Court Opinion

ID: 9561826
Source: CourtListenerOpinion
Date Created: 2023-08-21 18:17:01.647566+00
Date Added: 2024-06-11T09:14:33.044981
License: Public Domain

RAPER, Justice,
specially concurring.
I concur not only in the result but the reasoning of the court’s opinion.
The opinion leaves unsaid, matters of importance. In making that observation, I am not critical of the opinion’s author. It is not the function of the court’s majority opinion in a ease of this sort to go into any more detail than was done. When carefully read, it decides the case as far as possible.
The court’s opinion, however, leaves open the solution to its implementation. Whether the legislature realizes it or not, the court has handed that body a problem. At the present time and until July 1, 1979, the law is as stated in Collins v. Memorial Hospital of Sheridan County, Wyo.1974, 521 P.2d 1339: the purchase of liability insurance constitutes a waiver of municipal sovereign immunity, at least up to the amount of coverage, even in the absence of specific legislative authority for such a waiver. That case dwells at some length on the subject of insurance and, in footnote 5, quotes favorably from a case of preceden-tial value, wherein it was said, “ ‘Liability insurance, to the extent that it protects the public funds, removes the reason for, and thus the immunity to suit.’ ” (Emphasis added.) Thomas v. Broadlands Community Consol. School Dist. No. 201, 348 Ill.App. 567, 109 N.E.2d 636, 640.
As a result of the Memorial Hospital case, some legislative changes were made. It was noted in Town of Jackson v. Shaw, Wyo.1977, 569 P.2d 1246, 1256, that § 1-1018.1, W.S.1957, 1975 Cum.Supp., enacted in 1975, a part of Chapter 36, Title 1, W.S. 1957, dealing with “State, State Agencies and Political Subdivisions; Actions by or Against,” provided as follows:
“The defense of governmental immunity shall be waived to the extent of the limits of liability insurance carried by the governmental entity. This section shall apply to any governmental body or agency in the state securing liability insurance coverage.”
In Jivelekas v. City of Worland, Wyo. 1976, 546 P.2d 419, when we were sitting in *1160a three-judge panel, the writer of the majority proposed abolition of the immunity doctrine, to which the Chief Justice and I disagreed. In my remarks of disagreement, because of the timing of such holding and my view that the legislature should set up a uniform system of handling state tort liability, I made the following remarks:
“ ‘ * * * “Whatever that branch does, consideration must be given to the economics of insurance premiums versus appropriated funds.” [Awe v. University of Wyoming, Wyo.1975, 534 P.2d 97, 107.] It may be more feasible to divert insurance premiums into a state-administered tort liability fund. I think we must take judicial notice of the battle raging in other areas; insurance may not be the cure-all to cover liability and may be getting priced out of the business under its heavy exposure.’ ”
Only by way of illustration because there are no such facts in this record, it has been mentioned that a county memorial hospital in this state did not renew its liability (malpractice) insurance because of high cost and decided to rest on its immunity. Other governmental entities may have been or are doing the same. It is somewhat an anomaly that there is no reason for the immunity doctrine when insurance is available but when the insurance becomes unavailable the immunity doctrine is no longer in existence. I think I can take judicial notice of insurance problems within the medical profession, extending into the legal profession and to industry in products liability cases.
The legislature followed through suggestions by this court and its members made in various opinions from time to time that there should be legislative action to create a tort claims act. House Bill No. 186 of the Forty-fourth Legislature, 1977 Session, was enacted but vetoed by the governor. It provided for a Wyoming Tort Claims Act for the State and all its political subdivisions. That Act placed heavy emphasis on insurance as a source for satisfaction of valid tort claims.
Perhaps, through the discussions of this court in the past, involving insurance coverage, there may exist some sort of an idea or impression that insurance to satisfy claims is the only device available to the State and its political subdivisions to satisfy claims against them. It is worthwhile to note that in the unanimous opinion of this court in this case there is no requirement that any of the governmental entities mentioned buy insurance to meet tort claims made and approved. I think the court is careful to not dictate compulsory insurance.
Other courses are open, such as self-insurance if, after study, the legislature finds a financial capability of the State to do so, when considered as against the increasing cost of insurance premiums. There could be considered the establishment of a trust fund against which claims could be satisfied.
With respect to political subdivisions, this court recently handed down its decision in Frank v. City of Cody, Wyo.1977, 572 P.2d 1106, in which was approved an application of the Wyoming Joint Powers Act, §§ 9-18.13 to 9-18.20, W.S.1957, 1975 Cum.Supp. (now §§ 9-1-129 to 9-1-136, W.S.1977). The feasibility of combining the resources of several political subdivisions to accomplish an end, not within the financial capability of a single political subdivision, was thus established. It is suggested that under appropriate legislative enabling acts, funds presently expended for insurance premiums or some pro rata share could be diverted into a central trust fund for satisfaction of valid tort claims against any of the participating subdivisions.
It must be realized that any suggestions I make should not be construed as a direct or indirect interference with the legislative function. However the legislature handles the problem it faces, as a result of this court’s opinion, is eventually its business and must be resolved upon the basis of its investigation and actuarial studies; a comparison of insurance cost to claims paid in a statewide structure. My concern is that it should be understood that I see nothing in the opinion of this court now being handed down nor in any past decisions that marries it to or settles any concept that purchase of *1161insurance is the sole and only method available to the legislature to make funds available to pay approved tort claims against the State and its political subdivisions; other methods may be more economical and feasible.
While the whole court does not join in saying so, at this point and time, it appears to me that the handwriting is on the wall and the legislature might be well advised to prepare the State and arrange for funding of proper tort claims against it. The court by its opinion is taking immunity away from the county. A county is a unit and arm of State government, by which many functions of state administration are decentralized, such as tax assessment and collection through the county assessor and treasurer; enforcement of the State’s laws, through a county sheriff and a prosecuting attorney; supervision of elections through the county clerk; support for the State’s judicial system, through the clerks of court and furnishing of court facilities by county commissioners; a local network of roads, forming a part of the State’s highway system, through county commissioners; legislative apportionment by county and combinations of counties, etc., etc. The court may have reached the State through the county. I make no advance or advisory determination in that regard and agree that if necessary, in the absence of voluntary action, a future court decision in that regard is the wiser course, the attorney general not being present representing the central State government in this action.
It must be understood that in the expression of the foregoing views, I set out only my individual sentiments and they must not be considered binding as an extension of the court’s opinion.