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You can search the entire site. or go to the recent opinions, or the chronological or subject indices. Richard R. Watkinson v. State of Alaska, Department of Corrections (12/22/2023) sp-7677
Notice: This opinion is subject to correction before publication in the PACIFIC REPORTER.
Readers are requested to bring errors to the attention of the Clerk of the Appellate Courts,
303 K Street, Anchorage, Alaska 99501, phone (907) 264 -0608, fax (907) 264 -0878, email
corrections@akcourts.gov.
THE SUPREME COURT OF THE STATE OF ALASKA
RICHARD R. WATKINSON, )
) Supreme Court No. S-17941
Appellant, )
) Superior Court No. 3AN- 15-09715 CI
v. )
) O P I N I O N
STATE OF ALASKA, DEPARTMENT )
OF CORRECTIONS, ) No. 7677 - December 22, 2023
)
Appellee. )
Appeal from the Superior Court of the State of Alaska, Third
Judicial District, Anchorage, Thomas A. Matthews, Judge.
Appearances: Richard R. Watkinson, pro se, Seward,
Appellant. Noah I. Star and Ryan A. Schmidt, Assistant
Attorneys General, Anchorage, and Treg R. Taylor,
Attorney General, Juneau, for Appellee.
Before: Winfree, Chief Justice, and Maassen, Carney,
Borghesan, and Henderson, Justices.
HENDERSON, Justice.
INTRODUCTION
A self-represented prisoner sued the Department of Corrections (DOC)
for intentional and negligent infliction of emotional distress. The prisoner alleged that
DOC held him in administrative segregation (sometimes called solitary confinement)
for 504 days and that corrections officers denied him any meaningful opportunity to
appeal or be heard regarding his segregation. Among other claims, the prisoner
----------------------- Page 2-----------------------
contended that the corrections officers' actions amounted to extreme and outrageous
conduct that caused him severe emotional distress. The superior court granted summary
judgment in favor of DOC, reasoning that DOC's conduct was not extreme and
outrageous and that the prisoner's distress was not severe enough to give rise to liability.
We hold that this was an abuse of discretion, and we reverse the superior
court's grant of summary judgment in DOC's favor as to the prisoner's intentional
infliction of emotional distress (IIED) claim. We also vacate the superior court's order
approving the attorney general's certification that individual corrections officers acted
within the scope of their employment, reverse the court's denial of the prisoner 's
request to compel certain discovery, and remand for further proceedings consistent with
this decision. We affirm the superior court's grant of summary judgment with respect
to the prisoner's negligent infliction of emotional distress (NIED) claim.
FACTS AND PROCEEDINGS
1
A. Facts
1. Watkinson's initial placement in administrative segregation
In September 2013 Alaska inmate Richard Watkinson was housed in a
private prison facility in Colorado. DOC was in the process of transferring Alaska
prisoners back to Alaska after the completion of the Goose Creek Correctional Center
2
(Goose Creek).
1
Because this is an appeal of a summary judgment order, our factual
recitation relies on the superior court record, including exhibits, affidavits, responses to
interrogatories, and transcripts. Rich v. Valdez Motel Corp. , 207 P.3d 552, 544 n.2
(Alaska 2009). In describing the facts, we make all inferences in favor of the
nonmovant, Watkinson. Blair v. Fed. Ins. Co., 433 P.3d 1048, 1051 (Alaska 2018)
(citing Alakayak v. B.C. Packers, Ltd., 48 P.3d 432, 447 (Alaska 2002) ).
2
Ben Anderson, Opening Soon: Alaska's $240 Million Goose Creek
Prison, ANCHORAGE DAILY NEWS (June 24, 2012), https://www.adn.com/alaska-
news/article/opening-soon-alaskas-240-million-goose-creek-prison/2012/06/25/.
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----------------------- Page 3-----------------------
Three days before Watkinson 's transfer, he was placed in administrative
segregation after an alleged altercation with a Colorado corrections officer . According
to the reporting officer, Watkinson assaulted the officer in an attempt to destroy a
contraband cell phone. Watkinson maintains his innocence. This was Watkinson's
only violent disciplinary infractio n while in Colorado .
After the incident a Colorado prison employee emailed the DOC director.
While reporting that the officer was "not seriously injured," the employee said that he
was "going to try to ensure [Watkinson] is prosecuted." Later that eveni ng the director
emailed other DOC officials th at, when Watkinson arrived in Alaska, he was to be held
in administrative segregation due to the incident. When Watkinson arrived at Goose
Creek, prison officials placed Watkinson on administrative segregation under the most
restrictive placement conditions , also known interchangeably as "Ad Seg Max" or "Ad
3
Seg 10."
Watkinson presented an undisputed description of the conditions
associated with placement in Ad Seg 10 at G oose Creek. The cells are 7.5 by 12 feet
and have no windows. The recreational areas , which are inside the prison, are 12 by 20
feet and made of solid concrete, with a window 30 feet above the ground. There is little
to no na tural light in segregation. Inmates in Ad Seg 10 eat all meals alone, and the
only possibilities for social interaction are weekly counseling sessions and 15 minutes
per day of telephone time. Inmates in Ad Seg 10 are not permitted in -person visits.
Inmates on Ad Seg 10 status are confined to cells, alone, for at least 22 hours per day.
Three days after Watkinson's initial placement, DOC held an
administrative segregation hearing to determine Watkinson's appropriate continued
placement. At an administrative segregation hearing, the inmate has a right to
assistance from a hearing advisor or, when the segregation is in connection with an
3
22 Alaska Administrative Code (AAC) 05.485(a)(10).
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----------------------- Page 4-----------------------
4
infraction that could be a felony, assistance from counsel. The inmate also has the
right to challenge the factual basis for the administrative segregation, including by
5
calling witnesses, presenting evidence, and making a statement to the hearing officer .
Watkinson claims that the DOC officer providing him notice of the
hearing did not inform him of his right to a hearing advisor and encouraged him to
waive his own appearance at the hearing. Before the hearing Watkinson was not given
the opportunity to prepare a defense ; instead, he was told he could select a h earing
advisor at the beginning of the hearing. Watkinson has consistently alleged that the
hearing officer told Watkinson that she was instructed to place him in Ad Seg 10 and
that the hearing's outcome was predetermined. At the hearing, t he incident re port from
Colorado was read into the record and Watkinson made a statement on his own behalf.
No other evidence or witnesses were presented.
Based on this hearing, DOC kept Watkinson in Ad Seg 10 because he had
6
demonstrated "[a]ssaultive behavior toward[] staff." DOC recommended that
Watkinson "remain in segregation until he ha [d] completed the Disciplinary-Board
process." Based on the report that he had assaulted the Colorado employee, DOC
further found that Watkinson presented a substantial threat to the security of the facility.
After that hearing Watkinson repeatedly asked for the written decision in
order to appeal , and he alleges he was discouraged from filing his appeal. Watkinson
appealed his initial placement in Ad Seg 10, citing various procedural violations during
his initial hearing and maintaining his innocence. Watkinson asked to be placed in a
lower level of administrative segregation, Ad Seg 8, until the resolution of the
4
STATE OF ALASKA, DEP 'T OF CORR., POLICIES & PROCEDURES, SPECIAL
MANAGEMENT PRISONERS, ADMINISTRATIVE SEGREGATION 804.01.VII.C.1-2 (2014),
https://doc.alaska.gov/pnp/pdf/804.01.pdf (hereinafter DOC POLICY 804.01).
5
Id.
6
Id. VII.B.3.a.(1)(a).
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disciplinary process. Ad Seg 8 allows inmates to return to the general prison population
after the resolution of disciplinary proceedings; Ad Seg 10 does not. Ad Seg 8 status
allows for in -person small group mental health programs, outdoor recr eation with one
or two other inmates, eligibility for an MP3 player and more books, and in -person visits
after 30 days. But even in Ad Seg 8, inmates are largely confined to their cells for most
of the day, and must complete any recreation, visits, phone calls, and/or use of the law
library within a two -hour period.
Watkinson's appeal was denied because he was "appropriately classified
as Ad Seg 10 for an alleged incident [in Colorado] against a staff member." This was
Watkinson's only appeal of his administrative segregation status. Review hearings of
7
Ad Seg 10 status are held every four months.
