THI RD DI VI SI ON

DI L LA RD, P. J.

, GOBEI L and HODGES, JJ.

N O T IC E : M otions for r e c ons i de r a tion m us t be ph y sic a l ly r e ce iv ed i n our c le r k ’s offic e w ithin te n da y s of the da te of de c is ion to be de e m ed tim e ly file d.

http://w w w .ga a ppe a l s .us /r ule s

Jul y 2, 2019



# I n th e Co u r t o f

A p p eals o f

G eo r g ia

A1 9 A0 29 2 . STATE OF GEORGIA v . DUNCAN et al

.

H O D G E S , J u d g e.

I n t h i s wro n g fu l d eat h act i o n , we m u s t d eci d e w h et h er a p art y m ay s u e t h e

Geo rg i a Dep art m en t o f Hu m an Serv i ces (t h e “ DHS”), fo l l o w in g t h e d eat h o f ch i l d in

i t s cu st o d y , wh en t he ch il d d i ed i n t h e care o f a fo s t er p aren t em p l o y ed b y a p ri v at e

ch i l d -p l aci n g ag en cy 1 u n d er co n t ract wi t h DHS. Cel es t e M o ral es an d Ry an Du n can ,

t h e bi rt h p aren t s of A l ex i a Nev aeh Du n can (t h e “ Par e n t s ” )

, su ed t h e DHS, ch il d

p l aci ng ag en cy Lu t h eran Serv i ces o f Geo rg i a, In c. (“ Lu t h eran ”), an d J oy ce an d J o h n

An d ers on (t h e “ An d ers on s ”) aft er Al ex i a d i ed i n t he An ders o n s’ fo s t er care. Rel ev an t

t o t h i s a p peal

, DHS m o v ed t o d is m i s s t h e Paren t s ’ cas e, co n t en d i n g t h at t h e

1 “ ‘ Ch i l d-p l aci n g ag en cy ’ m ean s an y i n st it u t i o n , so ci et y , a g e n c y, o r faci l i t y , wh et h er in co rp o rat ed o r n o t

, wh i ch p l aces ch i l d ren i n fo s t er h o m es fo r t em p orary care

o r fo r ad o p t i o n .” OCGA § 4 9 -5 -3 (4 ) (2 0 1 3 ).An d ers on s were fo s t er p aren t s em p l oy ed by Lu t h eran an d t h at

, as a res u lt

, t h ey were

n o t “ s t at e o ffi cers o r em

p l oy ees ” as defi n ed b y t h e Geo rg i a To rt Cl ai m s Act (OCGA

§ 5 0-2 1-2 0 et s eq .) o r en t i t l ed t o s o v erei g n i m m u n it y

.

Th e Su p eri o r Co u rt o f Jack s o n Co u n t y d en i ed t h e DHS’ s m ot i o n t o d i s m i s s

. 2

Th e t ri al co u rt en tered a cert i fi cat e o f i m m ed i at e rev i ew, an d w e gran t ed t h e DHS’ s

ap p li cat io n fo r i n t e r l o cu t o ry ap p eal

. Aft er carefu l rev i ew, we co n cl u d e t h at t h e

An d ers on s were act i ng as “ fo s ter p aren t s ” as th at t erm i s d efi n ed i n o u r l aw an d t h at

p a r e n t s w h o m eet t h at s t at ut ory d efi n i ti o n act o n t h e DHS’ s b eh al f i n cari n g fo r a

ch i l d i n i t s l eg al cu s t o d y

. Co n s eq uen t l y , “ fo st er p aren ts ” are “ st at e o ffi ce r s o r

em pl o y ees ” un d er t h e To rt Cl ai m s Act

, an d t h e An d ers o ns are pers o n al l y en t i t l ed to

s o v erei g n i m

m u ni t y

. In v i ew o f t h e To rt Cl ai m s A ct ’ s w ai v er o f s o v erei g n i m m u n i t y

2 Th e A n d ers o n s al s o fi led a m o t i o n f o r s u m m ary ju d g m en t, arg u i n g t h at t h e To rt Cl ai m s Act p recl u d ed a s u i t ag ai n s t t hem p ers on al l y g i v en t h ei r st at us as fo s t er

p aren t s. I n a ddi t i o n , t h e Paren t s fi l ed a m o t i o n fo r part ial s u m m ary ju d g m en t as s ert i n g

t h at

, “ [t ] o th e ex t en t t h e A n ders o ns are fo u n d to b e o ffi cers o r em pl o y ees o f t h e [s t at e]

. . ., t h e [ s t a t e] i s l i ab l e as a m at t er o f l aw fo r an y an d al l n eg l i g en t act s an d

o m is s i o n s co m

m i tt ed b y t h e A n d ers o n s .” Al t h o u g h t h e DHS d i d n ot en u m erat e as

erro r t he t ri al co u rt ’ s ju d g m en t o n t h es e m o t i o n s , t h e l eg al is s u e p res en t ed b y t h e

p art i es i s t h e s am e

— s p eci fi cal l y , wh et h er t h e An d e r s o n s are “ s t at e o ffi cers o r

em pl o y ees ” as d efi n ed in t h e To rt Cl ai m s A ct

. As a res u l t, o ur d eci s i on co n cern i n g

t h e DHS’ s m ot i o n t o d i s m i s s wo u l d n eces s ari l y res o l v e t h e An ders o n s ’ m o t i o n fo r

s u m m ary ju d g m en t as wel l

. See g en eral ly OCGA § 9 -1 1-6 0 ( h ) ( “ an y ru l i n g b y t h e Su p rem e Co u rt o r t he Co u rt o f Ap p eal s i n a cas e s h al l b e b i n di n g i n al l s u b s eq u en t

p ro ceed in g s i n t h at cas e i n t h e l o wer co u rt ”).

2as t o th e DHS, h o wev er, t h e Paren t s ’ cl ai m s ag ai ns t DHS are n o t p recl u d ed

.

Th erefo re, we affi rm t h e ju d g m en t of t h e t ri a l co urt d en y i n g t h e DHS’ s m o t i o n to

d i s m i s s

.

