SLICK WILLIE DRAM SHOP ACT CASE
20281, Inc. v. Parker, No. 06-0574 (Tex. Mar. 28, 2008)(Opinion by Chief Justice
Jefferson) (Dram Shop Act case, safe harbor defense)
20801, INC. v. JOHN L. PARKER
From Harris County; 14th district (14-05-00250-CV, 194 S.W.3d 556, 04-11-06)
The Court reverses in part the court of appeals' judgment and remands the case to the trial court.
Chief Justice Jefferson delivered the opinion of the Court.
Holding: The Court holds that providers need not establish enforcement of their policies on the occasion giving rise
to the suit, and Parker has not produced any evidence that Slick Willie’s or its vice-principals either continued
serving Parker or Griffin after they were obviously intoxicated or directly or indirectly encouraged its employees to
do so. The Court recognizes, however, that Parker could not have reasonably anticipated the standard announced
in this opinion. The Court therefore reverses in part and remands to the trial court to allow Parker to conduct
additional discovery and present further evidence to be considered in accordance with the Court's opinion.
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On Petition for Review from the
Court of Appeals for the Fourteenth District of Texas
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Argued October 26, 2007
Chief Justice Jefferson delivered the opinion of the Court.
The Texas Dram Shop Act, which imposes liability on alcoholic beverage providers for damages resulting from the
provision of alcohol to obviously drunk persons (“over-service”), also contains a section eliminating this liability
under certain circumstances. Tex. Alco. Bev. Code §§ 2.02(b), 106.14(a); see F.F.P. Operating Partners, L.P. v.
Duenez, 237 S.W.3d 680, 683–85 (Tex. 2007). Under this “safe harbor” provision, the actions of an employee in
over-serving a patron “shall not be attributable to the employer” if the employer requires its employees to attend
certain training classes, the employee in question actually attended these classes, and the provider did not directly
or indirectly encourage that employee to violate the law. Tex. Alco. Bev. Code § 106.14(a). We interpret this
provision for the first time today. We hold that: 1) the provider bears the burden of establishing the first two
elements; 2) the plaintiff bears the burden of establishing direct or indirect encouragement;[1] and 3)
encouragement may be shown, at the minimum, by evidence of the provider’s negligence. We reverse in part the
court of appeals’ judgment and remand the case to the trial court for further proceedings.
I Background
In November 1999, Respondent John L. Parker attended the grand opening of a Slick Willie’s Family Pool Hall,
located in Harris County and operated by petitioner 20801, Inc. (Slick Willie’s). Parker contends that over the course
of the evening the bar’s employees served him between ten and fifteen free alcoholic beverages, including two
given to him by the manager, Craig Watson. Parker became involved in an argument with another patron, Anthony
Griffin, at which point Watson asked Parker to leave. Outside, in the parking lot, Griffin punched Parker, causing him
to fall and strike his head on the pavement. Parker alleges that he suffered a fractured skull and serious, disabling
brain injuries as a result of this incident.
Parker sued Slick Willie’s under both a premises liability theory and the Texas Dram Shop Act (“the Act”),[2] alleging
under the latter that Slick Willie’s and its “agents, servants and/or employees were negligent in that they provided . .
. intoxicating alcoholic beverages and liquor to [Parker] and Griffin when [Slick Willie’s] knew or should have known
that [they] had become obviously intoxicated to such a degree as to present a clear and present danger to
themselves and others . . . [and that] such intoxication was a proximate cause of the damages suffered by [Parker].”
Slick Willie’s moved for summary judgment on the grounds that Parker’s premises liability claim was precluded by
section 2.03 and that Slick Willie’s had satisfied section 106.14’s safe harbor provision. See Tex. Alco. Bev. Code
§§ 2.03(a), 106.14(a). The trial court granted the motion, and Parker appealed.
The court of appeals reversed in part, holding that while Parker’s premises liability claim was precluded by the Act,
Slick Willie’s did not establish section 106.14's third element: that it had not directly or indirectly encouraged its
employees to violate the law. 194 S.W.3d 556, 568. We granted Slick Willie’s petition for review to explore the
contours of the safe harbor provision.[3] 50 Tex. Sup. Ct. J. 532 (Mar. 9, 2007).
II Discussion
The Dram Shop Act imposes liability on alcoholic beverage providers (providers) for damages proximately caused
by the intoxication of individuals who were served despite being obviously drunk. Tex. Alco. Bev. Code § 2.02(b);[4]
see Duenez, 237 S.W.3d at 683–84 (tracing the history of dram shop liability in Texas). The Act, however, also
contains a section—the provisions of which are apparently unique to Texas[5]—eliminating this liability under certain
conditions:
(a) For purposes of this chapter and any other provision of this code relating to the sales, service, dispensing,
or delivery of alcoholic beverages to a person who is not a member of a private club on the club premises, a minor,
or an intoxicated person or the consumption of alcoholic beverages by a person who is not a member of a private
club on the club premises, a minor, or an intoxicated person, the actions of an employee shall not be attributable to
the employer if:
(1) the employer requires its employees to attend a commission-approved seller training program;
(2) the employee has actually attended such a training program; and
(3) the employer has not directly or indirectly encouraged the employee to violate such law.
