FI RST DI VI SI ON

BA RNES, P. J.

, M CM I LLI A N and R EESE, 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

Febr uar y 26, 2019



# I n th e Co u r t o f

A p p eals o f

G eo r g ia

A1 8 A1 66 2 . ORTEGA et

al . v . COFFEY et al

.

B A R N E S , Pres i d i n g J ud g e.

Fo l l owi n g t h e d eat h o f her h u s b an d a n d i nju ry o f h er m i n o r so n i n a v eh i cl e

acci den t

, M ary Ort eg a, as su rv i v i ng s p o u s e an d ad m i n i s t rat o r o f t h e es t at e o f

Arm an d o Ort eg a an d t h e paren t an d g u ard ian o f A r m an d o Ort eg a, Jr., fi l ed a

co m p l ai n t fo r d am ag es ag ai n s t Ok efen o k ee Em erg en cy M ed i cal Serv i ces

, In c., d / b / a

At k in s o n Co u n t y Em erg en cy M ed i cal Serv ice (“ Ok efen o k ee EM S”), A t k i n s o n

Co u n t y

, 1 an d Dav id Co ffey

, t h e At k i n s o n Co un t y Ro ad Su p eri n t en den t

, i n h i s

i n d i v i d u al cap aci t y

. O rt eg a cl ai m ed t h at Ok efen ok ee EM S h ad fai l ed t o p ro p erl y an d

t i m el y ad d res s t h e i n

j u ri es t o h er h u s b an d an d s o n

, an d t h at Co ffey had fai l ed to

1 Th e Co u n ty was d is m i s s ed fro m t h e s u i t wi t h p reju d i ce an d i s n o t a p art y t o

t h i s ap p eal

.i n s p ect an d m ai n tai n th e ro ad way wh i c h cau s ed h er h u s b an d ’ s d eat h an d s o n ’ s

i n ju ri es . Ok efen o k ee EM S an d Co ffey fi l ed m o t i o n s fo r s u m m ary ju dg m en t

, wh i ch

t h e t r i a l co u rt g ran t ed u p o n co n cl u d i ng t h at b o t h d efen dan t s were i m m u n e fro m

l i ab i l i t y

. Ort eg a ap p eal s fro m t h o s e o rd ers an d co n t en d s t h at Co ffey was n o t en t i t l ed

t o o ffi ci al i m

m u n it y b ecau s e h e was n eg l i g en t i n t h e p erfo rm an ce o f h i s m i n i s t eri al

d u t i es

. Sh e al s o co nt en d s t h at Ok efen o k ee EM S was n ot e n t i t l ed t o st at u t o ry

i m m u ni t y becau s e h er cl ai m s were b ro ug h t fo r i t s fai lu re t o re n d e r e m erg en cy

s erv i ces rat h er t h an fo r i ts ren di t i o n o f em erg en cy s erv i ces

, an d b ecau s e an y s erv i ces

t h at w ere ren d ered were fo r rem u nerat i o n

. Up o n o u r rev i ew, we affi rm t h e t ri al

c o urt ’ s g ran t o f s um m ary ju dg m en t t o Co ffey

, bu t rev ers e t h e g ran t o f s u m m a r y

ju d g m en t t o Ok efen o k ee EM S.

1

. W e fi rs t no t e th at Ort eg a’ s b ri ef fai l s t o co m p l y w i t h o ur ru l es i n t h at

s i gn i fi can t p ort i o n s o f th e fact u al p rem i s es in her ap p el lat e b ri ef are n o t s u p p o rt ed by

t h e reco rd ot h er th an to an al l -i ncl u s i v e 10 0 -p ag e reco rd ci t at i o n

, s p eci fi cal l y “ R: 5 7

-

1 6 2 .” Sh e ci t es cri t i cal fact s

, i n cl u d in g q u o t es fro m v ari o u s d ep o s it i o n t es t i m o n y

, b ut

rat h er t han p ro v i d e s peci fi c ci t at i o n s t o th e r e c o r d

, s h e ei t h er b ro ad l y ci t es “ R: 5 7

-

1 6 2 ” or “ Id .” T h i s Co u rt i s n o t ch arg ed wi th cu l l i n g t h e reco rd o n b eh al f o f a p art y

.

Hi cks v. S t a t e

, 33 7 Ga. A p p

. 5 6 7

, 5 6 9 (1 ) (7 8 8 SE2 d 5 0 2 ) (2 0 16 ). See Co u rt o f

2Ap p eal s Ru l e 2 5 (c) (2 ). Th u s

, “ [i [f we h av e o m i t t ed an y fact o r fai l ed t o l o cat e

rel ev an t ev i d en ce, t h e res p on s i b i l i t y l i es wi t h co u ns el .” In t h e In t er es t o f C. T

., 2 8 6

Ga. Ap p , 1 8 6 , 1 8 6 (1 ) (6 4 8 SE2 d 7 0 8 ) (2 0 0 7 ).

2 . As t o Ort eg a’ s s u b s tan t i v e cl ai m s

,

[s ] u m m ary ju d g m en t i s pro p er i f t h e p l ead i n gs

, d ep o s i t i o n s, an s wers t o

i n t erro g at ori es

, an d ad m i s s i o n s o n fi le, to g e t h e r wi t h t h e affi d av i t s

, i f

an y

, s h o w t h at t here i s n o g en ui n e i s s u e as t o an y m at eri al fact an d t hat

t h e m o v in g p art y i s en ti t l ed t o a ju d g m en t as a m at t er o f l aw. Su m m ary

ju d g m en t s en

jo y n o pres u m

p ti o n o f co rrect n es s o n ap p eal

, an d an

ap p el l at e co urt m

u s t s a t i s fy i t s el f d e n o v o t h at t h e req ui rem en t s o f

OCGA § 9-1 1-5 6 (c) h av e b een m et

. In o u r d e n o v o rev i ew o f th e g ran t

o f a m o t io n fo r s u m

m ary ju d g m en t

, we m

u s t v i ew t h e ev i d en ce, an d al l

reas o n ab l e i n feren ces d rawn t h erefro m

, i n t he l i g h t m os t fav o rab l e t o th e

n o n m o v an t

.

