Court of Appeals of Indiana | Opinion 45A03-1404-PL-125 | July 13, 2015 Page 1 of 22

ATTORNEYS FOR APPELLANT

SANITARY DISTRICT OF THE CITY 

OF HAMMOND, INDIANA

A. Scott Chinn

Jane Dall Wilson

Timothy J. Moriarty

Faegre Baker & Daniels LLP

Indianapolis, Indiana

Joseph P. Allegretti

Sanitary District of the City of 

Hammond

Munster, Indiana

ATTORNEYS FOR CROSS-APPELLEE 

CITY OF HAMMOND, INDIANA

Kristina C. Kantar

City of Hammond Law Department

Hammond, Indiana

Kevin C. Smith

Smith Sersic

Munster, Indiana

ATTORNEYS FOR APPELLEE TOWN 

OF GRIFFITH, INDIANA, ET AL.

Nicholas K. Kile

Bart A. Karwath

Barnes & Thornburg LLP

Indianapolis, Indiana

ATTORNEYS FOR APPELLEE TOWN 

OF HIGHLAND, INDIANA, ET AL.

Brian W. Welch

Margaret M. Christensen

Bingham Greenebaum Doll LLP

Indianapolis, Indiana

Robert F. Tweedle

Law Offices of Robert F. Tweedle

Highland, Indiana

Rhett L. Tauber 

Jared R. Tauber

Tauber Law Offices

Schererville, Indiana

ATTORNEYS FOR 

APPELLEE/CROSS-APPELLANTS 

CITY OF WHITING, INDIANA, ET 

AL.

Michael A. Wukmer

Thomas K. Downs

Mark R. Alson

Audrey K. Hagedorn

Ice Miller LLP

Indianapolis, Indiana

William T. Enslen

Enslen, Enslen & Matthews

Hammond, Indiana
Court of Appeals of Indiana | Opinion 45A03-1404-PL-125 | July 13, 2015 Page 2 of 22

I N T H E

COURT OF APPEALS OF INDIANA

Sanitary District of the City of 

Hammond, Indiana and the City 

of Hammond, Indiana,

1

Appellants-Defendants,

v.

Town of Griffith, Indiana; Town 

of Highland, Indiana, et al.; and 

City of Whiting, Indiana, et al.,

Appellees-Plaintiffs,

and

City of Whiting, Indiana, et al.,

Cross-Appellant-Plaintiff,

v.

City of Hammond, Indiana,

Cross-Appellee-Defendant.

July 13, 2015

Court of Appeals Case No.

45A03-1404-PL-125

Appeal from the 

Lake Superior Court

The Honorable John M. Sedia, Judge

Cause Nos. 45D01-1309-PL-79, 

45D01-1309-PL-83, 

45D01-1309-PL-85

Kirsch, Judge.

 

1 We note that the trial court granted the City of Hammond’s motion to dismiss it from the case. However, 

“[u]nder Indiana Appellate Rule 17(A), ‘[a] party of record in the trial court or Administrative Agency shall 

be a party on appeal.’” Hoosier Outdoor Adver. Corp. v. RBL Mgmt., Inc., 844 N.E.2d 157, 162 (Ind. Ct. App.

2006) (quoting Ind. Appellate Rule 17(A)). 
Court of Appeals of Indiana | Opinion 45A03-1404-PL-125 | July 13, 2015 Page 3 of 22

[1] This case focuses on whether the Sanitary District of the City of Hammond, 

Indiana (“the District”) had the authority to cancel three long-term wastewater 

services contracts between it and the Town of Griffith, Indiana, the Town of 

Highland, Indiana, and the City of Whiting, Indiana (collectively “the 

Customer Communities”). Claiming that the contracts had become financially 

untenable and that the Customer Communities would not agree to reform the 

contracts, the District made a formal finding under Indiana Code section 5-22-

17-5 that funds were not appropriated or otherwise available to support the 

continuation of performance of the contracts and passed a resolution cancelling 

the contracts. The Customer Communities sued the District and filed motions 

for summary judgment and judgment on the pleadings. The trial court granted 

the motions and held that the District exceeded its statutory authority when it 

passed the resolution, that the resolution purporting to cancel the contracts had 

no effect, and that the contracts were to remain in full force. The trial court 

ordered the parties to arbitrate all disputes arising under the contracts. The 

District appeals, raising the following restated issues for our review:

I. Whether the trial court erred in holding that the District was not 

statutorily authorized to cancel the wastewater services contracts

pursuant to Indiana Code section 5-22-17-5(a); and

II. Whether the trial court erred in ordering the parties into arbitration 

rather than conducting judicial review where there is no dispute as to 

performance under the Treatment Agreements.
Court of Appeals of Indiana | Opinion 45A03-1404-PL-125 | July 13, 2015 Page 4 of 22

[2] We affirm.2 

Facts and Procedural History3

[3] The District is a municipal corporation and statutorily-created special taxing 

district, which is comprised of the City of Hammond (“Hammond”) and the 

Town of Munster. The District operates a publicly-owned treatment works 

facility for the collection and treatment of sanitary sewage wastewater. In 1994, 

the District entered into individual wastewater collection and treatment 

agreements with the Town of Griffith (“Griffith”) and the Town of Highland 

(“Highland”) and, in 1995, with the City of Whiting (“Whiting”) (we will refer 

to the agreements collectively as “the Treatment Agreements”). Under the 

Treatment Agreements, the District accepted and treated wastewater from each 

of the Customer Communities. The current terms of each contract expire on 

December 31, 2018, with an option for the Customer Communities to extend 

the Treatment Agreements for an additional twenty-five years, through 2043.

[4] Under the Treatment Agreements, the District was required to (1) “establish a 

user charge system which assures that each recipient of waste treatment services 

 

2 The City of Whiting files a cross-appeal and raises the following restated and consolidated issue: whether 

the trial court erred in dismissing the City of Hammond from the litigation and in refusing to allow Whiting 

to conduct discovery before dismissing the City of Hammond. As we are affirming the trial court, we find 

that Whiting’s cross-appeal is moot.

3 Oral argument was heard on this case on February 11, 2015 in Indianapolis. We commend counsel on the 

quality of their written and oral advocacy.
Court of Appeals of Indiana | Opinion 45A03-1404-PL-125 | July 13, 2015 Page 5 of 22

will pay its proportionate share of the costs of operations and maintenance,” 

such payment is proportionate to the user’s contribution to the total wastewater 

system, (2) “review its user charges annually and revise them periodically to 

reflect actual treatment works operation and maintenance cost,” and (3) 

“generate sufficient revenue to offset the cost of all treatment works operation 

and maintenance.” Appellant’s App. at 46-47, 109-10, 449-50. The Treatment 

Agreements further provided that the Customer Communities “shall pay [their] 

fair share of the annual operation and maintenance costs, including 

replacement costs and payment-in-lieu of taxes, and capital costs not financed 

by debt, in proportion to [their] use of the facilities.” Id. at 56, 119, 459. The 

Treatment Agreements also contained provisions regarding procedures and 

methodologies by which the charges to the Customer Communities for 

operation and maintenance costs and capital costs would be modified, relating 

to and governing water flow, and addressing emergency water flow situations, 

where wastewater would be held in holding basins owned by the Customer 

Communities to reduce the flow into the District’s system. Id. at 56-69, 119-33, 

459-72. The Treatment Agreements additionally provided that any 

disagreements under the agreements must be submitted to binding arbitration. 

Id. at 69-71, 133-35, 472-74. 

[5] In a letter dated July 25, 2013, the District, through its legal counsel, sent notice 

to the Customer Communities “of the need to renegotiate the material terms 

and conditions” of the Treatment Agreements. Id. at 80, 143, 481. The letter 

provided that if the District and the Customer Communities could not 
Court of Appeals of Indiana | Opinion 45A03-1404-PL-125 | July 13, 2015 Page 6 of 22

