ELLINGTON, Chief Judge.
On the morning of September 3, 2008, a LaGrange High School front office employee allowed a 14-year-old student, N.F., to leave school with a middle-aged man who claimed to be the girl's uncle. Shortly thereafter, the man, a 52-year-old convicted felon who had
1. As an initial matter, Cotton has failed to assert on appeal any error in the trial court's grant of summary judgment to Cole. Thus, any error in that portion of the court's order is deemed abandoned, and the court's grant of summary judgment to Cole is affirmed by operation of law. See Court of Appeals Rule 25(c)(2); Lang v. Becham, 243 Ga.App. 132, 530 S.E.2d 746 (2000) (because the appellant presented no specific argument, cited no authority, and made no reference to the transcript or record to support a claim of error regarding the grant of summary judgment to one of the appellees, any error as to that appellee was deemed abandoned).
2. Cotton contends that the trial court erred in finding as a matter of law that Smith's duties in determining whether to release a student from school were discretionary in nature, not ministerial, and that, as a result, Smith was entitled to official immunity from liability for her claims.
(Citations omitted.) Benton v. Benton, 280 Ga. 468, 470, 629 S.E.2d 204 (2006). Viewed in this light, the record shows the following, undisputed facts.
On September 3, 2008, N.F. was a 14-year-old freshman student at LaGrange High School, which had an enrollment of approximately 1,400 students. The school maintained a computerized "master file" on each student which contained, among other things, a list of people who were authorized to check the student out of school during regular school hours. Further, all incoming students that year received a copy of La-Grange High School's "Student Planner 2008-2009," which contained the following relevant provision in the section entitled "Check Out Early":
(Emphasis in original.) Defendant Smith, the front office employee, admitted during
Although the 2008-2009 school year started in early August 2008, N.F. did not start her freshman year until mid-August, about two weeks before the incident at issue in this case. N.F. had not checked out of school through the front desk prior to September 3, however, and Smith admitted that, on that date, she did not know N.F. or the girl's parents. N.F.'s computerized master file showed that the only people who were authorized to check her out were her mother, Cotton, and her father, "Vincent Cameron." Even so, at approximately 9:37 a.m. on September 3, a middle-aged man approached Smith at the school's front desk and told her that he was there to check N.F. out of school for an appointment.
Cotton filed suit against Smith and Smith's supervisor, school principal Cole, contending that Smith was negligent in releasing N.F. to Hardy and that Cole negligently supervised Smith. In response to the defendants' assertion that they were protected by official immunity, Cotton contended that, when Smith failed to ask Hardy for identification to confirm his name and failed to check N.F.'s master file to see if "Frank F___" was authorized to check N.F. out from school, Smith breached her ministerial duty to take specific actions that were mandated by the school and the county school board.
In support of these contentions, Cotton showed, in addition to the above evidence, that the Troup County School System had an "Emergency Preparedness Plan" for La-Grange High School and that the plan included two relevant sections. The section entitled "F. School Visitors," stated as follows:
(Emphasis supplied.) Further, the section entitled "G. Student Sign-In and Out," included the following provision:
(Emphasis supplied.) Moreover, Cotton showed that the Troup County Board of Education's "Administrative Regulations, Dismissal Precautions" contained the following relevant directions for "Early Dismissal" of students:
(Emphasis supplied.)
The testimony of two of the assistant principals at LaGrange High School, Kimberly Parks and Kenneth Redding, supports a finding that the policies and procedures of both the high school and the school board are mandatory rules to be followed by all school employees. According to Parks, the rules require school employees in charge of checking students out of school to check the identification of a person picking up a student and to verify that the person is listed in the student's master file as being authorized to do so. Parks testified that the purpose of the rules is to protect the school's students, stating that, even though 14-year-old students are in high school, they still sometimes do "foolish things," so the rules are designed, in part, to protect them from the consequences of their foolishness. Redding agreed that the rules require school employees to always check the identification of an adult who is trying to check out a student and to check the student's file to see if the adult is authorized to do so. He also admitted that the rules are designed to protect the students.