(Ci t at i o n s an d pu n ct u at i o n om i t t ed .) Ga

. Fa r m Bu r ea u Mu t

. In s. Co

. v. Cl a xt o n

, 3 4 5

Ga. Ap p . 5 3 9 , 5 3 9 (8 1 2 SE2 d 1 6 7 ) (2 0 1 8 ). See OCGA § 9 -1 1-5 6 (c).

So v i ewed

, t h e ev i d en ce d em o n s t r a t e s t h at on Feb ru ary 2 2

, 2 0 1 5

, Ort eg a’ s

h u s b an d wa s d ri v i n g h i s Do d g e Ram t ru ck on Harv ey Newb ern Ro ad i n At k i n so n

Co u n t y

. Ort eg a’ s t wel v e-y ear-o l d s o n was al s o i n th e tru ck

. As t h e t wo t rav el ed d o wn

Newb ern Ro ad

, t h e h u s ban d h it a ho l e i n t h e ro ad

, a n d “ a l m o s t l o s t co n t ro l ” o f h i s

t ru ck , b u t h e was ab l e t o reg ai n co n t ro l o f t h e t ru ck un t i l h e hi t a s eco n d h o l e i n t h e

3ro ad an d “ l o s t co n tro l an d

. . . h i t [a] t ree.” Th e p o li ce were al read y o n t h e s cen e wh en

Ok efen ok ee EM S res p on d ed t o t h e acci den t

, an d t h e fi re d ep art m en t was ei t her o n t h e

s c e n e o r arri v ed s ho rt l y t hereaft er. On e of th e em erg en cy m ed i cal t ech n i ci an s

(“ EM T ”) ap p ro ach ed t h e s eri o u s l y i n ju red hu s b an d wh o was t rap p ed o n t h e d ri v er’ s

s i d e o f t h e t ru ck

, an d an o th er at t en d ed t o t he s on wh o was s eat ed o n t h e p as s en g er

s i de. Acco rd i n g t o th e s o n

, an EM T as k ed h im wh et h er h e wa s o k ay

, an d t h e so n

as k ed t h e EM T t o ch eck o n h i s u n co n s ci o u s fat h er b u t t he EM T res p o n d ed t h at

“ we’ v e g o t t o g et y o u o u t fi rs t .” Th e s o n t es t i fi ed t h at an E MT t h en in s t ru ct ed h i m to

“ ju m p o ff t h e t ru ck ,” an d wh en t h e s o n s ai d t hat he co ul d n o t j u m p b ecau s e h i s l eg

was i n ju red

, h e w as t ol d t h at “ t h at ’ s h o w y o u’ re go i n g to h av e t o g et o ff.” W h en t h e

s o n ju m p ed

, h e h eard a p o p an d i t “ real l y

, real l y h u rt ,” b u t h e “ h a d t o wal k” t o t h e

s t ret ch er. Th e s o n al s o t es t i fi ed t h at t h e EM Ts d i d no t i m m ed i at el y at t en d t o h i s fat h er

an d th at t h ey s ho u l d h av e “ wen t ah ead an d wo rk ed o n h i m .” Th e s o n was aware t h at

t h e fat h er was trap ped b u t t e s t i fi ed th at t h e E M Ts co u l d hav e “ wo rk [ed ] o n t h e

t rap p ed d o o r [wh en ] [h e] t ol d t hem [h e] was ok ay .” Th e fat h er, wh o was un res p o n s i v e

b u t b reat h i n g, w as rem ov ed fro m t h e tru ck an d p l aced i n t h e am b u l an ce wi t h t h e s o n.

Th e h u s b a n d st o pp ed b reat h i n g wh i l e h e was i n t h e am b ul an ce, an d t h e EM Ts

4at t em

p t ed t o res us ci t at e t h e h u sb an d d u ri n g t h e tri p to t h e h o s p i t al

, b u t he d i ed o f h i s

i n ju ri es

.

Th e EM T wh o as s i st ed t he s o n was d ep o s ed an d t es t i fi ed t h at h e rem o v ed t h e

s o n fro m t h e t ru ck wi t h t h e as s i s t an ce o f o t h er fi rs t res p o n d ers

. He t es t i fi ed t h at t h e

s o n “ w as p i ck ed u p a n d b r o u g h t o u t o f th e t ru ck

. . . an d lai d o n t o a s p in eb o ard

, at

wh i ch t i m e we p u t t h e C-co l l ar [o n h i m ] . . . an d p u t t h e h ead b l o ck s

. . . o n h i m

. . .

a n d t h en we carri ed h i m aro u n d to t h e am b u l an ce.” Th e E M T wh o as s i s t ed t h e

h u s b an d t es t i fi ed t h at w h en h e arri v ed at t h e acci d en t s cen e, t h e fat h er was t rap p ed

,

b reat h i n g b u t u n res p on s iv e. H e t es t ifi ed th at d es p it e th e h u s b an d b ei n g t rap p ed h e

was ab l e t o cl i m

b i n t o t h e v eh i cl e fro m t h e p as s en ger s i d e an d p lace th e hu s b an d o n

o x y g en

.

