Larry v. State of Oregon et al

Filing 148

OPINION and ORDER - Defendants motions 76 , 104 and 107 for summary judgment are GRANTED. DATED this 19th day of February, 2019, by United States Magistrate Judge John V. Acosta. (copy of this opinion and order mailed to plaintiff) (peg)

UNITED STATES DISTRICT COURT
DISTRICT OF OREGON
PORTLAND DIVISION

ROBERT J. LARRY,

Case No. 3:16-cv-1892-AC
Plaintiff,

v.
STATE OF OREGON, by and through
OREGON DEPARTMENT OF HUMAN
SERVICES, by and through OREGON
VOCATIONAL REHABILITATION
SERVICES; TRINA LEE, Director of Oregon
Vocational Rehabilitation Services; ROBERT
COSTELLO, DONNA DUFF, TRACY
SCHAFFER, SARAH SANDRUDDIN,
MARK MASTHOFF, JOHN DOES 1-10, all
in their individual and official capacities; DR.
ROBINANN COGBURN, and DR. LUAHNA
UDE, Contractors of Oregon Vocational
Rehabilitation Services, in their professional
and individual capacities,
Defendants.
___________________________________

PAGE 1 - OPINION AND ORDER

OPINION AND ORDER

ACOSTA, Magistrate Judge:
Introduction
Plaintiff Robert J. Larry (“Larry”) filed this action against the State of Oregon (the “State”)
and various state agencies, employees, and agents alleging claims for disability discrimination and
failure to accommodate in violation of the Rehabilitation Act of 1973 (29 U.S.C. §§ 701-796) (the
“Act”), and common law claims for intentional infliction of emotional distress (“IIED”) and
vicarious liability. Currently before the court are the defendants’ motions for summary judgment.
The court finds a two-year statute of limitations applies to Larry’s claims under the Act and
Larry has failed to offer evidence he was otherwise qualified for the specific services requested,
defendants denied such services solely on his disability, or defendants acted with deliberate
indifference in denying such services. With regard to Larry’s common law claims, the court finds
the Oregon Tort Claims Act applies, Larry provided proper tort- claim notice on March 23, 2016,
defendants’ actionable conduct was not intended to inflict emotional distress on Larry nor was it
beyond the bounds of socially tolerable conduct, and, in the absence of a viable claim against the
individual defendants, vicarious liability does not exist.

Accordingly, defendants’ motions for

summary judgment are1 all granted and this lawsuit is dismissed with prejudice.
Preliminary Procedural Matters
On January 30, 2018, one day after Robinann Cogburn, Ph.D. (“Dr. Cogburn”), filed the first
motion for summary judgment motion in this matter, the court issued and mailed to Larry, who is
appearing pro se, a summary judgment advice notice (the “SJ Notice”). The SJ Notice advised Larry

1

The parties have consented to jurisdiction by magistrate judge in accordance with 28 U.S.C.
§ 636(c)(1).
PAGE 2 - OPINION AND ORDER

that:
The defendants have made a motion for summary judgment (Motion for
Summary Judgment [76]) by which they seek to have your case dismissed. A motion
for summary judgment under Rule 56 of the Federal Rules of Civil Procedure will,
if granted, end your case.
Rule 56 tells you what you must do in order to oppose a motion for summary
judgment. When a party you are suing makes a motion for summary judgment that
is properly supported by declarations (or other sworn testimony), you cannot simply
rely on what your complaint says. Instead, you must set out specific facts in
depositions, documents, electronically stored information, affidavits or declarations,
stipulations, admissions, interrogatory answers, or others materials, as provided in
Rule 56(c), that contradict the facts shown in the defendants’ declarations and
documents and show that there is a genuine dispute of material fact for trial. If you
do not submit your own evidence in opposition, summary judgment, if appropriate,
may be entered against you. If summary judgment is granted, your case will be
dismissed and there will be no trial.
(Summ. J. Advice Notice, ECF No. 83.)
The only materials initially submitted by Larry in opposition to the pending motions for
summary judgment are declarations signed by Larry 2 and Shea A. Lott, Ph.D. (“Dr. Lott”),3 on June
11, 2018, and exhibits4 attached to the Lott Declaration.

The exhibits include communications to

and from Larry or between others about Larry, responses to Larry’s appeals, various guides and
policies of defendants Oregon Vocational Rehabilitation Services (the “Agency”)

and Oregon

2

Larry filed two identical declarations signed by him on June 11, 2018, identified as ECF
Nos. 122 and 124. The court will refer to both declarations as the “Larry Declaration” and will cite
to only ECF No. 122
3

Larry also filed two identical declarations signed by Dr. Lott on June 11, 2018, identified
as ECF Nos. 125 and 126. The only distinguishing feature of the declarations are the exhibits
attached. The court will refer to both declarations as the “Lott Declaration,” will cit to only ECF No.
125, and will refer to the two exhibits attached to the second filed declaration, specifically ECF No.
126, as Exhibit 1A and Exhibit 2A.
4

The exhibits attached to the Lott Declaration are not clearly numbered. Consequently, the
court assigns each exhibit a number when initially referenced and described.
PAGE 3 - OPINION AND ORDER

Department of Human Services (the “Department”), and a hearing request signed by Larry. While
Larry cites to a number of depositions in his initial opposition materials, he did not offer any
deposition transcripts until obtaining leave of court at oral argument to supplement his opposition
materials with deposition excerpts.5
The evidence presented in support of or in opposition to a motion for summary judgment
must be based on personal knowledge, properly authenticated, and admissible under the Federal
Rules of Evidence. FED. R. CIV. P. 56(c) (2018). The court has the obligation to determine what
evidence is admissible, relevant, and substantive. FED. R. EVID. 104 (2018). In ruling on a motion
for summary judgment, the court will consider the admissibility of the proffered evidence’s contents,
not its form. Fraser v. Goodale, 342 F.3d 1032, 1036 (9th Cir. 2003)(“At the summary judgment
stage, we do not focus on the admissibility of the evidence’s form.

We instead focus on the

admissibility of its content.”); Celotex Corp. v. Catrett, 477 U.S. 317, 324 (1986)(“We do not mean
that the nonmoving party must produce evidence in a form that would be admissible at trial in order
to avoid summary judgment.”). To lay the foundation for receipt of a document in evidence, the
party offering the exhibit must provide the “testimony of a witness with personal knowledge of the
facts who attests to the identity and due execution of the document and, where appropriate, its
delivery.” United States v. Dribble, 429 F.2d 598, 602 (9th Cir. 1970).
The statements in the Larry Declaration and the Lott Declaration are limited to material of
which the declarants have personal knowledge and are properly before the court. However, Dr. Lott
5

In his opposition briefing, Larry attempts to incorporate all facts alleged in his First
Amended Complaint. The SJ Notice clearly and unequivocally informs Larry he can not rely on
what his complaint says but must offer specific facts in materials provided by him to contradict the
facts offered by the defendants. The court will not consider the allegations of the First Amended
Complaint as facts unless supported by Larry’s evidentiary offerings.
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does not appear to lay the requisite foundation to offer exhibits attached to the Lott Declaration. Dr.
Lott does not refer to or describe the exhibits in his declaration6 and fails to establish the personal
knowledge required to authenticate the exhibits. Dr. Lott does indicate he “requested complete copy
of Mr. Larry’s file from Dr. Cogburn” and refers to “all the documentation that has been provided
to me, including Dr. Ude’s review of Dr. Cogburn’s psychological evaluation” implying some, if not
all, of the exhibits were provided by Dr. Cogburn, the Agency, or the Department. (Lott Decl. dated
June 11, 2018, ECF No. 125, ¶¶ 4, 11.)
To the extent the exhibits were provided to Dr. Lott by defendants and defendants have not
objected to them, they are properly before the court for the purposes of a summary judgment motion.
On the other hand, if defendants did not provide the exhibits, Dr. Lott has failed to properly
authenticate them and the court must determine if they could be made admissible in a trial setting.
Some of the exhibits could be offered and authenticated by Larry at trial.

Specifically,

Exhibit 1, an email from Dr. Lott to Larry indicating the Lott Declaration was signed and available
to be picked up; Exhibit 3, an October 24, 2014 letter from Larry to Cogburn, defendant Tracy
Schaffer, an Agency counselor (“Schaffer”), and defendant Donna Duff, an Agency branch manager
(“Duff’); Exhibit 5, a letter from Schaffer to Larry; and Exhibit 2A, a request for an impartial hearing
signed by Larry, are all within Larry’s personal knowledge, would be admissible at trial once Larry
offers the foundation, and will be considered by the court.7 Additionally, Dr. Lott could provide the
foundation for Exhibit 1A, which is a letter signed by Dr. Lott.

6

Larry represents “[a]ll exhibits are true copies” in his declaration but no exhibits are attached
to the Larry Declaration.
7

Exhibits 5 and 2A were also offered and authenticated by one or more of the defendants.

PAGE 5 - OPINION AND ORDER

Exhibit 2 is a letter dated August 18, 2014, from Dr. Cogburn transmitting her “report
regarding Bobby Larry” to Schaffer.8 The defendants do not dispute Dr. Cogburn shared her findings
with Schaffer or the date on which such sharing occurred.

The court will consider these facts

established.
Exhibit 4 appears to be an Agency review of a discrimination complaint made by Larry
against Schaffer, Duff, and another Agency counselor in which Mary Shivell, the Agency’s Interim
Field Manager, found the services provided were poorly organized and researched, and deficient with
regard to understanding the process, consumer rights related to information, and adherence to time
dispute resolution procedures, but determined none of the issues were related to Larry’s disability.
In the event Larry received a copy of the exhibit, which is likely as it addresses a complaint filed by
him and informs him of his appeal rights, he could authenticate the exhibit at trial. Similarly, Larry
could call the author of the exhibit to testify to the authenticity of the document. The court will
consider Exhibit 4.
Exhibit 6 is an unsigned, undated copy of a review9 of two prior psychological evaluations
of Larry performed by defendant Luahna Ude, Ph.D. (“Dr. Ude”), apparently at the request of
defendant Robert Costello, an Agency manager or supervisor10 (“Costello”), and defendant Sarah
Sadruddin,11 an Agency counselor (“Sadruddin”). In his declaration, Dr. Lott references Dr. Ude’s

8

Exhibit 2 was also offered and authenticated by one or more of the defendants.

9

The exhibit omits the first words or portions thereof on page one and the last word or
portions thereof on page two, making it impossible to fully understand the text.
10

Larry identifies Robert Costello as “a Branch Manager and/or a Regional Supervisor for
[the Agency].” (First Am. Compl., ECF No. 41, ¶8.)
11

Sadruddin is identified as Sarah Sandruddin in the First Amended Complaint.

