WPC0 MF)9(iy긯Ǹ7* G7.}d%Z7;2Ԫ+zvF2/6Vz+O.9.{Hրp>"<D;8]?V0*j:K/}Z6js-gG><2gn''K W4;UgOO>Ahs"%+ bdA@)4 Β9Rc{ǚRx Kv[H|J ^Nb|H̪R<ʺ'g[OMq~ XŚuY޾{LNJc,v޳`qb#=h=P_5NƂk>StX3k_JA\ oU2J*ak8zVv!˓l*~}ԲL⠶~_[y;iNE?](M[[ >ep%gn!D#UQNy % 0(U'*U>UB@]^ w4 m--, Y -NIII 0lKz 0O$ 0% 0F%% 04& 06+'a' 0C'( 0(j( D+( AM((((U> ) ) ) 0PH) B-*** 0x*** 0=, 0 B, 0--- 0C..... 0:/ 0/HP LaserJet 4050 Series PCL 6,,,,0(9 Z6Times New Roman RegularX($\  `Times\  `&Times New Roman(I Z(Times New Roman   ѽv-s ,-i+{93|xU ##CXd# ##CXd# _    hX2#XX+#9%XXOtherrelevantprovisionsinclude:(1)Rule1240430.01(2),whichprovidesthatthepurposeoflicensingis  forthe protectionofchildren.Theseminimumrequirementsseektomaintainadequatehealth,safety,andsupervision  ofchildrenwhileinchildcare;(2)Rule124043.07(1)(a),whichstatesthat [t]heboard,owner,applicant/licensee, ` orotherdesignatedagentofthechildcarecentershallberesponsibleforselectingindividualsofsuitablecharacterto $t workwithchildren;(3)Rule124043.07(1)(b),whichprovidesthat [t]hedirector,withtheguidanceoftheboard 8 orownerofthecenter,shallberesponsibleforstaffandprogramandthedaytodayoperationofthecenter;and(4)  Rule124043.10(5)(a),whichrequiresemployeestoundergospecializedtrainingtopreventandreportincidentsof p  childabuse.Specifically,itstatesthat"[_s]uspected_Ԁchildabuseorneglectshallbereportedimmediatelytothelocal 4  DepartmentofChildrensServicesofficebythestaffofthechildwelfareagency."#XX9%r#  H  ##CXd#((3$ !      0   _    XX1#XX(#9%hXThisCourt,atitsdiscretion,may answerquestionsoflawcertifiedtoitbytheSupremeCourtoftheUnited  States,aCourtofAppealsoftheUnitedStates,aDistrictCourtoftheUnitedStatesinTennessee,oraUnitedStates t BankruptcyCourtinTennessee.Swaffordv.Harris,967S.W.2d319,320n.1(Tenn.1998)(quotingTenn.Sup.Ct. 8 R.23,1).Therulesgoverningcertificationareproperlyinvokedwhen thecertifyingcourtdeterminesthat,ina L proceedingbeforeit,therearequestionsoflawofthisstatewhichwillbedeterminativeofthecauseandastowhichit  appearstothecertifyingcourtthereisnocontrollingprecedentinthedecisionsoftheSupremeCourtofTennessee.  Id.󀀀#XX9%o# _  hX3#XX#9%XXWedescribedtheincidentasfollows:#XX9%f#XX   @  @  @    B @ 9%9%9%  9%` ` hp u X9BK  .9%9%therecordshowsthatRobertJ.Mosley(adriverforChecker)beganworkat5:30  a.m.andreported offdutybyradioatapproximately9:20p.m.Shortlyafter  reporting offduty,andwhileenroutehome,Mosleyshighspeedattractedthe J attentionofCityofLakewoodpoliceofficers.Ahighspeedchaseensued.The ^ chaseendedatabout10:05p.m.whenMosleycollidedwithavehicleoperatedby " MichaelC.Gleaves.Gleavessustainedseriousinjuries.BK݌   Ќ @ ..9%..   @  @  @ #.#   E+ ` hp x ` ` Xu[E8 @ 9%9%9%  8  .9%9%15S.W.3dat801.