Ulibarri v. City & County of Denver (742 F. Supp. 2d 1192, 2010)

ORDER ON PENDING MOTIONS

MILLER, District Judge.

This ease is before me on the Objections (ECF Nos. 80 and 113) to orders entered by Magistrate Judge Michael J. Watanabe, the Motion for Summary Judgment (ECF No. 197) filed by the City and County of Denver and the individual Defendants in their official capacities (“Denver”), the Motion for Summary Judgment (ECF No. 198) filed by the individual Defendants in their individual capacities, the Motion to Strike (ECF No. 224) filed by Plaintiffs, and the Motion to Strike Exhibits (ECF No. 243) filed by Defendants. I have reviewed the parties’ written arguments and the evidence submitted with their briefs and conclude that oral argument is not required. For the reasons that follow, the Objections to the orders of Magistrate Judge Watanabe are overruled. The Motions for Summary Judgment and Motions to Strike are granted in part and denied in part as set forth below.

Background

This is a civil rights and disability rights case concerning the arrest and detention of several deaf individuals by the members of Denver’s Police and Sheriff Departments and the practices of those entities with respect to persons with disabilities. The persons arrested and detained are Shawn Vigil, now deceased and represented here by his Estate, Plaintiff Roger Krebs, and Plaintiff Sarah Burke. Plaintiff Debbie Ulibarri is the mother of Mr. Vigil. Plaintiffs Colorado Cross-Disability Coalition (“CCDC”) and Colorado Association of the Deaf (“CAD”) assert claims seeking injunctive and other equitable relief. The Defendants are Denver and several of its employees, including supervisory members of the Sheriff and Police Departments.

The Denver Sheriff Department operates two facilities at issue in this litigation: the Pre-arraignment Detention Facility (“PADF”) and the Denver County Jail (the “Jail”). Medical services are provided at these facilities by employees of the Denver Health and Hospital Authority (“DHHA”), a separate and independent governmental entity not a party to these proceedings.

I will first review the backgrounds and events involving the three persons detained.

Shawn Vigil

Vigil became “profoundly” deaf at the age of two as a result of a severe bacterial infection. He attended the Colorado School for the Deaf and Blind in Colorado Springs, Colorado, where he communicated in large part through American Sign Language (“ASL”). According to one of Vigil’s school records from 2004, “Shawn’s primary mode of communication is sign language.” Exh. 22 to Plaintiffs’ Response, ECF No. 229-23. He spent time with his family in Denver on weekends and vacations. His family are all hearing and know little sign language. He communicated with them through gestures and written notes; however, his writing was sometimes difficult for his family to understand. School records from 2004 indicate that he read at approximately a second grade level. Exh. 22 to Plaintiffs’ Response, ECF No. 229-23. He could read lips for simple words like “Hi” or “good bye” but otherwise was unable to read lips. Vigil lived mostly with his grandparents, whose home had a telephone device for the deaf (“TDD”), which uses relay systems to permit deaf individuals to communicate with others over the telephone. Vigil’s mother denied that he had any history of depression or of anxiety or treatment for those conditions. However, his school records reflect that he had some behavioral issues at school and received some counseling in 2000. Exh. 22 to Plaintiffs’ Response, ECF No. 229-23.

Vigil was arrested by Denver police on August 17, 2005 and charged with second degree kidnapping, second degree sexual assault, and criminal attempt. At the time of his arrest, he was twenty two years old. He had no previous arrests or detentions.

Vigil was first taken to the PADF on the day of his arrest, August 17, 2005. He was seen by nurse Robert Kelly Costin for a routine initial medical assessment. The document used for such screening is titled “Denver Sheriff Department Medical Services — Admission Assessment” and contains a listing of categories, including Drug Allergies, Mental Health History, etc. Nurse Costin had no memory of his interaction with Vigil, but the form he filled out regarding Vigil provides as follows:

Mental Health History: Denies hx/current problem

Mental Status: Appropriate / oriented Behavior: Calm/cooperative

Additional: IS DEAF. DOES NOT READ LIPS. DOES COMMUNICATE BY WRITING. CLAIMS NEGATIVE FOR ALL MEDICAL PROBLEMS, IN WRITING. HOUSED ALONE FOR THIS REASON.

