STATE OF MAINE SUPERIOR COURT
Cumberland, ss. STATE OF MAINE Cumberl8nrl 'iS. Cler\('!,; Office
ROBERT HUDSON SEP o8 2016 Petitioner RECEIVED V. Docket No. PORSC-AP-16-03
MAINE PUBLIC EMPLOYEES RETIREMENT SYSTEM
Respondent
DECISION AND JUDGMENT
Pursuant to Rule 80C of the Maine Rules of Civil Procedure, Petitioner Robert
Hudson has appealed from a decision of the Board of Trustees ["Board"] of the Maine
Public Employees Retirement System ("MPERS") denying his application for disability
retirement benefits. The parties have filed briefs and the administrative record.
The Clerk scheduled the appeal for oral argument to be held September 6, 2016
on the understanding that counsel were requesting it, but on the morning of September
6, the court was advised that counsel were prepared to waive oral argument if the court
agreed. Accordingly, the case is decided on the basis of the parties' briefs and the
record.
For the reasons set forth below, the court affirms the Board's decision, denies the
appeal and grants judgment to the Respondent.
I. Background
a. Employment and Medical History
Appellant Robert Hudson is 54 years old and lives in Raymond, Maine. (R. at
38.6). Mr. Hudson was employed by the Maine Department of Corrections (MDOC)
from 1991 to 2012, most recently as a Correctional Trades Supervisor. (R. at 38.6.)
1 As a State employee, Mr. Hudson was a member of the State Employee and Teachers
Retirement Program. See 5 M.R.S. § 17651 (all State employees and teachers mandated
to be members of the State Employees and Teachers Retirement Program as a condition
of employment).
Mr. Hudson's job as a Correctional Trades Supervisor entailed training,
supervising and assisting inmates involved in various work situations, as well as
assessing the quality of the work being performed. (R. at .38.6). Furthermore, the job
required Mr. Hudson to spend three to four hours driving per day, sometimes with
inmates in the car with him. (R. .38.6.) In that position, Mr. Hudson was expected to
respond to emergency situations that might involve restraining inmates. (R. at .38.6.)
Mr. Hudson was considered a "very good employee and a very hard worker" by his
supervisor.
In April of 2008, Mr. Hudson told his primary care physician, Carl Schuler,
D.O., that he was experiencing "spells" during which he would lose his train of thought
and get confused. (R. at .38.7.) Mr. Hudson reported that these spells were happening
three to four times per year and seemed to be getting worse. (R. at .38.7.) Dr. Schuler
believed that these spells might have been migraines or seizures and ordered a CAT
scan and referred Mr. Hudson to Maine Neurology. (R. at .38.7.) On April 2.3, 2008,
Georgann Dickey, MS, ANP, at Maine Neurology, diagnosed Mr. Hudson with
"transient alteration of awareness," and noted that his symptoms "do not neatly fit into
diagnostic criteria for migraine aura, seizures or ischemia." (R. at 38.7.)
From 2008 until his episode in 2012, there was no mention of Mr. Hudson's
spells in his medical records. Mr. Hudson acknowledges that his health care providers
2 never put restrictions on his employment as a result of the spells. (R. 15.107). Mr.
Hudson did not request any accommodation while employed by the MDOC. (R. at 38.7.)
On June 26, 2012, Nir. Hudson became confused and exhibited odd behavior at
work. (R. at 4.67, 4.86, 4.164, 38.7). He was taken to the emergency room at Maine
Medical Center, where Megan Selvitelli, M.D. found that Mr. Hudson's "history is
suggestive of a focal onset seizure with secondary generalization, likely due to the
demonstrated left frontal meningioma," i.e. that his symptoms were associated with
what proved to be a benign tumor of the brain. (R. at 38.7.) Mr. Hudson was
prescribed Keppra, an anticonvulsant, and told not to drive until he had three months
without any seizures, or if he chose not to take the anticonvulsant, for six months of
"seizure freedom". (R. at 4.136-38, 38.7.) Mr. Hudson left the emergency room against
medical advice. (R. at 38.7.)
On July 10, 2012, Mr. Hudson reported to Patricia Seely, NP-C, at Maine
Neurology that he was experiencing excessive sleepiness, dark moods and severe lapses
in memory, and was concerned that he would not he able to work while taking Keppra.