As a t h res h o l d m at t er, “ [t ] h e t ri al co u rt ’ s ru l i n g on [a] m o t i on t o d is m i s s o n

s o v erei g n i m

m u n i t y gr o unds is r e v i ewed d e n o v o, wh i l e fact u al fi n d i n gs are s u s t ai n ed

i f th ere i s ev id en ce su p po rt i n g t h em

. ” (Ci t at io n o m i t t ed .) Amb a t i v. Bd

. o f Reg en t s of

t h e Un i v. S

ys t e m o f Ga

. , 3 13 Ga. Ap p

. 2 8 2

, n

. 3 (7 2 1 SE2 d 14 8 ) (2 0 1 1 ); s ee al s o

OCGA § 9 -1 1 -1 2 (b ) (1 ). So v i ewed

, t h e ev i d en ce rev eal ed t h at t h e Paren t s ’ d au g h t er,

Al ex i a, was b o rn t wo m o n t h s p rem at u rel y an d s u ffered fro m m u l t i p l e h eal t h i s s u es ,

i n cl u d i n g ap n ea, wh i c h req u i red co n s t an t m o n i t ori n g

. D u e t o her h eal t h i s s u es ,

h o s p it al s t aff d es i gn at ed A l ex i a as a “ m ed ical l y frag i l e” i nfan t

. A l e x i a rem ai n ed in

t h e h o s pi t al fo r o v er s ix week s a n d

, fo l l o w i n g t rai n in g fo r t h e Paren t s b y n u rs i n g

s t aff, t h e h o s p i t al rel eas ed h er t o t h e Paren t s o n Decem b er 6 , 2 0 1 2

.

On Decem

b er 13

, 2 0 12

, t h e Paren t s ret urn ed t o t h e h os p it al wi t h Al ex i a aft er

s h e s t o p p ed b reat hi n g d u ri n g a m ed i cal ex am i n at i o n , an d s he was read m i t t ed

. T h e

DHS, act i n g t h ro u g h t h e At h en s -Cl ark e Co u n t y Dep art m en t o f Fam i ly an d Ch i l d ren

Serv i ces (“ DFCS”), ob t ai n ed an o rd er fro m t h e J u v en il e Co u rt o f At h en s -Cl ark e

Co u n t y award in g cu s t od y o f Al ex i a t o t h e DFCS, wh ich b eg an t o l o o k fo r q u al i fi ed

3fo s t er p aren t s

. 3 Lu t h eran , a p ri vat e ch i l d -p laci n g ag en cy wi t h ex peri en ce i n p l aci n g

m ed i cal l y frag i le ch i l d ren w i t h s u i t ab l e fo s t er p aren t s , c o n t ract ed wi t h t h e DHS to

p ro v id e fo s t er care an d i nd i cat ed t h at i t w o u l d b e ab l e t o p l ace Al ex i a wi t h q u al i fi ed

fo s t er p aren t s. Th e An d ers o ns h av e p rev i o u s l y s erv ed as fo s t er paren t s fo r m ed i cal l y

frag il e ch i l dren

, an d M rs

. A n d ers o n h ad ex peri en ce as a n urs e. A ft er reject i n g an o t h er

p o t en t i al fo s t er p a r en t

, t h e DHS u l t i m at el y ap p ro v ed th e A n d ers o n s t o s erv e as

Al ex i a’ s fo s t er p are n t s , a n d t h e h o s p i tal rel eas ed Al ex i a t o t h e An d ers o n s o n

Decem b er 2 2 , 2 0 12

.

On J an u ary 5

, 2 0 1 3

, aft er feed i n g Al ex i a an d g iv i n g h er a b at h

, M rs

. An d ers o n

p l aced Al ex i a i n her car s eat wi t h o u t h er b reat hi n g m ach i n e an d b eg an t o p erfo rm

h o u s eh o l d ch o res th ro u g h o ut t h e h o u s e. W hi l e p erfo rm i ng he r ch o res , M rs

. An d ers o n

ch eck ed o n Al ex i a an d n o t e d t h at s h e sh o wed “ n o s ig n o f d is t res s” an d t h at h er

res p i rat i o n an d s k i n “ l o o k ed go o d .” M rs

. A n d ers o n wen t to t he res t ro o m , was h ed h er

h an ds

, an d t h e n h e a r d Al ex i a m ak i ng a g u rg li ng s ou n d

. M rs

. An d ers on ru s h ed to

Al ex i a ’s car s eat an d fo u n d Al ex i a’ s l i p s “ b l ue” wi t h n o breat h i n g o r pu l s e. Sh e

at t em p t ed m o u t h -t o -m o u t h r es u s ci t at i on wi th o u t s u cces s an d tel ep h o n ed 9 1 1

. An

3 Th e DHS is “ au t h o ri zed an d em p o wered

, t h ro u g h

. . . t h e p ro g ram s o f co u n t y

o r d i s t ri ct d ep art m en t s o f fam i ly an d ch i l d ren s erv i ces ” t o es t ab l is h cert ai n p ro g ram s , i n cl u d i n g t he reg u lat i o n of ch i l d -p laci n g ag en ci es

. OCGA § 4 9 -5 -8 (a), (a) (6 ) (2 0 1 3 ).

4am

bu l an ce arri v ed so m e t im e l at er, b u t b efo re t h e p aram ed i cs t ran s po rt ed Al ex i a to

a lo cal h o s p i t al

, o n e o f t hem d ecl ared Al ex i a d ead

. On ce at t h e h o s p i t al

, m ed i cal s taff

were u n ab l e t o rev i ve Al ex ia.

Th e Paren t s fi l ed s u i t ag ai n s t t h e DHS, t h e DFCS, L u t h eran , an d t h e An d ers on s

fo r, am o n g o t h er t h i n g s, neg l i g en ce an d p ro fes s io n al n eg l i g en ce. Th e DHS m o v ed to

d i s m i s s t h e Paren ts ’ cas e, as s ert i n g t h at t h e An d ers o n s w ere fo s t er p aren ts em p l o y ed

b y L u t h eran rat h er t h an th e DHS an d t h at

, as a res u l t

, th ey were n ot act i n g o n b eh al f

o f t h e DHS or p ro t ect ed b y s o v erei g n i m m u n i t y

. Th e t r i al co u rt d en ied th e DHS’ s

m o ti o n t o d i s m i ss , fi n d i n g t h at t h e An d ers o n s were “ ‘ st at e o ffi cers o r em pl o y ees ’ as

d efi n ed b y t h e [To rt Cl ai m s Act ] an d

. . . are i m m u n e fro m s u i t as t h ey were act i n g

wi t h i n t h e s co p e o f t h ei r o ffi ci al d ut i es at al l t i m es re l e v an t t o [t h e Paren t s ’ ]

Co m p l ai n t .” Th e t ri al co u rt en t ered a cert i fi cat e o f i m m ed iat e rev i ew, an d we g ran t ed

t h e DHS’ s ap p l i cat i o n fo r i nt erl o cu t o ry ap p eal

. Th i s ap p eal fo l l o wed

.

