Appellant Helen F. Castellow sued her employer, appellee Swiftex Manufacturing Corporation (Swiftex), for negligence that proximately caused injuries she incurred in the course of her employment. Swiftex is not a subscriber to workers’ compensation insurance but offers a private benefit plan that requires an employee to waive her common-law remedies for the employer’s negligence in causing on-the-job injuries. The trial court granted Swiftex’s motion for summary judgment which asserted waiver, ratification, and estoppel. The sole issue appellant raises on appeal is whether the waiver Castellow signed is unenforceable because it violates public policy. We hold that the waiver thwarts the intent of the legislature embodied in the statutory workers’ compensation scheme and reverse the trial court’s summary judgment in favor of Swiftex.
FACTS AND PROCEDURAL HISTORY
Castellow was hired in January 1998. Swiftex did not subscribe to workers’ compensation insurance but instead offered its own “Employee Safety Program Benefit Plan” (the Plan). The parties stipulate that participation in the Plan was volun *894 tary but required a waiver of all common-law remedies against Swiftex for on-the-job injuries. Castellow elected to participate in the Plan and signed the waiver, relinquishing her right to sue Swiftex or its employees for injuries or death sustained in the course of her employment that resulted from the sole or concurrent negligence of Swiftex. The waiver provided in bold language, “My only remedy will be to receive benefits under the Plan.”
In February 1999, Castellow was injured after tripping over a cord in her work area, which she described as “small and cramped.” Castellow made a claim and received medical and wage replacement benefits under the Plan. She has never paid back any of these benefits.
Ignoring the terms of the waiver, Cas-tellow filed this suit in June 1999 alleging that Swiftex’s negligence in failing to provide a safe work environment proximately caused her injuries. In September, Swif-tex filed a motion for summary judgment asserting that Castellow’s claims were barred because she had agreed to waive her claims by voluntarily electing to participate in the Plan; that she ratified the waiver by accepting and not returning, or offering to return, the benefits she received; and that she is estopped from adopting an inconsistent position by suing Swiftex.
Castellow did not file a response or appear at the summary-judgment hearing. The trial court granted Swiftex’s motion on November 3, 1999, without stating its grounds. Castellow filed a response to the motion for summary judgment on December 16. On January 6, 2000, Castellow appealed the court’s granting summary judgment, and on January 24, she filed a motion for new trial.
DISCUSSION
Because the propriety of a summary judgment is a question of law, we review the trial court’s decision
de novo. Natividad v. Alexsis, Inc.,
(1) the movant must show there is no genuine issue of material fact and that it is entitled to judgment as a matter of law;
(2) in deciding whether there is a disputed material fact issue precluding summary judgment, the court must take evidence favorable to the nonmovant as true; and
(3) the court must indulge every reasonable inference in favor of the nonmovant and resolve any doubts in the nonmovant’s favor.
Nixon v. Mr. Property Management Co.,
Castellow’s sole challenge to the summary judgment in Swiftex’s favor is her assertion that the waiver she signed is unenforceable because its terms are contrary to public policy. Whether an agreement violates public policy is a question of law, which we review
de novo. Reyes v. Storage & Processors, Inc.,
Preservation of Error
Swiftex argues that Castellow failed to preserve error in two ways: first, by failing to appeal all three points on which the summary judgment could have been based; and second, by not presenting the issue on appeal to the trial court prior to its ruling on the motion for summary judgment.
*895
Swiftex maintains that the summary-judgment must be affirmed because Cas-tellow failed to attack every possible ground upon which the trial court based its summary judgment and she did not assert a general assignment of error in granting the summary judgment.
See Malooly Bros., Inc. v. Napier,
Next, Swiftex argues that Castel-low failed to present to the trial court, in writing, her contention that the waiver is unenforceable prior to the hearing on Swif-tex’s motion for summary judgment. The non-movant must expressly present to the trial court, by written answer or response to the motion, those issues that would defeat the movant’s right to a summary judgment.
City of Houston v. Clear Creek Basin Auth.,
In her motion for new trial, Castellow asserted that, as a matter of law, the waiver she signed is unenforceable because it offends public policy. Her motion for new trial was overruled by operation of law.
See
Tex.R.Civ.P. 329b(b). She was not required to file an answer to the motion for summary judgment to preserve her contention that the grounds for summary judgment are insufficient as a matter of law.
See Guzman v. Carnevale,
Enforceability of the Waiver
Castellow asserts that the waiver undermines the purpose and structure of the Workers’ Compensation Act and is therefore contrary to public policy. See Tex.Lab.Code Ann. §§ 401.001-418.002 (West 1996 & Supp.2000). She states that because Swiftex’s Plan provides fewer benefits to the injured worker while granting the employer greater immunity from liability than the Act, the waiver provision should be held unenforceable as against public policy. Swiftex, on the other hand, maintains that the waiver is “purely a matter of contract and the rights and obligations are to be measured by the contract.”
