’WPC: +ģ-ŸFŁu½1ĶSigĶ!†ŁÓ™ŗÄWABӜ.`&³Ü2Ģß±“Ą1nż¼Ōֆ¢*óQ:r4“\% “t0ģās³FnńL°łAŪķ1up\ŗ˜ėŗŽlļNķ VTĆHāæŗæ4$ét9ėŗŲPvSõ'ŽÖ„˜½cXoxź£vĒŖ2öĄ‚bbåūƒŸM€†gą*—Ņ/<”ŃS#Œ0¾#$Śā­ŃgŠÆX¢,k%zŗļ)Ēf^F$}8#ĘÅTšl(©15P0–Q®Œ„†ÖŠV”‡;UƒĒńuĄ„…H+6ŗ»™gžZÜę]|-¬€Ūõ/LH#1ÅŚü9*Õęfšē˲”wł7”(Ń„ŚĶźĆ Ż*ŹßnŠ4wuÖ{ś|³ų˜¤“ ‹7 PÖÄ' ½‡Di}5Ķ“Ł@MŸßmrņ¦ķ±<€ėn¹”-P?3–Ąƒ-‘aÖŠ „•‰,)wÅÖÆo=~aöėŪvū‰‡ŒŻÆ 41—gógƒ‡€,#?Ļ ńy¾ĶÅØ o~šĶ"܈R×ED(4µD”Ū„§ķ8Č žG.į,](\sĻÉäį«č”KT\YįŅĆ©ķ@T‡¼€_Ēłbb#É\ %% ^ + 0ˆ7 U†Næ w 4 z% ҟ q € m‚ U>™ Ę× ʝ ĘcĘ)UNļN=“??Eóóóóóóóóóóóóóóóóóóóóóóóóbõõõõõõõõõõõõõõõ 0:żżżżżżżżżżżżżżżżżżżżż 0ė7777 B"" 0¤? D3ć D- 0KCC ASŽĘį 0¤§ 0DK A«˜\\IB01S08\KNOXCLERK4ČČ,,,,ČČ0»iyG1Ž (`£Ŗ$””Ń€.ŃŃ8€½­»»d»»d8ŃŃ ż ŃÓ  Ó(ķ€"  Z6Times New Roman RegularփF1ź:i¢Ų+00 ˜C:\PROGRA~1\COREL\WORDPE~1\TEMPLATE\CUSTOM~1\REVISE~1.WPTC:\Program Files\Corel\WordPerfect Office 2000\Template\Custom WP Templates\revised standard opinion.wpt3|x ’U‹’ĄĄĄō\  `‹&Times New RomanLevel 1Level 2Level 3Level 4Level 5‚Level 1Level 2Level 3Level 4Level 5„Level 1Level 2Level 3Level 4Level 5…Level 1Level 2Level 3Level 4Level 5(ÖĆ9 Z‹6Times New Roman Regular  TDOTSwiney P.J.LeftwichHadenMcFarlandfishtailinggatorsMUTCDa]bout A]sW]heret]hat i]fAASHTOPlemonsBlountSeviers]hortw]arningt]hisLoudon foreseeability COAr]egardless CBLAssocsSabirMcClug t]he a]nMcLainMcClainT]hereMcClungDonahoSilerRoark- ł-4’’2Emphasisņņóó(|G2?$¤¤Ż ƒ£Ŗ!ŻŃ€.ŃŃ8€µ»»dd8ŃŃ ż ŃÓ  ÓŻ  Żą  ąņņŚ  Ś0Ś  ŚóóŌ€ō¬ņ»»Ō d(|3w$££Ż ƒ£Ŗ!ŻŃ€.ŃŃ8€µ»»dd8ŃŃ ż ŃÓ  ÓŻ  ŻVVVV'’’dxd)!ČČČČdxdx( ±ž$’’ņ ņFigure€Ś  Ś1Ś  Śó ó^_X`YEž’<<C’’ƒLevel 1Level 2Level 3Level 4Level 5(|3w$¢¢Ż ƒ£Ŗ!ŻŃ€.ŃŃ8€µ»»dd8ŃŃ ż ŃÓ  ÓŻ  Ż($$””ņ ņŚ  Ś1Ś  Śó óX[Z&OLE 2.0 Box <=8’’’’’’’’’’C’’ HKKKKŻ ƒ£Ŗ!ŻŃ€.ŃŃ8€µ»»ddČ8ŃŃ ż ŃÓ  ÓŻ  ŻŌ_ŌŃ  ŃŌ€¼µ»»»ŌŃ8€KŁXXdģ»»d8ŃŃ  Ńą@ü ü ģąŌ‡ī „µŌIN€THE€COURT€OF€APPEALS€OF€TENNESSEEˆŠ ° Šą@WW$ģąAT€KNOXVILLEŌ#†¼µ»īī „ #ԈŠ Ö& ŠÓ  ÓJune€9,€2004€SessionŠ üL ŠŌ‡XKŁX»¼µŌĢņ ņŌ#†¼µ»XXKŁń#ŌSUSAN€BEGLEYņņóó€v.€STATE€OF€TENNESSEE€AND€TENNESSEEŠ śJ ŠDEPARTMENT€OF€TRANSPORTATIONņņóóŌ‡XKŁX»¼µŌó óŠ  ^ ŠĢą@@½½ģąņ ņAppeal€from€the€Claims€Commission€for€the€Eastern€DivisionŠ  ^ Šą@@ųųģąNo.€20101735€€€€€€Vance€W.€Cheek,€Jr.,€CommissionerŠ ś J ŠĢĢą@@ģģ*ģąßA€V) °°` d€÷E<½` Aߊ ¾  ŠĢą@@TTģąNo.€E2004„00202„Ō_ŌCOAŌ_Ō„R3„CV€„€FILED€OCTOBER€7,€Ō_Ō2004Ō_ŌŠ ¹  ŠĢßA€V) °°` dE<` Aߊ ‘į  Šó óĢÓ  ÓIn€May€of€2000,€a€car€being€driven€eastbound€on€Interstate€40€(š šI„40šš)€in€Knox€County€by€JeremyŠ ŒÜ ŠRoark€left€the€travel€lane€and€crossed€the€rumble€strips€onto€the€inside€shoulder€of€the€road€whereŠ xČ Šit€collided€with€a€Tennessee€Department€of€Transportation€(š šTDOTšš)€truck€parked€during€routineŠ d“ Šlitter€pick„up.€€Mr.€Roark€was€killed€in€the€accident€and€the€TDOT€employee€operating€the€truck€thatŠ P  Šday,€Kenneth€Siler,€was€injured.€€Susan€Begley,€Mr.€Ō_ŌRoarkŌ_Ōššs€mother€(š šPlaintiffšš),€brought€suitŠ <Œ Šagainst€the€State€of€Tennessee.€€The€case€was€transferred€to€the€Claims€Commission€(š štheŠ (x ŠCommissionšš)€and€was€tried.€€The€Commission€held,€ņņinter€aliaóó,€that€a€reasonable€person€standardŠ d Šapplied€and€that€it€was€not€reasonable€for€the€TDOT€truck€to€be€parked€on€the€shoulder.€€TheŠ P ŠCommission€assessed€45%€of€the€fault€for€the€accident€to€Mr.€Roark€and€55%€to€the€State€andŠ ģ< Šawarded€Plaintiff€a€judgment€for€$300,000.€€The€State€appeals€claiming€the€Commission€lackedŠ Ų( Šjurisdiction,€there€was€insufficient€evidence€that€each€element€of€the€negligence€cause€of€action€hadŠ Ä Šbeen€met,€and€Ō#†¼µ»XXK٤#ŌŌ‡XKŁX»¼µŌthere€was€insufficient€evidence€to€support€a€finding€that€Mr.€Roark€was€less€than€50%Š ° Šat€fault.€€We€affirm.Š œģ Š€€Š ˆŲ ŠÓųÓĢņ ņTenn.€R.€App.€P.€3€Appeal€as€of€Right;€Judgment€of€the€Claims€CommissionŠ `!°  ŠAffirmed;€Case€Remandedó óŠ L"œ! ŠĢĢņņÓ  ÓŌ#†¼µ»ąXKŁn #ŌŌ‡XKŁX.¼µŌD.€Michael€Swiney,€J.óó,€delivered€the€opinion€of€the€court,€in€which€ņņSharon€G.€Lee,€J.,óó€joined.€Š %` $ ŠņņHerschel€P.€Franks,€P.J.,óó€filed€a€separate€dissenting€opinion.Ō#†¼µ»XXKŁ #ŌŌ‡XKŁX»¼µŌŠ ü%L!% ŠĢPaul€G.€Summers,€Attorney€General€and€Reporter;€Michael€E.€Moore,€Solicitor€General;€andŠ Ō'$#' ŠMichael€B.€Leftwich,€Assistant€Attorney€General,€for€the€Appellant,€State€of€Tennessee.Š Ą($( ŠĢGregory€K.€Haden,€Kingsport,€Tennessee,€for€the€Appellee,€Susan€Begley.Š ˜*č%* ŠÓŻ ÓĢņ ņĢŠ \-¬(-ż ŠŌ_Ō‡OPINIONó óŌ#†¼µ»XXKŁ #ŌŌ‡XKŁX»¼µŌŠ ° ŠĢņņóóŌ#†¼µ»XXKŁę#ŌŌ‡XKŁX»¼µŌÓÓņ ņņņBackgroundó óóóŠ ˆŲ ŠÓ  ÓÓÓĢą  ąą ` ąPlaintiff€sued€the€State€of€Tennessee€after€her€twenty„year€old€son,€Jeremy€Roark,€wasŠ L œ Škilled€in€an€accident€involving€a€TDOT€truck.€€The€case€was€transferred€to€the€Claims€CommissionŠ 8 ˆ Špursuant€to€Tenn.€Code€Ann.€šš€9„8„402(c)€and€was€tried€in€October€of€2003.€€Š $ t ŠĢą  ąą ` ąOn€the€day€of€the€accident,€May€31,€2000,€at€approximately€11:30€a.m.,€Ō#†¼µ»XXKŁD#ŌŌ‡XKŁX»¼µŌMr.€RoarkŠ ü L  Šwas€driving€eastbound€on€I„40€returning€home€after€taking€the€necessary€physical€exam€to€join€theŠ č 8  ŠAir€Force.€The€day€was€sunny€and€clear,€and€it€had€not€rained€recently.€€The€evidence€showed€Mr.Š Ō$  ŠRoark€was€in€good€health,€was€not€under€the€influence€of€any€drugs€or€alcohol,€and€was€not€tired.€Š Ą  ŠŌ#†¼µ»XXKŁž#ŌŌ‡XKŁX»¼µŌAt€the€site€of€the€accident,€there€are€three€lanes€of€travel€eastbound,€an€emergency€lane€on€each€side,Š ¬ü  Šand€a€grassy€median€area.€Ō#†¼µ»XXKŁ`#ŌŌ‡XKŁX»¼µŌ€Traffic€at€the€time€was€described€as€heavy.€Ō#†¼µ»XXKŁ8#ŌŌ‡XKŁX»¼µŌŠ ˜č  Šą  ąĢą  ąą ` ąA€witness€to€the€accident,€Alan€E.€McFarland,€II,€testified€at€trial.€€He€stated€he€andŠ pĄ Šhis€wife€were€in€a€car€traveling€behind€Mr.€Roarkššs€car.€€He€testified€there€were€two€packs€ofŠ \¬ Švehicles€and€that€his€car€was€š šin€one€pack€approaching€the€pack€that€Jeremy€was€in.šš€€Mr.