Natchez-Adams School District v. Tina Bruce , 2015 Miss. App. LEXIS 231 ( 2015 )

IN THE COURT OF APPEALS OF THE STATE OF MISSISSIPPI
NO. 2012-CA-00147-COA
NATCHEZ-ADAMS SCHOOL DISTRICT APPELLANT
v.
TINA BRUCE APPELLEE
DATE OF JUDGMENT: 10/20/2011
TRIAL JUDGE: HON. LILLIE BLACKMON SANDERS
COURT FROM WHICH APPEALED: ADAMS COUNTY CIRCUIT COURT
ATTORNEYS FOR APPELLANT: ROBERT O. ALLEN
WILLIAM ROBERT ALLEN
JOHN CHADWICK WILLIAMS
ATTORNEYS FOR APPELLEE: PHILIP ELMER CARBY
EDGAR HYDE CARBY
NATURE OF THE CASE: CIVIL - PERSONAL INJURY
TRIAL COURT DISPOSITION: FOUND APPELLANT LIABLE FOR
APPELLEE’S INJURIES AND AWARDED
APPELLEE $488,000 IN DAMAGES
DISPOSITION: AFFIRMED - 09/09/2014
MOTION FOR REHEARING FILED: 09/19/2014 - DENIED; AFFIRMED -
04/21/2015
MANDATE ISSUED:
EN BANC.
ROBERTS, J., FOR THE COURT:
MODIFIED OPINION ON REHEARING
¶1. The motion for rehearing is denied. The previous opinions are withdrawn, and these
opinions are substituted in their place.
¶2. Tina Bruce sued the Natchez-Adams School District (NASD) after she tripped over
a section of conduit that protruded from the surface of a driveway in front of NASD’s
administrative building. After a bench trial, the Adams County Circuit Court awarded Bruce
$488,000 in damages. NASD appeals. According to NASD, it is immune to Bruce’s claim
under either the discretionary-function exemption or the dangerous-condition exemption of
the Mississippi Tort Claims Act (MTCA). Finding no error, we affirm.
FACTS AND PROCEDURAL HISTORY
¶3. In July 2008, Bruce visited NASD’s administrative building in Natchez, Mississippi,
to deliver a job application. As Bruce was walking across the concrete driveway in front of
the administrative building, she tripped over a section of conduit that protruded more than
an inch above the driveway’s surface. At trial, Bruce testified that she had two bulging discs
in her back and leg pain as a result of her fall. She attempted to alleviate her injuries through
physical therapy and pain management. When those remedies produced unsatisfactory
results, she underwent spinal surgery. Her necessary medical expenses exceeded $143,000.
The circuit court noted that Bruce will have to walk with a cane for the rest of her life. The
circuit court further noted that Bruce was permanently impaired and has functional
limitations and “work restrictions.” Additionally the circuit court stated that Bruce “has
endured pain and suffering and will continue to do so for the rest of her life” and “[h]er
family life is altered.”
¶4. The protruding conduit that caused Bruce’s fall contained the power supply to a lit
sign and architectural lighting in front of the administrative building. NASD had intended
for the conduit to be recessed into an expansion joint in the driveway. But due to the length
of the conduit, the pitch of the surface of the driveway, and continued vehicular traffic, the
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conduit tended to rise above the driveway.
¶5. Before Bruce tripped over the conduit, NASD had attempted to prevent the conduit
from protruding above the surface of the driveway. Dr. Wayne Barnett, the former director
of operations for NASD, testified that the conduit was a “slip, trip, and fall hazard,” so he
“got the ball rolling to get it fixed.” Willie Ellis, an electrician for NASD, attempted to
prevent the conduit from protruding above the surface of the driveway by drilling a “spike”
into the driveway and then bending it over the conduit to hold it in place. Dr. Barnett
inspected Ellis’s work and became satisfied that the conduit was no longer a trip hazard.
However, Dr. Barnett also testified that he did not check on the conduit after his initial
inspection to determine whether the “spike” was still preventing the conduit from protruding
above the surface of the driveway. Over time, the conduit became dislodged from the
“spike” and again protruded approximately two inches above the surface of the driveway.