In a s i n g l e en u m erat io n o f erro r, th e D HS co n t en ds t h at “ t h e t ri al co u rt erred

b y d en y i n g [t h e] DHS’ s m o t i on t o d i s m i s s b ecau se t h e An d e r s o n s w e r e n o t s t at e

o ffi cers or em

p lo y ee s w h o were act i n g on b eh al f o f [t he] D HS” at t h e t i m e o f

Al ex i a’ s d eat h. In i t s s i m

p l es t fo rm , t h e DHS’ s arg u m en t m ay be su m m ari zed t h u s l y :

t h e DHS co n tract ed wi t h Lu t heran fo r fo s t er care s erv i ces , an d Lu t h eran co n t ract ed

5wi t h t h e An d ers on s t o s erv e as fo st er p aren t s ; t h erefo re, t h e An d ers o n s were act i n g

o n b eh al f o f Lu t h eran rat h er t h an t h e DHS wh en Al ex ia d i ed an d

, as a res ul t

, t h e DHS

i s en t i t l ed t o s o v erei gn i m m u n it y . W e d o n o t ag ree.

Un d er Geo rg i a l aw, “ [t ] he d o ct ri ne o f s o v erei g n im m un i t y s h i el ds t h e s t at e

fro m su i t s s eek in g t o reco v er d am ag es [b ecau s e]

. . . t he p ri m ary p urp o s e o f so v erei g n

i m m u ni t y i s t o p ro t ect s t at e co ffers .” In t h e In t er es t o f A. V. B.

, 2 6 7 Ga. 7 28 (1 ) (4 8 2

SE2 d 2 7 5 ) (1 99 7 ). Th erefo re, “ [ t ] h e s o verei g n i m m u n i t y o f t h e s t at e an d i t s

d ep art m en t s an d ag en ci es can o n l y b e wai v ed by an Act o f t h e Ge n eral As s em b l y

wh i ch s p eci fi cal l y p ro v i d es t h at s o verei g n i m m u n it y i s t h ereb y wai v ed an d t h e ex t en t

o f su ch wai v er.” Ga. Co n s t

. o f 1 9 8 3

, Art

. I, Sec. II, Par. IX (e). En act ed b y t h e

Gen er a l As s em

b l y i n 1 9 9 2

, t h e To rt Cl ai m s Act s u p p l i es s u ch a wai v er, p ro v i d i n g

t h at

[t ] h e s t a t e w a i ves i t s s ov erei g n i m m u n i t y fo r t he t ort s o f st a t e o ff i cer s

a n d emp l o

yees wh i l e act i n g wi t h i n th e s co p e o f th ei r o f f i c i al d u t i es o r

em p l o y m en t an d sh al l b e l iab l e fo r s u c h t o r t s i n th e s am e m an n er as a

p ri v at e i n d i v i d u al o r en t i t y wo ul d b e l i ab l e u n d er l i k e ci rcu m s t a n ces ;

p ro v i de d, how e ve r , t

ha t t he s t at e’ s s o v erei g n i m m u n i t y i s wai ved s u b

ject

t o al l ex cep t i on s an d l im i t at i o n s set fo rt h i n t hi s art i cl e. Th e s t at e s h al l

h a v e n o l i ab i l it y fo r lo s ses res u l t i n g fro m co n d u ct o n t he p art o f s t at e

6o ffi cers o r em p l o y ee s w h i ch was n o t wi t h i n th e s co pe o f t h ei r o ffi ci al

d u t i es o r em

p l oy m en t .[ 4 ]

(Em p h as i s s u p p l i ed .) OCGA § 5 0 -2 1 -2 3 (a); s ee al s o Dep t

. o f H u ma n R es o u r ces v.

Jo h ns o n , 2 6 4 Ga. Ap p

. 7 3 0 , 7 3 2 (5 9 2 SE2 d 1 24 ) (2 0 0 3 ).

“ St at e o ffi cer o r em

p lo y ee” i s d efi n ed as “ an o ffi cer o r em p lo y ee o f t h e

s t at e

. . . act i n g o n beh al f o r i n s e rv i ce o f t h e s t at e i n an y o ffi ci al cap aci t y , wh et h er

wi t h o r wi t h o u t co m

p en s at i o n , bu t t h e t erm d o es n o t i n cl u d e a n i n d ep en d en t

co n tract or d o i n g bu s i n es s wi t h t h e s t at e.” 5 OCGA § 5 0 -2 1 -2 2 (7 ). T h e d efi n i t i o n o f

“ s t at e o ffi cer o r em

p l o y ee” al s o s p eci fi cal ly i n cl u des “ fo s t er p a r e n t s an d fo s t er

ch i l d ren .” Id

. Al t h o u g h “ fo s t e r p a r e n t ” is n ot sep arat el y d efi n ed i n t h e To rt Cl ai m s

Act

, o u r Su p rem e Co urt has d et erm i n ed th at i t m ean s “ t h e pers o n o r pers o n s wh o

p ro v id e care, l od g i n g , s u p erv i s i o n , an d m ai n t en an ce i n a fo s t er care h o m e u s ed b y a

4 OCGA § 50 -2 1 -2 4 i n cl u d es a li s t o f t h irt een ex cep t i on s t o t he st at e’ s wai v er

o f s o v erei g n i m

m u ni ty , n o n e o f wh i ch are rel ev an t h ere.

5 Th e ex cl us i on fo r i nd ep en d en t co n t r a c t o rs si m p l y reco g n i zes t h e l o n g

s t an d i n g l eg al p ri nci p l e t hat “ [ a ]n e m p l o y er g en eral l y i s n ot res p o n s i bl e fo r t o rt s

co m m i t t ed b y h i s em

pl o y ee w h en t h e em

p l o y ee ex erci s es an i n d ep en d en t b u s i n es s

an d i n i t i s n o t s ub

ject t o t h e i m

m ed i at e d i r e c t i o n an d co n t ro l of th e em p l o y er.” OCGA § 5 1 -2 -4

.

