Can a company that owns farmland in a Texas water district send a representative to vote in the district's elections?

Plain-English summary

Some Texas water districts let landowners vote in district elections. The Maverick County Water Control & Improvement District No. 1 is a chapter 51 district, and it has its own voter-eligibility statute, Water Code section 51.221, written by name just for it. A Texas LLC that owns irrigable farmland inside the district and uses the district's canal-delivered irrigation water wanted its authorized representative to register and vote. The Maverick County Attorney asked the AG whether that representative is eligible.

Section 51.221(b) says a "person" may vote only if the person meets all four requirements, joined by "and": (1) is 18 or older, (2) is a U.S. citizen, (3) is "an individual who holds title to or an interest in title to" irrigable farmland or ranch land in the district, and (4) receives and uses the district's irrigation water. The AG noted that while the Code Construction Act normally defines "person" to include artificial persons like corporations, that default yields when the statute or its context requires otherwise. Here the context does require otherwise. Age and citizenship are attributes of natural persons (tied to constitutional voter qualifications and the age of majority), and "individual" ordinarily means a human being. Reading section 51.221 as a contextual whole, only a natural person can vote.

That still left the title question, since the representative was over 18 and a citizen. But requirement (3) demands that the voter be an individual who holds title or an interest in title to the land. The LLC owns the land, and under Texas law a member of an LLC has no interest in the company's specific property; the company is a distinct legal entity. So the representative does not personally hold title, and registering without showing personal title does not establish eligibility.

The AG reinforced the result by comparison. A different statute, for chapter 58 irrigation districts, expressly lets a "landowner or the landowner's registered representative" vote, and specifically provides that when land is owned by more than one individual or by a corporation, partnership, or other business entity, the vote must be cast by a registered representative. The Legislature knew how to authorize representative voting and did so for chapter 58 districts, but not in section 51.221. Courts treat such an omission as intentional. So the AG concluded a court would likely hold that section 51.221 does not let an LLC's representative vote on the company's behalf; to vote, a person must meet section 51.221's requirements in their own individual capacity.

What this means for you

If you own district land through an LLC or corporation

Based on this opinion, your entity's representative cannot vote in Maverick County WCID No. 1 elections under section 51.221 simply because the entity owns qualifying land and uses district water. The voter must personally meet all four requirements, including individually holding title or an interest in title to irrigable farmland or ranch land in the district.

If you register voters or administer a chapter 51 water district election

The AG reads section 51.221 to authorize only natural persons who personally satisfy subsection (b). A registrant who does not provide information showing the registrant individually holds title or an interest in title to qualifying land has not established eligibility under section 51.221(b)(3) and (c).

If you are comparing district types

The opinion highlights that chapter 58 irrigation districts have a different rule (sections 58.222-58.225) that does allow an entity landowner to vote through a registered representative. If a district has converted to chapter 58 under section 58.038, the analysis would differ; the AG noted Maverick County WCID No. 1 had not converted.

Common questions

Q: Our LLC owns farmland in the district and uses its water. Can our representative vote?
A: The AG concluded likely not. Section 51.221 authorizes only natural persons who personally meet all four eligibility requirements, and the LLC's representative does not personally hold title to the land.

Q: Why doesn't "person" include a company here?
A: The Code Construction Act's broad definition of "person" yields when context requires. The AG found section 51.221's age, citizenship, and "individual" requirements all describe a natural person, so the context requires the narrower reading.

Q: The representative is over 18 and a U.S. citizen. Isn't that enough?
A: No. Requirement (3) demands the voter be an individual who holds title or an interest in title to the land. The company owns the land, and an LLC member has no interest in the company's specific property, so the representative does not satisfy that requirement.

Q: Don't some water districts let representatives vote for companies?
A: Yes. Chapter 58 irrigation districts expressly allow a registered representative to vote for an entity landowner (sections 58.222-58.225). The AG treated the absence of that authorization in section 51.221 as a deliberate legislative choice.

