Opinion ID: 2541918
Heading Depth: 3
Heading Rank: 3

Heading: Judge Winchester

Text: Judge Winchester, as the sitting judge of the McCreary Circuit Court at the time of the underlying events which gave rise to this action, was protected from suit in his personal capacity by the doctrine of judicial immunity. See Henry v. Wilson, 249 Ky. 589, 61 S.W.2d 305, 307 (Ky.1933). As a preface to our analysis of whether the Appellants are able to state viable claims in the Board of Claims based upon allegations of negligence by Judge Winchester, the Court observes the distinction between such analysis and the doctrine of judicial immunity which protects judges from suit in civil court. The present case does not involve the doctrine of judicial immunity, nor does it directly or indirectly disturb the existing law on judicial immunity. Judge Winchester, in his official capacity as a circuit judge, is an officer of the Commonwealth. KRS 61.020. The Commonwealth has waived its sovereign immunity, to the extent provided in the Board of Claims Act, for claims based upon allegations of negligence by Judge Winchester in the performance of ministerial functions of his office. KRS 44.073(2). In Collins v. Commonwealth, a decedent's administratrix brought suit against the Commonwealth of Kentucky Natural Resources and Environmental Protection Cabinet (the Cabinet) in the Board of Claims alleging that the Cabinet (through its employees) was negligent in the inspection of surface mining operations. Collins, 10 S.W.3d at 126. Specifically, the administratrix alleged that the Cabinet had failed to enforce a regulation requiring that roads constructed in connection with the mining operations to include culverts with a sufficient capacity to handle the peak run off from a from a 10 year, 24 hour precipitation event. Id. The Court stated that [t]he essence of a discretionary power is that the person or persons exercising it may choose which of several courses to be followed. Id. The Court also stated that [t]o decide whether mine site inspection by Cabinet employees is ministerial or discretionary, it is necessary to determine whether the acts involve policy-making decisions and significant judgment, or are merely routine duties. Id. (emphasis added). The Court concluded that inspection of mine operations to assure conformity to regulations was a ministerial function. Id. In Williams, the plaintiff brought a wrongful death action against the Kentucky Department of Education. The plaintiff alleged that the death of a high school student was caused by the negligent supervision of a school event by the school staff. Williams, 113 S.W.3d at 148-51. The Court noted that the school staff had duties to supervise students based on statute and a code of conduct adopted by the school. Id. at 150-51. With regard to the staffs duty to supervise the students, the Court stated [promulgation of rules is a discretionary function; enforcement of those rules is a ministerial function. Id. at 150 (citing Yanero, 65 S.W.3d at 529, and KRS 161.180(1)). With regard to the staffs duty to abide by the school's code of conduct, the Court stated that [cjompliance with this directive was a ministerial, not a discretionary . . . function. Id. at 151; see also Sexton, 256 S.W.3d at 33 (stating that while acts may be ministerial even if not prescribed by statute, ministerial duties will frequently be established by guidelines in statutes and regulations). Herein, the relevant statutes enabled Judge Winchester to operate his court with the use of a master commissioner. KRS 31A.010(1); KRS 31A.020. KRS 31A.010(3)(a) specifically provided that a judge could not operate his court with a commissioner beyond four years without reappointment of the commissioner. KRS 31A.020 expressly provided that a judge operating his court with a master commissioner must approve the surety obtained by the commissioner on the commissioner's bond. Although an analysis as to whether such actions/inactions are ministerial or discretionary is highly case specific, it. is apparent in this case that Judge Winchester failed to perform routine duties of his office which did not involve significant judgment. Collins, 10 S.W.3d at 126; Williams, 113 S.W.3d at 148-51. In sum, we hold that Judge Winchester's continued use of a master commissioner, without reappointment, to perform significant functions in actions in the McCreary Circuit Court without a bond, and without surety approved by Judge Winchester, is grounds for a claim in the Board of Claims based upon alleged negligence in the performance of a ministerial duty by an officer of the state.