Law immunizes school social worker in teen's suicide

PickPik

A public school social worker is immune from liability in the suicide of a 16-year-old boy, the Massachusetts Appeals Court ruled in the fall in a case at the border of the common law "suicide rule" and the law of sovereign immunity.

A student at Acton-Boxborough Regional High School, the troubled teen committed suicide at his home while on summer break in 2018. The teen had been under the care of a licensed clinical social worker on contract with the school district.

Six weeks before the teen's death, his girlfriend, another student at the high school, had told the social worker that the boy was drinking and weeping, exhibiting suicidal behavior, and in crisis. According to the plaintiff's allegations, the social worker assured the girlfriend that the teen would get the care he needed and that the social worker would inform the boy's parents.

The social worker met with the boy subsequently, but did not contact his parents. The girlfriend alleged that she would have contacted the parents had she not been assured that the social worker would, and that the social worker's failure appropriately to respond legally caused the teen to take his own life.

The "suicide rule."  It is sometimes said that American common law has a "suicide rule," which is expressed variably as a rule of duty, causation, or scope of liability. Under the rule, a person does not have a legal duty to prevent the suicide of another. In causal terms, an actor's failure to prevent the suicide of another cannot be deemed the legal cause of the suicide, because the intentional, in some jurisdictions criminal, suicidal act is a superseding proximate cause.

It is widely understood, however, that the suicide rule is not really a rule. That is, it's not an absolute. Rather the rule simply recognizes that non-liability is the result that courts most often reach in analyses of duty, causation, or scope of liability on the fact pattern of a decedent's family claiming wrongful death against someone who knew of the decedent's suicidal potential and failed to prevent the death. (Read more in Death case against Robinhood tests common law disfavor for liability upon negligence leading to suicide (Feb. 9, 2021).)

Massachusetts courts have demonstrated especial receptivity to liability arguments contrary to the suicide rule. In 2018, the Supreme Judicial Court (SJC) ruled "no duty" in a student-suicide case against MIT, but proffered an analysis that signaled leniency to the plaintiff's theory. Then in 2019, the SJC let a student-suicide case proceed against Harvard University. Reading the map of this forking road, the Appeals Court rejected liability for an innkeeper in the suicide of a guest in 2022.

Massachusetts also was home to the infamous case of Michelle Carter and Conrad Roy, which was never litigated in its civil dimension. Roy's family alleged that Carter actively encouraged Roy to commit suicide. The case demonstrates that the line between failure to prevent a suicide and assistance in committing suicide is sometimes uncomfortably fine.

Sovereign immunity.  The three cases from 2018, 2019, and 2022 all bore on the instant matter from Acton. But the Acton case also added a new wrinkle: the peculiar causation rule of the Massachusetts Tort Claims Act.

Sovereign immunity usually protects a governmental defendant, such as a public school, from liability in a case that otherwise would test the suicide rule. State and federal tort claims acts waive sovereign immunity in many personal injury lawsuits. But the waiver comes with big exceptions.

Suicide cases typically fail for either one of two exceptions. First, tort claims acts, including the Federal Tort Claims Act (FTCA), disallow liability predicated on an affirmative duty, that is, a failure to act affirmatively, rather than on an allegedly tortious action. Wrongful death complainants in suicide cases often allege the defendant's failure to intervene, and that allegation doesn't make the cut. FTCA liability can arise from an unreasonable "omission" of action. The line between such an omission and a failure to act affirmatively is fine and not material here, so I will conflate the two as immunized inaction.

Second, sovereign immunity waivers, including the FTCA, disallow liability for officials insofar as they exercise the discretion that it is their job to exercise. This exception for "discretionary function immunity" can be challenging to navigate, but is critical to prevent every governmental decision from collapsing into a tort case. If a government official makes a poor policy choice, the remedy should be in civil service accountability or at the ballot box, not in the courtroom. The tort system should be reserved for actions that effect injury by contravening social and legal norms. (Learn more with Thacker v. Tennessee Valley Authority, SCOTUSbrief (Jan. 13, 2019).)

These exceptions ordinarily would preclude liability on the facts of the Acton case, insofar as the plaintiffs claimed that the social worker failed to prevent the teen's suicide or committed a kind of malpractice in the the provision of counseling, leading to the suicide. The former theory would fail as inaction, and the latter theory would fail as disagreement over the social worker's discretionary choices.

However, Massachusetts statutes are rarely ordinary, and the Massachusetts Tort Claims Act (MTCA) is not co-extensive with the FTCA.

Under its section 10(b), The MTCA provides for discretionary function immunity similarly to the FTCA. Another section, 10(j), provides a potent state immunity not found in the FTCA and characterized as a rule of causation. (Read more in Court denies police immunity under state tort claims act in death of intoxicated man in protective custody (July 22, 2022).) The court in the Acton case did not reach the section 10(b) issue and dismissed the claims against the social-worker defendant under section 10(j).

Section 10(j) on its face recognizes the possibility of a claim "based on an act or failure to act to prevent or diminish the harmful consequences of a condition or situation, including the violent or tortious conduct of a third person" (my emphasis). But the section disclaims liability when the third-party conduct "is not originally caused by the public employer or any other person acting on behalf of the public employer."

The magic happens in the phrase "originally caused." And if you're expecting that that phrase has a well honed technical meaning, prepare to be disappointed.