Crum Aff. Attach. 1, Exh. A-6 to Denver’s Mot. for Summ. J„ ECF No. 197-9.

Nurse Costin testified in his deposition that his usual practice is to ask the detainee if he has a mental health problem. If the detainee reports a current mental health problem or appears to need further screening, Nurse Costin refers to the inmate to a psychiatric nurse, available only during daytime hours, for an in-depth mental health screening and evaluation for medications. Costin testified that the screening process is important in determining whether a detainee is suicidal but also testified that in routine cases he goes through his screening process in approximately twelve to fifteen seconds.

Nurse Costin explained that his usual practice for getting information from deaf detainees is to write out the questions for the forms for the detainee to read. He usually recommends housing a deaf detainee with another cellmate so the cellmate can get attention for the deaf detainee’s needs. He does not specifically recall why he recommended housing Vigil alone, although he stated it was possible that a deputy made this suggestion for safety reasons.

Vigil had an initial court appearance before a Denver County Court Judge on August 18, 2005 in Case No. 05F04992, and his bond was set at $100,000. A sign language interpreter was provided at the hearing and Vigil was represented by a public defender. Vigil’s next court hearing was his second advisement on August 24, 2005. Again, he was provided with a sign language interpreter and had a public defender.

While at the PADF, Vigil used a TDD to call his grandparents’ house, where he communicated with his mother, Plaintiff Ulibarri. She told him that his bond was too high and she could not get him released. He expressed concern about how long his sentence would be. At some point while at the PADF, Vigil had another inmate call his grandparents’ home for him. The inmate spoke to Vigil’s brother and relayed something to the effect that Vigil was having a hard time, did not understand what was going on and wanted a lawyer.

Vigil was transferred from the PADF to the Jail on August 25, 2005. At the time, the Jail received an average of 50 inmates each morning. Routine processing by the deputy sheriffs included a search of each inmate, a shower and uniform for each inmate, an individual meeting with a deputy sheriff for the purpose of classification and cell assignment, and a medical screening. Initial housing decisions are made by the classification officer, but then sometimes adjusted after the medical screening. The Jail has mental health units for inmates with mental health issues. Deputies do not have access to an inmate’s medical screening or other medical records.

Vigil met with Deputy Sheriff Randy Coleman, a classification officer. The form completed is titled “Denver County Jail, Classification Intake Questionnaire.” Exh. A-12 to Mot. for Summ. J., ECF No. 197-15. It contains a list of questions with boxes to check “Yes” or “No.” Among the questions asked are: “Have you ever attempted suicide?”, “Do you want to see the medical staff?”, “Do you claim a disability?”, “Are you a U.S. citizen?” On Vigil’s form, these questions are marked “No” despite that fact that Vigil was deaf and was, in fact, a U.S. citizen. On another question, “Did you have access to a phone?”, both answers are crossed out and a hand written notation of “Deaf’ is added. There is a section for the deputy to fill out regarding observations, specifically whether the inmate appears “injured, disabled, sick, anxious, withdrawn, hostile, depressed, under the use of alcohol/drugs, aggressive, confused, suicidal.” None of these was circled on Vigil’s form. Vigil signed the form.

Deputy Coleman’s usual practice is to read aloud the questions to the inmate and note the answers. In the past he has interviewed deaf inmates and his practice has been to give the form to the inmate to read and point to the answers. He does not recall his screening of Vigil and could not say how he would have ensured that Vigil understood the questions. Deputy Coleman’s practice then is to give the inmate the Jail’s inmate handbook, which explains information about the Jail, including how to submit a “kite,” or a written request, to deputies. Deputy Coleman does not explain the handbook. Deputy Coleman was not aware of any policy regarding when and how to bring an ASL interpreter to assist with the screening process and there is no evidence that an interpreter was provided during Vigil’s screening. Deputy Coleman also does not recall any special training regarding intake procedures to use when dealing with deaf inmates.