“successfully negotiate new terms that address certain changed circumstances 

and current realities the [District’s] system is facing and provide sufficient 

revenue for system operation and improvements, then [the District] must avail 

itself of all contractual and legal remedies regarding the existing [Treatment 

Agreements].” Id. at 80, 143, 481. The letter further asserted that the Customer 

Communities (1) had exceeded their contract capacities for water flow, which 

was negatively impacting the District’s system, (2) were not contributing to the 

costs of certain capital projects, (3) had rates that were lower than the rates 

charged to Hammond’s own residents, and (4) were being subsidized by the 

District. Id. at 80-81, 143-44, 481-82. The District stated that a rate increase 

was required from the Customer Communities “under a new contractual 

agreement” and notified of its intent “to enforce the flow limitation by 

mechanically restricting the [Customer Communities’] flow into [the District.]” 

Id. at 81, 144, 482. The District further stated it would no longer execute any 

sanitary sewer certifications to permit new sewer connections in the Customer 

Communities. Id. at 81, 144, 482. 

[6] The Customer Communities wrote response letters to the District and disputed 

several of the District’s allegations. In addition to disagreeing with the 

District’s assertions, the Customer Communities reminded the District of their 

right to arbitration under the Treatment Agreements. On August 27, 2013, the 

District’s Board of Sanitary Commissioners (“the Board”) met and reviewed the 

Treatment Agreements. The Board considered the following issues: (1) the 

contract methodology for determining the rates paid by the Customer 
Court of Appeals of Indiana | Opinion 45A03-1404-PL-125 | July 13, 2015 Page 7 of 22

Communities had become outdated, resulting in the District’s residents paying 

a higher share of the costs; (2) capital improvements that the District was 

required to make under the Clean Water Act and the cost of these 

improvements; (3) the Customer Communities were exceeding wet weather 

flow limits contained in the Treatment Agreements, which negatively affected 

the District’s system; (4) such excessive flows had hindered the District’s 

completion and implementation of a mandated Long Term Control Plan; and 

(5) the District was operating at a net operating loss. Id. at 153-56. The Board 

made a determination that, “funds are not appropriated or otherwise available 

to support continuation of performance of the [Treatment Agreements].” Id. at 

157. The Board then passed Resolution 38-2013 and found that the Treatment 

Agreements were thereby cancelled. Id. 

[7] On August 28, 2013, the District sent letters to the Customer Communities 

informing them of its decision to cancel the Treatment Agreements. In the 

letter, the District provided “immediate assurance that [the District] will 

continue to perform the services contemplated by the [Treatment Agreements], 

including treating [the Customer Communities’] wastewater for a reasonable 

amount of time (to be negotiated between the parties), to allow [the Customer 

Communities] to make other arrangements for treatment of [the Customer 

Communities’] flow.” Id. at 85, 151, 492. The letter further informed the 

Customer Communities that, “[a]t no time during this Transition Period will 

[the District] take action to restrict flow (except as consistent with the former 
Court of Appeals of Indiana | Opinion 45A03-1404-PL-125 | July 13, 2015 Page 8 of 22

agreement), nor will it take any action against the interest of public health.” Id. 

at 85, 151, 492. 

[8] Shortly after receiving the District’s letter, notifying them that the Treatment 

Agreements had been canceled, the Customer Communities each filed a 

complaint against the District, asserting that the District’s purported 

cancellation of the Treatment Agreements was not authorized and seeking an 

order requiring the District to proceed to arbitration. Whiting and Highland 

both filed a complaint against Hammond in addition to the District. Both the 

District and Hammond filed motions to dismiss; Hammond sought dismissal 

on the basis that it was not a party to any of the Treatment Agreements, and the 

District sought dismissal on the basis that statutory judicial review was the only 

remedy available to the Customer Communities. Both Whiting and Griffith 

filed motions for judgment on the pleadings, or in the alternative, summary 

judgment; Highland filed a motion for judgment on the pleadings. 

[9] On January 8, 2014, the trial court issued an order, granting the Customer 

Communities’ dispositive motions. The trial court found that the District had 

no statutory authority to pass Resolution 38-2013 and that the Treatment 

Agreements should remain in full force and effect. The trial court further

ordered into binding arbitration all disputes that arose under the Treatment 

Agreements. The District and Hammond filed motions to correct error, asking 

the trial court to clarify whether Hammond was dismissed from the cases. On 

March 20, 2014, the trial court granted the motions to correct error and 
Court of Appeals of Indiana | Opinion 45A03-1404-PL-125 | July 13, 2015 Page 9 of 22

specified that Hammond was dismissed from Whiting’s and Highland’s actions. 

