IN THE COURT OF APPEALS OF TENNESSEE, WESTERN SECTION
AT JACKSON
_______________________________________________________
)
ERICA REBECCA HURD, deceased ) Madison County Circuit Court
by and through her parents and next ) Nos. C-95-284-I and C-95-295-I
friends, CHARLES and VIRGINIA )
HURD, and CORTNEY DESHAUN )
RAGLAND, a minor, by and through his )
next friend, WANDA KAY GRIME, )
)
Plaintiffs/Appellants. )
)
VS. ) C. A. NO. 02A01-9607-CV-00170
)
DAVID WOOLFORK, individually and )
as an agent, servant, employee, Sheriff, )
and representative of MADISON
COUNTY, TENNESSEE and
)
)
FILED
MADISON COUNTY, TENNESSEE, ) May 6, 1997
)
Defendants/Appellees. ) Cecil Crowson, Jr.
) Ap pellate Co urt C lerk
______________________________________________________________________________
From the Circuit Court of Madison County at Jackson.
Honorable Whit A. Lafon, Judge
Larry C. Sanders,
GARRETY & SANDERS, P.C., Jackson, Tennessee
Attorney for Plaintiffs/Appellants.
Blake Anderson, Jackson, Tennessee
Attorney for Defendant/Appellee, Daivd Woolfork, Individually.
James I. Pentecost,
WALDROP & HALL, P.A., Jackson, Tennessee
Attorney for Defendants/Appellees Sheriff David Woolfork and Madison County, Tennessee.
OPINION FILED:
AFFIRMED AND REMANDED
FARMER, J.
CRAWFORD, P.J., W.S. : (Concurs)
LILLARD, J. : (Concurs)
Plaintiffs Erica Rebecca Hurd, deceased, by and through her parents and next friends,
Charles and Virginia Hurd, and Cortney Deshaun Ragland, a minor, by and through his next friend,
Wanda Kay Grimes, appeal the trial court’s order dismissing their wrongful death actions against
Defendants/Appellees Madison County and David Woolfork, Madison County’s Sheriff. We affirm.
In their respective complaints, the Plaintiffs sued Sheriff Woolfork and Madison
County for the wrongful deaths of Plaintiff Erica Rebecca Hurd and Charles Edward Ragland,
Plaintiff Cortney Deshaun Ragland’s father. It is further alleged that Hurd and Ragland were killed
by one Farris G. Morris, Jr., on September 17, 1994. A warrant for Morris’s arrest had been issued
on September 7, 1994, but Sheriff Woolfork’s office had not executed the warrant by September 17,
1994, the date Hurd and Ragland were killed.
Specifically, the Plaintiffs’ complaints contained the following factual allegations:
5. On or about August 23, 1994, Farris G. Morris, Jr. was
arrested and charged with aggravated rape in Madison County,
Tennessee. On or about August 30, 1994, a preliminary hearing was
held on the aggravated rape charges against Morris and sufficient
evidence was found to believe that such crime had occurred and the
case was bound over to the Madison County Grand Jury. On or about
September 7, 1994, a warrant for Morris’ arrest charging violation of
the terms of his probation from a 1992 drug sale conviction. Such
arrest warrant was duly signed by a properly authorized judge and
delivered to David Woolfork, Sheriff of Madison County, Tennessee.
6. The said David Woolfork, in direct violation of the
duties imposed upon him under the provisions of T.C.A. §8-8-201
engaged in extremely reckless conduct by failing to promptly and
properly process said warrant for Morris’ arrest although the said
David Woolfork and/or members of the Madison County Sheriff’s
Department knew or should have known of the dangerous and violent
propensity of the said Morris to commit serious acts of bodily harm
and despite having been informed by the neighbors of the said Morris
of his continuing course of conduct that threatened the members of
the neighborhood in which Morris resided. Said arrest warrant of
September 7, 1994, was never even processed by the said David
Woolfork or members of his staff until after September 17, 1994.
7. David Woolfork’s continuing course of reckless
conduct in failing to process the warrant for the arrest of the said
Morris and his gross negligence in failing to even discover that such
warrant had been properly delivered to his office for processing
continued until after September 17, 1994.
The complaints further alleged, respectively, that on September 17, 1994:
Morris brutally beat and stabbed young Erica Rebecca Hurd to death
while she was visiting her sister who resided in the same duplex in
which Morris was known by the Defendant to be living.
....