2. Watkinson's disciplinary hearing
Approximately 90 days after he was placed in Ad Seg, DOC held
Watkinson's disciplinary hearing on December 11, 2013. The hearing had been
scheduled for October but it was delayed . The only explanation given for the delay was
"evidence." Before the hearing, Watkinson requested witnesses, records, and evidence ,
none of which was provided. Watkinson's hearing advisor "did not understand that it
8
was his responsibility" to interview witnesses and obtain evidence. Watkinson's two
prisoner witnesses were present at Goose Creek during the hearing, but DOC did not
make them available to testify at Watkinson's disciplinary hearing. DOC did not
determine whether charges were filed in Colorado or obtain evidence or witnesses from
7
Id. VII.D.
8
Preparing witnesses and evidence is part of the hearing advisor's duties
per regulation and DOC policy. 22 AAC 05.440(c); STATE OF ALASKA, DEP'T OF
CORR., POLICIES & PROCEDURES, PRISONER RULES AND DISCIPLINE, DISCIPLINARY
COMMITTEE/HEARING OFFICER AND BASIC OPERATION 809.04.D.2 (2012), https://doc.
alaska.gov/pnp/pdf/809.04.pdf (hereinafter DOC POLICY 809.04).
-5- 7677
----------------------- Page 6-----------------------
9
Colorado. Watkinson did not have counsel at the hearing . DOC officials said at the
end of this hearing that they would dismiss the case if it came before them a second
time, which Watkinson characterizes as an admission that the hearing was infirm .
The disciplinary committee found Watkinson guilty of the assault and
10
imposed a pen alty of "Time Served," but did not impose punitive segregation. The
DOC officers involved later acknowledged that time served was "not a typical
punishment" to give for a high-level infraction. The officers admitted that Watkinson
had "already served sufficient time in segregation with regard to the infraction he had
committed." Watkinson appealed to the Superintend ent and the Director of Institutions.
Both appeals were denied, and Watkinson appealed the disciplinary decision to the
superior court.
9
Although DOC noted that the records were hard to get because the facility
in Colorado closed, it seems that the Department of Law was able to obtain the relevant
records from the facility in preparation for this litigation by simply asking the corporate
headquarters.
10
Although both types of segregation remove prisoners from the general
population, they have different purposes and are governed by different policies.
Administrative segregation is defined as a "form of separation . . . when the continued
presence o f the inmate in the general population poses a serious threat to life, property,
self, staff, or other inmates or to the security or orderly operation of the institution."
DOC POLICY 804.01. supra note 4, V. There is regular review of a prisoner's status
but no limit on the duration of administrative segregation. Id. VII.D-H. Punitive
segregation is defined as a "form of separation [in which ] inmates who have committed
serious violations of conduct regulations are confined . . . for short periods of tim e to
individual cells separated from the general population. " Id. V. Placement in punitive
segregation is limited to 60 days and "only may occur after a finding of a rule violation
at an impartial hearing." Id. ; STATE OF ALASKA, DEP'T OF CORR., POLICIES &
PROCEDURES, PRISONER RULES AND DISCIPLINE, PROHIBITED CONDUCT AND
PENALTIES 809.02.VII.F (2013), https://doc.alaska.gov/pnp/pdf/809.02.pdf .
-6- 7677
----------------------- Page 7-----------------------
3. The remainder of Watkinson's time in administrative
segregation
After Watkinson was found guilty at the disciplinary hearing , he joined
the Step Down program in December 2013. The Step Down program is a voluntary
program designed to rehabilitate Ad Seg 10 prisoners to ensure their safe return to the
general population. According to Watkinson, if inmate s do not participate in the Step
Down program, they remain in segregation indefinitely. The major incentive for
successful completion of the program is return to the general population, but there are
also intermediate stage incentives as inmates progress through the program . At first
Watkinson took issue with some aspects of the program; the Director of Institutio ns
responded that the Step Down program would allow him to "return to [the general]
population much sooner [than] otherwise would be the case" and that participation was
Watkinson's choice, writing, "I hope you choose wisely."
After a review hearing in February 2014, DOC again recommended that
Watkinson remain on administrative segregation, noting that he was "placed on Ad-Seg
10 status due to . . . assaulting a staff member," behavior that was "a severe threat to
the safety and security of the facility." DOC recommended that he continue to engage
in the Ad Seg 10 Step Down program. Watkinson was present at the hearing; he noted
that he was appealing the disciplinary decision and that he had maintained clear conduct
for his four months in segregation. After future review hearings, DOC repeated the
same recommendation verbatim.
During 2014, Watkinson progressed through the Step Down program .
The third phase was the least restrictive, and Watkinson was transferred to Step 3 of the
program, Ad Seg 8 status , in August 2014 .
Watkinson was scheduled to return to the general prison population in
December 2014. But t hat month DOC extended his time in Ad Seg 8 by 60 -90 days
after an incident during mental health counseling, in which the counselor reported
feeling verbally attacked by the inmates collectively. Watkinson was told of this change
-7- 7677
----------------------- Page 8-----------------------
in a meeting and , when he protested , he was told he was "not entitled" to an appeal of
the decision. After he filed two grievances, DOC officials told Watkinson there was an
appeal process. But DOC officials also reminded Watkinson that the Step Down
program was voluntary, and told him that if he chose "not to go along with Unit Team
recommendations," he could "go back to Ad Seg 10 Status." DOC officials also told
Watkinson that it was "well within the [parameters] of the program to" retain inmates
at the current level, and that his "continued focus on appe[a]ling and attempts at
intellectualizing" was "not conducive" to rehabilitation.
Throughout his time in administrative segregation, Watkinson's appeal of
the disciplinary decision was proceeding in superior court. In January 2015 DOC
rescinded its disciplinary decision and removed the record from his file. The next
month Watkinson completed the Step Down program and returned to the general prison
population. In total, Watkinson was in administrative segregation for 504 days , 335 of
which were spent in Ad Seg 10 .
In March 2015 the superior court found that the disciplinary appeal was
moot because "DOC had already reversed the guilty finding and removed the records
from his file, because DOC was acknowledging that Mr. Watkinson had been
improperly placed in administr ative segregation." The court ordered DOC to return
Watkinson to the general population and to remove all files and documents related to
the Colorado incident. The court directed that DOC was not to use any of the allegations
underlying the dismissed disciplinary infraction against Watkinson in any way.
4. Watkinson's emotional distress
Watkinson claims that he experienced "intense mental anguish and severe
emotional distress" in administrative segregation. While in segregation, he suffered
from "acute anxiety," insomnia, social withdrawal, a severe depressive state, and
suicidal ideation. Watkinson described feeling as if he was "enduring intentional
psychological torture." At times, he would have panic attacks or disassociate ( "going
ghost" in his terms) when feeling overwhelmed by his situation. Watkinson believes
-8- 7677
----------------------- Page 9-----------------------
his time in administrative segregation exacerbated previous mental illnesses,
identifying the same feeling of " 'hollow numbness ' and despair" that he had felt as a
teenager, when he was "in the depths of . . . depression." These conditions persisted
after his time in segregation, and he still struggles with social withdrawal and
depression.
Watkinson later submitted affidavits from his video and telephonic
visitors attesting to hi s severe distress, including that he would weep during visit s. A
psychiatric examination corroborated that prior to serving time in prison Watkinson had
been diagnosed with several mental health conditions, including depression.
In Step Down Watkinson co mpleted several anger management courses
and group counseling. The Chief Mental Health Officer for DOC opined that
Watkinson did not suffer from a serious mental illness, based on a review of his medical
records, the records of mental health rounds in segregation, and his institutional file.
According to the available record, t he mental health rounds occurred ro ughly once a
month and stopped in July 2014. The Chief Mental Health Officer claimed that
Watkinson never expressed any mental or emotional distress to prison staff and that he
had learned to cope with any distress through meditation. Watkinson claims that he did
express his severe distress and feelings of hopelessness during the group counseling
sessions, and notes those counselors did not provide testimony. He also claims he did
not report his distress during mental health checks because he feared being forced to
take medication or being put on suicide watch, a n even more restrictive status where all
bedding and personal property are removed.
