Christine Lee v. Metro Parks ( 2014 )

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IN THE COURT OF APPEALS OF THE STATE OF WASHINGTO
DIVISION II
CHRISTINE M. LEE, No. 44705 -3 - II
Appellant,
v.
PUBLISHED OPINION
METRO PARKS TACOMA, a municipal
agency and GREATER METRO PARKS
FOUNDATION, a Washington nonprofit
corporation,
Respondents.
MAxA, J. — Christine Lee appeals the trial court' s grant of summary judgment
dismissing her claims against Metro Parks Tacoma based on her failure to wait 60 days after
presenting a tort claim to Metro Parks before filing suit, in violation of RCW 4. 96. 020( 4). Lee
argues that she substantially complied with the 60 -day waiting period. We hold that the
legislature has now directed that strict compliance with the 60 -day waiting period is not required
and that substantial compliance will be sufficient. But we disagree that Lee substantially
complied with RCW 4. 96. 020( 4) under the facts of this case, and therefore affirm the trial court' s
grant of summary judgment
FACTS
On June 28, 2009, Lee was injured at Owen Beach at Point Defiance Park in Tacoma,
which is operated by Metro Parks. On June 5, 2012, Lee signed a claim for damages form
No. 44705 -3 -II
stating that she was claiming damages against Metro Parks as a result of her injury. Metro Parks
received the claim form on June 8.
On June 20, Lee filed a complaint for damages against Greater Metro Parks Foundation,
alleging that the Foundation owned the Owen Beach property. The Foundation is not a
governmental entity. On June 22, only 14 days after Metro Parks received the tort claim, Lee
filed a first amended complaint for damages. The amended complaint added Metro Parks as a
defendant, specifically alleging that Metro Parks was a municipal agency.
Metro Parks and the Foundation subsequently moved for summary judgment on the
ground that Lee did not wait 60 days after submitting her tort claim before filing suit against
Metro Parks, in violation of RCW 4. 96. 020. The trial court granted summary judgment in favor
of Metro Parks and dismissed Lee' s lawsuit. 1 Lee appeals.
ANALYSIS
A. STANDARD OF REVIEW
We review a trial court' s order granting summary judgment de novo. Frizzell v. Murray,
179 Wash. 2d 301, 306, 313 P.3d 1171 ( 2013). Summary judgment is appropriate where, viewing
the evidence in the light most favorable to the nonmoving party, there is no genuine issue of
material fact and the moving party is entitled to judgment as a matter of law. CR 56( c);
Loeffelholz v. Univ. of Wash., 175 Wash. 2d 264, 271, 285 P.3d 854 ( 2012). The moving party
bears the initial burden of showing that there is no genuine issue of material fact. Young v. Key
Pharms., Inc., 112 Wash. 2d 216, 225, 770 P.2d 182 ( 1989). A moving defendant can meet this
1
The Foundation also prevailed on summary judgment. On appeal, Lee has not challenged the
trial court' s summary judgment dismissal of the Foundation.
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burden by showing that there is an absence of evidence to support the plaintiffs case. Howell v.
Spokane & Inland Empire Blood Bank, 117 Wash. 2d 619, 624, 818 P.2d 1056 ( 1991). The burden
then shifts to the plaintiff to come forward with sufficient evidence to establish the existence of
each essential element of the plaintiffs case. Howell, 117 Wash. 2d at 625. If the plaintiff does not
submit such evidence, summary judgment is appropriate. Howell, 117 Wash. 2d at 625.
The trial court' s summary judgment order was based on its application of RCW 4. 96. 020.
Statutory interpretation is a question of law that we review de novo. Jametsky v. Olsen, 179
Wash. 2d 756, 761, 317 P.3d 1003 ( 2014).