In contrast to the assistant principals' testimony, the school principal, Cole, testified that, notwithstanding the plain language of the provisions at issue, he believed school employees still had the discretion, based upon their personal judgment of the circumstances, to decide whether to ask an adult to show a driver's license or other identification before allowing the adult to check a student out of school. According to Cole, the same was true regarding the provision directing the school's office staff to check the student's master file before allowing the student to leave with an adult, although Cole also admitted that the provision is a security feature intended to protect the students that was promulgated under his leadership. And, even though Cole asserted that school employees may rely on their personal judgment when deciding whether to check a student's master file before releasing the student to an adult, he admitted that, if an employee does check the student's file and the list of authorized people does not include the adult's name, the student will not be allowed to leave school with the adult. Moreover, Cole admitted that he, as the principal and a school administrator, had a duty to protect the school's students from sexual predators, including 14-year-old students who are legally incapable of consenting to any sexual activity, even if they want to. Ultimately, in an apparent contradiction of his previous deposition testimony, Cole admitted that the provisions quoted above were, in fact, "rules"
Similarly, Smith initially testified that, although the above-cited rules and regulations were in place in September 2008 and she was familiar with them, in her opinion, the prescribed actions were not mandatory and she was authorized to use her personal judgment and discretion when deciding whether to release a student to an adult. Smith also admitted that, despite the county's rule that "students should never be released to an unidentified person," she did not routinely request identification from adults who were checking out students. Smith explained that, according to her personal interpretation of the rule, a man who tells her that he is a student's father is not "unidentified," so she could use her discretion when deciding whether to allow him to check the student out of school. Smith also admitted that she normally did not check the school's computerized list of people authorized to check out each student, contending that the only purpose for the list is "if there is a reason to question that person[,] in my judgment." Smith contradicted herself during her deposition, however, when she admitted that the county's policy that "[o]ffice staff will routinely ask for picture ID and check[] to see [if] that person is on the list of those authorized to pick up that particular student[]" was, in fact, a rule that she was supposed to follow.
After considering the evidence and the parties' arguments, the trial court found that Smith's responsibilities in releasing students from school were discretionary and that, because there was no evidence that Smith acted with malice, she was entitled to summary judgment on the basis of official immunity. We disagree.
(Citations and punctuation omitted; emphasis in original.) Smith v. McDowell, 292 Ga.App. 731, 733, 666 S.E.2d 94 (2008). Further, "[t]he determination of whether an action is discretionary or ministerial depends on the character of the specific actions complained of, not the general nature of the job, and is made on a case-by-case basis." (Citation and punctuation omitted.) McDowell v. Smith, 285 Ga. 592, 594-595, 678 S.E.2d 922 (2009), affirming Smith v. McDowell, supra.
In Smith v. McDowell, a case with facts similar to the instant case, a school employee allowed the noncustodial father of a six-year-old girl to check the child out of school, even though the girl's school information card did not list him as being authorized to check her out of school and he was not authorized to have any contact with the child due to his previous abduction of her. 292 Ga.App. at 732, 666 S.E.2d 94. The school's receptionist, McDowell, was supposed to check the child's information card to verify that the person picking up the child was authorized to do so and, if the card did not list the person who was seeking to check out the child, she was supposed to consult a school administrator before releasing the child, even if she had received a note or a fax from a parent. Id. at 732-733, 666 S.E.2d 94. In November 2005, McDowell received a telephone call and a fax from a woman posing as the child's mother, instructing McDowell to release the child to her father. Id. at 732, 666 S.E.2d 94. When the father arrived, McDowell asked for
In concluding that McDowell's duties "present[ed] a clear example of a ministerial function," Smith v. McDowell, 292 Ga.App. at 734, 666 S.E.2d 94, this Court rejected the employee's argument that "her decision not to follow the [school] policy [on releasing students during the school day] constituted gathering facts and exercising her judgment." Id. at 733, 666 S.E.2d 94. This Court explained that the
(Punctuation omitted; emphasis in original.) Id. at 733-734, 666 S.E.2d 94. After acknowledging that "a de facto absolute immunity for school employees has developed gradually across the last decade" in the state, id. at 734, 666 S.E.2d 94, and after distinguishing several cases on their facts, this Court criticized the "effective elimination of ministerial acts on the part of school employees" and opined that "[t]here should be no special category of absolute immunity for school employees." Id. at 735-736, 666 S.E.2d 94.
(Emphasis in original.) Id. at 736-737, 666 S.E.2d 94.
Ultimately, this Court concluded that "there was a hard and fast policy with no exceptions, a policy which explicitly allowed for no discretion"; that McDowell's conduct "constitute[d] not one, but two violations of absolute and ministerial duties"; and that McDowell "failed to act in a way that was specifically directed." Smith v. McDowell, 292 Ga.App. at 734, 666 S.E.2d 94. In affirming this Court's decision, the Supreme Court of Georgia agreed with these conclusions, stating that
(Citations omitted.) McDowell v. Smith, 285 Ga. at 593-594, 678 S.E.2d 922.
In the instant case, the trial court attempted to distinguish Smith v. McDowell on its facts by noting that the child in that case was in first grade, while N.F. was in high school, and that McDowell had admitted that she had no discretion regarding whether to check the student's information card to see if the adult was authorized to pick up the child from school.
(a) The age gap between the children, however, is a distinction without a difference, particularly given the testimony in this case that the school is responsible for protecting all of its students, that the applicable rules are intended, at least in part, to protect the students, and that 14-year-old students still need some protection because they are sometimes "foolish."