The District now appeals.

Discussion and Decision

[10] In its order, the trial court granted the Customer Communities’ motions for 

summary judgment and judgment on the pleadings and found the District had 

no authority to pass Resolution 38-2013 and to cancel the Treatment 

Agreements. A judgment on the pleadings pursuant to Indiana Trial Rule 

12(C) is proper only when there are no genuine issues of material fact and the 

facts shown by the pleadings clearly entitled the movant to judgment. Holmes v. 

Celadon Trucking Servs. of Ind., Inc., 936 N.E.2d 1254, 1255 (Ind. Ct. App. 2010)

(citing Wagle v. Henry, 679 N.E.2d 1002, 1004 (Ind. Ct. App. 1997)). If, on a 

motion for judgment on the pleadings, matters outside the pleadings are 

presented to and not excluded by the court, the motion shall be treated as one 

for summary judgment and disposed of as provided in Trial Rule 56. Id. at 

1255-56. “Matters outside the pleadings” are those materials that would be 

admissible for summary judgment purposes, such as depositions, answers to 

interrogatories, admissions, and affidavits. Fox Dev., Inc. v. England, 837 N.E.2d 

161, 164 (Ind. Ct. App. 2005).

[11] When reviewing a Rule 12(C) motion, we may look only at the pleadings and 

any facts of which we may take judicial notice, with all well-pleaded material 

facts alleged in the complaint taken as admitted. Consol. Ins. Co. v. Nat’l Water 

Servs., LLC, 994 N.E.2d 1192, 1196 (Ind. Ct. App. 2013), trans. denied. The 
Court of Appeals of Indiana | Opinion 45A03-1404-PL-125 | July 13, 2015 Page 10 of 22

pleadings consist of a complaint and an answer, a reply to any counterclaim, an 

answer to a cross-claim, a third-party complaint, and an answer to a third-party 

complaint. Id. “Pleadings” also consist of any written instruments attached to 

a pleading, pursuant to Ind. Trial Rule 9.2. LBM Realty, LLC v. Mannia, 981 

N.E.2d 569, 576 n.10 (Ind. Ct. App. 2012); see also Ind. Trial Rule 10(C) (“A 

copy of any written instrument which is an exhibit to a pleading is a part 

thereof for all purposes.”). 

[12] Here, the parties did not designate evidence outside the pleadings for judicial 

consideration, and nothing in the record suggests that the trial court considered 

any evidence outside of the pleadings in reaching its decision. Therefore, we 

shall treat the Customer Communities’ motions as motions for judgment on the 

pleadings. A motion for judgment on the pleadings pursuant to Rule 12(C) 

attacks the legal sufficiency of the pleadings. Fox Dev., Inc., 837 N.E.2d at 165. 

The test to be applied when ruling on a Rule 12(C) motion is whether, “in the 

light most favorable to the non-moving party and with every intendment 

regarded in his favor,” the complaint is sufficient to constitute any valid claim. 

Id. In applying this test, we may look only at the pleadings, with all wellpleaded material facts alleged in the complaint taken as admitted, supplemented 

by any facts of which the court will take judicial notice. Id. The standard of 

review is de novo, and we will affirm the trial court’s grant of a Rule 12(C) 

motion for judgment on the pleadings when it is clear from the face of the 

pleadings that one of the parties cannot in any way succeed under the operative 

facts and allegations made therein. Id. 
Court of Appeals of Indiana | Opinion 45A03-1404-PL-125 | July 13, 2015 Page 11 of 22

[13] In the present case, the trial court’s decision rests on conclusions regarding the 

applicability of a statute. The interpretation of a statute is a legal question that 

is reviewed de novo. Carter v. Carolina Tobacco Co., 873 N.E.2d 611, 625 (Ind. 