Background and statutory framework

Maverick County Water Control & Improvement District No. 1 operates under Water Code chapter 51 (sections 51.001-.875), and its elections are governed by the district-specific eligibility statute, section 51.221. Subsection (b) lists four conjunctive requirements: 18 or older; U.S. citizen; "an individual who holds title to or an interest in title to" irrigable farmland or ranch land in the district; and one who receives and uses the district's canal-delivered irrigation water. Words get their common meaning unless a definition or context requires otherwise (In re Tex. Educ. Agency), and joining requirements with "and" makes all of them apply (In re Brookshire Grocery Co.). Although the Code Construction Act (incorporated by Water Code section 1.002(a)) defines "person" to include entities (Gov't Code section 311.005(2)), the context here, age and citizenship (cf. Tex. Const. art. VI, sections 1(a)(1), 2(a); Civ. Prac. & Rem. Code section 129.001; Elec. Code section 11.002; Water Code section 49.101) and "individual," limits voting to natural persons.

On title, "the concept of 'title' speaks to ownership of rights in property" (Hanson Bus. Park; see Civ. Prac. & Rem. Code section 16.021(4)). Because the LLC owns the land and an LLC member has no interest in the company's specific property (Bus. Orgs. Code section 101.106(a), (b); RLI Ins. Co. v. Caliente Oil; Sherman v. Boston; the entity being distinct from its members, Cedric Kushner Promotions v. King), the representative does not personally hold title, and registration without that showing does not establish eligibility (section 51.221(b)(3), (c)). By contrast, chapter 58 irrigation districts expressly let a landowner's registered representative vote and require representative voting when an entity owns the land (sections 58.222, 58.223, 58.225). The Legislature's omission of that authorization from section 51.221 is presumed intentional (PPG Indus. v. JMB/Houston Centers), so the AG concluded the representative may not vote on the company's behalf; eligibility must be met in an individual capacity.

Citations and references

Statutes:

• Tex. Water Code § 51.221 — eligibility to vote in Maverick County WCID No. 1 elections
• Tex. Water Code §§ 58.222-58.225 — representative voting in chapter 58 irrigation district elections
• Tex. Bus. Orgs. Code § 101.106 — LLC member has no interest in the company's specific property

Key cases:

• In re Brookshire Grocery Co., 250 S.W.3d 66 (Tex. 2008) — requirements joined by "and" all apply
• PPG Indus., Inc. v. JMB/Houston Centers Partners Ltd. P'ship, 146 S.W.3d 79 (Tex. 2004) — omission of a right in one part of a code but not another is presumed intentional
• Sherman v. Boston, 486 S.W.3d 88 (Tex. App.—Houston [14th Dist.] 2016, pet. denied) — LLC member has no interest in company property

Source

• Landing page: https://www.texasattorneygeneral.gov/opinions/ken-paxton/kp-0415
• Original PDF: https://www.texasattorneygeneral.gov/sites/default/files/opinion-files/opinion/2022/kp-0415.pdf

Original opinion text

KEN PAXTON
ATTORNEY GENERAL OF TEXAS

September 20, 2022

The Honorable Jaime A. Iracheta
Maverick County Attorney
208 Converse Street
Eagle Pass, Texas 78852

Opinion No. KP-0415

Re: Whether section 51.221 of the Water Code authorizes a representative of a limited liability company to vote in an election conducted by Maverick County Water Control & Improvement District No. 1 (RQ-0448-KP)

Dear Mr. Iracheta:

You ask about the authority of a limited liability company to vote in a water control and improvement district election under section 51.221 of the Water Code.¹ You state that Maverick County Water Control & Improvement District No. 1 (the "District") "is a Chapter 51 Water Control and Improvement District," meaning that chapter 51 of the Water Code authorizes and governs the District. Request Letter at 1; see TEX. WATER CODE §§ 51.001–.875 (chapter 51). You tell us that the authorized representative of a corporate owner of land located in the District sought to register to vote in District elections. Request Letter at 1. You explain that the "landowner is a Texas limited liability company [that] owns irrigable farmland or ranch land within the boundaries of the [D]istrict and receives and uses irrigation water delivered by the [D]istrict, by and through the [D]istrict's canal system." Id. You ask "whether the representative of a limited liability company is eligible to vote in an election conducted by" the District. Id. at 2.

Section 51.221 expressly applies only to elections conducted by "Maverick County Water Control and Improvement District No. 1." See TEX. WATER CODE § 51.221 (titled "Eligibility to Vote: Maverick County Water Control and Improvement District No. 1"). Subsection 51.221(b) provides:

A person is eligible to vote in an election conducted by the district if the person:

(1) is 18 years of age or older;

(2) is a United States citizen;

(3) is an individual who holds title to or an interest in title to irrigable farmland or ranch land within the boundaries of the district; and

(4) receives and uses irrigation water delivered by the district by and through the district's canal system.