#9%.9%##XX9%#8݌ Z  Ќ @ XX   _    XX4#XX(#Ԁ9%XXWedeterminedthat [t]heordinancedidnotdistinguishbetweencaseswhenadriverisonduty,andactively  transportingorseekingpassengersoroffduty.Tohavereadtheordinanceasdistinguishingbetweenondutyand  offdutywouldhaveimproperlydilutedthemeaningofthelanguage,andundulyrestrictedtheordinancesintended ` scope._15_ԀS.W.3dat803.#XX9%r# _    hX5#XX+#9%XXForexample,theterm ultimateresponsibilityisfoundintheregulationsgoverning:nursinghome  administrators(Tenn.Comp.R.&_Regs_.R.12001.16(1));solidwastestorage,processing,anddisposalfacilities  (Tenn.Comp.R.&_Regs_.R.120017.02(5)(a)(2)(_i_));hazardouswastetreatment,storage,anddisposalfacilities,(Tenn. ` Comp.R.&_Regs_.R.1200111.07(9)(b)(2)(_i_));hospitals,nursinghomes,andassistedlivingcenters(Tenn.Comp.R. $t &_Regs_.R.120081.02(3)(a));homehealthcareorganizations(Tenn.Comp.R.&_Regs_.R.120088.02(5)(e)(1));and 8 birthingcenters(Tenn.Comp.R.&_Regs_.R.1200824.02(3)(a)).Theregulationsgoverningthesebusinessesare  similarincontenttothosegoverningdaycarefacilitiesandlikewisefailtomentionliabilityorinjuriestothirdparties. p  Thus,iftheterm ultimateresponsibilityweresynonymouswithvicariousliability,theprecedingorganizationswould 4  beliableforthecriminaland/orintentionalactsoftheiremployees.Wecannotconcludethatsucharesultwasintended  H bythegovernmentalbodieswhodraftedtheserules.#XX9%r#6? 24heading 1           6< /4heading 3              6~ 4heading 5    ?\  `Times?     S\  `&Times New RomanS   .,term1 0.Strong  Level 1 Level 2 Level 3 Level 4 Level 5(2C$ !  ($'dxd&'()A<< c\  `&Times New Roman6 4heading 4    2( ` hp x 2         2( ` hp x 2)Hairline d6 4heading 2    ?\  `Times?     S\  `&Times New RomanS  <$$:footnote tex    <:footnote ref86Block Text      /%` ` hp x /?\  `Times?  S\  `&Times New RomanS   5+ ` hp x 5  ($    <$$:footnote te1    :WW8Body Text 2  X        X !  _XXXXXX  OYz zz=XXdd=INTHESUPREMECOURTOFTENNESSEE  #XXJ#i9%XX& L !     e9% e e    !  #XX e_#XXATNASHVILLE#XXJ#B  XX#+####XX# eXX#XX e|#XXԍATNASHVILLEATKNOXVILLEC  #(# i#XX#XX!݌ & Ќ  9%9%9%   #XX9%|# eXX!     e e e e    !l  #XX eM#XXOctober2,2002Session#XX,#XXԀ#XX#B  XX#'####XX# eXX#XX eԫ#XXԍOctober2,2002SessionSeptember5,2002SessionC  #W# i#XX#XX'L~!l݌ L Ќ   e e e   #XX e# eXX#XX eԧ # XX  JOHNHOUGHTON,#XX #ETALXX.#XXO #VXX._ARAMARK_ԀEDUCATIONALRESOURCES, \  INC. #XX #XX p   #XX2 #9%XX&    "    9%~L  ~L    #n#"   #XX #XXXXXXXXRule23CertifiedQuestionofLaw"   x Ԍ   Ќ  9%XX9%9%    XX9% UnitedStatesDistrictCourtfortheMiddleDistrictofTennessee   '   #XXXX ##XX3 #      XXHon.Thomas_Wiseman_,SeniorJudge#XX"#     9%  __________________________________________ B      #9%#  XXNo.M200200289SCR23CQFiledNovember22,_2002#XX#_Ԁ9%  #9%0#______________________________ *    XXPursuanttoTennesseeSupremeCourt$   Rule_23,$B  weacceptedcertificationofaquestionoflawfrom f theUnitedStatesDistrictCourtfortheMiddleDistrictofTennesseeconcerningregulationsissued V bytheTennesseeDepartmentofHumanServices.Thecertifiedquestionfromthedistrictcourtasks