7ch i l d

-p l aci n g a g en cy. ” (Em

ph as i s s up p l i ed .) Jo h n so n v. Dep t. o f Hu ma n Res o u r ces ,

2 7 8 Ga. 7 1 4

, 7 1 7 (3 ) (6 0 6 SE2 d 2 7 0 ) (2 0 0 4 ) (ci t in g OCGA § 4 9 -5 -6 0 (1 1 )). 6

As a res u l t

, “ [a] s t at e offi cer o r em p l oy ee wh o co m

m i t s a t o r t wh il e act i n g

wi t h i n t h e s co pe o f h i s o r h er o ffi ci al du t ies o r em p lo y m en t i s no t su b

ject t o l aws u i t

o r l i ab il i t y

t h erefo r.” OCGA § 5 0 -2 1-2 5 (a). In s tead

, “ [a] pers o n b ri n g i n g an act i o n

ag ai n s t t h e s t at e u nd er t h e p ro v i s i o n s o f t h i s art i cl e m u s t n am e as a p art y

d efen d an t

o n l y t he s t at e g o v ern m en t en t i t y fo r wh i ch t h e s t at e o ffi cer o r em p l o y ee was act i n g

an d sh al l n ot nam e t h e st at e o ffi cer o r em p l o y ee i n di v id u al l y .” O CGA § 5 0 -2 1 -2 5 (b ).

In t h is cas e, t h e DHS o b tai n ed l eg al cu st o d y o f Al ex i a res u l ti n g fro m a ju v en i l e

co u rt p ro ceed i n g

. 7 Th ereaft er, Lu t h eran i nfo rm e d t h e DHS t h at i t co ul d care fo r

6 “ Fo s t er care h o m e” is i t s el f d efi ned as “ a p ri v at e h o m e u s ed b y a ch i l d-p l aci n g

ag en cy wh i ch h as b een ap pro ved b y t h e ch i l d -p l aci ng ag en cy to p ro v i d e 2 4 h o u r care, l o d g i n g , s u p erv i s i o n , an d m ai n t en an ce fo r n o m o re t han si x ch i ld ren wh o are

u n rel at ed t o t h e fo s t er p aren t o r p aren t s .” Jo h n so n , s u pra, 2 7 8 Ga. at 7 1 7 (3 ) (ci t i n g OCGA § 4 9 -5 -6 0 (1 0 )).

7 “ ‘ Leg al cu s t o d y ’ m ean s a l eg al s t at u s creat ed b y co u rt o rd er em b o d y i n g t h e fo l l o w i n g ri gh t s an d res po n s ib i l i t ies :

(A) Th e ri g h t t o h av e t h e p hy s ical p o s s es s i o n o f t h e ch i ld ; (B) Th e ri g h t an d t h e d u t y t o p ro t ect , t rai n , an d d i sci p l i n e t h e ch i ld ; (C) Th e res p o n s i b i li t y t o p ro vi d e t h e ch i l d wi t h fo o d

, cl o t h in g , s h el t er, ed u cat i on , an d o rd i n ary

m ed i cal care; an d (D) Th e r i

gh t t o d et er mi n e wh er e a n d wi th wh o m t he ch i l d s ha l l l i ve ,

8Al ex i a an d s u g ges ted t h e An d ers o n s as fo s t er p aren t s

. Th e DHS ap pro v ed t h e

An d ers on s t o s erv e as Al ex i a’ s fo s t er paren t s , an d Al ex ia res id ed i n t h e An d ers o n s ’

h o m e. Un d er th es e fact s , Lu t h eran s at i s fi ed th e d efi n i ti o n of a “ ch i l d- pla c i ng a ge nc y ,”

t h e An d ers o n s ’ res i d en ce q ual i fi ed as a “ fo s t e r care h o m e,” an d t h e An d ers on s

t h em s el v es m et th e d efi n it i on o f “ fo s ter paren t s .” Acco rd i n g l y , t h e A n d ers o n s were

“ s t at e offi cers o r em

p l o y ees ” u n d er t h e To rt Cl ai m s Act an d are th erefo re en t i t l ed to

s o v erei g n i m

m un i t y

. It fo l l o ws t h at t he DHS, rat her t h an th e An d ers o n s in d i v i d u al l y ,

i s t h e p ro p er p art y defen d an t i n t h e Paren t s ’ a c t i o n u n d er t h e To rt Cl ai m s Act

. See

OCGA § 5 0 -2 1 -2 5 (b ).

Jo h n s o n d o es n o t co m

p el a d i fferen t res u l t. 26 4 Ga. Ap p. at 7 30

. In t h at cas e,

a ch i l d i n t h e jo i n t cu s to dy o f t h e Dep art m en t o f Hu m an Res o u rces 8 an d t h e

Dep art m en t o f J u v en i l e Ju s t i ce d ie d as t h e res u l t o f an acci d en t al el ect ro cu t i o n at a

co rp o rat e ch i l d care i n s t i tu ti o n

. 2 6 4 Ga. Ap p

. at 7 3 0

. Th e c h i l d ’ s m o t h er s u ed t h e

d ep art m en t s an d t h e h o u se p aren t o v ers eei n g t h e i n st i t u t i o n fo r t h e ch i l d ’ s wro n g fu l

p ro v id ed t hat t h es e ri g h t s an d res p o n s i b i li t ies s h al l b e ex erci s ed s u b ject t o t h e

p o wers , ri g h t s , d u t i es , an d res p o n s i b i l i ti es o f t h e g u ard i an o f th e p ers o n o f th e ch i ld

an d su b ject t o an y res id u al p aren t al ri g h t s an d res p o n s i b il i ti es .” (Em ph as i s s u p p l i ed .) OCGA § 4 9 -5 -3 (1 1 ) (2 0 1 3 ).

