Texas Judiciary Online - HTML Opinion

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Opinion issued August 2,=20 2007

In=20 The

Court of=20 Appeals

For=20 The

First=20 District of Texas

NO. = 01-07-00133-CV

CITY OF = PASADENA,=20 Appellant

CROUCH/KST=20 ENTERPRISES, LTD., ENVIRONMENTAL INFRASTRUCTURE GROUP, L.P., = KINSEL=20 INDUSTRIES, INC., AND TRAVELERS CASUALTY AND SURETY COMPANY OF = AMERICA,=20 Appellees

On = Appeal from the=20 151st District Court

Harris = County,=20 Texas

Trial = Court Cause=20 No. 2004-11908

MEMORANDUM=20 OPINION

This interlocutory appeal = arises from the=20 trial court's order denying the City of Pasadena's ("the City's") = plea to=20 the jurisdiction filed in response to a breach of contract suit. = In its=20 sole issue, the City contends that the trial court erred in = denying its=20 plea because the City had not waived its immunity from suit with = respect=20 to appellee, Crouch/KST Enterprises, Ltd. ("Crouch"). We reverse = the trial=20 court's order, as to Crouch's claims only, and we render judgment=20 dismissing Crouch's claims against the City for want of = jurisdiction.=20 Background

In the summer of 2000, the City = entered=20 into a contract ("the Prime Contract") with Kinsel Industries, = Inc.=20 ("Kinsel"), whereby Kinsel agreed to furnish the labor, materials, = and=20 equipment necessary for the City's construction of a wastewater = treatment=20 plant. Shortly thereafter, Kinsel entered into a subcontract = agreement=20 ("the Subcontract") with Crouch for the performance of certain = electrical=20 work related to the construction of the wastewater treatment = plant.=20 According to Crouch's pleadings, the Subcontract documents = consisted of=20 the agreement between Crouch and Kinsel, the Prime Contract, and = the=20 conditions of the Prime Contract. The City was not a party to the=20 Subcontract.

Crouch's pleadings further = allege that,=20 during the course of its performance under the Subcontract, it = encountered=20 numerous delays as a result of Kinsel's failure to properly = schedule the=20 other subcontractors working on the wastewater treatment plant. = Crouch=20 initiated the instant lawsuit seeking, in part, recovery of the = expenses=20 incurred as a result of the delay from Kinsel, its agent or = successor,=20 Environmental Infrastructure Group, L.P. ("EIG"), and its bonding = company,=20 Travelers Casualty Surety Company of America ("Travelers"). = Kinsel, in=20 turn, filed a motion for leave to designate the City as a = Responsible=20 Third Party, asserting that the unanticipated increase in the cost = suffered by it and its subcontractors was a result of the delay = caused by=20 the actions and omissions of the City. Thereafter, Crouch amended = its=20 pleadings to assert a breach of contract claim against the City;=20 specifically, Crouch argued that it was a third-party beneficiary = to the=20 Prime Contract and sought damages for the City's breach of that = contract.=20

The City = responded by=20 filing a plea to dismiss the suit for lack of jurisdiction on the = grounds=20 that neither Kinsel nor Crouch were able to establish a waiver of=20 governmental immunity for breach of contract claims under the = Local=20 Government Code. The trial court denied the City's plea, and the = City=20 filed this interlocutory appeal, complaining of the denial only as = to=20 Crouch's claims.

Plea to = the=20 Jurisdiction

In its sole issue, the City = argues that=20 the trial court erred in denying its plea to

the jurisdiction because the = City did not=20 waive its immunity from suit. Specifically, the City argues that = there was=20 no waiver of governmental immunity because (1) the statutory = waiver=20 provided for in section 271.152 of the Local Government Code = cannot be=20 invoked by a third-party beneficiary to a contract and, (2) even = if it=20 could be invoked by a third-party beneficiary, Crouch is not a = third-party=20 beneficiary as a matter of law.^{=20
(1)} We hold that, because Crouch is not a third-party=20 beneficiary to the Prime Contract, the trial court erred in = denying the=20 City's plea to the jurisdiction.

Standard of=20 Review

A plea to the=20 jurisdiction is a dilatory plea challenging a trial court's = authority to=20 determine the subject matter of the cause of action without = defeating the=20 merits of the case. City of Houston v. Northwood Mun. Util. = Dist. No.=20 1, 73 S.W.3d 304, 308 (Tex. App.--Houston [1st Dist.] 2001, = pet.=20 denied) (citing Bland Indep. Sch. Dist. v. Blue, 34 = S.W.3d 547,=20 554 (Tex. 2000)). While the underlying claims may form the context = in=20 which a plea to the jurisdiction is raised, the purpose of the = plea is not=20 to preview or delve into the merits of the case, but to establish = the=20 reason why the merits of the underlying claims should never be = reached.=20 Id. This does not mean that evidence cannot be offered on = a=20 dilatory plea; on the contrary, the issues raised by a dilatory = plea are=20 often such that they cannot be resolved without hearing evidence.=20 Bland Indep. Sch. Dist., 34 S.W.3d at 554. And, because a = court=20 must not act without determining that it has subject matter = jurisdiction=20 to do so, it should hear evidence as necessary to determine the = issue=20 before proceeding with the case. Id.