€McFarlandŠ H˜ Štestified€he€was€driving€approximately€75€miles€per€hour€and€was€gaining€on€Mr.€Roarkššs€car.€€AtŠ 4„ Šthat€time,€Mr.€Roarkššs€car€was€in€the€center€lane€of€the€three€lane€eastbound€highway.€€Mr.Š  p ŠMcFarland€testified€that€Mr.€Roark€was€not€speeding,€weaving€in€and€out€of€traffic,€tailgating,€orŠ  \ Šdriving€erratically.€€Mr.€McFarland€noticed€a€tractor€trailer€ahead€of€Mr.€Roarkššs€car€put€on€its€brakeŠ ųH Šlights€and€then€saw€Mr.€Roark€move€into€the€far€left€lane€of€travel.€€Mr.€McFarland€testified€that€itŠ ä4 Šwas€safe€for€Mr.€Roark€to€change€lanes€when€he€did€so.€€As€Mr.€McFarland€described€it,€Mr.€RoarkŠ Š  Šin€changing€lanes€š šwent€a€little€further€and€thatššs€when,€when€I€noticed€the€TDOT€truck€and,€andŠ ¼  Šthen,€you€know,€the,€the€accident€after.šš€€When€questioned,€Mr.€McFarland€stated€it€looked€to€himŠ Øų Šlike€the€right€side€of€the€TDOT€truck€was€š šright€by€the€rumble€strips.šš€He€also€testified€the€TDOTŠ ”ä Štruck€was€parked€entirely€on€the€shoulder€and€not€on€the€grass€median.€€Ō#†¼µ»XXK٧#ŌŌ‡XKŁX»¼µŌŠ €Š ŠĢą  ąą ` ąRichard€Fitzgerald,€Plaintiffššs€trial€expert,€is€a€consultant€performing€traffic€accidentŠ X Ø Šinvestigation€and€reconstruction€work.€€Ō#†¼µ»XXKŁ #ŌŌ‡XKŁX»¼µŌMr.€Fitzgerald€reconstructed€the€accident€and€testified€at€trialŠ D!” Šthat€Mr.€Roarkššs€departure€from€the€travel€lanes€onto€the€shoulder€does€not€appear€to€have€beenŠ 0"€  Šbased€on€any€problem€with€environmental€or€roadway€conditions.€€Mr.€Fitzgerald€explained€that€theŠ #l! Šleft€front€portion€of€Mr.€Roarkššs€car€hit€the€right€rear€portion€of€the€bed€of€the€truck,€went€underneathŠ $X" Šthe€truck,€and€hit€the€wheels€on€theŌ#†¼µ»XXKŁ#ŌŌ‡XKŁX»¼µŌ€right€side.€€Police€measurements€of€a€skid€mark€left€by€the€leftŠ ō$D # Šfront€tire€of€Mr.€Roarkššs€car€show€that€the€car€was€at€least€four€feet€ten€inches€off€the€travel€lane€andŠ ą%0!$ Šonto€the€shoulder€at€the€beginning€of€the€skid€and€four€feet€two€inches€off€at€the€time€of€impact.€€Ō#†¼µ»XXKŁ>#ŌŌ‡XKŁX»¼µŌMr.Š Ģ&"% ŠFitzgerald€explained€that€tŌ#†¼µ»XXKŁ»#ŌŌ‡XKŁX»¼µŌhe€skid€mark€shows€Mr.€Roark€had€steered€to€the€right€as€the€right€tiresŠ ø'#& Šof€his€car€were€headed€toward€the€yellow€line,€back€toward€the€travel€lane.€€Mr.€Fitzgerald€explainedŠ ¤(ō#' Šthat€the€skid€mark€is€relatively€straight,€which€means€Mr.€Roark€š štook€collision€avoidance€action€byŠ )ą$( Šbraking€hard€enough€at€least€to€lock€up€one€tirešš€and€means€the€car€was€tracking€normally€notŠ |*Ģ%) Šfishtailing€or€out€of€control.€€Mr.€Fitzgerald€stated:Š h+ø&* Їą8  ą[T]hereššs€no€indication€that€the€vehicle€was€either€yawing€or€fishtailing.€€Thereššs€noŠ ° Šindication€that€it€was€not€under€control€at€the€time€the€brake€application€occurred.€Š œģ ŠWhen€you€lock€up€your€brakes€and€you€lock€up€all€the€tires,€youššve€got€no€steering.€Š ˆŲ ŠYouššre€riding€as€a€passenger.€€So€at€that€time€the€vehicle€becomes€out€of€your€control.€Š tÄ ŠItššs€going€to€go€whichever€way€it€was€headed.€.€.€.€€Š`°Š Š  ŠĢAt€impact,€the€TDOT€truck€was€pushed€from€the€shoulder€entirely€on€to€the€grass€median.€Ō#†¼µ»XXKŁ0 #ŌŌ‡XKŁX»¼µŌŠ 8 ˆ ŠĢą  ąą ` ąKenneth€Siler,€the€TDOT€truck€operator,€is€employed€by€the€State€of€TennesseeŠ  ` Šworking€for€TDOT€and€has€worked€for€about€eight€years€as€a€Highway€Worker€I.€€His€duties€includeŠ ü L  Šdriving€up€and€down€I„40€in€Knox€County€picking€up€debris€on€and€near€the€road.€€Mr.€Siler€receivedŠ č 8  Šon„the„job€training€by€accompanying€older€employees€on€the€job€at€first,€but€received€no€formalŠ Ō$  Šinstruction€on€litter€pick„up.€€Ordinarily,€Mr.€Siler€works€with€another€Highway€I€worker,€but€he€wasŠ Ą  Šworking€alone€on€the€day€of€the€accident.€€Mr.€Siler€explained€that€usually€one€worker€drives€theŠ ¬ü  Štruck€and€the€other€looks€for€debris€and€traffic€hazards€like€š špieces€of€metal,€aluminum€laddersŠ ˜č  Šfalling€off€of€trucks€and€gatorsšš,€which€are€the€remnants€of€tires.€€Mr.€Siler€stated€he€never€knowsŠ „Ō  Šwhen€he€may€need€to€stop.€€It€depends€on€what€debris€the€workers€find€as€they€ride€the€roads.Š pĄ ŠĢą  ąą ` ąOn€the€morning€of€the€accident,€Mr.€Siler€traveled€west€on€I„€40€and€then€broke€forŠ H˜ Šlunch€around€11:00€a.m.€or€11:30€a.m.€€After€lunch,€he€started€eastbound.€€He€stopped€at€the€siteŠ 4„ Šwhere€the€accident€occurred€to€pick€up€a€piece€of€a€tire€located€on€the€grass€median€separating€theŠ  p Šeastbound€from€the€westbound€traffic.€€Mr.€Siler€testified€that€the€traffic€was€š šreal€heavyšš€and€theŠ  \ Švehicles€were€traveling€around€70€miles€per€hour€at€this€location.€€He€also€admitted€that€real€heavyŠ ųH Štraffic€like€this€heightened€his€concerns€because€of€the€risk€of€danger.€€Mr.€Siler€explained€that€asŠ ä4 Šhe€was€lifting€the€š šgatoršš€to€throw€it€into€the€truck,€€he€heard€a€noise€and€then€was€pushed.€€He€statedŠ Š  Šhe€was€parked€for€only€a€few€seconds€before€the€accident€happened.€€Š ¼  ŠĢŌ#†¼µ»XXKŁł$#ŌŌ‡XKŁX»¼µŌą  ąą ` ąMr.€Siler€testified€he€remembers€parking€his€truck€half€in€the€grass€median€and€halfŠ ”ä Šon€the€emergency€lane€or€shoulder.€€He€stated€he€always€gets€over€in€the€grass€if€possible.€€Mr.€SilerŠ €Š Štestified€that€at€the€accident€site,€the€grass€median€is€wide€and€on€that€day€was€dry.Ō#†¼µ»XXKŁ@-#ŌŌ‡XKŁX»¼µŌ€€The€TDOT€truckŠ l¼ Šhe€was€driving€had€a€bed€width€of€approximately€eight€feet.€€The€width€of€the€shoulder€isŠ X Ø Šapproximately€ten€and€a€half€feet.€€If€the€TDOT€truck€were€parked€as€Mr.€Siler€remembers,€it€wouldŠ D!” Šhave€been€sticking€four€feet€into€the€shoulder€leaving€approximately€six€and€a€half€feet€between€theŠ 0"€  Šright€side€of€his€truck€and€the€nearest€travel€lane.€Š #l! ŠĢŌ#†¼µ»XXKŁŌ.