8 Th e D ep art m en t o f Hu m an Res o u rces was t h e p red eces s o r t o t h e DHS. See OCGA § 4 9 -2 -1 (a).

9d e at h

. Id

. Th e d ep art m en t s m o v ed t o d i s m is s th e m o t her’ s act i o n , arg ui n g t h a t

s o v erei g n i m

m u n it y barred t h e act i o n

. Id

. Th e t ri al co u rt d en i ed t h e m o t i o n , an d t h e

d ep art m en t s ap p eal ed

. W e rev ers ed

, h o l d i ng t h at n ei th er t he ch i l d care i n s ti t ut i o n n o r

t h e h ou s e p aren t were em

p l o y ees o f t h e s t at e. Id

. at 7 32 -7 3 6 (1 ). Rel ev an t t o t h i s cas e,

we s p eci fi cal l y hel d t h at t h e h o u s e p aren t “ was a c h i l d c a r i n g i n s t i t u t i o n em p l o y ee

[an d ] n o t a fo s t er p aren t ” b ecau s e t h e i n s t i t u t io n was “ a ch il d cari n g i n st i tu t i o n rat h er

t h an a p ri v at e fo s t er h o m e, an d [t h e h ou s e p aren t ] was em p l o y ed b y an d p ro v i d ed care

at [t h e i n s t i t u t i o n ] rat h er th an in h is o wn h o m e

. . . . ” 9 Id

. at 7 37 (2 ). Ou r Su p rem e

Co u rt affi rm ed , h o l di n g t h at b ecau s e t h e i n s t i t u t io n

d i d n o t m eet t h e s t at u t o ry d efi ni t i o n of “ fo s t er h o m e” c o n t ai n ed i n

O C GA § 4 9 -5 -6 0 (1 0 ), [t h e i n s t it u t i o n ’ s ] em p lo y ee d id n o t m eet th e

d efi n i t io n o f “ fo st er p aren t ” an d t h erefo r e d i d n o t fal l wi t h in th e

9 A “ ch i ld -cari n g i n s t i t u ti o n m ean s an y i n s t i t u t i on , s o ci et y , ag en cy , or faci l i t y , wh et h er i n co rp o rat ed o r no t

, w h i ch ei th er p ri m ari l y o r i n ci d en t al ly p ro v i d es fu l l -t i m e

care fo r ch i l d ren th ro u gh 1 8 y ears o f ag e o u t s i de o f t h ei r own h o m es , s u bject t o s u ch

ex cep t i o n s as m ay b e p ro v id ed i n ru l es an d reg u lat i on s of th e b o ard .” OCGA § 4 9 -5 -3 (3 ) (2 01 3 ). As a res u l t

, a ch i l d -cari n g i n s t i t u t i o n i s d is t in ct fro m a fo s t er care h o m e. See OCGA § 4 9 -5 -6 0 (1 0 ) (J an

. 5

, 2 01 3 ) (“ ‘ Fo s ter care h om e’ m ean s a p ri v at e h o m e

u s ed b y a ch i l d -p l aci n g ag en cy w h i ch h as b een ap pro v ed by th e ch i l d-p l aci n g ag en cy

t o p ro v i de 2 4 h o u r care, l o d g i n g, s u p erv is i on , an d m ai n ten an ce fo r n o m o re t h an s ix

ch i l d ren wh o are u n rel at ed to t he fo s t er p aren t o r p aren t s .”); Jo h n s o n , su p ra, 2 7 8 Ga.

at 7 1 7 (3 ).

10s t at u t o ry d efi n it i o n o f an “ em p l o y ee” fo r wh o s e n eg li g en ce t h e St at e h as

wai v ed i t s s o v erei g n i m

m u n i t y i n t h e Geo rg ia To rt Cl ai m s Act

.

Jo h ns o n , s u p ra, 2 78 G a. at 71 7 (3 ). In t hi s cas e, h o wev er, t he A n d ers o n s w ere fo s t er

p a r en ts p ro v i d i ng care fo r Al ex i a i n t hei r o wn h o m e — aft er recei v i n g Al ex i a’ s

p l a c e m en t fro m Lu t h eran an d

, m o re im p o rt an tl y , ap p ro v al fro m t h e DHS

— rat h e r

t h a n s erv i ng as em

pl o y ees o f a ch i l d care i ns t i t u ti o n

. As a res u l t

, Jo h n s o n i s

i n ap p o s it e. 1 0

Ou r co n cl us i on i s b ut t res s ed b y th ree ad d it i o n al fact o rs

. Fi rs t, co nt rary t o t h e

DHS’ s ar g u m e n t

, we d o n o t fi nd t h at t h e t erm “ fo s t er p aren t” is res t ri ct ed t o fo s t er

p aren t s d i re c t l y e m

p l o y ed by th e DHS. Th e s t at u t o ry d efi n i t io n o f “ fo s t er p aren t ”

co n tai n s n o su ch l i m i t at i o n, an d “ [t ] hi s co u rt d o es n o t h av e t h e au t h ori t y t o i m p o s e

s u ch a l i m i t at i o n o n t h e p l ai n l an g u ag e o f th e s t at u t e.” Na t

. S vcs

. I n d u s

. v.

Tr a ns a mer i ca In s

. Co

. , 2 0 6 Ga. Ap p . 3 3 7

, 3 3 9 (1 ) (4 25 SE2 d 3 2 7 ) (1 9 9 2 ); s ee al s o

1 0 Si m i l arl y , t h e DHS’ s rel i an ce u p o n Ha r t l ey v. Ag n es S c o t t C o l l eg e i s

u n av ai l i n g

. 2 9 5 Ga. 4 58 (7 5 9 SE2 d 8 5 7) (2 0 1 4 ). In H a r t l ey , o u r Su p rem e Co u rt
d et erm i n ed t h at cam

p u s p o li ce o ffi cers , t h o u gh cert i fi ed b y t h e s t at e t o act as p eace

o ffi cers , were n o t “ st at e o ffi cers o r em p l o y ees ” u nd er t h e To rt Cl ai m s Act “ u n l es s

t h ey are act i n g fo r an i den t i fi ed ‘ s t at e g o v ern m en t en t i t y ’ wh en t h ey co m m i t an al l eg ed t o rt [.] ” Id .at 46 6 -4 6 7 ( 2 ) ( d ). Sp eci fi cal ly

, t h e p o l ice o ffi cers , t h o ug h s t at ecert ifi ed

, were em

p l o y ed b y , an d act i n g on b eh al f of, a p ri v at e i n s ti t ut i o n

. Id

. In t h i s

cas e, t h ere i s n o s u ch d i s t i n ct io n , as t h e A n d ers o n s were ap p ro ved b y t h e DHS to

s erv e as fo st er p aren t s an d cared fo r a ch i l d i n t he DHS’ s l eg al cu s t od y

.

