Opinion ID: 1364390
Heading Depth: 1
Heading Rank: 6

Heading: the application of these principles to this case

Text: We turn now to the application of these principles to the case before us. First, contrary to appellant's contentions, we conclude that, in cases arising under W.Va.Code § 29-12-5, the Board of Probation and Parole, being a quasi-judicial body, is entitled to absolute immunity from tort liability for acts or omissions in the exercise of its judicial function, unless such immunity is expressly waived by the applicable insurance contract. In reaching this conclusion, we have reviewed and we now adopt the following rationale which was well stated in Pate v. Alabama Board of Pardons and Paroles, 409 F.Supp. 478 (1976): Parole officials bear a more than ordinary responsibility because of the dangerous traits already demonstrated by those with whom they must deal. This responsibility imposes far greater moral burdens and requires far more difficult legal choices than those met by the average administrative officer. The function of the Parole Board is more nearly akin to that of a judge in imposing sentence and granting or denying probation than it is to that of an executive administrator. It is essential to the proper administration of criminal justice that those who determine whether an individual shall remain incarcerated or be set free should do so without concern over possible personal liability at law for such criminal acts as some parolee will inevitably commit; in other words, that such official should be able to exercise independent judgment without pressure of personal liability for acts of the subject of their deliberations. Id. at 479. Accordingly, we affirm the ruling of the trial court that the actions of the Parole Board appearing from the record are protected from suit under W.Va.Code § 29-12-5 by reason of quasi-judicial immunity. We are conscious of appellant's claim that certain of the actions of the Parole Board were non-judicial, facts appellant desires to develop by discovery. We also note that appellant was not permitted by the trial court to file an amended complaint. We cannot conceive of legitimate actions by the Parole Board, as a governmental entity, which are not within its quasi-judicial nature. Suffice it to say that if, upon remand, appellant can demonstrate to the trial court a basis for alleging actionable conduct by the Parole Board which was non-judicial, then the trial court can grant such opportunity as appellant's proffers and representations may justify, consistent with this opinion and the provisions of Rule 11 of the West Virginia Rules of Civil Procedure. We conclude next that the public duty doctrine applies to the conduct of the Parole Board and the Division of Corrections alleged in the complaint in this action. Moreover, nothing in the record discloses any special relationship between appellant and appellees when the facts alleged are measured against the test we have adopted for the application of the exception. [15] We find no allegation or evidence that either governmental entity assumed an affirmative duty to act on behalf of appellant as a person apart from the general public. While both entities may have been informed of the criminal record or tendencies of the parolee, McCrary, the complaint contains no allegation directly asserting such knowledge. There is no allegation or evidence that appellant had direct contact with either governmental entity regarding McCrary's release, supervision, or conduct prior to the parolee's attack upon appellant nor any allegation or evidence suggesting that appellant relied on any affirmative undertaking to act on behalf of appellant. Unlike the facts in Randall, there is no suggestion that either governmental agency had knowledge that appellant, in particular, would be a likely victim. Accordingly, no special relationship existed between appellees, or either of them, and appellant. There remains only the question of whether the actual provisions of such policy or policies of insurance as are said to cover the operation of the Parole Board and the Division of Corrections provide coverage notwithstanding the quasi-judicial immunity of the Parole Board and the public duty doctrine. We have made clear that the immunities and defenses available to the State and its insurer in this action are defined first by the actual provisions of the policy or policies purchased by the State and may provide coverage notwithstanding common-law immunity or the public duty doctrine. We remand to develop the record on the coverage issue thus defined and to permit appellant a reasonable opportunity to show any allegedly non-judicial conduct by the Parole Board, as a governmental entity. If the court below finds the applicable insurance policy contemplates that the State and its insurer may assert common-law judicial immunity and may assert the public duty doctrine under the terms of the insurance policy, the court should finally dismiss the action unless appellant promptly makes an adequate showing regarding the alleged non-judicial conduct of the Parole Board. However, if the court finds that the applicable insurance policy affords coverage with respect to the claims raised here by expressly waiving either judicial immunity or the public duty doctrine, or if appellant makes the requisite showing regarding non-judicial conduct by the Parole Board, the court should allow the civil action to proceed to such result as may otherwise be proper under the law and as is contemplated under the terms of the policy, but only to the extent the policy extends coverage. In such event, the trial court will be called upon to further determine the applicability to the State of any applicable qualified immunity that has not been waived by the insurance policy. Accordingly, we reverse the order of the court dismissing this action and remand for further proceedings consistent with this opinion. Reversed and remanded, with directions.