Opinion ID: 196121
Heading Depth: 3
Heading Rank: 2

Heading: Board Members and Board Counsel (Individual Capacities)

Text: 14 Immunity claims in section 1983 actions are governed by federal law. Martinez v. California, 444 U.S. 277, 284 n. 8, 100 S.Ct. 553, 558 n. 8, 62 L.Ed.2d 481 (1980). Wang nonetheless contends that the Board members and its counsel, in their individual capacities, were entitled, at most, to good faith immunity (under New Hampshire law) from monetary liability under section 1983. As we discern no material distinction between the quasi-judicial and prosecutorial functions performed by these defendants in behalf of the New Hampshire Board, and those performed by their Massachusetts Board counterparts, the district court order dismissing these individual capacity claims was entirely proper. See Bettencourt v. Board of Registration in Medicine, 904 F.2d 772, 782-85 (1st Cir.1990). 15 The Massachusetts Board members and its professional staff were held absolutely immune from suit in their individual capacities under section 1983, on the ground that these officials serve in quasi-judicial capacities functionally comparable to those performed by a state court judge. Id. at 783. As with the Massachusetts Board, New Hampshire Board members weigh evidence and make factual determinations, N.H.Rev.Stat.Ann. Sec. 329:17(VI), determine sanctions, see id. Sec. 329:17(VII), and issue written decisions in disciplinary actions. See id. Sec. 329:18(III). 4 16 Although Wang attempts to differentiate between the two administrative tribunals on the ground that the New Hampshire Board assumed an inquisitorial or investigative role in this case by instigating and prosecuting the charges against him, the attempted distinction is without legal significance. State officials performing prosecutorial functions--including their decisions to initiate administrative proceedings aimed at legal sanctions--are entitled to absolute immunity as well. See Butz v. Economou, 438 U.S. 478, 515, 98 S.Ct. 2894, 2915, 57 L.Ed.2d 895 (1978); see also Horwitz v. Board of Medical Examiners, 822 F.2d 1508, 1515 (10th Cir.) (describing Colorado medical board officials' adjudicatory and prosecutorial role), cert. denied, 484 U.S. 964, 108 S.Ct. 453, 98 L.Ed.2d 394 (1987). Thus, New Hampshire Board counsel, like the Massachusetts Board professional staff, see Bettencourt, 904 F.2d at 785, is absolutely immune from suit, in his individual capacity, based on his participation in particular cases before the Board. See id. 17 Wang next argues that the New Hampshire Board members and its counsel were imbued with such overwhelming malice and bad faith that due process was not to be had at their hands. The allegation of malice and bad faith is founded principally on the New Hampshire superior court decision--preliminarily enjoining further Board action--entered on February 23, 1989, and vacated for lack of subject matter jurisdiction two months later. 5 18 Even assuming a level of malice and bad faith sufficient to poison the New Hampshire Board proceedings--contrary to the record evidence, as well as the New Hampshire Supreme Court decision--the Board members and its counsel nonetheless would be absolutely immune from suit, in their individual capacities, on section 1983 claims arising out of their respective judicial, quasi-judicial and/or prosecutorial functions, even though they acted maliciously and corruptly. Pierson v. Ray, 386 U.S. 547, 554, 87 S.Ct. 1213, 1218, 18 L.Ed.2d 288 (1967); Imbler v. Pachtman, 424 U.S. 409, 424, 96 S.Ct. 984, 992, 47 L.Ed.2d 128 (1976) (extending absolute immunity under section 1983 to prosecutors acting in quasi-judicial capacity). Nor does Wang claim that his medical license was revoked by the Board in the clear absence of all jurisdiction. Stump v. Sparkman, 435 U.S. 349, 357, 98 S.Ct. 1099, 1105, 55 L.Ed.2d 331 (1978) (quoting Bradley v. Fisher, 80 U.S. (13 Wall.) 335, 351, 20 L.Ed. 646 (1871)); see also Ricci v. Key Bancshares of Maine, Inc., 768 F.2d 456, 462 (1st Cir.1985) (The conduct in question need only be more or less connected to 'the general matters committed by law to [the Board's] control or supervision' and not 'manifestly or palpably beyond [the Board's] authority.' ) (quoting Spalding v. Vilas, 161 U.S. 483, 498, 16 S.Ct. 631, 637, 40 L.Ed. 780 (1896)). 19 Lastly, Wang contends that absolute immunity cannot insulate Board members and its counsel from suit, since the challenged disciplinary action was taken pursuant to a New Hampshire reciprocal revocation statute, see N.H.Rev.Stat.Ann. Sec. 329:17-c (1984), unconstitutional on its face. He reasons that though our decision in Bettencourt might support absolute immunity for medical board members and its counsel, provided their actions were taken under adequate procedural safeguards, Bettencourt does not immunize such officials from suit in their individual capacities for official actions summarily taken under a reciprocal revocation statute simply on the ground that another jurisdiction has revoked the respondent's license. 20 We decline the invitation to provide an advisory opinion on a claim for which there is no evidentiary support in the appellate record. See United States Nat'l Bank of Or. v. Independent Ins. Agents of Am., Inc., --- U.S. ----, ----, 113 S.Ct. 2173, 2178, 124 L.Ed.2d 402 (1993) ( 'The exercise of judicial power under Art. III of the Constitution depends on the existence of a case or controversy,' and 'a federal court [lacks] the power to render advisory opinions.' ) (citations omitted); State of R.I. v. Narragansett Indian Tribe, 19 F.3d 685, 705 (1st Cir.), cert. denied, --- U.S. ----, 115 S.Ct. 298, 130 L.Ed.2d 211 (1994) (same). Wang concedes that the final license revocation order issued by the New Hampshire Board was not the product of a summary proceeding. Considering that almost three years elapsed between the commencement of the disciplinary investigation and the entry of the revocation order, we believe the concession is well founded. Moreover, the Board conducted several hearings at which Wang and his attorney appeared; the proceedings were transcribed; the Board issued a written decision; and Wang was afforded--and utilized to the fullest--the right to appeal the final Board order to the New Hampshire Supreme Court. We find no basis in fact or law for the claim that the procedural safeguards accorded Wang by the New Hampshire Board differed in any significant respect from those the Massachusetts Board afforded the respondent in Bettencourt. See 904 F.2d at 783.