¶6. NASD employees Isaac King and Jimmy Wilson testified that the conduit made a
rattling noise when a car drove over it. They also noticed that the conduit was protruding
above the surface of the driveway. They told NASD maintenance supervisor Demestra
Winding about the protruding conduit at least once before Bruce fell.
¶7. As previously mentioned, NASD argued that it was entitled to immunity under the
discretionary-function-exemption and the dangerous-condition-exemption provisions of the
MTCA. The circuit court disagreed and awarded Bruce $488,000 in damages. NASD
appeals.
ANALYSIS
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I. DISCRETIONARY-FUNCTION EXEMPTION
¶8. NASD argues that it was entitled to immunity under the discretionary-function
exemption of the MTCA. In the context of a lawsuit alleging that a governmental entity is
liable for negligence, the MTCA is a plaintiff’s exclusive remedy. S. Cent. Reg’l Med. Ctr.
v. Guffy, 930 So. 2d 1252, 1255 (¶7) (Miss. 2006). “Questions concerning the application
of the MTCA are reviewed de novo.” Miss. Dep’t of Pub. Safety v. Durn, 861 So. 2d 990,
994 (¶7) (Miss. 2003). “Immunity is a question of law.” Id. However, we will not disturb
the circuit court’s factual findings if there is substantial credible evidence to support them.
City of Natchez v. Jackson, 941 So. 2d 865, 869 (¶9) (Miss. Ct. App. 2006).
¶9. The discretionary-function exemption is set forth in Mississippi Code Annotated
section 11-46-9(1)(d) (Rev. 2012), which provides:
A governmental entity and its employees acting within the course and scope
of their employment or duties shall not be liable for any claim . . . [b]ased upon
the exercise or performance or the failure to exercise or perform a
discretionary function or duty on the part of a governmental entity or employee
thereof, whether or not the discretion be abused[.]
“A duty is discretionary when it is not imposed by law and depends upon the judgment or
choice of the government entity or its employee.” Miss. Transp. Comm’n v. Montgomery,
80 So. 3d 789, 795 (¶19) (Miss. 2012). “A duty is ministerial if it is positively imposed by
law and required to be performed at a specific time and place, removing an officer’s or
entity’s choice or judgment.” Id.
¶10. In a recent opinion, the Mississippi Supreme Court significantly changed the manner
in which we are to analyze questions regarding the discretionary-function exemption to the
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MTCA. Overruling nine prior decisions, the supreme court held that “[i]t is the function of
a governmental entity – not the acts performed in order to achieve that function – to which
immunity does or does not ascribe under the MTCA.” Little v. Miss. Dep’t of Transp., 129
So. 3d 132, 138 (¶10) (Miss. 2013). In other words, we are required to “look at the function
performed – not the acts that are committed in furtherance of that function – to determine
whether immunity exists.” Id. at 136 (¶8). In Little, the function at issue was the Mississippi
Department of Transportation’s statutory obligation to maintain and repair state highways.
Id. at 134 (¶2). The applicable statute in Little provides:
It shall be the duty of the state highway commission to have the state highway
department maintain all highways which have been or which may be hereafter
taken over by the state highway department for maintenance in such a way as
to afford convenient, comfortable, and economic use thereof by the public at
all times. To this end it shall be the duty of the director, subject to the rules,
regulations[,] and orders of the commission as spread on its minutes, to
organize an adequate and continuous patrol for the maintenance, repair, and
inspection of all of the state-maintained state highway system, so that [the]
highways may be kept under proper maintenance and repair at all times.
Miss. Code Ann. § 65-1-65 (Rev. 2012). The supreme court held that because the
Department had a statutory duty “to maintain and repair state highways, that duty – and all
acts in furtherance of that duty – are ministerial unless . . . another statute makes a particular
act discretionary.” Little, 129 So. 3d at 138 (¶11). As a result, the supreme court concluded
that “[t]he Department [was] not entitled to discretionary-function immunity for failure to
properly maintain and repair highways because that function is ministerial.” Id.