A court can declare a contract void as against public policy and refuse to enforce it.
Williams v. Patton,
Prior to 1913, when the first workers’ compensation legislation was enacted in Texas, employees injured on the job were often denied recovery.
Texas Workers’ Comp. Comm’n v. Garcia,
The core concept of the Act is the assurance that injured employees either have access to the courts to seek redress for wrongs or receive adequate substitute remedies.
See id.
at 520-21. The Texas Constitution provides an “open courts” guarantee: “All courts shall be open, and every person for an injury done him, in his lands, goods, person or reputation, shall have remedy by due course of law.” Tex. Const, art. I, § 13. Legislative action that withdraws common-law remedies for well-established, common-law causes of action satisfies the constitutional open-courts guarantee only when it is reasonable in substituting other remedies.
1
Garcia,
The Act was enacted primarily for the benefit and protection of employees.
Hazelwood v. Mandrell Indus. Co.,
*897
Swiftex maintains that the waiver executed by Castellow, accepting benefits under its Plan in place of her common-law remedies, is not against public policy. Generally, voluntary workers’ compensation is a matter of contract.
Reyes,
Conversely, voluntary workers’ compensation contracts have been held void as against public policy when they reduced either statutory or common-law rights of employees. In 1916, the supreme court found a contract in which the employee expressly assumed the risk of injury “so abhorrent that it is held to be in violation of public policy and void.”
Barnhart v. Kansas City, M. & O. Ry. Co. of Tex.,
For support, Swiftex cites several cases in which the courts have held that waivers associated with voluntary benefit plans were valid and enforceable contracts.
See Wolfe v.C.S.P.H., Inc.,
It is no surprise that this
quid pro quo
policy has remained unchanged over time, because the Act would be unconstitutional if it did not substitute an adequate remedy for the employee’s common-law right to sue her employer.
See Garcia,
We agree with the Lawrence court that the quid pro quo expressed in the Act represents the public policy intended by *898 the legislature. We disagree that employers may, by contract, establish their own private quid pro quo policy and ignore the carefully constructed benefit level approved by the legislature. Contracts that afford to the employee fewer benefits than the statutory scheme, or require giving up more substantial legal remedies than the Act, run the danger of contravening public policy and violating the employee’s open-court rights.
Swiftex contends that the Act prevents nonsubscribing employers from asserting certain common-law defenses, and waiver is not listed among them. See Tex.Lab. Code Ann. § 406.033 (West 1996). The pertinent sections of the Act are as follows:
(a) In an action against an employer who does not have workers’ compensation insurance coverage to recover damages for personal injuries or death sustained by an employee in the course and scope of the employment, it is not a defense that:
(1) the employee was guilty of contributory negligence;
(2) the employee assumed the risk of injury or death; or
(3) the injury or death was caused by the negligence of a fellow employee.
(b) This section does not reinstate or otherwise affect the availability of defenses at common law, including the defenses described by Subsection (a).
(c) The employer may defend the action on the ground that the injury was caused:
(1) by an act of the employee intended to bring about the injury; or
(2) while the employee was in a state of intoxication.
Id.
The cardinal rule of statutory construction is to ascertain and follow the legislature’s intent.
Citizens Bank v. First State Bank, Hearne,
We presume that a statute passed by the legislature is constitutional.
HL Farm Corp. v. Self,
Swiftex relies on the seventh court of appeals’ reasoning that section 406.003(a) provides evidence that the legislature did not intend to deprive employers of the defense of waiver.
See Lawrence,
The seventh court of appeals noted that section 406.035 provides that an agreement by an employee to waive the right to compensation is void.
2
Lawrence,
The supreme court explained that section 406.033(c) identifies the two defenses upon which employers
may
rely: that the employee intended to bring about the injury, or the injury occurred while the employee was intoxicated. Tex.Lab.Code Ann. § 406.033(c);
Kroger,
The term “waiver” is simply not found in section 406.033, either as a prohibited defense or as a permitted defense. We need not read it into the statute in either subsection to determine if the waiver at issue here is void because it violates public policy. The structure of section 406.033, nonetheless, provides insight to the important legislative intent of delineating “explicitly the structure of an employee’s personal-injury action against his or her nonsub-scribing employer.”
3
Kroger,
In Kroger, the supreme court determined whether section 406.033(a) prohibited the common-law defense of comparative responsibility even though it was not included in the list of prohibited defenses. The court explained that the legislature intended to encourage employers to obtain workers’ compensation insurance; therefore, it enacted section 406.033 as a “penalty provision” that penalizes nonsubscribers by precluding them from asserting certain common-law defenses in their employees’ personal-injury actions. Id. at 350.
