Opinion ID: 1715175
Heading Depth: 1
Heading Rank: 3

Heading: Liability of DHH and applicability of La. R.S. 9:2798.1

Text: We must first determine whether the court of appeal was correct in holding that the discretionary function immunity of La. R.S. 9:2798.1 is inapplicable, such that DHH can be exposed to liability in this case. Louisiana Revised Statute 9:2798.1(B) provides: Liability shall not be imposed on public entities or their officers or employees based upon the exercise or performance or the failure to exercise or perform their policymaking or discretionary acts when such acts are within the course and scope of their lawful powers and duties. [Emphasis added.] Section D of La. R.S. 9:2798.1 explains that its purpose is not to reestablish any immunity based on the status of sovereignty but rather to clarify the substantive content and parameters of application of such legislatively created codal articles and laws and also to assist in the implementation of Article II of the Constitution of Louisiana. [5] The starting point for the interpretation of any statute [6] is the language of the law itself. Ginn v. Woman's Hospital Foundation, Inc., 02-1913, p. 9 (La.4/9/03), 842 So.2d 338, 344; Rougeau v. Hyundai Motor America, 01-1182, p. 5 (La.1/15/02), 805 So.2d 147, 151. Special rules for interpreting a statute (such as La. R.S. 9:2798.1) have been enacted by the legislative branch and are found in La. R.S. 1:1 et seq. Louisiana Revised Statute 1:3 provides, in pertinent part, that [w]ords and phrases shall be read with their context and shall be construed according to the common and approved usage of the language and the word `shall' is mandatory. (Emphasis added.) Louisiana Revised Statute 1:4 provided that [w]hen the wording of a Section [of a statute] is clear and free of ambiguity, the letter of it shall not be disregarded under the pretext of pursuing its spirit. The legislative branch also has provided general rules for interpreting laws in La. C.C. art. 9 et seq. See, in particular, La. C.C. arts. 9 and 11. We are bound by the language of a relevant law. Allen v. State, through the Ernest N. Morial-New Orleans Exhibition Hall Authority, 02-1072, p. 12 (La.4/9/03), 842 So.2d 373, 381. The Louisiana Constitution of 1974 art. III, § 15(A) provides, in pertinent part, that [e]very bill shall contain a brief title indicative of its object.  (Emphasis added.) Thus, the title of a law may be examined to determine its purpose. Boutte v. Jefferson Parish Hosp. Sev. Dist. No. 1, 99-2402, p. 5 (La.4/11/00), 759 So.2d 45, 49. The title of La. R.S. 9:2798.1 is Policymaking or discretionary acts or omissions of public entities or their officers or employees. After reviewing the title and substance of La. R.S. 9:2798.1, we must conclude that for purposes of this case its object is to provide immunity from liability for offenses and quasi offenses of public entities, as defined therein, when the acts or omissions of the public entities are policymaking or discretionary acts or omissions. [7] Dictionaries are a valuable source for determining the common and approved usage of words. Louisiana Horsemen's Benevolent and Protective Assoc. 1993, Inc. v. Fair Grounds Corp., 02-1928, p. 5 (La.4/9/03), 845 So.2d 1039, 1042. Louisiana R.S. 1:9 specifically provides that [u]nless it is otherwise clearly indicated by the context, whenever the term `or' is used in the Revised Statutes, it is used in the disjunctive and does not mean `and/or'. Cf., La. C.C.P. art. 5056(2); La.C.Cr.P. art. 6(2); La. Ch.C. art. 108(2). In BLACK'S LAW DICTIONARY 987 (5th ed.1979), the word or is defined as a disjunctive particle used to express an alternative or to give a choice of one among two or more things and indicates an alternative between different or unlike things. In MIRRIAM-WEBSTER'S COLLEGIATE DICTIONARY 817 (10th ed.1999), the word or is defined as a function word to indicate an alternative. Thus, the word or as used in the operative language of La. R.S. 9:2798.1 clearly and unambiguously demonstrates that the words policymaking and discretionary have different meanings. This is confirmed by their common and approved definitions. BLACK'S at 1041 defines public policy as follows: That principle of the law which holds that no subject can lawfully do that which has a tendency to be injurious to the public or against the public good. The principles under which the freedom of contract or private dealings is restricted by law for the good of the community. The term policy, as applied to a statute, regulation, rule of law, course of action, or the like, refers to its probable effect, tendency, or object, considered with reference to the social or political well-being of the state. In MIRRIAM-WEBSTER'S at 901 the word policy is defined as a definite course or method of action selected from among alternatives and in light of given conditions to guide and determine present and future decisions. MIRRIAM-WEBSTER'S at 703 defines making as the act or process of forming, causing, doing, or coming into being. Thus, policymaking in the public sector means the planning of a course of action for the social or political well-being of the state. BLACK'S at 419 defines the word discretion as follows: When applied to public functionaries, discretion means a