The construction and maintenance of highways is a governmental act, and only to the extent provided by statute can a municipality as agent of the state be held liable to a private individual injured by a failure to properly fulfill this duty. Bartram v. Sharon, supra, 692; Belhumuer v. Bristol, 121 Conn. 475, 477, 185 A. 421; Coletti v. Bridgeport, 103 Conn. 117, 119, 130 A. 175; Lavigne v. New Haven, 75 Conn. 693, 696, 55 A. 569. The plaintiff's sole right of recovery is for injuries caused "by means of a defective road." General Statutes, 1420. Liability depends upon the existence of a defect, not the underlying causes which produced it. Bartram v. Sharon, supra, 694; Seidel v. Woodbury, 81 Conn. 65, 66, 70 A. 58. No liability arises "unless and until the highway has been rendered defective.
It has been frequently stated in our opinions that the only liability which rests upon a municipality for injuries due to defects in highways is that created by the statute. Lavigne v. New Haven, 75 Conn. 693, 696, 55 A. 569; Udkin v. New Haven, 80 Conn. 291, 296, 68 A. 253; Dyer v. Danbury, 85 Conn. 128, 81 A. 958; Coletti v. Bridgeport, 103 Conn. 117, 119, 130 A. 175; Riccio v. Plainville, 106 Conn. 61, 63, 136 A. 872; Belhumuer v. Bristol, 121 Conn. 475, 477, 185 A. 421; Roth v. MacDonald, 124 Conn. 461, 463, 200 A. 725. In all the cases where this statement has been made, the situations before the court involved conditions in highways which were not created by the municipality, but the court was considering liability based upon the failure of the municipality to remedy the defect.
It is settled law in Connecticut that the State or a municipality charged with the maintenance of highways is not liable for injuries caused by defects therein except as provided by statute. Coletti v. Bridgeport, 103 Conn. 117, 119, 130 A. 175; Lavigne v. New Haven, 75 Conn. 693, 696, 55 A. 569. General Statutes, 1481, provides for a special action to recover damages for injuries sustained on state highways. General Statutes, 1513, provides: "CLOSING HIGHWAYS AND BRIDGES. The highway commissioner may close or restrict traffic over any section of any trunk line or state aid highway or bridge for the purpose of construction, reconstruction or repair by posting notices at each end of such section of highway or at each end of such bridge, and any person using such highway when such notices are so posted shall do so at their own risk. Any person who shall, without a permit from the highway commissioner, close any trunk line highway or bridge, or any state aid highway or bridge, shall be fined not more than one hundred dollars."
As defendants note, the case law clearly supports the proposition that Section 13a-149 provides the exclusive remedy in cases such as this one and that there can be no town liability for a roadway defect when the duty to repair belonged to some other entity. See, e.g., Colletti v. City of Bridgeport, 103 Conn. 117, 130 A. 175, 176 (1925) ("The duty of the town ends where the duty of maintenance in sufficient repair belongs to any particular person or persons in any particular case, and the liability for penalty extends only to `the town, or person which ought to secure, and keep in sufficient repair such ways.'"); Lavigne v. New Haven, 75 Conn. 693, 696, 55 A. 569 (1903). The legislative history cited by defendants also supports the argument that Public Act 86-338 (now Section 52-557n) purposefully retained Section 13a-149.
Section 1411 of the General Statutes, Revision of 1930, imposes the duty of repairing highways and bridges on the municipality only when such duty shall not belong to some particular person. It is clear therefore, that the obligation to keep the highway in repair at the place where the plaintiff was injured was on the Railroad Company and not on the City of New Haven. Coletti vs. Bridgeport, 103 Conn. 117. Inasmuch as Section 1420 of the General Statutes, Revision of 1930, authorizes actions for damages caused by a defective road or bridge only against "the party bound to keep it in repair" and inasmuch as there is no common-law liability on a municipality for such damages, it is clear that this plaintiff has no cause of action against the City of New Haven.