Id. § 51.221(b) (emphasis added).

Section 51.221 does not define the terms "person" or "individual." Courts give words in a statute their common, ordinary meaning unless a statutory definition or context requires otherwise. In re Tex. Educ. Agency, 619 S.W.3d 679, 687 (Tex. 2021). The term "person" commonly means a "human being"—a natural person. WEBSTER'S THIRD NEW INT'L DICTIONARY 1686 (2002). In addition, the Water Code incorporates the Code Construction Act, which defines "person" to include artificial persons such as corporations or other legal entities, "unless the statute or context in which the word or phrase is used requires a different definition." TEX. GOV'T CODE § 311.005(2); see also TEX. WATER CODE § 1.002(a) (incorporating the Code Construction Act).

But subsection 51.221(b) restricts the meaning of the term "person" by listing four eligibility requirements. TEX. WATER CODE § 51.221(b)(1)–(4). By using the word "and" to conjoin the requirements, subsection (b) limits voting eligibility to those persons who meet all four requirements. See In re Brookshire Grocery Co., 250 S.W.3d 66, 69 (Tex. 2008) (determining that because two requirements were conjoined by the word "and," both requirements applied).

An examination of these requirements reveals that subsection 51.221(b) authorizes only natural persons to vote in District elections. The age and citizenship requirements in subsections 51.221(b)(1) and (b)(2) concern only natural persons. See TEX. WATER CODE § 51.221(b)(1), (2); see also TEX. CONST. art. VI, §§ 1(a)(1) (disqualifying "persons under 18 years of age" from voting), 2(a) (requiring a voter to be "a citizen of the United States and . . . a resident of this State"); TEX. CIV. PRAC. & REM. CODE § 129.001 ("The age of majority in this state is 18 years.").² The requirement in subsection 51.221(b)(3) concerns an "individual," which usually (if not invariably) means a natural person.³ Read as a contextual whole, section 51.221 makes a natural person but not a corporation or similar legal entity eligible to vote in District elections.

You inform us that the authorized representative who attempted to vote is eighteen years of age or older and a United States citizen. See Request Letter at 1. But subsection (b)(3) limits eligibility to "an individual who holds title to or an interest in title to irrigable farmland or ranch land within the boundaries of the district." TEX. WATER CODE § 51.221(b)(3). "[T]he concept of 'title' speaks to ownership of rights in property." Hanson Bus. Park, L.P. v. First Nat'l Title Ins. Co., 209 S.W.3d 867, 870 (Tex. App.—Dallas 2006, pet. denied); see also TEX. CIV. PRAC. & REM. CODE § 16.021(4) (defining "title" to mean "a regular chain of transfers of real property from or under the sovereignty of the soil"). You tell us that the limited liability company owns the irrigated land, and you do not suggest the representative owns any separate interest.⁴ See Request Letter at 1. Section 51.221 of the Water Code requires a person wishing to vote to register with the district. TEX. WATER CODE § 51.221(c). If the person registering does not provide information reflecting that the person "holds title to or an interest in title to irrigable farmland or ranch land within the boundaries of the district," the registration does not establish the person's eligibility to vote in an election of the District under section 51.221. See TEX. WATER CODE § 51.221(b)(3), (c).

By contrast, a different statute specifically authorizes voting by a registered representative in an election conducted by an irrigation district under chapter 58.⁵ In a chapter 58 irrigation district election, "[n]otwithstanding the Election Code and any other law, a landowner or the landowner's registered representative . . . is entitled to one vote" if the landowner satisfies the specified requirements. Id. § 58.222. To be eligible to vote, the "individual landowner, or the landowner's registered representative" must be eighteen years of age or older, be a United States citizen, and meet other qualifications. Id. § 58.223. When "ownership of the land is vested in more than one individual or in a corporation, partnership, or other business entity, the vote must be made by a registered representative." Id. § 58.225. Had the Legislature intended to provide similarly for voting by a representative at an election conducted by the District, it could have done so. But it did not. "When the Legislature includes a right or remedy in one part of a code but omits it in another," courts presume the omission was intentional and enforce the difference. PPG Indus., Inc. v. JMB/Houston Centers Partners Ltd. P'ship, 146 S.W.3d 79, 84 (Tex. 2004). Accordingly, a court would likely conclude that section 51.221 of the Water Code does not authorize the representative of a limited liability company to vote on behalf of the company in an election conducted by the District. To vote in such an election, a person must meet the eligibility requirements of section 51.221 in the person's individual capacity. See TEX. WATER CODE § 51.221.