. . . Morris brutally murdered and killed Charles Edward
Ragland by shooting him in the head with a shotgun. The said
Charles Edward Ragland lived and resided in the same duplex in
which the said Morris was known by the Defendants to be living.
In seeking to hold Sheriff Woolfork and Madison County liable for the deaths of Hurd and Ragland,
the Plaintiffs alleged the following causes of action:
The reckless conduct of David Woolfork and his failure to
fulfill the duties imposed upon him by T.C.A. §8-8-201 and the gross
negligence of the named Defendants in failing to fulfill the duties of
the Sheriff’s office directly and proximately led to the violent
death[s] of [Erica Rebecca Hurd and Charles Edward Ragland] for
which each of the above-named Defendants should be held both
jointly and severally liable. The further reckless and grossly
negligent conduct of the Defendant, David Woolfork, in devoting his
time and attention to the political aspects of his elected position rather
[than] to fulfilling the duties statutorily imposed upon him by T.C.A.
§8-8-201, constitutes a separate and distinct cause of action for which
the said David Woolfork should be held individually responsible.
Contending that the complaints failed to state claims upon which relief could be
granted, the Defendants subsequently filed motions to dismiss pursuant to rule 12.02(6) of the
Tennessee Rules of Civil Procedure. As grounds for their motions, the Defendants argued that the
Plaintiffs’ wrongful death actions were barred by (1) the public duty doctrine of governmental
immunity and, alternatively, (2) discretionary function immunity. The trial court granted the
motions, and this appeal followed.1
Our supreme court recently summarized the standard to be applied by a court in
addressing a motion to dismiss a complaint for failure to state a claim upon which relief can be
granted:
Such a motion pursuant to Tenn. R. Civ. P. 12.02(6) tests the legal
1
Prior to granting the Defendants’ motions to dismiss, the trial court entered an agreed
order consolidating the cases.
sufficiency of a complaint; it admits the truth of all relevant and
material allegations, “but asserts that such facts do not constitute a
cause of action as a matter of law.” Pursell v. First American
National Bank et al., [937 S.W.2d 838, 840] (Tenn. 1996) (emphasis
added).
In ruling on such a motion, courts must construe the
allegations in the plaintiff’s favor and accept allegations of fact as
true. However, the inferences to be drawn from the facts or the legal
conclusions as set forth in a complaint are not required to be taken as
true. Dobbs v. Guenther, 846 S.W.2d 270, 273 (Tenn. App. 1992).
Riggs v. Burson, No. 03-S-01-9603-CV-00032, 1997 WL 102427, at *2 (Tenn. Mar. 10, 1997)
(emphasis in original). We agree with the trial court’s ruling that, even accepting their allegations
of fact as true, the Plaintiffs’ complaints fail to state claims upon which relief can be granted.
PUBLIC DUTY DOCTRINE
In Ezell v. Cockrell, 902 S.W.2d 394, 404 (Tenn. 1995), the supreme court confirmed
that the public duty doctrine had survived the enactment of Tennessee’s Governmental Tort Liability
Act (GTLA).2 In defining the public duty doctrine, the court explained that:
The public duty doctrine originated at common-law and
shields a public employee from suits for injuries that are caused by
the public employee’s breach of a duty owed to the public at large.
Kelly M. Tullier, Governmental Liability for Negligent Failure to
Detain Drunk Drivers, 77 Cornell L. Rev. 873, 886 (1992). The
doctrine can be traced to the United States Supreme Court’s decision
in South v. Maryland, 59 U.S. (18 How.) 396, 15 L. Ed. 433 (1855),
which held that a sheriff is not liable for failing to protect a kidnap
victim because the sheriff’s duty to keep the peace was “a public
duty, for neglect of which he is amenable to the public, and
punishable by indictment only.” Id. at 403.
Ezell, 902 S.W.2d at 397.
In Ezell, the plaintiff’s husband was killed and the plaintiff was seriously injured by
an intoxicated driver. Ezell, 902 S.W.2d at 396. Earlier in the evening, the police chief of the City
of Elkton had permitted the driver to operate an intoxicated friend’s car when the police chief
2
T.C.A. §§ 29-20-101 to 29-20-407 (1980 & Supp. 1996).
allegedly knew, or should have known, that the driver also was intoxicated. Id. The plaintiff sued
the City of Elkton and its police chief based on the police chief’s negligence in failing to arrest the
intoxicated driver. Id. at 396-97. Reaffirming the viability of the public duty doctrine, the court
concluded that the doctrine barred the plaintiff’s suit. Id. at 404.