(a ) Gr a n t o f S u m ma r y Ju d g men t t o Ap pel l ee Co f f ey

.

In g ran t i n g s u m

m ary j u d g m en t t o Co ffey

, t h e t ri al co u rt fo u n d t h at Ort eg a

fai l ed t o es t ab l i sh t h at Co ffey h ad a m i n i s teri a l d u t y t o m ai n tai n t h e ro ad s an d h ad

b reach ed t h at d u t y

. T h e t ri al co urt fu rt h er fo u n d t h at an y d ut y Co ffey h ad to m ai n t ai n

o r rep ai r t h e ro ad w as d i scret i o n ary an d th at Ort e g a t h u s h a d t o d em o n s t rat e t h at

Co ffey act ed wi th act u al m al i ce i n t h e p erfo rm an ce o f h i s d ut y

, an d h ad n o t d o n e s o.

Aft er s o fi n d i n g

, th e t ri al co u rt co n cl u d ed t h a t “ b e c au s e t h ere i s n o ev i d en ce t h at

5C offey neg l i g en t l y p erfo rm ed a m i ni s t eri al act o r act ed w i t h act u al m al i c e

, h e i s

en t i t l ed t o o ffi ci al i m

m u n i t y an d s u m m ary ju d gm en t i s ap p ro p ri at e.” W e ag ree.

“ [A] s u i t ag ai n s t a p u b li c o ffi ci al i n h is o r h er i n d i v i d ual cap aci t y is b arred by

o ffi ci al i m

m u n i t y w h ere t h e p u b l i c o ffi ci al h as en gag ed i n d i scret i o nary act s t h at are

wi t h i n t h e s c o p e o f h i s o r h er au t h o ri t y

, an d t he o ffi ci al has no t act ed i n a wi l fu l o r

wan to n m an n er; wi th act u al m al i ce; or wi t h t h e act ual i nt en t t o cau se in ju ry .” Br o wn

v. P en l a n d Co n s t r

. Co

. , 2 8 1 Ga. 6 2 5

, 6 2 5 -6 26 (6 41 SE2 d 5 2 2 ) (2 0 07 ). See Ga. Co ns t

.

o f 1 9 8 3

, Art

. I, Sec. II, Par. IX (d ). Ho wev er, t h e Geo rg i a Co n s ti t ut i on “ p ro v i d es n o

i m m u ni t y fo r m i n is t eri al act s neg l i g en t l y p erfo rm ed .” Gi lb er t v. Ri ch a r d s o n

, 2 6 4 Ga.

7 4 4

, 75 3 (6 ) (4 5 2 SE2 d 4 7 6 ) (1 9 9 4 ). “ Th e i ss u e o f [Co ffey ’ s ] i m m u ni t y i s a q u es t i o n

o f l aw[.] ” Pea r ce v. Tu cker , 2 9 9 Ga. 2 24 , 2 27 (7 8 7 SE2 d 7 4 9 ) (2 0 16 ).

A m in i s t eri al act i s co m

m o n l y o n e t h at i s s im

p l e, ab s ol u t e, an d d efi n i t e,

ari s i ng un d e r c o nd i t i o n s ad m i t t ed or p ro v ed t o ex i s t

, an d req u iri n g

m erel y t h e ex ecu t i o n o f a s pec i f i c d u t y

. A d i scret i o nary act

, h o wev er,

c a l l s fo r t he ex erci se o f p ers o n al d el ib erat i o n an d ju d g m en t, wh ich i n

t u rn en t ai l s ex am i ni ng t h e fact s

, reach i ng reas on ed co n cl us i o n s

, an d

act i n g o n t h em

i n a way n o t s p eci fi cal l y d i rect ed

.

(Ci t at i o n an d p u n ct u at i o n o m i t t ed

. ) Co mmo n Ca u s e/ Ga v. Ci t y o f At l a nt a

, 2 7 9 Ga.

4 8 0

, 4 82 (2 ) (6 1 4 SE2 d 7 6 1 ) (2 0 0 5 ). In s t ru ct io n s or pro ced u res s uffi ci en t “ t o cau s e

6an act to b eco m e m erel y m in i s teri al m

u s t b e s o cl ear, d efi n i t e an d cert ai n as m erel y

t o req u i re t h e ex ecu t i o n o f a rel at i v el y s i m pl e, s p eci fi c d u t y

. ” (Pu n ct u at i o n an d

fo o t n o t e o m i t t ed .) Ba r n a rd v. Tu r n er Co u nt y

, 3 0 6 G a. Ap p. 2 3 5

, 2 3 8 (1 ) (7 0 1 SE2 d

8 5 9 ) (2 0 1 0 ). “ A m i n i s t eri al d u t y m ay b e es t ab l i s h ed b y ev i d en ce s u ch as a wri t t en

p o l i cy

, an u n wri tt en p o l i cy

, a s up erv i s o r’ s s peci fi c d i rect i v e, o r a s t at u t e.” (Ci t at i on s

o m it t ed .) Ro

p er v. Gr een wa

y , 2 9 4 Ga. 1 12 , 1 1 4 -1 15 (7 5 1 SE2 d 3 5 1 ) (2 0 1 3 ).