B. Proceedings
Watkinson filed his initial complaint in this matter in September 2015, an
amended complaint in Jan uary 2016, and a second amended complaint in April 2016.
In the first two complaints, Watkinson alleged several violations of the Alaska
Constitution and sought monetary damages. DOC moved to dismiss these claims,
arguing that Watkinson could not claim d amages based upon violations of the Alaska
-9- 7677
----------------------- Page 10-----------------------
Constitution alone if there was an alternative remedy. Watkinson then filed a second
amended complaint , removing his Alaska constitutional claims and preserving his IIED
and NIED claims.
Extensive motion practice and discovery followed, leading to multiple
orders relevant to this appeal. First, the State certified under AS 09.50.253(c) that the
original DOC employee defendants were acting within the scope of their employment
and moved to substitute the State as the defendant. Watkinson objected to the
certification based on the nature of the co nduct, arguing that the defendants' acts or
omissions constituted "willful, reckless, or intentional misconduct, or [misconduct]
11
with gross negligence or malice" and therefore could not be certified as within the
scope of employment. The superior court overruled Watkinson's objection and
approved substitution of the State of Alask a in place of the DOC employees initially
named as defendants in this case.
Second, Watkinson moved for in camera review of correspondence related
to DOC's decision to remove his disciplinary infraction from his prisoner record.
Watkinson asked in the alternative for the superior court to order DOC to give him the
name of the individual who made the decision. Watkinson had filed several
interrogatories asking why DOC removed t he disciplinary report from his file during
the previous litigation and who had authorized that removal. Caitlin Price, a sergeant
at Goose Creek at the time , responded to the interrogatory that she did "not specifically
recall who authorized the removal of the infraction." DOC further refused to answer
Watkinson's interrogatories about the issue on grounds of attorney-client privilege.
Watkinson argued that the requested information was relevant because it could tend to
demonstrate DOC's awareness of serious constitutional infirmities in its discipli nary
11
AS 09.50.253(h)(1)(D).
-10- 7677
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process. After the issue was fully briefed, the superior court denied the motion in
August 2019.
DOC moved for summary judgment, and the superior court granted
summary judgment for DOC on Watkinson's IIED and NIED claims in August 2020.
Regarding Watkinson's IIED claim, the superior court - resolving all factual issues in
Watkinson's favor - determined that DOC's conduct, while concerning, was not
extreme and outrageous. The court also concluded that the emotional distress
Watkinson experienced was not severe enough to support an IIED or NIED claim
because it did not go beyond what an ordinary prisoner would experience in the same
situation. The superior court also concluded that DOC did not owe a duty toward
Watkinson that could support an NIED claim.
Watkinson filed a motion for reconsideration, arguing that the superior
court ignored "clear facts and provisions of law." The superior court denied
reconsideration. The court noted that Watkinson asked it to refer to his initial complaint
but then described how he had "made the strategic choice to amend his complaint a
second time," to "omit[] all of the [c]onstitutional challenges he now raises," and "to
focus exclusively upon issues of NIED and IIED." Accordingly, the court explained
that Watkinson "may not now complain the [c]ourt overlooked his original
constitutional challenges."
Watkinson appeals the superior court's dismissal of his IIED and NIED
claims on summary judgment, the court's certification order, and its denial of his motion
for in camera review.
STANDARD OF REVIEW
We review summary judgment orders de novo, and "will affirm a grant of
summary judgment if there are no genuine issues of material fact and if the movant is
-11- 7677
----------------------- Page 12-----------------------
12
entitled to judgment as a matter of law. " "We draw all reasonable inferences in favor
13
of the nonmoving party. " In order to survive summary ju dgment, the nonmoving
party must demonstrate that a material issue of fact exists, by "set[ting] forth specific
facts showing that [it] could produce admissible evidence reasonably tending to dispute
14
or contradict the movant 's evidence." " '[T]he evidentiary threshold necessary to
preclude the entry of summary judgment is low,' but the evidence supporting a claim
must not be 'based entirely on "unsupported assumptions and speculation " and must
15
not be "too incredible to be believed by reasonable minds. " ' "
We review for abuse of discretion a trial judge's threshold determination
on the two major elements of IIED, whether the involved conduct was extreme and
16
outrageous and the emotion al distress was severe. If this determination is made at the
time of summary judgment, all reasonable inferences must be drawn in favor of the
17
plaintiff.
"The scope and existence of a duty of care are questions of law, which we
18
review" using our independent judgment. We review approval of scope of
19
employment certifications by the attorney general de novo. We review rulings on
12
Blair v. Fed. Ins. Co., 433 P.3d 1048, 1051 (Alaska 2018) (citing Alakayak
v. B.C. Packers, Ltd., 48 P.3d 432, 447 (Alaska 2002)).
13
Id.
14
Alakayak , 48 P.3d at 448 (second alteration in original) (quoting Philbin
v. Matanuska-Susitna Borough , 991 P.2d 1263, 1265-66 (Alaska 1999)).
15
Lum v. Koles , 426 P.3d 1103, 1109 (Alaska 2018) (alteration in original)
(first quoting Crawford v. Kemp , 139 P.3d 1249, 1253 (Alaska 2006); and then quoting
Christensen v. Alaska Sales & Serv., Inc., 335 P.3d 514, 520 (Alaska 2014)).
16
Richardson v. Fairbanks North Star Borough, 705 P.2d 454, 456 (Alaska
1985).
17
Jones v. State, Dep't of Corr., 125 P.3d 343, 346 (Alaska 2005).
18
Schack v. Schack, 414 P.3d 639, 641 (Alaska 2018).
19
State, Dep 't of Corr. v. Heisey, 271 P.3d 1082, 1090 (Alaska 2012).
-12- 7677
----------------------- Page 13-----------------------
discovery disputes, including whether to conduct an in camera review, for abuse of
discretion.20
"We hold self-represented litigants to a 'less stringent' standard than
lawyers;" if "the essence of the self-represented litigant's argument can be easily
discerned from the briefing, and the opposing party would not be prejudiced by its
21
consideration, it should be considered."
DISCUSSION
A. It Was An Abuse Of Discretion To Dismiss Watkinson's Claim For
Intentional Infliction Of Emotional Distress.
"To prevail on an IIED claim, a plaintiff must establish (1) that the
defendant's conduct was extreme and outrageous, (2) that the conduct was intentional
or reckless, (3) that this conduct caused the plaintiff emotional distress, and (4) that the
22
distress was severe." A trial judge "should make a threshold determination whether
the severity of the emotional distress and the conduct of the offending party warrant a
23
claim of [IIED]." When the trial judge makes this assessment at the summary
24
judgment stage, the judge must draw factual inferences in favor of the plaintiff.
Watkinson challenges the superior court's decisions that DOC's conduct
was not sufficiently extreme and outrageous and that his emotional distress was not
sufficiently severe to warrant a claim of IIED. We observe that the superior court's
grant of summary judgment against Watkinson on these points appears to be based not
upon any failure of Watkinson to set forth admissible evidence establishing or
20
Christensen v. NCH Corp., 956 P.2d 468, 473 (Alaska 1998).
21
Leahy v. Conant , 447 P.3d 737, 742-43 (Alaska 2019).
22
Cameron v. Beard , 864 P.2d 538, 548 (Alaska 1993) (citing Teamsters
Loc. 959 v. Wells, 749 P.2d 349, 357 (Alaska 1988)).
23
Richardson v. Fairbanks North Star Borough, 705 P.2d 454, 456 (Alaska
1985).
24
Jones v. State, Dep't of Corr., 125 P.3d 343, 346 (Alaska 2005).
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----------------------- Page 14-----------------------
supporting genuine issues about what DOC did or did not do and about the nature of
his resulting distress, but upon the court's determination that, even assuming
Watkinson's assertions were all true, the conduct established was not sufficiently
extreme and outrageous, and the resulting distress was not sufficiently severe, to
support an IIED claim. Drawing all factual inferences in Watkinson's favor, we hold
that the superior court abused its discretion as to each determination , and we reverse
the court's entry of summary judgment in DOC's favor.
1. Resolving all factual disputes in Watkinson's favor, i t was an
abuse of discretion to hold that Watkinson did not demonstrate
sufficiently extreme and outrageous conduct.
