Texas Judiciary Online - HTML Opinion

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Opinion issued January = 25,=20 2007

In The

Court of=20 Appeals

For=20 The

First=20 District of Texas

NO. = 01-06-00178-CV

TEXAS = DEPARTMENT OF=20 PUBLIC SAFETY, Appellant

RHONDA = SUE STYRON,=20 Appellee

On = Appeal from=20 County Criminal Court at Law No. 3

Harris = County,=20 Texas

Trial = Court Cause=20 No. 1347318

O P I N = I O=20 N

Appellant, the Texas Department = of Public=20 Safety ("DPS"), challenges the county criminal court's reversal of = an=20 administrative order authorizing DPS to suspend the driver's = license of=20 appellee, Rhonda Sue Styron. The dispositive issue in this case is = whether=20 a county criminal court in Harris County has subject matter = jurisdiction=20 to review an administrative determination regarding the suspension = of a=20 driver's license by DPS. Because we conclude that a county = criminal court=20 in Harris County has no such subject matter jurisdiction, we = vacate the=20 order of the trial court reversing the suspension of Styron's = driver's=20 license and dismiss the case. = Background

Harris County Precinct 7 Deputy = Constable=20 K. Rector stopped Styron in her SUV on suspicion of driving while=20 intoxicated ("DWI") after the deputy saw Styron weaving within her = own=20 lane and weaving from lane to lane. Deputy Rector observed that = Styron was=20 confused and crying. She admitted to the deputy that she had been=20 drinking. Deputy Rector also observed that Styron had an odor of = alcohol=20 on her breath, her eyes were bloodshot, her speech was slurred, = and her=20 balance was unstable. Based on these observations, Deputy Rector = arrested=20 Styron for DWI.

Officer J.R. Roberts, of the = Houston=20 Police Department, provided Styron with the statutory warnings = required by=20 Transportation Code section 724.015.^{=20
(1)} Officer = Roberts=20 also requested Styron to submit a breath specimen, which she = refused.=20 Based on the refusal, Officer Roberts confiscated Styron's = driver's=20 license and gave Styron a notice of suspension of her driver's = license and=20 a temporary driving permit.^{=20
(2)} Styron = contested=20 the suspension and received an administrative hearing before an=20 administrative law judge ("ALJ"). At the conclusion of the = hearing, the=20 ALJ found that DPS was authorized to suspend Styron's license.^{=20
(3)}

Styron=20 sought judicial review of the ALJ's determination by filing a = "Petition of=20 Appeal from Driver's License Suspension," which was heard by = County=20 Criminal Court At Law No. 3 of Harris County.^{=20
(4)} At the hearing, the county criminal court orally = concluded=20 that the evidence presented at the administrative hearing did not = support=20 a finding by the ALJ that Deputy Rector had reasonable suspicion = to stop=20 Styron, a finding necessary to support the suspension.^{=20
(5)} The county criminal court signed an "Order Reversing = Suspension of Rhonda Styron's Driver's License" in which it = recited that=20 it reversed the ALJ's ruling and ordered that the "Order of = Suspension" be=20 reversed. DPS appealed the order.

Because it=20 is dispositive, we first determine whether County Criminal Court = at Law=20 No. 3 had subject matter jurisdiction to review the administrative = determination, which authorized the suspension of Styron's = driver's=20 license.

Subject Matter Jurisdiction of = the County=20 Criminal Court

Subject-matter=20 jurisdiction concerns a court's power to hear a particular type of = suit.=20 CSR Ltd. v. Link, 925 S.W.2d 591, 594 (Tex. 1996). = In its opening brief, DPS contended that = County=20 Criminal Court at Law No. 3 did not have subject matter = jurisdiction to=20 review the ALJ's determination. In its reply brief, DPS expressly=20 abandoned this position, asserting that it had come to conclude = that=20 county criminal courts in Harris County did in fact have subject = matter=20 jurisdiction over such matters.

Jurisdiction is a systemic = requirement=20 that is essential for a court to have authority to decide a=20 case,=20 which cannot be waived or conferred by consent, and which may be=20 considered at any time. Tex. Ass'n of Bus. v. Tex. Air Control = Bd., 852 S.W.2d 440, 443-44 (Tex. 1993). If a trial court lacked subject matter=20 jurisdiction, then an appellate court has jurisdiction only to set = the=20 judgment aside and dismiss the case. Juarez v. Tex. Ass'n of = Sporting=20 Officials El Paso Chapter, 172 S.W.3d 274, 278 (Tex. App.--El = Paso=20 2005, no pet.); see also Tex. R. App. P. 43.2(e). For = these=20 reasons, we must address whether County Criminal Court at Law No. = 3 had=20 subject matter jurisdiction to review the ALJ's determination, = despite=20 DPS's current position on this issue. See Univ. of Tex. Sw. = Med. Ctr.=20 v. Loutzenhiser, 140 S.W.3d 351, 358 (Tex. 2004) (recognizing = that "a=20 court is obliged to ascertain that subject matter jurisdiction = exists=20 regardless of whether the parties have questioned = it.").

