Sherman v. State

51 Ill. Ct. Cl. 230
CourtCourt of Claims of Illinois
DecidedDecember 18, 1998
DocketNo. 93-CC-2240
StatusPublished

This text of 51 Ill. Ct. Cl. 230 (Sherman v. State) is published on Counsel Stack Legal Research, covering Court of Claims of Illinois primary law. Counsel Stack provides free access to over 12 million legal documents including statutes, case law, regulations, and constitutions.

Bluebook
Sherman v. State, 51 Ill. Ct. Cl. 230 (Ill. Super. Ct. 1998).

Opinion

OPINION

Sommer, J.

This is a claim for personal injuries allegedly caused by a cable strung across a portion of a bicycle path at the Rock Island Trail State Park. The Claimant specifically pleaded ordinaiy negligence, and the Respondent has filed a motion to dismiss grounded on the Recreational Use of Land and Water Areas Act. (745 ILCS 65/1 et seq.) That Act provides in pertinent parts:

“§3. Except as specifically recognized by or provided in Section 6 of this Act, an owner of land owes no duty of care to keep the premises safe for entry or use by any person for recreational or conservation purposes, or to give any warning of a natural or artificial dangerous condition, use, structure, or activity on such premises to persons entering for such purposes.”
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“§6. Nothing in this Act limits in any way liability which otherwise exists: (a) For willful and wanton failure to guard or warn against a dangerous condition, use, structure or activity.”

Thus, the Respondents position is that, absent allegations of willful and wanton conduct, this claim must be dismissed. The Claimant has replied to the motion by citing several cases which he contends bar the Respondent from invoking the immunity of the Act in this instance; in the alternative, the Claimant has asked leave to amend his claim to plead allegations of willful and wanton conduct.

The Claimants argument against the applicability of the Act is that the premises in question were and are “used for more than casual recreational purposes.” The seminal case cited in support of that argument is Miller v. United States (7th Cir. 1979), 597 F.2d 614. Miller found that the Recreational Use of Land and Water Areas Act (745 ILCS 65/1 et seq.) had to be read in pari materia with a different State statute, the Campground Licensing and Recreational Area Act. (210 ILCS 95/1 et seq.) It held that the Licensing Act applied to areas that are maintained “primarily” for recreational purposes and that the Recreational Use Act was only available for lands which are used on a “casual basis” for recreational purposes. (597 F.2d at 616.) The Miller Court did not explain in its opinion why it believed the Licensing Act operated to the exclusion of the Recreational Use Act, and it was left to the 7th Circuit Court in a subsequent case to construct an explanation:

■ “The government asks us to reconsider our holding in Miller that landowners subject to the Licensing Act may no longer claim immunity from tort liability under the [Recreational] Use Act 4 4 *. The government points out 4 4 4 that the two acts are not literally inconsistent, which is true but ignores their purposes. The [Recreational] Use Act, passed in 1965, was designed to encourage landowners to open up their property for free public recreation. By 1971, when the Licensing Act was passed, the state had become concerned about safety and health at recreational areas, whether or not operated on a user-fee basis, that contained facilities for overnight stays. The Licensing Act brought these areas under a detailed scheme of licensing requirements and other regulatory controls 4 4 *. It would be odd if, having brought under the strict safety and health requirements of the Licensing Act a subset of the landowners who had been encouraged by the earlier [Recreational] Use Act to open their land to public recreation, the state wanted these landowners to continue to enjoy the almost complete immunity from tort liability conferred by that act. . . . Since the Licensing Act contains no provisions relating to tort liability at all, it may reflect a preference for a regulatory over a common law system for preventing accidents in recreational areas. But we imagine that its overriding concern is safety, and so conceive the Act would be undermined if landowners subject to it continued to enjoy the tort immunity of the [Recreational] Use Act with its very different purpose of encouraging the opening of land for public recreation free of charge but at the price of some danger to tire public. Also, the Licensing Act bespeaks concern for recreational areas where the landowner 4 4 4 has taken steps to encourage recreational uses by providing overnight facilities; and the fact that he has done so suggests he has the resources to protect users from safety hazards.” Davis v. United States (7th Cir. 1983), 716 F.2d 418, 427-28. (Emphasis added.)