Extreme and outrageous conduct is conduct "so outrageous in character,
and so extreme in degree, as to go beyond all possible bounds of de cency, and to be
25
regarded as atrocious, and utterly intolerable in a civilized community. " We have
recognized that s uch conduct is established whe n an average member of the community
26
hearing the facts of the case would exclaim, "Outrageous!" We generally recognize
extreme and outrageous conduct when the conduct at issue may seriously damage
25
RESTATEMENT (SECOND) OF TORTS § 46 cmt. d ( AM. L. INST . 1965), cited
in Lybrand v. Trask , 31 P.3d 801, 803 n.4 (Alaska 200 1); see also Odom v. Fairbanks
Mem'l Hosp., 999 P.2d 123, 133 (Alaska 2000).
26
Lybrand , 31 P.3d at 805.
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----------------------- Page 15-----------------------
27
someone's wellbeing. Additionally, repeated acts or a pattern of long -term behavior
28
can indicate that conduct is extreme and outrageous.
As an initial matter, Watkinson argues that we should consider DOC's
actions in the due process context when evaluating whether the conduct was extreme
and outrageous. DOC counters that because Watkinson did not plead constitutional
violations in his operative complaint, he c annot raise them now. DOC is correct that
Watkinson 's second amended complaint did not raise constitutional claims .
But we agree with Watkinson that constitutional rights and violations
provide important context in determining whether conduct is extreme and outrageous.
The constitutional dimension of a right may be based in part o n the notion that that right
is "necessary for the kind of civilized life and ordered liberty" envisioned by the
29
drafters. So it follows that violating a constitutional right may indicate that the
30
underlying conduct is intolerable to a civilized community. This conclusion aligns
with Ninth Circuit precedent. In Rivera v. Corrections Corp . of America , the court
reversed a summary judgment order, holding that a r easonable jury could find a private
27
Examples we have addressed include repeated and severe death threats,
sexual harassment and retaliatory conduct, the intentional killing of a pet, or discharging
a patient from an in-home care program without consent or consultation from a doctor.
See Teamsters Loc. 959, 749 P.2d at 358; Norcon, Inc. v. Kotowski , 971 P.2d 158, 172 -
73 (Alaska 1999); Richardson, 705 P.2d at 456; Adkins v. Collens , 444 P.3d 187, 203
(Alaska 2019). Painting Bible verses on one's roof to antagonize neighbors after a
property dispute, however, is not ex treme and outrageous. Lybrand , 31 P.3d at 803 -04.
28
For example, we have found that long -term, systematic harassment over
several years was extreme and outrageous, to include a multi -year campaign to ensure
an employee is terminated. Cameron v. Beard , 864 P.2d 538, 548 -50 (Alaska 1993);
Odom, 999 P.2d at 133; King v. Brooks, 788 P.2d 707, 711 (Alaska 1990).
29
Doe v. State, Dep 't of Pub. Safety, 92 P.3d 398, 404 (Alaska 2004)
(quoting Baker v. City of Fairbanks , 471 P.2d 386, 402 (Alaska 1970)); see also Valley
Hosp. Ass'n v. Mat -Su Coal . for Choice , 948 P.2d 963, 967 (Alaska 1997) ; Sampson v.
State, 31 P.3d 88, 92 (Alaska 2001).
30
See RESTATEMENT (SECOND) OF TORTS § 46 cmt. d (AM. L. INST . 1965).
-15- 7677
----------------------- Page 16-----------------------
prison company's holding of an arrestee in solitary confinement for 355 days before
31
arraignment to be extreme and outrageous. The court's rationale rested in part on the
fact that the company violated the arrestee's constitutional rights, including the right to
"freedom from incarceration, 'the paradigmatic liberty interest under the due process
32
clause.' " An intentional violation of constitutional rights, where potential for serious
harm is clear, can rise to the level of extreme and outrageous behavior for purposes of
IIED.
Accepting all factual inferences in Watkinson's favor at the summary
judgment stage, the proceedings underlying his administrative segregation and
disciplinary hearing were, as the superior court acknowledged, deeply flawed.
Prisoners in Alaska have due process rights to call witnesses and present evidence at
33
both disciplinary hearings and administrative segregation hearings. According to
Watkinson's evidence submitted on summary judgme nt, the process provided to him
by DOC fell far short of what was required. Affidavits and evidence presented by
Watkinson indicate that DOC failed to provide him with adequate notice of his right to
a hearing advisor or a true opportunity to contest the facts that led to his initial
placement in administrative segregation. And during Watkinson's disciplinary hearing,
DOC failed to make available any evidence or witnesses he requested, relying primarily
on a one-page report from the Colorado facility.
DOC may have further violated Watkinson's due process rights and its
own policies when it failed to provide him with counsel at any stage. In Alaska, inmates
have a right to counsel, either retained or appointed, "where the inmate 's alleged
infraction of the institution 's regime consisted of conduct which potentially constitutes
31
999 F.3d 647, 650-51 (9th Cir. 2021).
32
Id. at 655 (quoting Oviatt ex rel. Waugh v. Pearce, 954 F.2d 1470, 1474
(9th Cir. 1992)).
33
McGinnis v. Stevens , 543 P.2d 1221, 1230-32 (Alaska 1975).
-16- 7677
----------------------- Page 17-----------------------
34
a violation of the state 's felony laws. " This right is codified in DOC policies regarding
35
both administrative segregation and disciplinary board hearings. DOC w as on notice
that Colorado officials sought charges against Watkinson. And given the gravity of the
36
allegation it is possible he could have been charged with a felony. Despite this, he
was not provided counsel at either his administrative placement hearings or the
disciplinary hearing.
That both Watkinson's administrative segregation and disciplinary
hearings, held months apart, were marred by the same or similar procedural errors
indicates extended, repeated misconduct that may be probative of extreme and
37
outrageous conduct. Resolving all factual disputes in Watkinson's favor, DOC's
failures in this regard amounted to more than mere "inappropriate shortcuts." Rather,
DOC's repeated failures undermined the legitimacy of the hearing processes to which
Watkinson was entitled.
Perhaps most probative of the nature of DOC's conduct is Watkinson's
assertion that DOC had already predetermined the results of the hearings and appeals
to which he was entitled, such that he would remain in admi nistrative segregation for
an extended and indefinite period of time . This assertion is supported by his affidavit
about statements of various corrections officers. Following the initial report of
Watkinson's alleged assault on a Colorado prison official, the DOC director instructed
34
Id. at 1235.
35
22 AAC 05.440(e); DOC POLICY 804.01, supra note 4, VII.C.1; DOC
POLICY 809.04, supra note 8, D.4.
36
Under Colorado law, assault in the second degree is a class four felony
that occurs when a person, "[w]hile lawfully confined or in custody, . . . knowingly and
violently applies physical force against the person of a peace officer, . . . engaged in the
performance of his or her duties." Colo. Rev. Stat.
§ 18-3-203(1)(f), (2)(b) (2003).
37
See, e.g., Cameron v. Beard , 864 P.2d 538, 548-50 (Alaska 1993)
(concluding evidence of repeated misconduct supportive of finding outrageous
conduct).
-17- 7677
----------------------- Page 18-----------------------
that Watkinson was to be placed on administrative segregation when he arrived in
Alaska. This initial determination appears arguably supported by the information
available at the time; however, Watkinson has set forth evidenc e that, since that time,
each hearing and appeal opportunity was not only procedurally deficient but also
predetermined against him. According to Watkinson, the hearing officer presiding over
his first segregation hearing stated she was "told" to place Watkinson on Ad Seg 10.
After that hearing, Watkinson alleges he was discouraged from appealing his placement
decision. Regarding the disciplinary hearing , the involved officers admitted several
procedural deficiencies and agreed that Watkinson had already served sufficient time
in segregation at the time of the disciplinary decision .
Watkinson's assertion that his fate was predetermined is further supported
by his allegations about the Step Down program and the numerous instances in which
DOC o fficials seemed to discourag e him from exercising his right to appeal further.