#ŌŌ‡XKŁX»¼µŌą  ąą ` ąThe€TDOT€truck€had€a€yellow€strobe€light€on€the€bed€of€the€truck€that€was€workingŠ ō$D # Šon€the€day€of€the€accident.€€The€truck€also€had€a€red€sign€approximately€š šfour€by€fouršš€on€its€backŠ ą%0!$ Šthat€said€š šCaution.€€Frequent€stops.šš€€Ō#†¼µ»XXKŁä0#ŌŌ‡XKŁX»¼µŌHowever,€there€were€no€advance€warning€signs€showingŠ Ģ&"% Šshoulder€work€ahead.€€When€questioned,€Mr.€Siler€stated€the€purpose€of€rumble€strips€is€to€š šwakeŠ ø'#& Špeople€up€if€theyššre€asleep€or€run€out€of€the€road€or€at€night.šš€€Š ¤(ō#' ŠŌ#†¼µ»XXKŁO2#ŌŌ‡XKŁX»¼µŌĢą  ąą ` ąMr.€Fitzgerald,€Plaintiffššs€expert,€testified€that€the€Manual€On€Uniform€TrafficŠ |*Ģ%) ŠControl€Devices€(š šthe€MUTCDšš),€a€publication€by€the€Federal€Highway€Administration,€whichŠ h+ø&* Šcontains€the€š šnationally€accepted€practice€for€traffic€control€including€work€zone€type€activitiesšš,€hasŠ ° Šbeen€adopted€by€Tennessee€as€a€standard€through€Tenn.€Code€Ann.€šš€54„5„108.€€When€testifying,Š œģ ŠMr.€Fitzgerald€also€referred€to€the€Roadside€Design€Guide€(š šthe€Guidešš),€which€discusses€roadsideŠ ˆŲ Šfeatures€and€hazards€associated€with€them.€€The€Guide€states€it€is€to€be€used€in€conjunction€with€theŠ tÄ ŠMUTCD.€€Mr.€Fitzgerald€testified€that€in€its€introduction€section,€the€Guide€states€š š[a]bout€thirtyŠ `° Špercent€or€almost€one€in€every€three€fatalities€are€the€result€of€a€single€vehicle€run€off€the€road€crash.€Š L œ ŠThese€figures€mean€that€the€roadside€environment€comes€into€play€in€a€very€significant€percentageŠ 8 ˆ Šof€fatal€and€serious€injury€accidents.šš€€He€stated€that€the€presence€of€rumble€strips€indicates€thatŠ $ t Švehicles€leaving€the€travel€lanes€and€running€off€the€road€is€a€common€problem.€€Mr.€FitzgeraldŠ  ` Šstated€the€Ō#†¼µ»XXKŁÆ3#ŌŌ‡XKŁX»¼µŌpurpose€of€rumble€strips€is€š što€alert€a€driver€that€has€left€the€traffic€way€to€the€fact€that€theyŠ ü L  Šhave€now€encroached€upon€the€shoulder.šš€Š č 8  ŠŌ#†¼µ»XXKŁ@9#ŌŌ‡XKŁX»¼µŌĢą  ąą ` ąMr.€Fitzgerald€testified€that€the€MUTCD€calls€for€the€highest€level€of€traffic€controlŠ Ą  Što€be€provided€on€freeways€such€as€I„€40€and€recommends€an€advance€warning€sign€be€used,€butŠ ¬ü  Šprovides€a€list€of€exceptions€to€having€warning€signs.€€Ō#†¼µ»XXKŁ<:#ŌŌ‡XKŁX»¼µŌMobile€or€short€duration€operations€may€fallŠ ˜č  Šinto€the€exceptions.€€Litter€pick„up,€such€as€Mr.€Siler€was€engaged€in€on€the€day€of€the€accident,€isŠ „Ō  Šcategorized€by€the€MUTCD€as€a€mobile€operation.€€Ō#†¼µ»XXKŁ«;#ŌŌ‡XKŁX»¼µŌMr.€Fitzgerald€stated€that€in€the€MUTCD:€Š pĄ ŠĢą8  ąunder€the€mobile€operations,€one€of€the€points€is€that€safety€should€not€beŠ H˜ Šcompromised€by€using€fewer€devices€simply€because€the€operation€will€frequentlyŠ 4„ Šchange€its€location.€€You€may€have€to€do€something€different,€but€you€donšštŠ  p Šcompromise€what€you€need€to€do€for€safety€just€because€you€may€move€a€lot.€.€.€.Š  \ Š[A]s€a€general€rule€the€closer€the€work€is€to€traffic€the€more€traffic€control€devicesŠ ųH Šthat€are€needed.€.€.€.€[W]here€youššre€on€or€near€the€roadway€edge€.€.€.€ššThe€shoulderŠ ä4 Šshould€be€signed€as€if€the€work€were€on€the€road€itself€since€it€is€part€of€the€driverššsŠ Š  Šrecovery€areašš.€.€.€.м Š Š  ŠĢą  ąą ` ąMr.€Fitzgerald€stated€the€MUTCD€says€š šit€is€desirable€to€provide€an€unencumberedŠ ”ä Šroadside€recovery€area.šš€€He€also€stated€the€MUTCD€provides€that€for:€Š €Š ŠĢą8  ąoperations€that€move€slowly,€less€than€three€miles€an€hour,€it€may€be€feasible€to€useŠ X Ø Šstationary€signs.€€You€put€up€a€sign,€you€leave€it€there,€and€move€on€down€the€road.€Š D!” ŠThat€is€periodically€retrieved€and€re„positioned€in€the€advance€warning€area.€€AtŠ 0"€  Šhigher€speeds€trucks€are€typically€used€to,€as€far€as€traffic€control€zones,€they,€theyŠ #l! Šmove€as€part€of€a€train€behind€the€work€vehicles.€.€.€.Š$X"Š Š  ŠŌ#†¼µ»XXKŁŁ<#ŌŌ‡XKŁX»¼µŌĢą  ąą ` ąHowever,€Mr.€Fitzgerald€admitted€the€MUTCD€also€provides€in€its€section€on€mobileŠ ą%0!$ Šand€short€duration€operations€that:€Š Ģ&"% ŠĢą8  ą[a]s€compared€to€stationary€operations,€mobile€and€short€duration€operations€areŠ ¤(ō#' Šdistinct€activities€that€may€involveŌ#†¼µ»XXKŁ\C#ŌŌ‡XKŁX»¼µŌ€different€treatments.€€More€mobile€devices€areŠ )ą$( Šneeded.€€For€example,€signs€mounted€on€trucks€and€larger,€more€imposing€and€moreŠ |*Ģ%) Švisible€devices€can€be€used€effectively€and€economically.€€For€example,€appropriatelyŠ h+ø&* Šcolored€and€marked€vehicles€with€flashing€or€rotating€lights,€perhaps€augmented€withŠ ° Šsigns€or€arrow€displays,€may€be€used€in€places,€in€place€of€signs€and€channelizingŠ œģ Šdevices.€€The€trade„off€is€economical€because€work€duration€is€short.€€Mobility€isŠ ˆŲ Šessential.€.€.€.€Safety€is€not€compromised€as€numerous€small€devices€are€merelyŠ tÄ Šreplaced€by€fewer€more€dominant€and€effective€devices.€€Š`°Š Š  ŠĢŌ#†¼µ»XXKŁģD#ŌŌ‡XKŁX»¼µŌą  ąą ` ąMr.€Fitzgerald€admitted€the€MUTCD€does€not€require€either€a€stationary€advanceŠ 8 ˆ Šwarning€sign€or€a€trailing€vehicle,€but€use€of€these€measures€simply€is€recommended€practice.€€HeŠ $ t Šalso€admitted€there€were€no€mandatory€standards€that€were€not€met€by€Mr.€Siler.€€In€fact,€Mr.Š  ` ŠFitzgerald€admitted€the€MUTCD€says€warning€signs€are€not€required€if€the€work€vehicle€has€a€fastŠ ü L  Šflashing€or€revolving€yellow€light,€which€Mr.€Silerššs€truck€did.Š č 8  ŠŌ#†¼µ»XXKŁ4H#ŌŌ‡XKŁX»¼µŌĢŌ#†¼µ»XXK٦J#ŌŌ‡XKŁX»¼µŌą  ąą ` ąWhen€talking€about€clear€roadside€principles€from€the€Guide,€Mr.€Fitzgerald€statedŠ Ą  Šif€you€canššt€get€the€vehicle€off€the€road€or€shield€it€with€something€like€a€guardrail,€you€can€delineateŠ ¬ü  Šthe€truck.€€He€explained:€Š ˜č  ŠĢą8  ą[t]hat€would€be€where,€for€this€type€situation€the€truck€has€a€sign€on€the€back€of€it.