JANE BLAND, Justice.
After a car wreck, Gloria Esparza sued the City of Houston, alleging that its employee's negligence was the cause. She sued the employee, too, but the employee was dismissed from the suit under the Texas Tort Claims Act's election-of-remedies provision. The trial court denied the City's plea to the jurisdiction under the same provision, from which the City appeals.
Esparza sued the City and its employee, Manuel Espinoza, alleging that Espinoza negligently caused a car accident involving Esparza.
A plea to the jurisdiction challenges the trial court's subject-matter jurisdiction to hear a case. Bland Indep. Sch. Dist. v. Blue, 34 S.W.3d 547, 554 (Tex.2000); Kamel v. Univ. of Tex. Health Sci. Ctr., 333 S.W.3d 676, 681 (Tex.App.-Houston [1st Dist.] 2010, no pet.). The existence of subject-matter jurisdiction is a question of law that we review de novo. State Dep't of Hwys. & Pub. Transp. v. Gonzalez, 82 S.W.3d 322, 327 (Tex.2002); Kamel, 333 S.W.3d at 681. We may not presume the existence of subject-matter jurisdiction; the burden is on the plaintiff to allege facts affirmatively demonstrating it. Tex. Ass'n of Bus. v. Tex. Air Control Bd., 852 S.W.2d 440, 443-44, 446 (Tex. 1993); Kamel, 333 S.W.3d at 681. In deciding a plea to the jurisdiction, a court may not consider the merit of the case, but only the pleadings and evidence pertinent to the jurisdictional inquiry. Cnty. of Cameron v. Brown, 80 S.W.3d 549, 555 (Tex.2002).
Whether a governmental entity is immune from suit is a question of subject-matter jurisdiction. Tex. Dep't of Transp. v. Jones, 8 S.W.3d 636, 638 (Tex. 1999). Determination of that issue here turns on construction of the Tort Claims Act's election-of-remedies provision. See TEX. CIV. PRAC. & REM.CODE ANN. § 101.106 (West 2011). In construing a statute, our primary objective is to determine and give effect to the Legislature's intent. State ex rel. State Dep't of Hwys. v. Gonzalez, 82 S.W.3d 322, 327 (Tex.2002); Alexander v. Walker, 355 S.W.3d 709, 711 (Tex.App.-Houston [1st Dist.] 2011, no pet.); see also TEX. GOV'T CODE ANN. § 312.005 (West 2005). We first look to the plain language of the statute. Fitzgerald v. Adv. Spine Fixation Sys., 996 S.W.2d 864, 865 (Tex. 1999); Alexander, 355 S.W.3d at 711. We may also consider the object the Legislature sought to attain, the circumstances under which it enacted the statute, legislative history, former statutory provisions, and the consequences of a particular construction. See TEX. GOV'T CODE ANN. § 311.023(1)-(5) (West 2005). "We `read the statute as a whole and interpret it to give effect to every part.'" Gonzalez, 82 S.W.3d at 327 (quoting Jones v. Fowler, 969 S.W.2d 429, 432 (Tex.1998)). With respect to a statutory waiver of immunity, as in the Tort Claims Act, we interpret the waiver narrowly, as the Legislature's intent to waive immunity must be clear and unambiguous. Mission Consol. Indep. Sch. Dist. v. Garcia, 253 S.W.3d 653, 655 (Tex.2008) (citing TEX. GOV'T CODE ANN. § 311.034 (West 2005)).
Governmental immunity protects subdivisions of the State, such as the City, from lawsuits and liability, which would otherwise "hamper governmental functions by requiring tax resources to be used for defending lawsuits and paying judgments rather than using those resources for their intended purpose." Garcia, 253 S.W.3d at
Historically, in an effort to avoid the Tort Claims Act's restrictions, claimants under the Act sometimes chose to sue the employee of a governmental entity, rather than the entity itself. Id. at 656. Thus, in 1985, the Legislature added to the Act a provision that prevented claimants from suing government employees after settlement or adjudication of claims against the government employer when the claims involved the same underlying conduct. Act of May 17, 1985, 69th Leg., R.S. ch. 959, § 1, 1985 Tex. Gen. Laws 3242 (current version at TEX. CIV. PRAC. & REM.CODE ANN. § 101.106). Claimants nonetheless continued to sue both the governmental entity and its employee, often alleging that the employee acted within the scope of his employment or, in the alternative, that the employee was outside the scope of his employment. Garcia, 253 S.W.3d at 656. This resulted in increased litigation costs for the government. Id. To alleviate this problem, the Legislature amended section 101.106 in 2003 to force claimants to "decide at the outset whether an employee acted independently and is thus solely liable, or acted within the general scope of his or her employment such that the governmental unit is vicariously liable, thereby reducing the resources that the government and its employees must use in defending redundant litigation and alternative theories of recovery." Id. at 657.
