Tango v. Tulevech, 61 N.Y.2d 34 (1984)
Government officials are immune from liability for discretionary acts, even if those acts are negligent or malicious, while performing their official duties; conversely, they can be held liable for exclusively ministerial acts if those actions are tortious and not justified by statutory command.
Summary
Charles Tango sued probation officer Jennie Tulevech and Rockland County, alleging Tulevech negligently allowed his ex-wife to take their children to South Carolina, violating his custodial rights and causing harm to the children. The New York Court of Appeals affirmed the dismissal of the complaint, holding that Tulevech’s actions were discretionary, not ministerial, and thus she was immune from liability, regardless of whether she acted in bad faith. Furthermore, Tango’s custodial rights were not clearly established at the time of the incident, precluding a claim under 42 U.S.C. § 1983.
Facts
Charles Tango and Barbara Childs divorced in New Jersey, with Childs initially granted custody of their two daughters. A subsequent letter agreement, facilitated by the Union County Probation Service, gave Tango temporary custody for one year. Tango then sought permanent custody in Rockland County, NY. On October 31, 1977, Childs picked up the children from their school bus. Police intercepted them, bringing them to the Rockland County Probation Department, where they met Tulevech. Tulevech, after reviewing documents including the divorce decree and the un-notarized letter agreement, allowed Childs to take the children to South Carolina. Tango later regained custody in South Carolina in June 1978.
Procedural History
Tango sued Tulevech and Rockland County in New York, alleging negligence, violation of civil rights under 42 U.S.C. § 1983, and breach of a special duty. The trial court dismissed the civil rights claim but allowed the other claims to go to the jury, instructing them that negligence required a finding of bad faith by Tulevech. The jury found for the plaintiffs. The Appellate Division reversed, finding Tulevech acted within her duties and made a factual finding that she had acted in good faith. Tango appealed to the New York Court of Appeals.
Issue(s)
1. Whether a probation officer’s decision to allow a mother to leave the probation office with her children, despite the father’s objections and a pending custody dispute, constitutes a discretionary act for which the officer is immune from liability, even if the decision was made in bad faith.
2. Whether the father had a clearly established custodial right at the time of the incident to sustain a claim under 42 U.S.C. § 1983 for deprivation of constitutional rights.
Holding
1. Yes, because Tulevech’s actions involved exercising reasoned judgment while performing her official duties. The court held that bad faith is irrelevant to the immunity determination for discretionary acts.
2. No, because at the time of the incident, the mother had a facially valid custody order, and the father only had an un-notarized letter agreement. Thus, the father’s custodial right was not clearly established.
Court’s Reasoning
The Court of Appeals relied on the distinction between discretionary and ministerial acts. Discretionary acts involve reasoned judgment with potentially different acceptable results, while ministerial acts require direct adherence to a governing rule or standard with a compulsory result. The court stated: “discretionary or quasi-judicial acts involve the exercise of reasoned judgment which could typically produce different acceptable results whereas a ministerial act envisions direct adherence to a governing rule or standard with a compulsory result.”
The court found Tulevech’s actions to be discretionary. As supervisor of the In-take Unit, she interviewed the parents and children, reviewed documents, and assessed whether court action was appropriate. Even if her decision was incorrect, she acted within the scope of her discretionary authority. The court reaffirmed New York’s minority position that bad faith or malice is irrelevant when determining immunity for discretionary acts.
Regarding the § 1983 claim, the court held that Tango’s custodial rights were not clearly established at the time of the incident. Although the Supreme Court has recognized a parent’s interest in maintaining custody of their children (citing Stanley v. Illinois, 405 U.S. 645), Tango’s claim to custody was only supported by a letter agreement, while Childs held a court order awarding her custody. The court cited Procunier v. Navarette, 434 U.S. 555, 562-563: “Here, at the time the children left the Probation Department with Ms. Childs in October, 1977, the right to lawful custody was debatable — Tango could point only to an equivocal letter agreement to support his claim of custody — whereas his former wife held an award of custody from a court of competent jurisdiction.”