Our jurisdictional analysis = begins with=20 Transportation Code section 524.041, which governs the procedure = by which=20 Styron sought judicial review of the ALJ's decision to sustain her = driver's license suspension. Section 524.041 provides, in relevant = part,=20 as follows:

Appeal From Administrative=20 Hearing

(a) A person whose driver's = license=20 suspension is sustained may appeal the decision by filing a = petition not=20 later than the 30th day after the date the administrative law = judge's=20 decision is final. The administrative law judge's final decision = is=20 immediately appealable without the requirement of a motion for = rehearing.=20

(b) A petition under Subsection = (a) must=20 be filed in a county court at law in the county in which = the=20 person was arrested or, if there is not a county court at law in = the=20 county, in the county court. . . .

Tex. Transp. Code Ann. =A7 = 524.041 (Vernon=20 1999) (emphasis added). Styron contends that County Criminal Court = at Law=20 No. 3 had subject matter jurisdiction because it is "a county = court at=20 law," as required by section 524.041(b).

Many Texas counties have county = courts at=20 law that have jurisdiction over both civil and criminal matters. = See=20 Tex. Gov't Code Ann. =A7 25.0003(a) (Vernon Supp. = 2006) = ("A statutory county court has = jurisdiction over=20 all causes and proceedings, civil and criminal, original and = appellate,=20 prescribed by law for county courts."). In contrast, Harris County = statutory county courts are divided into county civil courts at = law,=20 county criminal courts, and statutory probate courts. See = id.=20 =A7 25.1031 (Vernon 2004) (dividing Harris County = statutory county=20 courts into four county civil courts at law, fifteen county = criminal=20 courts, and four statutory probate courts).

Government Code section 25.1033 = defines=20 the jurisdiction of county criminal courts in Harris County. That = section=20 provides that Harris County criminal courts "ha[ve] the criminal=20 jurisdiction provided by law for county courts and appellate = jurisdiction=20 in appeals of criminal cases from justice courts and municipal = courts in=20 the county." See id. =A7 25.1033(a) (Vernon 2004). = No=20 statutory provision grants county criminal courts in Harris County = jurisdiction over civil matters; rather, qualifying civil matters = are=20 heard by one of the four county civil courts at law.^{=20
(6)} See id. =A7 25.1032(a) (Vernon 2004) = (defining=20 jurisdiction of Harris Country civil courts at law).

The=20 legislature has defined a driver's license suspension proceeding = as being=20 "a civil matter." See Tex. Transp. Code Ann. =A7 = 724.048(a)(1)=20 (Vernon 1999); see also Church v. State, 942 S.W.2d 139, = 140=20 (Tex. App.--Houston [1st Dist.] 1997, pet. ref'd) (holding that=20 determination of whether driver operated motor vehicle while = intoxicated=20 is criminal matter, while license suspension is civil matter, = requiring=20 only probable cause to believe driver was driving while = intoxicated).=20 Because the legislature has specifically made a driver's license=20 suspension proceeding a civil matter and has specifically limited = the=20 subject matter jurisdiction of Harris County criminal courts to = criminal=20 cases, it follows that the legislature intended petitions for = judicial=20 review of administrative determinations regarding driver's license = suspensions to be heard by one of the four civil county courts at = law in=20 Harris County. In its reply brief, DPS contends that county = criminal=20 courts in Harris County have jurisdiction to judicially review=20 administrative determinations regarding driver's license = suspensions. DPS=20 acknowledges that "[t]he plain language of Section 25.1033 appears = to=20 limit the Harris County Criminal Courts at Laws' jurisdiction to = hear only=20 criminal cases." Nonetheless, DPS contends that Harris County = criminal=20 courts have "jurisdiction to hear civil matters that are ancillary = to=20 their criminal jurisdiction," based on "the legislative history of = the=20 2001 amendment to Section 25.1033." DPS asserts that we should = apply the=20 statutory construction aids listed in section 311.023 of the Code=20 Construction Act to determine legislative intent regardless of = whether, as=20 here, the statutory language is unambiguous. See Tex. = Gov't Code=20 Ann. =A7 311.023 (Vernon 2005).