Under the amended provision, entitled "Election of Remedies," a claimant's filing of suit operates as a binding election between pursuing her tort claims against a governmental entity or pursuing them against its employees individually. TEX. CIV. PRAC. & REM.CODE ANN. § 101.106. The provision states:
Id.
The Supreme Court of Texas has recognized that the Tort Claims Act's election-of-remedies provision imposes "irrevocable consequences" on a claimant's decision regarding whom to sue, such that a claimant "must proceed cautiously before filing suit and carefully consider whether to seek relief from the governmental unit or from the employee individually." Garcia, 253 S.W.3d at 657.
The City contends that Esparza has failed to comply with the election-of-remedies provision because she sued both the City and its employee. See TEX. CIV. PRAC. & REM.CODE ANN. § 101.106. The City asserts that the provision requires a claimant to choose between suing either the City or its employee, and a claimant who instead sues both loses the opportunity to sue either — the employee is dismissed under subsection (e) and the government is immune under subsection (b). See id. §§ 101.106(b), 101.106(e).
Esparza responds on several grounds. First, Esparza asserts that she did not sue the City's employee, Espinoza, because he was not served and did not appear in the case, and thus the trial court never acquired personal jurisdiction over him. Because the trial court did not acquire personal jurisdiction over Espinoza, Esparza contends that he was never a party and that subsection (b) does not apply to her suit. Second, she contends that if her suit was, at least initially, against both the City and Espinoza, then section 101.106(e), and not section 101.106(b), applies to her suit. Finally, she contends that, even if subsection (b) applies to her suit, she falls within a "consent" exception to that provision because her claims against the City fall within the limited waiver of immunity in section 101.021, for claims arising out of a government employee's negligent operation of a motor vehicle. See TEX. CIV. PRAC. & REM.CODE ANN. § 101.021(1) (West 2011); id. § 101.106(b) (barring suit against a governmental unit, when applicable, "unless the governmental unit consents."). Esparza contends that this is all that is necessary to satisfy section 101.106(b)'s "consent" exception.
The City does not challenge Esparza's contention that her claims fall within the scope of section 101.021's limited waiver of immunity for claims involving a government employee's negligent operation of a motor vehicle. Instead, the City responds that "consent" within the meaning of subsection (b) cannot be found within the Tort Claims Act itself, because to do so would render subsection (b) meaningless. The City contends that "consent" must be found in an independent statutory waiver of immunity outside the Act, and no such independent waiver of immunity is pled here. We address the parties' contentions in turn.
We reject Esparza's contention that she did not sue the City's employee, Espinoza, within the meaning of the election-of-remedies
The City contends that section 101.106(b) operates as a complete bar to claimants who sue both it and its employees, even if the government has waived its immunity for the type of claim the claimant alleges. Esparza contends that subsection (b) does not bar her suit because it does not apply to her suit or because the government has "consented" to her suit within the meaning of that subsection. For the reasons detailed below, we reject Esparza's contention that alleging facts that fall within the subject matter of one of the Tort Claims Act's waivers of immunity is, alone, sufficient to establish the government's consent to suit under section 101.106(b), without also showing that a claimant has met the Act's other jurisdictional requirements, including the election-of-remedies provision. But we conclude that Esparza has complied with the jurisdictional requirements of the election-of-remedies provision. She elected her remedy — not by choice, but by operation of the statute. When a claimant fails to elect between defendants and instead sues both, subsection (e) forces an election upon the claimant: the governmental unit is the proper defendant and the employee must be dismissed. See TEX. CIV. PRAC. & REM. CODE ANN. § 101.106(e). We therefore reject the City's contention that Esparza's claims against it are barred by section 101.106(b).
Since its enactment, there has been considerable litigation over the election-of-remedies provision in the Tort Claims Act, section 101.106. Giving effect to its plain language
See TEX. CIV. PRAC. & REM.CODE ANN. § 101.106; See also Garcia, 253 S.W.3d at 657 ("Under the Tort Claims Act's election scheme, recovery against an individual employee is barred and may be sought against the governmental unit only in three instances: (1) when suit is filed against the governmental unit only, id. § 101.106(a); (2) when suit is filed against both the governmental unit and its employee, id. § 101.106(e); or (3) when suit is filed against an employee whose conduct was within the scope of his or her employment and the suit could have been brought against the governmental unit, id. § 101.106(f).").
