Defendant city of Los Angeles appeals from a judgment entered upon a verdict of $5,000 in favor of plaintiff for personal injuries sustained when she tripped and fell on a broken sidewalk within defendant’s territorial limits.
The accident occurred on Cannery Street, Terminal Island, in the Harbor District of the city of Los Angeles. Cannery Street extends east and west and is 100 feet wide between property lines. It is intersected by Tuna Street, which extends north and south and is 40 feet wide. The condition of the sidewalk of Cannery Street, which was alleged to have been dаngerous and to have caused plaintiff to fall, consisted of a break in the cement so that part of the pavement overlapped and projected three to four inches above the adjoining surface. This raised irregularity extended across the entire width of the sidewalk.
Plaintiff was employed in the Fisherman’s Cafe, located on the east side of Tuna Street about one-half block south of Cannery Street. At about 7:30 p. m., October 27, 1943, at the conclusion of her day’s overtime work, she left the cafe, walked northerly on the east side of Tuna Street, crossed the intersection of Cannery Street to the northwest corner and proceeded westerly on the sidewalk, some three to five feet wide, along the north side of Cannery Street. It was dark at the time and the spot where plaintiff fell—approximately in the middle of the block—was somewhat shaded by a fence that was in the course of construction along the north curb line of Cannery Street. A street light, located about 90 feet south of the break in the sidewalk and on the other side of the newly erected fence, was burning at the time in question. Plaintiff filed her verified claim with the city of Los Angeles. Upon its rejection, she instituted the present suit and recovered damages for the personal injuries sustained.
Plaintiff’s action is based upon the Public Liability Act of 1923, imposing liability upon a municipality for injury to persons and property resulting from the dangerous or defective condition of public streets, highwаys, buildings, works and property. (Stats. 1923, p. 675; Deering’s Gen. Laws, 1937, Act 5619, p. 2630.) Supplementary to this act is the claim statute of 1931, requiring that “a verified claim for damages shall be presented in writting and filed with the clerk or secretary of the legislative body of the municipality . . . within ninety days after [the] accident . . . [and that] such claim shall specify the name and address of the claimant, the date and place of the accident and the extent of the injuries or damages received.” (Stats. 1931, p. 2475; Deering’s Gen. Laws, 1937, Act 5149, § 1, p. 2204;
Johnson
v.
City of Glendale,
Plaintiff’s claim coneededly was complete as measured by the requirements of the state law. But its sufficiency as a demand against defendant is challenged upon the basis of several sections of the charter, the essentials of which are summarized in section 368, which reads: “No demand can he approved by any board, officer or employee, or be audited, unless it specify each several item, with the date and amount thereof.” Section 376, in part, provides: “No suit shall be brought on any claim for money or damages against the City of Los Angeles, or any officer or board of the city, until a demand for the same has been presented, as herein provided, and rejected in whole or in part.” Defendant argues that a demand is not presented within the meaning of section 376 of the charter unless it specifies each separate item of damage, with the date and amount thereof. From this premise defendant advances the further proposition that at most plaintiff’s claim, filed as a condition precedent to the maintenance of suit, would authorize a damage recovery of but $35, the total amount of her itemized demand. In fact, upon this theory defendant in the trial court, at the close of plaintiff’s case, moved for a directed verdict against it to the extent of said sum; that motion was denied.
In attacking plaintiff’s statement of her cause of action defendant does not dispute the following settled propositions: (1) That a city, by adopting a charter, becomes independent of general laws only as to “municipal affairs,” and that in matters of general statewide concern the general law is paramount (Const., art XI, §§ 6, 8;
City of Pasadena
v.
Charleville,
Since the Legislature has power to make regulations covering matters of state concern, as it did in enacting the Public Liability Act of 1923, it also has power to regulate the manner in which the rights given by said act may be enforced. This it did when it provided, in 1931, a general scheme for the presentation of such liability claims to be effective throughout the state. While matters not thereby covered in connection with the prosecution of such claims “must be governed by other existing statutes”
(Hennessy
v.
County of San Bernardino,
Defendant unavailingly argues that its auditing practice and procedure under its charter require the itemization of damages and the recital of the total demand as prerequisite to the allowance of a claim. Unquestionably, “the purpose of filing a claim against the city is to enable city officials to make proper investigation concerning the merits of the claim and to settle it without the expense of a lawsuit if settlement should be shown to be proper.”
(Sandstoe
v.
Atchison, Topeka & Santa Fe Ry. Co., supra,
For its second ground of objection to the judgment, defendant attacks the sufficiency of the record to establish its jurisdiction оver the place of the accident at the time in question. Thus, defendant argues that there was no evidence that the sidewalk where plaintiff tripped and fell was under the possession, control, or management of the city, or that the city was under any duty to keep said sidewalk in a reasonably safe condition. This argument is premised upon certain fragmentary evidence with respect to the activities of the United States Navy in the Terminal Island area since December 7, 1941, incident to this country’s entry into war.
Terminal Island is the land which forms thе southerly and • easterly boundary of Los Angeles Harbor. The particular section of the island in question was formerly used by commercial fishermen, particularly the Japanese. As appears from testimony at the trial, the Navy “took over” Terminal Island on December 7, 1941. It took exclusive possession of some sections and excluded the public
therefrom;
it also took
There is nothing in this state of facts which would have relieved the city of its duty and responsibility to keep the sidewalk in repair. The failure to inspect it and repair it was an act of voluntary omission on the part of the city and did not result from any necessity based upon the precautionary measures that were being taken by the Navy to guard the island and control the activities of the people thereon. No particular significance attaches to the Navy’s erection and signposting of the fence as its property, for such action might reasonably be viewed as but a part of its street patrol program on the island; the general use of the abutting sidewalk was in nowise affected.