PAGE 6 - OPINION AND ORDER

review of Dr. Cogburn’s psychological evaluation of Larry and could identify Exhibit 6 at trial as
the document he reviewed. The exhibit bears an exhibit label, impliedly establishing the exhibit was
identified and discussed during Sadruddin’s deposition, making it likely Sadruddin could
authenticate the document at trial. Finally, Dr. Ude, as the author of the document, could testify to
its authenticity. However, due to the unsigned, undated nature of the exhibit, the court will consider
it merely as a draft of Dr. Ude’s review of Larry’s previous psychological evaluations and the
document on which Dr. Lott relied in reaching the conclusions stated in the Lott Declaration. It is
unclear to what degree any defendant relied on Exhibit 6 in making decisions related to Larry so the
relevance of the content of the exhibit is limited.
Finally, Exhibits 7 and 8 are copies of Agency guidelines and policies governing selfemployment, portions of which are undated, or identified as “initiated” on January 1, 2015, or
revised on September 28, 2011. The Agency provided Larry certain Agency guidelines and policies,
which Larry complained were outdated. Larry, as well as many defendants, may lay the foundation
for the guidelines and policies provided him, and those relevant to his claims. However, it is unclear
whether the exhibits contain outdated guidelines and policies or those relevant to the handling of
Larry’s request for assistance. The court will consider the exhibits and the general requirements
found therein, but will not rely on specific requirements set forth the exhibits as they apply to Larry’s
claims.
In his supplemental briefing filed after oral argument, Larry offers two pages from Cogburn’s
deposition without any material authenticating the excerpts.

“To satisfy the requirement of

authenticating or identifying an item of evidence, the proponent must produce evidence sufficient
to support a finding that the item is what the proponent claims it is.” FED. R. EVID. 901(a) (2018).
PAGE 7 - OPINION AND ORDER

A deposition excerpt is ordinarily authenticated “by attaching the cover page of the deposition and
the reporter’s certification to every deposition extract submitted.” Orr v. Bank of America, 285 F.3d
764, 774 (9th Cir. 2002). However, “when a document has been authenticated by a party, the
requirement of authenticity is satisfied as to that document with regards to all parties, subject to the
right of any party to present evidence to the ultimate fact-finder disputing its authenticity.” Orr, 285
F.3d at 776.
At least one defendant offered properly authenticated excerpts from the Cogburn deposition.
The excerpts offered by Larry are consistent, both in content and appearance, with the properly
authenticated excerpts offered by the defendants. Consequently, the court will consider Larry’s
deposition excerpts in this Opinion.
Larry also offered an email chain from July 25, 2014 and July 26, 2014, between Schaffer
and Kedma Ough (“Ough”) discussing Larry’s initial meeting with Cogburn and the need to continue
Larry’s evaluation on another day.

The order allowing supplemental briefing was limited to the

filing of a brief and deposition excerpts, and did not contemplate the filing of additional evidence.
Consequently, the email chain is not properly before the court. However, in light of Larry’s pro se
status, his representation the “State Defendants” produced the emails during discovery, Schaffer’s
ability to authenticate the emails at trial, and the lack of prejudice to defendants, the court will
consider the emails to the extent relevant to the issues before the court.
Background
Larry’s claims are based on a denial of his request for self-employment assistance from the
Agency due primarily to the results of Dr. Cogburn’s psychological evaluation of Larry. (Larry Dep.

PAGE 8 - OPINION AND ORDER

dated July 28, 2017, 1 2

30:20-32:23.) The Agency is a federally-funded state agency providing

general vocational rehabilitation services to Oregon residents. (Lee Decl. dated April 13, 2018, ECF
No. 106, ¶¶ 1, 3.) The Agency “assists individuals with disabilities in getting and keeping a job, as
well as assisting in advancing careers that match their skills, interests, and abilities” by providing
“assessment services, counseling and guideline services, training services, and employment
services.” (Lee Decl. ¶¶ 3, 5.)
Only individuals with disabilities, defined “as a physical or mental impairment that
constitutes or results in substantial impediment to employment,” qualify for vocational rehabilitation
services. (Lee Decl. ¶ 8.)

Each prospective client of the Agency participates in an assessment,

which includes administration of a variety of vocational tests intended to determine if a person will
benefit from services provided by the Agency. (Lee Decl. ¶ 9.) If an individual is found eligible,
the Agency will prepare an individualized employment plan providing services unique to each client.
(Lee Decl. ¶ 9.)
A very small percentage of individuals eligible for Agency services also qualify for selfemployment assistance.13 (Lee Decl. ¶ 10.) Additional eligibility criteria for those wishing to pursue
self-employment or start a small business include:
a concise description of the proposed self-employment/business; an explanation of
how self-employment meets an individual’s needs better than wage employment; a
list of any past training and work experience that may help qualify the individual to
own and operate a business; a vocational profile or functional assessment that

12

Portions of the Larry Deposition are found at Exhibit 23 to the Schneider Declaration (ECF
No. 105) and Exhibit 1 to the Madigan Declaration (ECF No. 109).
13

National statistics reveal clients eligible for self-employment assistance range from 1.97
percent in 2003, to 1.66 percent in 2007, 1.99 percent in 2009, and 2.4 percent in 2012. (Lee Decl.
¶ 11.)
PAGE 9 - OPINION AND ORDER

supports the idea of owning a small business; a list of any past training and
experience (both work and non-work) that demonstrates the individual’s ability to
produce the product or service of the business; documentation that the individual can
substantially contribute to the enterprise; feasibility data that shows the need for the
service or business in the market; an explanation of pricing and profit projections; a
plan for marketing and advertising that grows the business; a description of how
business operations and accounting records for the business will be handled[;]
proposed start-up budget and the sources of the funds (e.g., sales, PASS Plan, VR);
and at least one-year financial estimate including operating expenses, income, profit,
taxes, income after taxes.
(Lee Decl. ¶ 10.)
Larry filed an application for Agency services in 2008 claiming disability based on a back
injury and depression. (Schneider Decl. dated April l3, 2018, ECF No. 106, Ex. 1.) The Agency
obtained documentation supporting Larry’s back injury but nothing to substantiate his claim of
depression. (Schneider Decl. Ex. 1.) The Agency closed the application for lack of cooperation in
the Fall of 2008 when Larry refused to follow through with the psychiatric evaluation necessary to
support his depression diagnosis. (Schneider Decl. Exs. 1, 2.)
Larry filed a second application on January 8, 2013, claiming he was disabled due to major
depressive order, post traumatic stress disorder, and a shoulder and back injury (the “Application”).
(Schneider Decl. Ex. 3 at 1, 5-6.) He sought “help with deciding on a work goal, help finding a job,
skill development, and help learning how to disclose his criminal records and disability with
potential employers.” (Schneider Decl. Ex. 3 at 6.) At the time of the Application, Larry had over
two years experience as a caregiver and was working sixteen hours a week in this position.
(Schneider Decl. Ex. 3 at 4, 7.) He expressed a desire to get a “CNA to help him get better jobs as
a caregiver” and “qualify to be a residential manager.” (Schneider Decl. Ex. 3 at 6, 7.)
Larry was initially assigned to work with Schaffer, who had a Master’s degree in

PAGE 10 - OPINION AND ORDER

rehabilitation counseling and was a certified rehabilitation counselor. (Schaffer Dep. dated March
12, 201814 9:11-22.) During their April 2013 initial meeting to set goals and assign homework,
Schaffer asked Larry to research different CNA programs and obtain information about available
financial aid and the fee for new vehicle license tags, and an estimate on the cost to replace the
tailpipe on his vehicle to enable it to pass DEQ. (Schneider Decl. Ex. 4.) Schaffer also requested
Larry pursue a grant from SE Works15 to assist in the cost of the CNA training. (Schneider Decl. Ex.
4.) Schaffer and Larry discussed additional needs, such as interview clothing, dress shoes, and a bus
pass. (Schneider Decl. Ex. 4.)
On June 19, 2014, Larry and Schaffer met with Ough, who held an MBA, to discuss the
feasibility of Larry’s new plan to open an adult care home. (Schneider Decl. Ex. 6 at 1.) Ough
authored a three-page initial report summarizing the meeting, identifying numerous tasks to be
performed by Larry and Ough, and classifying the case as “complex” in light of the regulations and
in-depth requirements governing adult care homes. (Schneider Decl. Ex. 6.)
A July 7, 2014 physical capacity evaluation by Angela Lynn Brown, PT (“Brown”) revealed
Larry was capable of full-time work in the medium range of physical demand. (Schneider Decl. Ex.
7.) In late July and early August, 2014, Dr. Cogburn performed a two-day psychological evaluation
of Larry on Schaffer’s referral to “assess Mr. Larry’s occupational capacity and rehabilitation needs”
(the “Evaluation”). (Schneider Decl. Ex. 8; Cogburn Decl. filed January 29, 2018, ECF No. 77 , ¶
3.)

14

The Schaffer Deposition is Exhibit 26 to the Schneider Declaration (ECF No. 105).

15

SE Works is an organization that provides financial assistance to individuals with a criminal
history. (Schneider Decl. Ex. 4.)
PAGE 11 - OPINION AND ORDER

At the beginning of their first meeting, Dr. Cogburn provided Larry with a “Informed
Consent” form (the “Consent”). (Cogburn Decl. ¶ 3.) The Consent explained the Agency requested
a psychological evaluation because it needed to know more about Larry, including an opinion on
Larry’s diagnosis, whether Larry had “any kind of mental or emotional condition, learning disability,
or related issue,” and providing information on Larry’s “interests, abilities, strengths, and
weaknesses.” (Cogburn Decl. Ex. 1 at 1.) Dr. Cogburn would provide this information in a report
that would include a diagnosis and recommendations regarding services that might help Larry, job
tasks that might be harder or easier for him, accommodations that would allow him to succeed, and
work settings that might a better or worse fit for him. (Cogburn Decl. Ex. 1 at 1.) The Consent
specifically advised Larry the report would be an Agency document, stating:
The report I write will be an [Agency] document. I will give it directly to your
[Agency] counselor, or if that person is not available, to other [Agency] staff.
Release of the report contents is at [Agency] discretion. I do not provide results
directly to you. However, if you have questions or concerns about the results afer
you meet with your [Agency] counselor, you may ask your counselor to set up an
appointment with me.
(Cogburn Decl. Ex. 1 at 1.)
With regard to confidentiality, Dr. Cogburn agreed not to provide any information about
Larry to anyone other than Agency staff unless Larry was planning to hurt himself or others, or he
reported a child or an elderly or disabled person was being abused. (Cogburn Decl. Ex. 1 at 1-2.)
The Consent expressly advised Larry “[t]here is no legal privilege of confidentiality in administrative
evaluations. This means that if a court were to subpoena my records or order me to testify about you
I would have to provide the information that I have.” (Cogburn Decl. Ex. 1 at 2.) The Consent
informed Larry of possible risks resulting from the Evaluation as follows:

PAGE 12 - OPINION AND ORDER

[I]t is possible that you could be surprised by evaluation results or disagree with my
conclusions or recommendations. In such a situation, you may feel distressed. Also,
[Agency] staff may use information from this evaluation to make decisions about
your eligibility for services, or about whether specific services will be provided for
you. You may disagree with the decisions they make, or feel that their decisions are
not in your best interest. I do not make these decisions myself, and I do not try to
promote any particular outcome. Instead, I try to provide clear and unbiased
information.
(Cogburn Decl. Ex. 1 at 2.) Finally, the Consent explained Dr. Cogburn is not an employee of the
Agency and maintains an independent private practice with files, billing procedures, and clinical
practices. (Cogburn Decl. Ex. 1 at 2.) Larry signed the Consent on July 25, 2014, expressly
acknowledging he read the Consent, had the opportunity to ask questions about the Evaluation and
have issues explained to him, and agreed to participate in the Evaluation under the conditions stated
in the Consent. (Cogburn Decl. Ex. 1 at 2.) The Consent did not provide information on how to stop
or withdraw from an evaluation. (Cogburn Dep. dated March 14, 2018,16 69:4-25.)
In her report dated August 18, 2014, summarizing the Evaluation, Dr. Cogburn
acknowledged a 2012 psychological evaluation found Larry “was affected by major depressive order
and post-traumatic stress disorder” related to a criminal trial in which Larry was convicted of
reckless endangerment and sentenced to probation in 2007. (Schneider Decl. Ex. 8 at 1- 2.) Larry
initiated the 2012 evaluation, selecting the evaluator because he “understood minorities and the court
system” and it would be helpful to talk with someone who “understood [Larry] as a black man.”
(Schneider Decl. Ex. 8 at 2-3.)
Larry was “polite, but cautious and sometimes somewhat defensive and/or confrontational”

16

Portions of the Cogburn Deposition are found at Exhibit 24 to the Schneider Declaration
(ECF No. 105) and Exhibit 1 and 3 to the Larry declarations filed January 19, 2019 (ECF No. 140
and 142).
PAGE 13 - OPINION AND ORDER

during the initial meeting with Dr. Cogburn. (Schneider Decl. Ex. 8 at 7.) Larry appeared highly
goal-oriented and expressed concern the Agency may not entirely support him in his request for startup capital and other services to allow him to open his adult care home. (Schneider Decl. Ex. 8 at
11.) Dr. Cogburn described Larry’s speech content as “verbose and overly inclusive of detail,” and
noted his “lengthy play-by-play narratives of events” in response to questions increased the interview
time from 1.5 hours to 2.5 hours and required the scheduling of a second meeting to complete the
testing. (Schneider Decl. Ex. 8 at 7.)
Larry initially focused on discussing the proper interpretation of the Agency manual with
Dr. Cogburn but his attention was redirected when Dr. Cogburn explained interpretation of manuals
was not within her expertise and her role “in relation to his self- employment goal was related to
providing information to help determine whether he is affected by functional limitations that would
affect his ability to operate the proposed business.” (Schneider Decl. Ex. 8 at 4-5.) Larry expressed
dissatisfaction with the Agency’s “slow progress,” and described his participation in the Evaluation
as a “major setback,” noting the Evaluation should have occurred in January 2013 when he
completed the Application. (Schneider Decl. Ex. 8 at 3.)
Larry also complained about Agency staff, explaining his counselor gave him an outdated
version of the Agency manual and when he asked her to email him a current version, she lied about
the existence of electronic versions of the current manual. 1 7 (Schneider Decl. Ex. 8 at 4.) Larry
reported feeling “manipulated” by the Agency and was concerned the Agency was resistant in
moving toward his goal of self-employment, surmising the Agency had not been involved with many

17

The counselor did provide him with a paper copy of the current version of the Agency
manual. (Schneider Decl. Ex. 8 at 4.)
PAGE 14 - OPINION AND ORDER

requests for self-employment assistance. (Schneider Decl. Ex. 8 at 4.)

He indicated his “primary

stress [was] related to his interactions with [the Agency].” (Schneider Decl. Ex. 8 at 8.)
Larry objected to Dr. Cogburn’s questions regarding his ethnic and cultural background,
stating he “identifies as an American.” (Schneider Decl. Ex. 8 at 5.) Larry also expressed concern
over Dr. Cogburn’s ability to perform a proper evaluation, questioned Dr. Cogburn’s experience with
individuals involved in court proceedings, and planned to inquire about other psychologists under
contract with the Agency. (Schneider Decl. Ex. 8 at 7.)
Larry appeared “more guarded” during the second meeting and requested he be allowed to
record his interactions with Dr. Cogburn. (Schneider Decl. Ex. 8 at 7.) Dr. Cogburn explained the
standardized tests were protected and could not be recorded. (Schneider Decl. Ex. 8 at 7.) She then
informed Larry she would need to record any interactions he recorded and, as she did not have
recording equipment available, offered to reschedule the second meeting to allow both of them to
record their interaction at a later date. (Schneider Decl. Ex. 8 at 7.) Larry agreed to complete the
Evaluation that day without recording the interaction. (Cogburn Decl. ¶ 7.)
Larry commented at some length on the proper interpretation of the “Limits of
Confidentiality” provision found in the Consent. (Schneider Decl. Ex. 8 at 7.) They eventually
agreed the provision allowed Dr. Cogburn to provide information about Larry only if her records
were subpoenaed, or a court ordered her to produce records or testify. (Schneider Decl. Ex. 8 at 7.)
Larry commented the language was unclear and should be revised. (Schneider Decl. Ex. 8 at 7.) Dr.
Cogburn noted Larry’s “unusual focus on details and litigious matters suggested distrust and
vigilance.” (Schneider Decl. Ex. 8 at 7.)
Dr. Cogburn performed numerous tests and diagnosed Larry with mild neurocognitive
PAGE 15 - OPINION AND ORDER

disorder with deficits in executive

functions,

obsessive-compulsive personality disorder

(provisional), and partially resolved post-traumatic stress disorder, with residual distrust and
vigilance.

(Schneider Decl. Ex. 8 at 11.)

Dr. Cogburn generally noted Larry’s intellectual

functioning was within the average range with evidence of deficits in executive functions and
indications suggesting narcissistic, obsessive-compulsive, and paranoid features.

(Schneider Decl.

Ex. 8 at 10- 11.) She cautioned his “[e]xecutive function impairment may affect functioning across
multiple domains on tasks requiring cognitive flexibility, fluid problem-solving, and complex
organization” and his “[p]roblematic personality features are likely to lead to limitations in
interpersonal functioning.”

(Schneider Decl. Ex. 8 at 12.)

Dr. Cogburn’s recommendations

provided:
1.

Mr. Larry’s average intellectual functioning and post-secondary level
academic skills would be expected to support success in a wide variety of
occupational task that are otherwise suited to his strengths.

2.

Due to executive functions deficits, Mr. Larry would be expected to succeed
most easily when performing tasks with well-established procedures and
consistent task demands. He may have more difficulty in situations where he
must respond to emerging problems or task demands and generate solutions
on a fluid, situation-related basis.

3.

Also related to executive function deficits, Mr. Larry is likely to succeed most
easily if he performs tasks sequentially (i.e., completes one task them moves
to another). He may have more difficulty if he [is] asked to keep track of
multiple task sequences simultaneously or switch back and forth between
multiple tasks in progress.

4.

Mr. Larry’s success may also be supported by providing specific, welldefined assignments. If he were to be assigned a large goal or project, he
should receive support in areas of identifying components, developing a plan,
organizing and coordinating elements, and prioritizing details. Support
should include coaching, evaluation of his work as he completes each step,
and feedback as needed. However, as discussed below, evidence of
problematic personality functions raises some questions as to whether he

PAGE 16 - OPINION AND ORDER

would accept such support.
5.

Mr. Larry demonstrates above-average interest in the accuracy and
consistency of details. This suggests that he may perform well in occupations
where tasks involve checking or matching details. However, he made some
errors in his interpretation and application of information during this
evaluation, and he may sometimes become bogged down when presented
with too many details. He may succeed most easily with specific training,
frequent accuracy checks, and tasks that involve a limited number of items
to be checked or matched.

6.

Mr. Larry presented with an unusual degree of vigilance and attention to
legalistic matters and procedural details. The psychological basis of these
behaviors is not entirely clear, though they may represent a goal-oriented
strategy that is affected by problematic personality traits and/or residual posttraumatic effects. Regardless of its roots, this feature may present a
significant obstacle to productive participation in services and to success in
other aspect of occupational functioning.

7.

The evidence of possible personality disorder or disorders, and the nature of
these possible conditions, raises some concerns in relation to Mr. Larry’s
likely responses to service providers and in relation to his stated occupational
goals. He may have difficulty forming and maintaining working alliances,
both in service settings and in occupational settings. He may have difficulty
forming an accurate assessment of his own performance and may have
difficulty accepting corrective feedback.
He may reject professional
recommendations and advice that is not in line with his own views. He may
tend to remain vigilant and distrustful despite efforts by other people to
provide support and understanding. He may perceive slights or insults that
are not intended, and may be quick to find fault with others. He may have a
strong need to achieve compliance from others, or to ensure that other people
act according to his requirements and expectations. He may feel that his
personal strengths entitle him to such compliance, and may respond with
anger and retaliation if his expectations are not met or if he feel criticized or
rejected.

8.

Objective observation of his actual performance and behavior, and reports
from his supervisor and from others who are familiar with his performance
and behavior in occupational settings, may be helpful in gaining further
insight into his occupational functioning, strengths, and limitations.

9.

Mr. Larry’s statements regarding his history, behavior, and performance
should be verified when they are to be used in service planning.

PAGE 17 - OPINION AND ORDER

(Schneider Decl. Ex. 8 at 12-13.)
Dr. Cogburn regularly performs psychological evaluations of Agency clients pursuant to caseby-case contracts with the Agency.

(Cogburn Decl. ¶ 2.) She considers the Agency, not the

individual, to be her client in this scenario. (Cogburn Dep. 13:22-24, 14:4-10.) In conducting the
Evaluation, Dr. Cogburn performed her obligations pursuant to her contract with the Agency and
offered her professional judgment. (Cogburn Decl. ¶¶ 8-9.) She did not discuss Larry with anyone
at the Agency prior to completing the Evaluation. (Cogburn Dep. 109:1-11.)
Dr. Cogburn has performed between 1,000 to 2,000 psychological evaluations, but has likely
evaluated less than one hundred black males. (Cogburn Dep. 11:16-20; 27:14-21.) She did not
intend to cause Larry any harm or emotional distress. (Cogburn Decl. ¶¶ 8-9.)
Sometime in late September, 2014, Larry met with Dr. Cogburn to discuss the Evaluation.
Schaffer and Duff also attended the meeting. The following case notes document Schaffer’s memory
of the meeting:
Dr. Cogburn attempted to explain the procedure for the meeting. The client
immediately argued with Dr. Cogburn about their discussion to meet alone to go over
the evaluation and then to have a second meeting to include [Agency counselor]. Dr.
Cogburn had no recollection of that discussion. The client insisted that he did make
that request.
The client also did not want to continue the discussion of his psychological
evaluation without having an opportunity to read the document first. There was no
request to do this before the meeting. The client emphasized that he was a “mature
adult” who can understand reports, and is well aware of the DSM-V. Dr. Cogburn
was concerned about his diagnosis, and that the report could be damaging to him
without a debriefing.
We discussed the reality of rescheduling a meeting at this point, because of the
doctor’s appointments as well as the [Agency counselor’s] calendar. We were
willing to check on everybody’s calendars to find a date that would work.

