RENDERED: MARCH 22, 2018 TO BE PUBLISHED
~uptttttt dtnurf nf ~~~ ~ [L 2017-SC-0000144~ DG
KAMRYN .BAKER APPELLANT
ON REVIEW FROM COURT OF APPEALS V. CASE NO. 2015-CA-001673 LAUREL CIRCUIT COURT NO. 13-CI-01000
LYNN FIELDS AND BO RAINS APPELLEES
. OPINION OF THE COURT BY CHIEF JUSTICE MINTON
REVERSING AND REMANDING
In Breathitt County Bd. of Educ. v. Prater, this court announced a new rule
of law allowing an interlocutory appeal of a trial court's ruling on an immunity
defense. 1 We ·granted discretionary review of this case to determine if the Court · ...
of Appeals exceeded the scope of appellate review 'in this interlocutory appeal
when it not only agreed with the trial court that the defendants were not
entitled to qualified immunity but went further and conclusively determined
that these defendants were not negligent as a matter of law. We hold that the ' '
scope of appellate review of an interlocutory appeal of the trial court's
determination of qualified official immunity is limited to the specific ·issue of '' whether immunity was properly denied. So we must reverse the Court of
1 29~ S.W.3d 883, 886 (Ky. 2009). Appeals and remand this case to. the t~ial court for further proceedings
consistent with this opinion.
I. BACKGROUND. Kamryn Baker, a student at North Lau.rel High School, brought suit
against various school officials, in their individual and official capacities, after
slipping on a patch of black ice in the school's parking lot. The trial court
dismfssed the suit against all but two defendants, Lynn Fields and Bo Rains,
. who are two grounds crew members allegedly responsible for removing snow
and ice from the school's parking lot.
After some discovery took plaGe, Fields and Rains moved for summary
judgment, claiming protection under the qualified official immunity doctrine.2
The trial court denied their motion, concluding that snow and ice removal
duties are ministerial in nature. Fields and Rains filed a motion to alter,
· amend, or vacate the trial court's order denying immunity, which the trial court
denied, as well.
Fields and Rains timely appealed to the Court of Appeals. In their Notice
of ,Appeal, Fields and Rains indicated they were appealing the trial court's
denial of their motion for summary judgment regarding their protection under
the qualified official immunity doctrine. In their Prehearing Statements, Fields
and Rains listed as issues to be raised in the appeal, "Qualified Official
Immunity" and the discretionary nature of the duties of Fields and Rains ..
Finally, both parties only briefed the qualified immunity issue.
2Fields and Rains also clairiied protection under the open and obvious doctrine, which the trial court also rejected. However, no appeal was filed on this basis. 2 The Court of Appeals agreed with the trial court that snow and ice
removal is a ministerial duty not affording qualifi~d immunity protection. But
·the Cm.:irt of Appeals further decided that Fields and Rains were entitl~d to . I summary judgment as a matter of law based on the facts of the case-
specifically, that Fields and Rains did not have a duty to remove the snow and
.ice. Baker then appealed .to this Court, arguing that the Court of Appeals
exceeded the scope of appellate review in deciding the substantive issue of
negligence. We granted discretionary review.
II. ANALYSIS. I , The sole issue we must address is whether the Court of Appeals exceeded '. its scope of appellate review when it addressed the substantive claim of
negligence on an interlocutory appeal o.f a decision about qualified official
immunity. We find that the Court of Appeals did excee~ its ~uthority by.
addressing the claim of negligence. Because determining the proper scope of
appellate review of an interlocutory .appeal is a question_of law, we review ' ~ . the·'
Court of Appeals' decision de novo.
Procedurally, Fields and Rains' appeal to the Court of Appeals
constituted an interlocutory appeal. When the trial court denied Fields and ''',
Rains' summary judgment motion, it only concluded that Fields and Rains
were not entitled qualified official immunity protection. This did not constitute
a final judgment under Kentucky Civil Rule ("CR") 54.01 because the
' 3 substantive claim of negligence still needed to be decided."3 Generally, appeals
may only be made from firn!ljudgments, per the plain language of CR 54.01.
But in rare cases, Kentucky affords a party the 9pportunity to appeal certain
issues in ~ case before fin~ judgment has been issued, termed an interlocutory
appeal. 4
This Court in Prater specified that a ruling on an immunity defense is an
appealable issue by interlocutory appeal.s We explained that the purpose of
allowing an immunity issue to be raised by interlocutory appeal is "to address
substantial claims of right which would be rendered moot by litigation and
tpus are not subject to meanin,gful review in the ordinary course following a
finaljudgment."6 We then "agree[d] ... that orders denying claims of immunity
raise this same concern andlikeWise should be subject to prompt appellate
review."7
But the Court of Appeals in Commonwealth v. Samaritan Alliance
correctly recognized that the scope of interlocutory appellate review should be
limited to the issue of immunity, ~d no substantive issue~.s We agree with the
Court of Appeals' limitation on the scope of review of an interlocutory appeal. A
3 "A final or appealable judgment is a final order adjudicating all the rights of all the parties in an action or proceeding, or ajudgment made fin~ uµder Rule 54.02." CR 54.01. . . 4 See generally, Ratliffv. Fiscal Court of Caldwell County, 617 S.W.2d 36 (Ky. 1981). Various other Kentucky statutes, civil rules, and cases describe other situations providing for interlocutory appeals, but the enumeration of them her~ is unnecessary. s 292 S.W.3d 883, 886 (Ky. 2009). 6 Id. 1 Id.
