Thе City of San Antonio appeals an adverse judgment for damages based on a jury finding of inverse condemnation. The jury found that a city drainage and street project in front of plaintiff Guidry’s barbecue restaurant was unduly delayed and caused a temporary limited restriction of access to the premises. The jury assessed Guidry’s damages at $220,000. The City contends that (1) the issue of inverse condemnation was a question of law that should not have been submitted to the jury, (2) in any event the court erred in refusing to give certain jury instructions concerning inverse condemnation, (3) there is insuffiсient evidence of inverse condemnation, (4) two jury answers are in irreconcilable conflict, and (5) the damages question was improperly submitted. We affirm the judgment.
In June 1985 the city commenced construction of drainage and street improvements on Jackson-Keller Road. Guidry’s restaurant was situated in the middle of the block, and while the construction took place, access to his restaurant was obstructed in varying degrees by barricades on Jackson-Keller Road, by trenches, stacks of pipe, piles of dirt and asphalt near his restaurant, and by heаvy equipment on his parking lot. There was conflicting evidence as to whether on one or two occasions the blockage was total, but at all other times one could reach the premises by vehicle. Guidry presented evidence that completion of the project was unduly delayed, and that as a result he lost profits and eventually went out of business.
Guidry brought suit against the City and its contractor, South Texas Construction Company. The court submitted five theories of liability against South Texas and three against the City. 1 The jury answered several liability questions adversely to South Texas, which settled with Guidry after verdict and is no longer involved in this suit. The jury found in the City’s favor on all liability issues except inverse condemnation. The court rendered judgment for Guidry on the verdict.
I. INVERSE CONDEMNATION AS A QUESTION OF LAW.
Inverse condemnation occurs when property has been taken or damaged for a public purpose without formal condemnation proceedings, and the landowner initiates a suit for compensation.
See City of Abilene v. Burk Royalty Co.,
(1) those in which there was a total restriction of access for either a temporary or a permanent period of time; (2) those in which there was a partial restriction of access for a temporary period of time; and (3) those in which the activity causing the restriction of access was illegal, unreasonable or unnecessary.
Id. at 12 (emphasis added). 4 Later in the opinion the court summarized the inverse condemnation cause of action somewhat differently:
[In] order to show a material and substantial interference with access to one’s property, it is necessary to show that there has been [1] a total but temporary restriction of access; or [2] a partial but permanent restriction of access; or [3] a temporary limited restriction of access brought about by an illegal activity or one that is negligently performed or unduly delayed.
Id. at 13 (emphasis added). Guidry alleged a cause оf action under category three, and the jury found a “temporary limited restriction of access” brought about by a construction project that was “unduly delayed.”
The City first contends that whether there has been an inverse condemnation is a question of law for the court. A long line of cases has so held, at least in lawsuits challenging a governmental body’s decision about land use. When governmental land use decisions have caused a partial but permanent alteration of traffic patterns, the supreme court has consistently held that whether there hаs been a material and substantial impairment of access (which is compensable) or merely a diversion to a more circuitous route of access (which is not compensable) is a question of law, not a question of fact.
State v. Wood Oil Distr., Inc.,
In contrast, when the lawsuit challenges not the policy decision of a legislative body but, as in this case, the care and diligence with which thаt decision has been carried out on the job site, we think that a different rule applies. In such cases the issues are appropriate for a jury and should not be resolved as questions of law by the court.
In
City of Austin v. Avenue Corp.,
the supreme court reviewed an award of damages in a temporary obstruction case similar to our own without discussing whether the liability question should be decided by the court or by the jury. There a public works project had impaired access to a
In
L-M-S Inc. v. Blackwell,
Petitioners [the defendant contractors], acting under the permit given by the City of Dallas, had the right to reasonably obstruct the street in constructing the 15-story building. Whether the placing of the obstructions in the street in this instance was reasonable or unreasonable was a question for the jury to determine under all the facts and circumstances of the case.
Ordinarily questions such as whether work was performed with diligence and with due care are triable to a jury, while the review of a legislative body’s decision to undertake the particular project is a question of law for the court. Guidry’s count for inverse condemnation alleged temporary impairments causеd by construction activity that was “negligently performed or unduly delayed.”