Vigil’s form from the medical screening, the “Denver County Jail Health Assessment,” contains space for the nurse to list current complaints, allergies, chronic diseases, and medications. Crum Aff. Attach. I, Exh. A-6 to Denver’s Mot. for Summ. J., ECF No. 197-9. There are also boxes to check for family history, social history, assessment, physical exam, and other areas. Id. Vigil’s form is essentially blank other than a recording of Vigil’s temperature, pulse, and blood pressure, even where there is a box to check for “none” or “no.” Id. Similarly, there is a form for the mental health screening, which is completely blank other than Vigil’s name and inmate number. Id.

Vigil was assigned a classification code that all disabled or special needs inmates receive; inmates may receive more than one classification code. He was assigned to administrative segregation. This is a non-punitive classification consisting of confinement to a single cell, which may be imposed for the inmate’s safety. An inmate may be classified in administrative segregation if he is unable to live in the general population for any reason. Aside from Vigil’s deafness, which would have made him vulnerable in the general population, other factors that may have contributed to his placement include his youth, lack of previous experience in the criminal justice system, and the fact that he was charged with a sex assault. Vigil was housed in Building 6 of the Jail, which houses the special management inmates, including those classified as administrative segregation.

In general, inmates in administrative segregation in 2005 retained the same privileges as those in the general population, including 45 minutes of out-of-cell and recreation time, television time, library time, access to telephones and showers, and the opportunity to be a tier clerk. There is a TDD at the Jail. However, the TDD is not in the same place as the other telephones and an inmate must specifically request to use the TDD, which is located in the sergeant’s office. The inmate handbook does not provide information about the TDD. It is unclear, then, how an inmate who was unable to communicate with deputies would know or learn of the existence of the TDD. There is no evidence that Vigil used the TDD while he was at the Jail. In addition, there is a factual dispute about whether the televisions in Building 6 had closed-captioning in 2005 or whether staff is aware of the availability of closed-captioning.

Inmates had opportunities to interact with other inmates during out-of-cell time and recreation time, as well as with inmate tier clerks and deputies and medical staff. Deputies were supposed to make rounds twice an hour and nurses were scheduled to make rounds three times a day to distribute medication and to look in, albeit briefly, on other inmates. Psychiatric nurses were on site seven days a week; physicians and psychiatrists were available on call at any time. Inmates could submit kites to request medical attention or make other requests. Vigil at times had a cellmate while he was at the Jail but was frequently moved and other times was alone in his cell. As discussed further below, the Jail also had available ASL interpreters; however, there is no evidence that there was a written policy in 2005 regarding interpreters or that the deputies and staff were generally aware of the availability of interpreters or how to obtain this service for inmates. There may have been deputies who knew some sign language but it is unclear whether any of them came into contact with Vigil. In general, individual deputies testified that they would communicate with deaf inmates through written notes. The deputies working on the tier while Vigil was at the Jail whose depositions were taken did not recall having any communication with him.

In addition, a deputy would contact each inmate in Building 6 once a week to ask two questions: “Are you having any problems?” and “Do you want to see the administrative review board?” Although the deputy’s notes for August 28, September 11, September 18, and September 25, 2005 with respect to these questions show that Vigil responded “no” to the first question, there is no evidence regarding how the information was obtained and a factual dispute regarding whether the deputy’s communication with Vigil was effective. The deputy, however, did note “yes” to the second question, i.e., that Vigil wanted to see the Administrative Review Board (“ARB”), in notes for August 28, September 18, and September 25, 2005. Vigil was not seen during the week of August 28 because of time constraints and volume. It is unclear why he did not meet with the ARB during the week of September 18; there is a notation in the ARB’s records next to his name saying “Declined?” Vigil’s classification was not changed while he was at the Jail.