11Ma s s ey v. Al l s t a t e In s

. Co

. , 3 4 1 Ga. Ap p

. 4 6 2, 46 5 (1 ) (a) (8 0 0 SE2 d 6 2 9 ) (2 0 1 7 )

( “ N o t h i n g i n t he pl ai n l an g u ag e o f t h i s s tat u t e s u gg es t s t h at t h e G en eral As s em b l y

i n t en d ed t o l i m i t t h e [s t at u t o ry ] t erm

. . ., an d we see n o reas on wh y su ch a d i st i n ct i o n

s h o u ld b e read i n to t h e s t at u t e.”). In fact

, t h e d ef i n i t i o n r e co g n i zes t hat a “ fo s t er

p aren t ” m ay b e em

p l o y ed b y ei t h er t h e DHS d ire c t l y o r a ch i l d -p l aci ng ag en cy

wi t h o u t reg ard t o t h e effect of s u ch em pl o y m en t as t o s o v e r e i g n i m m u n i t y

. 1 1 See

OCGA § 4 9 -5 -6 0 (1 0 ) (J an . 5 , 2 0 1 3 ).

Seco n d

, o ur Co d e co n t ai ns m u l t i p l e p ro vi s i o n s wh i ch r e ve a l tha t f o ster p aren t s ,

reg ard l es s o f t h ei r em

p l o y er, act o n b eh al f o f t h e DHS. Fo r ex am pl e, t he Fo s t er

Paren t s Bi l l of Ri g h t s co n t ai n s a l eg i s l at i v e fi n di n g t h at “ fo s t er p aren t s p ro v i d i n g care

fo r ch i l d ren wh o a r e in t h e cu s t o d y o f [ DHS ] p l ay an in t eg ral

, i n d is pen sab l e, an d v i t al

1 1 Fo r t hi s reas o n, t h e DHS’ s arg u m en t th at i t s co n tract wi t h Lu th eran ab s o l v es i t o f l i ab i l i t y i s u n p ers uas iv e. It i s t ru e th a t t h e D HS h as “ m ean i n g fu l st at u t o ry

res p o n s i b i l i t ies fo r ch i ld ren p l aced i n [i t s ] cu s t o d y , an d [i t ] s at i s f[i es ] t h o s e

res p o n s i b i l i t ies b y ex erci s i n g reas o n ab l e care i n t h e s el ect io n an d s u p erv i s i o n o f [i t s ]

i n d ep en den t co n t ract o rs

. ” (Ci t at i o n o m i t t ed .) Jo h n s on , s up ra, 2 7 8 Ga. at 7 16 (2 ); s ee al s o O CGA § 49 -5 -1 2 ( k ) I t i s a l s o t ru e t h at ch i l d -p l aci n g ag en ci es hav e a d u ty to

“ s afeg uard t he wel fare o f

. . . ch i l d ren ” p l aced i n fo s t er ho m es

. OCGA § 49 -5 -1 2 (j).

Ho wev er, t h es e d u t i es do n o t al t er t h e p l a i n l an g uag e o f t h e T o rt Cl ai m s Act t h at
fo s t er paren ts are “ s t at e o ffi cers o r em p l o y ees ” an d t h at fo s t e r p aren t s are “ p ers on s wh o p ro v i d e care, l o d g i n g , s u p erv i s i o n , an d m ai n ten an ce in a fo s t er care h o m e u s ed

b y a ch i l d -p la ci n g a g en cy ,” w h i ch m ay b e ei t h e r p u b li c o r p ri v at e. (Em p h as i s

s u p p li ed .) Jo hn s o n , s u pra, 2 7 8 Ga. at 7 1 7 (3 ) (ci t i n g OCGA § 4 9 -5 -6 0 (1 1 )).

12ro l e i n t h e s t at e’ s effo rt t o care fo r d ep en d en t ch i l d ren d i s p laced fro m t h ei r h o m es .”

(Em p h as i s s u p p li ed .) OCGA § 4 9 -5 -2 8 1 (a). 1 2

Th i rd

, t h e Gen eral As s em b l y h as m ad e cl ear th at th e D HS ret ai n s l eg al cu s t o dy

o f c h i l d r e n , r eg ard l es s of wh et h er t h e ch il d ren were p l aced i n a fo s t er h o m e b y a

co u nt y d ep art m en t o f f

a m i l y an d ch i l d ren s erv i ces or b y a p ri v at e ch i l d-p l aci n g

ag en cy

. See OCGA § § 49 -5 -3 (1 1 ) (2 0 1 3 ), 4 9 -5 -9

. At t he o u ts et

, t h e DHS h as t h e

au t h o ri t y t o co n t ract w i t h p ri v at e ag en ci es fo r t h e care o f ch i l d ren

. See OCGA § 4 9 -5

-

9 (a). Ho wev er, w i t h t h at au t h or i t y co m es a s t at u t o ry o b l i g at i on “ t o i n s p ect

p eri o d i cal l y al l public a nd p r iva t e inst i t u t i o n s an d ag en ci es wh o s e faci l i t i es [t h e DHS]

i s u s i n g .” OCGA § 4 9 -5 -9 (b ). Fu rt herm o re, t h e

[p ] l acem en t of a ch il d o r y o u t h b y th e [DHS] in an y i n s ti t u t i o n or ag en cy

n o t o p e r a t ed b y t he [DHS] o r t h e rel eas e o f su ch ch i l d o r y ou t h fro m

s u ch an i n s t i t u ti o n o r ag en cy s h a l l n o t t e r m i n a t e t h e co n t r ol o f th e
[ D H S ] o v er s uch ch i l d o r yo u t h. No ch i l d o r y o u t h p l aced i n s u ch

1 2 Fu rt h erm o re, t h e St at e n o w affo rd s s o m e l ev el o f p ro t e c t i o n t o al l fo s t er

p aren t s , reg ard l es s o f th ei r em pl o y er, b y ex cl u d i n g “ [r] eco rd s o f t he Dep art m en t o f

Hu m an Serv i ces co n cern i n g a n y fo s t er p aren t” fro m d i s cl o s u re un d er t h e Op en Reco rd s Act

. OCGA § 5 0 -1 8 -7 2 (2 1 .1 ) (A) (2 0 1 8 ). In t h at co n t ex t

, fo s t er p aren t s are d efi n ed as “ i n d i v id ual s wh o were ap pro v ed t o s erv e i n s u ch cap aci t y b y t h e Di v i s i o n

o f Fam i ly an d Ch il d ren Serv i ces o f th e D ep art m en t o f Hu m an Serv i ces o r a ch i l d -p l aci n g a g en cy l i cen s ed i n acco rd a n c e w i t h Co d e Sect i o n 49 -5 -1 2

. . . .” (Em p h as i s s u p p li ed .) Id . at (2 1 .1 ) (B).