We reject the City's contention that subsections (b) and (e) apply without reference to each other when a claimant sues both the government and its employee together, thus requiring the dismissal of both defendants. Instead, the statutory scheme requires that the trial court dismiss the employee upon the governmental unit's motion, leaving the governmental unit to defend suits that otherwise comport with the Tort Claims Act's jurisdictional constraints. This construction is compelled by the statute's plain language and structure and is consistent with the Texas Supreme Court's jurisprudence. See TEX. CIV. PRAC. & REM.CODE ANN. § 101.106(e) ("If suit is filed under this chapter against both a governmental unit and any of its employees ..."); Garcia, 253 S.W.3d at 657 (stating that, under section 101.106, suit may be brought against governmental unit but not its employees in three situations, including "when suit is filed against both the governmental unit and its employee"). If, as the City argues, subsections (a) and (b) apply independently to any suit brought against a governmental unit and its employee simultaneously and mandate dismissal of both the governmental unit and its employee in such cases, then subsection (e), which dictates the dismissal of the employee in such cases, would be superfluous, and its language, which does not mention dismissal of the governmental unit, would be incongruent. See TEX. CIV. PRAC. & REM.CODE ANN. § 101.106(e).
Subsection 101.106(b) of the Tort Claims Act is qualified by a "consent" exception: when applicable, subsection (b) bars suit against a governmental unit "unless the governmental unit consents." See TEX. CIV. PRAC. & REM.CODE ANN. § 101.106(b). Unlike some of our sister courts, we do not read this exception as creating a blanket waiver of the very immunity established by subsection (b). Cf., e.g., Amadi v. City of Houston, 369 S.W.3d 254, 259-60 (Tex.App.-Houston [14th Dist.] 2011, pet. filed) (op. on reh'g en banc); Barnum v. Ngakoue, No. 03-09-00086-CV, 2011 WL 1642179, at *11 (Tex.App.-Austin April 29, 2011, pet. filed); City of N. Richland Hills v. Friend, 337 S.W.3d 387, 392-93 (Tex.App.-Fort Worth 2011, pet. filed). Rather, subsection (b)'s "consent" exception permits a claimant to bring suit against a governmental unit only if the claimant has complied with all of the authorizing statute's jurisdictional requirements for bringing suit. See Garcia, 253 S.W.3d at 660 ("[T]he Legislature, on behalf of [the school district], has consented to suits brought under the TCHRA, provided the procedures outlined in the statute have been met.") For claims brought under the Tort Claims Act, the claimant must meet all of the Act's jurisdictional constraints.
By its plain language and very nature,
We recognize that this construction of the "consent" exception may conflict with the analysis in recent cases out of the Fort Worth, Houston Fourteenth and Austin Courts of Appeals. See Friend, 337 S.W.3d at 392-93; City of Houston v. Johnson, No. 14-11-00220-CV, 2011 WL 3207964, at *2 (Tex.App.-Houston [14th Dist.] July 28, 2011, no pet. h.); City of Houston v. Cooper, No. 14-11-00092-CV, 2011 WL 3207958, at *2 (Tex.App.-Houston [14th Dist.] July 28, 2011, no pet. h.); City of Houston v. Rodriguez, 369 S.W.3d 262, 266-67 (Tex.App.-Houston [14th Dist.] 2011, pet. filed) (op. on reh'g); Amadi, 369 S.W.3d at 259-61; Barnum, 2011 WL 1642179, at *10-12. Relying on the Texas Supreme Court's opinion in Garcia, these courts have relied exclusively on the Tort Claims Act's waivers of immunity for particular kinds of claims — claims arising out of the negligent operation of a motor-vehicle,
First, we do not read Garcia as holding that the "consent" exception in subsection (b) is nonetheless satisfied even absent compliance with all of the jurisdictional requirements of the Tort Claims Act or some independent statutory waiver of immunity. The Garcia Court stated its holding on "consent" in these words: [T]he Legislature, on behalf of [the school district], "has consented to suits brought under the TCHRA, provided the procedures outlined in the statute have been met." Garcia, 253 S.W.3d at 660 (emphasis added). Like the TCHRA, the Tort Claims Act prescribes certain procedures with which a claimant must comply in order to fall within the Act's waivers of immunity. E.g., TEX. CIV. PRAC. & REM. CODE ANN. § 101.101 (West 2011) (prescribing a pre-suit notice requirement). A claimant who fails to comply with the Act's jurisdictional requirements falls outside the Act's limited waivers of immunity, regardless of whether the claim is one for which immunity is otherwise waived under the Act. See Univ. of Tex. Sw. Med. Ctr. at Dallas v. Estate of Arancibia ex rel. Vasquez-Arancibia, 324 S.W.3d 544, 546 (Tex.2010) ("The Texas Tort Claims Act waives immunity from suit `to the extent of liability created by [the Act].' To take advantage of this waiver, the plaintiff must notify the government of a claim within six months.") (citations omitted); see also TEX. GOV'T CODE ANN. § 31.034 (West Supp. 2010) ("Statutory prerequisites to a suit, including the provision of notice, are jurisdictional requirements in all suits against a governmental entity."). The election-of-remedies provision is such a jurisdictional requirement.