In addition, there was a practice at the time for a member of the nursing staff to make an additional round each week to see all the inmates housed in the special management area of Building 6. Forms were filled out regarding visits with Vigil on August 27, September 3, September 10, and September 24, 2005. No problems were noted but there is no evidence regarding how communication with Vigil was conducted or whether it was effective.

Vigil had a preliminary hearing on September 16, 2005, which was scheduled to be continued on October 7, 2005. As before, a sign language interpreter was provided and Vigil was represented by a public defender.

No one from Vigil’s family visited him while he was at the PADF or at the Jail. It does not appear that he had any other visitors either. His mother attended his court hearings and had one opportunity to interact with him after a hearing as he was being escorted to an elevator. He appeared to Ulibarri to be in distress and cried at one point. Ulibarri did not inform anyone at the Denver Sheriff Department to let them know of concerns about her son or that he was a suicide risk. She called the Jail once to find out why she had not heard from Vigil and was told that the Jail did not have any equipment for him to use. Vigil was in the Jail on his birthday, August 29.

Around 9 a.m. on the morning of September 27, 2005, another inmate was out of his cell and found Vigil hanging. He informed the deputies on duty, who immediately summoned medical staff and supervising officers. Vigil was cut down from his noose and nursing staff arrived quickly and began CPR. An ambulance was called and Fire Department paramedics arrived around 9:15 and continued CPR. Vigil was transported to the hospital but did not survive his injuries. Vigil died on October 1, 2005; the cause of death was complications from ligature hanging.

Earlier in the day, a nurse had made a round around 6 a.m. Breakfast was served to inmates in their cells. It is unclear when the last round had been made; a deputy on duty claims that he made a round past Vigil’s tier at around 8:25 a.m. but the logbook does not document an entry at that time. On the day of his suicide, Vigil was housed in a cell that was the second farthest away from the officers’ cage (seventeenth of eighteen), although his classification required that he be housed near the cage.

An internal affairs investigation was done, which focused on whether the Sheriff Department personnel had followed Department policies and procedures. The investigation appears to have examined primarily the events following the discovery of Vigil’s hanging. A comment was received from the Office of the Independent Monitor suggesting that more investigation be done regarding whether there were any warning signs that Vigil was a suicide risk. It does not appear that any further investigation was done in this regard.

Plaintiff Ulibarri testified in her deposition that Vigil sent her a letter while he was incarcerated. Ulibarri recalled that the letter contained a picture of a “sad face” and said that Vigil loved and missed his family. There is no evidence that Vigil was depressed, suicidal or had attempted suicide before being incarcerated.

At the time of Vigil’s incarceration, the Jail was at 140-150% capacity with no corresponding increase in staffing levels. During this time period there was a 177% increase in assaults on staff and the critical incidents requiring the use of force increased 120% from the previous year.

Plaintiff Sarah Burke

Plaintiff Sarah Burke has been deaf since birth. She communicates using ASL and with hearing individuals through writing and gestures. Burke uses email and text devices. If she needs to see a professional, such as a physician, or has an important event, she uses an ASL interpreter. She completed high school and took some community college courses using an interpreter. She previously worked at Wal Mart as a stocker and would communicate with her coworkers using notes. Burke is married and has children. Her husband is also deaf but her children are hearing. The family communicates using ASL.

Burke was charged with a misdemeanor child neglect charge in Case No. 2004M201587 in Arapahoe County, Colorado. She pleaded guilty to the charge and received a twelve-month deferred sentence which required her to complete parenting classes. Because she failed to attend some of the classes, a warrant was issued for her arrest on June 19, 2007. On August 29, 2007, Denver police officer Joseph Merino and another officer were at the Burke home to do a welfare check on the family. The officers determined the living conditions in the home were adequate but Officer Merino called to check on any outstanding warrants for Burke or her husband. He learned of the Arapahoe County warrant and arrested Burke.