power or right conferred upon them by law of acting officially in certain circumstances, according to the dictates of their own judgment and conscience, uncontrolled by the judgment or conscience of others. As applied to public officers means power to act in an official capacity in a manner which appears to be just and proper under the circumstances. In MIRRIAM-WEBSTER'S at 332 the noun discretion is defined as power of free decision or latitude of choice within certain legal bounds. The word discretionary is the adjective form of the noun discretion. When we interpret La. R.S. 9:2798.1, we are bound to give effect to all parts of it and cannot give it an interpretation that makes any part of it superfluous or meaningless, if that result can be avoided. Palmer v. Louisiana State Board of Elementary and Secondary Education, 02-2043, p. 5 (La.4/9/03), 842 So.2d 363, 367; Hollingsworth v. City of Minden, 01-2658 (La.6/21/02), 828 So.2d 514, 517. DHH argues that the testimony and evidence establishes that the intent of the drafters of § 23:006-4 was to give DHH inspectors discretion when inspecting restaurants for compliance with § 23:006-4. DHH argues that the actual words of the regulation offer a variety of methods for compliance, which requires the use of judgment or choice i.e. Discretion. It maintains that the first sentence of the regulation indicates three specific choices (signs, menu notices, or table tents), and a fourth general alternative if signs, menu notices, or table tents are not appropriate in a particular situation (other clearly visible messages). DHH also points to the testimony of Dr. Nitzkin that different approaches would work well in different food service establishments because of the layout of the establishment... what would work in one restaurant might not work in another. Thus, DHH maintains that its sanitarians inspecting restaurants serving shellfish necessarily exercise some degree of discretion in determining whether the restaurant is in compliance based on the unique physical layout and service arrangements of each restaurant. DHH argues that the sanitarian who inspected Pascal's Manale exercised such discretion in determining that the warning posted over the oyster bar met the required posting mandated by the regulation. DHH also maintains that the underlying rationale for the regulation's choices to provide the public with a uniform warning in a variety of settingsindicates that discretion by the sanitarian should be used. Therefore, DHH argues that the lower courts erred in failing to find that it enjoyed discretionary immunity under La. R.S. 9:2798.1 to the sanitarian's decision that the warning over the oyster bar at Pascal's Manale satisfied the requirements of the regulation mandating a warning display at the point of sale. Section 23:006-4 of the Sanitary Code requires that all establishments that sell or serve raw oysters must display a prescribed warning at point of sale. The establishment has discretion in determining what method may be used to convey the warning because the warning can be conveyed by a sign, menu notice, table tent or other clearly visible message. However, no policymaking act or discretionary act is involved in determining where the warning must be given; it must be given AT THE POINT OF SALE. In the instant case, the point of sale was at the table where the raw oysters were ordered for the decedent. The raw oysters were offered for sale in the menu at a certain price. This offer was accepted and the sale was consummated when the oysters were ordered. La. C.C. arts 2439 and 2456. This transaction did not take place in the room where the oyster bar and warning sign were located. There were no signs, menu notices, table tents, or other clearly visible messages conveying the warning in the room, or on the table, where the order was made. This violated Section 23:006-4. In their briefs the relator and respondent applied La. R.S. 9:2798.1 as it was interpreted by the lead opinion on rehearing in Fowler v. Roberts, 556 So.2d 1 (La.1990), and its progeny. See, e.g., Jackson v. State, Dept. Of Corrections, 00-2882 (La.5/15/01), 785 So.2d 803; Hardy v. Bowie, 98-2821 (La.9/8/99), 744 So.2d 606; Archon v. Union Pacific Railroad, 94-2728 (La.6/30/95), 657 So.2d 987; Rick v. State, DOTD, 93-1776 (La.1/14/94), 630 So.2d 1271. The essence of this jurisprudence is summarized in Jackson, 00-2882 at 8, 785 So.2d at 809, as follows: The immunity from liability for discretionary acts is essentially the same as the immunity conferred on the federal government by the exception in the Federal Tort Claims Act (FTCA). Fowler v. Roberts, 556 So.2d 1 (La.1989) (on rehearing). In Berkovitz v. United States, 486 U.S. 531, 108 S.Ct. 1954, 100 L.Ed.2d 531 (1988), the United States Supreme Court developed the following two-step analysis to examine immunity under FTCA: (1) whether a statute, regulation, or policy specifically proscribes a course of action; and (2) whether the challenged action is grounded in political, economic or social policy. This Court adopted the Berkovitz inquiry to analyze the applicability of La.Rev. Stat. 9:2798.1, describing it as follows: Discretion exists only when a policy judgment has been made. Judicial interference in executive actions involving public policy