The Supreme=20 Court of Texas has recently spoken on this issue in Alex = Sheshunoff=20 Management Services, L.P. v. Johnson, No. 03-1050, 2006 WL = 2997287,=20 at *6 (Tex. Oct. 20, 2006). The Supreme Court opined that the = "enacted=20 language is what constitutes the law, and when a statute's words = are=20 unambiguous and yield a single inescapable interpretation, the = judge's=20 inquiry is at an end." Id. The court made clear that only = when=20 the "enacted language is nebulous" may a court "cautiously consult = legislative history to help divine legislative intent." = Id. The=20 court explained, "We say cautiously because while the Code = Construction=20 Act expressly authorizes courts to use a range of construction = aids,=20 including legislative history, Tex. Gov't Code =A7 311.023, = we are=20 mindful that over-reliance on secondary materials should be = avoided,=20 particularly where a statute's language is clear." Id. at = n.4.=20 The supreme court clarified, "If the text is unambiguous, we must = take the=20 Legislature at its word and not rummage around in legislative = minutiae."=20 Id. Because the text is unambiguous, we decline DPS's = invitation=20 to determine the legislative history of section 25.1033. See = id.=20 Rather, we are bound by the plain language of section 25.1033, = which=20 limits jurisdiction of Harris County criminal courts to criminal = matters.=20

If it had intended county = criminal courts=20 in Harris County to judicially review such administrative = determinations,=20 the legislature could have expressly given those courts concurrent = jurisdiction with the county civil courts at law over such = matters. This=20 is illustrated by Government Code section 25.0593, which defines = the=20 jurisdiction of county criminal courts in Dallas County. That = section=20 provides,

A county criminal court in = Dallas County=20 has the criminal jurisdiction, original and appellate, provided by = the=20 constitution and law for county courts and concurrent = jurisdiction=20 with county courts at law for Dallas County to hear appeals of the = suspension of driver's licenses and original proceedings = regarding=20 occupational driver's licenses.

Id. = =A7 25.0593(a) (Vernon=20 2004) (emphasis added).

We conclude that county = criminal courts=20 in Harris County do not have subject matter jurisdiction to = judicially=20 review administrative determinations regarding driver's license=20 suspensions. Accordingly, we hold that County Criminal Court at = Law No. 3=20 lacked the subject matter jurisdiction to determine whether the = ALJ=20 properly sustained DPS's suspension of Styron's driver's=20 license.

Conclusion

As mentioned, if a trial court = lacked=20 subject matter jurisdiction, as here, then an appellate court only = has=20 jurisdiction to set the judgment aside and dismiss the case. = See=20 Juarez, 172 S.W.3d at 278; see also Tex. R. App. P. = 43.2(e).=20 Therefore, we vacate the order of the trial court reversing the = suspension=20 of Styron's driver's license and dismiss the case. See = Tex. R.=20 App. P. 43.2(e).^{=20
(7)}

Laura Carter Higley

Justice

Panel consists of Justices = Nuchia,=20 Jennings, and Higley.=20

1. See Tex. Transp. Code Ann. =A7 = 724.015=20 (Vernon Supp. 2006).=20

2. See=20 id. =A7 724.032 (Vernon Supp. 2006); see also id. = =A7=20 724.035 (Vernon Supp. 2006) (requiring DPS to suspend person's = driver's=20 license if person refuses peace officer's request to submit to = taking of=20 breath specimen).=20

3. See id. =A7=A7 724.041, 724.043 = (Vernon Supp.=20 2006).=20

4. Styron filed the petition with the Harris = County=20 district clerk's office. See Tex. Gov't Code Ann. =A7 = 25.1033(l)=20 (Vernon 2004) ("The district clerk serves as clerk of a county = criminal=20 court at law."). The district clerk apparently assigned the cause = to the=20 same county criminal court to which the criminal DWI case against = Styron=20 had been assigned.=20

5. See=20 Tex. Transp. = Code Ann. =A7=A7=20 724.042.-.043 (Vernon Supp. 2006).=20

6. Probate matters are filed with one of = Harris=20 County's four probate courts. See Tex. Gov't Code Ann.=20 =A7 25.0003(e) (Vernon Supp. 2006) ("In a = county that=20 has a statutory probate court, a statutory probate court is the = only=20 county court created by statute with probate jurisdiction.").=20

7. In its second issue, DPS contended that = the county=20 criminal court erred by reversing the administrative determination = because=20 such determination was supported by substantial evidence. Having = held that=20 County Criminal Court at Law No. 3 had no subject matter = jurisdiction, we=20 do not reach DPS's second=20 issue.

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