When Watkinson challenged aspects of the Step Down program, he was told that he
should "choose wisely" so that he could "return to [the general] population much
sooner." After he joined the program, his good behavior in segregation seem ed
immaterial to the decision to keep him in segregation; rather, he was directed repeatedly
and without explanation to continue the program. Watkinson explains that he did not
appeal any of his placement hearings after the first such hearing in September 2013
because it would have served only to extend his stay in segregation. Indeed, at one
point DOC officials noted his "continued focus on appe[a]ling" was "not conducive" to
rehabilitation.
Determining all factual issues and drawing all inferences in favor of
Watkinson, the evidence demonstrates that DOC had decided - prior to any
hearing - that he would spend an extended time in administrative segregatio n, and
that DOC then held administrative and disciplinary hearings in a perfunctory manner to
-18- 7677
----------------------- Page 19-----------------------
nominally comply with procedure. In this sense Watkinson's fate was sealed before he
38
had a chance to defend himself - an intolerable prospect.
Watkinson also argues that a further indicator of extreme and outrageous
conduct is that DOC gave him a sentence of "Time Served" but continued to hold him
in administrative segregation. DOC counters that the punitive and administrative
segregation processes are separate from each other and that a determination in one does
not necessarily impact the other process. DOC is correct, and in many circumstances,
there may be a reason to hold an inmate in a dministrative segregation after the end of
their punitive segregation.
But the record makes clear that, here, the processes were linked. The
superior court concluded that Watkinson's placement in administrative segregation was
"clearly based" on the flawed disciplinary hearing. He was initially placed in
administrative segregation because of the alleged Colorado assault incident , and the
initial decision that he remain in segregation was predicated on the completion of the
Disciplinary Board process. DOC told Watkinson he would be able to defend the
allegations before the Disciplinary Board. And then, following a flawed Disciplinary
Board hearing where he was sentenced to "Time Served," Watkinson was nevertheless
kept in administrative segre gation for another 389 days. The record reflects no grounds
for placing Watkinson in administrative segregation other than the alleged assault. By
38
Indeed, this practice may also violate Watkinson's federal constitutional
due process rights to meaningful hearings on review of his initial and continued
placement in solitary confinement. See Hewitt v. Helms , 459 U.S. 460, 477 n.9 (1983),
overruled on other grounds by Sandin v. Conne r, 515 U.S. 472, 483 (1995) ; Armstrong
v. Manzo , 380 U.S. 545, 552 (1965) (holding due process requires opportunity to be
heard "at a meaningful time and in a meaningful manner"); Johnson v. Ryan , 55 F.4th
1167, 1199-1201 (9th Cir. 2022); Isby v. Brown , 856 F.3d 508, 526 -28 (7th Cir. 2017)
(noting that periodic reviews of administrative segregation status must be meaningful
and open to possibility of different outcome, especially outcome that administrative
segregation is no longer necessary).
-19- 7677
----------------------- Page 20-----------------------
declaring Watkinson a danger to the safety of the facility based on the procedurally
deficient disciplinary hearing, DOC was able to hold him in what was effectively
39
punitive segregation significantly longer than regulations would otherwise permit.
All of this resulted in Watkinson spending a n extensive period of time in
administrative segregation - 504 day s. Based on the record before the superior court ,
we conclude that Watkinson set forth evidence supporting genuine issues of material
fact related to DOC's conduct sufficient to survive summary judgment. Moreover,
resolving all factual disputes in Watkinson's favor, he demonstrated that DOC's
conduct was extreme and outrageous so as to meet the threshold necessary to support
an IIED claim . The superior court's decision that DOC's conduct did not rise to the
level of extreme and outrageous, even after drawing all factual inferences in
40
Watkinson's favor, was an abuse of discretion.
2. It was an abuse of discretion to determine that Watkinson's
emotional distress was insufficiently severe to support an IIED
claim.
To establish an IIED claim , a plaintiff must demonstrate not only extreme
and outrageous behavior by the defendant, but also severe emotional distress : "distress
of such substantial qua ntity or enduring quality that no reasonable person in a civilized
41
society should be expected to endure it." "Examples of serious emotional distress
may include 'neuroses, psychoses, chronic depression, phobia, and shock.' However,
42
temporary fright, disappointment or regret does not suffice under this standard."
39
The maximum allowable punitive segregation is 60 days for a major
infraction. 22 AAC 05.470 (a)(3).
40
See Richardson v. Fairbanks North Star Borough, 705 P.2d 454, 456
(Alaska 1985); Jones v. State, Dep't of Corr ., 125 P.3d 343, 346 (Alaska 2005).
41
Teamsters Loc. 959 v. Wells, 749 P.2d 349, 357 (Alaska 1988).
42
Fyffe v. Wright, 93 P.3d 444, 456 (Alaska 2004) (quoting Chizmar v.
Mackie , 896 P.2d 196, 204 (Alaska 1995)) ; see also Nelson v. Progressive Corp. , 976
-20- 7677
----------------------- Page 21-----------------------
Serious mental distress exists when "a reasonable [person], normally constituted, would
be unable to adequately cope with the mental stress engendered by the circumstances
43
of the case."
Plaintiffs' affidavits describing their mental state , along with affidavits of
other witnesses, may be sufficient evidence to support a threshold finding of severe
44
emotional distress. Testimony from a mental health profession al may be helpful but
45
is not necessary. Additionally, the plaintiff's demonstration of particular
circumstances may be sufficien t to show that a "plaintiff has actually suffered serious
46
emotional trauma," considering what one would "naturally suffer" in response to
47
those circumstances.
Watkinson argues that the superior court applied the wrong legal standard
when it granted summary judgment against him because his emotional distress was not
more severe than "what any prisoner might experience in segregation or solitary
P.2d 859, 868 (Alaska 1999) (testimony from plaintiff and his father that he was angry
and "red in the face" after mishandling of insurance claim not severe emotional
distress).
43
Chizmar, 896 P.2d at 204 (quoting Rodrigues v. State , 472 P.2d 509, 520
(Haw. 1970)); see also RESTATEMENT (SECOND) OF TORTS § 46 cmt. j ( AM. L. INST .
1965) ("The law intervenes only where the distress inflicted is so severe that no
reasonable [person] could be expected to endure it. ").
44
Teamsters Loc. 959, 749 P.2d at 360; see also Fyffe, 93 P.3d at 456
(holding that denying an IIED claim based on testimony of sympathetic witnesses alone
within fact -finder's discretion).
45
Compare Wal-Mart, Inc. v. Stewart , 990 P.2d 626, 636 (Alaska 1999)
(listing psychiatrist's testimony to support upholding that plaintiff's emotional distress
was sufficiently severe), with Norcon, Inc. v. Kotowski , 971 P.2d 158, 173 (Alaska
1999) (upholding IIED claim based on plaintiff's testimony).
46
Chizmar, 896 P.2d at 205.
47
Norcon , 971 P.2d at 173; see also RESTATEMENT (SECOND) OF TORTS §
46 cmt. j ( AM. L. INST . 1965) ("[I]n many cases the extreme and outrageous character
of the defendant 's conduct is in itself important evidence that the distress has existed. ").
-21- 7677
----------------------- Page 22-----------------------
confinement." We agree with Watkinson . This is not the correct legal standard for
analyzing whether emotional distress rises to the level necessary to support an IIED
claim. The court's summary judgment order stated that "IIED claims have traditionally
rested on a showing of severe emotional distress - not simply the ordinary emotional
distress any person might experience in the same situation." But th is misstates the
emotional distress component of an IIED claim. Whether a plaintiff's emotional
distress was severe is not determined by whether a plaintiff suffer s the same level of
emotional distress that a reasonable person would experience under the same
48
circumstances. Indeed, if a plaintiff suffers more than the reasonable person would
under the circumstances, the defendant is not liable for additional damages, unless that
49
extreme distress results from a known susceptibility to such harm. The question is
not whether Watkinson's distress was worse than what an ordinary prisoner would
experience under the circumstances, but whether an ordinary pris oner could endure the
same extreme circumstances that he experienced.
The superior court's approach also contradicts our precedent indicating
that evidence of extreme circumstances in itself may support a determination that a
50
plaintiff suffered severe emotional distress. Not every stay in administrative
segregation will give rise to extreme emotional distress , and there is no set amount of
51
time that is particularly indicative of emotional distress. Rather, we emphasize that
48
Fyffe, 93 P.3d at 456 (quoting Teamsters Loc. 959, 749 P.2d at 359 n.14).
