NANCY ANN LAYTON, APPELLANT,
v.
THE FLORIDA DEPARTMENT OF HIGHWAY SAFETY & MOTOR VEHICLES, APPELLEE

Fla. 1st DCA | 1996-07-02
No. 94-285
MINER and KAHN, JJ., concur.
676 So. 2d 1038 Florida District Court of Appeal, First District (1996) Caution
Cited by 17 cases

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Synopsis

Nancy Ann Layton sought damages against the Florida Department of Highway Safety and Motor Vehicles for negligence in maintaining inaccurate driver license records that led to her wrongful arrest. The court held that the state has no common law or statutory duty to individual licensed drivers to maintain accurate motor vehicle records, as such records are maintained for the public generally, and therefore affirmed the dismissal of her complaint.


Holding

The state has no common law or statutory duty to individual licensed drivers to maintain accurate motor vehicle records. The duty to maintain such records runs to the public generally, not to individual citizens, and therefore the DHSMV is not liable in tort for inaccurate records that result in wrongful arrest.


Headnotes

[1] A governmental entity is not liable for tort claims unless there is an underlying common law or statutory duty of care to the plaintiff.

[2] Florida law does not impose a common law or statutory duty on the Department of Highway Safety and Motor Vehicles to maintain accurate motor vehicle records for individua…

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Key Quotes

“for governmental tort liability to exist, there must be an underlying common law or statutory duty of care to the plaintiff with regard to the alleged negligent conduct.”

Establishes the threshold requirement that a common law or statutory duty must exist independent of sovereign immunity considerations for governmental tort liability.

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Facts & Procedural History

On February 13, 1989, Layton was arrested for driving with a suspended license based on DHSMV computer records, though she was actually properly licen…

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Opinion of the Court
VAN NORTWICK, Judge.

VAN NORTWICK, Judge.

Appellant, Nancy Ann Layton, seeks reversal of an order dismissing her amended complaint with prejudice. Layton sought damages against the appellee, the Florida Department of Highway Safety and Motor Vehicles (DHSMV), for its negligence in failing to keep accurate records which led to her wrongful arrest for driving with a suspended driver’s license. Because under Florida law DHSMV has no common law or statutory duty to Layton to maintain accurate records, we affirm.

On the evening of February 13, 1989, Lay-ton was stopped in Alachua County for driving a motor vehicle with an inoperable taillight. A check of DHSMV records indicated to the detaining officer that she was driving with a suspended license. Layton was therefore arrested and was transported to Alachua County Detention Center where she remained for approximately 17 hours prior to her first appearance and release on her own recognizance on the afternoon of February 14, 1989. One week later, the charge against Layton for driving with a suspended license was dropped when it was learned that a computer error at DHSMV had caused her license to be improperly categorized “suspended.” 1 Layton brought a damages action against DHSMV. In her amended complaint, Layton argued that DHSMV “has a duty to keep accurate records” and that this duty is “an operational level of government.” Layton alleges further that DHSMV was negligent and breached the duty owed to her because it knew, or should have known, about any problem with the new data base system prior to her arrest, which was three days after the Department computers were converted to the new data base according to the allegations of the complaint. The trial court, concluding that DHSMV was protected by sovereign immunity, granted DHSMYs motion and dismissed Layton’s amended complaint with prejudice on the authority of Trianon Park Condominium Association v. City of Hialeah, 468 So. 2d 912 (Fla.1985).

Section 768.28(5), Florida Statutes (1989), imposes liability upon governmental entities “for tort claims in the same manner and to the same extent as a private individual under like circumstances” would be subject to an underlying common law duty to exercise reasonable care. In Trianon, the supreme court emphasized that this waiver of sovereign immunity did not create a new tort cause of action but merely eliminated the immunity which had previously been granted to the government. 468 So. 2d at 914. Thus, for governmental tort liability to exist, there must be an underlying common law or statutory duty of care to the plaintiff with regard to the alleged negligent conduct. In other words, the question of a duty of care is a question separate from the question of whether the governmental activity at issue is protected by operation of sovereign immunity. The latter question is a matter of determining whether the government was performing a discretionary versus an operational function. See, Commercial Carrier Corp. v. Indian River County, 371 So. 2d 1010 (Fla.1979); Kaisner v. Kolb, 543 So. 2d 732 (Fla.1989).

Our threshold question then is whether under Florida law DHSMV has a duty to Layton to maintain accurate records. No Florida case or statute has been cited which imposes on the state a duty to a licensed driver to maintain accurate records. In fact, Florida courts have consistently declined to hold governmental entities liable for a failure to maintain and provide accurate information in public records. For example, in Friedberg v. Town of Longboat Key, 504 So. 2d 52 (Fla. 2d DCA 1987), the Second District affirmed the dismissal of a claim against the municipality for the alleged negligent misrepresentation by the city’s building inspector regarding the issuance of a certificate of occupancy by concluding that “[n]o sufficient basis has been alleged in this case for a duty of the municipality to the third party plaintiff for the breach of which a private cause of action would lie.” Id. at 53. In finding no legal duty, the Friedberg court applied the rationale adopted by the supreme court in Tria-non by stating:

Just as building code compliance inspections are for the protection of the public as a whole and not individual citizens, see Trianon, 468 So. 2d at 922-23, so also, we conclude, was any responsibility of the municipality here to maintain and provide information from records as to the issuance of certificates of occupancy following inspections for building code compliance. And just as the Florida Supreme Court in Trianon found nothing in chapter 553 (“Building Construction Standards”) evincing an intent to give private citizens a right of recovery for negligent inspections, 468 So. 2d at 922, so also do we find nothing in chapter 119 (“Public Records”) evincing an intent to give private citizens a right of recovery for negligently maintaining and providing information from public records.