€Š pĄ ŠIt€has€a€rotating€beacon.€€He€may€have€been€flashing€his€hazard€lights.€€Itššs€paintedŠ \¬ Šorange.€€Trying€to€make€it€stand€out€to€delineate€that€thereššs€something€there,€.€.€.€ifŠ H˜ Šyou€canššt€do€any€of€the€others,€then€that€may€be€all€you€can€do.€€€Š4„Š Š  ŠĢą  ąą ` ąDuring€his€testimony,€Mr.€Fitzgerald€also€discussed€a€section€from€the€Policy€OnŠ  \ ŠGeometric€Design€of€Highways€and€Streets,€2001€(š šthe€AASHTO€Policyšš).€€The€AASHTO€PolicyŠ ųH Šis€prepared€by€the€American€Association€of€State€Highway€and€Transportation€OfficialsŠ ä4 Š(š šAASHTOšš),€an€organization€that€researches€and€produces€publications€for€guidance€that€are€usedŠ Š  Šby€its€members€and€others€across€the€country.€€Mr.€Fitzgerald€admitted€the€AASHTO€Policy€statesŠ ¼  Šone€of€the€purposes€of€a€shoulder€is€to€accommodate€stopped€or€parked€vehicles€includingŠ Øų Šmaintenance€vehicles.€€The€AASHTO€Policy€states€it€is€desirable€for€a€vehicle€stopped€on€theŠ ”ä Šshoulder€to€be€at€least€one€foot€from€the€travel€lane€and€preferably€two€feet€away.€€The€AASHTOŠ €Š ŠPolicy€states€this€recommendation€has€led€to€a€normal€shoulder€width€of€ten€feet€on€high€typeŠ l¼ Šfacilities,€such€as€I„40.€€Š X Ø ŠĢą  ąą ` ąMr.€Fitzgerald€testified€there€are€several€features€about€trucks€like€the€TDOT€truckŠ 0"€  Šinvolved€in€the€accident€that€make€them€a€special€hazard.€€He€explained€that€the€bed€of€such€trucksŠ #l! Šsits€high€and€comes€right€above€or€at€hood€level€of€most€cars€and€that€such€trucks€are€fairly€rigid€orŠ $X" Šstrong€compared€to€cars.€€In€addition,€such€trucks€weigh€more€than€the€typical€car.€€Mr.€FitzgeraldŠ ō$D # Štestified€that€these€features€make€the€potential€consequences€of€an€accident€involving€such€a€truckŠ ą%0!$ Šand€a€car€extremely€severe,€even€at€low€speeds.€Š Ģ&"% ŠŌ#†¼µ»XXKŁéJ#ŌŌ‡XKŁX»¼µŌĢą  ąą ` ąMr.€Fitzgerald€opined€that€Mr.€Silerššs€TDOT€truck€was€parked€entirely€on€theŠ ¤(ō#' Šshoulder€at€the€time€of€accident€with€its€right€side€approximately€two€and€a€half€feet€from€the€edgeŠ )ą$( Šof€the€lane€of€traffic.€€Mr.€Fitzgerald€stated€the€emergency€lane€is€ten€foot€seven€inches€wide€and€thatŠ |*Ģ%) Ša€TDOT€truck€similar€to€the€one€involved€in€the€accident€measured€a€little€under€eight€feet€wide.€€Ō#†¼µ»XXKŁżT#ŌŌ‡XKŁX»¼µŌ€Š h+ø&* ŠŌ#†¼µ»XXKŁW#ŌŌ‡XKŁX»¼µŌĢą  ąą ` ąMr.€Fitzgerald€admitted€there€is€no€standard€in€the€MUTCD€that€would€require€aŠ œģ ŠTDOT€truck€to€park€off€the€shoulder€in€the€grass€median.€€He€did€not€opine€whether€it€was€improperŠ ˆŲ Šfor€Mr.€Siler€to€park€the€distance€he€did€from€the€travel€lane.€€Instead,€he€stated€he€believes€it€wasŠ tÄ Šunsafe€for€Mr.€Siler€to€park€two€and€a€half€feet€from€the€travel€lane.€€€€Š `° ŠĢą  ąą ` ąWilliam€Ernest€Plemons,€Jr.,€the€District€Maintenance€Superintendent€II€whoŠ 8 ˆ Šsupervises€maintenance€in€District€15€which€includes€Knox,€Blount,€and€Sevier€Counties€testifiedŠ $ t Šat€trial.€€Mr.€Plemons,€who€has€been€with€TDOT€for€thirty€years,€supervises€Mr.€Silerššs€directŠ  ` Šsupervisor.€€Ō#†¼µ»XXKŁmW#ŌŌ‡XKŁX»¼µŌMr.€Plemons€testified€the€MUTCD€provides€that:€Š ü L  ŠĢą8  ąš š[s]hort€duration€activities€are€generally€considered€to€be€those€in€which€it€takesŠ Ō$  Šlonger€to€set€up€and€remove€the€traffic€control€zone€than€to€perform€the€work.€Š Ą  ŠTypically€such€operations€can€be€accomplished€in€sixty€minutes€or€less.€€There€areŠ ¬ü  Šhazards€involved€for€the€crew€in€setting€up€and€taking€down€a€traffic€control€zone.€Š ˜č  ŠAlso€the€work€time€is€short.€€The€time€during€which€motorists€are€affected€isŠ „Ō  Šsignificantly€increased€when€additional€devices€are€installed€and€removed.€Š pĄ ŠConsidering€these€factors,€it€is€generally€held€that€simplified€control€procedures€areŠ \¬ Šwarranted€for€short€duration€activities.€€Such€shortcomings€may€be€offset€by€other,Š H˜ Šuse€of€other€more€dominant€devices€such€as€special€lighting€units€or€work€vehicles.šš€Š4„Š Š  ŠĢą  ąą ` ąMr.€Plemons€explained€he€implements€the€MUTCD€recommendations€in€his€workŠ  \ Šby€using€trucks€with€strobe€lights€and€a€warning€sign€on€the€tailgate.€€Mr.€Plemons€stated€theŠ ųH ŠMUTCD€also€provides€š ššš[w]arning€signs€are€not€required€if€the€work€vehicle€displays€a€flashing€orŠ ä4 Šrevolving€yellow€light€if€the€distance€between€the€location€is€one€mile€or€more€or€if€the€work€vehicleŠ Š  Štravels€the€traffic€speed€between€the€locations.šššš€€Mr.€Plemons€stated€it€would€not€have€beenŠ ¼  Špractical€for€Mr.€Siler€to€have€set€up€any€signs.€€He€also€testified€he€believes€Mr.€Siler€to€be€an€honestŠ Øų Šman€and€takes€him€for€his€word€as€to€where€he€was€parked€that€day.€€Š ”ä ŠĢą  ąą ` ąAfter€a€trial,€the€Commission€entered€a€Judgment€on€December€8,€2003,€finding,€ņņinterŠ l¼ Šaliaóó,€that€the€TDOT€truck€was€parked€entirely€on€the€shoulder,€and€that€Mr.€Roark€€was€negligentŠ X Ø Šin€leaving€the€road,€but€this€was€not€the€proximate€cause€of€the€accident.€€Ō#†¼µ»XXKŁķZ#ŌŌ‡XKŁX»¼µŌThe€CommissionŠ D!” Šspecifically€did€not€find€that€Mr.€Siler€had€lied€about€where€he€parked€the€truck,€but€that€he€wasŠ 0"€  Šsimply€mistaken.€€The€Commission€stated€š š[t]his€is€not€a€credibility€issue.šš€€Rather,€the€CommissionŠ #l! Šsimply€found€the€evidence€that€the€truck€was€parked€entirely€on€the€shoulder€to€be€more€persuasive.€Š $X" ŠThe€Commission€also€found€the€MUTCD€to€be€relevant€to€the€facts€and€issues€in€this€case,€but€heldŠ ō$D # Šit€does€not€control€because€the€MUTCD€contains€recommendations,€not€mandatory€standardsŠ ą%0!$ Šregarding€the€issues€involved€in€this€case.€€Rather,€the€Commission€stated€a€reasonable€personŠ Ģ&"% Šstandard€applies€because€a€reasonable€person€standard€is€a€š šribbon€that€weaves€throughout€the€entireŠ ø'#& ŠMUTCD€.