On July 12, 2012, Ms. Seely ordered Mr. Hudson "out of work until further notice," and
advised that Mr. Hudson "is unable to drive and requires further testing and medical
treatment at this time." (R. at 38.7.)
Mr. Hudson's last day of work was June 25, 2012, and his last date in service was
July 17, 2012, when he went on unpaid leave. (R. at 38.6). His employment was
terminated on September 8, 2013. (R. at 38.6).
Effective August 1, 2012, Mr. Hudson's medication was changed from Keppra to
Trileptal. On August 3, 2012, two days after the medication change, Mr. Hudson
experienced a "seizure cluster". (R. at 38.8.) According to Mr. Hudson's later
3 testimony, the seizures on August 3, 2012, were the last he experienced. (R. at 15.76
77). On August 7, 2012, Dr. Selvitelli noted that Mr. Hudson switched back to taking
Keppra. (R. at 38.8.) On September 18, 2012, Mr. Hudson saw Jason Aucoin, RN, ANP
C, a certified adult nurse practitioner in Dr. Selvitelli's office at Maine Neurology who
assessed Mr. Hudson to have generalized convulsive epilepsy. (R. at .38.8.) Nurse
practitioner Aucoin noted that the meningioma was unlikely to increase in size and that
as long as the anticonvulsants are effective in controlling Mr. Hudson's seizures, Mr.
Hudson "should not have complications" with regards to the meningioma. (R. at 9.5.3,
38.8.)
In the notes from the same visit, nurse practitioner Aucoin stated that since
switching back to the Keppra, Mr. Hudson has not had any additional seizures. Mr.
Hudson reported that he was "doing well on the Keppra with much less side effects" and
"that he feels almost normal now on the Keppra."(R. at 9.5.3, 38.8.)
The record contains a note from Dr. Selvitelli indicating that Mr. Hudson had
reported experiencing a seizure October 8, 2012, and placing him on a driving
restriction until January 201.3. (R. at 9.63).
On January 28, 201.3, Dr. Selvitelli noted that Mr. Hudson continued to report
"possible seizures" and discussed transitioning to an alternative anticonvulsant, which
Mr. Hudson declined. (R. at 9.56, 38.8.) However, notes from Mr. Hudson's April 2,
2013 appointment with nurse practitioner Aucoin state that Mr. Hudson's "last known
seizure" was when he transitioned off Keppra in 2012, and that Mr. Hudson's reported
symptoms were more consistent with a depression diagnosis than with seizures. (R. at
9.58, 38.8).
4 Mr. Hudson saw Amy McAuliffe, Ph.D., a psychiatric nurse practitioner with the
Department of Veteran's Affairs on February 27, 2013 . She noted that Mr. Hudson
"continues to experience profound disabling symptoms of major depression and
generalized anxiety disorder versus PTSD" and that "Mr. Hudson experiences "severe
depression and anxiety with phobic avoidance of driving." (R. at 38 .8.) As a result of
conducting a psychiatric evaluation of Mr. Hudson on March 27, 2013, Dr. McAuliffe
diagnosed Mr. Hudson with "Major Depression, mod-sev vs. Organic Mood Disorder."
(R. at 38.8.) Dr. McAuliffe noted that the location of Mr. Hudson's meningioma, in the
left frontotemporal region, "can certainly be associated with such symptoms of affect
dysregulation and unpredictability" that Mr. Hudson was experiencing and that there
was a "specific precipitant to [Mr. Hudson's] depressive symptoms," and identified
possible "severe psychological stressors," including vocational, financial and social
stressors. (R. at 38-9.)
On April 16, 2013 , Carlyle Voss, M.D. evaluated Mr. Hudson by interviewing
Mr. Hudson, reviewing his medical records, and reviewing the findings of the Medical
Board discussed below. (R. at 38.9.) Dr. Voss diagnosed Mr. Hudson with Adjustment
Disorder of Adult Life with Mixed Symptoms of Anxiety and Depression. (R. at 38.9.)