¶11. NASD argues that it had no statutory duty to remedy the exposed conduit. It reasons
that it could use its judgment in determining when and how to alleviate the protruding
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conduit. But Bruce claims that Mississippi Code Annotated section 37-7-301(d) (Rev. 2013)
supports her position that NASD had a ministerial duty to remedy the exposed conduit. We
agree.
¶12. Section 37-7-301(d) states that a school board is “responsib[le] for the erection,
repairing[,] and equipping of school facilities and . . . necessary school improvements[.]”
Bruce’s injuries were caused by the protruding conduit that powered the administrative
building’s sign and its architectural lighting. To prevent Bruce’s injuries, NASD would have
had to repair the protruding conduit. It is reasonable to conclude that the NASD
administrative building is a “school facility.” The conduit that powers the administrative
building’s sign and a portion of its external lighting, which is located immediately outside
of the main entrance to the building, is an integral part of that “school facility.”
¶13. Following Little, we find that because NASD has a statutory duty to repair a school
facility, all acts in furtherance of that duty are ministerial. Furthermore, the repair of
improperly protruding conduit that poses a safety hazard necessarily involves the repair of
a school facility. It follows that NASD had a ministerial duty to repair the protruding
conduit, and it is not entitled to discretionary immunity. Accordingly, the circuit court did
not err when it refused to apply the discretionary-immunity exemption of the MTCA. There
is no merit to this issue.
II. DANGEROUS-CONDITION EXEMPTION
¶14. Next, NASD claims that it is immune from Bruce’s claim under the dangerous-
condition exemption of the MTCA as set forth in Mississippi Code Annotated section
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11-46-9(1)(v) (Rev. 2012). Under section 11-46-9(1)(v), a governmental entity is immune
from liability for a claim:
Arising out of an injury caused by a dangerous condition on property of the
governmental entity that was not caused by the negligent or other wrongful
conduct of an employee of the governmental entity or of which the
governmental entity did not have notice, either actual or constructive, and
adequate opportunity to protect or warn against; provided, however, that a
governmental entity shall not be liable for the failure to warn of a dangerous
condition which is obvious to one exercising due care[.]
The circuit court declined to find that NASD was entitled to immunity under the dangerous-
condition exemption. Specifically, the circuit court – sitting as the fact-finder – concluded
that “the dangerous condition of the conduit was not open and obvious, and . . . Bruce was
not negligent.” We agree with the circuit court’s conclusion.
¶15. It was within the circuit court’s discretion to find that the protruding conduit was a
dangerous condition on NASD’s property. It was in the vicinity of the entrance to the NASD
administrative building. Dr. Barnett testified that the protruding conduit was a “slip, trip, and
fall hazard.” Additionally, there was testimony that the finish of the conduit was similar to
the color of the surface of the driveway. The similarity between the finish of the conduit and
the color of the driveway also supports the conclusion that it was not obvious to someone
who was exercising due care.
¶16. To summarize, Bruce testified that she did not realize that the conduit was protruding
above the surface of the concrete. Counsel for NASD repeatedly attempted to impeach her
with her prior statements, but Bruce explained them. Substantial credible evidence supports
the circuit court’s conclusion that the protruding conduit was not open and obvious.
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¶17. Furthermore, there was substantial credible evidence that NASD had notice of the
protruding conduit before Bruce tripped over it. Mamie Moore helped Bruce inside the
building after she fell. Both Moore and Bruce testified that while they were in the office, one
employee stated that he and other employees knew about the protruding conduit. As
discussed above, two NASD employees told a maintenance supervisor about the protruding
conduit before Bruce tripped over it. It was within the circuit court’s discretion to find that
NASD had sufficient time to either repair the protruding conduit or warn people about it.
Finally, there was no evidence that NASD placed a warning or caution sign near the
protruding conduit, or took any other measures to warn people about the conduit. In light of
the evidence before the circuit court, it did not abuse its discretion when it found that NASD
was not entitled to immunity under the MTCA’s dangerous-condition exemption. It follows
that there is no merit to this issue.
¶18. THE JUDGMENT OF THE ADAMS COUNTY CIRCUIT COURT IS
AFFIRMED. ALL COSTS OF THIS APPEAL ARE ASSESSED TO THE
APPELLANT.
