O'Connor v. Donovan

2012 VT 27, 48 A.3d 584, 191 Vt. 412, 2012 WL 1253029, 2012 Vt. LEXIS 26
CourtSupreme Court of Vermont
DecidedApril 13, 2012
Docket2011-033
StatusPublished
Cited by29 cases

This text of 2012 VT 27 (O'Connor v. Donovan) is published on Counsel Stack Legal Research, covering Supreme Court of Vermont primary law. Counsel Stack provides free access to over 12 million legal documents including statutes, case law, regulations, and constitutions.

Bluebook
O'Connor v. Donovan, 2012 VT 27, 48 A.3d 584, 191 Vt. 412, 2012 WL 1253029, 2012 Vt. LEXIS 26 (Vt. 2012).

Opinion

*415 Burgess, J.

¶ 1. The principal question presented by this appeal is whether, and to what extent, a state’s attorney who serves as a county’s chief law enforcement officer is entitled to official immunity from civil liability for allegedly tortious conduct concerning a local police officer. The trial court concluded that liability for the acts complained of was precluded by either qualified or absolute immunity, or was otherwise barred. We conclude that the State’s Attorney was entitled to absolute immunity, and therefore affirm.

¶ 2. This case commenced in February 2010 when plaintiff, then employed as a police officer with the South Burlington Police Department, filed a complaint against defendant, the Chittenden County State’s Attorney, stating claims for defamation, intentional infliction of emotional distress, and intentional interference with plaintiffs employment. The complaint alleged that defendant, formerly a private lawyer and a member of what plaintiff characterized as the Vermont “Drug Bar” representing criminal defendants, harbored an animus against plaintiff due to his police work. Plaintiff claimed that as state’s attorney defendant had “maliciously pursued a course of action ... to undermine plaintiffs work and credibility in the law enforcement community.” As alleged in the complaint and in plaintiffs later responses to discovery, defendant’s tortious misconduct included meeting with plaintiffs supervisors to criticize his job performance and falsely accuse him of dishonesty; declining to file charges or seek search warrants based on plaintiffs affidavits; threatening not to work with plaintiff and thereby end his career if plaintiff attempted to bypass the state’s attorney’s office and obtain warrants directly from the trial court; criticizing plaintiffs work when he was being considered by the State Police to serve on its Drug Task Force; impugning plaintiffs honesty to other prosecutors; encouraging the filing of a civil-rights lawsuit against plaintiff and testifying falsely in that action; and “leaking” harmful information about plaintiff to criminal defense attorneys.

¶ 3. Defendant answered the complaint, raising the affirmative defense of official immunity. Following a status conference, the trial court issued a scheduling order limiting discovery to the immunity issue conditioned on defendant’s prompt filing of a motion for summary judgment. Several months later, defendant filed a motion for summary judgment, together with a detailed statement of undisputed facts and supporting documents. Plaintiff *416 opposed the motion and filed a separate statement of undisputed facts.

¶ 4. The trial court issued a written ruling in December 2010. Initially, the court noted that plaintiffs statement of undisputed facts failed to contain “specific citations to the record,” with the result that many of the facts set forth by defendant were “deemed to be admitted.” V.R.C.P. 56(c)(2). The court then considered each of the specific acts complained of, concluding that they were all barred by either absolute or qualified immunity, privileged, or insufficient to state a claim. 1 Accordingly, the trial court entered judgment in favor of defendant. This appeal followed.

115. Plaintiff contends the trial court erred in concluding that defendant was entitled to qualified or absolute immunity for the bulk of the acts alleged. While not required to cross-appeal from the judgment in his favor, defendant also contends the court erred. See Staruski v. Cont’l Tel. Co., 154 Vt. 568, 571 n.3, 581 A.2d 266, 267 n.3 (1990) (party content with final order need not file cross-appeal to preserve claim for review because it “had nothing in the first instance to appeal”). Defendant claims that the court erroneously rejected his argument that he was entitled to absolute immunity as the highest law enforcement officer in the county.

¶ 6. An assessment of the claims requires close scrutiny of the decisional law governing official immunity. Our analytic starting point is Libercent v. Aldrich, 149 Vt. 76, 539 A.2d 981 (1987), where we expressly recognized “two degrees of official immunity,” explaining: “Absolute immunity is generally afforded to judges . . . legislators, and the highest executive officers, where the acts complained of are performed within their respective authorities. Only qualified immunity is extended to lower level officers, employees, and agents.” Id. at 81, 539 A.2d at 984. The latter form of immunity is qualified in the sense that it requires several elements, including a showing that the government officials were “1) acting during the course of their employment and . . . within the scope of their authority; 2) acting in good faith; and 3) *417 performing discretionary, as opposed to ministerial acts.” Id. (quotation omitted). 2

¶ 7. The rationale for separate standards applicable to executive officials was cogently summarized by Justice Harlan some years earlier, as follows:

To be sure, the occasions upon which the acts of the head of an executive department will be protected by the privilege are doubtless far broader than in the case of an officer with less sweeping functions. But that is because the higher the post, the broader the range of responsibilities and duties, and the wider the scope of discretion, it entails. It is not the title of his office but the duties with which the particular officer sought to be made to respond in damages is entrusted . . . which must provide the guide in delineating the scope of the rule which clothes the official acts of the executive officer with immunity.

Barr v. Matteo, 360 U.S. 564, 573-74 (1959); see also Scheuer v. Rhodes, 416 U.S. 232, 246-47 (1974) (recognizing that “higher *418 officers of the executive branch” may require greater protection “since the range of decisions and choices — whether the formulation of policy, of legislation, of budgets, or of day-to-day decisions — is virtually infinite” and therefore the range of protected discretion “must be comparably broad”), overruled on other grounds by Davis v. Scherer, 468 U.S. 183 (1984); Spalding v. Vilas, 161 U.S. 483, 498 (1896) (observing that the same considerations of public policy that immunize judges from civil liability apply to “heads of Executive Departments when engaged in the discharge of duties imposed upon them by law”).

¶ 8. Two years after Libercent, we addressed the official-immunity doctrine again in Levinsky v. Diamond, 151 Vt. 178, 559 A.2d 1073 (1989), a case that remains in many respects the most comprehensive ruling of this Court on the subject.

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Cite This Page — Counsel Stack

Bluebook (online)
2012 VT 27, 48 A.3d 584, 191 Vt. 412, 2012 WL 1253029, 2012 Vt. LEXIS 26, Counsel Stack Legal Research, https://law.counselstack.com/opinion/oconnor-v-donovan-vt-2012.