Ct. App. 2007) (citing Golden Rule Ins. Co. v. McCarty, 755 N.E.2d 1104, 1106

(Ind. Ct. App. 2001), trans. denied). Statutory interpretation is the responsibility 

of the court and within the exclusive province of the judiciary. McCarty, 755 

N.E.2d at 1106-07 (citing Miller Brewing Co. v. Bartholomew Cnty. Beverage Co.,

674 N.E.2d 193, 200 (Ind. Ct. App. 1996), trans. denied). The first and often the 

last step in interpreting a statute is to examine the language of the statute. Id. at 

1107. When confronted with an unambiguous statute, we do not apply any 

rules of statutory construction other than to give the words and phrases of the 

statute their plain, ordinary, and usual meaning. Id. 

I. Authority to Pass Resolution

[14] The District argues that the trial court erred when it concluded that the District 

did not have statutory authority to pass Resolution 38-2013 and to cancel the 

Treatment Agreements. The District claims that it was within its statutory 

authority to cancel the Treatment Agreements pursuant to Indiana Code 

section 5-22-17-5. The District contends that the trial court’s determination that 

the Treatment Agreements were excluded from the provisions of Article 22 was 

in error because such contracts were specifically authorized under the plain 

language of Indiana Code section 5-22-6-1 and were not excluded under 

Indiana Code section 5-22-1-3(a)(1). 
Court of Appeals of Indiana | Opinion 45A03-1404-PL-125 | July 13, 2015 Page 12 of 22

[15] In this case, the District cancelled the Treatment Agreements pursuant to 

Indiana Code section 5-22-17-5, which states, in pertinent part, “[w]hen the 

fiscal body of the governmental body makes a written determination that funds 

are not appropriated or otherwise available to support continuation of 

performance of a contract, the contract is considered canceled.” Ind. Code § 5-

22-17-5(a). The District alleged that, because of financially dire circumstances 

surrounding the long-term Treatment Agreements, the Board determined that 

the District could no longer afford performance under the Treatment 

Agreements and, therefore, passed Resolution 38-2013, which mirrored the 

contract cancellation language in Indiana Code section 5-22-17-5. Because they 

followed the language of the statute, the District asserted that it properly 

cancelled the Treatment Agreements because Indiana Code section 5-22-17-5 

applied to the District. 

[16] In its order finding that the District had no statutory authority to cancel the 

Treatment Agreements, the trial court found that, although the District 

followed the procedure under Indiana Code section 5-22-17-5 when it cancelled 

the Treatment Agreements, section 5-22-17-5 did not apply to the Treatment 

Agreements. This is because the Treatment Agreements fell under an exception 

set forth in Indiana Code section 5-22-1-3(a)(1), which provides that Article 22, 

which is entitled the Public Purchasing Statute, does not apply to contracts 

between governmental bodies. The language of Indiana Code section 5-22-1-

3(a)(1) states, in pertinent part: “[T]his article does not apply to the following 

types of activities . . .[a] contract between governmental bodies except for a 
Court of Appeals of Indiana | Opinion 45A03-1404-PL-125 | July 13, 2015 Page 13 of 22

contract authorized under this article.” The trial court further found that the 

Treatment Agreements were not agreements authorized under Article 22 (“the 

Public Purchasing Statute”). The trial court concluded that, because the 

Treatment Agreements fell under an exclusion to the Public Purchasing Statute, 

Indiana Code section 5-22-17-5(a) did not apply, and the District had no 

statutory authority to pass Resolution 38-2013 and cancel the Treatment 

Agreements. 

[17] Under the plain language of section 5-22-1-3(a)(1), the Public Purchasing 

Statute does not apply to contracts between governmental bodies except for 

certain contracts authorized under the Public Purchasing Statute. The District 

concedes, and agrees with the trial court, that the Treatment Agreements are 

contracts between governmental bodies and would, therefore, be excluded 

unless authorized. However, the District claims that the Treatment Agreements 

are authorized under the Public Purchasing Statute because they are authorized 

under Indiana Code section 5-22-6-1, which states, “[t]he purchasing agency of 

a governmental body may purchase services using any procedure the 

governmental body or the purchasing agency of the governmental body 

considers appropriate.” We disagree.

