LATOYA SUMMEROUR v. CITY OF MONROE

CourtCourt of Appeals of Georgia
DecidedMarch 14, 2022
DocketA21A1561
StatusPublished

This text of LATOYA SUMMEROUR v. CITY OF MONROE (LATOYA SUMMEROUR v. CITY OF MONROE) is published on Counsel Stack Legal Research, covering Court of Appeals of Georgia primary law. Counsel Stack provides free access to over 12 million legal documents including statutes, case law, regulations, and constitutions.

Bluebook
LATOYA SUMMEROUR v. CITY OF MONROE, (Ga. Ct. App. 2022).

Opinion

FIRST DIVISION BARNES, P. J., GOBEIL and MARKLE, JJ.

NOTICE: Motions for reconsideration must be physically received in our clerk’s office within ten days of the date of decision to be deemed timely filed. https://www.gaappeals.us/rules

DEADLINES ARE NO LONGER TOLLED IN THIS COURT. ALL FILINGS MUST BE SUBMITTED WITHIN THE TIMES SET BY OUR COURT RULES.

March 14, 2022

In the Court of Appeals of Georgia A21A1561. SUMMEROUR et al. v. CITY OF MONROE et al.

BARNES, Presiding Judge.

Mahlon Summerour, Jr. died shortly after being shot by a city police officer.

A family member of the deceased brought this wrongful death action against the city

and the officer. The trial court granted the defendants judgment on the pleadings on

immunity grounds. For reasons explained below, that judgment is affirmed in part and

vacated in part, and the case is remanded for proceedings not inconsistent with this

opinion.

As the sole surviving child of the deceased, and as the personal representative

of the estate, LaToya Summerour filed a complaint naming as defendants: (i) Sam

Harrison, as the police officer who fired the shot; and (ii) the City of Monroe, as

Harrison’s employer at the time of the shooting (collectively, the Defendants). The complaint sought damages on claims of battery and negligence. The factual

allegations of the complaint included the following:

At approximately 8:50 a.m. on October 19, 2018, Defendant Harrison and another City of Monroe police officer responded to a call about an oddly dressed “black or Hispanic” man walking down a street, holding what the caller believed to be either a BB gun or a shotgun in an unusual manner. Harrison and the other officer encountered the man, who turned out to be Mahlon Summerour, Jr., on foot near [a particular intersection] in the City of Monroe at approximately 9:00 a.m. He was wearing an orange shower curtain on his head and waiving a toy gun in the air. Harrison had dealt with Summerour on several occasions in the past and knew that he was mentally ill. Harrison approached Summerour and asked to see the gun, which was pointed straight up in the air and not toward anyone. Summerour said he was “making a movie,” but that was clearly not the case. Harrison reached for the gun, but Summerour pulled it out of Harrison’s reach and started to turn as if he were going to walk away. As Summerour was turning away from the officers, Harrison fired a single shot from his department-issued pistol which struck Summerour in the chest. Obviously bewildered, Summerour fell to the pavement, telling Harrison that the gun was not real as he writhed in pain and agony. In his subsequent statement to the GBI, Harrison repeatedly insisted that he thought the gun was real;1 however, it should have been

1 (Footnote in complaint.) For some reason, the GBI did not follow the usual investigative protocol of including any photographs of the alleged gun in the case file provided to the District Attorney and ultimately released under the Open Records Act, which suggests that the investigators did not want to cast any doubt on a fellow

2 obvious to any police officer familiar with firearms that Summerour was holding a crude homemade copy of a vintage Thompson submachine gun which would have been too heavy for Summerour to wave in the air so effortlessly had it been an actual “Tommy” gun.

(Paragraph numbers omitted.) The complaint further alleged that, even if the gun had

been real, it was not being pointed at anyone nor otherwise being used in a

threatening manner; that Harrison gave no warning before using deadly force; that the

other officer at the scene neither fired his weapon, nor gave any command; and that

after Summerour was transported to a hospital, he died about an hour of being shot.

Regarding immunity, the complaint alleged that Harrison was not entitled to

official immunity to the extent that he violated ministerial duties imposed by policy

and training or to the extent that he acted with actual malice. The complaint alleged

that the City was not entitled to sovereign immunity to the extent of its liability

insurance coverage.

The Defendants responded by filing contemporaneously an answer and two

motions. In their answer, they admitted that Harrison was an employee of the City’s

officer’s claim that “it looked super real.” There is also no indication from the District Attorney’s file memorandum that she ever saw or asked to see a photograph of the “gun” before closing the case without further action.

3 police department acting within the scope of his employment at all relevant times, but

denied liability. In their motion for judgment on the pleadings, the City’s claim of

immunity was based on language within an insurance policy; Harrison’s claim of

immunity was based on a recording of aspects of the police encounter as captured by

the second officer’s body camera. In their other motion, the Defendants requested that

the court stay discovery until it ruled on their motion for judgment on the pleadings.

After a hearing, the trial court granted the Defendants’ motion for judgment on

the pleadings. In its order, the trial court expressly concluded that the insurance

policy had not waived the City’s sovereign immunity, and that the recording

established that the officer was entitled to official immunity. LaToya Summerour

(hereinafter “Summerour”) challenges those rulings as follows.

1. Sovereign immunity.

Under Georgia law, municipal corporations are protected by sovereign immunity pursuant [to the Georgia Constitution’s] Article IX, Section II, Paragraph IX, unless that immunity is waived by the General Assembly.[2] With particular regard to municipal corporations, our General Assembly has enacted OCGA § 36-33-1 which reiterates that “it is the public policy of the State of Georgia that there is no waiver of the

2 See Ga. Const. of 1983, Art. IX, Sec. II, Para. IX (“The General Assembly may waive the immunity of counties, municipalities, and school districts by law.”).

4 sovereign immunity of municipal corporations of the state and such municipal corporations shall be immune from liability from damages.” OCGA § 36-33-1 (a).

(Citations omitted.) City of Atlanta v. Mitcham, 296 Ga. 576, 577 (1) (769 SE2d 320)

(2015). However, OCGA § 36-33-1 (a) provides an exception relating to insurance

coverage:

A municipal corporation shall not waive its immunity by the purchase of liability insurance, . . . unless the policy of insurance issued covers an occurrence for which the defense of sovereign immunity is available, and then only to the extent of the limits of such insurance policy.

OCGA § 36-33-1 (a). See CSX Transp. v. City of Garden City, 277 Ga. 248, 249 (1)

(588 SE2d 688) (2003) (“In the context of tort liability, the legislature has authorized

a narrow waiver of a municipality’s sovereign immunity through the enactment of

OCGA § 36-33-1 (a)[.]”).

In the motion seeking judgment on the pleadings, the City argued that the

policy at issue, which was attached to the answer, did not provide coverage for

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