55 N.Y.2d 154 | NY | 1982
OPINION OF THE COURT
This appeal calls upon us to say whether contributory negligence, as to pre-September, 1975 accidents, or comparative negligence, as to ones occurring since then,
At the first trial, the Judge sent the case to the jury essentially on the theory that, while Forest-Fehlhaber was at fault in failing to comply with Board of Standards and Appeals rule 23-1.30 (12 NYCRR 23-1.30), which governed illumination of the passageway involved,
It was on this theory, and under a specific instruction that Long’s own negligence would not be a defense, that the second trial ensued. On this occasion, the jury, its specific findings crystallized by special interrogatories submitted to it by the court, found that both defendant Forest-Fehlhaber and third-party defendant Walsh Corbetta had violated subdivision 6 and that, by way of apportionment under Dole v Dow Chem. Co. (30 NY2d 143), each was liable for one half of the damages to which the jury found the plaintiff was entitled.
On the present appeal by Forest-Fehlhaber, taken pursuant to CPLR 5601 (subd [d]) from the final judgment entered after the second trial, the nonfinal order by which the Appellate Division modified the judgment entered after the first trial is now before us for review.
We begin our analysis by noting that the Appellate Division, in holding contributory negligence alien to the case, expressly relied on an overliteral interpretation of
Moreover, only some months later, in Haimes v New York Tel. Co. (46 NY2d 132, 136), after referring to the Legislature’s intent to place “ ‘ultimate responsibility for safety practices * * * where such responsibility actually belongs, on the owner and general contractor’ (NY Legis Ann, 1969, p 407)”, we stated that “[w]hatever doubt may have remained that it had succeeded in doing so as to section 241 was laid to rest by our recent decision in Allen v Cloutier Constr. Corp.”. In short, the thrust of Allen was that “ultimate responsibility” or “absolute liability” or “nondelegability” of the duty of an owner or general contractor under subdivision 6 of section 241, whatever the niceties of its articulation, was unavoidable only in the sense that it could not be delegated to another rather than, as the majority of the Appellate Division mistakenly as
This, of course, is reinforced by the principle, long and firmly established in New York, that the violation of a rule of an administrative agency or of an ordinance of a local government, lacking the force and effect of a substantive legislative enactment, is “merely some evidence which the jury may consider on the question of defendant’s negligence” (Teller v Prospect Hgts. Hosp., 280 NY 456, 460). Unlike a violation of the explicit provisions of a statute proper, a breach of an administrative rule, because it does not establish negligence as a matter of law, does not render a plaintiff’s own negligence irrelevant and, therefore, unacceptable as a defense (Conte v Large Scale Dev. Corp., 10 NY2d 20, 29, citing Schumer v Caplin, 241 NY 346, 351).
That the case at bar cannot be regarded as one which arose from a statutory violation is evident. In contrast to the first five subdivisions of section 241, in which the Legislature set out specific safeguards on its own, subdivision 6 does no more than broadly provide that the owner and contractor see to it that the area where the work is to be performed is “so constructed, shored, equipped, guarded, arranged, operated and conducted as to provide reasonable and adequate protection and safety”. This language, which does not in terms provide how these ends are to be met, is, like subdivision 1 of section 200 of the Labor Law, but a reiteration of common-law standards (Allen v Cloutier Constr. Corp., supra, at p 299), the implementation of which is left to a subordinate body, the Board of Standards and Appeals. An illustrative contrast is available in section 240 of the Labor Law, a self-executing statute which, containing its own specific safety measures, does not defer to the rule-making authority of the board (Haimes v New York Tel. Co., supra).
For all these reasons, the judgment appealed from and the order of the Appellate Division brought up for review should be reversed, with costs, and the case remitted to the Appellate Division for consideration of the facts.
Chief Judge Cooke and Judges Jasen, Gabrielli, Wachtler and Meyer concur; Judge Jones taking no part.
Judgment appealed from and order of the Appellate Division brought up for review reversed, with costs, and case remitted to the Appellate Division, Third Department, for further proceedings in accordance with the opinion herein.
. The effective date of New York’s comparative negligence law was September 1, 1975 (L 1975, ch 69, § 4).
. Subdivision 6 of section 241 of the Labor Law provides:
“Construction, excavation and demolition work. All contractors and owners and their agents, * * * when constructing or demolishing buildings or doing excavating in connection therewith, shall comply with the following requirements:
“6. All areas in which construction, excavation or demolition work is being performed shall be so constructed, shored, equipped, guarded, arranged, operated and conducted as to provide reasonable and adequate protection and safety to the persons employed therein or lawfully frequenting such places. The board [of Standards and Appeals] may make rules to carry into effect the provisions of this subdivision, and the owners and contractors and their agents for such work *** shall comply therewith”.
. Rule 23-1.30 reads as follows: “Illumination sufficient for safe working conditions shall be provided wherever persons are required to work or pass in construction, demolition and excavation operations, but in no case shall such illumination be less than 10 foot candles in any area where persons are required to work nor less than five foot candles in any passageway, stairway, landing or similar area where persons are required to pass”.
Also charged to the jury was rule 23-1.7 (e) (12 NYCRR 23-1.7 [e]), which applied to “tripping and other hazards” and “passageways”.
. The case was submitted to the jury under both subdivision 1 of section 200 and subdivision 6 of section 241 of the Labor Law. However, the Appellate Division’s modification was only as to the subdivision 6 of section 241 count. It affirmed the subdivision 1 of section 200 count, this section being merely a codification of the
. CPLR 5601 (subd [d]) expressly states that a nonfinal order which is thus sought to be reviewed must be one which “necessarily affects” the final judgment from which the appeal is taken. In the present case, the alleged charge error at the first trial is one which, treating with whether contributory negligence is ever a permissible defense under subdivision 6 of section 241 of the Labor Law, presents an invariable law of the case issue whose determination for the appellant would eliminate a defense, which, as a practical matter, then would not, and should not, need to be reattended to at the new trial. Hence, the prior nonfinal order here may be said to have been one which “necessarily affected” or, as it also has been put, “vitally influenced” the judgment within the compass of CPLR 5601 (subd [d]) (Buffalo Elec. Co. v State of New York, 14 NY2d 453, 458).
. Accordingly, Board of Standards and Appeals rule 23 (Industrial Code No. 23) does not even mention section 240, while section 240, correspondingly, says nothing of the board. On the other hand, subdivision 1 of section 200 states, in so many words, that “[t]he board may make rules to carry into effect the provisions of this section” and subdivisions 2 through 4 of that section place notice and enforcement authority in the hands of the State Industrial Commissioner to that end.