PAGE 18 - OPINION AND ORDER

Branch Manager Duff then spoke about the client’s self-employment and that we would not be
considering him for this avenue. The client was offered the original IPE,18 with job development
services in the plan.
The client stated that he does not want to pursue other employment at this time, and
that “he knows what to do.”
(Schneider Decl. Ex. 9.) Larry’s counselor, not Duff, made the decision Larry was not eligible for
self-employment assistance. (Duff Dep. dated January 18, 2018 (“Duff Dep.”)19 17:14-24.)
In light of Larry’s representation he was not interested in pursuing other employment, the
Agency closed the Application on October 9, 2014. (Schneider Decl. Ex. 9.) Schaffer informed
Larry of the closure by letter dated October 13, 2014, which read: “I am closing your file with the
[Agency] because you stated in our meeting of 9/24/2014 that you do not want to pursue other
employment at this time.” (Schneider Decl. Ex. 10.)
In an October 24, 2014 letter to Schaffer, Duff, and Dr. Cogburn (the “Letter”), Larry
challenged the veracity of Schaffer’s statement, asserting everything in Schaffer’s October 13, 2014
letter “is false, including the date of the meeting” and claimed Schaffer, Duff, and Dr. Cogburn acted
“recklessly” and “in wanton disregard” of the special duty owed to all Agency participants. (Lott
Decl. Ex. 3 at 1-2.) He stated the meeting, which he claim occurred on September 26, 2014, was to
be just between him and Dr. Cogburn to discuss the results of the Evaluation and that the meeting
would be recorded by both parties. (Lott Decl. Ex. 3 at 1.) Once the “debriefing” was concluded,
Schaffer and Duff would be invited to participate in a second meeting. (Lott Decl. Ex. 3 at 1.) Larry
claimed Dr. Cogburn remembered the agreement but acknowledged Schaffer denied knowledge of

18

“IPE” stands for Individualized Plan for Employment. (Lee Decl. ¶ 9.)

19

The Duff Deposition is Exhibit 27 to the Schneider Declaration (ECF No. 105).

PAGE 19 - OPINION AND ORDER

such request and claimed the request should have been in writing. (Lott Decl. Ex. 3 at 1.) Larry
thought this agreement constituted a constructive revocation of the Consent. (Lott Decl. Ex. 3 at 1.)
In the Letter, Larry stated he requested a copy of the Evaluation and that the meeting be
rescheduled to allow him time to review the Evaluation. (Lott Decl. Ex. 3 at 1-2.) In response,
Schaffer expressed concern to Larry about the additional cost to have Dr. Cogburn return for a
second meeting and Larry became upset his requests were being ignored. (Lott Decl. Ex. 3 at 2.)
Larry noted that as he prepared to leave the meeting, Duff advised him the Agency would not support
his request for self-employment assistance and that the decision had been made by Schaffer. (Lott
Decl. Ex. 3 at 2.) Larry stated that in response to his request for an explanation, both oral and in
writing, of the reason for the decision, Schaffer explained it was based on the information contained
in his file and that no written decision existed. (Lott Decl. Ex. 3 at 2.) Larry admitted Schaffer then
informed him “other services for employment would be made available to [him] if [he] wanted the
services.” (Lott Decl. Ex. 3 at 2.) In closing, Larry expressly requested “a written explanation of
what information in my file led to my self-employment support through [the Agency] being
terminated.” (Lott Decl. Ex. 3 at 1.)
The Agency responded in its own letter dated November 14, 2014, offering the following
detailed explanation of the reasons for the closure:
On February 25, 2013, you were determined to be eligible for [Agency]
services. [The Agency] must assess the vocational rehabilitation needs of an eligible
client and make a determination about the employment outcome and the nature and
scope of the services to be included in the client’s Individualized Plan for
Employment (IPE) based on existing data and, if necessary, a comprehensive
assessment (additional evaluations) of the client. 34 CFR 361.45(a), (b), (f); 34 CFR
361.5 (b)(6)(ii). The client’s employment outcome and the services provided must
be consistent with the client’s “unique strengths, resources, priorities, concerns,
abilities, capabilities, interests and informed choice.” 34 C.F.R. (B)(2); see also 34
PAGE 20 - OPINION AND ORDER

CFR 361.5(b)(6)(ii), (16).
You have expressed an interest in pursuing a self-employment plan to be an
Adult Care Home operator. As with any employment outcome, self-employment
should be consistent with the client’s “strengths, resources, priorities, concerns,
abilities, capabilities and interests, providing the individual full opportunity to
exercise informed choice in the selection of their employment outcome”, which are
identified in a comprehensive assessment. OAR 582-070-0041; OAR 582-070-0042;
OAR 582-070-0043(1).
A comprehensive assessment in your case included a psychological
evaluation by a qualified mental health professional, Dr. Robinann Cogburn. The
evaluation identified concerns with your level of executive functioning,
organizational and interpersonal skills. Dr. Cogburn indicated that you are better
suited to employment with well-established procedures, consistent task demands, and
well-defined, sequential work assignments. In contrast, you would have more
difficulty with situations where you must respond to emerging problems and generate
solutions on a fluid, situation-related basis. You would also have difficulty with
dealing with multiple tasks at the same time, developing a plan to complete a large
goal or project, organizing and coordinating elements, and prioritizing details. The
evaluation also indicated that you would be unlikely to accept support or assistance
to address these deficits and would have difficulty working with others. The ability
to develop and implement a viable business plan and to follow through with that plan
would be better suited to an individual who excels at problem solving, multi-tasking,
planning and organizing, which are areas where the evaluator indicated you have
difficulties in. In addition, as interpersonal skills are also a challenge for you, selfemployment in a care-giving field is not consistent with your strengths and abilities.
As a result, [the Agency] determined that self-employment was not an appropriate
employment outcome in your IPE.
In addition, on September 24, 2014, you indicated that you did not want to
participate in any further vocational rehabilitation services or program. You also
indicated that you did not want to pursue an employment outcome other than selfemployment. Consequently, [the Agency] closed your file on October 09, 2014[,]
pursuant to OAR 582-060-0020(1)(a)(H).
(Schneider Decl. Ex. 11.)
Larry filed a Request for Impartial Fair Hearing on December 12, 2014, claiming Schaffer,
Duff, and Dr. Cogburn conspired to falsify records which resulted in the Agency terminating his
Application in bad faith and seeking approval to pursue self-employment. (Schneider Decl. Ex. 12.)
PAGE 21 - OPINION AND ORDER

The parties agreed to reopen the Application, assign Larry a new counselor, namely Sadruddin, and
develop a new plan for long-term employment. (Schneider Decl. Exs. 13, 16.) Larry withdrew his
hearing request on February 4, 2015. (Schneider Decl. Ex. 14.)
In their initial meeting, Larry told Sadruddin he did not think the Agency properly addressed
his goal of self-employment and requested an opportunity to further explore his plan to open an adult
care home. (Schneider Decl. Ex. 16.) They discussed what was needed to support a case for selfemployment assistance and agreed to exchange documents and information. (Schneider Decl. Ex.
16.)20
On September 1, 2015, Shawn Winkler-Rios (“Winkler-Rios”) forwarded a thirty-six page
feasibility study addressing Larry’s proposal to open an adult care home providing specialized
services to intellectual and developmental disability clients (the “Study”) to Sadruddin and Larry.
(Schneider Decl. Ex. 18.)

The Study discussed the feasibility of Larry’s proposal in detail,

considering Larry’s ability to successfully open and manage an adult care home, as well as the
market and financial feasibility of the proposal, and made recommendations to the Agency with
regard to Larry’s proposal. (Schneider Decl. Ex. 4.)
The Study summarized Larry’s education, employment, and volunteer history; Larry’s
industry and business experience; eligibility requirements for operating an adult care home; and how
the business could accommodate Larry’s disabilities. (Schneider Decl. Ex. 18 at 7-13.) WinklerRios provided the following conclusion relative to Larry’s readiness:

20

On April 22, 2015, Larry filed a second Request for Impartial Fair Hearing complaining
Dr. Cogburn had not provided information requested by him and disagreeing with a decision made
by Kailana Pilmauna, Assistant Attorney General. (Schneider Decl. Ex. 17.) There is no evidence
establishing how this request was resolved.
PAGE 22 - OPINION AND ORDER

Starting and operating an Adult Care Home requires business skills as well as case
management skills. Clients with intellectual and developmental disabilities will
require a comprehensive array of services and significant case management skills.
Mr. Larry’s physical limitations occurred [due] to a car accident in 2009 and he has
since been engaging in physical rehabilitation that now allows him to engage in the
business. He has been preparing for the last five years to perform this kind of work
with IDD clients through apprenticeships and required training. Mr. Larry has
provided information demonstrating he is progressing to meet the eligibility
requirements of an Adult Care Home. All of this provides good evidence of the
client’s motivation to engage int he business. It should be noted that several of the
eligibility requireme nts for participation in the Multnomah County Program
are in progress and have not been met at this time.
(Schneider Decl. Ex. 18 at 13.) Winkler-Rios thought an adult care home participating in the
Multnomah County program appeared feasible but noted the industry is highly regulated and
operating a home requires training and certifications, only some of which Larry had completed or
obtained. (Schneider Decl. Ex. 18 at 33.) The Study estimated initial start-up costs for an adult care
home would range from $10,000 to $20,000, with additional expenses to acquire and operate a
residence within which the home would be located, and Multnomah County required savings equal
to two months of operating expenses. (Schneider Decl. Ex. 18 at 35.) Winkler-Rios recommended
the Agency authorize preparation of a business plan with the following conditions:
1.

Locate a prospective property that can be used as an Adult Care Home
(meeting all legal requirements).

2.

Secure funding sources that can be used for startup costs PLUS two months
of operating expenses before business plan approval.

3.

Meet all Multnomah County Eligibility requirements (at a minimum) to
participate in the program. These requirements should be completed, to the
extent reasonable, before [Agency] support is provided.

(Schneider Decl. Ex. 18 at 1, 37.)