We similarly conclude that the allegations of the Plaintiffs’ complaints bring their
actions against Sheriff Woolfork and Madison County within the public duty doctrine of
governmental immunity. The Plaintiffs’ theory of negligence was that the Sheriff failed to promptly
and properly process the warrant for the arrest of Farris G. Morris, Jr. A sheriff’s duty to keep the
peace, however, includes the execution of arrest warrants and is a public duty, “not owed to any
individual in particular.” Ezell, 902 S.W.2d at 397. Under the circumstances of this case, therefore,
the public duty doctrine bars the Plaintiffs’ present actions against Sheriff Woolfork and Madison
County.3
Although our research revealed no reported Tennessee decisions addressing this issue,
we note that our conclusion is supported by a Texas court’s decision in Munoz ex rel. Martinez v.
Cameron County, 725 S.W.2d 319 (Tex. Ct. App. 1986). There, the plaintiffs brought a wrongful
death action against Cameron County and the county sheriff, alleging that the death of the plaintiffs’
mother was caused by the sheriff’s failure to execute an arrest warrant. Munoz, 725 S.W.2d at
3
The Plaintiffs suggest that Ezell was wrongly decided and that, contrary to the supreme
court’s holding therein, the legislature did not intend for the public duty doctrine to survive
passage of the GTLA. In support of this contention, the Plaintiffs cite the GTLA’s following
language:
Wherein immunity from suit is removed by this chapter, consent to
be sued is granted and liability of the governmental entity shall be
determined as if the governmental entity were a private person.
T.C.A. § 29-20-206 (1980) (emphasis added). The Plaintiffs then argue that:
This section was completely overlooked in the Ezell decision. On
its face, . . . it commands the courts to adjudicate the liability of
governmental entities as if they were private persons. Since
private persons are not protected by the public duty doctrine,
neither are governmental entities or their agents.
While the Plaintiffs raise an interesting argument with regard to construction of the GTLA, we
are unwilling to presume that the supreme court, in deciding Ezell, was unaware of the cited
language in section 29-20-206. More importantly, however, this Court is not at liberty to depart
from precedent decisions of the supreme court of this state. Estate of Schultz v. Munford, Inc.,
650 S.W.2d 37, 39 (Tenn. App. 1982).
319-20. Pursuant to a complaint filed by the decedent, an arrest warrant had been issued for the
decedent’s husband charging him with aggravated assault. Id. at 320. Although the Sheriff received
the warrant on October 17, by November 6 the Sheriff still had not executed the warrant. On that
day, the warrant was withdrawn after the decedent’s husband agreed to turn himself in to police.
Apparently, however, the husband did not turn himself in as promised. On November 16, he shot
and killed the decedent. Id.
Holding that the plaintiffs’ action was barred by the public duty doctrine first set forth
in South v. Maryland, the court reasoned:
[W]e can find no case in which a sheriff or other law enforcement
officer has been held liable for personal injury damages for failure to
execute a criminal warrant of arrest.
....
. . . [I]t goes without saying that a sheriff has a duty to execute
an arrest warrant that comes to his hand, much the same as he has a
duty to keep and maintain the peace.
....
We believe the rule of South v. Maryland applies to the
present situation. The purpose of the warrant of arrest is to bring the
accused lawbreaker to court to answer for the commission of an
alleged offense and is not to prevent future crimes from occurring.
Munoz, 725 S.W.2d at 321-22.
SPECIAL DUTY EXCEPTION
The Plaintiffs contend, however, that the public duty doctrine does not apply in this
case because the allegations of their complaints bring their actions within the special duty exception
to the doctrine. In adhering to the public duty doctrine in Ezell, the supreme court recognized the
continuing viability of the special duty exception to the doctrine’s no-liability rule. Ezell, 902
S.W.2d at 401. The special duty exception applies “where a ‘special relationship’ exists between
the plaintiff and the public employee, which gives rise to a ‘special duty’ that is more particular than
the duty owed by the employee to the public at large.” Id. In Ezell, the court undertook to further
refine the special duty exception and concluded that application of the exception should be limited
to the following three circumstances:
1) [When] officials, by their actions, affirmatively undertake to
protect the plaintiff, and the plaintiff relies upon the undertaking;
2) [When] a statute specifically provides for a cause of action
against an official or municipality for injuries resulting to a particular
class of individuals, of which the plaintiff is a member, from failure
to enforce certain laws; or
3) [When] the plaintiff alleges a cause of action involving intent,
malice, or reckless misconduct.
