County Not Liable Under TGTLA for Decisions Regarding Placement of Police Officers
Recognizing the need to balance the leeway that governmental entities need in order to properly serve the public interest against the fact that governmental entities may occasionally act in ways that are unacceptable and cause harm to citizens, Tennessee adopted the Tennessee Governmental Tort Liability Act (TGTLA) to define when governmental entities are immune from tort liability.
The TGTLA basically says that governmental entities are immune from suit for injuries that arise from the carrying out of a governmental function. However, there are several statutory exceptions to governmental immunity, including where the entity has caused injury through negligence. The Tennessee Attorneys Memo highlights a case recently decided by the Tennessee Court of Appeals where a plaintiff asserted that the County of Marion had been negligent in failing to post a police officer outside the juvenile court and thus the County was liable for damages the plaintiff sustained as a result of being assaulted outside the court.
The primary issue before the Court was whether or not posting a police officer outside the court was considered a “discretionary function” under the TGTLA. While the TGTLA generally removes immunity for governmental entities where their negligence proximately causes personal injury in Tennessee, it allows such entities to retain immunity from suit if the injury arises out of “the exercise or performance or the failure to exercise or perform a discretionary function, whether or not the discretion is abused.” Thus, if the decision about where to post a police officer was a discretionary function, Marion County would be immune from liability for any injuries caused by the making of that decision.
The Court of Appeals turned to a prior decision by the Tennessee Supreme Court in Bowers v. City of Chattanooga to determine whether or not the injury in this case arose from the exercise of a discretionary function. Bowers established a “planning-operational” test for determining whether a governmental action or decision would be considered a discretionary function. To summarize this test, the Bowers court stated: “[d]ecisions that rise to the level of planning or policy-making are considered discretionary acts […] while decisions that are merely operational are not considered discretionary acts[…]” To determine whether a decision is a planning or operational one, the court will look to the actual decision-making process itself, not the identity of the decision-maker.