Opinion ID: 2521467
Heading Depth: 1
Heading Rank: 2

Heading: application of the doctrine of negligence per se

Text: Pullen argues as he did before the trial court that the doctrine of negligence per se applies and he was entitled to a jury instruction on this theory. He contends that the Kansas Fire Safety and Prevention Act, K.S.A. 31-132 et seq., creates a cause of action based upon a violation of statutes governing the handling of fireworks. The elements of negligence per se are (1) a violation of a statute, ordinance, or regulation, and (2) the violation must be the cause of the damages resulting therefrom. In addition, the plaintiff must also establish that an individual right of action for injury arising out of the violation was intended by the legislature. Cullip v. Domann, 266 Kan. 550, Syl. ¶ 3, 972 P.2d 776 (1999). Generally, the test of whether one injured by the violation of a statute may recover damages from the wrongdoer is whether the legislature intended to give such a right. While, in some cases, statutes expressly impose personal liability on persons or entities for violation of the provisions thereof, or for failure to perform specified duties, the absence of such express provisions does not necessarily negate a legislative intent that the statute shall affect private rights. The legislative intent to grant or withhold a private cause of action for a violation of a statute, or the failure to perform a statutory duty, is determined primarily from the form or language of the statute. The nature of the evil sought to be remedied and the purpose the statute was intended to accomplish may also be taken into consideration. The generally recognized rule is that a statute which does not purport to establish a civil liability but merely makes provision to secure the safety or welfare of the public as an entity is not subject to construction establishing a civil liability. The question whether a liability arising from the breach of a duty prescribed by statute accrues for the benefit of an individual specially injured thereby, or whether such liability is exclusively of a public character, depends upon the nature of the duty imposed and the benefits to be derived from its performance, and the relevancy of the rule laid down by the statute to private rights. 73 Am. Jur. 2d, Statutes §§ 431 and 432, pp. 529-30. Greenlee v. Board of Clay County Comm'rs, 241 Kan. 802, 804, 740 P.2d 606 (1987). The determination of whether a private right of action exists under a statute is a question of law. Kansas courts generally use a two-part test in determining whether a private right of action is created. First, the party must show that the statute was designed to protect a specific group of people rather than to protect the general public. Second, the court must review legislative history in order to determine whether a private right of action was intended. See Nichols v. Kansas Political Action Committee, 270 Kan. 37, 11 P.3d 1134 (2000) (quoting Nora H. Ringler Revocable Family Trust v. Meyer Land and Cattle Co., 25 Kan. App. 2d 122, 126, 958 P.2d 1162, rev. denied 265 Kan. 886 [1998]) (the Ringler test). K.S.A. 31-133(a)(1) instructs the state fire marshal to adopt reasonable rules and regulations for the keeping, storage, use, sale, handling, transportation or other disposition of fireworks and firecrackers. K.S.A. 31-133(b) provides that any rules and regulations adopted pursuant to this statute may incorporate by reference specific editions or portions of nationally recognized fire prevention codes. The state fire marshal has adopted by reference the National Fire Protection Association's pamphlet, NFPA 1123 (Approved as an American National Standard on August 18, 2000; 2000 edition supercedes all previous editions.). See K.A.R. 22-1-3(x) (2003 Supp.). The state fire marshal prevention division has also issued pamphlets entitled Fire Fact FO-1, Licensing of Fireworks Operators, and Fire Fact FO-2, Guidelines for Fireworks Displays (which quote their references as NFPA 1123). The trial court found, and we agree, that Fire Facts FO-1 and FO-2 are synopses of regulations as opposed to regulations themselves, and the primary focus of the analysis must be on the enabling legislation rather than upon the regulations promulgated pursuant thereto. The court found that it must look to what the particular legislative body intended as opposed to how the administrative agency interpreted their enabling legislation, and that the state fire marshal's office could not create a private cause of action not intended by the legislature. Looking at the Fire Safety and Prevention Act, the trial court concluded that negligence per se was not applicable to this case, reasoning: Number one, this statute contains specific criminal penalties, as well as injunctive relief by the attorney general, the district attorney, or the county attorney at K.S.A. 31-150a and specific administrative sanctions at K.S.A. 31-159. K.S.A. 31-137 confers the right of entering and inspection as to public buildings, businesses and residences. At K.S.A. 31-142, the statute confers the right of judicial review of fire marshal's actions. Point number two: This statutory scheme contains no express provision allowing for a private cause of action to enforce the same. Number three: Reading the statue as a whole, it is more than, it is broader than, just the regulation of fireworks; it also address fire safety in business and residences and public facilities. Number four: By its very provisions it is clear that this statue is drawn so as to provide protection to the public at large. Although it is clear and true that portions of this statute enable the enactment of regulations which by their nature target smaller groups or classes of people, it is also clear that the statute as a whole, when read in its entirety, is designed and written to protect the public at large. And so as to part one of the Ringler test