The goal of statutory interpretation is to determine and give effect to the legislature' s
intent. Jametsky, 179 Wash. 2d at 762. To determine legislative intent, we first look to the plain
language of the statute. Jametsky, 179 Wash. 2d at 762. We consider the meaning of the provision
in question, the context of the statute in which the provision is found, and related statutes. Lowy
v. PeaceHealth, 174 Wash. 2d 769, 779, 280 P.3d 1078 ( 2012). Undefined terms are given their
plain and ordinary meaning, which can be derived from a dictionary. Estate ofHaselwood v.
Bremerton Ice Arena, Inc., 166 Wash. 2d 489, 498, 210 P.3d 308 ( 2009). If a statute is
unambiguous, we must apply the statute' s plain meaning as an expression of legislative intent
without considering other sources of such intent. Jametsky, 179 Wash. 2d at 762.
If the plain language of the statute is susceptible to more than one reasonable
interpretation, the statute is ambiguous. Jametsky, 179 Wash. 2d at 762. We resolve ambiguity by
considering other indications of legislative intent, including principles of statutory construction,
legislative history, and relevant case law. Jametsky, 179 Wash. 2d at 762.
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B. SUBSTANTIAL COMPLIANCE WITH RCW 4. 96. 020( 4)
RCW 4. 96. 010( 1) states that a party must file a claim for damages with a local
governmental entity before commencing a tort action against that entity. RCW 4. 96. 020 outlines
the process a tort claimant must follow in filing a claim for damages. The claimant must: ( 1)
prepare a tort claim form containing certain minimum information outlined in RCW
4. 96. 020( 3)( a), ( 2) have the claim form signed in one of the ways specified in RCW
4. 96. 020( 3)( b), ( 3) present the claim by delivering or mailing the claim form to the person the
governmental entity designates to receive claims as provided in RCW 4. 96. 020( 2), and ( 4) wait
until 60 days have elapsed after the claim was presented before commencing an action against
the governmental entity as provided in RCW 4. 96. 020( 4).
Lee did not comply with the 60 -day waiting period required under RCW 4. 96. 020( 4).
Instead, she filed her amended complaint against Metro Parks only 14 days after Metro Parks had
received her claim for damages. Lee argues that her noncompliance with RCW 4. 96. 020( 4) does
not bar her claim if she substantially complied with the statutory requirement. We agree, but
hold that Lee did not present evidence sufficient to create a question of fact on substantial
compliance.
1. Substantial Compliance Applies to RCW 4. 96. 020( 4)
In Medina v. Public Utility District No. 1 ofBenton County, our Supreme Court held that
the substantial compliance doctrine was inapplicable to the 60 -day waiting period in RCW
4. 96. 020( 4). 147 Wash. 2d 303, 317 -18, 53 P.3d 993 ( 2002). The court stated that a tort claimant
making a claim against a governmental entity must strictly comply with the RCW 4. 96. 020( 4)
waiting period, and therefore substantial compliance is immaterial. Medina, 147 Wash. 2d at 317.
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W] here time requirements are concerned, this court has held that `failure to comply with a
statutorily set time limitation cannot be considered substantial compliance' with the statute."
Medina, 147 Wash. 2d at 317 ( quoting City ofSeattle v. Pub. Employment Relations Comm 'n, 116
Wash. 2d 923, 929, 809 P.2d 1377 ( 1991)).
However, in 2009 the legislature enacted a new subsection to RCW 4. 96. 020, which
states:
With respect to the content of claims under this section and all procedural
requirements in this section, this section must be liberally construed so that
substantial compliance will be deemed satisfactory.
RCW 4. 96. 020( 5) ( emphasis added). Therefore, the substantial compliance doctrine now applies
to the " procedural requirements" of RCW 4. 96. 020. The question here is whether the 60 -day
waiting period is a " procedural requirement."
Our Supreme Court explained the meaning of the term " procedural" in Putman v.
Wenatchee Valley Medical Center, P.S., 166 Wash. 2d 974, 984- 85, 216 P.3d 374 ( 2009) and
Waples v. Yi, 169 Wash. 2d 152, 234 P.3d 187 ( 2010). Both cases support a finding that a statutory
waiting period before filing suit is procedural.