is restrained by the exception. Thus, the exception protects the government from liability only at the policy making or ministerial level, not at the operational level. Fowler, 556 So.2d at 15. Initially, a review of the lead opinion on rehearing in the Fowler case shows that the starting point for interpreting La. R.S. 9:2798.1 therein was not the statute itself. Instead, the opinion starts with the premise that [t]he discretionary function exception to state governmental liability established by the statute is essentially the same as the exception in the Federal Tort Claims Act. Fowler, 556 So.2d at 15. This premise is fatally flawed. The referenced provision of the FTCA is 28 U.S.C.A. 2680(a) that provides as follows: The provisions of this chapter and section 1346(b) of this title shall not apply to (a) Any claim based upon an act or omission of an employee of the Government, exercising due care, in the execution of a statute or regulation, whether or not such 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 federal agency or an employee of the Government, whether or not the discretion involved be abused. [Emphasis added.] A review of the Louisiana statute and the federal statute shows that their language is not essentially the same. The Louisiana statute applies to policymaking or discretionary acts when such acts are within the course and scope of ... lawful powers and duties. The federal statute is limited to the exercise or performance or the failure to exercise or perform a discretionary function or duty. Unlike the Louisiana statute, the federal statute does not provide that a policymaking act is separate and distinct from a discretionary function or duty. The Fowler opinion did not utilize the rules for interpreting Louisiana statutes that are found in the Revised Statutes and the Civil Code. Instead, it went to federal jurisprudence to interpret a dissimilar Louisiana statute to reach the conclusion that the immunity provided for in the Louisiana statute only exists when there is a discretionary act or function grounded in social, economic or political policy. Fowler, 556 So.2d at 15. This quoted language is not found in the Louisiana statute. As indicated in the above cited quote for the Jackson case, the immunity has been further limited by the subsequent jurisprudence so that it now only applies at the policy making or ministerial level, not at the operational level. A review of the Louisiana statute shows that it does not make a distinction between operational acts and ministerial or policymaking acts. Finally, the Fowler interpretation of La. R.S. 9:2798.1 improperly renders the word or meaningless and is an impermissible repeal of part of a substantive immunity right. Louisiana R.S. 9:2789.1 is clear and unambiguous. We are bound to follow it as written and give effect to all of its provisions. For the foregoing reasons, the analysis given to La. R.S. 9:2798.1 by Fowler and its progeny is faulty. DHH had a mandatory duty to properly enforce the sanitary code. La. R.S. 40:4 A. We find that DHH was negligent in failing to properly train its sanitarians and failing to properly provide them with interpretations of the Sanitary Code terminology, specifically as to what the term point of sale means. The result of this negligence is clearly seen in the actions of Mr. Robinson when he inspected Pascal's Manale. After observing that the restaurant had a raw oyster bar in the front of the restaurant displaying the required warning sign, Mr. Robinson testified that he did not inquire as to where else, other than the oyster bar, raw oysters might be sold to customers in Pascal's Manale. Mr. Robinson testified that he believed that the one posted sign over the oyster bar met the requirement of § 23:006-4 because he believed that the warnings needed to be posted at each establishment. Disturbingly, the evidence reveals that 20-25% of the raw oysters sold at Manale were sold and served in the restaurant's dining area. Therefore, under Mr. Robinson's interpretation of the statute, 20-25% of consumers at Manale's would not receive the benefit of the required warning because none was included in menus, table tents or signs in the dining rooms. We find that this fallacious interpretation is the result of DHH's negligent failure to properly train its sanitarians for enforcement of § 23:006-4. DHH is now attempting to escape liability for its failure to train its sanitarians by claiming that the untrained sanitarians are themselves exercising policymaking discretion. We reject this argument and conclude that Mr. Robinson's decision in this case, that the warning over the oyster bar was in compliance with § 23:006-4, was not a decision grounded in social, economic, or political policy. It was operational negligence in enforcing the sanitary code. When the government acts negligently for reasons unrelated to public policy consideration, it is liable to those it injures. Archon, 657 So.2d at 996. Accordingly, we hold that DHH is not entitled to immunity under La. R.S. 9:2798.1. The factual ruling of the trial court, affirmed by the court of appeal, that DHH negligently failed to enforce its own regulation is not clearly wrong (manifestly erroneous). Therefore, we affirm these portions of the court of appeal's decision.