Comparative responsibility also is not listed in section 406.033(c) as an available defense.
Id.; cf.
Tex.Lab.Code Ann. § 406.033(c). The supreme court refused to add it to subsection (c) stating, “[t]o construe section 406.033 [as adding comparative responsibility as an available defense] would be to supply by implication restrictions on an employee’s rights that are not found in section 406.033’s plain language.”
Kroger,
Similarly, we cannot by implication read waiver into section 406.003 as a defense that is available to employers. Because we must not construe the statute in a way that would render it unconstitutional, we refuse to read section 406.033 as holding that every waiver associated with every private benefit plan is a defense available to employers sued for negligence.
See Citizens Bank,
The public interest in protecting employees, as embodied in the Act, requires that voluntary contracts, such as the one here, be in accord with the intent of the legislature as reflected in the Act.
See Hazelwood,
The Workers’ Compensation Act provides medical benefits for health care that cures or relieves the injured employee of the effects of the injury, that promotes recovery, or that enhances the ability of the employee to return to or retain employment. Tex.Lab.Code Ann. § 408.021(a) (West 1996). Under Swiftex’s Plan, medical benefits terminate at the point — which the Plan refers to as “maximum rehabilitative capacity” — when Swif-tex’s designated physician determines the injured employee will not improve substantially as a result of additional medical treatment or physical therapy. 4
The Act provides wage replacement during convalescence based on seventy percent of the difference between the claimant’s average weekly wage and the post-injury weekly earnings until the date of maximum medical improvement. 5 Tex. Lab.Code Ann. §§ 408.102(a), .103(a)(1) (West 1996). Swiftex’s Plan provides wage replacement according to the following formulas: for the first week, eighty-five percent x average hours x average wage; thereafter, seventy-five percent of the average hourly wage. The benefits terminate when the employee reaches maximum *901 rehabilitative capacity, when the treating physician releases the employee to return to either &11 or part-time work, either regular or modified duty, or when the Plan administrator determines that the benefits should be terminated in accordance with the Plan. The Act also provides impairment income, supplemental income, and lifetime income benefits. Tex.Lab.Code Ann. §§ 408.121, .142 (West 1996) & § 408.161 (West Supp.2000). The Plan offers no comparable benefits.
The Act allows “recovery of exemplary damages by the surviving spouse or heirs of the body of a deceased employee whose death was caused by an intentional act or omission of the employer or by the employer’s gross negligence.” Tex.Lab. Code Ann. § 408.001(b) (West 1996). The Plan, conversely, prohibits death claims caused by gross negligence. The fact that this provision does not apply to Castellow is not determinative of whether the waiver is unenforceable.
See Hazelwood,
When the balance developed by the legislature is “tipped so that the employee’s benefits under the statute are substantially reduced, the clear intent of the legislature is thwarted.”
See id.; accord Reyes,
CONCLUSION
Because the waiver executed by Castel-low is void as against public policy, the trial court erred in granting summary judgment in favor of Swiftex. We therefore reverse the trial court’s judgment and remand the cause to that court for further proceedings.
Notes
. Common-law remedies also may be restricted when the limitation is a reasonable exercise of the police power in the interest of the general welfare, or the legislature has left a reasonable alternative at common law.
Texas Workers’ Comp. Comm’n v. Garcia,
. Section 406.035 applies only to employees of subscribing employers. Reyes v. Storage & Processors, Inc., 995 S.W.2d 722, 726 (Tex.App.—San Antonio 1999, pet. denied).
. Subsection (a) lists defenses that are unavailable to an employer; subsection (c) dictates the defenses that an employer may use; and subsection (d) provides the employee’s burden of proof. Tex.Lab.Code Ann. § 406.033(a), (c), (d) (West 1996);
Kroger Co.
v.
Keng,
. The Act relies on a similar point in time, "maximum medical improvement,” in determining certain benefits, but not medical benefits. Tex.Lab.Code Ann. § 401.011(30) (West Supp.2000) & § 408.101(a) (West 1996). Cf. id. § 408.021 (West 1996).
. Temporary income benefits may also be measured as equal to seventy-five percent of the difference between the claimant's average weekly wage and the post-injury weekly earnings when the employee earns less than $8.50 an hour. Tex.Lab.Code Ann. § 408.103(a)(2) (West 1996). "Maximum medical improvement” is defined as the earlier of:
(A) the earliest date after which, based on reasonable medical probability, further material recovery from or lasting improvement to an injury can no longer reasonably be anticipated; or
(B) the expiration of 104 weeks from the date on which income benefits begin to accrue; or
(C) the date determined [by statute for spinal surgery].
Id. § 401.011(30).