Putman involved a statute requiring a medical malpractice claimant to file a certificate of
merit from a medical expert before filing a lawsuit. 166 Wash. 2d at 984. The court analyzed
whether this statutory requirement was a " procedural" matter or a " substantive" matter. Putman,
166 Wash. 2d at 984. The court stated: " Substantive law `creates, defines, and regulates primary
rights,' while procedures involve the ` operations of the courts by which substantive law, rights,
and remedies are effectuated.' " Putman, 166 Wash. 2d at 984 ( quoting City of Fircrest v. Jensen,
158 Wash. 2d 384, 394, 143 P.3d 776 ( 2006)). The court held that a statute requiring a medical
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No. 44705 -3 - II
malpractice claimant to file a certificate of merit before filing a lawsuit was procedural " because
it addresses how to file a claim to enforce a right provided by law." Putman, 166 Wash. 2d at 984.
In other words, the statute did not address the parties' primary rights, only the procedures to
effectuate those rights. Putman, 166 Wash. 2d at 985.
In Waples, our Supreme Court addressed the issue presented in our case — the meaning of
procedural" in the context of a statutory waiting period for filing suit. Waples involved former
RCW 7. 70. 100( 1), which required medical malpractice claimants to provide health care
providers with notice of the intention to file a lawsuit at least 90 days before filing suit. Waples,
169 Wash. 2d at 155. The court relied on Putman in holding that this statute involved procedural
law rather than substantive law. Waples, 169 Wash. 2d at 161. As in Putman, the court stated that
the statutory requirement was procedural because it addressed how to file a claim and dealt only
with the procedures to effectuate primary rights. Waples, 169 Wash. 2d at 161.
As with the statutory 90 -day notice requirement addressed in Waples, RCW 4. 96.020( 4)
requires that tort claimants against governmental entities wait 60 days after filing a tort claim
before filing suit. Under Waples, this constitutes a procedural requirement. 169 Wash. 2d at 161.
RCW 4.96. 020( 5) states that substantial compliance will be deemed satisfactory for all
procedural requirements" of RCW 4. 96. 020. Because under Waples the 60 -day waiting period
is a procedural requirement, we hold that strict compliance is not required and a claim against a
governmental entity is not barred if a tort claimant substantially complies with that waiting
period.
No. 44705 -3 - II
2. Standard for Substantial Compliance
RCW 4. 96. 020( 5) states that procedural requirements like the 60 -day waiting
period must be liberally construed so that substantial compliance will be deemed
satisfactory. We must apply this liberal construction directive and substantial compliance
standard " in a manner that promotes the purpose of the filing
claim - statutes." Medina,
147 Wash. 2d at 310. Substantial compliance of a statutory requirement means that the
statute has been followed sufficiently so as to carry out the intent for which the statute
was adopted." Banner Realty, Inc. v. Dep' t ofRevenue, 48 Wash. App. 274, 278, 738 P.2d
279 ( 1987) ( quoting In re Habeas Corpus ofSantore, 28 Wash. App. 319, 327, 623 P.2d
702 ( 1981)).
The purpose of claim filing statutes is to " allow government entities time to
investigate, evaluate, and settle claims." Medina, 147 Wash. 2d at 310. Allowing time for
investigation and evaluation also provides an opportunity for governmental entities to
assess the potential costs and benefits of litigation. See Williams v. State, 76 Wash. App.
237, 248, 885 P.2d 845 ( 1994). Accordingly, we analyze whether Lee substantially
complied with the 60 -day waiting period under RCW 4. 96. 020( 4) by considering the
status of Metro Parks' claim investigation, claim evaluation, and pursuit of settlement
negotiations.
3. No Evidence of Substantial Compliance
Here, Lee has come forward with no evidence showing that the purpose of RCW
4. 96. 020( 4) had been satisfied when she filed suit only 14 days after Metro Parks received her
tort claim. Lee submitted no evidence that Metro Parks had completed its investigation and
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No. 44705 -3 - II
evaluation, decided whether to accept or reject her claim, or engaged in settlement negotiations.