Tex. Alco. Bev. Code § 106.14(a).
Both parties agree that Slick Willie’s established the first two elements of this safe harbor provision. Slick Willie’s
argues that, contrary to the court of appeals holding, it also satisfied the third element. More specifically, Slick Willie’
s maintains that, with respect to the final element of section 106.14(a): 1) plaintiffs bear the burden of proof; 2)
direct or indirect encouragement requires a showing that the employer acted at least knowingly or, where a failure to
act is alleged, with conscious indifference; and 3) employers are not required to show enforcement at the time of the
incident giving rise to the cause of action. We have not previously had occasion to address in any detail this unique
statutory provision.
In construing a statute, our objective is to determine and give effect to the Legislature's intent. State v. Gonzalez, 82
S.W.3d 322, 327 (Tex. 2002); see also Tex. Gov’t Code § 312.005. We determine legislative intent from the entire
act and not just isolated portions. Gonzalez, 82 S.W.2d at 327 (citing Jones v. Fowler, 969 S.W.2d 429, 432 (Tex.
1998)). Thus, we "‘read the statute as a whole and interpret it to give effect to every part.’" Id. (quoting Jones, 969 S.
W.2d at 432). Therefore, when interpreting 106.14(a), we must consider its role in the broader statutory
scheme. The Legislature chose to subject alcoholic beverage providers to liability for damages caused by
persons served after they were already obviously intoxicated; it also decided, though, to allow providers to avoid
liability by having their employees attend certain training programs. Tex. Alco. Bev. Code §§ 2.02(b), 106.14(a).
This provision is a “carrot” that gives providers an incentive to ensure that their employees complete the training the
Legislature has determined to be beneficial. The third prong of this provision, however, restricts its protection and
reflects the Legislature’s concern that an employer might exploit this protection from liability by encouraging its
employees to violate the law, increasing its profits while defeating the statute’s purpose. With this background in
mind, we will address each of Slick Willie’s issues before turning to whether summary judgment was appropriate.
In its first issue, Slick Willie’s argues that once employers establish the first two elements of 106.14(a), the burden of
proof should shift to the plaintiff to either raise a fact question as to those elements or show that the employer
directly or indirectly encouraged the employee to violate the law. Parker, on the other hand, argues that the
employer must carry the burden of proof on this “affirmative defense.” The Act itself is silent on this issue. We have
previously noted that “[t]he comparative likelihood that a certain situation may occur in a reasonable percentage of
cases should be considered when determining whether a fact should be allocated as an element of the plaintiff’s
case or to the defendant as an affirmative defense.” Eckman v. Centennial Sav. Bank, 784 S.W.2d 672, 675 (Tex.
1990). Here, while there may be encouragement in some form in a reasonable percentage of cases, the variety of
acts and omissions that could constitute encouragement is potentially limitless, and the likelihood of any particular
form of encouragement being present in a given case is extremely small. Thus, requiring every provider to prove
that it did not in any way encourage its employees to over-serve “would be an inefficient and uneconomical use of
judicial resources.” Id. Further, as a practical matter, “proving a negative is always difficult and frequently
impossible.” State Farm Mut. Auto. Ins. Co. v. Matlock, 462 S.W.2d 277, 278 (Tex. 1970) (internal citations omitted).
It would indeed be extremely difficult for a provider to establish that it in no way directly or indirectly encouraged its
employee to violate the law: while a provider could disclaim consciously encouraging its employees to violate the
law, in some cases—as discussed below—a provider may do so inadvertently. Requiring such evidence could
effectively deprive providers of a protection the Legislature clearly intended. Therefore, we conclude that while the
burden to establish the first two elements of 106.14(a) lies with providers, plaintiffs must show that the employer has
directly or indirectly encouraged the employee in question to over-serve.[6]
Slick Willie’s argues in its second issue that an employer cannot be liable unless it knowingly encouraged its
employee to violate the law, or was consciously indifferent to its employee’s violation. Because “encourage” implies
an overt act, Slick Willie’s maintains, imposing any lower mental-state requirement would impose liability based on
mere inadvertence. Parker, in contrast, argues that the Legislature could have chosen to include a knowing
standard in section 106.14 if it had so wished, and that the Court should not read it into the statute.
