Could city officials or electric-cooperative officers serve on the Lower Colorado River Authority board?
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This page answers the general question as of 1984. Ezel answers yours: what it means for your facts, under current Texas law, with citations.
Texas AG Opinion JM-172: LCRA Board Eligibility
Plain-English summary
JM-172 concluded that people who were officers or employees of wholesale electric power and energy cooperatives, or had held those roles within the preceding three years, were statutorily ineligible for appointment to the Lower Colorado River Authority board.
"Persons who are or have been (within three years) officers and employees of wholesale electric power and energy cooperatives are specifically made ineligible by the Lower Colorado River Authority Act for appointment to the LCRA board."
Source: https://www.texasattorneygeneral.gov/sites/default/files/opinion-files/opinion/1984/jm0172.pdf
City officers and employees serving cities that contracted with LCRA were not automatically ineligible under the same statute. But if the city and LCRA positions were incompatible, accepting the LCRA office automatically vacated the city post.
"Officers and employees of cities with whom the LCRA contracts to provide power are not ineligible for board membership but will automatically vacate their city posts by accepting an incompatible office."
Source: https://www.texasattorneygeneral.gov/sites/default/files/opinion-files/opinion/1984/jm0172.pdf
The opinion distinguished private conflicts of interest from common-law incompatibility. Incompatibility arose from conflicting public duties rather than an official's private financial interest.
"The conflict in an 'incompatibility' situation is not between an officer's private interests and his public duty, but rather between two inconsistent public duties."
Source: https://www.texasattorneygeneral.gov/sites/default/files/opinion-files/opinion/1984/jm0172.pdf
Currency note
This opinion was issued in 1984. Subsequent statutory amendments, court decisions, or later AG opinions may have changed the analysis. Treat this page as historical context, not current legal advice. Verify current law before relying on any specific rule, deadline, or remedy mentioned here.
Common questions
What did the LCRA eligibility statute say?
It barred appointment of a person employed during the preceding three years by an electric power and light company, telephone company, or other utility company.
"No person shall be eligible for such appointment if he has, during the preceding three years before his appointment been employed by an electric power and light company, telephone company, or any other utility company."
Source: https://www.texasattorneygeneral.gov/sites/default/files/opinion-files/opinion/1984/jm0172.pdf
Did an electric cooperative count as a utility company?
Yes. JM-172 concluded that wholesale electric power and energy cooperatives fell within the statute.
"Wholesale electric power and energy cooperatives constitute 'utility companies' within the meaning of the statute."
Source: https://www.texasattorneygeneral.gov/sites/default/files/opinion-files/opinion/1984/jm0172.pdf
Why were city and LCRA offices incompatible?
The person would owe faithful service to two public entities with conflicting or potentially conflicting interests.
"A person occupying dual positions would be bound to serve faithfully two public entities with conflicting or potentially conflicting interests."
Source: https://www.texasattorneygeneral.gov/sites/default/files/opinion-files/opinion/1984/jm0172.pdf
Did every city employee position automatically conflict?
The opinion said some city employments could create incompatibility but declined to decide particular jobs because no specific employments were presented.
"In some instances a city employee, as well as a city officer, might be required either to slight his public duty of allegiance to the city and obedience to his city superiors, or to subordinate the interests of the authority he purportedly serves."
Source: https://www.texasattorneygeneral.gov/sites/default/files/opinion-files/opinion/1984/jm0172.pdf"Since you have not asked about specific city employments, we do not address any particular fact situation."
Source: https://www.texasattorneygeneral.gov/sites/default/files/opinion-files/opinion/1984/jm0172.pdf
What happened when someone accepted a second incompatible office?
The first office or position was automatically vacated.
"Persons who assume an office incompatible with a position or office already held ipso facto vacate the first position or office."
Source: https://www.texasattorneygeneral.gov/sites/default/files/opinion-files/opinion/1984/jm0172.pdf
Did the constitutional exception for soil and water conservation districts cover LCRA?