LEE, C.J., GRIFFIS, P.J., BARNES, ISHEE, CARLTON, MAXWELL, FAIR
AND JAMES, JJ., CONCUR. IRVING, P.J., DISSENTS WITH SEPARATE
WRITTEN OPINION.
IRVING, P.J., DISSENTING:
¶19. Because I believe that the majority errs in its interpretation of what constitutes a
school facility, I dissent. I would reverse and render the judgment of the circuit court, as I
find no statutory mandate requiring school districts to repair conduits embedded in concrete
driveways, when the sole purpose of the conduit is to provide an electrical current to light
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a sign on the lawn of the school premises.
¶20. The statute that is the subject of the majority’s peculiar construction is Mississippi
Code Annotated section 37-7-301(d) (Rev. 2013), which provides that “[t]he school boards
of all school districts shall have the following powers, authority[,] and duties in addition to
all others imposed or granted by law, to wit: . . . responsibility for the erection, repairing, and
equipping of school facilities and the making of necessary school improvements.”
¶21. A plain reading of this statute shows that the only duty imposed is one to erect, repair,
and equip school facilities, and to make necessary school improvements. It is clear that the
concrete driveway provides only convenient ingress and egress to the school building and is
not a school facility. And the conduit embedded in the driveway does not transform either
the conduit or the driveway into a school facility simply because the conduit carries an
electrical wire to an exterior sign identifying the school facility. Neither the concrete
driveway, the embedded conduit in it, nor the lighted sign is a prerequisite to the school
district’s execution of its mission—to provide facilities for use in educating the boys and
girls of the school district. It necessarily follows that I disagree with the majority’s
conclusion that the conduit is an integral part of the school facility. There is no statutory
requirement that school districts erect signs identifying school facilities. Hence, it seems
unreasonable and illogical to suggest that a school district that has no statutory duty to erect
or place any kind of identifying signs on school property somehow becomes mandated to
maintain the electrical conduit that provides electrical power to the sign that the school
district, employing its discretionary authority, voluntarily places on school property.
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¶22. The majority’s interpretation of the phrase “school facility” is much too broad and is
without statutory underpinning. I find that maintenance of the conduit within the concrete
driveway was discretionary with NASD. “A duty is discretionary when it is not imposed by
law and depends upon the judgment or choice of the government entity or its employee.”
Miss. Transp. Comm’n v. Montgomery, 80 So. 3d 789, 795 (¶19) (Miss. 2012) (citing Miss.
Dep’t of Mental Health v. Hall, 936 So. 2d 917, 924-25 (¶17) (Miss. 2006)). Accordingly,
even if the government entity or its employee has not exercised due care in performing a
duty, immunity is still granted when that duty is a discretionary one. See Miss. Code Ann.
§ 11-46-9(1)(d) (Rev. 2012).
¶23. Consequently, NASD cannot be held liable for Bruce’s injuries, as it is granted
immunity under the Mississippi Code Annotated section 11-46-9(1)(d), which provides:
A governmental entity and its employees acting within the course and scope
of their employment or duties shall not be liable for any claim . . . [b]ased upon
the exercise or performance or the failure to exercise or perform a
discretionary function or duty on the part of a governmental entity or employee
thereof, whether or not the discretion be abused[.]
So even if NASD abused its discretion in not making timely repairs to the protruding conduit,
it is still immune.
¶24. I see no need to discuss whether the dangerous-condition exemption applies on the
basis that the protruding conduit was not open and obvious, because the facts here do not
support the exemption—even if the protruding conduit was not open and obvious. The
dangerous-condition exemption applies only if the dangerous condition—even if not open
and obvious—“was not caused by the negligent or other wrongful conduct of an employee
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of the governmental entity or of which the governmental entity did not have notice . . . .”
Miss. Code Ann. § 11-46-9(1)(v). Here, some of NASD’s employees had repaired the
protruding conduit in the past and were aware that repair had failed or, for some reason, had
come undone. Therefore, NASD notice that the conduit was protruding, and it is reasonable
to conclude that the condition was likely caused by the negligence of the employees in
attempting the repair.
¶25. For the reasons presented, I dissent. I would reverse and render the judgment of the
circuit court.
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