Viewing the statute as a whole, we are mindful that if courts interpret “encourage” too broadly, a provider will not
receive the protection—and incentive to send their employees to training—that the Legislature conferred. If, on the
other hand, courts interpret “encourage” too narrowly, a provider would have few incentives to deny service to
persons who are obviously intoxicated. Further, we disagree with Slick Willie’s that the plain meaning of encourage
necessarily implies knowing conduct.[7] Although encouragement is generally intentional, it is possible, under
certain circumstances, for providers to negligently encourage their employees to violate the law.
Weighing all of these factors, we conclude that a provider must act (or fail to act)[8] at least negligently to
encourage its employees within the meaning of section 106.14. As we have long held, “the term ‘negligence’ means
the doing of that which a person of ordinary prudence would not have done under the same or similar
circumstances, or the failure to do that which a person of ordinary prudence would have done under the same or
similar circumstances.” Great Atl. & Pac. Tea Co. v. Evans, 175 S.W.2d 249, 250–51 (Tex. 1943). The relevant
comparison will be to a reasonable provider of the defendant’s type (a bar or liquor store owner, for example), and
the circumstances in these cases will include a provider’s awareness of, and reliance on, its employees’ successful
completion of an approved seller training program.
This objective standard best comports with the Legislature’s intent to provide a broad shelter from liability for a
provider who has complied with the first two elements of section 106.14(a) while also ensuring that this shelter not
be abused. Thus, a plaintiff can show encouragement not only by direct evidence that the provider knowingly
ordered or rewarded over-service, but also by circumstantial evidence that the provider engaged in behavior that a
reasonable provider should have known would constitute encouragement. For example,[9] a provider might, without
so intending, encourage its employees to over-serve by himself serving obviously intoxicated persons and thus
modeling inappropriate behavior, or by failing to punish over-service, or by setting an excessively high minimum
sales quota without regard to the number of patrons.[10]
Finally, Slick Willie’s contends that the court of appeals erred in requiring Slick Willie’s to “prove enforcement of its
alcohol policies on a particular occasion to satisfy the third element of [section 106.14(a)].” 194 S.W.3d at 565. Slick
Willie’s argues that this requirement essentially deprives providers of the benefit of the safe harbor. We agree.
Section 106.14(a) does not contain a requirement that a provider—in addition to mandating that their employees
attend seller training—create a formal policy against over-service, and we decline to read one into the statute.[11]
Further, this provision is intended to relieve a provider of liability for the actions of an employee who, despite having
been trained and without encouragement from their employer, violates the law. A provider otherwise qualifying for
this protection, then, would need to invoke it only when its policy was not enforced—thus, under the court of
appeals’ interpretation, section 106.14(a) would be of no practical use. We conclude that a provider, after having
otherwise met its burden under section 106.14(a), is not required to demonstrate enforcement on the occasion
giving rise to the cause of action.
In support of its position on this issue, Slick Willie’s also argues that the term “employer” in section 106.14 does not
include managers. Such a reading, however, would allow corporate and absentee providers to claim safe harbor
protection even if the people they chose to run their establishments encouraged their employees to violate the law.
We think that the Legislature did not intend to create so broad an exemption from liability, and we agree with Parker
that for the purposes of section 106.14(a), “employer” includes “vice principals.” See Hammerly Oaks, Inc. v.
Edwards, 958 S.W.2d 387, 391 (Tex. 1997). This concept comes from the context of corporate liability for punitive
damages, and encompasses four classes of agents: (a) Corporate officers; (b) those who have authority to employ,
direct, and discharge servants of the master; (c) those engaged in the performance of nondelegable or absolute
duties of the master; and (d) those to whom a master has confided the management of the whole or a department or
division of his business.” Id. (internal citations omitted). Thus, if Watson, Slick Willie’s manager, is a vice-principal
under this standard, his acts, including any encouragement to serve obviously intoxicated patrons, would be
considered the acts of Slick Willie’s. Moreover, assuming without deciding that Watson was a vice-principal, Slick
Willie’s would not be able to assert safe harbor protection from any dram shop liability stemming from Watson’s over-
service because Watson would not be an employee within the terms of that provision.
Having addressed each of Slick Willie’s contentions, we now apply our holdings to the facts of this case. In reviewing
the trial court’s grant of summary judgment for Slick Willie’s, we take as true all evidence favorable to Parker,
indulging every reasonable inference and resolving any doubts in his favor. Provident Life & Accident Ins. Co. v.