S U M M A R Y

Section 51.221 of the Water Code authorizes a person who meets certain qualifications to vote in an election conducted by the Maverick County Water Control & Improvement District No. 1. A court would likely conclude that section 51.221 of the Water Code does not authorize the representative of a limited liability company to vote on behalf of the company in an election conducted by that District. To vote in such an election, a person must meet the eligibility requirements of section 51.221 in the person's individual capacity.

Very truly yours,

KEN PAXTON
Attorney General of Texas

BRENT E. WEBSTER
First Assistant Attorney General

LESLEY FRENCH
Chief of Staff

D. FORREST BRUMBAUGH
Deputy Attorney General for Legal Counsel

CHARLOTTE M. HARPER
Acting Chair, Opinion Committee

¹ See Letter from Honorable Jaime A. Iracheta, Maverick Cnty. Att'y, to Honorable Ken Paxton, Tex. Att'y Gen. at 2 (Mar. 7, 2022), https://www2.texasattorneygeneral.gov/opinions/opinions/51paxton/rq/2022/pdf/RQ0448KP.pdf ("Request Letter").

² Subsections 55.221(b)(1) and (b)(2) correspond to similar voter qualification requirements in the Election Code. Water district elections "shall be generally conducted in accordance with the Election Code." TEX. WATER CODE § 49.101. A qualified voter under the Election Code must not only be over the age of 18 and be a United States citizen, but also must reside in the State and must not have been judicially determined to be "totally mentally incapacitated," among other requirements consistent with a natural person but not an artificial person. TEX. ELEC. CODE § 11.002.

³ See WEBSTER'S THIRD NEW INT'L DICTIONARY 1152 (2002) (defining "individual" as a "single human being as contrasted with a social group or institution," but also as "a single or particular being or thing"). The Water Code repeatedly distinguishes between an "individual" and corporations or other legal entities, notably doing so in a voter eligibility statute concerning elections in chapter 58 irrigation districts. See TEX. WATER CODE § 58.225(b) (stating a voting requirement that applies when "ownership of the land is vested in more than one individual or in a corporation, partnership, or other business entity"); see also id. §§ 13.501(3) (distinguishing "individual" from "firm or corporation"), 29.002(1) (distinguishing "individual" from "association of individuals, partnership, corporation, receiver, trustee, guardian, executor, or a fiduciary or representative"), 59.004(3) (distinguishing "business entities" and "individuals").

⁴ Even the owner or owners of a limited liability company do not own an interest in specific property of the company. "Texas law recognizes that a limited liability company is a legal entity that is distinct from its members, and members do not have interests in the property of the company." RLI Ins. Co. v. Caliente Oil, Inc., 469 F. Supp. 3d 729, 739–40 (W.D. Tex. 2020); see also TEX. BUS. ORG. CODE § 101.106(a) (stating that an interest in a limited liability company is personal property), (b) (stating a member of a limited liability company "does not have an interest in any specific property of the company"); Sherman v. Boston, 486 S.W.3d 88, 94 (Tex. App.—Houston [14th Dist.] 2016, pet. denied) (holding that the sole member of a limited liability company did "not have an interest in any property of the company"). The purpose of incorporation "is to create a distinct legal entity, with legal rights, obligations, powers, and privileges different from those of the natural individuals who created it, who own it, or whom it employs." RLI Ins. Co., 469 F. Supp. 3d at 739–40 (quoting Cedric Kushner Promotions, Ltd. v. King, 533 U.S. 158, 163 (2001)).

⁵ A water control and improvement district created under a different chapter may convert into a district operating under chapter 58 provided it furnishes water for irrigation and does not furnish treated water or sewer services. See TEX. WATER CODE § 58.038. You do not suggest that the District has converted to an irrigation district under chapter 58.