Second, if the Tort Claims Act's limited waivers of immunity constituted "consent" in and of themselves, as some courts of appeals have indicated, then the "consent" exception appears to swallow the rule entirely. Cf. Franka, 332 S.W.3d at 393 ("Statutory language should not be read as pointless if it is reasonably susceptible to another construction."). The Austin Court of Appeals recognized this problem: "[T]his construction of the term `consents' in subsection 101.106(b) seems to eliminate any real effect to the provision because plaintiffs have always been prohibited from suing governmental employers when immunity has not been waived. Stated differently, subsection 101.106(b) only bars subsequent suits against governmental employers that were already barred through the doctrine of sovereign immunity." Barnum, 2011 WL 1642179, at *10.
Barnum itself demonstrates the problematic effect of a construction of section 101.106(b) that finds "consent" in the Act's limited waivers of immunity alone. In that case, Ngakoue elected to sue a government employee, Barnum, after they were involved in a car accident. Id. at *2. Barnum filed a motion for dismissal under section 101.106(f), demonstrating that he was acting within the scope of his employment with the Texas Adjutant General's Office (AGO) at the time of the accident. Id.; see TEX. CIV. PRAC. & REM.CODE ANN. § 101.106(f). Ngakoue failed to timely amend his pleadings under subsection (f), as required to treat Ngakoue's suit as an election to sue the AGO, rather than Barnum, under that subsection. Barnum, 2011 WL 1642179, at *6. Under our construction of the election-of-remedies provision,
Similarly, if the Act's limited waivers of immunity were, alone, sufficient to constitute "consent" to suit under section 101.106(b), a car-accident claimant could avoid electing between defendants by first suing the government employee individually and then suing the employer if she were unsuccessful in obtaining a judgment against the employee. This result neither discourages claimants from suing government employees in an effort to circumvent the restrictions of the Act nor "reduc[es] the resources that the government and its employees must use in defending redundant litigation and alternative theories of recovery." Garcia, 253 S.W.3d at 657 (identifying the legislative purposes of the election-of-remedies provision); see also Barnum, 2011 WL 1642179, at *11; Alexander, 355 S.W.3d at 713.
By contrast, under our construction of the election-of-remedies provision, subsections (a) and (b) operate as mirror provisions with respect to claims brought under the Act. See TEX. CIV. PRAC. & REM.CODE ANN. § 101.106(a), (b); see also Alexander, 355 S.W.3d at 713 (describing subsection (b) as a "parallel provision" to subsection (a)); cf. Barnum, 2011 WL 1642179, at *11 (noting that subsections (a) and (b), like subsections (c) and (d), are "mirror provision[s]" evidencing an intent to prevent a claimant from suing or recovering against either a governmental employer or its employee and then subsequently suing or recovering against the other). Specifically, once a claimant elects to sue a governmental unit instead of its employee, subsection (a) immediately and forever bars the claimant from bringing common law tort claims regarding that subject matter against its employees. See Kamel v. Univ. of Tex. Health Ctr., 333 S.W.3d 676, 688 (Tex.App.-Houston [1st Dist.] 2010, pet. denied); Hintz v. Lally, 305 S.W.3d 761, 771 (Tex.App.-Houston [14th Dist.] 2009, pet. denied). Concordantly, under our construction of subsection (b), once a claimant elects to sue a government employee instead of its governmental employer,
For these reasons, we conclude that a claimant may find "consent" to suit within the Tort Claims Act's limited waivers of immunity only if the claimant has satisfied the Act's other jurisdictional requirements, including those set forth in the election-of-remedies provision. A claimant satisfies the provision by electing — voluntarily or involuntarily — whether she will prosecute her claims against a governmental unit or its employee, forever forgoing prosecution against the other.
Under section 101.106, Esparza's filing of suit against both Espinoza and the City invoked subsection (e). See TEX. CIV. PRAC. & REM.CODE ANN. § 101.106(e). By operation of subsection (e), Esparza's filing of suit and the City's motion to dismiss Espinoza resulted in a forced election: whether she intended to or not, Esparza elected to pursue her claims against the City rather than Espinoza. Id.; see also Garcia, 253 S.W.3d at 657 ("recovery against an individual employee is barred and may be sought against the governmental unit only ... when suit is filed against both the governmental unit and its employee, [TEX. CIV. PRAC. & REM.CODE ANN.] § 101.106(e)"). The trial court therefore properly dismissed her claims against Espinoza, and she is forever barred from bringing common law tort claims against him arising out the accident at issue here. Id. § 101.106(a), (e). But, so long as she has otherwise complied with the jurisdictional requisites of the Tort Claims Act,
We hold that the trial court properly denied the City's plea to the jurisdiction under section 101.106(b) of the Tort Claims Act. We therefore affirm the trial court's order.