Burke has Type I diabetes. When the police officers arrived, Burke was cooking dinner for her family. She had given herself an insulin shot around 4:30 p.m. but had not yet eaten.

During the welfare check and arrest, Officer Merino communicated with Burke by writing notes and by having her oldest child do sign language interpreting. Burke testified in her deposition that she wrote him a note saying not to use her child to interpret and that she wanted a sign language interpreter. Officer Merino denies that Burke or her husband asked for an interpreter. Burke asked in writing what was going on and an officer wrote “contempt of court.” Burke testified that she did not understand what that meant.

Officer Merino stated that it is his usual practice to permit persons arrested to bring their medications with them upon request. However, Burke and her husband provide evidence that her husband attempted to give Burke’s insulin and other diabetes medication and aids to Burke or the officers and the officers refused to permit these aids to be taken. They also did not permit Burke to bring her “Sidekick,” a device that can be used to send text messages.

Burke was transported to a Denver police substation. While there, a police officer approached her and used some sign language. She could not effectively respond, however, because she was handcuffed and was unable to communicate that she needed to use the restroom and needed food. She was then taken to the PADF. She arrived at the PADF at approximately 9:19 p.m. on August 29, 2007. The booking process at the PADF at the time involved a deputy sheriff collecting relevant information from the detainee or arresting officer or documents, including identifying information and medical issues. A charge slip is given to the detainee showing the charge and bond amount; the detainee is also given a copy of the charges upon which they are being held. The detainee is then screened by medical staff.

Burke testified in her deposition that upon arrival at the PADF, as soon as she received writing materials, she wrote that she needed a sign language interpreter, to eat, and to see a doctor. No sign language interpreter was provided. Burke was seen by a nurse for a medical screening at approximately 10:00 p.m. The “Denver Sheriff Department Medical Services — Admission Assessment Record” notes the following:

CLIENT IS DEAF. CLAIMS IDDM. WRITES WELL/LEGIBLY.

IN HER WRITING, SHE SAYS SHE TOOK INSULIN AT APPROXIMATELY 16:30 PRIOR TO DINNER AND THEN WAS ARRESTED BEFORE SHE COULD EAT. CLAIMS INSULIN & “A MED FOR PROTECTING HER KIDNEYS.” CALLED DR. CRUM RE: BS. TOLD TO GIVE 5 UNITS REG INSULIN NOW WITH SACK LUNCH AND PROCEED AS WE NORMALLY DO PER PROTOCOL.

Wilson Aff. Attach. 6, Exh. A-7 to Denver’s Mot. for Summ. J., ECF No. 197-10.

Burke testified that she again asked for a sign language interpreter but the request was ignored. The nurse tested Burke’s blood sugar; Burke thought that the nurse had difficulty with the blood sugar monitor and that the monitor was old. According to Burke, she saw that the monitor read a blood sugar level of 28. The medical form shows that the result was 377. Although the nurse noted in the form that he was directed to give Burke a sack lunch, Burke states that she did not receive any food and was told that she would not receive a meal until the 4:30 a.m. breakfast. She asserts that she also wrote to the nurse that she did not want insulin because she needed food and more insulin would make things worse.

Burke posted a bond on August 29, 2007 at 10:36 p.m. Burke was released from the PADF at approximately 2:00 a.m. At her release, Burke again requested a sign language interpreter in writing, but the deputies indicated that she needed to sign some paperwork and that she could go. She was given the opportunity to use a TDD. However, Burke states that the equipment did not work. Moreover, her home does not have a TDD. She also requested assistance from the officers in helping her to contact her husband but they did not help her other than to show her the TDD. She was given bus tokens by a deputy sheriff. Although her husband had called the facility to say that he was on his way to pick her up, that message was not relayed to Burke. There is a waiting area in the lobby of the facility. Burke did not notice it and attempted to get herself home on her own. She found a light rail station but the trains were not yet running. She accepted a ride from a passerby, who then wrote her a note saying they would “have fun.” She managed to get out of the vehicle and got herself to a light rail station. Trains were running at this point and she returned home, arriving at approximately 5:30 a.m. She testified that she began experiencing symptoms of hypoglycemia at the police station that worsened through the night.