5
See City of Austin v. Avenue Corp.,
In suits such as this, the landowner is seeking to hold the City liable for negligence or undue delay caused by the City’s contractor. The City apparently contemplates a trial in which its liability for its contractor’s negligence and delay would be litigated nonjury as a question of law, but it does not explain whether the contrаctor’s liability for the same conduct would be tried to a jury or to the court. It is certainly possible to try some issues in a case to the court and others to a jury. See, e.g., 9 C. WRIGHT & A. MILLER, FEDERAL PRACTICE AND PROCEDURE §§ 2336-2337 (1971). But that would be difficult when the conduct for which the City is potentially liable is the conduct of a contractor concerning whose liability both the plaintiff and the contractor have a right to jury trial. If the jury found the contractor liable for undue delay, under the City’s view apparently the court could nevertheless decide that the city was not liable for undue delay.
It is true that many cases have said that the court and not the jury decides whether
We conclude that the city’s liability for impairing access to Guidry’s restaurant for an unduly long period of time during construction was a jury question and not a law question under the above and other similar decisions. The trial court correctly declined to deсide as a question of law whether the temporary impairment of access constituted an inverse condemnation.
II. JURY INSTRUCTIONS.
The next question is whether the court properly submitted the inverse condemnation theory to the jury. The City contends that several instructions should have been given. Question One read as follows (emphasis added):
Do you find from a preponderance of the evidence that there was a temporary limited restriction of access to [Guidry’s] restaurant brought about by construction which was unduly delayed by the Defendants, City of San Antonio and the South Texas Construction Company?
Answer, “We do” or “We do not.” We, the Jury, answer: [We do]
A. Diversion to circuitous routes.
The City sought an instruction stating in essence that it was not liable for damages caused when Guidry’s customers had to take more circuitous routes to reach the restaurant.
6
The requested instruction is based on the many cases holding that damage caused merely by diverting traffic to a more circuitous route is not compensable.
See State v. Wood Oil Distr., Inc.,
751 5.W.2d at 865 (citing four supreme court cases);
DuPuy v. City of Waco,
We think thаt the tendered instruction was not a proper statement of the law in this case of temporary restriction of access. It is true that failure to give such an instruction in connection with the damages issue in a case involving permanent restriction of access has been held to be reversible error:
[I]t was harmful error to fail to instruct the jury that the diversion of traffic from the old to the new and the “circuity of travel” cannot constitute a deprivation of reasonable access. Diversion of traffic resulting in the necessity of using circuitous routes is not compensable. [Citations omitted]. A special instruction would have adequately informed the jury that it could not consider suсh evidence in determining the market value of plaintiffs property.
City of Beaumont v. Marks,
In this temporary restriction case, however, we think that diversion to circuitous routes can be compensable for the length of time that the project is unduly delayed. To hold otherwise would allow a governmental unit to divert traffic unnecessarily and for unreasonable lengths of time without paying compensation for damage to the property owner’s business, provided that customers could somehow make their way onto the premises. We think it is implicit in Avenue Corp. that the City cannot divert traffic and impede access to the property for аn unduly long period without paying just compensation. Because the requested instruction did not correctly state the law, it was properly denied. TEX.R. CIV.P. 278.
B. Material and substantial interference.
The City also requested an instruction stating in effect that a temporary lim
We agree with the City that the court should have instructed the jury that Guidry must prove a material and substantial restriction of access. But we hold that the requested instruction was not in substantially correct form and therefore was properly refused. As we read the supreme court’s opinion in Avenue Corp., it does not make compensable each and every temporary restriction of access caused by unnecessary delay. Most public works projects impair to some extent access to the adjoining land. Such restrictions do not rise to the level of compensable takings unless they are material and substantial. In the passage from Avenue Corp. quoted earlier in this opinion, the court did not say that undue delay by itself suffices to establish a material and substantial interference. The court seems to have taken for granted the settled principle that an inverse condemnation plaintiff must show a material and substantial interference with access.