Knott, 128 S.W.3d 211, 215 (Tex. 2003). As stated above, Slick Willie’s established the first two elements of section
106.14(a). Under the rule we announce today, this evidence is sufficient to satisfy Slick Willie’s burden. Thus, to
avoid summary judgment, Parker was required to present evidence of direct or indirect encouragement by Slick
Willie’s. Parker, on the record before us, has not done so. Parker argues that Watson is a vice-principal of Slick
Willie’s and that Watson’s violation of the bar’s free-drink policy—serving Parker two free drinks—constitutes
evidence of direct or indirect encouragement. There is no evidence, however, that Parker was already obviously
drunk when Watson served him. And serving two free drinks to a person who is not obviously intoxicated is neither a
violation of the Act nor does it encourage others to violate the Act. Thus, although any over-service or
encouragement of over-service on the part of Watson would indeed be imputed to Slick Willie’s if Watson is a vice-
principal, Parker has produced no evidence of any such over-service or encouragement.
We hold today that providers need not establish enforcement of their policies on the occasion giving rise to the suit,
and Parker has not produced any evidence that Slick Willie’s or its vice-principals either continued serving Parker or
Griffin after they were obviously intoxicated or directly or indirectly encouraged its employees to do so. We
recognize, however, that Parker could not have reasonably anticipated the standard we announce today. We
therefore reverse in part and remand to the trial court to allow Parker to conduct additional discovery and present
further evidence to be considered in accordance with our opinion. See, e.g., R.R. Street & Co. v. Pilgrim Enters.,
166 S.W.3d 232, 254-255 (Tex. 2005); Torrington Co. v. Stutzman, 46 S.W.3d 829, 840 (Tex. 2000).
III. Conclusion
We reverse in part the court of appeals’ judgment and remand this case to the trial court for further proceedings.
Tex. R. App. P. 60.2(f), 60.3.
______________________________
Wallace B. Jefferson
Chief Justice
OPINION DELIVERED: March 28, 2008
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[1] If, however, a provider fails to prove that it requires its employees to attend these training classes and that the
employee in question actually attended, the actions of that employee will be attributed to the provider even if the
plaintiff does not meet its burden.
[2] Chapter 2 of the Texas Alcoholic Beverage Code is commonly known as the Dram Shop Act. See Duenez, 237 S.
W.3d at
683.
[3] The Texas Restaurant Association, Texas Retailers Association, Texas Petroleum Marketers and Convenience
Store Association, and Texas Package Stores Association submitted an amicus curiae brief.
[4] Section 2.02(b) states that:
Providing, selling, or serving an alcoholic beverage may be made the basis of a statutory cause of action under this
chapter . . . upon proof that:
(1) at the time the provision occurred it was apparent to the provider that the individual being sold, served,
or provided with an alcoholic beverage was obviously intoxicated to the extent that he presented a clear danger to
himself and others; and
(2) the intoxication of the recipient of the alcoholic beverage was a proximate cause of the damages suffered.
Tex. Alco. Bev. Code § 2.02(b).
[5] Our research has not revealed any other state with a similar statute, and the parties have cited to none.
[6] The Act authorizes vicarious liability only if the provisions of section 106.14(a) are not satisfied. See Tex. Alco.
Bev. Code § 106.14(a) (“For purposes of this chapter . . . the actions of an employee shall not be attributable to the
employer if [the three requirements are met].”). This is in some ways similar to liability arising from the common law
doctrine of respondeat superior, under which “an employer is vicariously liable for the negligence of an agent or
employee acting within the scope of his or her agency or employment, although the principal or employer has not
personally committed a wrong.” Baptist Mem’l Hosp. Sys. v. Sampson, 969 S.W.2d 945, 947 (Tex. 1998). Generally,
to succeed on a respondeat superior theory, plaintiffs bear the burden of establishing that an employee acted within
the course and scope of his or her employment. See Leadon v. Kimbrough Bros. Lumber Co., 484 S.W.2d 567, 569
(Tex. 1972). Given the similarity between these theories of liability, it is appropriate that plaintiffs bear the burden of
showing encouragement to over-serve.
[7] "[A] person acts knowingly, or with knowledge, with respect to the nature of his conduct or to circumstances
surrounding his conduct when he is aware of the nature of his conduct or that the circumstances exist." Tex. Penal
Code § 6.03(b).
[8] We see no reason to create, as Slick Willie’s suggests, different standards for encouragement by acts as
opposed to omissions.
[9] This list is not exclusive, nor must the examples given constitute encouragement in every case.
[10] Plaintiffs will generally be able to argue that the provider’s behavior over time, rather than any one specific act
or omission, constituted encouragement to over-serve. Here, it would be difficult for Parker to make such an
argument in light of the fact that the incident took place on the bar’s opening night. Conceivably, however, Parker
could show that the relevant employees worked at other establishments owned by Slick Willie’s prior to the opening
of the Slick Willie’s in question and were encouraged to over-serve at those locations. Further, as discussed below,
Parker could attempt to show that Watson served him while Parker was obviously intoxicated, and that section
106.14(a) is inapplicable to Watson’s actions.
[11] We note, however, that the existence of such a policy would be a relevant circumstance in determining whether
a provider negligently encouraged its employees to serve obviously intoxicated persons.