Dr. Voss found that Mr. Hudson's seizures were in partial control and that Mr. Hudson
was experiencing "stressors related to illness and related to impairments, inability to
work, [and] financial pressures." (R. at 38.9.) Dr. Voss found Mr. Hudson's current
GAF to be 45, which he characterized as "serious symptoms (emotional liability,
cognitive impairment)."(R. at 38.9.) Dr. Voss's opinion was that: 1) Mr. Hudson's
meningioma caused his seizures; 2) Mr. Hudson experienced significant impairments,
including "sub threshold seizures," due to a combination of the side effects of the Keppra
5 and the direct effects of his meningioma and related seizures; 3) an anticonvulsant other
than Keppra might better control Mr. Hudson's sub threshold seizures without adverse
side effects; 4) Mr. Hudson is not "pervasively depressed" and does not require
antidepressant medication; and 5) Mr. Hudson might be able to drive safely if he were
taking different anticonvulsant medication. (R. at 38 .9 .) Dr. Voss concluded that because
of Mr. Hudson's significant impairments, "even on his best days he could not perform
the essential functions of his job."(R. at 38.9.)
b. Medical Board Findings
The MPERS Medical Board reviewed the record on September 20, 2012, again
on August 22, 2013 in response to Mr. Hudson's Addendum, and a third time on
October 24, 2013, following the hearing. (R. at 38.9. )
On September 20, 2012, the Medical Board found that the record supports the
existence of the benign meningioma. (R. at 38 .9 .) The Medical Board also found that the
record confirmed the existence of seizures, but not of uncontrolled seizures. (R. at 38.9
10). The Medical Board found that there were no functional limitations associated with
Mr. Hudson's brain tumor. (R. at 38.10.) The Medical Board did find that there were
functional limitations to the seizures associated with the tumor, including restrictions
on driving, operating machinery and climbing ladders, but that, because those
restrictions would be lifted after three seizure free months, those limitations were not
expected to be permanent.
On August 22, 2013, the Medical Board found that a diagnosis of adjustment
disorder of adult life as was raised in Mr. Hudson's addendum, was not made until well
after July 17, 2012, Mr. Hudson's last date in service. (R. at 38.10.) The Medical Board
affirmed its earlier determination that the limitations associated with Mr. Hudson's
6 seizures were not permanent because Mr. Hudson had not had a seizure in more than
three months. (R. at .38.10.) In addition, the Medical Board found that Mr. Hudson's
spells were psychogenic, not seizure related and that his brain tumor was stable. (R. at
.38.10.)
On October 24, 2013, the Medical Board decided that none of the new evidence
proved that Mr. Hudson's adjustment disorder existed before his last date in service and
affirmed their determination with regards to Mr. Hudson's brain tumor and seizures. (R.
at .38.10.)
c. Procedural history
Mr. Hudson applied for disability retirement benefits through the Maine Public
Employees Retirement System (MPERS) on August 4, 2012, based on the meningioma
and associated seizures. (R. at .38.3.) On September 26, 2012, the Executive Director's
Designee (EDD) issued a decision denying Mr. Hudson's application. The EDD found
that medical evidence did not support the existence of uncontrolled seizures as of Mr.
Hudson's last date in service, and that there were no functional limitations associated
with the condition of brain tumor that made it impossible for Mr. Hudson to perform
the essential functions ofhisjob as of his last day in service. (R. at .3·8 ..3.) The EDD
found that medical evidence supported the existence of seizures, rather than
uncontrolled seizures, but that the functional limitations associated with seizures were
not expected to be permanent as of July 17, 2012. (R. at 38.3.) Mr. Hudson filed a timely
appeal on October 16, 2012. (R. at 38.3.)
Mr. Hudson filed an addendum to his application on July 1, 2013 along with
supporting medical records, seeking eligibility based upon the condition of adjustment
disorder of adult life with mixed symptoms of anxiety and depression/major depression.
7 On August 26, 2013, the EDD issued a decision finding that the record did not establish
that Mr. Hudson had adjustment disorder of adult life with mixed symptoms of anxiety
and depression/major depression as of his last date of service. (R. at 38.4.) The EDD
also found that the functional limitations previously attributed to Mr. Hudson's seizures
had resolved and were not permanent. (R. at 38 .4.) The EDD affirmed the September
26, 2012 decision.