Nor is defendant’s positiоn aided by reference to the record’s showing that in June, 1943—some four months prior to the date of plaintiff’s accident—the United States Govern
Although the answer of defendant denied that Cannery Street was a public street in the city of Los Angeles, there was ample evidence at the trial that it was plotted and constructed by the city and had been used as a public thoroughfare from the time the street was improved and the sidewalk was built in 1924 to a date subsequent to October 27, 1943. It was not questioned at the trial, nor is it questioned here, that Cannery Street was so used for many years and that the sidewalk was a part of it. There is no showing in the record that title or the right to possession and use of the sidewalk passed from the public tо the United States Government at any time, so as to relieve the city of the duty of inspection and maintenance.
A map, in evidence, prepared by the Harbor Department at the time of said street construction on the island in 1924, shows Cannery Street, according to scale, to be 100 feet wide, inclusive of the sidewalk. To be correlated with this is another map in evidence, bearing the signature of the Harbor Engineer under date “6-4-42” and showing a corresponding delineation of the streets in question as well as the areas designated “Proрerty of United States Navy.” Cannery Street, as shown on this latter map, was scaled by one of the witnesses and he testified that the width was 100 feet. While this map does not show the sidewalk separately, there was testimony that the sidewalk in question was included in the 100-foot width of Cannery Street. It is also shown by said map that the area in possession of the Navy did not include the sidewalk
For its third ground of objection, defеndant challenges the propriety of the giving and refusal of certain instructions. Because of its relation to the question of the city’s continued responsibility for the maintenance of the streets on Terminal Island, the first point to be noted will be defendant’s attack upon the court’s giving of the following instruction: “Under date of December 12, 1941, the President of the United States, by Executive Order No. 8972, made provision for the establishment and maintenance of military guards and patrols for the purpose of protecting from injury or destruction any national dеfense material and utilities. The mere fact that such guards and patrols may have been maintained by the military authorities did not relieve the defendant, City of Los Angeles, a municipal corporation, its officers or boards, from the duty of maintaining the public streets and sidewalks within its territorial boundaries, including its Harbor Department, in a reasonably safe condition.” Defendant argues that the instruction was upon matters not in evidence and only served to confuse the jury as to the import of the Navy’s activities on Terminal Island. An examination of the reсord refutes defendant’s position and establishes the need for some such clarification on the matter. Defendant had made repeated claims during the trial that the Navy had entered upon Terminal Island by taking exclusive possession of sections of it and by guarding the remainder. In cross-examining plaintiff, counsel for defendant exhibited to her a photograph and read therefrom the inscription on a sign, “Terminal Island is under Navy Jurisdiction by Presidential Executive Order. (Signed) Commander ...” and plaintiff was asked whether she saw such a sign at the en
The next point to be noted in this regard is defendant’s claim of errоr upon the court’s refusal of the following instruction: “If you believe that the erection of the fence along the southerly side of the sidewalk made the condition of the sidewalk, where plaintiff fell, dangerous because it rendered the condition difficult to see, before plaintiff can recover in this case she must prove to your satisfaction that the City of Los Angeles or the Board of Harbor Commissioners of the City of Los Angeles had knowledge of such fact, and that after acquiring such knowledge, the City or the Board failed within a reasonаble time to protect the public against it.” The instruction was properly refused because it does not correctly reflect the factual considerations entering into the determination of the city’s liability. The broken condition of the sidewalk consisted in a three to four-inch overlapping of the cement above the adjoining surface. There was testimony that this condition had existed for at least two years prior to plaintiff’s accident. Whether such break in the sidewalk created a dangerous condition and whether the сity was chargeable with notice of its existence were questions of fact for the jury to resolve.
(George
v.
City of Los Angeles,
Defendant’s third point of challenge to be here noted is its objection to the trial court’s giving of the following instructiоn: “The amount of damages alleged in the complaint to have been suffered by plaintiff is $8,895.00. This allegation is merely a claim and is not evidence and must not be considered by you as evidence. It does, however, fix a
Defendant’s final point as ground for reversal is the claim that plaintiff was guilty of contributory negligence as a matter of law. Plaintiff testified that at the point where she fell, “one piece of the sidewalk overlapped the other . . . about three inches”; that this condition extended “the entire width of the sidewalk”; that she had been working on Terminal Island “about five months,” had “stepped over [the broken section] twice a day”; that she did not see the break nor have it in mind just before she fell, and that the newly erected fence cast shadows, although she was not at the time aware of the change that this made in the lighting conditions. This testimony would not establish as a matter of law that plaintiff was guilty of contributory negligence. The boards of the fence were spaced two inches or more apart. Such shadows as were cast would have alternated with strips of light; plaintiff had not previously passed along the sidewalk under these conditions, lessening the illumination shed ovеr the area by the street light some 90 feet distant. Plaintiff explained that she came upon the break in the sidewalk before she expected and without realizing that the changed conditions, due to the construction of the fence, decreased the visibility of the break. These facts would allow reasonable differences of opinion as to whether plaintiff’s failure to see the break under the new and unfamiliar conditions was a failure to exercise ordinary care for her own safety. The jury
The judgment is affirmed.
Gibson, 0. J., Shenk, J., Edmonds, J., Carter, J., Tray-nor, J., and Sehauer, J., concurred.
