Is Park Service liable for barracuda attack?
April 11th, 2012
The 3rd Circuit yesterday gave a primer on the National Park Service’s duty to warn of the dangers of natural hazards in the case of a swimmer attacked by a barracuda in the Virgin Islands.
Twelve-year-old S.R.P. didn’t have a care in the world on May 9, 2004. The boy and his mom were enjoying the beach at Buck Island. The island is part of the National Park System and is located off the northeast coast of St. Croix in the U.S. Virgin Islands.
S.R.P. was sitting on the beach with his feet in shallow water when he was attacked by a barracuda. Evidently, the barracuda mistook S.R.P.’s toes for prey. It’s not a common occurrence – barracudas don’t usually attack humans – but it does happen.
The boy suffered a severely lacerated foot in the attack. His third and fourth toes were nearly severed and surgery was required to save them.
Because the attack happened on government land, S.R.P. wants the U.S. taxpayer to pay his medical bills and otherwise compensate him for his troubles. So S.R.P. through his mom sued under the Federal Tort Claims Act, alleging that the Park Service negligently failed to warn of the dangers that barracudas pose to shallow water bathers.
Now, the Park Service’s signage and informational brochures for Buck Island warn visitors that “[b]arracuda and sharks, if encountered, should be treated with caution but are not usually aggressive toward snorkelers.”
But S.R.P. claimed that this warning wasn’t specific enough for those enjoying the shallow waters of the beach.
The Park Service countered that its warning was more than adequate, particularly in light of the fact that there was only one other recorded instance of a barracuda biting a human in the vicinity of Buck Island in the previous 22 years, and the victim in that incident was a fisherman offshore.
The U.S. District Court for the Virgin Islands dismissed the case, concluding that the government was immune under the discretionary function exception to the FTCA.
S.R.P.’s appeal prompted the 3rd Circuit to conduct an in-depth examination of the discretionary function exception in the context of the government’s obligation to warn of the dangers of natural hazards. Yesterday’s decision by the 3rd Circuit upheld the dismissal of S.R.P.’s lawsuit.
Circuit Judge D. Michael Fisher authored the opinion. As a threshold issue, the judge concluded that there was no statute, regulation, or other policy that required the Park Service to warn of hazardous conditions in a specific manner. He explained that this meant that Park Service officials “are explicitly vested with broad discretion regarding the manner in which to warn the public of dangerous conditions in national parks.”
Next, the judge tackled the issue of whether the discretionary judgment afforded to the Park Service was of a kind that the FTCA’s discretionary function exception was designed to shield. Fisher decided that the warnings at issue in this case plainly fell within the scope of the policy making that the Act was designed to protect:
[K]nowing that it could not warn of every potential hazard at Buck Island, the [Park Service] decided to focus on those it reasonably believed posed the most significant threat to visitors. Moreover, too many warning signs and brochures “would inevitably reduce the impact of the individual warnings on the public,” as would excessive warnings on any individual sign. Once an agency identifies a hazard, it “must then balance that risk against the cost of warning about that hazard and the possibility of overloading visitors with unnecessary warnings.” Such a judgment represents precisely the type of policy choice that the discretionary function exception prohibits us from second-guessing.
Fisher did throw the plaintiffs’ bar a bone, recognizing that “where the Government is aware of a specific risk of harm, and eliminating the danger would not implicate policy but would involve only garden-variety remedial measures, the discretionary function exception does not apply.”
But the judge decided that this rule didn’t help S.R.P., explaining that the record supported the district court’s conclusion that the Park Service was not aware of a specific risk.
“The key question under [our precedents] is not whether the Government was aware of danger in the most general sense, but whether it was on notice of a specific hazard,” he said. “With no shoreline barracuda attacks in the twenty-two years preceding the attack on S.R.P., the District Court did not err in finding that [Park Service] officials had no knowledge that such an attack was likely.” (S.R.P. v. National Park Service)
– Pat Murphy