B ustodeterminewhethertherationaleofstatutorilyimposedvicariousliabilityunder_Gleaves_Ԁv. . CheckerCabTransitCorp.,15S.W.3d799(Tenn.2000),appliestorulesgoverninglicensingand  operationofdaycarecentersinTennessee.Forthereasonsgivenherein,weanswerthatourholding  in_Gleaves_isdistinguishablefromthepresentcase,andtheTennesseeregulationsgoverningday  carecentersdonot,absentfaultonthepartofthelicensee,provideforvicariousliabilityforthe  injuriousactsofanemployeeoccurringoutsidethescopeofemployment.#XX# z   XXTennesseeSup.Ct.R.23CertifiedQuestionofLaw#XX#  x!   XX.WilliamM.Barker,J.,deliveredtheopinionofthecourt,thepanelofwhichconsistedofFrank $  F._Drowota_,III,C.J.,E.RileyAnderson,_Adolpho_ԀA.Birch,Jr.,andJaniceM.Holder,JJ. t% !   F._Dulin_ԀKellyandAndyL._Allman_,_Hendersonville_,Tennessee,forthepetitioners,JohnHoughton, L'"# etal. 8(#$ CarolP.Michel,HelenM._Donnelly_,Atlanta,Georgia,andRebeccaWells_Demaree_,Nashville, *`%& Tennessee,fortherespondent,_Aramark_ԀEducationalResources,Inc.#XX# *L&'  ,J() z 8XXdd8    XX  OPINIONB  #XXM##.######r#ԍOPINIONOPINIONC  XX#XXXX0#XXXX  l     9%XX    XX9%   %  FACTUALBACKGROUND%)#  ݀B  C  %  B  #XX##A##' ###9%#9% #ԍFACTUALBACKGROUND%X+  # #9%#9%f!#9%#9%9%i #9%9%#9%9%!#9%9%#9%!#9%#9%n"##,"##"##"#9%#9%v##ԍFACTS###9%#9%$#9%#9%9%4##9%9%C  XX9%  ݌  Ќ    XXXX    Thepetitioners,JohnHoughtonandhiswifeMelissaHoughton,broughtthissuit ` individually,andasguardiansandnextfriendsoftheirminordaughter,referredtoas JaneDoe. L  Therespondent,AramarkEducationResources,Inc.(Aramark),ownsandoperatesnumerousday 8  carefacilitiesthroughouttheUnitedStates.AramarkdoesbusinesswithinTennesseeas Childrens $ t WorldLearningCenter,Inc.  `   Inthesummerof1999,theHoughtonsenrolledtheirinfantdaughterintheChildrensWorld  8  LearningCenterlocatedintheDonelsonareaofNashville,Tennessee.InJanuaryof1999,Aramark $  hiredDanielTowerytoworkatitsDonelsonlocation.Mr.Toweryassistedorsupervisedchildren   duringactivitiesandcounseledchildrenwhensocial,academic,orotherbehavioralproblemswere   encountered.Additionally,Mr.Toweryassistedintoilettraininganddiaperingthechildren,   includingJaneDoe.AramarkterminatedtheemploymentofMr.ToweryinJulyof1999.     TheHoughtonsallegethatbetweenJanuaryof1999andJulyof1999,Mr.Towerycommitted \ vileandlewdsexualactsagainstJaneDoe.InMarchof2000,Mr.Towerypleadedguiltytotwo H countsofchildrapeandthreecountsofaggravatedsexualbattery.Theseoffensesoriginatedfrom 4 Mr.TowerysunlawfulsexualcontactwithsixchildrenenrolledatAramarksDonelsonfacility.  