49
"The distress must be reasonable and justified under the circumstances,
and there is no liability where the plaintiff has suffered exaggerated and unreasonable
emotional distress." RESTATEMENT (SECOND) OF TORTS § 46, cmt. j (AM. L. INST .
1965).
50
Norcon , 971 P.2d at 173.
51
Jones v. State, Dep 't of Corr., 125 P.3d 343, 351-53 (Alaska 2005)
(Carpeneti, J., concurring) (prisoner plaintiff had not shown sufficient emotional
distress to overcome summary judgment).
-22- 7677
----------------------- Page 23-----------------------
in general, the circumstances that gave rise to the plaintiff's emotional distress are an
important piece of a holistic inquiry into whether the distress was "severe." Here,
Watkinson was held in administrative segregation for 504 days, significantly longer
than periods that we and other courts have previously determined to be an ordinary
52
incident of prison life . Courts have widely recognized that e xtended time in solitary
53
confinement can negatively impact an inmate's mental health . Moreover, Watkinson
contends that DOC's denial of his right to due process , and the shifting and often unclear
path to return to ordinary prison life , further compounded his distress.
52
Compare DeRemer v. Turnbull , 453 P.3d 193, 199 (Alaska 2019) (holding
ten-day placement in punitive segregation not atypical and significant hardship) , and
Sandin v. Conner , 515 U.S. 472, 486 (1995) (holding 30 days in solitary confinement
an ordinary inci dent of prison life) , with Rivera v. Corr. Corp. of Am. , 999 F.3d 647,
655 (9th Cir. 2021) (holding that 355 day detention in administrative segregation
without arraignment was "egregious"), and DeRemer v. State, Dep 't of Corr ., No. S -
14647, 2014 WL 4952503, at *7 (Alaska Oct. 1, 2014) (holding that prisoner had
protected liberty interest when hearing was for high moderate infraction and
punishment was 20 days in punitive segregation).
53
See Davis v. Ayala , 576 U.S. 257, 287 (2015) (Kennedy, J., conc urring)
("The human toll wrought by extended terms of isolation long has been understood, and
questioned, by writers and commentators."); Ruiz v. Texas , 580 U.S. 1191 , 1191-92
(2017) (Breyer, J., dissenting from denial of stay of execution) (noting human t oll of 20
years of solitary confinement exacerbated as prisoner awaited execution); Apodaca v.
Raemisch, 139 S. Ct. 5, 10 (2018) (Sotomayor, J., concurring in the denial of writ of
certiorari) (noting courts should be aware of "problems raised by keeping
prisoners . . . in 'near-total isolation ' from the living world, in what comes perilously
close to a penal tomb " (citation omitted)). Several circuit courts agree that solitary
confinement poses an objective risk of serious psychological and emotional harm to
inmates, especially those with an underlying, severe mental illness. See Porter v.
Clarke, 923 F.3d 348, 3 64 (4th Cir. 2019) ; Clarke v. Coupe , 55 F.4th 167, 179 -80 (3d
Cir. 2022). But see Giles v. Godinez, 914 F.3d 1040, 1051-52 (7th Cir. 2019)
(concluding no objective risk of mental injury from segregation). See also generally
Stuart Grassian, Psychiatric Effects of Solitary Confinement , 22 WASH. U. J. L. &
POL'Y 325 (2006) (noting common side -effects of solitar y confinement include anxiety,
panic, withdrawal, hallucinations, self -mutilation, and suicidal thoughts and behaviors).
-23- 7677
----------------------- Page 24-----------------------
Watkinson 's evidence on summary judgment related to the nature of his
distress is also significant . Watkinson attested that, while in segregation, he suffered
from an array of severe psychological symptoms, including acute anxiety, insomnia,
panic attacks, disassociation, social withdrawal, a severe depressive state , and suicidal
ideation, many of which continued after his time in segregation. Watkinson also
provided affidavits from those who visited him corroborating his severe distress,
including Watkinson uncharacteristically weeping. Watkinson further explained his
alleged failure to report his di stress: he feared the forcible administration of medication
or suicide watch . He also explained that the counselors to whom he did express his
distress did not provide any testimony at the summary judgment stage.
Finally, Watkinson set forth evidence th at he has a demonstrated history
of mental illness that could cause him to be particularly vulnerable to the impacts of
administrative segregation, and that DOC should reasonably have been aware of his
mental health history . He points more specifically to the presentenc ing mental health
report that details his mental health diagnoses at that time, including very severe
dysthymia and depression. According to Watkinson, his mental illness has gone
untreated while incarcerated and was exacerbated by his time in segregation.
DOC argues that Watkinson only experienced ordinary anger and
frustration, pointing to his continued denial of mental health issues during check -ins
and his successful progression through the Step Down program. The Chief Mental
Health Officer noted that Watkinson never expressed any mental or emotional distress
to prison staff and that he learned to cope with any distress through meditation. This
evidence, if uncontradicted, might satisfy the State's burden as the summary judgment
54
movant to demonstrate entitlement to judgment as a matter of law. But here
54
Blair v. Fed. Ins. Co., 433 P.3d 1048, 1051 (Alaska 2018) (citing
Alakayak v. B.C. Packers, Ltd., 48 P.3d 432, 447 (Alaska 2002)).
-24- 7677
----------------------- Page 25-----------------------
Watkinson set forth specific, admissible evidence that "reasonably tend[s] to dispute or
55
contradict the movant's evidence."
We conclude first that Watkinson set forth sufficient evidence to
demonstrate genuine issues of material fact regarding the nature of his distress caused
by DOC's conduct. Moreover, assuming Watkinson's assertions to be true, we
conclude that his emotional distress was sufficiently severe to meet the required
threshold for an IIED claim . The superior court's decision otherwise, facilitated by use
56
of an incorrect legal standard, was an abuse of discretion .
In light of our holdings that Watkinson made a sufficient showing of
extreme and outrageous conduct on the part of DOC and of resulting severe emotional
distress, we reverse the superior court's grant of summary judgment to DOC on
Watkinson's IIED claim.
B. The Superior Court Did Not Err When It Found DOC Had No
Preexisting Duty That Would Allow For A Claim Of Negligent
Infliction Of Emotional Distress.
"Alaska law permits individuals to recover damages on the basis of
57
emotional distress " due to negligent conduct under limited circumstances. Generally,
damages are not available without a physical injury, except under two narrow
58
exceptions: the bystander exception and the preexisting duty exception . The pre-
59
existing duty exception is narrow . A plaintiff can recover only based on a contractual
55
Alakayak , 48 P.3d at 448 (quoting Philbin v. Matanuska-Susitna Borough,
991 P.2d 1263, 12 66 (Alaska 1999)).
56
Id.
57
Schack v. Schack , 414 P.3d 639, 641 (Alaska 2018) (citing Kallstrom v.
United States, 43 P.3d 162, 165 (Alaska 2002)).
58
Id. The superior court determined that the bystander exception d oes not
apply in this case, and neither party disputes that conclusion .
59
Kallstrom , 43 P.3d at 166.
-25- 7677
----------------------- Page 26-----------------------
60
or fiduciary relationship, or in other very limited circumstances when a special duty
61
may arise . To determine whether such a preexisting duty existed without a contractual
or fiduciary relationship, we apply the seven-factor test adopted in D.S.W. v. Fairbanks
62
North Star Borough School District . We affirm the superior court's determination
that there was no preexisting duty here that would allow for Watkinson to pursue
emotional distress damages caused by negligence.
The superior court correctly note d that the S tate as jailer has a duty to
exercise reasonable care for the protection of a prisoner's life and health similar to a
common carrier because prisoners are "confined and cannot avail themselves of normal
63
opportunities for self-protection." "[W]hen the jailer knows or reasonably should
have foreseen that [a] prisoner was "incapacitated, suicidal, or otherwise 'in danger,' "
a higher degree of care, the "utmost caution," is warranted to protect the prisoner from
64
physical harm . But "the duty to protect is not limitless - the prison 'should not be
65
the insurer of the prisoner's safety.' "
60
Caudle v. Mendel, 994 P.2d 372, 376 (Alaska 1999).