In fact, Lee submitted no evidence that Metro Parks had taken any action at all on her claim at
the time she filed her amended complaint.
Because Metro Parks filed a summary judgment motion based on application of RCW
4. 96. 020( 4), the burden shifted to Lee to come forward with evidence showing that she had
substantially complied with the 60 -day waiting period in that statute. Howell, 117 Wash. 2d at 625.
Lee failed to produce any such evidence. As a result, Metro Parks was entitled to summary
judgment on this issue.
We affirm the trial court' s summary judgment dismissal of Lee' s lawsuit.
I concur:
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MELNICK, J. — I concur with the result the majority reaches; however, I write separately
to respectfully state my disagreement with the majority' s reasoning. I would hold that the
legislatively created 60 -day waiting period of RCW 4. 96. 020 is a condition precedent to the filing
of a lawsuit against Metro Parks, a governmental entity, with which there must be strict
compliance.
ANALYSIS
STRICT COMPLIANCE WITH STATUTORY CONDITIONS PRECEDENT REQUIRED
Article 2, section 26 of the Washington Constitution allows the legislature to waive
sovereign immunity and states, " The legislature shall direct by law, in what manner, and in what
courts, suits may be brought against the state." In 1961, the legislature first waived sovereign
immunity. Former RCW 4. 92. 090 ( 1961). However, in so doing, it took care to safeguard against
unnecessary lawsuits by enacting various requirements an individual must comply with before
filing a lawsuit against the State or a governmental entity. One such safeguard is the tort claim
statutes. Ch. 4. 92 RCW; Ch. 4. 96 RCW. These statutes are rationally related to the government' s
interest in encouraging negotiation and settlement of claims against the government. Medina v.
Pub. Util. Dist. No. 1 of Benton County, 147 Wash. 2d 303, 317, 53 P.3d 993 ( 2002). This safeguard
to the filing of a lawsuit is widespread and not unique to Washington.2
2
McNeil v. United States, 508 U.S. 106, 113 S. Ct. 1980, 124 L. Ed. 2d 21 ( 1993); 28 U.S. C. §
2675; Madsen Idaho Dept. of Health and Welfare, 116 Idaho 758, 779 P.2d 433 ( 1989); Friel v.
v.
Boise City Hous. Auth., 126 Idaho 484, 887 P.2d 29 ( 1994); Farber v. State, 102 Idaho 398, 630
P.2d 685 ( 1981); Campbell v. City of Lincoln, 195 Neb. 703, 240 N.W.2d 339 ( 1976); California
v. Superior Court ofKings County, 32 Cal. 4th 1234, 90 P.3d 116, 13 Cal. Rptr. 3d 534 (2004)
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The prerequisites to filing tort claim lawsuits against the state and governmental entities in
Washington are found in chapter 4. 92 RCW and chapter 4. 96 RCW. One prerequisite found in
RCW 4. 96. 020( 4), states, " No action subject to the claim filing requirements of this section shall
be commenced against any local governmental entity ... for damages arising out of tortious
conduct until sixty calendar days have elapsed after the claim has first been presented to the agent
of the governing body thereof."
The requirement that a party must wait 60 calendar days after first filing a notice of claim
with a governmental entity before filing a tort action for damages against the governmental entity
is a condition precedent, or a legislatively imposed requirement, to filing a lawsuit against a
governmental entity. Our Supreme Court has held statutory waiting periods are valid
preconditions to bringing a lawsuit against a state entity. McDevitt v. Harbor View Med Center,
179 Wash. 2d 59, 66, 316 P.3d 469 ( 2013) ( "[ S] ubsequent decisions from this court have also allowed
the legislature to establish certain conditions precedent before suit can be brought against the
State. ").
A plaintiff must strictly comply with the 60 -day condition precedent before filing a lawsuit
against a governmental entity. Our Supreme Court has held that: " It is impossible to substantially
comply with a statutory time limit.... It is either complied with or it is not." City of Seattle v.