In a plea to the = jurisdiction,=20 "the pleader must allege facts that affirmatively demonstrate the = court's=20 jurisdiction to hear the cause." City of Houston v. = Rushing, 7=20 S.W.3d 909, 913 (Tex. App.--Houston [1st Dist.] 1999, pet. = denied). It is=20 proper for a trial court to dismiss claims over which it does not = have=20 subject matter jurisdiction but retain claims in the same case = over which=20 it has jurisdiction. Thomas v. Long, 207 S.W.3d 334, = 338-39 (Tex.=20 2006). That is, a trial court is not required to deny an otherwise = meritorious plea to the jurisdiction concerning some claims = because the=20 trial court has jurisdiction over other claims. Id. at = 339. A=20 trial court's ruling on a plea to the jurisdiction presents a = legal=20 question which is reviewed de novo. See Northwood, 73 = S.W.3d at=20 308.

Governmental Immunity = in Breach=20 of Contract Suits

In Texas, governmental immunity = has two=20 components: immunity from liability, which bars enforcement of a = judgment=20 against a governmental entity, and immunity from suit, which bars = suit=20 against the entity altogether. Tooke v. City of Mexia, = 197 S.W.3d=20 325, 332 (Tex. 2006). By entering into a contract, a governmental = entity=20 necessarily waives immunity from liability, voluntarily binding = itself=20 like any other party to the terms of the agreement, but it does = not waive=20 immunity from suit. Id. Texas courts consistently defer = to the=20 Legislature to waive sovereign immunity from suit because this = allows the=20 Legislature to protect its policymaking function. Id. = This is=20 particularly true in the context of contract claims, where = "legislative=20 control over sovereign immunity allows the Legislature to respond = to=20 changing conditions and revise existing agreements if doing so = would=20 benefit the public." Id. To ensure that legislative = control is=20 not lightly disturbed, a waiver of immunity must be "clear and=20 unambiguous." Id. at 332-33.

Section 271.152 of the Texas = Local=20 Government Code clearly and unambiguously waives local = governments'=20 immunity from suit for certain contractual claims and damages. = See=20 Tex. Loc. Gov't Code Ann. =A7 271.152 et seq. = (Vernon 2005).=20 Specifically, section 271.152 provides that:

[a] local governmental entity = that is=20 authorized by statute or the constitution to enter into a contract = and=20 that enters into a contract subject to this subchapter waives = sovereign=20 immunity to suit for the purpose of adjudicating a claim for = breach of the=20 contract, subject to the terms and conditions of this subchapter.=20

Id. In the instant = action=20 against the City for breach of the Prime Contract, the City, as a=20 municipality, is included within the statutory definition of a = "local=20 governmental entity," and the Prime Contract between the City and = Kinsel=20 is a "contract subject to this subchapter" because it is a = "written=20 contract stating the essential terms of the agreement for = providing goods=20 or services to [a] local governmental entity that [was] properly = executed=20 on behalf of the local governmental entity." See id. =A7=20 271.151(2), (3)(A). In addition, the delay damages sought by = Crouch=20 against the City are included within the statute's limited damages = provision. Id. =A7 271.153 (indicating that the total = amount of=20 money awarded against a local governmental entity in a breach of = contract=20 action may include "any amount owed as compensation for the = increased cost=20 to perform the work as a direct result of owner-caused delays . . = . .").=20 As previously stated, however, the City argues that section = 271.152 is=20 inapplicable here because the waiver of governmental immunity = provided=20 therein cannot be invoked by a third-party beneficiary. =

Assuming, without deciding, = that a=20 third-party beneficiary may invoke the waiver of governmental = immunity=20 under section 271.152, we determine whether Crouch is, as a matter = of law,=20 a third-party beneficiary to the Prime Contract. In so doing, we = are=20 constrained by the limits of our review of a plea to the = jurisdiction and=20 must construe Crouch's pleadings liberally in favor of = jurisdiction.=20 City of Alton v. Sharyland Water Supply Corp., 145 S.W.3d = 673,=20 682 (Tex. App.--Corpus Christi 2004, no pet.).

