Kimball Glassco Residential Center, Inc. v. Terrance Shanks

Mississippi Supreme Court·Decided September 15, 2009·No. 2009-IA-01617-SCT·Published

Opinion

IN THE SUPREME COURT OF MISSISSIPPI NO. 2009-IA-01617-SCT

KIMBALL GLASSCO RESIDENTIAL CENTER, INC. AND VERA RICHARDSON

v.

TERRANCE SHANKS AS NEXT OF KIN OF LOIS SHANKS

DATE OF JUDGMENT: 09/15/2009 TRIAL JUDGE: HON. ALBERT B. SMITH, III COURT FROM WHICH APPEALED: BOLIVAR COUNTY CIRCUIT COURT ATTORNEYS FOR APPELLANTS: WADE G. MANOR JAMIE LEIGH HEARD

ATTORNEY FOR APPELLEE: ELLIS TURNAGE NATURE OF THE CASE: CIVIL - TORTS - OTHER DISPOSITION: REVERSED AND RENDERED - 06/09/2011 MOTION FOR REHEARING FILED: MANDATE ISSUED:

BEFORE CARLSON, P.J., LAMAR AND CHANDLER, JJ.

CHANDLER, JUSTICE, FOR THE COURT:

¶1. Terrance Shanks filed this personal-injury action on behalf of his mother, Lois Shanks, against Kimball Glassco Residential Center, Inc. and Vera Richardson. Shanks alleged that Lois was injured when Richardson lost control of a van she was driving, in which Lois was a passenger. Richardson filed a motion to dismiss, asserting that she was employed by Delta Community Mental Health Service (DCMHS), not Kimball Glassco, and that the action was barred by the one-year statute of limitations under the Mississippi Tort Claims Act (MTCA). Miss. Code Ann. § 11-46-11(3) (Rev. 2002). Kimball Glassco’s

answer asserted that Kimball Glassco is a state entity entitled to the protections of the MTCA.

¶2. At the hearing on the motion to dismiss, Kimball Glassco and Richardson argued that Shanks’s action was time-barred under the MTCA. The trial court denied the motion to dismiss, holding that the defendants had waived their statute-of-limitations defense by failing to timely raise and pursue the defense while actively participating in the litigation. The trial court held alternatively that the defendants were estopped from asserting the MTCA’s one- year statute of limitations based on a misrepresentation by the Mississippi Tort Claims Board (MTCB) that DCMHS was not a state entity. This Court has granted the defendants’ petition for an interlocutory appeal. Because the defendants did not waive their statute-of-limitations defense, and Kimball Glassco and Richardson were not equitably estopped by the misrepresentation of the MTCB, we reverse and render the decision of the trial court.

FACTS

¶3. Shanks filed the instant lawsuit on April 8, 2008, alleging that, on April 15, 2005, Lois had been a passenger in an automobile owned by Kimball Glassco and driven by Richardson. Shanks claimed that Lois had been injured when Richardson negligently failed to keep a proper lookout and lost control of the automobile. Shanks alleged that Richardson was employed by Kimball Glassco, and that Kimball Glassco was vicariously liable for Richardson’s negligence because the accident had occurred in the course and scope of Richardson’s employment.

¶4. Richardson filed a motion to dismiss, alleging that she was employed by DCMHS and that, because DCMHS is a state entity, she is entitled to the protections of the MTCA.

Richardson admitted that Shanks had given a notice of claim to DCHMS as required by Mississippi Code Section 11-46-11(3). However, she alleged that Shanks’s lawsuit was time- barred by the MTCA’s one-year statute of limitations. See Miss. Code Ann. § 11-46-11(3) (Rev. 2002). In its answer, Kimball Glassco averred that it is a corporation created under the laws of the State of Mississippi by the board of DCMHS. On that basis, Kimball Glassco asserted that it is a state entity covered by the MTCA. Kimball Glassco also averred that Richardson had been employed by DCMHS, not Kimball Glassco.