No. JM-172 concluded that river authorities were not the soil and water conservation districts named in article XVI, section 40.
"River authorities do not constitute 'soil and water conservation districts' within the meaning of article XVI, section 40."
Source: https://www.texasattorneygeneral.gov/sites/default/files/opinion-files/opinion/1984/jm0172.pdf
Background and statutory framework
The LCRA was created in 1934 under article XVI, section 59 as a conservation and reclamation district.
"The Lower Colorado River Authority ... was created by Acts 1934, Forty-third Legislature, 4th Called Session, chapter 7, at 19, pursuant to article XVI, section 59 of the Texas Constitution."
Source: https://www.texasattorneygeneral.gov/sites/default/files/opinion-files/opinion/1984/jm0172.pdf
The 1975 act defined LCRA's territory across ten named counties, and the 1983 amendment governed appointment and eligibility for its fifteen-member board.
"The powers, rights, privileges and functions of the district shall be exercised by a board of 15 directors."
Source: https://www.texasattorneygeneral.gov/sites/default/files/opinion-files/opinion/1984/jm0172.pdf
The opinion said a private financial conflict ordinarily did not make a person legally ineligible for public office, though it could prohibit action on particular matters.
"A mere 'conflict of interest' ... will not make a person legally ineligible for a public office or position, although the existence of such a conflict may make it illegal on occasion for a public officer or employee to exercise his public authority."
Source: https://www.texasattorneygeneral.gov/sites/default/files/opinion-files/opinion/1984/jm0172.pdf
Citations and references
- Section 4(a) of the authority's enabling act supplied the three-year utility-employment disqualification.
"No person shall be eligible for such appointment if he has, during the preceding three years before his appointment been employed by ... any other utility company."
Source: https://www.texasattorneygeneral.gov/sites/default/files/opinion-files/opinion/1984/jm0172.pdf
- Article XVI, section 40 supplied an exception for a different class of conservation districts that JM-172 held inapplicable to river authorities.
"The proviso of article XVI, section 40 of the Constitution is not applicable."
Source: https://www.texasattorneygeneral.gov/sites/default/files/opinion-files/opinion/1984/jm0172.pdf
Source
- Landing page: https://www.texasattorneygeneral.gov/opinions/jim-mattox/jm-0172
- Original PDF: https://www.texasattorneygeneral.gov/sites/default/files/opinion-files/opinion/1984/jm0172.pdf
Original opinion text
Best-effort transcription from a scanned PDF. Minor errors may remain. The linked PDF is authoritative.
The Attorney General of Texas
JIM MATTOX June 21. 1984
Attorney General
Supreme Court Building Mr. Elof 8. Soderberg Opinion uo. m-172
P. 0. BOX 12548
Austin. TX. 7871% 2548
General Manager
5121475-2501 Lower Colorado River Authority Re: Statutory disqualifica-
Telex 9101874-1367 P. 0. Box 220 tions for Lower Colorado River
Telecopier 512/475-0286 Austin, Texas 78767 Authority board membership
714 Jackson, Suite 700
Dear Mr. Soderberg:
Dallas, TX. 75202.4506
214/742-6944 You question whether certain fact situations would prevent
persons from becoming members of the Board of Directors of the Lower
Colorado River Authority.
4824 Alberta Ave.. Suite 180
El Paso, TX. 799052793
9151533.3464 The Lower Colorado River Authority, also known as the LCRA, wae
created by Acts 1934. Forty-third Legislature, 4th Called Session,
chapter 7. at 19, pursuant to article XVI, section 59 of the Texas
1 Texas, Suite 700 constitution. The Lower Colorado River Authority Act, previously
. ..ustcn. TX. 77002.3111
codified as article 8280-107, V.T.C.S., has not been repealed, but it
713i223.5886
was not included as a part of the Texas Water Code enacted in 1971.
