Kent v. Commonwealth

750 N.E.2d 1018, 52 Mass. App. Ct. 28
Massachusetts Appeals Court·Decided July 6, 2001·No. No. 99-P-1182·Published·Cited by 3 cases

Opinion

Cohen, J.

Leominster police officer Thomas Kent was shot [29] and seriously wounded on September 15, 1995, by John J. Mac-Neil, a convicted murderer who had been serving a life sentence in the Massachusetts prison system until his parole in 1987. Kent and his wife and three children brought suit under the Massachusetts Tort Claims Act, G. L. c. 258, against the Commonwealth and the Massachusetts Parole Board, alleging that the defendants were grossly negligent in 1987 when they released MacNeil by paroling him to the custody of the Immigration and Naturalization Service (INS) for deportation to Canada, and that their mishandling of MacNeil’s case persisted in 1995, when they failed to reestablish parole jurisdiction over him after learning that he had returned to the United States and was released from Federal custody. These acts and omissions, say the plaintiffs, foreseeably resulted in the shooting of Thomas Kent.

The case is before us on the defendants’ appeal from the denial of their motion to dismiss, taken in reliance upon the doctrine of present execution. We affirm.

1. The complaint. The facts alleged by the plaintiffs may be summarized as follows. In 1969, MacNeil was sentenced to life in prison on two counts of murder,3 and to additional concurrent terms on other counts charging him with assault and battery with intent to rob, assault by means of a dangerous weapon, and the unlawful carrying of a shotgun. Twice during his incarceration, MacNeil escaped and committed further crimes before being recaptured. At one point while in prison, he obtained explosives and injured himself while attempting to manufacture pipe bombs.

MacNeil was denied parole when he first became eligible in 1985 and again in 1986. In its denial dated July 14, 1986, the full parole board noted that MacNeil was still in maximum security and that he lacked a pre-release plan and a solid record of accomplishment while incarcerated. However, even though these circumstances remained unchanged, on January 22, 1987, a panel of the parole board recommended that MacNeil be paroled to a deportation warrant. On April 6, 1987, the parole board paroled MacNeil to the custody of the INS for deporta[30] tion to Canada, with only two conditions: that he report by mail to the Massachusetts Parole Board, on a quarterly basis and that he not return to the United States. On April 28, 1987, he was deported to Canada.

MacNeil returned to the United States, and was arrested on September 11, 1987, for violating parole. However, on January 14, 1988, a judge of the Superior Court ruled that by paroling MacNeil to the INS rather than to Canadian authorities under G. L. c. 127, § 97B, the parole board had surrendered MacNeil to the authority of the INS and had lost jurisdiction over him. As a result of this ruling, MacNeil was released from State custody and transferred to the INS, which deported him to Canada a second time.

Again, MacNeil returned to the United States. He was taken into custody by the INS on July 12, 1994, and denied bail. However, he was released less than a year later, on June 7, 1995, after it was determined that he was, in fact, a United States citizen. Two days later, he had another skirmish with the law and was arraigned in West Roxbury District Court for having violated a restraining order that his wife had obtained against him. Initially denied release, MacNeil eventually was allowed back on the streets.

On or about June 9, 1995, the parole board decided to attempt to regain custody over MacNeil, but it did nothing to reassert jurisdiction over him before he shot Officer Kent on September 15, 1995. On that day, Kent and his partner responded to a call regarding a suspicious person at a private residence in Leominster. When the officers arrived on the scene, MacNeil emerged from the garage of the residence, firing two guns. Kent was struck in the chest but was able to return fire and kill MacNeil.

2. The defendants’ motion. The defendants challenge the complaint on two grounds. The first ground, lack of proximate causation, is directed at the complaint as a whole. The defendants argue that, as matter of law, events occurring after MacNeil’s parole in 1987 broke any chain of causation and ended any duty of care on their part. The second ground, immunity from suit, is asserted only insofar as the plaintiffs’ claims are based upon the defendants’ failure to reestablish parole [31] jurisdiction over MacNeil in 1995. The defendants rely upon the so-called statutory public duty rule, G. L. c. 258, § 10(/), as recently interpreted by the Supreme Judicial Court in Brum v. Dartmouth', King v. Commonwealth, 428 Mass. 684, 692-696 (1999), for the proposition that they are immune from claims of “failure to act” unless the plaintiffs also can prove that the defendants’ affirmative conduct “originally caused” the condition or situation which led to the harm.4 The defendants contend that the plaintiffs cannot meet the “affirmative act” requirement, because the release of MacNeil in 1987 is too “remote” as matter of law to be the original cause of the condition — Mac-Neil’s armed presence in Leominster in 1995 — that led to the plaintiffs’ harm. Both of these grounds for dismissal were rejected by the Superior Court.5

3. Appropriateness of review. We first consider whether this appeal is properly before us. Ordinarily, the denial of a motion to dismiss is not an appealable order. See Bean v. 399 Boylston St., Inc., 335 Mass. 595, 596 (1957); Rollins Envtl. Servs., Inc. v. Superior Ct., 368 Mass. 174, 178 (1975). One of the exceptions to this rule is the doctrine of present execution, upon which the defendants rely.6

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Kent v. Commonwealth, 750 N.E.2d 1018, 52 Mass. App. Ct. 28 (Mass. Ct. App. 2001).

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