Ort eg a al l eg ed i n th e co m

p l ai n t t h at “ Co ffey h ad d ut i e s t o ins p ect

, m ai n t ai n an d

rep ai r [t h e] ro ad way u p o n n o t i ce o f an u ns afe o r d an gero u s co n d i t i o n t h at co u l d cau s e

i n ju ry t o m o t o ri s t s.” O rt eg a fu rt h er al l eg ed t h at Co ffey h ad “ b reach ed h i s m i n i s t eri al

an d d i s cret i o nary d ut i es b y fai l i n g t o i n s p ect sai d ro ad way u p o n n o t ice of an u n s afe

o r d an gero u s co nd i t i o n an d to m ai n t ai n an d / or rep ai r s ai d ro ad way .” Ort eg a t es t i fi ed

t h at s h e h ad co m

p l ai n ed t o Co ffey ab o u t t h e p oo r co n d i t i o n o f t h e r o a d

, an d al s o

s u b m i t t ed affi dav i t s fro m h e r m o t her an d fat h er av erri n g th at t h ey “ l i v ed o ff o f t h e

[s u b ject ] ro ad fo r m an y y ears ,” an d h ad al so “ ro u t i n el y co m p l ai n [ed ] ” ab o ut t h e p o o r

co n di t i o n o f t h e ro ad

.

Ho wev er, t h ere was n o ev i d en ce o f an y p o l icy

, wri t t en o r u n wri t t en

, d i rect i v e

o r l aw es t ab l i s h i n g t h e m an n er i n wh i ch Co ffey was req u i red to i n s pect

, rep ai r o r

m ai n t ai n t h e ro ad way

. In s t e a d

, t h e ev i d en ce d em o n s trat ed t h at

, al t h o u gh as ro ad

7s u p eri n t en d en t Co ffey was res p o n s i b l e fo r m ai n t ai n i n g t h e co u n t y ro ad way s

, t h ere

were n o req u i red s ch ed u l ed i n s p ect i o n s a n d n o wri t ten p o l icy

, i n s t ru ct i o n s o r

d i rect i o n s ab o ut h o w t h e ro ad way s s h o u l d b e m ai n t ai n ed o r h o w t o res p o nd t o i s s u es

wi t h t h e ro ad way s

. Co ffey t es t i f i e d t h a t i t was at h i s d i s cret i o n “ w h at ro ad s we

g rad e,” an d h i s d is c r e t i on o n h o w t o res po n d t o p ro b lem s wi t h t h e ro ad way s

. Th e

Ch ai rm an o f th e At k in s on Co u n t y Bo ard o f Co m

m i s s i o n ers av erred t h at t he co u n t y

d i d n o t h av e “ a p o li cy

, p ract i ce o r s t an d i n g o rd er req u i ri n g rep ai rs t o a co u n t y ro ad ,”

o r “ req u i ri n g d ocu m en t at i o n an d i n v es t i g at i o n o f ci t i zen co m p l ai n t s .” Th i s ev i d en ce,

ev en v iewed i n a l ig h t m o s t fav o rab le t o O r t e g a

, s h o w s th at t h ere were n o cl ear,

d efi n i t e, an d cert ai n i n st ru ct i o n s

, d irect i v es o r p o l i ci es rel at ed t o th e m ai n ten an ce o f

t h e ro ad

. In s t ead

, th e u n co n t ro v ert ed ev i d en ce s h o wed th at Co ffey ex erci s ed p ers o n al

d el i b erat i o n an d j u dg m en t t o m ai n t ai n t he ro ad way s an d s u ch act i o n s were

d i s cret i o n ary

. See Br o wn v. Ta yl o r

, 2 6 6 Ga. Ap p

. 1 7 6

, 1 7 6 -1 7 7 (5 96 SE2 d 4 0 3 )

(2 0 0 4) (act s were d is cret i o n ary wh en ev i d en ce s ho wed t hat t h e co u n ty d id n o t h av e

a fo rm al wri t ten p o li cy on i ns p ect i n g an d rep ai ri n g ro ad s

, an d t h at ro ad s were

m ai n t ai n ed o n an “ as n eed ed ” b as i s ); No r r i s v. Ema n u el Co u n t y

, 2 5 4 Ga. Ap p

. 1 1 4,

1 1 8 -1 1 9 (2 ) (5 6 1 SE2 d 2 4 0 ) (2 0 0 2 ) (d eci si o n on ro ad rep ai r was d i s c r e t i o n ary );

Co f fey v. Br o o ks Co u n t

y

, 2 3 1 Ga. Ap p

. 8 8 6

, 8 89 (2 ) (b ) (5 00 SE2 d 3 4 1 ) (1 9 9 8 ), rev ’ d

8i n p art o n o t h er g ro u nd s

, Ro we v. C o ff ey

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

(d eci s i o ns a s t o wh en t o rep ai r o r b arri cad e v ari o us ro ad s were “ d i s cret i o n ary

res o u rce-al l o cat io n d eci s i on s ” p ro t ect ed b y o ffi ci al i m m u nity ); Ko r d

a r es v. Gwi n n et t

C ou n t y

, 22 0 Ga. Ap p

. 8 4 8

, 85 1 (4 7 0 SE2 d 47 9 ) (1 99 6 ) (ab s en t co u n ty p ro ced u re

d i ct at i n g t h e m et h o d o f i n s p ect i o n

, ro ad o ffi ci al ’ s al l eg ed n eg l i g en t in s p ect i o n was

d i s cret i o n ary ).