We agree with the argument of appellee that if there were such a duty by government to individual citizens under the facts of this case, the door would be opened to potentially multitudinous litigation with respect to the accuracy of information provided by governmental entities concerning a wide range of public records. The potential multiplicity of suits from the judicial establishment of a municipal duty to private citizens was a factor in Trianon weighing against the establishment of such a duty. 468 So. 2d at 922. If there is to be such a responsibility, we conclude that it is the province of the legislature, not the courts, to create it. See Trianon, 468 So. 2d at 922-23.

Id. See also, Chester v. Metropolitan Dade County, 493 So. 2d 1119 (Fla. 3d DCA 1986) (the failure to fill out an accident report cannot give rise to tort liability since any duty to execute an accident report exists for the benefit of the public as a whole, and not for the benefit of the accident victims); City of Tarpon Springs v. Garrigan, 510 So. 2d 1198 (Fla. 2d DCA 1987)(a city inspector’s provision of incorrect information is not a basis for liability when the information is given as part of a discretionary decision).2 We conclude that the maintenance of DHSMV records is a function undertaken by the government for the public generally and that the duty to perform this function accurately runs to the public and not to individual licensed drivers. Accordingly, we hold that the state has no common law or statutory duty to Layton to accurately maintain motor vehicle records; Trianon and Friedberg, supra. The order of dismissal is AFFIRMED.

MINER and KAHN, JJ., concur. . Apparently, at the time Layton was stopped in Alachua County, DHSMV was in the process of converting or had finished converting from one computer data base to another, and a defective conversion program caused the error, which was not promptly detected.

. The Florida cases, in refusing to impose a duty of accuracy on a government entity maintaining public records which would run to users of the public records, are consistent with the general rule that a private information service provider is not liable for inaccurate data absent a "special relationship” with the injured party. See, Joseph R. Tiano, Jr., Comment, The Liability of Computerized Information Providers: A Look Back and a Proposed Analysis for the Future, 56 U.Pitt. L.Rev. 655, 672-675 (1995). Nevertheless, in addition to remedies under the Fair Credit Reporting Act, 15 U.S.C. §§ 1681-1681t, victims of a false credit report can bring a common law action for defamation. See, Northside Fire Extinguisher Service v. Wilson Davis Ford, Inc., 426 So. 2d 55 (Fla. 2d DCA 1983); Levy v. Southeast Bank, N.A., 490 So. 2d 1333 (Fla. 3d DCA 1986); Matthews v. Deland State Bank, 334 So. 2d 164 (Fla. 1st DCA 1976); see generally, Virginia G. Maurer, Common Law Defamation and the Fair Credit Reporting Act, 72 Geo. L.J. 95, 99-111 (1983).


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Citator

Cited By

  • Holodak v. Lockwood, 726 So. 2d 815 (Fla. 4th DCA 1999)
    …City of Hialeah, 468 So. 2d 912 (Fla.1985), Seguine v. City of Miami, 627 So. 2d 14 (Fla. 3d DCA 1993), Friedberg v. Town of Longboat Key, 504 So. 2d 52 (Fla. 2d DCA 1987), and Layton v. Florida [*816] Department of Highway Safety & Motor Vehicles, 676 So. 2d 1038 (Fla. 1st DCA 1996). In Trianon, the Florida Supreme Court held that in order to hold a governmental entity liable for its negligence, a plaintiff must allege and prove two elements: (1) That the governmental entity owed the specific claimant (as…
  • Elminer Harris v. Kearney, 786 So. 2d 1222 (Fla. 4th DCA 2001)
    …supervises her agents in enforcing the public assistance fraud laws does not carry with them a corresponding duty of care to the individual citizen who may be affected by such actions. See Layton v. Florida Dep’t of Highway Safety & Motor Vehicles, 676 So. 2d 1038, 1040-1 (Fla. 1st DCA 1996) (no common law or statutory duty to maintain accurate records of compliance with the laws regulating driving motor vehicles). A case that is factually similar to the instant case where no duty was found is Office of the…
  • Mosby v. Harrell, 909 So. 2d 323 (Fla. 1st DCA 2005)
    …DCA 1987), review denied, 525 So. 2d 877 (Fla.1988). Although I believe Hines was incorrectly decided, I am required to recognize this controlling precedent. I believe the decision in Layton v. Fla. Department of Highway Safety and Motor Vehicles, 676 So. 2d 1038 (Fla. 1st DCA 1996), expresses the better view when determining whether a state agency owes a duty of care to an individual. In Layton, this court correctly held that the state agency owed no legal duty to a person arrested based on the agency’s err…
    1 / 2

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