An inverse condemnation lawsuit is a claim that property has been taken without compensation in violation of the constitution. Article 1 § 17 of the Texas Constitution provides, “No person’s property shall be taken, damaged or destroyed for or applied to public use without adequate compensаtion being made.... ” In a long line of cases applying this provision to impairments of access, the supreme court has held that compensation is not required for each and every impairment. In seminal companion cases, the court held that one project in Waco caused compensable damage to one landowner but not to his neighbor, who suffered less impairment.
Compare DuPuy v. City of Waco,
The question in such cases is whether the landowner’s “access rights have been impaired
to an extent
which constitutes damage to property for a public use under Article I, Sec. 17, of the Constitution of Texas.”
DuPuy v. City of Waco,
But the last part of the city’s requested instruction went beyond the constitutional requirement of a material and substantial impairment and would also have required a finding that the obstructions and street barricades were unreasonable or unnecessary. We do not interpret the authorities to require such a finding in a temporary obstruction case of undue delay. On the contrary, damage caused by reasonable and necessary temporary obstructions can be compensable, provided the obstructions cause substantial and material denials of access for an unduly prolonged period of
III.SUFFICIENCY OF THE EVIDENCE.
The city сomplains that there is legally insufficient evidence to support the jury’s finding of inverse condemnation.
8
Question One asked whether the construction had caused a temporary limited restriction of access that was unduly delayed. To establish a taking of constitutional dimension, we have held that Guidry also had to prove that the interference with his access was material and substantial.
See City of Austin v. Avenue Corp.,
IV.CONFLICTING JURY ANSWERS.
The city argues that the jury’s answers to questions one and six are in irreconcilable conflict. Question One established that “there was a temporary limited restriction of access to Frenchie’s restaurant which was unduly delayed by the Defendants.” In Question Six the jury failed to find that the city had breached any obligations under the contract in question, which requirеd the contractor to maintain access to the restaurant at all times. In its answer to Question Six, says the city, the jury impliedly found that it did not deny access.
The two answers are not in conflict and can be easily reconciled.
See Bender v. Southern Pac. Transp. Co.,
V.DAMAGES.
Concerning damages, the city argues that (1) the awards for lost profits and destruction of Guidry’s business overlap and constitute a double recovery, and (2) the court should have submitted two instructions that it requested. 9
The city complains that the charge permitted Guidry double recovery for lost profits and the loss in value of his business. It is certainly true that Guidry could not lawfully recover for the two kinds of damages during the same time period. After the business was destroyed, he could recover its market value but not lost prоfits.
See Sawyer v. Fitts,
Question Nine of the charge gave the jury the opportunity to award damages for destruction of Guidry’s business and also for lost profits. The part of question nine that dealt with lost profits instructed the jury not to include any amount that it may have awarded for destruction of the business. While this instruction could have stated the law more adequately, it was within the court’s discretion.
10
See French v. Grigsby,
The city next argues that the сharge did not restrict the award to lost profits
during the temporary interruption of
business.
11
The court in
Hart Bros. v. Dallas County,
The city also assigns as error the court’s refusal of its tendered instruction about mitigation оf damages. The city suggested at trial that Guidry should have closed his Jackson-Keller location and opened his restaurant elsewhere, but there was no evidence to show how long it would have taken Guidry to relocate, what the move would have cost, or how successful he might have been at another location.
We hold that the rule of avoidable consequences, or mitigation of damages, applies in inverse condemnation cases involving temporary obstruction of access,
13
but that the city did not present legally sufficient proof to require its submission. The mitigation doctrine requires that an injured party exercise reasonable care to minimize his damages.
Geotech Energy Corp. v. Gulf States Telecommunications & Information Sys., Inc.,
We have considered all of the City’s points and have found no reversible error. The judgment is affirmed.
Notes
. The court submitted six separate theories of recovery: (1) negligence and (2) breach of construction contract to which Guidry was a third-party beneficiary against both defendants; (3) breach of agreement to provide constant access, (4) gross negligence, and (5) misrepresentation against South Texas alone; and (6) inverse condemnation against the City alone.