A hearing was held on September 4, 2013. According to Mr. Hudson's
testimony at the September 4 hearing, he had not experienced a seiz~re since August 3,
2012, but was then experiencing muscle fatigue and pain, dizziness, mental confusion,
sleep disruption, and difficulties with speech, focusing, and keeping his train of thought,
frequent emotional breakdowns, including mood swings, crying and sudden anger
outbursts. (R. at 15.76-77, 38.8.) Mr. Hudson testified that there are no legal
restrictions on his driving, but that he does not feel safe doing so because of the
possibility that he might have another seizure. (R. at 38.8.)
At the hearing, Mr. Hudson argued that the EDD erred when she denied Mr.
Hudson's application based on adjustment disorder of adult life with mixed symptoms of
anxiety and depression/ major depression. He also argued that, under Chapter 501 of
the MPERS rules, see 94-411 C.M.R. ch. 501, he was entitled to disability benefits
because his psychiatric condition arose out of the spells and other symptoms he was
experiencing while still working. On October 30, 2013, after the hearing, and before a
decision was issued, the EDD issued a decision affirming the September 26, 2012 and
August 26, 2013 decisions despite the additional argument provided by Mr. Hudson. On
April 23, 2014, the hearing officer remanded to the EDD for a final decision on the
8 applicability of Chapter 501. On May 6, 2014, the EDD issued an order concluding that
Chapter 501 was inapplicable to Mr. Hudson's case.
A Recommended Decision was issued for comments February 24, 2015 . (R. at
38.4.) On March 12, 2015, Mr. Hudson submitted comments arguing that the EDD
should have followed the Board's decision in a prior disability appeal-that of Paul G.
Jackson. (R. at 38.4.) The hearing officer found that the Jackson appeal was
distinguishable and unpersuasive in the matter at hand. The hearing officer's
Recommended Final Decision was issued August 28, 2015, affirming the determination
of the EDD. (R. at 38.14.) After hearing oral argument, the Board adopted the
hearing officer's Recommended Final Decision on December 16, 2015. It is from the
Board's decision that this appeal was timely taken.
II. Issues on Appeal
Appellant Hudson raises several issues on appeal:
First, he contends that the evidence presented to MPERS compels the
conclusion that he is eligible for disability retirement benefits. He asserts that the
Board ignored the medical evidence, mainly from Dr. Voss and psychiatric nurse
practitioner McAuliffe, as well as his own and his wife's testimony and other evidence
establishing his eligibility for benefits, and failed to consider the evidence of his medical
conditions, separately and in combination with each other.
He asserts that the Board erred as a matter oflaw by failing to follow its rules
contained in Chapter 501 ( 1) of the MPERS rules.
He asserts that the Board failed to follow its own precedent, as reflected in the
decision on the appeal of Paul G. Jackson. See Appeal of Jackson, MPERS Bd. App. No.
2013-007 (Oct. 12, 2013).
9 Appellant Hudson asks that the Board's denial of benefits be vacated and that the
matter be remanded with an order to grant benefits.
Respondent MPERS denies all of the Appellant's contentions and asks the court
to deny the appeal and affirm the Board's decision.
III. Standard of Review
The court's review of an action for administrative appeal is "deferential and
limited." lVatts v. Bd. ofEnvtl. Prat., 2014 ME 91, ~ 5, 97 A.sd 115. The court only
reviews adjudicatory decisions "for abuse of discretion, errors oflaw, or findings not
supported by the substantial evidence in the record." Wyman v. Town ofPhippsburg, 2009
ME 77, ~ 8, 976 A.2d 985. The court will "not vacate an agency's decision unless it:
violates the Constitution or statutes; exceeds, the agency's authority; is procedurally
unlawful; is arbitrary or capricious; constitutes an abuse of discretion; is affected by bias
or an error oflaw; or is unsupported by the evidence in the record." Kroeger v.
Department ofEnvironmental Protection, 2005 ME 50, ~7, 870 A.2d 566.
The party seeking to vacate the agency's decision bears the burden of persuasion.