Id. at 402.
Despite its recognition of the special duty exception to the public duty doctrine, the
court concluded that the exception did not apply in Ezell. Regarding the first circumstance, the court
explained that:
The plaintiff’s allegations do not support application of a
“special-duty” of care. Neither [the police chief] nor the City of
Elkton had, by their actions, affirmatively undertaken to protect the
plaintiff. In fact, [the police chief] never had any contact with the
plaintiff; thus, the defendants had taken no action which would have
caused the plaintiff to particularly rely upon them for protection.
Ezell, 902 S.W.2d at 403. The court also rejected the plaintiff’s argument that a special duty of care
arose from certain statutes pertaining to drunk driving, public intoxication, and the general authority
and responsibility of police officers to enforce laws and make arrests. The court reasoned that:
Such statutes neither impose a mandatory duty to arrest every
motorist suspected of driving under the influence, nor authorize
negligence actions against police officers who do not arrest every
suspected drunk driver.
Id. Finally, the court concluded that the third circumstance did not apply because the plaintiff’s
allegations did not establish intentional, malicious, or reckless conduct but, instead, established only
simple negligence. Id.
After careful consideration, we likewise conclude that none of the foregoing
circumstances apply in this case and, thus, that the special duty exception does not prevent dismissal
of the Plaintiffs’ actions. As in Ezell, neither Sheriff Woolfork nor Madison County had, by their
actions, affirmatively undertaken to protect the decedents in this case, Hurd and Ragland. According
to the Plaintiffs’ complaints, the Madison County Sheriff’s Department had “been informed by the
neighbors of the said Morris of his continuing course of conduct that threatened the members of the
neighborhood in which Morris resided.” The complaints contain no allegations, however, that either
of the Plaintiffs’ decedents had contacted, or been contacted by, Sheriff Woolfork or the Sheriff’s
Department concerning Morris’s threatening conduct. The complaints also contain no allegations
that the decedents relied upon Sheriff Woolfork or his department to provide them with protection
from Morris. Cf. Miller v. Niblack, No. 02A01-9505-CV-00101, 1996 WL 578492, at *6 (Tenn.
App. Oct. 9, 1996) (concluding that special duty exception applied where, pursuant to state contract,
defendants affirmatively undertook to accurately record plaintiffs’ court-ordered blood tests and
plaintiffs were justified in relying upon defendants to do so), perm. app. denied (Tenn. Mar. 3,
1997).
Even in Munoz, where the plaintiffs’ decedent was the victim of the aggravated
assault for which the arrest warrant was issued, the Texas court still concluded that no special
relationship existed between the sheriff and the decedent. The court stated:
Our inquiry then is whether this duty to timely execute a
warrant is owed to a particular person or is owed to the public
generally.
....
The exceptions to this rule of non-liability appear mainly to
be where a special relationship is created between the victim and the
agency or officer. . . .
....
In reviewing the summary judgment evidence, we find no
evidence that could be construed as creating a special relationship
under the . . . cited cases between the deceased and the . . . sheriff. In
the absence of a special relationship, no liability exists at common
law.
Munoz, 725 S.W.2d at 321-22.
We also reject the Plaintiffs’ contention that the second part of the special duty
exception applies by virtue of Tennessee Code Annotated sections 8-8-201(1) and 8-8-207. Section
8-8-201(1) imposes upon sheriffs the duty to:
Execute and return, according to law, the process and orders
of the courts of record of this state, and of officers of competent
authority, with due diligence, when delivered to the sheriff for that
purpose.
T.C.A. § 8-8-201(1) (1993). Section 8-8-207 further provides that:
A sheriff’s disobedience of the command of any process is a
contempt of the court from which it issued, and may be punished
accordingly; and such sheriff is further liable to the action of the
party aggrieved.
T.C.A. § 8-8-207 (1993) (emphasis added).