€.€.€.šš€€The€Commission€applied€a€reasonable€person€standard€and€found€it€was€reasonableŠ ¤(ō#' Šfor€Mr.€Roarkššs€car€to€be€on€the€shoulder,€it€was€not€reasonable€for€the€TDOT€truck€to€have€beenŠ )ą$( Šparked€there,€and€that€the€TDOT€truck€was€too€close€to€the€lanes€of€travel€as€it€was€in€the€recoveryŠ |*Ģ%) Šzone.€Ō#†¼µ»XXKŁ„c#ŌŌ‡XKŁX»¼µŌ€Ō#†¼µ»XXKŁøh#ŌŌ‡XKŁX»¼µŌThe€Commission€stated€š š[t]here€needed€to€be€a€buffer€to€the€truck€or€the€truck€needed€to€beŠ h+ø&* Šoff€the€road€totally.šš€€Ō#†¼µ»XXKŁūh#ŌŌ‡XKŁX»¼µŌThe€parties€had€stipulated€the€damages€to€be€in€excess€of€$600,000.€€TheŠ ° ŠCommission€held€that€Mr.€Roark€was€45%€at€fault€because€he€left€the€travel€lanes€and€that€the€StateŠ œģ Šwas€55%€at€fault€for€the€accident€and€awarded€Plaintiff€a€judgment€for€the€maximum€of€$300,000Š ˆŲ Šas€allowed€under€the€statute.€€The€State€appeals€to€this€Court.€Š tÄ ŠĢÓ  Óņ ņņņDiscussionóóó óŠ L œ ŠÓ  ÓĢą  ąą ` ąAlthough€not€stated€exactly€as€such,€the€State€raises€three€issues€on€appeal:€1)€whetherŠ $ t Šthe€Commission€erred€in€holding€it€had€jurisdiction€under€Tenn.€Code€Ann.€šš€9„8„307(a)(1)(J)Ō#†¼µ»XXKŁĖi#ŌŌ‡XKŁX»¼µŌ;€2)Š  ` Šwhether€the€evidence€preponderates€against€the€Commissionššs€finding€that€all€the€elements€ofŠ ü L  Šnegligence€were€provenŌ#†¼µ»XXKŁÓl#ŌŌ‡XKŁX»¼µŌ;€and,€3)€whether€the€evidence€preponderates€against€the€CommissionššsŠ č 8  Šfinding€that€Mr.€Roark€was€less€than€fifty€percent€at€fault€for€the€accident.Š Ō$  ŠĢą  ąą ` ąŌ‡ Xg XXXKŁŌOur€review€is€Ż‚=’’’ŻņņŻ  Żde€novoóóŻ‚=’ÜnsŠŻŻ  Ż€upon€the€record,€accompanied€by€a€presumption€of€correctnessŠ ¬ü  Šof€the€findings€of€fact€of€the€trial€court,€unless€the€preponderance€of€the€evidence€is€otherwise.€€Tenn.Š ˜č  ŠR.€App.€P.€13(d);€ņņBogan€v.€Boganóó,€60€S.W.3d€721,€727€(Tenn.€2001).€€A€trial€court's€conclusions€ofŠ „Ō  Šlaw€are€subject€to€a€Ż‚=’’’ŻņņŻ  Żde€novoóóŻ‚=’–psŠŻŻ  Ż€review€with€no€presumption€of€correctness.€€Ż‚=’’’ŻņņŻ  ŻS.€Constructors,€Inc.€v.Š pĄ ŠLoudon€County€Bd.€of€Educ.Ż‚=’’’qƒŻóóŻ  Ż,€58€S.W.3d€706,€710€(Tenn.€2001).€Ō#†XKŁX X XgÆn#ŌŌ‡Xg XXXKŁŌŠ \¬ ŠĢŌ#†XKŁX XXgģq#ŌŌ#†¼µ»XXKŁøm#ŌŌ‡XKŁX»¼µŌą  ąą ` ąWe€first€will€consider€whether€the€Commission€erred€in€holding€it€had€jurisdictionŠ 4„ Šunder€Tenn.€Code€Ann.€šš€9„8„307(a)(1)(J).€€Tenn.€Code€Ann.€Ō#†¼µ»XXKŁgr#ŌŌ‡XKŁX»¼µŌšš€9„8„307(a)(1)€provides,€in€pertinentŠ  p Špart:Š  \ ŠĢą8  ą(a)(1)€€The€commission€or€each€commissioner€sitting€individually€has€exclusiveŠ ä4 Šjurisdiction€to€determine€all€monetary€claims€against€the€state€based€on€the€acts€orŠ Š  Šomissions€of€š šstate€employees,šš€as€defined€in€šš€8„42„101(3),€falling€within€one€(1)Š ¼  Šor€more€of€the€following€categories:ŠØųŠ Š  ŠĢą8  ąą8` Š Š ą(A)€The€negligent€operation€or€maintenance€of€any€motor€vehicle€orŠ €Š Šany€other€land,€air,€or€sea€conveyance.€€In€addition,€the€state€may€beŠ l¼ Šheld€liable€pursuant€to€this€subdivision€for€the€negligent€operation€ofŠ X Ø Šstate„owned€motor€vehicles€or€other€conveyances€by€persons€who€areŠ D!” Šnot€state€employees;€provided,€that€such€persons€operated€the€vehicleŠ 0"€  Šor€other€conveyance€with€the€permission€of€a€state€employee;Š#l!` x` x ŠÓ  ÓĢą8 @ ąą8 @ ą*€*€*€Š ō$D # ŠÓ„wÓĢą8  ąą8` Š Š ą(C)€Negligently€created€or€maintained€dangerous€conditions€on€stateŠ Ģ&"% Šcontrolled€real€property.€€The€claimant€under€this€subsection€mustŠ ø'#& Šestablish€the€foreseeability€of€the€risks€and€notice€given€to€the€properŠ ¤(ō#' Šstate€officials€at€a€time€sufficiently€prior€to€the€injury€for€the€state€toŠ )ą$( Šhave€taken€appropriate€measures;Š|*Ģ%)` x` x ŠŠ h+ø&* ŠÓ  Óą8 @ ąą8@` Š Š ą*€*€*€Š ° ŠÓŌyÓą8  ąą8` Š Š ąŠ ` x` x Šą8  ąą8` Š Š ą(I)€Negligence€in€planning€and€programming€for,€inspection€of,Š ˆŲ Šdesign€of,€preparation€of€plans€for,€approval€of€plans€for,€andŠ tÄ Šconstruction€of,€public€roads,€streets,€highways,€and€bridges€andŠ `° Šsimilar€structures,€and€negligence€in€maintenance€of€highways,€andŠ L œ Šbridges€and€similar€structures,€designated€by€the€department€ofŠ 8 ˆ Štransportation€as€being€on€the€state€system€of€highways€or€the€stateŠ $ t Šsystem€of€interstate€highways;Š `` x` x ŠĢą8  ąą8` Š Š ą(J)€Dangerous€conditions€on€state€maintained€highways.€€€TheŠ č 8  Šclaimant€under€this€subsection€must€establish€the€foreseeability€of€theŠ Ō$  Šrisk€and€notice€given€to€the€proper€state€officials€at€a€time€sufficientlyŠ Ą  Šprior€to€the€injury€for€the€state€to€have€taken€appropriate€measures;Ьü ` x` x ŠĢÓ  Óą8 @ ąą8@` Š Š ą*€*€*€Š „Ō  ŠÓR~Óą8  ąą8` Š Š ąŠ ` x` x Šą8  ąą8` Š Š ą(M)€Negligent€operation€of€machinery€or€equipment;€.€.€.€Š\¬` x` x ŠĢTenn.€Code€Ann.€šš€9„8„307(a)(1)€(Supp.€2003).€€€Ō#†¼µ»XXKŁfs#ŌŌ‡XKŁX»¼µŌŠ 4„ ŠĢą  ąą ` ąThe€Commission€held€it€had€jurisdiction€under€Tenn.€Code€Ann.€šš€9„8„307(a)(1Ō#†¼µ»XXKŁÆ#ŌŌ‡XKŁX»¼µŌ)(J).Š  \ ŠIn€its€appellate€brief,€the€State€argues€that€Tenn.€Code€Ann.€šš€9„8„307(a)(1)(J)€š šdoes€not€apply€Ō#†¼µ»XXKŁn€#ŌŌ‡XKŁX»¼µŌto€theŠ ųH Štype€of€two„vehicle€collision€at€issue€here.šš€€The€State€cites€to€ņņSweeney€v.€Stateóó,€in€which€ourŠ ä4 ŠSupreme€Court€held€that€in€cases€under€subsection€(J),€a€court€š šshould€consider€the€physical€aspectsŠ Š  Šof€the€roadway,€the€frequency€of€accidents€at€that€place€in€the€highway€and€the€testimony€of€expertŠ ¼  Šwitnesses€.€.€.šš€in€making€the€factual€determination€of€whether€the€condition€of€the€highway€isŠ Øų Šdangerous.€€ņņSweeney€v.€Stateóó,€768€S.W.2d€253,€255€(Tenn.€1989)€(quoting€ņņHolmes€v.€Christopheróó,Š ”ä Š435€So.2d€1022,€1026€(La.€Ct.€App.€1983)).