 614.021(b),=20 such that the City is exempt from subchapter B.

 

 

V.  Conclusion

 The=20 City=3Ds=20 collective bargaining agreement meets the two requirements of = section=20 614.021(b), which exempts such political subdivisions by virtue = of: (1)=20 their execution of a collective bargaining agreement pursuant to = Chapter=20 174 of the Texas Local Government Code and (2) their inclusion in = the=20 agreement of provisions relating to the investigation of, and = disciplinary=20 action resulting from, a complaint against a peace officer or fire = fighter.  Graves, as a probationary City employee, is not = entitled to=20 procedures in Subchapter B because the City is exempt from its = coverage.=20  See Tex.=20 Gov=3Dt=20 Code Ann. ' = 614.021(b).  Under the unambiguous language of the relevant = statutes=20 and the collective bargaining agreement, Subchapter B does not = apply to=20 the City as a matter of law.  Because this subchapter does = not apply=20 to the City, the trial court correctly granted the motion for = summary=20 judgment filed by Mack and the City.  Accordingly, we = overrule=20 Graves=3Ds first=20 and second issues and affirm the trial court=3Ds=20 judgment.  

 

 

 

 

/s/     =20 Kem Thompson Frost

Justice

 

 

Judgment=20 rendered and Opinion filed December 11, 2007.

Panel=20 consists of Chief Justice Hedges and Justices Frost and=20 Guzman.


[1]  Tex. Local = Gov=3Dt Code = Ann. '' 174.001,=20 et seq. (Vernon 2006) (identifying, among other things, the = right=20 of police officers and fire fighters to organize for collective=20 bargaining).

[2]  Id. '' 143.001,=20 et seq. (Vernon 1999 & Vernon Supp = 2007).

[3]  See id. ' 143.027(a) (identifying that a = probationary period=20 for a new police officer, fire fighter, or academy trainee lasts = one=20 year).  Upon completion of the probationary period, the = employee=20 gains full civil service protection.  Id. ' 143.027(d); see Jones v. Ojeda, = 21 S.W.3d=20 569, 571 (Tex. App.CSan Antonio 2000, pet. denied) = (AThe Civil Service Act was designed to = protect=20 tenured employees.@).

[4]  See Tex. Civ. Prac. & Rem. = Code=20 Ann. '' 37.001, et = seq.=20 (Vernon = 1997).

[5]  See supra nn.1, 2 = (explaining that=20 the Fire and Police Employee Relations Act, Chapter 174, and the = Civil=20 Service Act, Chapter 143, of the Texas Local Government Code = provide=20 rights to police officers).  In this case, the parties agree = that the=20 City has adopted both acts.  The collective bargaining = agreement is=20 executed by the City and its police officers under the Fire and = Police=20 Employee Relations Act and makes reference to the Civil Service = Act=20 appeals procedures in Article 28 of the agreement. =

[6]  Indeed, even if Article 28 meant = that the=20 collective bargaining agreement did not apply to disciplinary = matters,=20 this article still would have a connection with and refer to = disciplinary=20 = actions.

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