Tex. Att'y Gen. Op. No. GA-0755 (2010) -- Greg Abbott = Administration

From: Subject: Tex. Att'y Gen. Op. No. GA-0755 (2010) -- Greg Abbott Administration Date: Thu, 21 Jan 2010 10:35:59 -0600 MIME-Version: 1.0 Content-Type: multipart/related; type="text/html"; boundary="----=_NextPart_000_0000_01CA9A85.85A71D10" X-MimeOLE: Produced By Microsoft MimeOLE V6.00.2900.5579 This is a multi-part message in MIME format. ------=_NextPart_000_0000_01CA9A85.85A71D10 Content-Type: text/html; charset="iso-8859-1" Content-Transfer-Encoding: quoted-printable Content-Location: http://www.oag.state.tx.us/opinions/opinions/50abbott/op/2010/htm/ga-0755.htm Tex. Att'y Gen. Op. No. GA-0755 (2010) -- Greg Abbott = Administration

January 20, 2010

The Honorable Lynda K. Russell
123rd = Judicial=20 District Attorney
Shelby County
200 San Augustine = Street,=20 Suite #12
Center, Texas 75935

Opinion No. GA-0755

Re: Whether a county or the state must defend a district = attorney=20 in a civil lawsuit, and whether a district attorney may use = asset=20 forfeiture funds to pay for her defense in such a suit (RQ-0816-GA)

Dear Ms. Russell:

You ask several questions regarding the defense of a district = attorney=20 "in a federal civil rights lawsuit filed under 42 USC 1983" = involving=20 "actions she took in the course and scope of performing her = official=20 duties."^{=20
(1)}

First, you ask whether a county commissioners court has a duty = to pay=20 for a district attorney's legal defense in a civil lawsuit. = See=20 Request Letter at 3-5. You limit your analysis to Local = Government=20 Code section 157.901. Id.; see also Tex. Loc. = Gov't Code=20 Ann. =A7 157.901(a)-(b) (Vernon 2008) (providing that a county = official or=20 employee is "entitled to be represented" in some circumstances). = We limit=20 our analysis accordingly.

You point out that "[t]he attorney general has determined that = a=20 district attorney is a district officer and not a county officer" = for=20 purposes of section 157.901. See Request Letter at 6; = Tex. Att'y=20 Gen. Op. Nos. JC-0047 (1999) at 2 (explaining that section 157.901 = does=20 not apply to district officers like district judges), JM-1276 = (1990) at=20 11-12 (identifying a district attorney as an example of a = non-county=20 official for purposes of section 157.901), MW-252 (1980) at 2 = (concluding=20 that predecessor statute did not apply to district officers such = as a=20 district attorney). Finding no case law that construes section = 157.901=20 differently, we agree with the conclusion of those prior opinions. = Local=20 Government Code section 157.901 does not require a county = commissioners=20 court to pay for a district attorney's legal defense. Thus, a=20 commissioners court has no duty under section 157.901 to pay for a = district attorney's legal defense in a civil lawsuit.

Your second question asks whether the State of Texas must = indemnify a=20 district attorney for court costs and attorney's fees under Texas = Civil=20 Practice and Remedies Code sections 104.001 and 104.0035. = See=20 Request Letter at 3, 6; see also Tex. Civ. Prac. & = Rem. Code=20 Ann. =A7=A7 104.001 (Vernon Supp. 2009) ("State Liability; Persons = Covered"),=20 104.0035 (Vernon 2005) ("State Liability; Criminal Prosecution"). = This=20 issue was addressed in a recent attorney general opinion. = See=20 Tex. Att'y Gen. Op. No. GA-0523 (2007) at 1-2 (explaining that "a = criminal=20 district attorney must be considered to be an employee or officer = of a=20 'state agency, institution, or department' for chapter 104 to = apply")=20 (quoting Tex. Civ. Prac. & Rem. Code Ann. =A7 104.001(1) = (Vernon Supp.=20 2009)). That opinion concluded that a criminal district attorney = was not a=20 covered person under section 104.001. See id. As the = court in=20 Hill County v. Sheppard, 178 S.W.2d 261 (Tex. 1944) = explains, a=20 criminal district attorney is simply a "class or kind" of district = attorney. 178 S.W.2d at 263; see also Tex. Att'y Gen. Op. = No.=20 GA-0523 (2007) at 2 (citing to Hill County v. Sheppard). = Finding=20 no case law that construes section 104.001 differently, we = reaffirm=20 Attorney General Opinion GA-0523's conclusion that a district = attorney is=20 not a covered person under section 104.001. The State has no duty = to=20 indemnify a district attorney under Texas Civil Practice and = Remedies Code=20 sections 104.001 and 104.0035.