Plaintiff Roger Krebs

Plaintiff Roger Krebs has been deaf since he was eighteen months old. He communicates using ASL with his family; his children are hearing. He can communicate in writing but uses simple words and if the writing is too long he does not understand it. He does not lip read. He took some college classes at a school for the deaf. He is currently employed at Fort Carson; his job is to open UPS deliveries and distribute them. He communicates with his supervisor through notes or with the assistance of a coworker who knows some sign language. He communicates with his coworkers using notes or gestures but states that his job is routine and simple and requires little in the way of communication. If there is a workshop or training his employer arranges for a sign language interpreter. He previously worked at the Air Force Academy as a library tech fixing book bindings. He has a computer at home and uses email.

Krebs was arrested by Denver police on March 29, 2007 at approximately 10:40 p.m. He was at the Greyhound Bus Station in Denver when a security guard told him that he had to move. According to Krebs, he was sitting on the floor charging the battery on his “Sidekick” device. A guard came up to him and gestured for him to move. Krebs indicated he is deaf. The guard tried to grab his Sidekick and Krebs pulled it back away from him. The guard then grabbed Krebs’ neck and Krebs bit him because he was being choked. The security guard’s version of events differs somewhat. According to the security guard, he wrote Krebs a note saying he had to move but Krebs refused to move. The security guard then tried to move Krebs and Krebs bit him. It is undisputed that there was a scuffle. Krebs testified in his deposition that the guard pushed him down and pounded his head. At some point, Krebs fell and injured his ankle. The security guard subdued him and handcuffed him tightly.

Another security guard and a police officer came over. The officer tried to stand Krebs up but he kept falling because of his injured ankle. Krebs was taken to a security room at the bus station. The police officer noticed that the handcuffs were too tight and the cuffs were loosened. The police officer then gave Krebs a document to read but Krebs could not read it because his glasses had been knocked off during the scuffle. Even after the glasses were retrieved they were smudged. The police officer charged Krebs with municipal ordinance violations of disorderly conduct, assault and trespass. Krebs wrote a note requesting a sign language interpreter but the officer did not respond. Krebs showed the officer that his foot was purple and swollen and the officer called an ambulance.

Krebs was taken to the hospital, treated for a sprained ankle, and given crutches. At the hospital he was assisted by a sign language interpreter. After treatment, however, he was taken to the PADF and was not provided a sign language interpreter there despite his request. Records show that he arrived at the facility at approximately 3:27 a.m. on March 30, 2007 and was seen by a nurse at approximately 4:30 a.m. The “Denver Sheriff Department Medical Services — Admission Assessment Record” notes that Krebs is “deaflmute” but should request medication “through writing,” that he was on crutches because of a sprained right ankle, and that he “will need to write to communicate or signing interpreter.” Wilson Aff. Attach. 3, Exh. A-7 to Denver’s Mot. for Summ. J., EOF No. 197-10. Krebs was housed alone at the PADF because of his deafness and because he had crutches, which could be used to cause injury to him or to others. Krebs was not allowed to keep his “Sidekick” with him pursuant to a general policy at the PADF of prohibiting all cell phones and pagers. He states that he did not understand why he was in jail and wanted to resolve whatever the problem was.

Krebs was arraigned at the County Court of the City and County of Denver on the same day, March 30, 2007. According to the court records, he pleaded guilty to the three counts. The judicial officer’s notes provide “Def. is deaf. But can read, advised of rights in writing and plead guilty. 1 day CTS.” Exh. A-2 to Denver’s Mot. for Summ. J., ECF No. 197-3. Krebs asserts that at the hearing he wrote that he wanted a sign language interpreter but instead was given a written advisement of his rights. He states that he pleaded guilty by circling “guilty” on a piece of paper. He did not understand what was going on but knew that he should not have bitten the security guard. He was told that he if wanted a sign language interpreter he would have to wait three days for another hearing but if he pleaded guilty he could be released immediately. Krebs and the judicial officer communicated by writing notes back and forth. A document in the court file contains the following colloquy:

[Handwriting 1] Sir:

You are charged with Disturbing the Peace, Assault and Trespass. Do you wish to Plead guilty or not guilty? [“guilty” is circled].