concerning private causes of action, the Court finds in favor of the defendants. As to the second part of the Ringler test, the Court cannot find that the Kansas legislature intended for this statute to create a private cause of action. As already pointed out, the legislature included within the statute a panoply of enforcement mechanisms, both criminal and administrative. The legislature could have just as easily, but did not, expressly grant a private cause of action, nor can this Court infer a private cause of action from this statute. Pullen argues the defendants violated Kansas statutes, rules, and regulations governing class B firework displays by: (1) failing to obtain the proper permit to conduct the class B display; (2) failing to have a licensed operator in charge and supervise the discharge of the class B display; and (3) failing to follow the rules and regulations of NFPA 1123 governing the display site set-up, proper training of assistants, provision of safety equipment, and procedures for discharging a class B fireworks display as adopted by the state fire marshal. He contends these violations were not in dispute and were the proximate cause of his injuries, leaving as the sole issue to be decided whether he had a private cause of action. Under the first part of the Ringler test (25 Kan. App. 2d at 126), Pullen cites Schlobohm v. United Parcel Service, Inc., 248 Kan. 122, 804 P.2d 978 (1991), in arguing that the statutes and regulations in this case were designed to protect not only the general public but specific individuals, such as Pullen, who are assistants in the discharge of fireworks. In Schlobohm, the plaintiff was injured when walking into a UPS entranceway that had an elevation differential that violated the Uniform Building Code (Code) adopted by city ordinance, and she sought to admit the Code as evidence of negligence per se. On appeal, this court found that the stated purpose of the Code, to provide minimum standards to safeguard life or limb, health, property, and public welfare, indicates a legislative intent to provide for the safety of the public in general and not for a particular class of persons. 248 Kan. at 127. However, the ordinance specifically stated that civil liability was not relieved by the enactment even though criminal liability could attach for violation of any of the provisions. The court noted the similarity of the ordinance with that discussed in Noland v. Sears, Roebuck & Co., 207 Kan. 72, 483 P.2d 1029 (1971) (private right of action under city code requiring handrails in stairways), and concluded that the particular section of the Code dealing with the change in floor level at doors protects persons who enter and exit doorways from injury caused by tripping and, thus, was enacted to protect a specific class of individuals. Schlobohm, 248 Kan. at 127. In this case, the express legislative purpose in directing the state fire marshal to adopt reasonable fireworks rules and regulations is for the safeguarding of life and property from fire, explosion and hazardous materials. K.S.A. 31-133(a). The scope of this enabling legislation is thus very broad and is not limited to enacting rules and regulations specifically for those involved in fireworks displays. Moreover, under K.S.A. 31-134 all rules and regulations adopted by the state fire marshal must comply with K.S.A. 77-415. K.S.A. 77-415(4) provides that a rule or regulation or words of like effect mean a standard, statement of policy or general order ... of general application and having the effect of law. (Emphasis added.) The scope of NFPA 1123 is defined to apply to the construction, handling, and use of fireworks and equipment used for outdoor fireworks display and applies to the general conduct and operation of the display. NFPA 1123 § 1.1. The stated purposes of NFPA 1123 are to provide requirements for the reasonably safe conduct of outdoor fireworks displays, to provide recommended local permit regulations, and to provide recommended regulations for state certification of display operators. See NFPA 1123 §§ 1.2.1, 1.2.2, 1.2.3. NFPA 1123 is likewise composed of broad industry standards covering all aspects of fireworks regulation, including construction, storage, and transportation of fireworks; display safety distances; display installations and operations; and operator qualifications. While portions of NFPA 1123 certainly apply to certain groups of individuals, the overall purpose of NFPA 1123 is not just to protect those individuals watching or putting on the display because the danger certainly exists that others (the general public) might be harmed by the storage, use, or transportation of fireworks. These standards, thus, stand in contrast to the specific building code at issue in Schlobohm, which was only designed to protect those people entering and exiting a certain building. The trial court correctly concluded that K.S.A. 31-133 and the adopted regulations were designed to protect the public in general rather than a specific group of individuals. Under the second part of the Ringer test, Pullen argues that NFPA 1123 does not preclude a private right of action for several reasons. First, he argues it is clear that NFPA 1123 was intended not only for fire protection but to reduce the risk of death or serious injuries to participants in a class B fireworks display. As discussed above, it is clear that the provisions of NFPA 1123 were designed to protect both participants in the display as well as the general public. Second, Pullen contends the language and form of the authorizing statutes and regulations do not preclude civil liability, as NFPA 1123 does not address criminal or administrative sanctions for violations and expressly contemplates a private cause of action by requiring the display operator, sponsor, or both to present verifiable proof of liability insurance. See NFPA 1123, Appendix F §§ F.4 and F.4.1 (Separate insurance coverage might be