s 439 S.W.3d 757, 760 (Ky. App. 2014). 4 court can only address the issues presented in the interlocutory appeal itself,
nothing more. Otherwise, interlocutory appeals would be used as vehicles for
bypassing the structured appellate process. Specifically, this means, and we
hold, that an appellate court reviewing an interlocutory appeal of a trial court's
determination of a defendant's immunity from suit is limited to the specific
issue of whether immunity was properly denied, nothing more. We note that
this decisi.on is in line with federal courts' review of interlocutory appeals.9
In this case, the Court of Appeals, in addition to finding the act of snow
and ice remova.I as ministerial, conclusively determined that Fields and Rains r'
did not have a duty to remove the snow and ice and therefore could not be
found negligent. Conclusively determining the claim of negligence in this case
was outsid,e the scope of interlocutory appellate review. Determining whether
the act of snow and ice removal is a discretionary or ministerial function is
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RENDERED: MARCH 22, 2018 TO BE PUBLISHED
~uptttttt dtnurf nf ~~~ ~ [L 2017-SC-0000144~ DG
KAMRYN .BAKER APPELLANT
ON REVIEW FROM COURT OF APPEALS V. CASE NO. 2015-CA-001673 LAUREL CIRCUIT COURT NO. 13-CI-01000
LYNN FIELDS AND BO RAINS APPELLEES
. OPINION OF THE COURT BY CHIEF JUSTICE MINTON
REVERSING AND REMANDING
In Breathitt County Bd. of Educ. v. Prater, this court announced a new rule
of law allowing an interlocutory appeal of a trial court's ruling on an immunity
defense. 1 We ·granted discretionary review of this case to determine if the Court · ...
of Appeals exceeded the scope of appellate review 'in this interlocutory appeal
when it not only agreed with the trial court that the defendants were not
entitled to qualified immunity but went further and conclusively determined
that these defendants were not negligent as a matter of law. We hold that the ' '
scope of appellate review of an interlocutory appeal of the trial court's
determination of qualified official immunity is limited to the specific ·issue of '' whether immunity was properly denied. So we must reverse the Court of
1 29~ S.W.3d 883, 886 (Ky. 2009). Appeals and remand this case to. the t~ial court for further proceedings
consistent with this opinion.
I. BACKGROUND. Kamryn Baker, a student at North Lau.rel High School, brought suit
against various school officials, in their individual and official capacities, after
slipping on a patch of black ice in the school's parking lot. The trial court
dismfssed the suit against all but two defendants, Lynn Fields and Bo Rains,
. who are two grounds crew members allegedly responsible for removing snow
and ice from the school's parking lot.
After some discovery took plaGe, Fields and Rains moved for summary
judgment, claiming protection under the qualified official immunity doctrine.2
The trial court denied their motion, concluding that snow and ice removal
duties are ministerial in nature. Fields and Rains filed a motion to alter,
· amend, or vacate the trial court's order denying immunity, which the trial court
denied, as well.
Fields and Rains timely appealed to the Court of Appeals. In their Notice
of ,Appeal, Fields and Rains indicated they were appealing the trial court's
denial of their motion for summary judgment regarding their protection under
the qualified official immunity doctrine. In their Prehearing Statements, Fields
and Rains listed as issues to be raised in the appeal, "Qualified Official
Immunity" and the discretionary nature of the duties of Fields and Rains ..
Finally, both parties only briefed the qualified immunity issue.
2Fields and Rains also clairiied protection under the open and obvious doctrine, which the trial court also rejected. However, no appeal was filed on this basis. 2 The Court of Appeals agreed with the trial court that snow and ice
removal is a ministerial duty not affording qualifi~d immunity protection. But
·the Cm.:irt of Appeals further decided that Fields and Rains were entitl~d to . I summary judgment as a matter of law based on the facts of the case-
specifically, that Fields and Rains did not have a duty to remove the snow and
.ice. Baker then appealed .to this Court, arguing that the Court of Appeals
exceeded the scope of appellate review in deciding the substantive issue of
negligence. We granted discretionary review.
II. ANALYSIS. I , The sole issue we must address is whether the Court of Appeals exceeded '. its scope of appellate review when it addressed the substantive claim of
negligence on an interlocutory appeal o.f a decision about qualified official
immunity. We find that the Court of Appeals did excee~ its ~uthority by.
addressing the claim of negligence. Because determining the proper scope of
appellate review of an interlocutory .appeal is a question_of law, we review ' ~ . the·'
Court of Appeals' decision de novo.