PAGE 23 - OPINION AND ORDER

At the Agency’s request and the direction of defendant Costello, Dr. Ude reviewed,
compared, and contrasted the psychological evaluations of Larry conducted by Dr. Ethel-King and
Dr. Cogburn, and set forth her findings in two-page report dated October 1, 2015. (Ude Decl. dated
April 11, 2018, ECF No. 108, ¶¶ 4-5.) Dr. Ude served as a consultant for the Agency for more than
thirty-five years, and conducted thousands of records reviews for the Agency during this period, a
service commonly performed by licensed healthcare professionals. (Ude Decl. ¶¶ 2-3, 9-10.) Dr.
Ude has also completed thousands of psychological evaluations herself. (Ude Dep. dated March 14,
2018,21 18:4-12.)
Dr. Ude’s role as a consultant is limited to a review of a case files; she does not engage in
independent fact finding or research. (Ude Dep. 14:15-21.) In reviewing Larry’s file, Dr. Ude would
have reviewed any release form and correspondence relating to the release in the file. (Ude Dep.
35:13-20.) Dr. Ude did not remember seeing any correspondence in the file from Larry withdrawing
or revoking permission to share information. (Ude Dep. 35:36:5-10.) Dr. Ude did not meet or have
any communications with Larry at the time of her review and did not discuss Larry with anyone at
the Agency between the time of the review and the time Larry filed this lawsuit. (Ude Decl. ¶¶ 6,
10.) She did not intend to cause Larry mental or emotional distress, and had no reason to believe
Larry would suffer any emotional distress, as a result of her routine record review. (Ude Decl. ¶¶
11, 12.)
Larry sought psychiatric counseling from Dr. Lott in February 2016 to help him cope with
the stress he was feeling as a result of the Agency’s actions. (Lott Decl. 3, 7.) Dr. Lott diagnosed

21

Portions of the Ude Deposition are found at Exhibit 25 to the Schneider Declaration (ECF
No. 105) and Exhibit 3 to the Madigan Declaration (ECF No. 109).
PAGE 24 - OPINION AND ORDER

Larry with depression and post-traumatic stress disorder, noting this diagnosis was consistent with
those of the two other Black psychologists who had previously evaluated and/or treated Larry. (Lott
Decl. ¶ 6, Ex. 1A.) He did not believe Larry was a danger to himself or others and did see any
indications that Larry was prejudiced toward women who were not African American. (Lott Decl.
¶¶ 9, 11.)
Larry complained to Dr. Lott about Dr. Cogburn’s conduct, reporting “she did not treat him
with the same level of care and concern required by her role as an evaluator due to the fact that Dr.
Cogburn was contracted with the [Agency].” (Lott Decl. ¶ 8.) Dr. Lott requested a complete copy
of Larry’s file from Dr. Cogburn but initially received only a portion of the records. (Lott Decl. ¶
4.) Dr. Cogburn sent the remainder of the file in response to a second request, explaining to Dr. Lott
she had recently discovered a previously misplaced portion of Larry’s file. (Lott Decl. ¶ 4.) Larry
claimed a drawing found in the second phase of produced records was not his because it did not
contain his initials. (Lott Decl. ¶ 5.) Larry told Dr. Lott he did not trust Dr. Cogburn and “felt like
she had manipulated his file to achieve the outcome [Agency] staff wanted.” (Lott Decl. ¶ 5.)
Dr. Lott opined Dr. Cogburn “did not provide appropriate information following her
evaluation about results and conclusions and nature of services rendered.” (Lott Decl. ¶ 8.) He also
referenced the review of Dr. Cogburn’s report diagnosis by Dr. Ude, which he described as raising
concerns for portions of Dr. Cogburn’s analysis. (Lott Decl. ¶ 10.) Dr. Lott criticized Dr. Ude for
endorsing the evaluation rather than requiring Dr. Cogburn to correct the areas of concern. (Lott
Decl. ¶ 10.) Also, after hearing from Larry that various defendants had published confidential
documents, including the Evaluation, to the internet by filing them in this lawsuit, Dr. Lott reported
such publication was a breach of the Health Insurance Portability and Accountability Act and caused
PAGE 25 - OPINION AND ORDER

Larry to suffer a great deal of emotional distress. (Lott Decl. ¶ 12.)
Larry filed a tort claim notice on March 23, 2016, alleging the Department, the Agency, the
“DOJ,” and “Various State employees and administrators as named in DRN 15-1622 – and more to
come,” engaged in race and disability discrimination from January 2013 to present (the “Notice”).
(Schneider Decl. Ex. 22.) Dr. Cogburn was not served with the Notice. (Cogburn Decl. ¶ 10.) The
Agency subsequently closed the Application on June 22, 2016, after Larry ignored a letter from the
Agency dated June 9, 2016, advising him failure to notify the Agency he was interested in pursuing
Agency services by June 20, 2016, would result in such closure. (Schneider Decl. Ex. 21.)
Legal Standard
Summary judgment is appropriate where the “movant shows that there is no genuine dispute
as to any material fact and the movant is entitled to judgment as a matter of law.” F ED. R. C IV. P.
56(a) (2018). Summary judgment is not proper if material factual issues exist for trial. Warren v.
City of Carlsbad, 58 F.3d 439, 441 (9th Cir. 1995).
The moving party has the burden of establishing the absence of a genuine issue of material
fact. Celotex Corp. v. Catrett, 477 U.S. 317, 323 (1986). If the moving party shows the absence of
a genuine issue of material fact, the nonmoving party must go beyond the pleadings and identify facts
which show a genuine issue for trial.

22

Id. at 324.

A nonmoving party cannot defeat summary

Larry apparently filed a third Request for Impartial Hearing in late 2015 which was
identified as DRN 15-16. This request is not part of the record. However, a February 9, 2016 ruling
by a hearings officer granting the Agency’s motion to dismiss Larry’s hearing request on several
issues but offering Larry “the opportunity to present evidence to support his [remaining] claims at
a fair and impartial hearing” is in the record. (Schneider Decl. Ex. 19 at 3.) Larry withdrew his
hearing request on May 23, 2016, claiming the impartial hearing process to be “greatly flawed” and
informing the Agency he would pursue his grievance in a different, more equitable, forum.
(Schneider Decl. Ex. 20.)
PAGE 26 - OPINION AND ORDER

judgment by relying on the allegations in the complaint, or with unsupported conjecture or
conclusory statements. Hernandez v. Spacelabs Medical, Inc., 343 F.3d 1107, 1112 (9th Cir. 2003).
Thus, summary judgment should be entered against “a party who fails to make a showing sufficient
to establish the existence of an element essential to that party’s case, and on which that party will
bear the burden of proof at trial.” Celotex, 477 U.S. at 322.
The court must view the evidence in the light most favorable to the nonmoving party. Bell
v. Cameron Meadows Land Co., 669 F.2d 1278, 1284 (9th Cir. 1982). All reasonable doubt as to
the existence of a genuine issue of fact should be resolved against the moving party. Hector v.
Wiens, 533 F.2d 429, 432 (9th Cir. 1976). Where different ultimate inferences may be drawn,
summary judgment is inappropriate. Sankovich v. Life Ins. Co. of North America, 638 F.2d 136, 140
(9th Cir. 1981).
However, deference to the nonmoving party has limits. A party asserting that a fact cannot
be true or is genuinely disputed must support the assertion with admissible evidence. FED. R. CIV.
P. 56(c) (2018). The “mere existence of a scintilla of evidence in support of the [party’s] position
[is] insufficient.” Anderson v. Liberty Lobby, Inc., 477 U.S. 242, 252 (1986). Therefore, where “the
record taken as a whole could not lead a rational trier of fact to find for the nonmoving party, there
is no genuine issue for trial.” Matsushita Elec. Indus. Co., Ltd. v. Zenith Radio Corp., 475 U.S. 574,
587 (1986) (internal quotations marks omitted).
Discussion
I. First and Second Claims for Relief - 29 U.S.C. § 794
Larry’s First and Second Claims for Relief allege the State, the Department, the Agency, and
Trina Lee, Director of the Department (collectively the “State Defendants”), discriminated against
PAGE 27 - OPINION AND ORDER

Larry by “failing to provide a reasonable accommodation for his disability” and “in the terms,
conditions, and privilege[] of employment against [Larry] because of his disability” in violation of
29 U.S.C. § 794. (First Am . Compl., ECF No. 41, ¶¶ 57, 61.) Larry testified at his deposition the
accommodations he sought were Agency services, such as retraining and self-employment assistance,
and he was denied these accommodations based on the Evaluation, and Dr. Cogburn’s conclusions
and recommendations found therein. (Larry Dep. 30:20-32:23.)
The State Defendants move for summary judgment on these claims relying on the one-year
statute of limitations found in OR. REV. STAT. § 659A.875. Alternatively, the State Defendants
argue Larry has failed to offer evidence required to support a claim of discrimination under the Act.
A. Statute of Limitations
The Act does not provide a statute of limitations governing alleged violations of the Act.
“When Congress has not established a time limitation for a federal cause of action, the settled
practice has been to adopt a local time limitation as federal law if it is not inconsistent with federal
law or policy to do so.” Wilson v. Garcia, 471 U.S. 261, 266-67 (1985), superceded by statute as
stated in Jones v. R. R. Donnelley & Sons Co., 541 U.S. 369 (2004). This district considers the
Oregon Rehabilitation Act (the “Oregon Act”) to be the state law most analogous to claims brought
under the Act. Savona v. Southern Oregon Univ., Civ. No. 1:17-CV-01604-AA, 2018 WL 1547843,
at *2 (D. Or. March 29, 2018) (“The Oregon analog to the ADA and the Rehabilitation Act is
contained in the Oregon Rehabilitation Act, ORS 659A.103 to 659A.145.”)
The Oregon Act contains the one-year statute of limitations relied on by the State Defendants.
However, the language of this provision applies only to civil actions alleging “an unlawful
employment practice.” OR. REV. STAT. § 659A.875 (2018). This district applied this one-year
PAGE 28 - OPINION AND ORDER