Ho wev er, t he d i s t in ct i o n b et ween d i s cret i o n ary an d m i n i s t eri al a ct s d o es n ot

co m p l e t e l y fo recl o s e Co ffey ’ s p o t en t i al li ab i l i t y ; h e m ay b e h el d l iab l e i f i n t h e

e x e r ci se o f h i s d i scret i o n ary d u t y

, Ort eg a can d em on s trat e t h at Co ffey act ed w i t h

act u al m al i ce o r wi th t h e i n ten t t o cau s e i n ju ry

. Br own

, 28 1 G a. at 6 2 5 -6 2 6

. Ort eg a’ s

co n ten t i o n t h at Co ffey act ed wi t h “ reck l es s d i s reg ard fo r t h e s afe t y o f o t h ers ” d o es

n o t s o d em o n s trat e.

Th e Su p rem e Co u rt h as hel d t h at “ t h e t erm ‘ act u al m al i ce’ d en o t e[s ] ‘ ex p res s

m al i ce or m al i ce i n fact .’ ” (Ci t at i o n

, p u nct u at i o n a n d fo o t n o t e o m i t t ed ) P hi l l i p s v.

Ha n s e

, 2 81 Ga. 1 3 3

, 1 3 5 (2 ) (6 3 7 SE2 d 1 1 ) (2 00 6 ). “ [A] ct u al m al i ce [i s ] s o m et h i n g

m o re t h an im

p l i ed m al i ce, wh i ch

. . . [h as ] b een d efi n ed t o m ean co n d u ct ex h i b i t i n g

a reck l es s d i s reg ard fo r h u m an l i fe.” (Ci t at i o n, p u n ct u at io n an d fo o t n o t e o m i t t ed

. ) Id

.

See Mer ro w v. Ha wki n s

, 26 6 Ga. 3 9 0

, 3 9 1 -3 9 2 (4 6 7 SE2 d 3 3 6 ) (1 9 96 ) (“ act u al

9m al i ce” d o es n o t i n cl u de “ im p li ed m al i ce,” i .e., t he reck l es s d i sreg ard fo r t h e ri g h t s

o r s afet y o f o t h ers ); Mu rp h

y v. Ba jj a n i , 2 8 2 Ga. 19 7

, 2 0 3 (4 ) (6 4 7 SE2 d 5 4 ) (2 0 0 7 )

(“ ‘ A d el i b erat e i n t en t i o n to d o wro n g’ s uch as t o co n s t i t u t e t h e act ual m al i ce

n eces s ary t o o verco m e o ffi ci al i m m u n i t y m u s t be t h e i nt en t t o cau s e t h e h arm s u ffered

b y t h e p l ai n t i ffs

. ”)

As s uch

, Ort eg a’ s co n t en t i o n t h at Co ffey act i o n wi t h reck l es s d i s reg ard fo r t h e

s afet y of o t h e r s d o e s n o t al l eg e t h e act u al m al i ce neces s ary t o o v erco m e o ffi ci al

i m m u ni t y fo r d i scret i o nary act s.” (Ci t at i o ns o m i t t ed .) Id . at 2 0 3 -2 0 4 (4 ).

It fo l l ows th at t he t ri al co u rt d i d n o t err in g ran t i n g s u m m ary ju d g m en t to

Co ffey o n t h e b as i s o f o ffi ci al i m m u n i t y

.

(b ) Gr a n t o f S u m ma r y Ju d g men t t o Okef

en o kee EMS

Ort eg a al s o arg u es t h at t h e tri al co u rt erred i n fi n d i n g t h at Ok efen o kee EM S

was en ti t l ed t o im

m u n i t y p urs u an t t o OCGA § 3 1 -1 1 -8 wh ich p ro vi d es i n rel ev an t

p art t hat

,

(a) An y p ers o n, i n cl ud i n g ag en t s a n d em p l oy ees

, wh o i s li cen s ed t o

fu rn is h am

b u l an ce s erv ice 2 an d wh o i n g oo d fai t h r e n d ers em erg en cy

2 “ Am b ul an ce s erv i c e ” m ean s

, “ T h e p ro v i d i n g o f em erg en cy care an d

t ran s po rt at i o n on t h e p ub l i c s t reet s an d h i g h way s of t h i s s t at e fo r a wo u n d ed

, i n ju red

,

s i ck

, i n v al i d

, o r i n c a p a ci tat ed h u m an b ei n g t o o r fro m a p l ace wh ere m ed i cal o r

10care t o a p ers o n wh o i s a v i c t i m o f an acci d en t o r em erg en cy s h al l n o t

b e l i ab l e fo r an y ci v il d am ag es t o s u ch vi ct i m as a res u l t of an y act o r

o m i s s i o n b y s uch p ers o n i n r e n d e ri ng s u ch em erg en cy care t o s u ch

v i ct i m

.

. . .

(c) Th e im

m u n i t y p ro v i d ed i n t h i s Co de s ect io n s h al l ap pl y o n l y t o t h o s e

p ers on s wh o p erfo rm t h e afo res ai d em erg en cy s erv ices fo r n o

rem u n erat i on

.

Un l ik e s o v erei g n i m

m u ni ty

, “ a cl ai m o f im

m u n i ty u n der [t h i s Co de Sect i o n ] can n ot

b e wai v ed by t h os e p ers o n s to wh o m t h e s t at u t e ap pl i es [.] ”(Ci t at i o n an d pu n ct u at i o n

o m it t e d

. ) J

o hn s o n v. Gwi n net t Co u n ty

, 2 1 5 G a. Ap p

. 7 9

, 8 0 (1 ) (4 49 SE2 d 8 5 6 )

(1 9 9 4).