Historically, common law courts sometimes tried to distinguish mere (pre-)"conditions" from "causes." The famous tort scholar William Prosser wrote in the 20th century on the futility of that semantic wrangling. He opined, and American common law tort in the 20th century recognized, that the salient distinction the courts had been chasing is between scientific causes and legal causes. Even if we can determine scientifically that a butterfly flapping its wings caused a tsunami, we do not necessarily conclude that the butterfly is responsible for the tsunami to a degree that would satisfy legal standards. (Read more in State supreme court upends causation in tort law, promising plenty post-pandemic work for lawyers (Feb. 28, 2021).)

Not every actor who exerts causal force along the chain of events that ends with personal injury is thereby legally responsible for that injury. Tort law employs the term "proximate cause" in an effort to parse the timeline and trace back legal responsibility only so far. Of course, once we acknowledge that ours is a problem of degree, we always will have to wrestle with "how much is too much?"

Like common law courts historically, the legislators who drafted MTCA section 10(j) likely were after this same distinction, even if they might have drawn the line in a different place from the courts. And it's likely they would have drawn the line closer to the injury, that is, more stringently against plaintiff claims. So in a suicide case, a Massachusetts court is likelier than otherwise to find the suicide rule alive and well when the intentional violent act of taking one's own life intervenes between state actor and death.

Thus was the outcome in the Acton case. And fairly so. Whatever the social worker failed to do when the decedent teen was still in school, it strains credulity to assert an intact causal chain leading from her response to the girlfriend's alarm all the way to the boy's suicide on summer break six weeks later. It's plausible that the social worker's response was a cause, and that the suicide might have been averted in a counterfactual world in which the social worker reacted more aggressively. But the social worker's response looks like a small sail on the sea of complex causal forces that resulted in the tragedy of a suicide.

Accordingly, the court concluded that, legally, for the purpose of section 10(j), "[the boy's] suicide was the result of his own state of mind and not the failures of [the social worker]."

In its own text, section 10(j) enumerates some exceptions, but the court held that none applied. The plaintiff argued for the applicability of an exception when a state defendant makes "explicit and specific assurances of safety or assistance, beyond general representations that investigation or assistance will be or has been undertaken, ... to the direct victim or a member of his family or household." Regardless of whether the social worker's assurances to the decedent's girlfriend qualified as sufficiently specific, the girlfriend was not a member of the boy's family or household, the court observed.

The plaintiff argued also for the applicability of an exception "for negligent medical or other therapeutic treatment received by the patient [decedent] from [the state defendant]." Regardless whether the counseling relationship qualified the boy as a "patient" under this provision, the court opined that the plaintiff's theory comprised wholly a claim of failure to inform the parents, and not, as the plaintiff expressly alleged, a theory of negligent medical treatment that would qualify for the 10(j) exception.

To my mind, the court might have gotten it wrong on this latter score. In the final pages of the decision, the court dealt separately with the plaintiff's claim of negligent treatment. Briefly discussing the MIT and innkeeper cases, the court recognized that the plaintiff's argument for a duty relationship between social worker and student that would contravene the suicide rule "has some force." Then, summarily, the court declined to resolve the issue, finding the negligent treatment claim subsumed by the 10(j) analysis.

The court could have reached the same conclusion by finding an insufficient factual basis for the plaintiff's claim of negligent treatment. Or by blocking the negligent treatment claim with discretionary function immunity under section 10(b). Or the court could have allowed the plaintiff to attempt to develop the factual record to support the complaint on the negligence theory. It's likely the plaintiff could not and would have succumbed to a later defense motion for summary judgment.

In applying section 10(j), the court wrote that "the amended complaint does not allege that [the social worker] was negligent in ... 'treatment.'" Yet in discussing the negligence claim just two paragraphs later, the court wrote that the plaintiff "contends that '[the social worker's] negligence, carelessness and/or unskillful interactions with and/or failure to provide [the boy] with the degree of care of the average qualified practitioner ... were direct and proximate causes of ... death.'"

Then the court referred back to its 10(j) analysis to reject the latter contention. I have not read the pleadings or arguments in the case, so I might be missing something. The plaintiff's clumsy use of "and/or" legal-ese doesn't scream expert drafting. But in the court's opinion, the logic looks circular and iffy.

The case is Paradis v. Frost (Mass. App. Ct. Sept. 22, 2023). Justice Maureen E. Walsh wrote the unanimous opinion of the panel that also comprised Justices Blake and Hershfang.

Postscript. Regarding the death in this case and the family's decision to litigate in wrongful death: The family wrote on GoFundMe in 2018 that their life insurance would not cover their funerary costs, I suspect because the policy excluded coverage for suicide. The fundraising yielded $15,450 for the family.

The case raised awareness and spurred discussion of teen suicide and suicide prevention (e.g., Boston Globe (Dec. 16, 2018) (subscription), NPR Morning Edition (Dec. 15, 2019)). At the same time, sadly, the alarm raised by the decedent's girlfriend, then a high school sophomore, was informed already by the experience of four prior student deaths by suicide in the preceding two years at the same school, WGBH reported. 

Advice on teen suicide warning signs and prevention can be found at, inter alia, Johns Hopkins Medicine, Northwestern Medicine, and the American Foundation for Suicide Prevention.