€€The€State€argues€that€š š[t]his€analysis€clearlyŠ €Š Šcontemplates€potential€liability€based€on€the€ņņphysical€conditionóó€of€the€actual€roadway€.€.€.€.šš€€InŠ l¼ Šaddition,€the€State€cites€to€ņņSmith€v.€Stateóó,€in€which€this€Court€declined€to€hold€that€jurisdiction€Š X Ø Šexisted€under€subsection€(J)€in€a€case€involving€a€state€vehicle€that€was€parked.€€ņņSmith€v.€Stateóó,€No.Š D!” ŠW2002„00874„COA„R3„CV,€2002€Tenn.€App.€LEXIS€939€(Tenn.€Ct.€App.€Dec.€30,€2002),€ņņno€appl.Š 0"€  Šperm.€appeal€filedóó.€€We€agree€with€the€Stateššs€assertion€that€jurisdiction€in€the€instant€case€does€notŠ #l! Šfall€under€subsection€(J).€€Š $X" ŠĢą  ąą ` ąHowever,€Plaintiffššs€Complaint€also€pled€that€jurisdiction€was€present€under€Tenn.Š ą%0!$ ŠCode€Ann.€šššš€9„8„307(a)(1)(A),€(C),€(I),€and€(M).€€ņņóóIn€our€ņņSmith€v.€State€óóopinionņņ€óórelied€on€by€theŠ Ģ&"% ŠState,€this€Court€discussed€whether€the€parking€of€a€police€cruiser€properly€fell€into€the€category€ofŠ ø'#& Šnegligent€operation€of€a€vehicle€under€subsection€(A)€and€held€that€jurisdiction€was€proper€underŠ ¤(ō#' Šsubsection€(A).€ņņ€Smithóó,€2002€Tenn.€App.€LEXIS€939,€at€*12„14.€€The€ņņSmithóó€Court€statedŠ )ą$( Šā āš š[r]egardless€of€whether€[the€trooper]€was€inside€of€the€vehicle€when€the€accident€occurred,Š |*Ģ%) Šoperation€of€the€vehicle€by€[the€trooper]€resulted€in€the€condition€and€placement€of€the€vehicle€at€theŠ ° Štime€of€the€accident€causing€injuries€to€[the€plaintiff].šš€€ņņIdóó.€at€*14.€€Š œģ Šā āĢą  ąą ` ąThe€operative€facts€in€the€instant€case€are€similar€to€the€ņņSmithóó€case.€€Just€as€in€ņņSmithóó,Š tÄ Šthe€Commission€in€this€case€had€jurisdiction€to€adjudicate€whether€the€operation€and€parking€of€theŠ `° Šstate€owned€vehicle€was€negligent€and€whether,€if€it€was€negligent,€it€was€the€proximate€cause€of€theŠ L œ Šinjuries€suffered€by€Mr.€Roark.€€As€Plaintiff€pled€a€proper€basis€for€jurisdiction,€we€hold€theŠ 8 ˆ ŠCommission€did€have€jurisdiction€to€adjudicate€the€issues€involved€in€this€suit€under€Tenn.€CodeŠ $ t ŠAnn.€šš€9„8„307(a)(1)(A).€€€€€€€€€Ō#†¼µ»XXKŁ1#ŌŌ‡XKŁX»¼µŌ€€Š  ` ŠĢŌ‡Xg XXXKŁŌą  ąą ` ąWe€next€will€consider€Ō#†XKŁX XXg¹#Ōwhether€the€evidence€preponderates€against€the€CommissionššsŠ č 8  Šfinding€that€all€the€elements€of€negligence€were€proven.€€To€prove€negligence,€a€plaintiff€must€show€Š Ō$  Šš š(1)€a€duty€of€care€owed€by€the€defendant€to€the€plaintiff;€(2)€conduct€by€the€defendant€falling€belowŠ Ą  Šthe€applicable€standard€of€care€that€amounts€to€a€breach€of€that€duty;€(3)€an€injury€or€loss;€(4)Š ¬ü  Šcausation€in€fact;€and€(5)€proximate,€or€legal,€causation.šš€€ņņStaples€v.€CBL€&€Assocs.,€Inc.óó,€15€S.W.3dŠ ˜č  Š83,€89€(Tenn.€2000).Š „Ō  ŠĢą  ąą ` ąThe€State€argues€it€did€not€owe€a€duty€to€Mr.€Roark;€that€even€if€it€did€owe€a€duty,Š \¬ Šthere€was€no€breach;€and€that€Mr.€Silerššs€parking€the€TDOT€truck€on€the€shoulder€was€not€theŠ H˜ Šproximate€cause€of€the€accident.€€As€our€Supreme€Court€instructed€in€ņņRice€v.€Sabiróó:Š 4„ ŠĢą8  ąą ` ąIn€analyzing€duty,€the€court€must€balance€the€foreseeability€and€gravity€of€theŠ  \ Špotential€risk€of€harm€to€a€plaintiff€against€the€burden€imposed€on€the€defendant€inŠ ųH Šprotecting€against€that€harm.€€ņņMcClung€v.€Delta€Square€Ltd.€Partnershipóó,€937€S.W.2dŠ ä4 Š891,€902€(Tenn.€1996).€€A€š šrisk€is€unreasonable€and€gives€rise€to€a€duty€to€act€withŠ Š  Šdue€care€if€the€foreseeable€probability€and€gravity€of€harm€posed€by€defendantššsŠ ¼  Šconduct€outweigh€the€burden€upon€defendant€to€engage€in€alternative€conduct€thatŠ Øų Šwould€have€prevented€the€harm.šš€€ņņMcCall€v.€Wilderóó,€913€S.W.2d€150,€153€(Tenn.Š ”ä Š1995).Š€ŠŠ Š  ŠĢņņRice€v.€Sabiróó,€979€S.W.2d€305,€308€(Tenn.€1998)€(quoting€ņņMcCall€v.€Wilderóó,€913€S.W.2d€150,€153Š X Ø Š(Tenn.€1995)).€€š šThis€analysis€applies€even€when€the€injury„causing€condition€was€purportedly€openŠ D!” Šand€obvious.šš€€ņņIdóó.€at€309.€€Š 0"€  ŠĢą  ąą ` ąIn€the€case€at€hand,€Plaintiffššs€expert,€Mr.€Fitzgerald,€testified€that€the€Guide€statesŠ $X" Šš š[a]bout€thirty€percent€or€almost€one€in€every€three€fatalities€are€the€result€of€a€single€vehicle€run€offŠ ō$D # Šthe€road€crash.€€These€figures€mean€that€the€roadside€environment€comes€into€play€in€a€veryŠ ą%0!$ Šsignificant€percentage€of€fatal€and€serious€injury€accidents.šš€€He€also€testified€that€the€presence€ofŠ Ģ&"% Šrumble€strips€indicates€that€vehicles€leaving€the€travel€lanes€and€running€off€the€road€is€a€commonŠ ø'#& Šproblem.€€Further,€Mr.€Fitzgerald€testified€there€are€several€features€about€trucks€like€the€TDOT€truckŠ ¤(ō#' Šinvolved€in€the€accident€that€make€them€a€special€hazard,€including€the€fact€that€the€truck€bed€sitsŠ )ą$( Šhigh,€the€truck€is€fairly€rigid€or€strong,€and€the€truck€weighs€more€than€the€typical€car.€€Mr.€FitzgeraldŠ |*Ģ%) Šstated€these€features€make€the€potential€consequences€of€an€accident€involving€such€a€truck€and€aŠ h+ø&* Šcar€extremely€severe,€even€at€low€speeds.€€Given€these€facts,€it€was€foreseeable€a€car€could€leave€theŠ ° Štravel€lanes€and€run€onto€the€shoulder€of€the€road€and€that€a€collision€between€such€a€car€and€theŠ œģ ŠTDOT€truck€would€have€severe,€potentially€fatal,€consequences.€€Š ˆŲ ŠĢą  ąą ` ąFurther,€Mr.€Siler€testified€he€always€gets€over€in€the€grass€if€possible€and€there€wasŠ `° Šnothing€to€prevent€him€from€pulling€the€TDOT€truck€completely€onto€the€grass€median€on€that€dayŠ L œ Šat€that€site.€€Mr.€Siler€candidly€admitted€in€his€testimony€that€the€traffic€on€the€interstate€where€theŠ 8 ˆ Šaccident€occurred€was€š šreal€heavyšš€and€traveling€generally€around€70€miles€per€hour.€€He€furtherŠ $ t Šadmitted€that€this€high€speed,€real€heavy€traffic€caused€him€concerns€because€it€increased€the€risk.