Citing the foregoing language, the Plaintiffs contend that the special duty exception
applies in this case because section 8-8-207 specifically provides for a cause of action against the
sheriff by imposing liability against him for his failure to obey the command of any process. We
conclude, however, that the exception does not apply because the Plaintiffs are not members of the
particular class of individuals referred to in the statute. Specifically, the Plaintiffs do not qualify as
aggrieved parties for purposes of section 8-8-207 because the Plaintiffs are not parties to the
underlying action for which the arrest warrant was issued. The only parties to that action were the
State of Tennessee and Farris G. Morris, Jr. See Mallder v. Rasmussen, 495 N.E.2d 1356, 1357-58
(Ill. App. Ct. 1986) (concluding that, where Illinois statute similarly provided that sheriff who
disobeys command of any writ, warrant, process, order, or decree shall be liable to “party
aggrieved,” sheriff’s liability under statute was limited to “parties to the proceeding”); cf. Maxwell v.
Hixson, 383 F. Supp. 320, 324 (E.D. Tenn. 1974) (concluding that, under predecessor of T.C.A. §
8-8-207, party to judicial attachment or garnishment proceeding could recover from sheriff any
damage sustained by party as result of sheriff’s false or unlawful return of process), aff’d, 425 U.S.
927 (1976).
Finally, we reject the Plaintiffs’ contention that the special duty exception applies in
their cases because their complaints allege causes of action involving reckless conduct. It is true that
both Plaintiffs’ complaints allege that Sheriff Woolfork “engaged in extremely reckless conduct”
by failing to promptly process the warrant for Morris’s arrest. The allegation that Sheriff Woolfork
engaged in “reckless” conduct, however, is a legal conclusion. See Sheiman v. Lafayette Bank &
Trust Co., 492 A.2d 219, 223 (Conn. App. Ct. 1985) (concluding that mere use of word “reckless”
in complaint is insufficient to raise actionable claim because allegation of reckless conduct is
conclusion of law); Hearon v. City of Chicago, 510 N.E.2d 1192, 1195 (Ill. Ct. App. 1987) (holding
that complaint’s allegation of recklessness was legal conclusion unsupported by allegations of
specific acts). In ruling on the Defendants’ motions to dismiss, the trial court, and this court on
appeal, are not required to accept such legal conclusions as true. Riggs v. Burson, No.
03-S-01-9603-CV-00032, 1997 WL 102427, at *2 (Tenn. Mar. 10, 1997). Only the complaints’
factual allegations must be accepted as true. Id. The only alleged factual basis for the Plaintiffs’
claims of reckless conduct is that Sheriff Woolfork was “devoting his time and attention to the
political aspects of his elected position rather [than] to fulfilling the duties statutorily imposed upon
him by T.C.A. §8-8-201.” At most, these factual allegations establish simple negligence. Ezell, 902
S.W.2d at 403.
In accordance with the supreme court’s decision in Ezell v. Cockrell, 902 S.W.2d 394
(Tenn. 1995), we hold that the public duty doctrine of governmental immunity bars the Plaintiffs’
present lawsuits against Sheriff Woolfork and Madison County and, further, that the Plaintiffs’
complaints fail to contain allegations which would bring the Plaintiffs’ actions within the doctrine’s
special duty exception.4
4
Inasmuch as we have concluded that the public duty doctrine bars the Plaintiffs’
lawsuits, we need not address the issue of whether the Sheriff’s failure to execute the arrest
warrant constituted a discretionary act. Under the GTLA, a governmental entity is immune from
suits for injuries arising out of a governmental employee’s performance of, or failure to perform,
The trial court’s judgment is affirmed. Costs of this appeal are taxed to Appellants,
for which execution may issue if necessary.
_______________________________
FARMER, J.
______________________________
CRAWFORD, P.J., W.S. (Concurs)
______________________________
LILLARD, J. (Concurs)
a discretionary function. See T.C.A. § 29-20-205(1) (1980); see generally Bowers ex rel.
Bowers v. City of Chattanooga, 826 S.W.2d 427, 430-32 (Tenn. 1992). In declining to address
this issue, we reject the Plaintiffs’ argument that the public duty doctrine applies only to acts
involving the exercise of discretion. Rather, we interpret Ezell to mean that the public duty
doctrine exists in addition to, and independent of, the exceptions to the waiver of governmental
immunity expressly listed in the GTLA. See Ezell, 902 S.W.2d at 400 (citing T.C.A. §
29-20-205(1)--(8) (1980 & Supp. 1994)). If the public duty doctrine were to apply only to acts
involving the exercise of discretion, as the Plaintiffs urge, then the doctrine would be subsumed
by the GTLA’s discretionary function exception.