(b) Further, the trial court erred in relying upon the testimony of Cole and Smith when distinguishing this case from Smith v. McDowell, and in concluding, as a matter of law, that Smith was authorized to use her personal judgment in deciding whether to follow the applicable rules and that, as a result, her duties were discretionary, not ministerial. As shown above, both Cole and Smith contradicted themselves to some extent when questioned about whether the applicable rules mandated certain acts to be performed before releasing a student from school. "Under Prophecy,[
(c) Moreover, given the evidence presented, including the text of the applicable rules and the admissions of witnesses that school employees were required to follow the rules, the trial court erred in finding that there were no express rules that mandated certain ministerial acts by Smith. In fact, the evidence, when viewed in favor of Cotton, as the nonmovant, demands an alternate conclusion: that there were applicable explicit, unambiguous, written rules that required school employees to perform a few simple, ministerial acts before releasing a student to an adult.
As shown above, the school's student planner contained a provision that, in order to be released early from school, a student must present a "parent note, doctor appointment note, court appearance summons, or other certified documentation . . . to the attendance clerk at the time of check out," that the "note must have a phone number whereby the [student's] parent can be reached by an administrator for verification," and that "[s]tudents without a note will not be granted permission to leave . . . [unless they are] signed out by a parent or guardian." (Emphasis omitted.) As written, this provision places clear, simple, affirmative duties on both the student and the front desk employee responsible for checking the student out of
In addition, as shown above, the county school board's regulations stated affirmatively that school employees should never release a student to an unidentified person, and the school system's Emergency Preparedness Plan requires employees to ask all visitors for identification if they do not know them and to routinely ask any adult seeking to check a student out of school to show a picture ID and to check to see if that person is on the list of those authorized to pick up that particular student. Given the admissions by Cole and the assistant principals that compliance with these rules was mandatory, Smith's assertions that, in her opinion, Hardy was not "unidentified" due to his verbal identification of himself as "Frank F___," and that "routinely" does not mean that employees must check an unfamiliar adult's identification every time, are insufficient to establish, as a matter of law, that her duties under the rules were discretionary, as opposed to ministerial.
Further, Smith deposed that she believed she was only required to check a student's master file to see if an adult was authorized to check the student out if, based upon her subjective assessment of the situation, she thought it was necessary. However, Parks, one of the assistant principals, testified that, during a conversation after the September 3 incident, she heard Smith say that, with 1,400 students in the school, the front office is always "hectic" and that she (Smith) could not go to the computer and check every student's file before letting the student leave school. This testimony supports an inference that Smith's decision on whether to check a student's computer file was, at least part of the time, based on how busy she was at the moment and not, as she claimed, on her personal assessment of all of the surrounding circumstances.
Given this evidence, as well as the other admissions regarding the mandatory nature of this rule, the trial court erred in finding that Smith v. McDowell was sufficiently distinguishable on its facts from the instant case so that it was not bound by the precedent expressed therein.
Accordingly, the evidence, viewed in favor of Cotton, as the nonmovant, demonstrates that Smith's failure to take affirmative actions that were specifically directed in the applicable rules in order to ensure that Hardy was authorized to check N.F. out of school constituted at least two violations of absolute and ministerial duties, just as in Smith v. McDowell Therefore, the trial court erred in concluding, as a matter of law, that Smith's duties were discretionary, not ministerial, and that she was entitled to official immunity, and in granting summary judgment to her on that basis.
3. Cotton also argues that the trial court erred in ruling that, even if Smith was not protected from liability on the basis of official immunity, Cotton's claims must fail due to the lack of proximate causation of N.F.'s injuries. In so ruling, the trial court concluded that "Hardy's intervening criminal acts were the proximate cause of [the] alleged
(Citations and punctuation omitted; emphasis supplied.) Brown v. All-Tech Investment Group, 265 Ga.App. 889, 893-894(1), 595 S.E.2d 517 (2004). Stated differently,
(Citations, punctuation and footnote omitted; emphasis supplied.) Ontario Sewing Machine Co. v. Smith, 275 Ga. 683, 686-687(2), 572 S.E.2d 533 (2002). See also Zwiren v. Thompson, 276 Ga. 498, 500, 578 S.E.2d 862 (2003) ("What amounts to proximate cause is undeniably a jury question and is always to be determined on the facts of each case upon mixed considerations of logic, common sense, justice, policy, and precedent.") (citations and punctuation omitted).
In this case, the evidence presented, when viewed in favor of Cotton, presents a jury issue on whether Hardy's molestation of N.F. was a reasonably foreseeable consequence of Smith's failure to perform her ministerial duties under the circumstances presented. A jury would be authorized to find that Smith could have prevented N.F. from leaving with Hardy—and, in fact, would have been required to prevent N.F. from leaving until she could consult with an administrator—if she had fulfilled even one of her ministerial duties.
Accordingly, the trial court erred in finding that there was no evidence of proximate cause and in granting summary judgment to Smith on that basis.
MILLER, P.J., and DOYLE, J., concur.