. Similarly, the United States Supreme Court uses the term "inverse condemnation” as "a shorthand description of the manner in which a landowner recovers just compensation for a taking of his property when condemnation proceedings have not been instituted.”
United States v. Clarke,
.According to Nichols, the general rule of non-compensation is "a matter of public necessity” that recognizes "the impossibility of constructing a subway or a sewer or of laying water-pipe in the streets of the business section of a city without in some degree interfering with access tо abutting property." 2A NICHOLS ON EMINENT DOMAIN § 6.36[2], at 6-289-290 (3d ed. 1990). Nichols states the exceptions to the general rule in terms that are essentially the same as those in Texas:
However, if as a result of negligence, the time for the completion of the project is unduly and unreasonably prolonged, thereby continuing interference with business for an unnecessary length of time, a cause of actionfor damages arises against the government. The inconvenience and damage which a property owner suffers from temporary obstructions are incident to city life and must be endured. The law gives him no relief, recognizing that he recoups his damage in the benefit which he shares with the general public in the ultimate improvement which is being made. However, if the temporary obstruction is a result of unreasonable, unnecessary, arbitrary or capricious acts or conduct by the one in charge of the improvement or construction, the abutting landowner has a right of action for damages resulting from such interference with access to his property.
Id. at 6-289-291 (3d ed. 1990) (citations omitted).
. The court might have added a fourth category for cases of permanent partiаl impairment of access.
See, e.g., DuPuy v. City of Waco,
. The city has not contended that the submission of undue delay (question one) and negligence (question two) as two separate jury questions amounted to submission of the same theory twice, and we express no opinion on the matter.
Avenue Corp.
spoke of a temporary limited restriction of access “that is negligently performed or unduly delayed.”
This case does not involve the principle that construction activities that cause damage to land, or to the structures or crops on it, are issues of tort and not condemnation.
See City of Abilene v. Burk Royalty Co.,
. The requested instruction read as follows: You are instructed that diversion of traffic resulting in the necessity of vehicles using circuitous routes does not constitute a temporary limited restriction of access.
. The requested instruction read as follows: You are further instructed that the placement or creation of barricades and obstructions does not constitute a temporary limited restriction of access unless such barricades and obstructions materially and substantially impair access and that [sic] it was unreasonable or unnecessary to place or create such barricades or obstructions.
. The City’s factual sufficiency contention was not preserved by motion for new trial and has therefore been waived. TEX.R.CIV.P. 324(b)(2).
. The city also argues that there is insufficient evidence to support the finding of lost profits, but that argument was not preserved in the trial court. The city did not preserve factual insufficiency because it did not urge such a point in a motion for new trial, as TEX.R.CIV.P. 324(b)(2) requires. Nor did it preserve its legal sufficiency argument by any of the five procedural devices recognized by the rules.
See Aero Energy, Inc. v. Circle C Drilling Co.,
The city did file a response to Guidry’s motion for judgment, which simply said that the lost profits were not supported by the evidence because Guidry was a month-to-month tenant and
. Question Nine asked about damages for two elements: (a) destruction of business, as defined, and (b) "Lost profits, but do not include any amount you may have included in response to your answer to part (a) above.” The instruction approved in
French v. Grigsby,
. The city requested the following instruction: You are instructed that the “lost profits” referred to in issue No. 9 are limited to those suffered by Frenсhie Guidry during the interruption, if any, of his business as a result of Defendant's construction activities.
We note that the city did not ask the court to instruct the jury to limit Guidry’s compensation to damages sustained
after
the time that the project would have been completed if reasonably performed. The city was entitled to restrict access for a reasonable length of time, for which Guidry had no right to relief.
See City of Austin v. Avenue Corp.,
.There is no contention that the award fails to satisfy the requirement that damages for lost profits must be established with reasonable certainty.
See White v. Southwestern Bell Tel. Co.,
. For pattern instructions and supporting authorities in personal injury cases, see 1 STATE BAR OF TEXAS, TEXAS PATTERN JURY CHARGES PJC 7.09 (1987) and 3 STATE BAR OF TEXAS, TEXAS PATTERN JURY CHARGES PJC 80.09 (1990).