required for personal injuries or accidents arising from other aspects of the event. Insurance is intended to indemnify the operator in the event of an accident arising from the outdoor display.). While it is true that NFPA 1123 addresses the consequences of violations, the Fire Safety and Prevention Act, which under K.S.A. 31-134 allowed the adoption of NFPA 1123 as a regulation, provides that a violation of its provisions is a criminal offense and subject to monetary penalties. Moreover, the insurance requirement under NFPA 1123 does not establish that a private cause of action was intended. Fireworks displays by their very nature are dangerous, and this insurance requirement recognizes that a tort claim could be brought against the operator of the display in the event of injury. NFPA 1123 does not expressly provide for a private right of action. Third, Pullen argues that no language in the Fire Safety and Prevention Act indicates that the legislature intended to prohibit a private right of action based upon a breach of NFPA 1123. Pullen points out that K.S.A. 31-163 provides criminal penalties for failure to comply with K.S.A. 31-162, which deals with the installation of smoke detectors in dwelling units, but K.S.A. 31-162(g) also provides that evidence of the failure of a property owner to provide or maintain a smoke detector shall not be admissible in any action for the purpose of determining any aspect of civil liability. Pullen contends that by negative implication it is apparent that the legislature did not intend such a result for the preceding statutory provisions, including K.S.A. 31-134, which permitted the state fire marshal to adopt NFPA 1123. This argument is without merit for two reasons. First, while found in Chapter 31, Fire Protection, the smoke detector provisions are part of the Smoke Detector Act, K.S.A. 31-160 et seq., enacted in 1998, and are subject to different criminal penalties (nonclass nonperson misdemeanor) and fines ($25) than the statutory provisions relevant to this case. Moreover, the fact that the smoke detector provisions cannot be used to establish civil liability does not mean that a private cause of action was intended under these statutory provisions. Second, the Fire Safety and Prevention Act provides that any person who violates any rules or regulations adopted under the fire prevention code is guilty of a class B misdemeanor. K.S.A. 31-150a(a). Violations can also result in administrative penalties up to $1,000, which shall constitute an actual and substantial economic deterrent to the violation for which the penalty is assessed. K.S.A. 2003 Supp. 31-159(a). The aggrieved person may appeal the penalty to the state fire marshal, and then further appeal any order issued in accordance with the provisions of the Act for Judicial Review and Civil Enforcement of Agency Actions, K.S.A. 77-601 et seq. K.S.A. 2003 Supp. 31-159(b) and (c). Kansas appellate courts generally will not infer a private cause of action where a statute provides criminal penalties but does not mention civil liability. See Kansas State Bank and Tr. Co. v. Specialized Transportation Services Inc., 249 Kan. 348, 373, 819 P.2d 587 (1991) (If the legislature had intended to grant a private right of action in K.S.A. 38-1522 [child abuse reporting statute which provided for criminal penalties] it would have specifically done so.); Greenlee, 241 Kan. at 808 (It would appear that the legislature has thoroughly addressed the legislative remedies for violation of the cash-basis law and the budget law, and that failure to provide a private cause of action for an individual citizen was intentional.); Loar v. Roletto, 26 Kan. App. 2d 246, 248, 982 P.2d 993 rev. denied 268 Kan. 887 (1999) (Where legislature provides criminal and administrative remedies for violation of Kansas Automobile Injury Reparations Act, [t]he absence of a provision securing a private cause of action appears to be intentional.); Gietzen v. Feleciano, 25 Kan. App. 2d 487, 490, 964 P.2d 699 (1998) (The legislature saw fit to limit the relief from a violation of the [Campaign Finance Act] to a complaint before the Commission [on Governmental Standards and Conduct]. It did not provide a cause of action for damages in favor of a party aggrieved about a violation, and we will not read one into the statute.). This court expanded on this point in discussing violations of the Campaign Finance Act in Nichols v. Kansas Political Action Committee, 270 Kan. at 52. In finding no private cause of action existed, the court noted that the wrong perpetrated by the defendants became a wrong only [because] the legislature made it so and the statutorily created wrong is to be remedied in the manner prescribed by the legislature. 270 Kan. at 52. Pullen points to Schlobohm and the Uniform Act Regulating Traffic (UART), K.S.A. 8-1401 et seq., as situations where criminal penalties are imposed but private cause of actions still exist. However, Schlobohm is distinguishable in that the ordinance specifically stated that civil liability was not relieved by its enactment, although its violation may induce a fine or imprisonment. 248 Kan. at 126-27. The provisions of the Kansas Fire Prevention Act and NFPA 1123 do not expressly create a private cause of action. Disobeying the requirements for permits, licenses, and safety procedures is only wrong because the state fire marshal adopted NFPA 1123 as a regulation through the authority granted by the legislature. The provisions of the Kansas Fire Prevention Act create criminal and administrative penalties for violations of NFPA 1123. Pullen fails to demonstrate that the legislature intended to create a private cause of action. The authority cited above establishes that the legislature did not intend to establish a private cause of action for violations of NFPA 1123. We conclude that the trial court properly ruled that the doctrine of negligence per se was inapplicable to this case.