[18] The language of Indiana Code section 5-22-6-1 does not explicitly authorize 

contracts such as the Treatment Agreements. It is a procedural statute that 

merely acknowledges that the purchasing agency of a governmental body may 

purchase services using any procedure it considers appropriate. Indiana Code 

section 5-22-6-1 has been interpreted by this court as recognizing the discretion 
Court of Appeals of Indiana | Opinion 45A03-1404-PL-125 | July 13, 2015 Page 14 of 22

granted to governmental entities in awarding contracts for services and that 

strict bidding procedures need not be followed in awarding government 

contracts for services. See Hamrick’s Diesel Serv. & Trailer Repair, LLC v. City of 

Evansville ex rel. Bd. of Pub. Works, 935 N.E.2d 764, 767 (Ind. Ct. App. 2010)

(concluding that unsuccessful bidder on government contract for services did 

not have standing in suit against city for damages after contract was awarded to 

bidder that did not meet requirements specified in bid announcement), trans. 

denied; Harmony Health Plan of Ind., Inc. v. Ind. Dep’t of Admin., 864 N.E.2d 1083, 

1091-92 (Ind. Ct. App. 2007) (concluding that unsuccessful bidder on

government contract for services lacked standing to seek judicial review of the

rejection of its bid as it was not harmed when not awarded the contract because 

government body had authority to exercise discretion under public purchasing 

statutes to decide who would receive contracts to provide services), trans. denied;

Trans-Care, Inc. v. Bd. of Comm’rs of the Cnty. of Vermillion, 831 N.E.2d 1255, 1259 

(Ind. Ct. App. 2005) (concluding that unsuccessful bidder lacked standing to 

challenge government body’s award of contract for provision of services to 

another business because when party submits a proposal to perform personal 

services, it has no legal right to have its bid considered because the procurement 

of personal services is not included within the scope of the Public Purchasing 

Statute). Thus, section 5-22-6-1 merely gives a governmental body discretion in 

deciding the procedures it wants to use for purchasing services and is, therefore, 

not a specific authorization for governmental bodies to enter into contracts to 

purchase services. 
Court of Appeals of Indiana | Opinion 45A03-1404-PL-125 | July 13, 2015 Page 15 of 22

[19] We conclude that, because the Treatment Agreements are contracts between 

governmental bodies, they are excluded from the scope of the Public 

Purchasing Statute unless otherwise authorized in the Public Purchasing 

Statute. Contrary to the District’s contention, we do not find that Indiana Code 

section 5-22-6-1 specifically authorizes contracts for services between 

governmental bodies. As such, under Indiana Code section 5-22-1-3(a)(1), the 

Public Purchasing Statute does not apply to the Treatment Agreements, and the 

District was not within its statutory authority to cancel the Treatment 

Agreements pursuant to Indiana Code section 5-22-17-5. The trial court did not 

err in its determination that the District did not have statutory authority to 

cancel the Treatment Agreements.

[20] The District also argues that the trial court erred when it failed to order judicial 

review of the District’s decision to cancel the Treatment Agreements. The 

District asserts that, pursuant to Indiana Code section 5-22-19-1, because the 

Treatment Agreements were subject to the Public Purchasing Statute, and 

because it followed the requirements of Indiana Code section 5-22-17-5 in 

cancelling the agreements, its determination was final and conclusive and 

subject to judicial review under Indiana Code section 5-22-19-2. We note that 

the statutory sections under which the District contends that judicial review is 

required are part of the Public Purchasing Statute. As such, because we have 

concluded that the Public Purchasing Statute does not apply to the Treatment 

Agreements, judicial review under Indiana Code sections 5-22-19-1 and -2 is

likewise not available. 
Court of Appeals of Indiana | Opinion 45A03-1404-PL-125 | July 13, 2015 Page 16 of 22

II. Arbitration

[21] The District argues that the trial court erred when it ordered the parties to

participate in arbitration for any disputes arising under the Treatment 

Agreements. The District contends that the complaints filed by the Customer 

Communities did not identify any disputes over any aspect of performance of 

the contracts, and therefore, arbitration under the agreements is not required. 