Pub. Emp' tRelations Comm ' n, 116 Wash. 2d 923, 928 -29, 809 P.2d 1377 ( 1991). " Compliance with
a waiting period can be achieved only through meeting the time requirements of the statute."
Medina, 147 Wash. 2d at 317.
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No. 44705 -3 - II
Relying on Myles v. Clark County, 170 Wash. App. 521, 289 P.3d 650 ( 2012), review denied,
176 Wash. 2d 1015 ( 2013), Lee argues a 2009 amendment to RCW 4. 96. 020 requires that individuals
need only substantially comply with the 60 -day waiting period. Appellant' s Br. at 12 -14. This
2009 amendment changed RCW 4. 96. 020 in two significant ways. First, it added a section that
allowed for substantial compliance with the " procedural requirements" of the statute. RCW
4. 96. 020( 5). Second, it modified the 60 -day waiting period and gave plaintiffs an additional five
days to file a lawsuit. RCW 4. 96. 020( 4). If the legislature considered the pre -suit time limit to be
procedural, with which substantial compliance applies, it would not have also changed the 60 -day
time limit. Myles is inapplicable to this case because it did not involve the 60 -day presuit filing
requirement. It involved the notice requirement, a procedural matter.
We review questions of statutory interpretation de novo. Bostain v. Food Express, Inc.,
159 Wash. 2d 700, 708, 153 P.3d 846 ( 2007). We construe statutes to effectuate the legislature' s
intent. Bostain, 159 Wash. 2d at 708. If the statute' s meaning is plain, we .give effect to the plain
meaning as expressive of the legislature' s intent. Bostain, 159 Wash. 2d at 708.
The plain meaning of RCW 4. 96. 020( 5) is apparent. RCW 4. 96. 020( 5) provides for
substantial compliance "[ w] ith respect to the content of claims under this section and all procedural
requirements." The 60 -day time period is neither substantive nor procedural. In other words, it is
neither about what to file nor about how to file. It is a condition precedent to bringing a lawsuit.
This result is supported by our Supreme Court. McDevitt, 179 Wash. 2d at 64 -65 ( requirement that
plaintiff provide 90 days' notice before filing a medical malpractice lawsuit against the State is a
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No. 44705 -3 -I1
constitutional condition precedent).3 The right to bring suit against a governmental entity is not a
fundamental right but is created by statute. Medina, 147 Wash. 2d at 312. Thus, the right to file a
lawsuit against a governmental entity does not vest until the individual satisfies the specified
conditions precedent. Cook v. State, 83 Wash. 2d 599, 602 -03, 521 P.2d 725 ( 1974); see also
McDevitt, 179 Wash. 2d at 62 ( the legislature has the constitutional authority to alter the common
law doctrine of sovereign immunity and may establish pre- conditions to bring a lawsuit).
Accordingly, I would hold that the legislatively created 60 -day waiting period in RCW
4. 96. 020 is a condition precedent to the filing of a lawsuit against a governmental entity. And, this
statutory time limit can only be achieved by meeting the time requirement. Because Lee failed to
comply with the applicable condition precedent by filing her lawsuit after providing Metro Parks
less than 60 days' notice, I would affirm the superior court' s grant of summary judgment in favor
of Metro Parks and its dismissal of Lee' s lawsuit on this basis.
3
Conversely, presuit notice requirements for lawsuits involving private entities are
unconstitutional. See also Putnam v. Wenatchee Med. Ctr., 166 Wash. 2d 974, 216 P.3d 374 ( 2009)
requirement that plaintiff file certificate of merit from medical expert with pleadings as
precondition to filing medical malpractice lawsuit unconstitutional); Waples v. Yi, 169 Wash. 2d 152,
234 P.3d 187 ( 2010) ( in a suit between private parties, statute cannot require a plaintiff give 90
days' notice before filing medical malpractice lawsuit unconstitutional).
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