13i n s t i t u t i o n or u n d er s u ch an ag en cy m ay b e rel eas ed b y t h e i n s ti t u t io n o r

ag en cy wi t h o u t

t h e a p pr o va l o f t h e [ DHS ]

.

(Em p h as i s s u p p l i ed .) O CGA § 4 9 -5 -9 (c). Fi n al l y , “ leg al cu st o d y ” i n c l u d es “ [t ] h e

ri gh t t o d et erm i n e wh ere an d wi t h wh o m t h e ch i l d s h al l l i v e[.] ” OCGA § 49 -5 -3 (1 1 )

(2 0 1 3). In fact

, ev i d en ce i n t hi s cas e c o n f i r m e d t h at th e DHS h as t o ap p ro v e a

p l acem en t “ reg ard l es s o f wh et h er a ch i l d pl acem en t s erv ice i s b ei n g

. . . ut i l i zed ” an d

t h a t t h e DHS “ s t il l h as d u ti es an d res p on s ib i l i t ies o wed ” t o a ch i l d i n fo s t er care

reg ard l es s o f “ w h et h er a ch il d p l a c e m e n t ag en cy s erv i ce is u s ed

. . . .” In s h o rt

,

ev i d en ce rev eal e d t h at “ ev en wh en a ch i ld p l acem en t ag en cy i s ut i l i zed

, . . . [t h e

DHS] u l t i m at el y [h as ] cu s t o d y of t h e ch i l d d u ri n g [t h e] wh o le t im e.” Tak en t o g et h er,

t h es e fact o rs co n fi r m t h a t D H S ret ai n s l eg al cu s t o d y o f ch i ld ren p l aced wi t h fo s t er

p aren t s b y

p ri v at e ch i l d -p l aci n g ag en ci es

.

In s u m , we co n cl u d e t h a t t h e An d ers o n s sat i s fi ed t he s t at u t ory d efi n i t i o n o f

“ fo st er p aren ts ” an d th at t h ei r h o m e q u al i fi ed as a “ fo s t er care h om e.” See O CGA § §

4 9 -5 -6 0 (1 0 ), (1 1 ); Jo h n so n , s up ra, 2 7 8 Ga. at 7 1 7 (3 ). Fu rt h erm o re, t h e An d ers on s

were act i n g on b eh al f of th e DHS i n th ei r care fo r Al ex ia an d

, as a res u l t

, t h ey were

“ s t at e offi cers o r em

p l o y ees ” u nd er th e To rt Cl ai m s Act

. See OCGA § 5 0 -2 1-2 2 (7 ).

Acco rd in g ly

, t he Paren t s’ wro n g fu l d eat h act i o n i s p ro p er ag ai n s t th e DHS d i rect l y

14b ecau s e t h e s tat e h as wai v ed s o v erei g n i m m u n i t y u n d er t h es e ci rcu m s t an ces

. See

OCGA §§ 5 0

- 1 2

- 2 3 (a), 5 0 -1 2 -2 5 (b ). Fo r t h e fo reg o i n g reas o n s , w e affi rm t h e

ju d g m en t o f t h e t ri al co u rt d en y i n g t h e DHS’ s m o t io n t o d i s m i s s

. 1 3

Ju d g men t af f i r med

. Go be i l

, J

., co n cu r s

. Di l l a r d

, P

. J., co n cu r

s f u l l y a n d

s p eci a l l y.

1 3 W e n eed no t co n s i d er t h e DHS’ s arg u m en t t h at t h e t ri al co u rt e r r e d i n d en y i n g i t s m o t i o n t o d i s m i ss t h e Paren ts ’ cl ai m a g a i n s t M rs

. An d ers o n fo r

p ro fes s i on al n eg l ig en ce becau s e i t was n o t s e p arat el y en u m erat ed as erro r. See

S myr n a Dev. Co

. W

h i t en er Lt d . Pa r t n er s hi p , 2 8 0 Ga. Ap p

. 7 8 8

, 7 9 0 (1 ) (6 3 5 SE2 d

1 7 3 ) (2 0 0 6 ) (“ a p art y can no t ex p an d h i s en u m erat io n s of erro r t h ro u g h arg u m en t o r ci t at i o n i n h i s b ri ef”) (ci t at i on an d p u n ct u at i on o m i t t ed ). In ad d i t i on t o th e fai l u re to

en u m erat e t h e arg u m en t as erro r, t h e arg u m en t i s d eem ed ab an d o n ed g i v en t h e l ack

o f m ean i n g fu l arg u m e n t an d ap pro p ri at e ci t at i o n s o f au t h o ri t y i n s u p p o rt o f t h e

arg u m en t . Id .; s ee al s o Co u rt o f Ap p eal s Ru l e 2 5 (c) (2 ).A1 9 A0 29 2 . STATE OF GEORGIA v . DUNCAN et al

.

D I LLA R D , Pres i d i n g J u d g e, co n cu rri n g fu ll y an d s p eci al l y

.