p Mr.ToweryconfessedtoabusingcertainchildrenattheDonelsonfacility,butdeniedevermolesting  \ orotherwiseabusingJaneDoe. H   ShortlyafterMr.Towerysarrest,theHoughtonsfiledsuitagainstAramarkonbehalfofJane   DoeintheCircuitCourtofDavidsonCounty,Tennessee.Thesuitwasvoluntarilynonsuited,and   asubsequentsuitwasfiledinfederaldistrictcourt.TheHoughtonsassertedacauseofactionbased  uponthetheoriesofrespondeatsuperior,negligenthiringandsupervision,andstatutoryliability  underapplicableregulationsandstatutes.InresponsetoAramarksmotionforpartialsummary  judgment,thedistrictcourtissuedacertificationordertothisCourt.Thecertifiedquestionasks l whethertherationaleofstatutorilyimposedvicariousliabilityunderourholdinginGleavesv. X  CheckerCabTransitCorp.,15#XXXX$#ԀS.W.3d799(Tenn.2000),appliestotherulesgoverninglicensing D! andoperationsofdaycarecentersinTennessee. 0"    =XXdXXd=ANALYSIS  $X"     Webeginouranalysisbyacknowledgingthat themostbasicprincipleofstatutory %0!$ constructionistoascertainandgiveeffecttothelegislativeintentwithoutundulyrestrictingor &"% expandingastatutescoveragebeyonditsintendedscope.Owensv.State,908S.W.2d923,926 '#& (Tenn.1995);Statev.Sliger,846S.W.2d262,263(Tenn.1993).Additionally, statutesin (#' derogationofthecommonlawaretobestrictlyconstruedandconfinedtotheirexpressterms. )$( Ezellv.Cockrell,902S.W.2d394,399(Tenn.1995)(citingCardwellv.Bechtol,724S.W.2d739, |*%) 744(Tenn.1987)).Strictconstructionamountstoa recognitionofapresumptionagainst_the h+&* OY    legislaturesintentiontochangeexistinglaw.Jordanv.ThreeRiversBaptistChurch,984S.W.2d  593,599(Tenn.1999).Thus,commonlawisnotdisplacedbyalegislativeenactment,excepttothe  extentrequiredbythestatuteitself.See_Lavin_Ԁv._Jordon_,16S.W.3d362,368(Tenn.2000).We  notethatthisCourthasappliedthesegeneralrulesofstatutoryconstructiontorulesandregulations t draftedbyadministrativeagencies,pursuanttoalegislativedelegationofpower.SeeConsumer ` AdvocateDiv.v.Greer,967S.W.2d759,762(Tenn.1998).However,whenlanguagewithina L  statuteisambiguous,andthepartieslegitimatelyderivedifferentinterpretationsfromidentical 8  language,wemustlooktotheentirestatutoryframeworktodeterminelegislativeintent.SeeJordan, $ t 984S.W.2dat599(citingOwens,908S.W.2dat926).  ` 2 l<`   Weareaskedbythedistrictcourt9  99   =  1      ׀toconstrueregulationsgoverningthelicensureand  8  administrationofdaycarefacilities,inlightofourdecisionin_Gleaves_,namely,Rules124043.01, $  etseq.,oftheTennesseeDepartmentofHumanServicesSocialServicesDivision(_DHS_).These   ruleswereenactedbythe_DHS_ԀpursuanttoTennesseeCodeAnnotatedsections713501,etseq.,   whichveststhe_DHS_Ԁwithauthoritytolicenseandregulatechildcareagencies.Theregulatory   languageinRule124043.02citedinthefederaldistrictcourtscertificationorderprovidesthe   followingdefinitions: p ` ` (4) CentralOperatorTheindividual(s)...who...owns, \ administers,oroperatesachildcaresystem.Thecentraloperators H shallhaveultimateresponsibilityfortheadministration/operationof 4 anyorallchildcarehomesandchildcarecentersinthesystem....  