¶5. Shanks filed a response disputing the applicability of the MTCA and alleging that, in the July 28, 2006, letter, the defendants and the MTCB 1 had made misrepresentations that detrimentally had induced Shanks to file suit outside the MTCA’s limitations period. Therefore, Shanks argued, the defendants were equitably estopped from relying on the MTCA statute of limitations as an affirmative defense. Shanks also argued that the statute of limitations was tolled by the defendants’ fraudulent concealment. The same day, Shanks filed a motion for leave to amend the complaint to add the MTCB as a defendant and add claims for concealment, equitable and judicial estoppel, waiver, detrimental reliance, and deprivation of notice and due process of law.

¶6. In support of the equitable-estoppel argument, Shanks attached to the motion to amend a letter from Bruce Donaldson of the MTCB to Shanks’s counsel, dated July 28, 2006. The letter acknowledged that Shanks had given a notice of claim to DCMHS and the Mississippi

1 The powers and duties of the MTCB are codified at Mississippi Code Section 11-46-

19 (Supp. 2010). These powers and duties include, inter alia, overseeing the Tort Claims Fund, assigning litigated claims to attorneys where necessary, and purchasing insurance policies for the protection of the State. Id.

Department of Mental Health.2 The letter stated that the MTCB had been advised by the Mississippi Department of Mental Health that DCMHS was not a state agency or a department or division of the Mississippi Department of Mental Health. Shanks alleged that the MTCB’s misrepresentation had induced him to file suit outside the one-year statute of limitations applicable to a state entity under the MTCA.

¶7. On June 8, 2009, Kimball Glassco and Richardson filed a notice of hearing of the Motion to Dismiss. The hearing occurred on August 19, 2009. On the day of the hearing, Shanks filed a supplemental response, claiming that the defendants had waived their affirmative defenses under the MTCA by failing to seek a timely hearing. The trial court held that Kimball Glassco and Richardson had waived their MTCA defenses because they had failed timely and reasonably to raise and pursue enforcement of those defenses while actively participating in the litigation. Alternatively, the trial court found that Kimball Glassco and Richardson were equitably estopped from pursuing their MTCA defenses based on the letter from the MTCB that stated DCMHS was not a state entity.

STANDARD OF REVIEW

¶8. This Court applies de novo review to the grant or denial of a motion to dismiss or a motion for summary judgment. Price v. Clark, 21 So. 3d 509, 517 (Miss. 2009).

DISCUSSION

I. WHETHER THE TRIAL COURT ERRED IN DENYING SHANKS’S MOTION TO DISMISS.

A. Waiver

2

Shanks filed the notice of claim on April 4, 2006.

¶9. The MTCA provides the exclusive civil remedy against a governmental entity and its employees. Miss. Code Ann. § 11-46-7(1) (Rev. 2002). All actions brought under the MTCA are subject to a one-year statute of limitations, which is tolled by a timely-filed notice of claim. Miss. Code Ann. § 11-46-11(3) (Rev. 2002). A party instigating a claim under the MTCA must file a notice of claim with the chief executive officer of the governmental entity ninety days before maintaining an action. Miss. Code Ann. § 11-46-11(1) (Rev. 2002).

¶10. A governmental entity includes the State and its political subdivisions. Miss. Code Ann. § 11-46-1(g) (Rev. 2002). The “State” includes “the State of Mississippi and any office, department, agency, division, bureau, commission, board, institution, hospital, college, university, airport authority, or other instrumentality thereof, . . . .” Miss. Code Ann. § 11-46- 1(j) (Rev. 2002). The definition of “political subdivision” encompasses “any county, municipality, school district, community hospital . . . airport authority or other instrumentality thereof . . . .” Miss. Code Ann. § 11-46-1(i) (Rev. 2002). Any claim against an employee of a governmental entity for acts arising out of his or her employment must be brought pursuant to the MTCA. Miss. Code Ann. § 11-46-7 (Rev. 2002). In City of Hattiesburg v. Region XII Commisson on Mental Health and Retardation, 654 So. 2d 516, 517 (Miss. 1995), this Court held that a regional mental-health commission is a state agency.

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