In h er cl ai m s ag ai n s t O k efen o k ee EM S, Ort eg a a s s ert ed th at t h e am b u l an ce

s erv i ce v i o l at ed OCGA § 4 6 -9 -1 3 2 b y i n t en ti on al l y or n eg l i g en t l y fai li ng t o ren d er

t h e n eces s ary care t o h er h u s b an d an d so n

. 3 Acco rd i n g t o Ort eg a, Ok efen o k ee EM S

h o s p it al care i s fu rn i sh ed [.] ”OCGA § 3 1 -1 1 -2 (4 ) (A).

3 “ [A] co m

m o n carri er o f p as s en g ers i s n o t an ab so l u t e an d u n q u al i fi ed i n s u rer

o f t h e s a f

et y o f i t s p as s en g ers

. In s t ead

, a carri er o f p as s en g ers m u s t ex erci s e

ex t rao rd i n ary d i l i g en ce t o p r o t ect th e l i v es an d p ers on s o f h i s p as s en g ers b u t i s n ot

l i ab l e fo r i n

ju ri es to t hem aft er h av i n g u s ed s u ch d i l i g en ce.” (Fo o t n o t es

, pu n ct u at i o n

an d em p h as i s o m i t t ed .) La i d l a w Tr a n s i t S vcs

. v. Y o un g

, 2 9 9 Ga. Ap p

. 7 8 5

, 7 8 6 -7 8 7

11i n t en t i o n al l y o r n eg li g en t l y v i o l at ed OCGA § 46 -9 -1 3 2 by i n s t ru ct i n g h er i n ju red so n

t o ju m p fro m t h e tru ck an d wal k t o t h e s t r e t ch er, an d in fai l i n g t o ap pro p ri at el y o r

t i m el y ad d res s h er h us b an d ’s i n j u r i es

. Ort eg a al s o as s ert ed a n eg l i g en ce cl ai m fo r

Ok efen ok ee EM S’ s act i on s

.

In g ran t i n g s u m

m ary ju d g m en t t o O k efen o k ee EM S, t h e t ri al co u rt fo u n d t h at

t h e am b ul an ce s erv i ce was i m

m u n e fro m ci v i l l i ab i l it y p u rs u an t t o OCGA § 3 1 -1 1 -8

,

b ecau s e, ev en a c c e p t i n g as t ru e Ort eg a’ s al l eg at i o n t h at Ok efen o k ee E M S d el ay ed

care to h er h u s b an d wh i l e h e was trap p ed i n t h e t ru ck an d su ch d el ay res u l t ed i n h i s

d eat h

, an d h er al l eg at i o n t hat Ok efen o k ee EM S ex acerb at ed or cau s ed h er s o n ’ s h ip

i n ju ry wh en t h ey i n s t ru ct e d h i m t o ju m p d own fro m t h e t ru ck an d wal k t o t h e

am bu l an ce, t h e al l eg at i o n s d i d n o t ri s e t o t h e l ev el o f d em o n s t rat i n g bad fai t h

. Th e

t ri al co u rt al so fo u n d t h e am b ul an ce s erv i ce was i m

m u n e fro m l i ab i l i t y b ecau s e i t d id

n o t recei v e rem

u n erat i o n fo r i t s s erv i ces

.

On ap p eal

, Ort eg a fi rs t co n t en d s t hat OCGA § 3 1-1 1 -8 d o es no t ap p l y i n t h i s

cas e b ecau s e l i ab i l i t y aro s e fro m Ok efen ok ee E M S ’s fai l ure t o ren d er ai d o r

(6 8 3 SE2 d 8 7 2 ) (2 0 0 9). See OCGA § 4 6 -9 -1 3 2 (“ A carri er o f p as s en g ers m u s t

ex erci s e ex t rao rd i n ary d i l i g en ce t o p ro t ect th e li v es an d p ers o ns o f h i s p as s en g ers b ut

i s n o t l i ab l e fo r i n

ju ri es t o t h em

aft er h av i n g u sed s u ch d i l i g en ce.”)

12em erg en cy s e r v i c e s

, rat her t h an it s ren d i t i o n o f em erg en cy serv i ces

. 4 W e are n ot

p ers u ad ed

.

Th e s t at ut e p ro v i d es t h at i m m u n i t y at t ach es “ as a res u l t o f an y a ct or o mi s s i o n

b y s uch p ers o n i n ren d eri n g s u ch em erg en cy care t o s u ch v i ct i m

. ” (Em p h as i s

s u p p li ed .) OCGA § 3 1 -1 1 -8 (a). “ Em erg en cy care” h as b een d efi n ed as “ t h e

p erfo rm an ce o f n eces s ary p ers on al s erv i ces d u ri n g an u n fo res een ci rcu m s t an ce t h at

cal l s fo r i m

m ed i at e act i o n

. ” An d

er s o n v. Li t t l e & Da ven

p o r t Fu n er a l Ho me

, 2 4 2 Ga.

7 5 1 , 7 5 3 (1 ) (2 5 1 SE2 d 2 50 ) (1 9 7 8 ).

Here, Ort eg a al l eg ed t h at Ok efen o k ee EM S del ay ed t reat i n g h er h u s b an d fo r

“ at leas t fi ft een m i n ut es (1 5) u n t i l h e was i n t h e am b u l an ce,” an d t h at d u ri n g t h e d el ay

h ad “ n o t ad m i n i s t ered an y res u s ci t at i v e effo rt s .” Ort eg a al s o al leg ed

, am o n g o t h er

t h i n g s

, th at Ok efen o k ee EM S h ad d en i ed h er s o n “ a s s i s t a n ce t o t h e am b u l an ce

req u i ri n g h i m to ju m

p fro m t h e wreck ed v eh i cl e an d wal k ,” h ad d irect ed h i m t o ju m p

fro m t h e wreck ed v eh i cl e, an d t h at t h i s m ed i cal t reat m en t was n eg l i g en t

.