The District alleges that the only dispute raised by the Customer Communities 

concerned the attempted cancellation of the Treatment Agreements. The 

District further asserts that there are no pending disputes arising under the 

Treatment Agreements because the District has not restricted flow since passing 

Resolution 38-2013 and no requests for sewer certifications have been 

presented; accordingly, there is nothing to arbitrate. 

[22] In its order, the trial court directed that all disputes that arose under the 

Treatment Agreements were ordered into binding arbitration. Paragraph 10A 

of the Treatment Agreements outlines the arbitration process to be utilized “[i]f 

a dispute arises concerning any right or obligation under this agreement, 

including capacity reservation of rights or allocation of capital costs for existing 

or future improvements by the District.” Appellant’s App. at 69, 133, 472. Thus, 

by entering into the Treatment Agreements with the Customer Communities, 

the District agreed that, if a dispute arose regarding rights or obligations under 

the Treatment Agreements, such dispute would be submitted to binding 

arbitration. Arbitration was, therefore, the method that all of the parties agreed 

to use if a contractual dispute arose during the contractual period, and the 
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Treatment Agreements require arbitration when a dispute arises concerning any 

right or obligation under the Treatment Agreements. We, therefore, conclude 

that the trial court did not err when it ordered the parties into binding 

arbitration as to all disputes concerning the Treatment Agreements.

[23] We further conclude that, even if we accepted the District’s argument that it 

was authorized to cancel the Treatment Agreements pursuant to Indiana Code 

section 5-22-17-5, such cancellation would have been premature because the 

Treatment Agreements require arbitration when disputes arise. All of the 

District’s issues that formed the basis for its purported cancellation of the 

Treatment Agreements were disputes that arose concerning rights and 

obligations under the agreements and were, therefore, required to be sent to 

arbitration for resolution. Therefore, the Treatment Agreements required 

arbitration before the District could have even attempted to cancel the contracts 

pursuant to Indiana Code section 5-22-17-5. Because the District did not 

submit its issues to arbitration, it did not follow the provisions of the Treatment 

Agreements that it entered into with the Customer Communities, and even if it 

had been statutorily authorized, the District could not have cancelled the 

Treatment Agreements without first submitting its disputes to arbitration. 

[24] We conclude that the trial court did not err in finding that the District lacked 

statutory authority to cancel the Treatment Agreements because the Public 

Purchasing Statute did not apply to the Treatment Agreements. The trial court 

also did not err in ordering the parties to arbitration for all disputes concerning 

the Treatment Agreements, as arbitration was mandated by the Treatment 
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Agreements for all such disputes. We further determine that, even if the Public 

Purchasing Statute did apply to the Treatment Agreements, pursuant to 

paragraph 10A, the parties were required to submit to arbitration before any 

other action could be taken regarding any disputes the parties had under the 

Treatment Agreements.4 

[25] Affirmed.

Crone, J., concurs.

Robb, J., dissents with separate opinion.

 

4 Under the procedural posture of this case, we are unaware of what, if any, steps the District took to 

reconcile its disputes with the Customer Communities under the Treatment Agreement prior to its first 

communication to the Customer Communities alerting them of the issues. However, we do note that the 

Treatment Agreements required that operation and maintenance rates be reviewed annually and contained 

procedures for how to compute adjusted rates annually. Appellant’s App. at 58-60, 122-24, 461-64. The 

Treatment Agreements also included procedures on how to determine the Customer Communities’ 

participation in capital costs associated with new projects. Id. at 61-63, 125-27, 464-66. We, therefore, 

believe that, in the future, when encountering disputes regarding rates or capital costs, the District should first 

adhere to the contract provisions contained in the Treatment Agreements, which the parties, by entering into 

and signing the Treatment Agreements, agreed to abide by during the contract term.
Court of Appeals of Indiana | Opinion 45A03-1404-PL-125 | July 13, 2015 Page 19 of 22

I N T H E

COURT OF APPEALS OF INDIANA

Sanitary District of the City of 

Hammond, Indiana and the City 

of Hammond, Indiana,

Appellants-Defendants,

v.