€Š  ` ŠClearly,€as€evidenced€by€his€policy€of€€always€pulling€onto€the€grass€if€possible,€Mr.€Siler,€as€wouldŠ ü L  Šany€reasonable€driver,€could€and€did€foresee€the€risk€of€parking€on€the€shoulder€and€the€potentialŠ č 8  Šgravity€of€harm.€€Even€though€the€injury„causing€condition,€the€parked€TDOT€truck,€purportedly€wasŠ Ō$  Šopen€and€obvious,€given€the€foreseeability€and€the€gravity€of€the€potential€harm,€the€State€owed€aŠ Ą  Šduty€to€Mr.€Roark€and€other€drivers€traveling€on€I„40.€€Š ¬ü  ŠĢą  ąą ` ąThe€duty€owed€to€Mr.€Roark€and€other€drivers€was€breached€when€Mr.€Siler€parkedŠ „Ō  Šthe€TDOT€truck€closer€to€the€travel€lanes€than€necessary€at€that€site.€€The€evidence€does€notŠ pĄ Špreponderate€against€the€Commissionššs€finding€that€the€TDOT€truck€was€parked€entirely€on€theŠ \¬ Šshoulder,€too€close€to€the€lanes€of€travel,€and€in€the€recovery€zone.€€Mr.€Silerššs€testimony€establishesŠ H˜ Šthat€there€was€no€reason€he€could€not€have€parked€the€truck€on€the€grass€median€and€it€was€his€usualŠ 4„ Špractice€to€do€so.€€Ō#†¼µ»XXKŁ‚#ŌŌ‡XKŁX»¼µŌAlthough€Mr.€Siler€violated€no€mandatory€standards€by€parking€where€he€did,€heŠ  p Šdid€not€act€as€a€reasonable€person€by€parking€entirely€on€the€shoulder€given€the€facts€in€this€case.€€Š  \ ŠĢą  ąą ` ąWe€in€no€way€mean€to€suggest€that€TDOT,€or€other€drivers,€always€must€pull€theirŠ ä4 Švehicles€completely€off€the€shoulder€or€be€in€violation€of€the€reasonable€person€standard.€€AŠ Š  Šdetermination€of€whether€the€reasonable€person€standard€has€been€violated€is€fact€driven€and€willŠ ¼  Šdepend€entirely€upon€the€specific€facts€of€each€particular€case.€€There€will€be€numerous€situationsŠ Øų Šwhere€it€is€either€impossible€or€unsafe€to€pull€a€TDOT€truck€or€other€vehicle€completely€off€theŠ ”ä Šshoulder.€€We€need€not€and€are€not€addressing€any€situation€except€the€one€posed€by€the€particularŠ €Š Šfacts€in€the€case€at€hand.€€Š l¼ ŠĢą  ąą ` ąThe€State€argues€Mr.€Roark€was€negligent€and€that€his€conduct,€not€Mr.€Silerššs,€wasŠ D!” Šthe€proximate€cause€of€the€accident.€€The€State€relies€upon€ņņBennett€v.€Putnam€County,€TennesseeóóŌ#†¼µ»XXKŁ£#ŌŌ‡XKŁX»¼µŌ,Š 0"€  Šin€which€this€Court€held€that€the€actions€of€an€ambulance€driver€in€parking€the€ambulance€were€notŠ #l! Šthe€proximate€cause€of€an€accident€because€the€car€that€struck€the€ambulance€left€its€travel€lane€andŠ $X" Šcrossed€into€the€on„coming€travel€lane€prior€to€striking€the€ambulance.€€ņņBennett€v.€Putnam€County,Š ō$D # ŠTennesseeóó,€47€S.W.3d€438€(Tenn.€Ct.€App.€2000).€€The€State€cites€to€ņņBennettóó€for€the€proposition€thatŠ ą%0!$ Šš š[t]he€general€rule€is€that€every€person€has€a€right€to€presume€that€every€other€person€will€do€his€dutyŠ Ģ&"% Šand€obey€the€law.šš€€ņņIdóó.€at€444€(quoting€ņņDonaho€v.€Largeóó,€158€S.W.2d€447,€451€(Tenn.€Ct.€App.Š ø'#& Š1941)).€€Š ¤(ō#' ŠĢą  ąą ` ąHowever,€in€ņņBennettóó,€this€Court€also€discussed€the€fact€that€š š[a]n€act€or€omission€willŠ |*Ģ%) Šnot€be€considered€a€proximate€cause€of€an€injury€if€a€reasonable€person€could€not€have€foreseen€orŠ h+ø&* Šanticipated€the€injury.šš€€ņņIdóó.€€In€ņņBennettóó,€the€ambulance€driver€could€not€have€foreseen€that€anotherŠ ° Šdriver€would€leave€the€unobstructed€eastbound€travel€lane,€cross€into€the€westbound€travel€lane,€andŠ œģ Šthen€collide€with€the€ambulance€which€was€parked€at€the€scene€of€a€previous€accident€with€its€lightsŠ ˆŲ Šon.€€ņņIdóó.€€In€addition,€the€ņņBennettóó€Court€noted€that€from€the€testimony,€it€appeared€the€driver€of€theŠ tÄ Šcar€that€left€its€travel€lane€š šsimply€did€not€have€her€vehicle€under€proper€control€and€was€notŠ `° Šdevoting€full€time€and€attention€to€the€driving€of€her€vehicle.šš€€ņņIdóó.Š L œ ŠĢą  ąą ` ąThe€case€at€hand€differs€significantly€from€ņņBennettóó.€€In€this€case,€as€discussed€above,Š $ t ŠMr.€Siler€could€reasonably€foresee€a€possible€injury€as€a€result€of€parking€the€TDOT€truck€on€theŠ  ` Šshoulder€at€this€heavy€and€high€speed€traffic€location.€€In€addition,€there€was€no€evidence€presentedŠ ü L  Šin€the€case€at€hand€as€to€why€Mr.€Roark€left€his€lane€of€travel€and€we€cannot,€and€will€not,€speculateŠ č 8  Šthat€he€was€not€devoting€full€time€and€attention€to€his€driving.€€As€such,€the€holding€in€ņņBennettóó€doesŠ Ō$  Šnot€control€this€case.€€We€hold€that€the€action€of€Mr.€Siler€in€parking€the€TDOT€truck€in€an€unsafeŠ Ą  Šposition€was€a€proximate€cause€of€the€accident.€€Š ¬ü  ŠĢą  ąą ` ąFinally,€we€consider€whether€Ō#†¼µ»XXKŁØ#ŌŌ‡XKŁX»¼µŌthe€evidence€preponderates€against€the€CommissionššsŠ „Ō  Šfinding€that€Mr.€Roark€was€less€than€fifty€percent€at€fault€for€the€accident.€Ō#†¼µ»XXKŁŹ²#ŌŌ‡XKŁX»¼µŌą  ąThe€Stateššs€appellate€briefŠ pĄ Šargues€that€the€fact€that€Mr.€Roarkššs€vehicle€left€the€travel€lanes€š šcreates€a€presumption€ofŠ \¬ Šnegligencešš€and€that€given€the€evidence€that€Mr.€Roarkššs€vehicle€left€the€travel€lanes€š štheŠ H˜ Špresumption€that€a€deceased€person€was€acting€with€due€care€disappears.šš€€Expressing€no€opinionŠ 4„ Šabout€whether€these€contentions€are€correct,€we€note€the€Commission€did€find€Mr.€Roark€to€haveŠ  p Šbeen€negligent€and€to€have€been€45%€at€fault€for€the€accident.€€€Significant€fault€was€assigned€to€Mr.Š  \ ŠRoark.€€Thus,€we€need€not€discuss€any€further€the€Stateššs€assertions€regarding€such€presumptions.€Š ųH ŠĢą  ąą ` ąThe€State€cites€to€ņņEaton€v.€McLainóó,€in€which€our€Supreme€Court€presented€a€list€ofŠ Š  Šfactors€that€a€trier€of€fact€may€consider€when€assigning€fault.€€ņņEaton€v.€McClainóó,€891€S.W.2d€587Š ¼  Š(Tenn.€1994).