4 Ort eg a do es n ot as s ert t h at O k e f e n o k ee EM S d i d no t act i n go o d fai t h in

ren d eri n g i t s m ed i cal care. See OCGA § 3 1 -1 1-8 (a); Bi xl er v. Mer ri t t

, 2 4 4 G a. Ap p.

8 2

, 8 3 (5 3 4 SE2 d 8 3 7 ) (2 0 0 0 )(“ Ev en i f t h e p aram ed i cs ex erci sed b ad ju d g m en t an d

act ed n eg l ig en t ly

, su ch d o es n o t am o u n t t o a l ack o f g o o d fai t h .”) (ci t at i o n an d

p u n ct u at i o n o m i t t ed .); Th o ma s v. DeKa l b Co u n t y

, 2 2 7 Ga. A pp

. 1 8 6

, 19 0 (2 ) (4 8 9

SE2 d 5 8 ) (1 9 9 7 ) (s am e).

13W e fi n d t hat co n t rary t o Ort eg a’ s co n t en ti o n

, t h es e al l eg at i o n s were fo u n d ed

u p o n t h e ren d i t i o n o f O k efen o k ee EM S’ s em erg en cy care an d t hu s co n s ti tu t ed an “ act

o r om i s s i o n ” i n th e “ ren d eri n g [o f] su ch em erg en cy care” as co nt em p l at ed b y OCGA

§ 3 1 -1 1 -8

. Co m

p are Cr ewey v. Ame r i ca n Med i ca l Res p o ns e o f Ga

. , 3 03 Ga. Ap p.

2 5 8

, 2 5 9

- 2 6 4 ( 69 2 SE2 d 8 51 ) (2 0 1 0) (am b u l an ce co m

p an y was n ot en t i t l ed to

s u m m ary ju d g m en t aft er cl ai m i n g i m m u n i t y u nd er OCGA § 3 1 -1 1

- 8 (a) wh ere a

card i o l o g i s t o rd ered t hat t h e p lai n t i ff b e t ran s ferred t o an o th er faci li t y b e c au s e t h e

m e d i c a l c e n t er d id n o t hav e t he res o u rces t o t reat t h e p l ai nt i ff b ut t h e am b u l an ce

co m p a n y del ay ed i n p ro v i d i n g t h e n eces s ary t ran s po rt at i o n

. ); B r icks v. Met r o

Amb u l a n ce S

vc

. 17 7 G a

. A p p

. 6 2

, 6 9 (2 ) (3 3 8 SE2 d 4 3 8 ) (1 9 8 5 ) (“ Th e t ri al co u rt

erred un d er t h e fact s o f t h i s cas e i n ch arg i n g OCGA § 3 1-1 1 -8

, co n cern i n g i m m u n i t y

o f am b u l an ce s erv i ces fo r g o o d fai t h ren d i t i o n o f em erg en cy care, b ecau s e l i ab i l i t y

i n th i s cas e was no t fo u n d ed u p o n t h e ren d i t i o n o f h eal t h care b u t was b as ed u p o n t h e

i n t en t i o n al t o rt s o f as s au l t an d ro b bery .”)

14Nev ert h el es s

, u nd er t h e s t a t u t e

, i m m u n it y at t ach es on l y i f t h e em erg en cy

s erv i ces in q u es t i o n were n o t fo r rem u n erat i o n

. 5 OCGA § 31 -1 1-8 (c). Th e t ri al co u rt

fo u n d t h at

Ok efen o k ee EM S d i d n o t recei v e an y rem u n erat i o n fo r t he s erv i ces i t

ren d ered

. . . . Ok efen o k ee EM S d id p rep are an d s en d a b i ll fo r s erv i ces ;

n o p aym e n t was m ad e u n t il

. . . aft er t h e fi l i n g o f t h is m o ti o n fo r

s u m m ary ju d g m en t

. . . [an d ] O k e f e n o k ee EM S reject ed th i s p ay m en t

.

. . . [S] i n ce Ok efen ok ee EM S n ev er accep ted p ay m en t fo r t h e i nv o iced

ch arg es

, t h ere was n ev er an y rem u nerat io n u nd er t h e s t at u t e.

In d et erm i n i n g wh et h er t h ere h as b een rem u n erat i o n fo r pu rp os es of i m m u n i t y

u n d er OCGA § 31 -1 1 -8 (c), t h is Co u rt n o t ed t h at

[i ] t ap p ears t o hav e b een t h e i n t en t o f t h e Gen eral As sem b l y n o t to v es t

i m m u n i t y in t ho se “ p ers o n s ” wh o w ere b ei ng rewa r d ed fo r th e

p erfo rm an ce o f “ em erg en cy s erv i ces .”

. . . [An d ] a fee ch a r g e d b y a

g o v ern m en t al o rg an i zat ion to a ssist i n d efray i n g th e ad m i n i s t rat iv e co s t s

o f t ran s p ort i n g a p ers o n t o a h o s p i t al i s n o t t h e eq u i v al en t o f recei v i n g

rem u n erat i on fo r p ro v i d i n g sta te d “ e m e r ge nc y care,” wi t h in t h e m ean i n g

o f OCGA § 3 1-1 1-8 (c). W h at m ay co n st i tu t e a rem un erat i on to a p ri vat e

“ p ers o n ” m ay no t reward an d co n s t i t u t e rem u nerat io n t o a go v ern m en t al

5 “ ‘ Rem u n erat io n ’ i s t h e act o f rem u n erat i n g, an d th e p ri m ary d efi ni t i o n o f to

‘ rem u n erat e’ i s ‘ t o p ay

, reco m p en s e, o r reward fo r wo rk

, t ro u b l e, et c.’ ” (Ci tat i o n an d

p u n ct u at i o n o m i t t ed .) Ra m s ey v. Ci ty o f Fo r es t Pa rk

, 2 0 4 Ga. Ap p

. 9 8

, 1 0 1 (2 ) (d )

(4 1 8 SE2 d 4 3 2 ) (1 9 9 2 ).