Town of Griffith, Indiana; Town 

of Highland, Indiana, et al.; and 

City of Whiting, Indiana, et al.,

Appellees-Plaintiffs,

and

City of Whiting, Indiana, et al.,

Cross-Appellant-Plaintiff,

v.

City of Hammond, Indiana,

Cross-Appellee-Defendant.

Court of Appeals Case No.

45A03-1404-PL-125

Robb, Judge, dissenting

[26] I respectfully dissent from the majority’s determination that the District did not 

have statutory authority to cancel the Treatment Agreements pursuant to 
Court of Appeals of Indiana | Opinion 45A03-1404-PL-125 | July 13, 2015 Page 20 of 22

Indiana Code section 5-22-17-5 and was therefore not entitled to judicial 

review.

[27] Indiana Code section 5-22-17-5(a) provides that “[w]hen the fiscal body of the 

governmental body makes a written determination that funds are not 

appropriated or otherwise available to support continuation of performance of a 

contract, the contract is considered canceled.” In order to be entitled to cancel 

a contract pursuant to this provision, the contract must be subject to the Public 

Purchasing Statute, which was enacted in 1997 and, in general, governs “every 

expenditure of public funds by a governmental body,” Ind. Code § 5-22-1-1,

subject to certain exceptions and limitations, Ind. Code §§ 5-22-1-2, 5-22-1-3; 

City of Fort Wayne v. Pierce Mfg., Inc., 853 N.E.2d 508, 512 (Ind. Ct. App. 2006).

As relevant to this case, the Public Purchasing Statute does not apply to “[a] 

contract between governmental bodies except for a contract authorized under this 

article.” Ind. Code § 5-22-1-3(a)(1) (emphasis added). As all parties concede 

this is a contract between governmental entities, the Treatment Agreements are 

therefore not subject to the Public Purchasing Act unless they are authorized 

under Indiana Code article 5-22. The District contends the Treatment 

Agreements are so authorized; the trial court concluded and the majority agrees 

they are not. I agree with the District.

[28] The District relies on Indiana Code section 5-22-6-1 as the authority for the 

Treatment Agreements. According to that section, “[t]he purchasing agency of 

a governmental body may purchase services using any procedure the 

governmental body or the purchasing agency of the governmental body 
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considers appropriate.” Governmental bodies may “may adopt rules” and 

“establish policies” to that end. Ind. Code § 5-22-6-2. In other words, under 

Indiana Code chapter 5-22-6, “government bodies are afforded nearly absolute 

discretion in purchasing services.” Hamrick’s Diesel Serv. & Trailer Repair, LLC v. 

City of Evansville ex rel. Bd. of Pub. Works, 935 N.E.2d 764, 766 (Ind. Ct. App. 

2010). The majority interprets this section as “merely giv[ing] a governmental 

body discretion in deciding the procedures it wants to use for purchasing 

services” and not as a specific authorization to actually purchase those services. 

See slip op. at ¶ 18. 

[29] I believe this interpretation too narrowly construes Indiana Code section 5-22-6-

1. There would be no reason for the legislature to set forth in the Public 

Purchasing Statute that a governmental body has discretion in deciding how to 

purchase services if it was not also authorizing the governmental body to make

the purchase in the first place. I believe the intent of the legislature is effected 

by interpreting the statute as follows: the governmental body may purchase 

services and may use any procedure the governmental body considers 

appropriate. 

[30] Again, Indiana Code section 5-22-1-3(a)(1) excludes from the Public Purchasing 

Statute contracts between governmental bodies unless the contracts are 

authorized under the statute itself. Because I agree with the District that the 

Treatment Agreements were authorized by Indiana Code section 5-22-6-1, I 

would hold that the trial court erred in determining the District was not 

statutorily authorized to cancel the agreements. The District made the 
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determination required by Indiana Code section 5-22-17-5 to cancel the 

Treatment Agreements, and the merits of that determination are now subject to 

judicial review. Ind. Code § 5-22-19-2. I would reverse and remand for the trial 

court to review the District’s determination accordingly.