Town ofJay v. Androscoggin Energy, LLC, 2003 ME 64, ~ 10, 822 A.2d 1114. If the
agency's decision was committed to the reasonable discretion of the agency, the party
appealing has the burden of demonstrating that the agency abused its discretion in
reaching the decision. See Sager v. Town ofBowdoinham, 2004 ME 40, ~ 11, 845 A.2d
567. "An abuse of discretion may be found where an appellant demonstrates that the
decision maker exceeded the bounds of the reasonable choices available to it,
considering the facts and circumstances of the particular case and the governing law."
Id. Ultimately, the petitioner must prove that "no competent evidence" supports the
agency's decision. Seider v. Board ofExaminers ofPsychologists, 2000 ME 206, ~ 9, 762
10 A.2d 551 (citing Bischoffv. Board ofTrustees, 661 A.2d 167, 170 (Me. 1995)). The mere
fact that there is "[i]nconsistent evidence will not render an agency decision
unsupported." Id.
IV. Discussion
a. Burden to Prove Eligibility for MPERS Disability Retirement Benefits
By statute, a member of the State Employee and Teacher Retirement Progr~m,
as Mr. Hudson was, becomes eligible for disability retirement benefits if the person
becomes "disabled" while in service. 5 M .R.S. § 17924(1). To be considered "disabled,"
an MPERS member must be mentally or physically incapacitated, such as that the
incapacity renders it impossible to perform the duties of the member's job and is
expected to be permanent. Id.§ 17921(1). Mr. Hudson's brief acknowledges that he
has the burden of persuasion to prove by a preponderance of the evidence that he is
eligible for benefits. See Douglas v. Board of Trustees, 669 A.2d 177, 179 (Me. 1996). See
also 94-411 C.M.R. ch. 507, § 2(A); id. ch. 509, § 2(A).
b. Applicability ofMPERS Rules Chapter 501
A threshold question is whether the Board applied the wrong standard in
evaluating Mr. Hudson's claim for disability retirement benefits. Mr. Hudson points to
an MPERS rule that permits benefits to be awarded, not only if the disability existed at
the time the member last worked, but also "arose out of or was substantially aggravated
by the illness or injury for which the leave was granted." 94-411 C.M.R. ch. 501, § 1. 1
1 The section reads in full as follows:
Any active member of the Maine State Retirement System who is in service may apply for a disability retirement benefit. Included in the category of active members are persons who are 'vVorking at the time of filing a disability retirement application, or who are on a leave of absence with pay from which retirement contributions continue to be deducted, or who are on a leave of
11 Noting the evidence that his psychiatric condition arose out of the meningioma
condition that existed when he last worked in 2012, Mr. Hudson contends that applying
the rule of Chapter 501 compels a decision in his favor.
MPERS's argument is two-fold. First, MPERS points out that Chapter 501 does
not apply to Mr. Hudson. According to its basis statement, Chapter 50l's application is
limited to "persons who were members of the M.S.R.S. prior to July 1, 1977." 94-411
C.M.R. ch. 501, § 4. MPERS additionally points out that even if Chapter 501 were
deemed applicable to Mr. Hudson's claim, the governing statute, 5 M.R.S. § 17924, is
plainly inconsistent with the rule and necessarily would preempt the rule. Both points
are valid, and the court defers to the agency's interpretation of regulations promulgated
by the agency. Imagineering, Inc. v. Superintendent ef Ins. , 593 A.2d 1050, 1053 (Me.
1991); Kennebec County v. Me. Public Employees Retirement System, 2014 ME 26, ~ 33, 86
A.3d 1204.
The hearing officer and the MPERS Board did not err in deciding that the
Chapter 501 standard for a covered disability does not apply.
c. The Respondent's Evaluation of the Evidence
As a preliminary matter, it must be noted that, because Mr. Hudson had the
burden of persuasion, the MPERS Board's decision to deny his claim for benefits based
on his failure to meet his burden cannot be overturned unless the record compels the
conclusion that he did prove that he is entitled to benefits. to the contrary. See
Anderson v. Nlaine Public Employees Retirement System, 2009 ME 134, ~ 3, 985 A.2d 501
absence without pay for illness or injury or recuperation from illness or injury, providing that the disability which is the basis for the member's application existed at the time the member commenced the leave of absence or arose out of or was substantially aggravated by the illness or injury for which the leave was granted.
