Court Opinion

ID: 9565220
Source: CourtListenerOpinion
Date Created: 2023-08-21 19:16:59.830345+00
Date Added: 2024-06-11T09:19:28.590469
License: Public Domain

Townsend, J.,
concurring specially: This opinion is based on the theory that the keeping of prisoners by a city is a governmental function and that since cities are not liable for the negligence of their officers, agents and servants while engaged in a governmental function there can be no recovery. Cited in support of it are Doster v. City of Atlanta, 72 Ga. 233; Wilson v. Mayor &c. of Macon, 88 Ga. 455; Love v. City of Atlanta, 95 Ga. 129; Nisbet v. City of Atlanta, 97 Ga. 650; Gray v. Mayor &c. of Griffin, 111 Ga. 361, and Archer v. City of Austell, 68 Ga. App. 493. Were it not for the holdings of our Supreme Court in Nisbet v. City of Atlanta, supra, this court might have affirmed this case and thereby held that a recovery could be had. Certainly, were it.not for the Nisbet case, the writer would have dissented because it is the only case that is sufficiently in point with the instant case to require the writer to concur. The Doster case is not in point because it was brought by a prisoner who while working on “public works” was beaten by fellow prisoners who were “initiating” him in the presence of the guards. However reprehensible this conduct may have been, it grew out of the governmental function of keeping the prisoners. The same is true as to the Wilson case where the plaintiff was confined in a jail cell with a drunken prisoner of powerful physique *884who beat him unmercifully. Also, the Gray case was an action by a prisoner on account of physical injury and mental suffering . caused by the condition of the jail in which the prisoner was kept and the Archer case where a prisoner lost his life by reason of being confined in a municipal jail with no ventilation and a smoking stove fire resulted in smothering him. All these cases disclose an inhumane and lackadaisical attitude on the part of prison authorities toward prisoners. Although this condition may have improved somewhat in this century, this type of case, together with like instances constantly being brought to the attention of the public, discloses that there yet remains room for improvement in the administration of penal institutions of our cities, counties and State. Our age has repudiated the medieval theory that prisons are instruments of suffering and torture, but has mot always implemented this repudiation with the vigor necessary to put an end to the abuses.
The writer feels that the law should recognize an exception to the rule that cities are not liable for governmental functions in cases where the keepers of prisoners display an unchristian inhumanity toward those whom society has placed in their keeping for rehabilitation. The writer also feels that in the interest of justice and humanity an exception should be recognized by the law so that the States may be held liable for the brutal conduct of those in charge of prisoners on its behalf as well as their culpable neglect. Prisoners are wards of the State and are held, not only for punishment, but for rehabilitation as well. They are wholly dependent for their safety and physical welfare upon their keepers. Those same persons who are shocked by an account of the ill treatment of a caged animal in a zoo may be unmoved by the death of a human being due.to the gross negligence of those to whom the power of the law has consigned him.
However, the writer recognizes that this court cannot make law but must construe and apply those laws already in existence. It follows therefore that where a city is engaged in a governmental function there can be no recovery on behalf of a person injured or killed through the negligence of its officers, agents, and servants. Love v. City of Atlanta, supra, was brought by a private citizen who was not a prisoner, and is only cited in the opinion of the court for the purpose of showing that injuries *885to a person inflicted by a runaway garbage cart were not compensable because the collection of garbage was a governmental act, it having been done under the direction of the Board of Health which was a governmental agency. This brings us to Nisbet v. City of Atlanta, supra, which the writer feels is conclusive authority that the. action cannot be maintained. The widow of Nisbet, a prisoner, brought an action alleging that her husband was injured while working on the streets of the city, a ministerial function; that this injury together with total lack of medical attention thereafter brought about his wrongful death for which she sues. Had the Nisbet decision been predicated solely upon the failure to give medical attention it would not be binding on this court in this case, as the treatment of the prisoner in this respect would be a governmental function. It was, however, also brought on the theory of negligence in the manner in which he was injured while engaged in a ministerial function.
The instant ease is predicated on the theory that the plaintiff was a prisoner engaged in working on a street, which is a ministerial function. He was required to go under a bank above which other prisoners were working. This caused the bank to cave in, resulting in most severe injuries. Had he been a free man and been told to go under this bank, upon seeing the danger he could have refused to do so and thus not assumed the risk. But as a prisoner he had no freedom of choice in the matter and had he refused to obey the command of the supervisor the penalty of such disobedience, while it might not have been greater than the penalty he suffered by obeying, would certainly have been more inevitable. The bank might not have fallen, but mutiny would have brought certain reprisal. Therefore, he had no alternative. The law, having deprived the prisoner of his power of yolition in this respect and assumed to exercise it for him, should by every dictate of justice not be allowed with impunity to force additional injury upon him through the gross negligence of its servants.
The city at the time of the injury to the plaintiff was, as to him, engaged in two functions, one governmental, that of keeping prisoners and administering penal affairs, and the other ministerial, that of building streets. Were it not for the Nisbet case *886this court could if it would follow the- more humane views of our neighboring States of Alabama and Florida and recognize the right of the plaintiff to recover on the theory that the city at the time of his injury was engaged in a ministerial function.
Social reforms and our increased understanding of social problems in the past century have brought a gradual trend toward a more humanitarian and even-handed administration of justice in the field of penal law. In view of this, the writer feels that the Nisbet case should be modified to the extent that a plaintiff with a cause of action such as is here set out should be entitled to his day in court, and to recovery if he is able to prove the allegations of his petition. Since this court is bound by the ruling in the Nisbet case and is without power to modify it, the writer concurs in the judgment, but feels that the question is one of moment and importance, and public concern, and that the result reached is inequitable.