15o rg an i zat i o n h av i ng t o c o n tro l i t s p u b l i c ex pen d it u res carefu l l y w h i l e

p ro v i d in g “ em erg en cy m ed i cal serv ices ” t o t h os e wi t h in i t s b o u nd ari es

.

An d

, OCGA § 3 1-1 1-8 (c) m u s t b e l i b eral l y co ns t ru ed s o as n o t t o

t h wart t h e p u b l i c p o l i cy p u rp o s e refl ect ed i n OCGA § 3 1-1 1 -1

.

(Ci t at i o n s

, p un ct u at i o n an d em p h as i s o m it t ed .) Ma r t i n v. Fu l t o n -Deka l b Ho s p

. Au t h

.,

2 5 0 Ga. Ap p

. 6 6 3

, 6 6 7 (5 5 1 SE2 d 4 1 5 ) (2 0 0 1 ). In Ma r t i n

, we hel d t h at “ t h e p ay m en t

M ed i cai d m ad e t o Grad y co n st i t u t ed ‘ rem u n erat i o n’ s o as t o ren d er t h e i m m u n i ty o f

OCGA § 3 1 -1 1 -8 i n ap p l i cab l e.” Id

. at 66 8

. We f u r t h er h el d t h at “ [u ] n l i k e

. . . [a]

‘ tran s p ort at i o n ch arg e’

. . . t h e ch arg e h ere, wh i ch M ed i cai d p art i al ly p ai d

, was fo r

‘a m b u l an ce s erv ices .’ An d

, al t h o u g h t h e p ay m en t d i d n o t co m p l et el y rei m

b u r s e

Grad y

, i t was n o t s i m

p l y p ay m en t o f an ‘ ad m in i s t rat i ve fee.’ ” Id

.

Th u s

, co n t rary t o t h e t ri al co u rt ’ s reas o ni n g

, fo r p u r p o s es o f d et erm i n i n g

wh et h er t h ere h as b een rem un erat i o n fo r t h e em erg en cy serv i ces

, t h e fo cu s i s n o t o n

wh et h er p ay m en t was recei v ed fo r t he s erv i ces b i l led

, b u t rat h er t h e p u r p o s e o f t h e

ch arg es

. See Ra m s ey, 20 4 Ga. Ap p

. at 1 0 0-1 0 1 (2 ) (d ) (ad m i n i s t r a t i v e co s t s

as s o ci at ed wi t h t ran s p o rt at io n o f p ers o n s n o t rem u n erat i o n wi t h i n th e m ean i n g o f

OCGA § 3 1 -1 1-8 (c ) ); Pr es l ey v. Ci t y o f Bl a cks h ea r

, 3 4 0 Fed

. Ap p x

. 5 6 7

, 5 7 0 -5 7 1

(1 1 t h Ci r. 2 0 0 9 ) (t ran s p o rt at io n an d m i l eag e fees us ed t o d e fray t he co u n t y ’ s

ad m i n is t rat i v e ex p en s es o f p ro v i d i n g an am b u l an ce s erv i ce).

16Ok efen o k ee’ s bi ll i n g i nv o i ce refl ect ed ch arg es f o r m il eag e an d “ ALS1

Em erg en cy .” ALS1 i s t h e co d e fo r “ Ad van ced Li fe Su p p o rt Lev e l 1 ” u t i l i zed by

M e d i care in i ts d efi n i t io n o f am b u l an ce s erv i ces p u bl i s h ed i n t h e Cen t ers fo r

M ed i care an d M ed i cai d Serv i ces M an u al Sy s t em

. Al t h o u g h t h e i n v oi ced m i l eag e i s

an ad m i n is t rat i v e co s t as s o ci at ed wi t h the tr a n s po rt at i o n o f Ort eg a’ s h u s b an d an d s o n,

an d n o t rem

u nerat i o n wi t h i n t h e m ean i ng o f O CGA § 3 1 -1 1-8 (c), t h e ALS1 ch arg es

rel at e t o rem

u n erat i o n fo r em erg en cy s erv i ces an d th u s “ n o t s i m p l y p ay m en t o f an

‘ ad m i n i s t rat i v e fee’ ” fo r p u rp o s es o f i m m u n i t y u n d er O CGA § 3 1 -1 1 -8

. See Fu l t o n

Deka l b Ho s

p . Au t h

. , 2 5 0 Ga. Ap p . at 6 68

.

Acco rd i ng l y

, t h e t ri al co u rt erred i n fi n d i n g t h at Ok efen o k ee E M S d i d n ot

recei v e rem

u n erat i on fo r i t s s erv i ces fo r p urp o s es o f i m m u n it y u nd er OCGA § 3 1 -1 1

-

8 (c). Th u s

, we rev ers e t h e tri al co u rt ’ s g ran t o f s u m m ary ju d g m en t t o Ok efeen o kee

EM S.

Ju d g men t a f f i r med i n p ar t

, r ever s ed i n p a rt

. M

cMi l l i a n a n d Rees e, JJ., co n cu r

.

17