limitation to an action initiated by an employee alleging disability discrimination against his former
employer. Clink v. Oregon Health & Science Univ., 9 F. Supp. 3d 1162 (2014). However, it
subsequently found “[t]he statute of limitations set out in ORS 659A.875 applies specifically to
disability discrimination claims in the employment context,” thereby limiting the one-year limitation
to actions by an employee against his employer. Savona, 2018 WL 1547843, at *4.
Larry does not allege he was employed by the State Defendants or that they discriminated
against him with regard to existing or future employment with the State Defendants. Rather, Larry
alleges the State Defendants discriminated against him by denying his request for assistance in
obtaining his desired goal of self-employment.
When a claim alleging violation of the Act is based on disability discrimination with regard
to services from a state or county program, this district has applied the two-year statute of limitations
for tort actions found in OR. REV. STAT. § 12.110(1). Savona, 2018 WL 1547843, at *4 (public
university’s failure to provide requested accommodations for required class subject to two- year
statute of limitation ); Updike v. Clackamas County, 3:15-cv-00723-SI, 2015 WL 7722410, at *5-*6
(D. Or. Nov. 30, 2015)(two-year limitation period applied to disability discrimination “in a context
related to provision of services, programs, and activities rather than employment”); T. L. ex rel.
Lowry v. Sherwood Charter School, No. 03:13-CV-01562-HZ, 2014 WL 897123, at *9 (D. Or.
March 6, 2014)(court found two-year limitation period governed allegations that public entity
deprived plaintiff of services or programs because of his disability). In accordance with these case,
the court finds the two-year statute of limitations found in OR. REV. S TA T . § 12.110(1) governs
Larry’s claims.
“The statute of limitations begins to run when a potential plaintiff knows or has reason to
PAGE 29 - OPINION AND ORDER

know of the asserted injury.” De Anza Properties X, Ltd. v. County of Santa Cruz, 936 F.2d 1084,
1086 (9th Cir. 1991). Larry has presented evidence Duff informed him he would not be receiving
self- employment assistance on September 26, 2014. As Larry filed this lawsuit on September 26,
2016, his claims for disability discrimination in violation of 29 U.S.C. § 794 based on the State
Defendants’ denial of these benefits is timely. Moreover, Larry expressly limits his claims to “events
occurring on September 26, 2014 and ongoing” in the First Amended Complaint filed April 14, 2017
(the “Complaint”). (First Am. Compl. ¶ 1.) Consequently, any conduct of the State Defendants prior
to September 26, 2014, is not actionable.
B. Prima Facie Case
Larry alleges the State Defendants violated 29 U.S.C. § 794, which provides, in pertinent
part:
No otherwise qualified individual with a disability in the United States, as defined
in section 7(20) [29 U.S.C. § 705(20)], shall, solely by reason of her or his disability,
be excluded from the participation in, be denied the benefits of, or be subjected to
discrimination under any program or activity conducted by any Executive agency or
by the United States Postal Service.
29 U.S.C. § 794(a) (2018). “A plaintiff bringing suit under [29 U.S.C. § 794] must show (1) he is
an individual with a disability; (2) he is otherwise qualified to receive the benefit; (3) he was denied
benefits of the program solely by reason of his disability; and (4) the program receives federal
financial assistance. Duvall v. County of Kitsap, 260 F.3d 1124, 1135 (9th Cir. 2001). Where, as
here, the plaintiff seeks compensatory damages for violations of 29 U.S.C. § 794, the plaintiff must
also “prove intentional discrimination on the part of the defendant.” Id. at 1138.

PAGE 30 - OPINION AND ORDER

The State Defendants concede the Agency is a program that receives federal assistance but
argue Larry is unable to prove the other three elements necessary for his First and Second Claims
for Relief.23 Neither party addresses the intentional discrimination requirement.
1. Individual with a Disability
29 U.S.C. § 794 incorporates the definition for “individual with a disability” found in 29
U.S.C. § 705(20), which provides, in pertinent part:
the term “individual with disability” means any individual who –
(i) has a physical or mental impairment which for such individual constitutes
or results in a substantial impediment to employment; and
(ii) can benefit in terms of an employment outcome from vocational
rehabilitation services provided pursuant to title I, III, or VI [19 U.S.C. §§
720 et seq., 771 et seq., or 795 et seq.].
29 U.S.C. § 705(20)(1) (2018). Oregon law provides an applicant may be eligible for vocational
rehabilitation services if the Agency determines the applicant: (1) “has a physical or mental
impairment;” (2) that “constitutes or results in a substantial impediment to employment for the
applicant;” and (3) which “requires vocational rehabilitation services to prepare for, secure, retain,
or regain employment consistent with the applicant’s unique strengths, resources, priorities,
concerns, abilities, capabilities, interests, and informed choice.” OR. ADMIN. R. 582-050-0020(1)(3) (2018). If the first two requirements are met, the regulation creates a rebuttable presumption the
applicant can benefit in terms of an employment outcome from vocational rehabilitation services,
23

The State Defendants treat Larry’s claims for violation of 29 U.S.C. § 794 as two unique
claims subject to different analysis (accommodation claim and disparate treatment claim). However,
Larry claims the State Defendants violated 29 U.S.C. § 794 by denying his request for selfemployment assistance, which he identified as the requested accommodation or benefit sought. The
claims are virtually identical, are subject to analysis under the same standard, and will be addressed
together.
PAGE 31 - OPINION AND ORDER

which satisfies a fourth requirement. OR. ADMIN. R. 582-050-0020(5) (2018).
Larry sought assistance from the Agency in 2013, alleging disability due to major depressive
order, post traumatic stress disorder, and a shoulder and back injury. The Agency assigned Larry a
counselor, with whom he discussed his goals and from whom he received “homework.” A physical
capacity evaluation revealed Larry was limited to work in the medium range of physical demand, and
the Evaluation determined Larry suffered from partially resolved post traumatic stress disorder as
well as mild neurocognitive disorder with deficits in executive functions and obsessive-compulsive
disorder (provisional). Additionally, the Agency requested a feasibility report for Larry’s expressed
desire to open an adult care home. The Authorization Register offered by the Agency establishes
the Agency spent more than $7,500 from January 8, 2013, to October 26, 2015, providing vocational
services to Larry. (Schneider Decl. Ex. 5.)
The Agency confirmed and defined limitations resulting from Larry’s alleged disabilities, and
provided substantial vocational services to Larry to assist him in obtaining employment.

It is

unlikely the Agency would have decided to support Larry in this manner if he did not have a
condition that resulted in a substantial impairment to employment and would not benefit from
Agency services. In fact, the Agency determined Larry was eligible for Agency services on February
25, 2013. Viewing this evidence in a light most favorable to Larry, the court finds a genuine issue
fact exists with regard to Larry’s status as an “individual with a disability” for the purposes of 29
U.S.C. § 794.
2. Otherwise Qualified to Receive Benefits
A handicapped person is “otherwise qualified” if he “is able to meet all of a program’s
requirements in spite of his handicap.” Se. Cmty. Coll. v. Davis, 442 U.S. 397, 406 (1979). Under
PAGE 32 - OPINION AND ORDER

Oregon law, a handicapped person, or an individual with a disability, is eligible for Agency services
only when the Agency determines “the applicant requires vocational rehabilitation services to
prepare for, secure, retain, or regain employment consistent with the applicant’s unique strengths,
resources, priorities, concerns, abilities, capabilities, interests, and informed choice.” OR. ADMIN.
R. 582-050-0020(3) (2018).
Shortly after applying for Agency services, Larry identified self-employment as the owner
of an adult care home as his desired employment outcome. At the time of the Application, Larry was
employed part-time as a care giver at an adult care home and was clearly physically capable of
performing these tasks. However, Dr. Cogburn noted in the Evaluation that Larry’s personality traits
“may present a significant obstacle to productive participation in services and to success in other
aspects of occupational functioning” and “evidence of possible personality disorder or disorders, and
the nature of these possible conditions, raises some concerns in relation to Mr. Larry’s likely
responses to service providers and in relation to his stated occupational goals.” (Schneider Decl. Ex.
8 at 14.) Based on the Evaluation, the Agency determined Larry would likely not be successful in
owning and managing an adult care home due to psychological challenges and that “self-employment
was not an appropriate outcome” in Larry’s individual employment plan.

As Larry would not

reasonably be expected to benefit from vocational rehabilitation services geared toward selfemployment, specifically as an owner and manager of an adult care home, he was not “otherwise
qualified” to receive these specific services.
Larry asserts the Evaluation was “fraught with errors” and offers Dr. Lott’s testimony in
support of this assertion. However, Dr. Lott does not attack Dr. Cogburn’s recommendations as set
forth in the Evaluation in any way.
PAGE 33 - OPINION AND ORDER

In his declaration, Dr. Lott notes Dr. Cogburn did not

immediately provide the entirety of Larry’s file and the file provided contained a drawing which
Larry did not recognize. Dr. Lott impliedly disagreed with Dr. Cogburn’s diagnosis, finding Larry
suffered from both post traumatic stress disorder and depression, but did not opine on Larry’s ability
or qualifications with regard to owning or managing an adult care home. While Dr. Lott complained
that “Dr. Cogburn did not provide appropriate information following her evaluation about results and
conclusions and nature of services rendered,” he did not offer an opinion on the substance of such
“results and conclusions.” (Lott. Decl. ¶8.) Additionally, while he was unhappy that Dr. Ude did
not bring her concerns about parts of Dr. Cogburn’s findings to the Agency’s attention, he also
acknowledged Dr. Ude ultimately endorsed the Evaluation. Larry has failed to present evidence to
controvert the Agency’s determination that self- employment in a care-giving field was not consistent
with Larry’s strengths and abilities, and that his personality traits disqualified him from receiving
the desired self-employment assistance.
Larry also contends the Agency relied solely on the Evaluation, and did not consider other
information, such as his extensive work history of self-employed positions as well as his work with
developmentally-delayed persons, which clearly establish his ability to own and manage an adult care
home.

The evidence makes clear Schaffer, who made the decision to remove self-employment

assistance from Larry’s individual employment plan, had been meeting with Larry for more than a
year and was aware of Larry’s employment history at the time she made her decision. Additionally,
Dr. Cogburn explained that every evaluation she performs covers a range of topics, including social
and developmental, criminal, drug and alcohol history, employment and employment goals, and

PAGE 34 - OPINION AND ORDER

physical and mental health.24 (Cogburn Dep. 13:5-21.) Dr. Cogburn included an extensive summary
of Larry’s social and employment history in the Evaluation, specifically mentioning Larry’s work
in a group home for adults with developmental disabilities, and his experience as the owner and
operator of a liquor store. While neither Schaffer nor Dr. Cogburn specifically mentioned Larry’s
work history in their respective decisions or recommendations, it is clear they were well aware of
such history at the time the decisions and recommendations were made.25
In a strikingly similar unreported case, the Ninth Circuit upheld a determination the plaintiff
was not “otherwise qualified” for the vocational rehabilitation service requested. German v. Div.
of Vocational Rehab., Dept. of Social Health Servs., Tacoma Office, State of Washington, 857 F.2d
1477 (9th Cir. 1988). German, a college professor of American History who had been involuntarily
hospitalized and was receiving Social Security benefits based upon a mental disability, applied for
vocational rehabilitation services seeking to attend law school. Id. at *2. Defendant considered
psychiatric opinions offered by various professional evaluations, as well as German’s personality,
demeanor in interviews, and past education, and determined German was not an “otherwise qualified
handicapped individual” and “would not reasonably be expected to benefit by further university
education in terms of employability.” Id. at *2-*3. The court rejected German’s argument that his
research, publications, and papers, and experience as a pro se in forma pauperis civil litigant

24

Similarly, Dr. Ude stated she considers an applicant’s entire file when compiling a
psychological evaluation. (Ude Dep. 18:14-24.)
25

Larry also argues Dr. Cogburn should not have submitted the Evaluation to the Agency
without his approval so any decision made by the Agency based on the Evaluation was not properly
supported. Larry signed the Consent, which expressly authorized Dr. Cogburn to provide the
Evaluation to the Agency, defeating Larry’s claim Dr. Cogburn erred when supplying the Evaluation
to Schaffer.
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established he was “otherwise qualified,” finding such “self-serving evidence does not controvert
the professional medical evidence offered by [defendant].” Id. at *3.
Larry has failed to offer evidence challenging or rebutting the evidence relied on by the State
Defendants’ in determining Larry was not “otherwise qualified” to receive services relating to selfemployment. Consequently, the court finds Larry has failed to meet his burden to establish he was
otherwise qualified to receive those services.
3. Denied Benefits Solely due to Disability
At the outset, the court is not convinced Larry was denied Agency services. While Duff
informed Larry on September 26, 2014, the Agency would not support his request for selfemployment assistance, she offered to continue to provide other Agency services, which services
Larry rejected. The Agency formally closed Larry’s file the following month in response to Larry’s
statement he did not want to pursue other employment. Based on this evidence, the Agency did not
deny Larry Agency services. Rather, Larry opted not to receive the services offered. A vocational
rehabilitation client does not have the right to choose the appropriate rehabilitation goal.