€€These€factors€include:Š Øų ŠĢą8  ą(1)€the€relative€closeness€of€the€causal€relationship€between€the€conduct€of€theŠ €Š Šdefendant€and€the€injury€to€the€plaintiff;€(2)€the€reasonableness€of€the€partyššs€conductŠ l¼ Šin€confronting€a€risk,€such€as€whether€the€party€knew€of€the€risk,€or€should€haveŠ X Ø Šknown€of€it;€(3)€the€extent€to€which€the€defendant€failed€to€reasonably€utilize€anŠ D!” Šexisting€opportunity€to€avoid€the€injury€to€the€plaintiff;€(4)€the€existence€of€a€suddenŠ 0"€  Šemergency€requiring€a€hasty€decision;€(5)€the€significance€of€what€the€party€wasŠ #l! Šattempting€to€accomplish€by€the€conduct,€such€as€an€attempt€to€save€anotherššs€life;Š $X" Šand€(6)€the€partyššs€particular€capacities,€such€as€age,€maturity,€training,€education,Š ō$D # Šand€so€forth.Šą%0!$Š Š  ŠĢņņIdóó.€at€592€(footnotes€omitted).€€However,€the€ņņEatonóó€Court€specifically€stated€that€these€factors€areŠ ø'#& Šnot€exclusive€and€š šthe€percentage€of€fault€assigned€to€each€party€should€be€dependent€upon€all€theŠ ¤(ō#' Šcircumstances€of€the€case€.€.€.€.šš€€ņņIdóó.€€Š )ą$( Šā āŠ |*Ģ%) Šą  ąą ` ąAn€analysis€of€the€facts€of€this€case€applying€the€ņņEaton€óófactors€shows€there€is€a€directŠ ° Šā ācausal€relationship€between€the€conduct€of€Mr.€Siler€in€parking€the€TDOT€truck€completely€on€theŠ œģ Šshoulder€and€the€injuries€to€Mr.€Roark.€€There€was€no€reason€Mr.€Siler€could€not€have€parked€theŠ ˆŲ Štruck€completely€off€the€shoulder€on€the€grass€median€at€this€site.€€The€evidence€in€the€record€beforeŠ tÄ Šus€is€that€if€Mr.€Siler€had€parked€the€truck€completely,€or€even€half€of€the€truck,€on€the€grass€median,Š `° Šthe€collision€would€not€have€occurred.€€The€evidence€shows€Mr.€Siler€was€aware€of€the€risk€inŠ L œ Šparking€entirely€on€the€shoulder€as€evidenced€by€his€testimony€that€it€was€his€usual€practice€to€pullŠ 8 ˆ Šthe€truck€onto€the€grass€if€possible.€€In€addition,€Mr.€Siler€failed€to€reasonably€utilize€an€existingŠ $ t Šopportunity€to€avoid€injuring€others.€€Mr.€Silerššs€testimony€was€that€the€grass€median€at€the€accidentŠ  ` Šsite€is€wide€and€on€that€day€was€dry€and€there€was€no€reason€he€could€not€have€pulled€the€TDOTŠ ü L  Štruck€entirely€onto€the€grass€median.€€The€State€argues€that€Mr.€Roark€could€have€avoided€theŠ č 8  Šaccident€by€staying€in€his€travel€lane.€€However,€as€discussed€above,€even€though€the€record€is€devoidŠ Ō$  Šof€evidence€showing€why€Mr.€Roark€left€his€lane€of€travel,€the€Commission€did€allocate€45%€of€theŠ Ą  Šfault€to€him.€€The€fourth€ņņEaton€óófactor€is€not€applicable€to€this€case.€€The€fifth€factor,€whenŠ ¬ü  Šconsidered,€shows€that€Mr.€Silerššs€task€of€litter€pick„up,€while€useful€and€necessary,€could€not€beŠ ˜č  Šconsidered€to€be€a€significant€one,€such€as€an€attempt€to€save€the€life€of€another,€as€the€litter€thenŠ „Ō  Šbeing€picked€up€was€off€the€road€completely.€€As€for€the€final€ņņEatonóó€factor,€Mr.€Siler€was€trained€toŠ pĄ Šdo€his€job€by€riding€the€roads€with€more€experienced€employees€and€the€evidence€shows€heŠ \¬ Šunderstood€the€dangers€and€risks€inherent€in€parking€the€TDOT€truck€on€or€near€the€highway.€€Thus,Š H˜ Šthe€analysis€of€the€facts€of€this€case€applying€the€ņņEatonóó€factors€supports€the€CommissionššsŠ 4„ Šassignment€of€fault.Š  p ŠĢą  ąą ` ąŌ#†¼µ»XXKŁ„³#ŌŌ‡XKŁX»¼µŌOther€evidence€presented€in€the€case€also€supports€the€Commissionššs€apportionmentŠ ųH Šof€fault.€€Mr.€McFarland,€a€witness€to€the€accident,€testified€the€TDOT€truck€was€parked€entirely€onŠ ä4 Šthe€shoulder€and€not€on€the€grass€median.€€He€also€stated€that€it€looked€to€him€like€the€right€side€ofŠ Š  Šthe€TDOT€truck€was€š šright€by€the€rumble€strips.šš€€Ō#†¼µ»XXKŁŽĘ#ŌŌ‡XKŁX»¼µŌThe€evidence€showed€that€rumble€strips€areŠ ¼  Šdesigned€to€alert€a€driver€who€has€left€the€travel€lane.€€Mr.€Fitzgerald,€Plaintiffššs€expert,€testified€thatŠ Øų Šthe€presence€of€rumble€strips€indicates€that€vehicles€leaving€the€travel€lanes€and€running€off€the€road€Š ”ä Šis€a€common€problem.€€Ō#†¼µ»XXKٵČ#ŌŌ‡XKŁX»¼µŌMr.€Fitzgerald€opined€that€Mr.€Silerššs€TDOT€truck€was€located€entirely€onŠ €Š Šthe€shoulder€at€the€time€of€the€accident€parked€with€its€right€side€approximately€two€and€a€half€feetŠ l¼ Šfrom€the€edge€of€the€lane€of€traffic.€€Ō#†¼µ»XXKŁMŹ#ŌŌ‡XKŁX»¼µŌThe€Commission€found€the€truck€was€too€close€to€the€travelŠ X Ø Šlanes€and€that€it€was€in€the€recovery€zone.€€Ō#†¼µ»XXKŁ‘Ė#ŌŌ‡XKŁX»¼µŌThe€evidence€does€not€preponderate€against€theseŠ D!” Šfindings.Š 0"€  ŠĢą  ąą ` ąMr.€McFarland,€who€witnessed€both€the€accident€and€Mr.€Roarkššs€driving€just€priorŠ $X" Što€the€accident,€testified€that€Mr.€Roark€was€not€speeding,€weaving€in€and€out€of€traffic,€tailgating,Š ō$D # Šor€driving€erratically.€€Mr.€McFarland€testified€that€when€Mr.€Roark€moved€from€the€center€lane€toŠ ą%0!$ Šthe€left€lane,€it€was€safe€for€him€to€do€so.€€Ō#†¼µ»XXKŁOĢ#ŌŌ‡XKŁX»¼µŌPlaintiffššs€expert€testified€that€the€skid€mark€showed€thatŠ Ģ&"% ŠMr.€Roark€took€collision€avoidance€and€had€steered€to€the€right,€back€toward€the€travel€lane.€€TheŠ ø'#& Ševidence€does€not€preponderate€against€the€Commissionššs€finding€that€Mr.€Roark€was€less€than€fiftyŠ ¤(ō#' Špercent€at€fault€for€the€accidentŌ#†¼µ»XXKŁ–Ī#ŌŌ‡XKŁX»¼µŌ€and,€therefore,€we€affirm€the€Commissionššs€findings€allocating€fault.€Š )ą$( ŠĢŌ#†¼µ»XXKŁ=Š#ŌŌ‡XKŁX»¼µŌŠ h+ø&* ЇĢÓ  Óņ ņņņConclusionóóó óŠ œģ ŠÓ  ÓĢņ ņŌ‡Xg XXXKŁŌó óą  ąŌ#†XKŁX XXg\Ń#Ōą ` ąThe€judgment€of€the€Commission€is€affirmed,€and€this€cause€is€remanded€to€theŠ tÄ ŠCommission€for€collection€of€the€costs€below.€€The€costs€on€appeal€are€assessed€against€theŠ `° ŠAppellant,€the€State€of€Tennessee.ņ ņó ó€Š L œ ŠĢĢĢĢĢĢĢŌ#†¼µ»XXKŁßŠ#ŌŌ€XKŁX»¼µŌą  ąą ` ąą ø ąą  ąą h ąą Ą ąą  ą___________________________________€Š ¬ü  Šą  ąą ` ąą ø ąą  ąą h ąą Ą ąą  ąD.€MICHAEL€SWINEY,€JUDGE