Opinion ID: 1304132
Heading Depth: 1
Heading Rank: 4

Heading: Immunity Under the Discretionary Exception

Text: Having concluded that the two year statute of limitations applies, we now turn to the immunity defense. The tort claims act subjects the state and its political subdivisions to negligence liability for various wrongful acts or omissions. See I.C. § 6-903. However, the act also provides for exceptions to liability in I.C. § 6-904. The exception at issue today is I.C. § 6-904(1), the so-called discretionary function exception. This provision provides: 6-904. Exceptions to governmental liability.  A governmental entity and its employees while acting within the course and scope of their employment and without malice or criminal intent shall not be liable for any claim which: 1. Arises out of any act or omission of an employee of the governmental entity exercising ordinary care, in reliance upon or the execution or performance of a statutory or regulatory function, whether or not the statute or regulation be valid, or based upon the exercise or performance or the failure to exercise or perform a discretionary function or duty on the part of a governmental entity or employee thereof, whether or not the discretion be abused. The discretionary function exception has been addressed by this Court in several recent cases. See Sterling v. Bloom, 111 Idaho 211, 723 P.2d 755 (1986); Jones, supra; Lewis v. Estate of Smith, 111 Idaho 755, 727 P.2d 1183 (1986); and Oppenheimer Industries, Inc. v. Johnson Cattle Co., 112 Idaho 423, 732 P.2d 661 (1986). The seminal case, Sterling, overruled the interpretation of the discretionary function as set out in Chandler Supply Co., Inc. v. City of Boise, 104 Idaho 480, 660 P.2d 1323 (1983). The Court in Chandler stated, [t]he discretionary function exemption in I.C. § 6-904(1) shields governmental units from tort liability for the consequences arising from the planning and operational decision-making necessary to the performance of traditional governmental functions. Chandler, supra at 486, 660 P.2d at 1329. (Emphasis in original.) In Sterling, supra at 226-230, 723 P.2d at 770-774, we specifically rejected this traditional governmental function analysis and adopted the planning operational test announced by the United States Supreme Court in interpreting the federal counterpart to I.C. § 6-904(1) [4] . See Dalehite v. United States, 346 U.S. 15, 73 S.Ct. 956, 97 L.Ed. 1427 (1953), and Indian Towing Co., v. United States, 350 U.S. 61, 76 S.Ct. 122, 100 L.Ed. 48 (1955). The planning/operational test looks to the nature of the conduct of the actor. Sterling, supra, 111 Idaho at 230, 723 P.2d at 774. [D]iscretionary or planning functions of government are exempt from liability in tort, whereas operational functions conducted without `ordinary care' give rise to no governmental immunity. Oppenheimer Industries Inc., supra 112 Idaho at 425, 732 P.2d at 663. Planning activities involve the establishment of plans, specifications and schedules where there is room for policy judgment and decisions, ... whereas, operational activities involve the implementation of statutory and regulatory policy... . Jones, supra, 111 Idaho at 736, 727 P.2d at 1164. On a summary judgment motion, a trial judge should first determine whether the plaintiff's allegation generally states a cause of action for which a private person or entity would be liable for money damages under the laws of the state of Idaho... . I.C. § 6-903(a); see Sterling, supra, 111 Idaho at 216, 218, 723 P.2d at 760, 767; Jones, supra, 111 Idaho at 758, 727 P.2d at 1186, n. 1 (Huntley, J., concurring). In other words, is there such a tort under the laws of Idaho? If so, the court must determine whether, as a matter of law, an exception to liability found in the Tort Claims Act or elsewhere shields the alleged misconduct from liability. If no exception applies, the trial court must reach the merits of the claim. The trial court decision in the instant action, was rendered prior to Sterling. Without the benefit of Sterling, the trial court concluded that the action was based upon claims of negligence in regard to operational decisions of county law officers in operating the county jail, a traditional governmental function, [5] and held the county immune from tort liability on that basis. The complaint alleged various county employees, who were aware of Michael's propensity toward self-harm, negligently placed him in a room unsafe for someone in his condition, and negligently failed to monitor his conduct. The issue in this case is whether these actions by the county employees involved planning or operational decisions. Without the record in this case, we are unable to discern the true nature of the employees' conduct. Therefore, we must remand to the trial court. On remand, absent a summary judgment ruling, the trier of fact should first determine if there was negligence on the part of the county. If so, then it should make a finding as to the nature of the county's conduct. The trial judge will then determine if that particular conduct involved the exercise of discretion. Sterling, supra, 111 Idaho at 230, 723 P.2d at 774. If, for example, the evidence on remand indicates the county, due to budgetary constraints or other legitimate factors made a policy decision as to how it would staff the jail facilities, then such a decision would be discretionary and would immunize the county from liability. If, on the other hand, the staff for the jail facilities negligently performed their duties, then the county would not be immune. Given the limited nature of the facts, it was error for the district court to hold that the county was entitled to immunity under the discretionary function exception of I.C. § 6-904(1). Accordingly, the judgment of the district court granting the county's motion for dismissal on the pleadings is reversed, and this case is remanded. Costs to appellants. SHEPARD, C.J., and BAKES, BISTLINE and HUNTLEY, JJ., concur.