Rather,

“the rehabilitation counselor must make the final decision on eligibility and the scope of services
provided.” Yochim v. Gargano, 882 F. Supp. 2d 1068, 1079 (S. D. Ind. 2012)(quoting Buchanan
v. Ives, 793 F. Supp. 361, 366 (D. Me. 1991)).
Moreover, the Agency reopened the Application in early 2015, and continued to work with
Larry on his self-employment goal of opening an adult care home, including the preparation of an
extensive feasibility study by Winkler-Rios. The Agency closed Larry’s file again in June 22, 2016,
when Larry failed to respond to a letter informing him he needed to communicate with the Agency
if he was interested in continuing to receive Agency services. Once more, Larry’s file was closed
PAGE 36 - OPINION AND ORDER

based on Larry’s failure to pursue the benefits offered, even though the Agency was providing
services furthering his goal of self-employment at that time.
Even assuming the Agency denied Larry the benefits he sought, his complaint and testimony
clearly establish both his disabilities and his race contributed to the Agency’s decision to deny his
request for benefits. Larry alleges in the Complaint he was “discriminated against on the basis of
[his] disabilities and race.” (First Am. Compl. at 1.) Larry similarly testified at his deposition he
was discriminated against based on his disability and race. (Larry Dep. 33:25-34:6.) When asked
to take race out of the equation and concentrate on “what disability is it that you think caused them
to discriminate against you,” Larry responded: “All of it, I mean, every disability that I had. And you
are separating the race from the disabilities, I am not. I can’t separate the race from the disabilities
after the type of treatment that I have had, okay. I know how white people treat black folks.” (Larry
Dep. 70:3-18.)
The express language of 29 U.S.C. § 794 limits actionable discrimination to that based solely
on the plaintiff’s disability.

Where a plaintiff maintains discrimination resulted in part from

something other than a disability, such discrimination is not action under 29 U.S.C. § 794. Johnson
by Johnson v. Thompson, 971 F.2d 1487, 1493 (10th Cir. 1992). It is clear Larry asserts the State
Defendants discriminated against by denying him benefits based both on his disability and his race,
and that such discrimination is not distinguishable.

Consequently, Larry fails to prove, or even

allege, he was denied benefits solely because of his disability.
4. Intentional Discrimination
Where, as here, a plaintiff seeks compensatory damages for violation of 29 U.S.C. § 794, the
plaintiff must prove the defendant engage in intentional discrimination.
PAGE 37 - OPINION AND ORDER

The Ninth Circuit has

determined the deliberate indifference standard applies in this context. Duvall, 260 F.3d at 1138.
“Deliberate indifference requires both knowledge that a harm to a federally protected right is
substantially likely, and a failure to act upon that likelihood.” Id. at 1139. When a public entity
receives a request for accommodation, it is required to engage in a fact-specific investigation and
consider the particular individual’s needs when determining what constitutes a reasonable
accommodation.

Id.

To constitute intentional discrimination, an agency’s failure to act in this

manner must be based on more than negligent conduct – it must involve an element of
deliberateness. Id.
Larry alleges the State Defendants acted with malice in denying his request for services to
further his goal of self-employment, but fails to offer any evidence in support of this allegation.
Even assuming the State Defendants were aware failure to provide the specific services requested
by Larry was substantially likely to harm a federally-protected right, the evidence establishes the
decision not to provide self-employment assistance was based on a fact-specific investigation in
which Larry’s particular needs and disabilities were considered. Consequently, the State Defendants
did not act with deliberate indifference or intentionally discriminate against Larry by denying his
request for self-employment assistance.
5. New Allegations
At his deposition, Larry described additional conduct in support of his claims under the Act.
Specifically, Larry identified additional accommodations he requested and, apparently, was denied.
For example, he claimed he requested a pain-reducing device for his shoulder, and services from
Mercy Corp. and an on-line imaging company as accommodations.

(Larry Dep. 32:11-23.)

Additionally, Larry claimed the handling of the Evaluation and other records violated the Act. For
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example, Larry asserted Costello’s provision of the Evaluation to Dr. Ude, defendant Mark
Masthoff’s (“Masthoff”) alleged direction to Dr. Ude to not provide documentation requested by
Larry and his representation to Larry that no such documents existed, and Dr. Ude’s failure to
maintain her records all violated the Act. (Larry Dep. 47:10-23, 55:1-14, 56:16-23.) Larry also
claimed Dr. Ude violated the Act by failing to engage in adequate “due diligence” and relying solely
on the inadequate Evaluation when offering her opinion regarding Larry’s bias against white female
employers. (Larry Dep. 58:1-59:18.) Finally, Larry claimed Agency employees were not qualified
to perform the responsibilities of their respective positions and such lack of qualification violated
the Act. (Larry Dep. 60:1-10.)
First, Larry failed to allege these facts in the Complaint and his reliance on them for the first
time at the summary judgment stage is untimely.

Second, with regard to the requested

accommodations, Larry does not identify when those accommodations were requested or denied, and
he does not provide any documentation on why the accommodations were denied. Third, Larry fails
to identify any provision of the Act which governs the handling of client records.

Finally, even

assuming Larry has alleged claims based on these facts, such claims are defeated by his failure to
establish he was otherwise qualified to receive benefits, denied benefits solely because of his
disability, or was intentionally discriminated against.
C. Conclusion
The two- year statute of limitations found in OR. REV. STAT. § 12.110(1) governs Larry’s
claims for violation of the Act. Larry has failed to offer evidence creating a genuine issue of material
fact with regard to three of the five elements of a claim for disability discrimination under 29 U.S.C.
§ 794. Specifically, the evidence, when viewed in a light most favorable to Larry, establishes Larry
PAGE 39 - OPINION AND ORDER

was not otherwise qualified to receive the self-employment services he requested; was not denied
such services based solely on his disability, and was not subject to intentional discrimination. The
State Defendants are entitled to summary judgment on Larry’s first two claims for relief.
III. Third and Fourth Claims for Relief - Common Law Claims
In his Third Claim for Relief, Larry alleges Costello, Duff, Schaffer, Sadruddin, Mastoff
(collectively, the “Individual Defendants”), Dr. Cogburn, and Dr. Ude acted outside of their
employment with the intent to inflict emotional distress on Larry. The Fourth Claim for Relief seeks
to hold the State Defendants vicariously liable for the actions of all other defendants committed
within the scope of their employment.
The Individual Defendants, State Defendants and Dr. Cogburn assert arguments based on
Larry’s notice, or lack thereof, under the Oregon Tort Claims Act (“OTCA”).

The Individual

Defendants, Dr. Cogburn, and Dr. Ude (collectively the “IIED Defendants”) also move for summary
judgment on the merits of the intentional infliction of emotional distress claim, contending Larry
fails to present evidence of the requisite elements of the claim. Dr. Cogburn further argues to the
extent Larry’s claim against her is based on statements to the Agency, she is protected by a qualified
privilege.

Finally, the State Defendants seek summary judgment on the vicarious liability claim,

asserting Dr. Cogburn was an independent contractor and Larry has failed to establish any defendant
acted negligently.
A. Oregon Tort Claim Notice
The OTCA requires that individuals seeking to bring suit against the State, or an officer,
employee, or agent of the State, provide the State with notice of that claim “within 180 days of the
alleged loss or injury.” OR. REV. STAT. 30.275(2)(b), (5)(a) (2018). “Failure to give timely notice
PAGE 40 - OPINION AND ORDER

of a claim is fatal to a plaintiff’s tort claim against a public body.” Denucci v. Henningsen, 248 Or.
App. 59, 66 (2012). Further, “[t]he pleading and proof of notice sufficient to satisfy the requirements
of ORS 30.275 is a mandatory requirement and a condition precedent to recovery under the [OTCA].
Urban Renewal Agency of City of Coos Bay v. Lackey, 275 Or. 35, 40 (1976).
The notice required by the OTCA may be formal, actual, or by commencement of action.
OR. REV. S TA T. 30.275(3) ( 2018). Formal notice is a written statement giving notice of a claim,
describing its time, place, and circumstances, and stating the claimant’s name and mailing address.
O R. REV. STAT. 30.275(4) (2018). Actual notice occurs when the “time, place, and circumstances
giving rise to the claim” are communicated to the State in such a way that a “reasonable person
would conclude that a particular person intends to assert a claim . . . .” OR. REV. STAT. 30.275(6)
(2018). Actual notice “need not specify precisely what claim[]” the claimant intends to bring, but
must at least “warn of the plaintiff’s intent to bring ‘a claim[.]’” Flug v. University of Oregon, 335
Or. 540, 554 (2003) (emphasis in original). Commencement of an action within the above-stated
time frame also suffices as notice for purposes of the OTCA. OR. REV. STAT. 30.275(3)(c).
Under the OTCA, the state is “subject to action or suit for its torts and those of its officers,
employees and agents acting within the scope of their employment or duties . . . .” O R. REV. STAT.
30.265(1) (2018). Thus, where a state employee acts outside the scope of his or her employment,
the state is not liable and a tort claim notice is not required prior to initiating a civil action. See
Berry v. State of Oregon, 141 Or. App. 225, 229 (1996) (“a plaintiff does not need to give the state
notice of claim under ORS 30.275 in order to sue a state employee for an individual tort.”). As such,
the court must analyze whether the alleged conduct falls within the scope of the employee’s official
duties.
PAGE 41 - OPINION AND ORDER

It is evident Larry’s vicarious liability claim against the State Defendants is limited to actions
taken within the scope of their employment and is covered by the OTCA. On the other hand, Larry
generally alleges the IIED Defendants are being sued in their “individual and official capacity,” but
he expressly alleges the IIED Defendants “individually and collectively acted outside the scope of
their employment” in his claim for intentional infliction of emotional distress.