61
Chizmar v. Mackie , 896 P.2d 196, 203-05 (Alaska 1995) (recognizing
duty to prevent emotional harm from serious misdiagnoses, such as misdiagnosis of
AIDS, in doctor-patient relationship).
62
628 P.2d 554, 555 (Alaska 1981) (quoting Peter W. v. S.F. Unified Sch.
Dist., 131 Cal. Rptr. 854, 859-60 (Cal. App. 1976)); Kallstrom , 43 P.3d at 167.
63
Wilson v. City of Kotzebue, 627 P.2d 623, 628 (Alaska 1981).
64
State, Dep't of Corr. v. Johnson, 323 P.3d 56, 60 (Alaska 2000) (quoting
Wilson, 627 P.2d at 628); see also Mattox v. State, Dep't of Corr., 323 P.3d 23, 26-28
(Alaska 2014) (holding that duty of care extends to duty to prevent "reasonably
foreseeable" harm, including attacks by other prisoners); Joseph v. State, 26 P.3d 459,
473-77 (Alaska 2001) (holding duty of care extends to duty to prevent "reasonably
foreseeable suicide attempts" and intentionality of suicide does not absolve prison of
duty to prevent harm).
65
Mattox , 323 P.3d at 28 (quoting Joseph , 26 P.3d at 477).
-26- 7677
----------------------- Page 27-----------------------
Watkinson argues on appeal that this duty is in fact a fiduciary one,
because DOC exercise s "complete control and dominance" over prisoners. But this
argument misstates the nature of a fiduciary relationship. In Alaska a fiduciary
relationship "exists when one imposes a special confidence in another, so that the latter,
in equity and good conscience, is bound to act in good faith and with due regard to the
66
interests of the one imposing the confidence ." The jailer-prisoner relationship does
67
not arise from the special confidence required for a fiduciary relationship , and n o other
jurisdiction we are aware of recognizes that a fiduciary relationship exists between a
68
jail er and a prisoner. We agree with the superior court that the relationship between
a jailor and prisoner is no t one of a fiducia ry.
The superior court next looked to the seven-factor test adopted in D.S.W.
to determine whether the prisoner-jailor relationship supports an exceptional duty under
69
the circumstances. D.S.W. sets out seven factors that courts should consider when
determining whether a duty of care giving rise to NIED liability exists, including "the
extent of the burden to the defendant and consequences to the community of imposing
66
Williams v. Baker , 446 P.3d 336, 340 (Alaska 2019) (quoting Seybert v.
Cominco Alaska Expl. , 182 P.3d 1079, 1090 (Alaska 2008 )).
67
Dapo v. State, Dep't of Health & Soc. Servs., Off. of Child .'s Servs., 454
P.3d 171, 179 -80 (Alaska 2019) ( holding Office of Children's Services has fiduciary
duty to children in its custody); Thomas v. Archer , 384 P.3d 791, 797 (Alaska 2016)
(describing physician's fiduciary duty to patients based on special expertise).
68
See Rua v. Glodis , 52 F. Supp. 3d 84, 100 (D. Mass. 2014) ; Sperry v.
Corizon Health, Inc. , No. 18-3119-SAC, 2020 WL 905745, at *3 (D. Kan. Feb. 25,
2020); Williams-Bey v. Carpenter , No. 14-0490-CG-C, 2015 WL 4602871, at *9 (S.D.
Ala. July 29, 2015); Hernandez v. Cate , No. EDCV 11-00627 R(AJW), 2014 WL
6473769, at *3 (C.D. Cal. Oct. 16, 2014 ).
69
Kallstrom v. United States , 43 P.3d 162, 167 (Alaska 2002); Schack v.
Schack, 414 P.3d 639, 644 (Alaska 2018).
-27- 7677
----------------------- Page 28-----------------------
70
a duty to exercise care." Here, the superior court found that the D.S.W. factors
generally weighed against finding a n exceptional duty in this situation , with only one
factor, the foreseeability of harm to inmates, weighing in favor of finding such a duty.
As the court correctly noted, our case law generally has emphasized the
narrowness of the preexisting duty exception and our reluctance to open up bro ad and
potentially expansive categories of new litigants that could unduly burden the
71
community. For example, we have declined to find a duty to prevent the emotional
distress a negligent driver caused her parents after she perished in a car accident, noting
that "instances of individuals negligently injuring or killing themselves are not limited
72
to car accidents, " and that such new liability could be limitless. We also have declined
to allow plaintiffs who are "unwitting instruments" resulting in harm to another to
collect damages for NIED, because unwitting instruments are "a diverse group" and the
73
category is so broad as to provide no distinction for when liability should apply .
70
D.S.W. v. Fairbanks N. Star Borough Sch. Dist., 628 P.2d 554, 555
(Alaska 1981) (quoting Peter W. v. S. F. Unified Sch. Dist., 131 Cal. Rptr. 854, 859-60
(Cal. App. 1976)). The other six factors are:
[1] The foreseeability of harm to the plaintiff, [2] the degree
of certainty that the plaintiff suffered injury, [3] the
closeness of the connection between the defendant 's conduct
and the injury suffered, [4] the moral blame attached to the
defendant's conduct, [5] the policy of preventing future
harm, . . . and [7] the availability, cost[,] and prevalence of
insurance for the risk involved.
Id.
71
Schack, 414 P.3d at 645-46.
72
Id. at 645.
73
Kallstrom , 43 P.3d at 163, 167-68 (defining an unwitting instrument as "a
plaintiff who becomes a participant in the infliction of another's injuries through the
negligence of the defendant").
-28- 7677
----------------------- Page 29-----------------------
Similarly, we have declined to allow liability for emoti onal harm to the
parents of a murder victim when the identification of her remains was delayed due to
errors in the investigation, because the introduction of liability could open "floodgates"
74
of litigation and divert important executive resources. We are also reluctant to find a
75
duty when there are other policies or protections for potential plaintiffs in place. For
example, in Karen L. we held that there was no heightened duty of care for social
workers to prevent the emotional harm suffered by parents who have lost custody of
their children, given the other procedural protections in place for parents in child in
76
need of aid proceedings.
Here, we are particularly conce rned that allowing negligence claims for
pure emotional injury in the jailor -prisoner context would create an unwieldy and overly
77
broad group of potential plaintiffs. DOC has established procedures for inmates to
address grievances and policy errors ; adding liability for emotional injury here would
expand litigation without necessarily providing sufficient incentive to improve
outcomes of those procedures. Overall, the D.S.W. factors weigh against imposition of
a preexisting duty that could support an NIED claim in this case .
We agree with the superior court's holding that the jailor-prisoner
relationship does not give rise to a type of preexisting duty required to establish liability
for NIED , and we agree that th e D.S.W. factors do not supp ort embracing a new type of
preexisting duty in this case . We therefore affirm the superior court's grant of summary
judgment and dismissal of Watkinson's NIED claim.
74
Hawks v. State, Dep 't of Pub. Safety, 908 P.2d 1013, 1017 (Alaska 1995).
75
Karen L. v. State, Dep't of Health & Soc. Servs., Div. of Fam . & Youth
Servs., 953 P.2d 871, 876 (Alaska 1998).
76
Id.
77
Kallstrom , 43 P.3d at 167-68.
-29- 7677
----------------------- Page 30-----------------------
C. The Court Erred In Approving The Attorney General's Certification
That DOC Officials Were Acting Within The Scope Of Their
Employment.
Alaska Statute 09.50.253 addresses tort claims against state employees
78
acting within the scope of their employment. Under the statute, if the attorney general
certifies that a state employee was acting within the scope of employment when the
claim arose, then the claim is against the State and the State is automatically substituted
79
as a party defendant. The "scope of employment" is defined as acts or omissions
(A) that the State employee is employed or authorized to
perform;
(B) of the State employee that occur substantially within the
authorized time and space limit;
(C) that are activated by a purpose to serve the State; and
(D) that do not constitute acting, or failing to act, with wilful,
reckless, or intentional misconduct, or with gross negligence
[80]
or malice[.]
