Opinion ID: 2351955
Heading Depth: 1
Heading Rank: 3

Heading: local government immunity

Text: Plaintiffs first argue that the Superior Court erred when it dismissed the plaintiffs' state law tort claims against the County based on local government immunity. The scope of local government immunity is governed exclusively by 10 Del.C. § 4010 et. seq. (the Act) which was enacted in order to redefine the nature of governmental immunity in Delaware. Fiat Motors of N.Am. v. Mayor and Council of the City of Wilmington, Del.Supr., 498 A.2d 1062, 1064 (1985); Sussex County v. Morris, Del.Supr., 610 A.2d 1354, 1361 (1992) (Veasey, C.J., concurring). The Act establishes broad immunity for local government entities subject only to specific exceptions set forth in the Act. Moore v. Wilmington Hous. Auth., Del.Supr., 619 A.2d 1166, 1168 (1993). The exceptions are construed narrowly. Sadler v. New Castle County, Del.Supr., 565 A.2d 917, 921 (1989); Triple C Railcar Svc., Inc. v. City of Wilmington, 630 A.2d 629, 631 (1993). The Act provides: Except as otherwise expressly provided by statute, all governmental entities and their employees shall be immune from suit on any and all tort claims seeking recovery of damages. 10 Del.C. § 4011(a). The Act then provides for the following exceptions for negligent acts or omissions by a local government: (1) In its ownership, maintenance or use of any motor vehicle, special mobile equipment, trailer, aircraft or other machinery or equipment, whether mobile or stationary. (2) In the construction, operation or maintenance of any public building or the appurtenances thereto, except as to historic sites or buildings, structures, facilities or equipment designed for use primarily by the public in connection with public outdoor recreation. (3) In the sudden and accidental discharge, dispersal, release or escape of smoke, vapors, soot, fumes ... into or upon the land, the atmosphere or any watercourse or body of water. 10 Del.C. § 4012. The exceptions are limited, however, by Section 4011(b), which states: Notwithstanding § 4012 of this title, a governmental entity shall not be liable for any damage claim which results from: (3) The performance or failure to exercise or perform a discretionary function or duty, whether or not the discretion be abused and whether or not the statute, charter, ordinance, order, resolution, regulation or resolve under which the discretionary function or duty is performed is valid or invalid. 10 Del.C. § 4011(b). The statutory scheme creates two hurdles for plaintiffs asserting claims against local government entities. The claim must (1) fit within a statutory exception to the general grant of immunity and (2) not result from a discretionary duty or function. Morris, 610 A.2d at 1362 (Veasey, C.J., concurring). Plaintiffs rely on Walls v. Rees, Del.Supr., 569 A.2d 1161 (1990), for the proposition that the Act is also subject to non-enumerated exceptions. In Walls, this Court first stated: To the extent that Walls's claim is for mere negligence or the improper exercise of discretion by the county or its employees, the Act bars recovery. Id. at 1165. Later in the opinion this Court held, in the alternative, that Walls' claim for the value of his unreturned vehicle was not barred by the Act since the obligation of the County to return the vehicle was the creation of a specific statute. Id. at 1167-68. This Court described that duty as a specific and express statutory duty to do a specific act. Id. The statute at issue provided: If the papers, articles or things were allegedly used in the commission of a crime, they shall be returned to the person from whom seized if such person is not thereafter duly convicted of the alleged crime; ... 11 Del.C. § 2311(a)(2). This Court also held that Walls' claim against the County, characterized as a replevin action, was not barred by the Act. Id. at 1166. While Walls does provide support for the plaintiffs' general assertion, the statute on which they rely is not sufficiently specific to constitute a waiver of immunity. They point to the general enabling statute for park districts as the statutory exception to the Act. The statute provides: Every park district ... shall have and exercise the following powers: (2) To acquire ... any and all real estate... necessary for building, laying out, extending, adorning and maintaining any such parks ...; (9) To manage and control all officers and property of such districts. 9 Del.C. § 770. Plaintiffs argue that this statute, along with others granting power to local government entities, creates a statutory duty for the County to exercise reasonable care in the operation of the Park. General enabling statutes do not impose obligations on the County of the specific nature contemplated by Walls. With respect to enabling statutes this Court has stated: This Court's prior opinions in Varity [Builders, Inc. v. Polikoff, Del.Supr., 305 A.2d 618 (1973)] and [ City of Wilmington v.] Spencer, [Del.Supr., 391 A.2d 199 (1978)] had construed statutory enabling provisions as evidencing a legislative intent to waive, respectively, county and municipal immunity for the performance of governmental functions. Since the legislature desired to overrule those decisions (as it stated in the preamble), it was necessary to make the additional declaration that the statutory language contained in such enabling provisions was not to be construed as a waiver of municipal immunity. Fiat Motors, 498 A.2d at 1065. In addition to the specificity requirement of Walls, this language clearly indicates that the statutes on which plaintiffs rely are not sufficiently specific to overcome the County's immunity. Plaintiffs make three additional arguments. First, citing Rainey v. Wilmington Parking Auth., Del.Super., 488 A.2d 906, 909 (1984), and Morris v. Blake, Del.Super., 552 A.2d 844, 849 (1988), plaintiffs claim that the County did not enjoy immunity for its maintenance of the Park. These cases, which are clearly distinguishable since both found specific exceptions in Section 4012 for the claims, stand only for the proposition that local governments are not immune if the claim results from a non-discretionary activity excepted under Section 4012. Second, plaintiffs would have this Court reconsider its longstanding position that the purchase of insurance by local governments does not result in a waiver of immunity. Fiat Motors, 498 A.2d at 1068; Sadler, 565 A.2d at 924. Only the Legislature can waive the immunity of local governments. Fiat Motors, 498 A.2d at 1067. Third, plaintiffs claim that 18 Del.C. § 6511, which waives the sovereign immunity of the State for those risks covered by the State Insurance Coverage Program, is applicable. As this Court has held, however, Section 6511 applies by its very terms only to waive the sovereign immunity of the State in certain circumstances. Id. at 1068; see also Turnbull v. Fink, Del.Supr., 668 A.2d 1370, 1374-75 (1995).