St at e act o rs ro u ti n el y in

ject t h em s el v es i n t o th e p ri v at e real m of fam i l y l i fe 1

t o

— o s t en s i b l y

— p ro t ect o u r ch i l d ren

. Th i s i s no s m al l th i n g

. Paren t s are t h e n at u ral

p ro t ect o rs o f t h ei r ch il d ren , n ot g o v ern m en t o ffi ci al s

. 2 Bu t t h ere are, un q ues t i o n ab l y ,

1 Th e fam i ly has ri g h t l y b een ch aract e r i z e d a s t h e “ fi rs t an d v i tal cel l o f

s o ci et y

. ” Ri ch ard W

. Garn et t, Ta k i n g P i er ce S er i o u s l y: Th e F a mi l y, R el i g i ou s Ed u ca t i on

, a n d H

a r m t o Ch i ld

r en , 7 6 N O T R E D A M E L A W R E V

. 1 0 9, 1 1 4 (I) (2 0 0 0 ) (p u n ct u at i o n an d ci t at io n o m i t ted ).

2 See, e.g

. , Pr i n ce v. Ma s s a ch u s et t s , 32 1 U.S. 1 5 8

, 1 6 6 (6 4 SCt 4 3 8

, 8 8 LEd

6 4 5 ) (1 94 4 ) ( “ [T] h e cu s t od y , care an d n u rt u re o f t he ch i l d res i d e fi rs t i n th e p aren t s , wh o s e p ri m ary fu n ct i o n an d freed o m i n cl u d e p rep arat i o n fo r o b l i g at i o n s t h e s t at e can

n ei t h er s up p ly n o r h i n d er.”); Pi er ce v. S o c'y o f S i st er s , 26 8 U. S

. 5 1 0

, 5 35 (4 5 SCt

5 7 1

, 6 9 LEd 1 0 70 ) (1 9 2 5 ) (“ [T] h o s e wh o n urt u re [t h e ch i l d ] an d di rect hi s d es t i ny h av e t h e ri g h t

, co u p l ed wi t h t h e hi g h d ut y , t o reco g n i ze an d p rep are h i m fo r

2cas es an d co m p el l i n g ci rcu m s t an ces t h at warran t s t at e i n t ru s i o n i n t o t h e p aren t -ch i ld

rel at i o n s h i p

. 3 T h i s i s s u ch a cas e. H e r e , t h e St at e h ad l eg i t i m at e, s eri o u s co n cern s

ab o ut t he wel fare o f Al ex i a Du n can , an d i t i n t erv en ed t o t ak e cu s t o d y of t h e ch i l d to

en s u re h er s afet y

. Al l o f t h i s i s w e l l an d g oo d

, an d I fi nd n o fau lt i n t h e St at e’ s

d eci s i o n t o d o s o

. W h at I d o t ak e i s s u e wi th i s th e St at e u si ng i t s d eci s i o n to co n t ract

o u t i t s res p o n s i b i li t y t o care fo r Al ex i a t o a ch i l d -p l aci n g ag en cy , as w el l as a s t rai n ed

i n t erp ret at io n o f OC GA § 5 0 -2 1 -2 2 (7 ), as a m ean s o f was h i n g i t s h an d s o f an y

ad d it i o n al o b li g at i o n s .” (em ph as i s ad d ed )); s ee a l

s o Garn et t

, s u

pr a at 1 3 2 (III) (“ Su rel y , t h e at t i t u d e t o ward a ch i l d t h at b es t refl ect s an ap p reci at i o n fo r her d i g n i t y

as a h u m an p ers o n i s n o t t he di s em bo d i ed pat ern al i sm o f a g o v ern m en t fu nct i o n ary ,

o r ev en th e g en u i n e co n cern o f a wel l -m ean in g cas e-wo rk er, b u t t h e l o v e of a p aren t

. A p aren t l o v es t h i s ch i l d ; t h e Go v ern m en t [ ] [an d ] i ts ex p ert s

. . . , t ry as t h ey m i g h t

,

m o st l i kel y d o n o t

. A p aren t has a m o ral o b l i gat i on t o n u rt u re an d p ro t ect t h i s ch i l d,

t h i s ch i l d wh o can o n l y

b e, t o t h e Go vern m en t, s i m p l y a p art i cu l ar m an i fes t at i o n o f

an ab s t ract i o n

— ‘ ch i ld ren ’

— wh o s e b es t i n teres t s th e St at e h as ch arg ed i t s e l f wi th

ad v an ci ng

. Paren t al co n t ro l i s a t h i s -ch i l d -cen t ered

, t ru l y p ers o n al i s t

, val u e, w h i l e

s t at e co n t ro l

. . . r e s p ect s t h e p ers o n h o o d o f ch i l d ren o n l y i f on e b el i ev es t h at t h ere i s s o m et h i n g d i g n ifi ed ab o u t b ei n g reg ard ed by a h u b ri s ti c s t at e as a p o l i cy d at u m to
b e m an i pu l at ed . . . i n acco rd wi t h b es t -i n t eres ts g en eral i ti es

. ” (fo o t n o t es o m i t t ed ))

3 See, e.g

., In t h e In t er es t o f J. V. J

. , 3 2 9 Ga. Ap p

. 4 2 1

, 42 5 (7 6 5 SE2 d 3 8 9 ) (2 0 1 4) (“ [W ] e h av e rep eat ed ly reco g n i zed th at ‘ [t ] h e ri g h t t o rai s e o n e's ch i l d ren i s

a fi ercel y g u ard ed ri g h t i n o u r so ci et y an d l aw, an d a ri g h t t h at s h o u l d b e i n fri n g ed

u p o n o n l y u n d er t he m os t co mp el l i n g ci r cu ms t a n ces ”) (em p h as i s s u p p l i ed ) (ci t at i o n

o m it t ed ); s ee Garn et t

, s u

p r a at 1 1 4 (I) (“ [S] tat e fu n ct i o n ari es , gu i d ed an d res t rai n ed

b y a p ro p er h um i l i t y a b o u t t h ei r au t h o ri t y an d co m p et en ce, s ho u l d m ed d l e wi th [p aren t al d eci s i o n s] o n l y

t o p rev en t h arm , v ery

carefu l ly d efi n ed , t o a ch i ld .”).

3res p o n s i b i l i t y fo r th i s ch i l d’ s d eat h

. Th i s i s an ex t rao rd i n ary p o s i t i o n fo r t h e St at e to

t ak e, an d I co n fes s m

y s el f d i s ap p o i nt ed t hat i t ch o s e t o d o s o

. Su ffi ce i t t o s ay , I fu l l y

co n cu r i n t he m ajo ri t y ’ s t h o u g ht fu l an d wel l -reas o n ed o pi n i o n

.

4