p (20) LicenseeTheperson...orentitytowhomalicenseto H operateachildcarecenterisissuedandwhoshallassumeultimate 4 responsibilityforthechildcarecenter.   ` ` ?+ ` hp x X?_(Emphasis_Ԁadded).    XThepetitionerscontendthattheseandother9  9KAX  ݀_DHS_Ԁregulations_  =  2      _Ԁrequireustofind_Aramark_  vicariouslyliableforthecriminalactsofMr._Towery_.Specifically,petitionersarguethatunderthe  _rationaleexpressedin_Gleaves_,_Aramark_ԀisvicariouslyliableforMr._Towery_sactsbecause_DHS_  mandatesthatdaycarecenterlicenseesassume ultimateresponsibilityfortheirfacility.  Respondentarguesthatthislanguageispurelydefinitionalinnatureandthatpetitionersreliance t uponourdecisionin_Gleaves_ismisplacedbecausenosubstantivesimilaritybetweentheapplicable ` ordinancesin_Gleaves_andtheinstantcaseisdiscernable. L   8  Inordertofullyexplainandcontrastthe_DHS_Ԁregulationswiththoseatissuein_Gleaves_,a $ t briefreviewofthatdecisioniswarranted.Theprimaryissuein_Gleaves_waswhethertheCodeof  ` theMetropolitanGovernmentofNashvilleandDavidsonCounty(Metro.Code)imposedliability  L  uponCheckerCabTransitCorporation,Inc.(Checker)forinjuriestoathirdpartycausedbythe  8  negligenceofoneofCheckerscontractdriverswhowasoffdutyatthetimeoftheincident.9  9HX   =  3      ׀See $  _Gleaves_,15S.W.3dat80001.Themunicipalordinanceatissuein_Gleaves_requiredCheckertofile   liabilityinsuranceagreementsforeachautomobileinitsfranchise.Theseagreementsprovidedthat   Checkerwouldbe liableforanypersonalinjuriesorpropertydamagetothirdpartiesastheresult   ofthenegligentuseofthesevehicles.Id.at800n.2.Inaddition,theordinanceprovidedthatthese   agreements shallplacethevehicleoperatedunder[the]franchisein[Checkers]complete p possessionandcontrol,andthetaxicabcompanyshallassumecompleteliabilityforeachvehicle \ initsfleet.Id.at800n.1(emphasisadded).Wefoundthislanguagetobe plain,clear,and H unambiguous.It_require[d_]thatallcertifiedtaxicabcompaniesassumecompleteliabilityforeach 4 vehicleforwhichitentersintoaliabilityinsuranceagreement.9  9.NX  - =  4      ׀Id.at803.Importantly,vicarious  p liabilityonthepartofCheckerwasnotbaseduponthetheoryofrespondeatsuperior.Ourdecision  \ in_Gleaves_restedsolelyupontheunambiguouslanguagecontainedwithinthemunicipalordinance H andinsuranceagreement. 4    C  XX  XX  XXC^P  ThefederaldistrictcourtinthiscasehasheldthatthecriminalactsofMr._Towery_Ԁoccurred   outsidethescopeofhisemployment,thuseliminatingthepetitionerscontentionthat_Aramark_Ԁmay  beheldliableunderthetheoryofrespondeatsuperior.Therefore,if_Aramark_Ԁweretobeheldliable  fortheactsofMr._Towery_Ԁbasedsolelyuponthelanguagecontainedwithinthe_DHS_Ԁregulations,   suchaholdingwouldbeincontraventionofTennesseecommonlaw.Accordingly,wefindthat_the l _DHS_Ԁregulationsmustbeconstruedinlightoftheaforementionedprinciplesofstatutory  construction,principallythatstatutesinderogationofthecommonlawbestrictlyconstrued.C^PQ݌     