Part (D) of this statute broadly prohibits the attorney general from
certifying that an intentional tort was within the scope of employment. This statutory
definition is distinct from the definition of "scope of employment" that we have adopted
for private employers and municipalities, which includes intentional torts if they are
81
foreseeable based on the type of employment. This difference allows suits for
78
AS 09.50.253(a).
79
AS 09.50.253(c).
80
AS 09.50.253(h)(1).
81
Doe v. Samaritan Counseling Ctr., 791 P.2d 344, 347 (Alaska 1990)
(quoting RESTATEMENT (SECOND) OF TORTS § 228 (AM. L. INST . 1958)). This includes
situations where "force is intentionally used," so long as that force is not unexpected by
the employer. Id. ; see also Lane v. City of Juneau , 421 P.3d 83, 94-96 (Alaska 2018)
(reversing summary judgment in favor of City after campground employee started
drinking with campers, noting that even crimes and intentional torts may be within
scope of employment); Williams v. Alyeska Pipeline Serv. Co., 650 P.2d 343, 350-51
(Alaska 1982) (union liable for steward's threat of force in representing members).
-30- 7677
----------------------- Page 31-----------------------
intentional torts against state employees to proceed, even though the state is largely
82
immune from those suits.
83
The plaintiff can challenge a certification decision made by the State.
The superior court must review the certification decision de novo, and "the burden of
proof lies with the plaintiff challenging certification to prove that the defendants were
84
not acting within the scope of their employment. " The superior court, not the jury,
85
should decide certification before trial.
Whether an employee was acting within the scope of employment is a
86
fact-intensive analysis, especially when determining questions of intent. "If there are
disputed issues of fact," the court must "hold an evidentiary hearing and make factual
87
findings" to decide the certification question. "If no disputed issues of material fact
88
exist, the court may resolve the issue on summary judgment."
82
See AS 09.50.250(3) (listing intentional torts from which the state is
immune); Minutes, Sen. Jud. Comm. Hearing on S.B. 338, 23d Leg., 2d Sess. 9-10
(Mar. 24, 2004) (testimony of Gail Voightlander, Assistant Att'y Gen.), https://www.
akleg.gov/PDF/23/M/SJUD2004-03-240810.pdf (noting that certification would not
occur if there was intentional misconduct, preserving ability to sue state employees for
intentional torts).
83
State, Dep 't of Corr. v. Heisey, 271 P.3d 1082, 1090 (Alaska 2012).
84
Id.
85
Id. at 1091.
86
See Roth v. State, No. 5:15-CV-00001-SLG, 2016 WL 614353, at *5 (D.
Alaska Feb. 16, 2016) (analyzing each claim of malice, recklessness, or intentional
behavior before approving certification); Minutes, Sen. Jud. Comm. Hearing on S.B.
338, 23d Leg., 2d Sess. 10 (Mar. 24, 2004) (testimony of Gail Voightlander, Assistant
Att'y Gen.), https://www.akleg.gov/PDF/23/M/SJUD2004-03-240810.pdf (noting that
a denial of certification would not happen based on "mere allegation [s]").
87
Heisey, 271 P.3d at 1091.
88
Id.
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Here the superior court recited the correct standard for ruling on
certification, but then seemed to apply a different standard for determining the scope of
employment in describing its reasoning . Noting that the State is responsible for acts of
its employees that are "foreseeable" and within the authorized time and space limits of
89
their employment, the court held that the carrying out of disciplinary appeals was
within the scope of employment for the DOC officers. On reconsideration, the court
noted that the decision "recognize[d] long-standing ten[ets] of tort and agency law that
hold employers liable for the actions of their employees."
But there is a specific, statutory definition for the scope of employ ment
that applies to certification decisions , which does not permit the attorney general to
certify that alleged intentional torts committed by state employees were within the
scope of employment if they were "foreseeable." Instead, the statute specifically
excludes from certification instances in which state employees were "acting . . . with
wilful, reckless, or intentional miscondu ct, or with gross negligence or malice ," even if
90
the actions meet the other components of being within the scope of employment . The
superior court's application of a separate rule for employer liability ignores this clear
statutory exception. The superior court did not analyze the state employees ' actions in
this case under the statutory standard, aside from noting that Watkinson could attempt
to prove malicious or willful conduct at trial. It was error to approve the Attorney
General's certification without examining the state employees' actions pursuant to the
standard provided in AS 09.50.253 .
Because the wrong legal standard was applied in examining whether the
DOC officers were acting within the scope of their employment for certification
purposes, we vacate the superior court's order approving certification and remand for
89
See Doe v. Samaritan Counseling Ctr., 791 P.2d 344, 347-48 (Alaska
1990).
90
AS 09.50.253(h)(1)(D).
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further proceedings . We also note that Watkinson provided some evidence indicat ing
that the named state employees acted willfully or recklessly when conduc ting his initial
administrative segregation hearing and disciplinary hearing. Whether this evidence
creates a dispute of material fact requiring an evidentiary hearing is a question we leave
for the superior court on remand.
D. It Was An Abuse Of Discretion To Deny Watkinson's Discovery
Motion.
Among several discovery disputes in this case was Watkinson's inquiry
into DOC's decision to rescind the adverse disciplinary decision it had made against
him. Watkinson requested information and production of commun ications about this
decision and sought the name of the official who made the decision to remove the
disciplinary infraction from his record instead of defending the decision before the
superior court in 2015. The DOC official answering interrogatories re sponded that she
did "not specifically recall who authorized the removal of the infraction." DOC further
refused to answer Watkinson's interrogatories about this issue on grounds of attorney-
client privilege. Watkinson moved for an in camera review of al l communications
relating to the decision to rescind the disciplinary infraction, or, in the alternative, for
the superior court to compel production of the name of the individual. The court denied
Watkinson's motion, holding the State had already answere d that it did not know who
made the decision and that communications relating to the decision at issue are
privileged. We hold that this was an abuse of discretion.
Generally, communications between attorneys and clients for the purpose
91
of providing legal services are privileged. We note that while Watkinson's motion
was framed as a motion for in camera review of certain communications that may have
been privileged, he also made it clear he was ultimately asking DOC to identify the
official who directed the removal of the disciplinary infraction from his record. The
91
Alaska R. Evid. 503(b), (d).
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identity of this official is not a communication for the purpose of providing legal
services and therefore is not protected by the attorney-client privilege. Moreover,
DOC's discovery response indicating that it did not recall who authorized the removal
of the infraction was clearly insufficient. An official answering discovery requests on
behalf of an entity cannot merely claim not to have personal knowledge but must
92
investigate what the entity as a whole may know.
Because the name of the official in itself is not privileged and is likely
within the scope of DOC's knowledge, we hold that it was an abuse of discretion for
93
the court not to order DOC to provide that requested information.
CONCLUSION
We REVERSE the superior court's grant of summary judgment on
Watkinson's IIED claim, VACATE the court's certification order, REVERSE the
denial of Watkinson's discovery motion, AFFIRM the grant of summary judgment on
92
See Hawes Firearms Co. v. Edwards , 634 P.2d 377, 379 (Alaska 1981)
(answering individual's ignorance is not justification for withholding fact when fact is
known to others in the group).
93
If DOC cannot produce the name, then an in camera review of relevant
documents may become appropriate at a later stage. We leave that decision to the
discretion of the superior court.
It is unclear whether DOC was attempting to raise its attorney-client
privilege argument to suggest that the decision to dismiss the disciplinary matter and
remove the disciplinary infraction from Watkinson's record was made on the advice of
counsel. See advice -of-counsel defense , BLACK 'S LAW DICTIONARY (11th ed. 2019)
("2. A civil defendant's position that by seeking and following a lawyer's advice, the
defendant could not have lacked good faith in the conduct that has allegedly given rise
to liability. [] Typically, a defendant must show full disclosure of all material facts to
the lawyer coupled with actual reliance on the lawyer's advice in the good-faith belief
that the conduct was permissible."); Wheeler v. State, 659 P.2d 1241, 1253-54 (Alaska
App. 1983) (noting, in criminal matter s, dearth of Alaska case law on advice -of-counsel
defense and explaining defense's application to relevant mental states). If DOC is
asserting this defense, that would require the superior court to delve into whether DOC
is waiving the attorney-client privilege.
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Watkinson's NIED claim , and REMAND for further proceedings consistent with this
decision.
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