Your third question asks whether Code of Criminal Procedure = article=20 59.06(c)(1) authorizes the use of asset forfeiture funds to pay = for a=20 district attorney's civil legal defense. Request Letter at 3, 7. = Article=20 59.06(c)(1) provides that when an attorney representing the state = executes=20 a local agreement with a law enforcement agency, the attorney may = deposit=20 forfeiture funds into "a special fund in the county treasury for = the=20 benefit of the office of the attorney representing the state, = to be=20 used by the attorney solely for the official purposes of his = office."=20 Tex. Code Crim. Proc. Ann. art. 59.06(c)(1) (Vernon Supp. 2009) = (emphasis=20 added). You conclude that "[w]hen the elected prosecutor has been = sued=20 civilly for acts done while in the performance of her official = duties . .=20 . that the defense expenditure is" an "official purpose" of the = office.=20 Request Letter at 7.

In a recent opinion, this office examined the kind of = expenditures that=20 are "solely for the official purposes" of the district attorney's = office.=20 See Tex. Att'y Gen. Op. No. GA-0613 (2008) at 6-8. We = concluded=20 in that opinion that only those expenditures related to the = district=20 attorney's duties and functions as delineated by statute or the=20 constitution constitute permissible expenditures under article=20 59.06(c)(1). See id. In that way, the opinion adopted a = narrow=20 construction of the phrase "official purpose." See id. at = 5-6=20 (rejecting a broad construction of the statute that would include = any=20 expenditure that fell short of an expenditure for a private = purpose).

We find no provision of state law that addresses a district = attorney's=20 duty or function to pay for her own legal defense in a civil suit, = and=20 thus, it follows that the payment of such costs is not an official = purpose=20 of that office within the meaning of article 59.06(c)(1). = Accordingly, we=20 conclude that forfeiture funds may not be used under Code of = Criminal=20 Procedure article 59.06(c)(1) to pay for a district attorney's own = civil=20 legal defense.^{=20
(2)}

S U M M A R Y

A county commissioners court has no duty to provide = for the=20 defense of a district attorney pursuant to Local Government Code = section=20 157.901. The state is not obligated to indemnify a district = attorney=20 under Texas Civil Practice and Remedies Code sections 104.001 = and=20 104.0035. A district attorney is not authorized to utilize = forfeiture=20 funds under Code of Criminal Procedure article 59.06(c)(1) to = pay for=20 the district attorney's legal defense.

Very truly yours,
=20
GREG ABBOTT
Attorney General of = Texas

ANDREW WEBER
First Assistant Attorney General=20

JONATHAN K. FRELS
Deputy Attorney General for Legal Counsel =

NANCY S. FULLER
Chair, Opinion Committee

Christy Drake-Adams
Assistant Attorney General, Opinion=20 Committee

Footnotes=20

1. Request Letter at 2-3 (available at=20 http://www.texasattorneygeneral.gov).=20

2. Finally, you ask about the = indemnification=20 protection, if any, available to a district attorney's support = staff in a=20 civil suit. See Request Letter at 3. Because the issue = raised in=20 your fourth question is not briefed and because this issue is=20 characterized by you as being "subsumed" in your first three = questions, we=20 do not separately address your fourth question. Id. at 3, = n.1.=20

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