XXXX   XX  ݀  Afterconductingathoroughreviewofrelevant_DHS_Ԁregulations,wefindnointentonthe t partof_DHS_Ԁtoalter,amend,orotherwisecontravenethecommonlawrelatingtovicariousliability. ` Indeed,baseduponourinterpretationofthe_DHS_Ԁregulationsinlightofthedoctrineofstrict L  construction,wefindourdecisionin_Gleaves_clearlydistinguishable.Thelanguageatissuein 8  _Gleaves_wascontainedwithinthedirectiveportionofthecode.Itunambiguouslyaddressedissues $ t ofliability,personalinjuries,propertydamagetothirdparties,andcausationoccurringthroughthe  ` negligenceofCheckeroritsemployees.Hence,weconcludedthattheMetropolitanGovernment  L  ofNashvilleexpresseditsintent,intheunambiguouslanguageoftheordinance,toimposeliability  8  ontheprincipalfortheactsofitsagentwithoutregardtocommonlaw.Instarkcontrast,the $  relevant_DHS_Ԁprovisionsaredevoidofsimilarunambiguouslanguage.Whiletheterm ultimate   responsibilitycanlogicallybeconstruedasbeingsynonymouswithliability,wefindthisterm   ambiguousandsubjecttoconflictinginterpretations.Accordingly,wedonotconstruethecontested   languagealoneordisassociatedfromitsframework,butexaminetheappropriatecontextand   traditionalusageoftermsbythelegislature.Theterm ultimateresponsibilityisfoundunderthe p headingof Definitionsandrefersexplicitlytoadministrationandoperationsofchildcarefacilities. \ Thetermissurroundedbyrepeatedreferencestolicensing,administration,andoperational H guidelines.If_DHS_Ԁhadintendedtocontravenecommonlawbyimposingstrictvicariousliability 4 onchildcarefacilities,suchamandatewouldextendfromthedirectivesofthelegislationandnot  p fromthedefinitionalportion.Also,therespondentcorrectlynotesthattheterm ultimate  \ responsibilityisroutinelyusedinnumerousdefinitionalprovisionsgoverningbusinessesin H Tennessee,withoutprovidingfordirectorvicariousliability.5ecenterlic =  5      ׀Intheabsenceofdirectlanguageto 4 thecontrary,wefindthatthedeliberateuseoftheterm ultimateresponsibilitycannotreasonably   beconstruedasbeinglegallysynonymouswithunlimitedvicariousliability.     <( ` hp x X< X  1    ?( ` hp x ` X? XX    XX1hb  CONCLUSION1hb^c cԌ  Ќ  XXXX   $ ` X` X$    B+ ` hp x ` XB  ӀWeconcludethatapplicable_DHS_Ԁregulationsdonot,intheabsenceoffaultonthepartofa l licensee,provideabasisforvicariousliabilityforthecriminalactsofanemployeethatoccuroutside X  thescopeofemployment.ToholdotherwisewouldcontraveneTennesseecommonlawand D!  establishedrulesofstatutoryconstruction.Accordingly,weanswerthedistrictcourtscertified 0"  questioninthenegativeandreiteratethatstatutorilyimposedvicariousliabilityunder_Gleaves_does  notextendtothe_DHS_ԀrulesregardingthelicensingofdaycarecentersinTennessee.      `     h      p    `     h     __________________________________ 8     `     h     WILLIAMM.BARKER,JUSTICE $ t   5    XX      5i