(First Am. Compl.

¶¶ 8-14, 67.) As a result, it is not entirely clear from the allegations of the Complaint that notice was
required under the OTCA for Larry’s claim for intentional infliction of emotion distress. When the
scope of a defendant’s employment is relevant to an OTCA inquiry, it may be decided upon
summary judgment if there is no genuine issue of material fact as to whether the alleged conduct fell
within that scope, i.e., “where only one reasonable conclusion can be drawn from the facts.”
Stanfield v. Laccoarce, 284 Or. 651, 655 (1978).
In Stanfield, the Oregon Supreme Court articulated three factors with which to evaluate
whether conduct is within the scope of employment:
In deciding whether an employee was acting within the scope of his employment, the
factors to be considered are whether the act in question is of a kind the employee was
hired to perform, whether the act occurred substantially within the authorized limits
of time and space, and whether the employee was motivated, at least in part, by a
purpose to serve the employer.
Id. The Oregon Supreme Court has characterized these three elements as “requirements,” all of
which must be met to demonstrate conduct within the scope of employment. Lourim v. Swensen,
147 Or. App. 425, 433 (1997) (citing Chesterman v. Barmon, 305 Or. 439, 442 (1988)).
The IIED Defendants were hired or contracted by the Agency to perform the acts alleged by
Larry.

There is no evidence any of these acts occurred outside the authorized limits of their

employment or contract. Finally, all of the actions were taken with the purpose of determining
PAGE 42 - OPINION AND ORDER

Larry’s right to Agency services and, consequently, motivated by a purpose to serve the employer.
The court finds the IIED Defendants acted within the scope of their employment with the State for
the purposes of the OTCA26 and the State was entitled to notice of Larry’s intentional infliction of
emotional distress claim in accordance with the OTCA.27
The State acknowledges receiving proper notice of Larry’s intent to sue on a form dated
March 23, 2016. (Schneider Decl. Ex. 22) Based on this notice, the State Defendants and IIED
Defendants concede Larry may rely on conduct occurring within 180 days of March 23, 2016, or
September 25, 2015, in support of his common law claims.
Larry contends the Letter constitutes actual notice under the OTCA. Actual notice must be
provided to the individual responsible for administering tort claims, which is the Director of the
Oregon Department of Administrative Services for state employees or agents. OR. REV. STAT.
30.275(5),(6). The Letter was not addressed to the proper individual and Larry has not offered
evidence such individual received the notice. Additionally, actual notice must provide information
regarding the time, place, and circumstances giving rise to the claim and communicate the intent to
assert a claim against the public body, or an officer, employee or agent of the public body. OR. REV.
STAT. 30.275(6).

In the Complaint, Larry alleges the Letter informed Schaffer, Duff, and Dr.

Cogburn of their tortious acts, Larry’s disagreement with the closing of his file, and a request for a
written explanation for why his file was closed. (First Am. Compl. ¶ 52.) This summary, and a

26

While the State Defendants and Dr. Cogburn argue Dr. Cogburn was an independent
contractor for purposes of vicarious liability, they appear to concede she was an agency of the State
for purposes of OTCA notice.
27

Larry does not argue the OTCA does not apply to his both of his state law claims, but only
the timing of when OTCA notice was given. In so doing, he apparently concedes his intentional
infliction of emotional distress claim is governed by the OTCA.
PAGE 43 - OPINION AND ORDER

review of the Letter, make clear Larry did not provide information regarding the time, place, and
circumstances giving rise to his common law claims, nor did he communicate an intent to assert such
claims.
Larry has asserted a claim against the State Defendants and IIED Defendants for actions taken
in the scope of their employment. Accordingly, Larry has the burden of proving he provided notice
under the OTCA with regard to his claim. The Letter did not provide adequate notice under the
OTCA. Larry did provide proper notice on March 23, 2016, allowing Larry to recover only for
losses or injuries occurring on or after September 24, 2015.
B. Intentional Infliction of Emotional Distress
Under Oregon law, a claim for intentional infliction of emotional distress only lies where the
defendant intended to inflict severe emotional distress on the plaintiff, the defendant’s acts were the
cause of severe emotional distress, and the defendant’s acts were an “extraordinary transgression of
the bounds of socially tolerable conduct.” Madani v. Kendall Ford, Inc., 312 Or. 198, 203 (1991),
abrogated on other grounds by McGanty v. Staudenraus, 321 Or. 532 (1995)(citing Sheets v. Knight,
308 Or. 220, 236 (1989)).

It is the defendant’s acts, rather than their motives, that must be

outrageous. Id. at 204. The IIED Defendants move for summary judgment on Larry’s intentional
infliction of emotional distress claim arguing he failed to offer evidence they acted with the requisite
intent or that their acts were extraordinary transgressions of the bounds of socially tolerable
conduct.28

28

Dr. Ude also asserts Larry has not established her actions caused him severe emotional
distress. As the court finds Larry fails with regard to the first and third element of an intentional
infliction of emotion distress claim, the court will not address Dr. Ude’s argument on the second
element.
PAGE 44 - OPINION AND ORDER

1. Intent
The Oregon courts have limited “intent” to include only those situations where the defendant
“‘desires to inflict severe emotional distress, and also where he knows that such distress is certain,
or substantially certain, to result from his conduct.’” McGanty v. Staudenraus, 321 Or. 532, 550
(1995)(quoting Restatement (Second) of Torts, § 46, comment i (1965)). Larry has failed to present
evidence the IIED Defendants acted for the purpose of causing him to suffer severe emotional
distress.
Larry does not identify any offensive conduct occurring after September 24, 2015, in the
Complaint. The evidence reveals that only Dr. Ude’s review of the Evaluation and subsequent report
and Dr. Cogburn’s failure to provide Larry’s entire file to Dr. Lott occurred after that date. Larry
also identified conduct which could have occurred after September 24, 2015, in his deposition,
specifically Costello’s provision of the Evaluation to Dr. Ude, Masthoff’s alleged direction to Dr.
Ude to not provide documentation requested by Larry and his representation to Larry that no such
documents existed, and Dr. Ude’s failure to maintain her records. Finally, in his declaration Larry
offers defendants’ filing of confidential material in support of their summary judgment motions
despite the existence of a protective order as additional support for his claim for intentional infliction
of emotional distress in his declaration. (Larry Decl. ¶ 5.)29
Even assuming these actions are properly before the court, Larry has failed to offer any
evidence this conduct was intended to inflict severe emotional distress on Larry. To the contrary,
29

Larry also asserts in his opposition briefing that the Agency’s continued reliance on the
Evaluation, which remained in his file, is actionable. Larry does not present any evidence supporting
this assertion. Moreover, as of September 1, 2015, Winkler-Ross was preparing a feasibility study
for an adult care home, establishing the Agency was providing self-employment assistance as of this
date, negating any detrimental effects from the presence of the Evaluation in Larry’s file.
PAGE 45 - OPINION AND ORDER

both Dr. Cogburn and Dr. Ude represented they did not desire or intend to cause Larry any mental
or emotional distress. Moreover, there is no evidence the IIED Defendants were aware the conduct
identified was substantially certain to cause Larry severe emotional distress. Finally, with regard to
confidential material filed in this action, Larry has filed to identify the documents filed which contain
the confidential material. A quick review of the docket sheet reveals the majority of the summary
judgment materials have been filed under seal and the remainder does not appear to include
confidential material.
2. Socially Intolerable Conduct
Conduct supporting an intentional infliction of emotional distress claim must be “so extreme
in degree, as to go beyond all possible bounds of decency, and to be regarded as atrocious, and
utterly intolerable in a civilized community.” Christofferson v. Church of Scientology of Portland,
57 Or. App. 203, 211 (1982) (quoting Restatement (Second) on Torts, § 46, comment d (1965)). The
determination of whether the alleged conduct is an extraordinary transgression of the bounds of
socially tolerable conduct is initially a question of law for the courts. Delaney v. Clifton, 180 Or.
App. 119, 129 (2002). “Whether the conduct alleged is sufficiently extreme or outrageous to be
actionable is a fact-specific inquiry, one to be made on a case- by- case basis considering the totality
of the circumstances.” Id. at 130.
Larry has also failed to establish the IIED Defendants’ actions were socially intolerable. Dr.
Ude performed a review of psychiatric evaluations and issued a two-page report summarizing her
findings, something she had done thousands of times in the past.

Costello’s provision of the

Evaluation to Dr. Ude facilitated her review and was in accordance with the terms of the Consent.
Masthoff’s discussion with Dr. Ude about the provision of records to Larry and his representation
PAGE 46 - OPINION AND ORDER

to Larry that no records existed, as well as Dr. Cogburn and Dr. Ude’s handling of their files,
represent common occurrences in large agencies and offices.

It is not unusual for files to be

disorganized or documents misplaced, and Larry has failed to establish Masthoff lied to him about
the existence of the requested records. This conduct does not even begin to reach the extreme or
outrageous conduct Oregon law requires to support an intentional infliction of emotional distress
claim.

The IIED Defendants are entitled to summary judgment of Larry’s claim for intentional

infliction of emotional distress.
C. Vicarious Liability
Under Oregon law and the doctrine of respondeat superior, a form of vicarious liability, “an
employer is liable for an employee’s torts when the employee acts within the scope of employment.”
Chesterman, 305 Or. at 442. To hold an employer liable under the doctrine, a plaintiff clearly must
establish the employee committed a tort. Here, Larry fails to allege any defendant committed a tort.
Rather, he asserts claims for intentional conduct, which the court has found should be dismissed.
In the absence of any viable claim alleged against the IIED Defendants, Larry is unable to support
a claim of vicarious liability against the State Defendants.
D. Conclusion
Larry’s state law claims are governed by the OTCA. Larry provided proper notice under the
OTCA on March 23, 2016, limiting his claims to those based on losses or injuries occurring on or
after September 24, 2015. Larry fails to establish the IIED Defendants acted with the intent to inflict
emotional distress on Larry or that the offensive conduct was socially intolerable. In the absence of
any viable claims, not to mention any negligence claims, against the IIED Defendants, Larry is
unable to state a claim for vicarious liability against the State Defendants. Larry’s Third and Fourth
PAGE 47 - OPINION AND ORDER

Claims for Relief are dismissed.
Conclusion
Defendants’ motions (ECF Nos. 76, 104, and 107) for summary judgment are GRANTED.
DATED this 19th day of February, 2019.

/s/ John V. Acosta
JOHN V. ACOSTA
United States Magistrate Judge

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