Illinois appellate courts subsequently adopted the Miller doctrine without scrutinizing its underpinnings. (See, e.g., Logan v. Old Enterprise Farms, Ltd. (5th Dist. 1989), 188 Ill. App. 3d 920, 544 N.E.2d 998 [later reversed by the Illinois Supreme Court on other grounds and issues at 139 Ill. 2d 229, 564 N.E.2d 778 (1990)], and Phillips v. Community Center Foundation (1st Dist. 1992), 238 Ill. App. 3d 505, 606 N.E.2d 447.) The issue raised in the instant case is whether the Miller doctrine is applicable to the Rock Island Trail State Park so as to bar the Respondent from claiming the immunity of the Recreational Use Act.

It must initially be emphasized that the Miller doctrine only relates to facilities that fall under the scope of the Licensing Act. Section 4 of that Act specifically limits its application to “recreational areas that are campgrounds,” and section 2 of the Act contains detailed definitions of operative terms such as “recreational area,” “recreational activities,” and “campground” which are critical to a determination of the threshold question: Is the Rock Island Trail State Park a “recreational area that is a campground?” Because neither party has addressed the point, the Court will presume for purposes of this opinion, without prejudice to the Respondent, that the park is in fact subject to the Licensing Act. However, were the Rock Island Trail State Park not actually governed by the Licensing Act, then the Miller doctrine would be irrelevant, and the Recreational Use Acts immunity would definitely come into play.

Hence, we move forward to directly address the viability of the Miller doctrine. Section 25 of the Licensing Act sets forth exceptions to application of the Act, and that section was recently amended by the General Assembly to include the following new text:

“Nothing in this Act shall be construed to impose any additional duty of care on an owner of land who either directly or indirectly invites or permits without charge, as defined in the Recreational Use of Land and Water Areas Act, any person to use such property for recreational purposes.” See P.A. 85— 959, section 4 (Laws of Illinois, 85th General Assembly, 1987 Session, Volume III, page 4287).

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Related

Richard Paul Miller v. The United States of America
597 F.2d 614 (Seventh Circuit, 1979)
Zeve v. Levy
226 N.E.2d 620 (Illinois Supreme Court, 1967)
Phillips v. Community Center Foundation & the Children's Farm
606 N.E.2d 447 (Appellate Court of Illinois, 1992)
Freeding-Skokie Roll-Off Service, Inc. v. Hamilton
483 N.E.2d 524 (Illinois Supreme Court, 1985)
Logan v. Old Enterprise Farms, Ltd.
564 N.E.2d 778 (Illinois Supreme Court, 1990)
Zavala v. Powermatic, Inc.
658 N.E.2d 371 (Illinois Supreme Court, 1995)
Van Holt v. NAT. RR PASSENGER CORP.
669 N.E.2d 1288 (Appellate Court of Illinois, 1996)
Ziarko v. Soo Line Railroad
641 N.E.2d 402 (Illinois Supreme Court, 1994)
People v. Pugh
623 N.E.2d 255 (Illinois Supreme Court, 1993)
Anderson v. Chesapeake & Ohio Railway Co.
498 N.E.2d 586 (Appellate Court of Illinois, 1986)
Logan v. Old Enterprise Farms, Ltd.
544 N.E.2d 998 (Appellate Court of Illinois, 1989)
Rucker v. Norfolk & Western Railway Co.
396 N.E.2d 534 (Illinois Supreme Court, 1979)
Hall v. United States
647 F. Supp. 53 (C.D. Illinois, 1986)
Merchants National Bank v. Elgin, Joliet & Eastern Railway Co.
273 N.E.2d 809 (Illinois Supreme Court, 1971)

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Bluebook (online)
51 Ill. Ct. Cl. 230, Counsel Stack Legal Research, https://law.counselstack.com/opinion/sherman-v-state-ilclaimsct-1998.