Procedurally, Fields and Rains' appeal to the Court of Appeals
constituted an interlocutory appeal. When the trial court denied Fields and ''',
Rains' summary judgment motion, it only concluded that Fields and Rains
were not entitled qualified official immunity protection. This did not constitute
a final judgment under Kentucky Civil Rule ("CR") 54.01 because the
' 3 substantive claim of negligence still needed to be decided."3 Generally, appeals
may only be made from firn!ljudgments, per the plain language of CR 54.01.
But in rare cases, Kentucky affords a party the 9pportunity to appeal certain
issues in ~ case before fin~ judgment has been issued, termed an interlocutory
appeal. 4
This Court in Prater specified that a ruling on an immunity defense is an
appealable issue by interlocutory appeal.s We explained that the purpose of
allowing an immunity issue to be raised by interlocutory appeal is "to address
substantial claims of right which would be rendered moot by litigation and
tpus are not subject to meanin,gful review in the ordinary course following a
finaljudgment."6 We then "agree[d] ... that orders denying claims of immunity
raise this same concern andlikeWise should be subject to prompt appellate
review."7
But the Court of Appeals in Commonwealth v. Samaritan Alliance
correctly recognized that the scope of interlocutory appellate review should be
limited to the issue of immunity, ~d no substantive issue~.s We agree with the
Court of Appeals' limitation on the scope of review of an interlocutory appeal. A
3 "A final or appealable judgment is a final order adjudicating all the rights of all the parties in an action or proceeding, or ajudgment made fin~ uµder Rule 54.02." CR 54.01. . . 4 See generally, Ratliffv. Fiscal Court of Caldwell County, 617 S.W.2d 36 (Ky. 1981). Various other Kentucky statutes, civil rules, and cases describe other situations providing for interlocutory appeals, but the enumeration of them her~ is unnecessary. s 292 S.W.3d 883, 886 (Ky. 2009). 6 Id. 1 Id.
s 439 S.W.3d 757, 760 (Ky. App. 2014). 4 court can only address the issues presented in the interlocutory appeal itself,
nothing more. Otherwise, interlocutory appeals would be used as vehicles for
bypassing the structured appellate process. Specifically, this means, and we
hold, that an appellate court reviewing an interlocutory appeal of a trial court's
determination of a defendant's immunity from suit is limited to the specific
issue of whether immunity was properly denied, nothing more. We note that
this decisi.on is in line with federal courts' review of interlocutory appeals.9
In this case, the Court of Appeals, in addition to finding the act of snow
and ice remova.I as ministerial, conclusively determined that Fields and Rains r'
did not have a duty to remove the snow and ice and therefore could not be
found negligent. Conclusively determining the claim of negligence in this case
was outsid,e the scope of interlocutory appellate review. Determining whether
the act of snow and ice removal is a discretionary or ministerial function is
different frorr:i determining whether Fields and Rains had a duty to remove
such snow .and ice. In other words, at this point, the trial court has simply \
determined that the act of snow and ice removal is a ministerial function as a
· matter of law; the factfinder must determine whether Fields and Rains
possessed the requisite duty to remove the snow and ice based on the factual
circumstances of this case, as this, in part, determines the substantive claim of
negligence. Only the issue of qualified official immunity may be decided upon
9 "Interlocutory jurisdiction for denials of immunity is limited to the specific issue of whether immunity was properly depied." Range v. Douglas, 763 F.3d 573, 582 (6th Cir. 2014) (citing Owensby v. City of Cincinnati, 414 F.3d 596, 605 (6th Cir. 2005) (citing Tucker v. City of Richmond, 388 F.3d 216, 224 (6th Cir. 2004))). , · 5 an interlocutory appeal of such issl.1;,e, not additional issues not presented on . ' appeal, such as the substantive claim of negligence. (
III. CONCLUSION.
The Court of Appeals exceeded the scope of appellate review by
deterrr~.ining the substantive issue of negligence on an intedocutory appeal. We f hold that the scope of appellate review of an interlocutory appeal of the trial
court's determination of the application of qual~fied official iriu:~1unity is limited
tq the specific issue of whether the immunity was properly denied and nothing
more. So we reverse the Court of Appeals and remand this case to the trial
court for further proceedings consistent with this opinion.
All sitting. Minton, C.J., Hughes, Keller, VanMeter, Venters; and Wright,
JJ., concur. Cunningham, J., concurs in part and dissents in 'part by separate
opinion.
CUNNINGHAM, J., CONCURRING ,- IN PART AND DISSENTING IN PART: I . . concur that the Court of appeals exceeded its scope of appellate review .. . . . However, I also believe that it made the wrong decision regarding the functions
of the Appellees, Fields and Rains, as ministerial. The clearing of ice and snow .\ .
on the school parking lot requires a multitude of decisions and choices of a
discretionary nature. Therefore, the employees charged with that duty were
clearly fulfilling a discretionary duty. I will refrain from writing further on this
matter since there was no cross-appeal" filed on that issue, ?-nd it is not before
us.
6 COUNSEL FOR APPELLANT:
E. Liddell Vaughn Anderson Vaughn & Allen, PLLC
COUNSEL FOR APPELLEES:
Larry Glenn Bryson Larry G. Bryson, PSC
)