Consequently, the session laws must be consulted to determine its
606 Broadway, Suite 312 provisions.
Lubbock, TX. 79401-3479
SOW747.5238
The Act was amended in its entirety in 1975. Acts 1975, 64th
Leg., ch. 74, at 179. Section 1 thereof, as amended, constitutes the
4309 N. Tenth. Suite B LCRA a conservation and reclamation district consisting of that part
McAllen, TX. 78501.1685 of the state included within the boundaries of the counties of Blanco,
5121882.4547 Burnet, Llano. Travis, Bastrop. Fayette, Colorado, Wharton, San Saba
and Matagorda. Section 4(a), as amended by Acts 1983, Sixty-eighth
200 Main Plaza. suite 400 Legislature, chapter 484. article IV, at 2838, governs the appointment
San Antonio, TX. 782052797 and eligibility of its directors. It reads in part:
51212254191
Section 4. (a) The powers, rights, privileges
and functions of the district shall be exercised
An Equal Opportunltyl
Alflrmative Action Employer
by a board of 15 directors . . . . No person shall
be eligible for such appointment if he has, during
the preceding three years before his appointment
been employed by an electric power and light
company, telephone company, or any other utility
company. (Emphasis added).
You ask whether persons in the following situations are
ineligible because of a conflict of interests to serve on the LCRA
board of directors:
Mr. Elof H. Soderberg - Page 2 (JM-172)
(1) public officials or employees of cities
served by the LCRA with electric power pursuant to
contract; and
(2) board members or employees of wholesale
electric power and energy cooperatives served with
power by the LCRA pursuant to contract.
You also ask if a wholesale electric power and energy cooperative
would be a "utility" within the section 4(a) provision.
Ordinarily, a mere "conflict of interest" (&. a conflict
created by the private pecuniary interest of a public officer or
employee) will not make a person legally ineligible for a public
office or position, although the existence of such a conflict may make
it illegal on occasion for a public officer or employee to exercise
his public authority. See Hager v. State ex rel. TeVault. 446 S.W.Zd
43 (Tex. Civ. App. -Beaumont 1969, writ ref'd n.r.e.); Attorney
General Letter Advisory No. 13 (1973). See also City of Edinburg vi
Ellis, 59 S.W.Zd 99 (Tex. Comm'n App. 1933, holding approved); Delta
Electric Construction Co., Inc. v. City of San Antonio, 437 S.W.Zd 602
(Tex. Civ. App. - San Antonio 1969, writ ref'd n.r.e.); Meyers v.
Walker, 276 S.W. 305 (Tex. Civ. App. - Eastland 1925, no writ). On
the other hand, "incompatibility" prevents one person from holding two
governmental posts if the positions are incompatible. The conflict in
an "incompatibility" situation is not between an officer's private
interests and his public duty, but rather between two inconsistent
public duties. See Thomas v. Abernathy County Line Independent School
District, 290 Sx 152 (Tex. Comm'n App. 1927); Attorney General
Opinions JM-97 (1983); MW-170 (1980); Attorney General Letter Advisory
Nos. 114 (1975). 86 (1974).
In our opinion, members of the board of directors of the
authority and persons holding offices in the governments of cities
contracting with the authority occupy incompatible posts. A person
occupying dual positions would be bound to serve faithfully two public
entities with conflicting or potentially conflicting interests. See
Attorney General Opinion MU-170 (1980). Every action taken in G
capacity that might in some way affect the interests of the other
public loyalty would necessarily require a compromise of that
officeholder's public duty, since it is the duty of a public officer
to advance the interests of the public entity he serves at all times.
Thomas v. Abernathy County Line Independent School District, supra.
In some instances a city employee, as well as a city officer,
might be required either to slight his public duty of allegiance to
the city and obedience to his city superiors, or to subordinate the
interests of the authority he purportedly serves. See Attorney
General Opinion H-727 (1975). It is the ever-present potential for an
impasse of public obligations that makes positions incompatible. Cf.
