Jacobs v. Frank

573 N.E.2d 609, 60 Ohio St. 3d 111, 1991 Ohio LEXIS 1249
CourtOhio Supreme Court
DecidedJune 5, 1991
DocketNo. 90-320
StatusPublished
Cited by173 cases

This text of 573 N.E.2d 609 (Jacobs v. Frank) is published on Counsel Stack Legal Research, covering Ohio Supreme Court primary law. Counsel Stack provides free access to over 12 million legal documents including statutes, case law, regulations, and constitutions.

Bluebook
Jacobs v. Frank, 573 N.E.2d 609, 60 Ohio St. 3d 111, 1991 Ohio LEXIS 1249 (Ohio 1991).

Opinion

Moyer, C.J.

Our disposition of this case begins with a determination [113]*113as to whether Frank has a qualified privilege pursuant to R.C. 2305.25 that protects the statements he wrote in his October 25 letter.* 1 If the statements in Frank’s letter are cloaked with a qualified privilege, Jacobs must prove Frank acted with “actual malice” to defeat the protection afforded by the statute.

QUALIFIED PRIVILEGE

R.C. 2305.25 provides qualified immunity from suit to, among others, members or employees of utilization review, tissue, and peer review committees for actions taken within the scope of their functions. It also provides that: “* * * No person who provides information under this section and provides such information without malice and in the reasonable belief that such information is warranted by the facts known to him shall be subject to suit for civil damages as a result thereof.” Thus, in addition to protecting the members and employees of the various review boards and committees, the statute extends limited protection to those who provide information to those review boards and committees.

The law and the public policy supporting it were stated in Hahn v. Kotten (1975), 43 Ohio St. 2d 237, 72 O.O. 2d 134, 331 N.E. 2d 713, as follows: “ ‘ “A publication is conditionally or qualifiedly • privileged where circumstances exist, or are reasonably believed by the defendant to exist, which cast on him the duty of making a communication to a certain other person to whom he makes such communication in the performance of such duty, or where the person is so situated that it becomes right in the interests of society that he should tell third persons certain facts, which he in good faith proceeds to do. This general idea has been otherwise expressed as follows: A communication made in good faith on any subject matter in which the person communicating has an interest, or in reference to which he [114]*114has a duty, is privileged if made to a person having a corresponding interest or duty, even though it contains matter which, without this privilege, would be actionable, and although the duty is not a legal one, but only a moral or social duty of imperfect obligation. The essential elements of a conditionally privileged communication may accordingly be enumerated as good faith, an interest to be upheld, a statement limited in its scope to this purpose, a proper occasion, and publication in a proper manner and to proper parties only. The privilege arises from the necessity of full and unrestricted communication concerning a matter in which the parties have an interest or duty, and is not restricted within any narrow limits.” ’ ” (Emphasis omitted.) Id. at 245-246, 72 O.O. 2d at 139, 331 N.E. 2d at 719, quoting West v. People’s Banking & Trust Co. (1967), 14 Ohio App. 2d 69, 72, 43 O.O. 2d 197, 199, 236 N.E. 2d 679, 681.

The concept of a qualified privilege is based upon public policy and the need to protect the publication of a communication made in good faith. Id. at 245-246, 72 O.O. 2d at 139-140, 331 N.E. 2d at 719-720.

Frank appears to have written the October 25 letter in good faith. According to Frank’s affidavit, he was reluctant to reduce his conversations with the Virginia board to written form for fear that Jacobs would see the written communication and institute a lawsuit. He finally relented and wrote the letter only after several requests from the board and with assurances that the letter would not be released to Jacobs. As we said in Hahn: “ ‘ “It is generally held that if the defendant publishes the defamatory words to the person interested at the latter’s request or solicitation, there is such a relationship between the parties to justify the communication.” * * *’ (14 Ohio App. 2d at 74 [43 O.O. 2d at 200, 236 N.E. 2d at 682], citing 1 Harper & James, The Law of Torts, page 445, Section 5.26.)” Hahn, supra, at 246, 72 O.O. 2d at 140, 331 N.E. 2d at 720.

Public policy concerns dictate that those who provide information to licensing boards pursuant to R.C. 2305.25 be given a qualified privilege in order to aid in the dissemination of information to those boards, thereby improving the quality of health care administered to the general public. See Gates v. Brewer (1981), 2 Ohio App. 3d 347, 2 OBR 392, 442 N.E. 2d 72.

Further, the public has an interest in ensuring that only qualified persons are licensed to practice podiatry. Toward that end, the October 25 letter was limited to addressing the issue of Jacobs’s fitness to practice. It specifically states that it is for the board’s eyes only. The letter was not intended for public dissemination. Frank felt he had an obligation to convey to the board his honest opinion of Jacobs’s abilities as a podiatrist. Thus, we hold that Frank is afforded a qualified privilege pursuant to R.C. 2305.25 that protects the statements he made in the October 25 letter.

ACTUAL MALICE

Since Frank has a qualified privilege with respect to the October 25 letter, Jacobs must demonstrate that Frank acted with “actual malice” in publishing the letter. As this court said in Worrell v. Multipress, Inc. (1989), 45 Ohio St. 3d 241, 249, 543, N.E. 2d 1277, 1284, rehearing denied (1989), 46 Ohio St. 3d 706, 545 N.E. 2d 1285: “* * * [0]nce the existence of privilege has been decided, the defense may be lost if the plaintiff proves that the defamatory statement was made with ‘actual malice’ as defined in Hahn. * * *” Additionally, in order to recover, Jacobs must present clear and [115]*115convincing proof that Frank acted with actual malice. Varanese v. Gall (1988), 35 Ohio St. 3d 78, 518 N.E. 2d 1177, certiorari denied (1988), 487 U.S. 1206.

At issue is the appropriate definition of “actual malice” to be used when a qualified privilege exists in the context of the publication of peer review evaluations. The choice is between the public official defamation standard enunciated in New York Times Co. v. Sullivan (1964), 376 U.S. 254, or the common-law actual malice standard. The New York Times public official definition of “actual malice” requires that the publication be made with knowledge that it was false or with reckless disregard for its truth or falsity. Public official actual malice requires more than evidence of ill will, spite, or ulterior motive; the libeled plaintiff must prove with convincing clarity that the defendant had a high degree of awareness of the probable falsity of the published statements. See Dupler v. Mansfield Journal (1980), 64 Ohio St. 2d 116, 18 O.O. 3d 354, 413 N.E. 2d 1187, certiorari denied (1981), 452 U.S. 962. Common-law malice, on the other hand, connotes “* * * (1) * * * hatred, ill will or a spirit of revenge, or (2) a conscious disregard for the rights and safety of other persons that has a great probability of causing substantial harm.” (Emphasis sic.) Preston v. Murty (1987), 32 Ohio St. 3d 334, 512 N.E. 2d 1174, syllabus.

Unfortunately, several cases appear to confuse the two standards, and transmute “actual malice” as defined in a public official defamation action into the common-law standard. For example, paragraph two of the syllabus of Hahn

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Bluebook (online)
573 N.E.2d 609, 60 Ohio St. 3d 111, 1991 Ohio LEXIS 1249, Counsel Stack Legal Research, https://law.counselstack.com/opinion/jacobs-v-frank-ohio-1991.