Crouch's pleadings allege that = it is a=20 third-party beneficiary to the Prime Contract because (1) the = Subcontract=20 incorporated the provisions of the Prime Contract and (2) the = Prime=20 Contract was intended to benefit Crouch. It is=20 well-established that the intention of the contracting parties is=20 controlling in determining whether a third party can enforce a = contract.=20 MCI Telecomms. Corp. v. Tex. Utils. Elec. Co., 995 S.W.2d = 647,=20 651 (Tex. 1999). We glean intent from what the parties said in = their=20 contract, not what they allegedly meant. Esquivel v. Murray = Guard,=20 Inc., 992 S.W.2d 536, 544 (Tex. App.--Houston [14th Dist.] = 1999, pet.=20 denied). The intention to confer a direct benefit on a third party = must be=20 clearly and fully spelled out in the four corners of the contract. = MCI=20 Telecomms., 995 S.W.2d at 651. Thus, we may not create a=20 third-party-beneficiary contract by implication. Id. For = these=20 reasons, there is generally a presumption against, not in favor = of,=20 third-party beneficiary agreements. Id. That is, it is = presumed=20 that the parties contracted for themselves unless it clearly = appears that=20 they intended a third party to benefit from the contract. Id.=20 Because of this presumption, third-party-beneficiary claims = will=20 generally be denied unless: (1) the obligation of the = bargain-giver is=20 fully spelled out, (2) it is unmistakable that a benefit to the = third=20 party was contemplated by the primary contracting parties, and (3) = the=20 primary parties contemplated that the third party would be vested = with the=20 right to sue for enforcement of the contract. Whitten v. = Vehicle=20 Removal Corp., 56 S.W.3d 293, 312 (Tex. App.--Dallas 2001, = pet.=20 denied). If there is any reasonable doubt as to the = intent of the=20 contracting parties to confer a direct benefit on the third party, = then=20 the third-party-beneficiary claim must fail. Id. =

Here, the Prime Contract = documents=20 consist of nearly 100 pages. Crouch asserts that the Prime = Contract's=20 provision guaranteeing that "[a]ll work performed for [Kinsel] by = a=20 Subcontractor or Supplier will be pursuant to an appropriate = agreement=20 between [Kinsel] and the Subcontractor or Supplier which = specifically=20 binds the Subcontractor or Supplier to the applicable terms and = conditions=20 of the Contract Documents for the benefit of [the City]" = demonstrates an=20 intent to confer third-party benefits to subcontractors like = Crouch. After=20 reviewing the record, however, we cannot conclude that the Prime = Contract=20 clearly and fully spells out an intent on behalf of the City and = Kinsel to=20 confer a direct benefit upon Crouch. See MCI Telecomms., = 995=20 S.W.2d at 651; Whitten, 56 S.W.3d at 311. Nowhere in the = contract=20 documents is it stated that the parties are contracting for the = benefit of=20 Crouch or any other subcontractor. In fact, the contract documents = expressly state the opposite. In section 6.9.1 of the section = titled=20 "General Conditions," the Prime Contract states that "[n]othing in = the=20 Contract documents shall [be] for the benefit of any = Subcontractor,=20 Supplier or other person or organization . . ., nor shall it = create any=20 obligation on the part of [the City] to pay or see to the payments = of any=20 moneys due any Subcontractor, Supplier or other person or = organization . .=20 . ." Because the Prime Contract does not clearly express the = intent of the=20 parties to confer any benefit on third parties, Crouch's=20 third-party-beneficiary claim necessarily fails. Absent = third-party=20 beneficiary status, Crouch cannot assert a claim for breach of the = Prime=20 Contract against the City and, thus, cannot invoke the waiver of=20 governmental immunity under section 271.152 even if the statute = permits it=20 to do so. Because Crouch cannot invoke the waiver of governmental=20 immunity, the trial court erred in denying the City's plea to the=20 jurisdiction.

Conclusion

For the = reasons stated=20 above, we reverse the trial court's order denying the City's plea = to the=20 jurisdiction, as to Crouch's claims only, and we render judgment = that=20 Crouch's claims against the City be dismissed for want of = jurisdiction.=20

George C. Hanks, Jr.

Justice

Panel consists of Justices = Hanks, Bland,=20 and Wilson^{=20
(2)}=20

Justice=20 Wilson, concurring without opinion

1. The City also=20 contends that Crouch's pleadings assert a claim for interference = with the=20 performance of a contract that cannot be brought under the waiver = provided=20 for in section 271.152, which applies only to breach of contract = claims.=20 In Crouch's third amended petition, the only cause of action = asserted=20 against the City is a breach of contract cause of action, which = Crouch=20 asserts as a third-party beneficiary. Pursuant to this cause of = action,=20 Crouch alleges that it incurred additional cost and expense in the = performance of its duties as a result of the City's interference = with the=20 performance of the Prime Contract. Crouch does not, however, = assert that=20 this interference is a separate cause of action, and, thus, we do = not=20 consider whether a claim for interference with the performance of = a=20 contract invokes the waiver of governmental immunity under section = 271.152.=20

2. The = Honorable Davie=20 L. Wilson, retired Justice, Court of Appeals, First District of = Texas at=20 Houston, sitting by assignment. See Tex. Gov't Code Ann. = =A7=20 74.003(h) (Vernon 2005).

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