Attorney General Opinion H-10 (1973). Since you have not asked abz
Mr. Elof H. Soderberg - Page 3 (JM-172)
specific city employments, we do not address any particular fact
situation.
Persons who assume an office incompatible with a position or
office already held ipso facto vacate the first position or office.
See Attorney General Opinion JM-97 (1983). We are aware that in
Attorney General Letter Advisory No. 31 (1973), it was suggested that
the doctrine of incompatibility is not applicable to river authorities
because they could be considered embraced within the term "soil and
water conservation districts" as used in article XVI, sectioa 40 of
the Texas Constitution, amended in 1972. That provision specifies
that "nothing in this Constitution" shall prevent directors of soil
and water conservation districts from holding at the same time any
other office or position of honor. trust or profit, and makes the
doctrine of incompatibility inapplicable to them. See Attorney
General Opinion MU-403 (1981). In our opinion, howzr, river
authorities do not constitute "soil and water conservation districts"
within the meaning of article XVI, section 40.
As Attorney General Opinio" Mw-403 indicates, distinct
governmental subdivisions denominated "soil and water conservation
districts" have been created by article 165a-4, V.T.C.S., the State
Soil Conservation Act now codified as chapter 201 of the Agriculture
Code of Texas. Such districts, in existence since 1939. were
originally called "soil conservation districts." Acts 1939, 46th
Leg., ch. 3, at 7. The name was changed in 1965. Acts 1965, 59th
Leg., R.S., ch. 176. at 370. When the constitutional amendment was
proposed in 1971 referring to "soil and water conservation districts"
in article XVI, section 40, the term clearly had reference to
particular governmental units other than river authorities. See
S.J.R. No. 29, Acts 1971, 62nd Leg., at 4133. We conclude that the
proviso of article XVI, section 40 of the Constitution is not
applicable and that officers and employees of cities contracting with
the Lower Colorado River Authority who occupy incompatible stations
cannot become directors of the Lower Colorado River Authority without
relinquishing their city positions.
While officers and employees of most private corporations
contracting with the LCRA are not barred from becoming LCRA board
members by the common law "conflicts of interests" doctrine, officers
and employees of "utility companies" are statutorily made ineligible
for the board by section 4 of the Lower Colorado River Authority Act.
In our opinion, wholesale electric power and energy cooperatives
constitute "utility companies" within the meaning of the statute.
Persons who had been employed within a preceding three-year
period by a utility company "of any kind or character whatsoever" were
barred from appointment as directors by section 3 of the original 1934
act creating the LCRA, and we do not think the legislatures that
amended the act in 1975 and 1981 intended any change in that respect.
Except for omitting the somewhat superfluous "of any kind or
Mr. Elof H. Soderberg - Page 4
character" phrase, the language of the prohibition remains the same.
"Company" is a term broad enough to encompass cooperative
associations. See Bus. & corm. Code 136.02(Z); V.T.C.S. art.
1396-50.01; Webster's New Collegiate Dictionary 226 (1979).
We are therefore of the opinion that persons who are or have been
(within three years) officers and employees of wholesale electric
power and energy cooperatives are specifically made ineligible by the
Lower Colorado River Authority Act for appointment to the LCRA board.
SUMMARY
Officers and employees of wholesale electric
power and energy cooperatives are ineligible for
appointment to the Board of Directors of the Lower
Colorado River Authority. Officers and employees
of cities with whom the LCRA contracts to provide
power are not ineligible for board membership' but
will automatically vacate their city posts by
accepting an incompatible office.
JIM MATTOX
Attorney General of Texas
TOM GREEN
First Assistant Attorney General
DAVID R. RICHARDS
Executive Assistant Attorney General
Prepared by Bruce Youngblood
Assistant Attorney General
APPROVED:
OPINION COMMITTEE
Rick Gilpin, Chairman
Susan Garrison
Jim Moellinger
Nancy Sutton
Bruce Youngblood
p. 758
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