12 ("'When an appellant had the burden of proof before the agency, and challenges an
agency finding that it failed to meet that burden of proof, we will not overturn the
agency fact-finding unless the appellant demonstrates that the administrative record
compels the contrary findings that the appellant asserts should have been entered.")
Here, a review of the evidence before the hearing officer and the MPERS Board
leads the court to conclude that, although there certainly was evidence that could have
supported a decision in favor of Mr. Hudson's claim, had the hearing officer and the
Board viewed and weighed the evidence differently, the evidence did not compel the
hearing officer or the Board to find in his favor.
The evidence showed that at the time Mr. Hudson left the State's employ, he
was at least temporarily unable to perform his duties as a result of the benign brain
tumor and associated seizures. Based on evidence that Mr. Hudson's seizures were
being treated with medication, and that he had not experienced any seizures since
August 3, 2012, shortly after he last worked for the State, MPERS decided that he had
not proved that the disabling condition that caused him to leave work was expected to
be permanent.
Mr. Hudson argues that the functional limitations caused by the risk of seizures
amount to a permanent and disabling condition. The evidence is admittedly
contradictory as to whether Mr. Hudson experienced any seizures after August 3, 2012,
in part because the evidence is based on his own reports to health care providers.
However, the evidence does not compel a finding that either the meningioma itself or
the seizures that were associated with it have caused any permanent incapacity or
functional limitation.
13 \tVhile the Board did find that Mr. Hudson had functional limitations that
restricted him from performing his job immediately after his episode at work on June
26, 2012, the Board found that these limitations were expected to end within a matter of
months, after which Mr. Hudson would be able to perform all necessary aspects of his
job, including driving. Plainly, the weight of the evidence suggests that the seizures
are being controlled by medication. Thus, the evidence did not by any means compel a
finding that the risk of seizures is such as to impose any permanent functional
limitation.
Mr. Hudson contends that the board erred by finding that Mr. Hudson did not
suffer from adjustment disorder and major depression at the time of his last day in
service and is therefore ineligible for disability benefits based upon that diagnosis . He
contends that his depression and anxiety resulted directly from his brain tumor and
seizure disorder, and that MPERS erred in not finding that the depression and anxiety
were disabling conditions present on Mr. Hudson's last in service date.
However, as the State points out in response, the applicable statute requires that
the disability exist as of the claimant's last day "in service," meaning his last day of work
for which he was paid, see Douglas v. Board efTrustees, supra, 669 A.2d at 179, and the
evidence does not compel a finding that Mr. Hudson's psychiatric disability, assuming it
is a disability within the meaning of the MPERS statutes, existed as of July 2012. The
first diagnosis by a medical professional of his psychiatric condition dates to February
201.3, seven months later.
Although Mr. Hudson's own testimony and other evidence could have supported
a decision in his favor, neither the hearing officer nor the Board was compelled to give
his evidence the weight that he claims it should have received. Because the evidence in
14 the record does not compel a decision contrary to the decision on appeal, Mr. Hudson's
contentions regarding the evidence do not justify overturning the Board's decision.
The court agrees with the Board that the issues involved in the prior decision in
the appeal of Paul G. Jackson are distinguishable from the issues in this case. In the
Jackson appeal, the issue was whether the claimant's incapacity resulting from a knee
condition was expected to be permanent, and the claimant's own primary care provider
testified that it was permanently disabling. The evidence in this case is different, and
the Board did not err by coming to a different conclusion in this case.
Lastly, the court also agrees with the Board that this case must be decided under
the applicable statutory provisions and that the principles of common law and equity
that the Petitioner invokes cannot be applied in a manner contrary to the statutes.
V. Conclusion
For the reasons given above, it is hereby ORDERED AND ADJUDGED as
follows:
l. The Petitioner's appeal is denied. The decision of the Respondent MPERS
Board of Trustees to deny Petitioner's claim is affirmed. Judgment is hereby entered for
the Respondent, with recoverable costs, if any, as the prevailing party.
Pursuant to M.R. Civ. P. 79( a), the Clerk is hereby directed to incorporate this
order by reference in the docket.
Dated 8 September 2016
A. M. Horton Justice, Superior Court