[Handwriting 2] Because of disobey therefore luck of communication. [Handwriting 1] Anything else you want to tell me or any questions?

[Handwriting 2] Yes yellowshirt so hard pull out of my neck tight choke even can’t understand of communication [Handwriting 1] 1 day credit time served. You will be set free.

[Initials]

[Handwriting 2] OK thanks your honor!

Exh. A-2 to Denver’s Mot. for Summ. J., ECF No. 197-3. Krebs was released from the PADF at 7:00 p.m. that day.

Denver’s Policies and Training

Denver has made sign language interpreters available 24 hours a day seven days a week upon request by the Police Department and Sheriff Department since the 1990s. Training and arrangements for sign language interpretation for the Sheriff Department are provided by Lori Kosinski. Ms. Kosinski sends written notice to the Police Department, Sheriffs Department and the Denver County Court explaining how to obtain sign language interpreter services. There is now a written policy regarding the availability of interpreter services, although it does not appear that such a document existed in 2005. Ms. Kosinski has held numerous meetings with police and sheriff personnel regarding deaf access issues at the jail and with police.

Ms. Kosinski provides a two-hour session at the Sheriff Department training academy covering topics such as how to obtain and work with a sign language interpreter, terminology about communication with deaf people, descriptions of the deaf and hard of hearing communities, recognizing deafness, and types of communication modes. Written materials are also provided. She mentions the Americans with Disabilities Act but does not specifically train on its requirements. She advises that an ASL interpreter is the best way to communicate with deaf inmates and that law enforcement officers should not assume that writing is an effective means of communication. She also does not advise law enforcement officers to rely on children to interpret for deaf individuals.

In general, the PADF and Jail do not have any policies regarding how to determine and document a deaf inmate’s preferred means of communication. There is no policy regarding saving notes passed between deaf inmates and deputies or staff. None of the employees who had interactions with the detained Plaintiffs had a method or practice of ensuring that written or other communication with a deaf inmate was effective, and the representatives of Denver, other than Ms. Kosinski, were unaware of any training in this regard. The deputies interviewed generally were unaware that they could not necessarily rely on a deaf inmate’s ability to read or write in communicating with that inmate. No special training is provided to intake deputies regarding screening or classification issues with deaf inmates. There is no mandatory ongoing training regarding deaf inmate issues, although sign language instruction is offered to interested law enforcement officers and staff. While some deputies may know some sign language, there is conflicting evidence as to whether there is a list of such deputies as an available resource.

There are two TDDs at the PADF: one in the sergeant’s office and one in the lobby. There is evidence that there is a sign posted at the PADF informing inmates of the TDD. Inmates at the PADF have access to a telephone twice daily, including to the TDD. A videophone for deaf inmates was installed at the PADF in 2008. There are no televisions at the PADF. As noted above, the Jail has a TDD in the sergeant’s office. There is no specific policy regarding how deaf inmates would be informed of the availability of accommodations for communication, such as the TDDs or sign language interpreters, and the Jail’s 2005 inmate handbook does not reference them.

The Sheriff Department, and the Jail specifically, have suicide prevention policies and deputies were expected to know and follow them. The Jail’s general post order, which is undated, notes that high risk periods include after booking, after receiving bad news, including the prospect of or imposition of a long sentence, court hearings, or after suffering some type of humiliation or rejection. Romero Aff. Attach. 6, Exhibit A-5 to Denver’s Mot. for Summ. J., EOF No. 197-8. The policy advises that inmates displaying unusual behavior should be monitored and housed with another resident if possible. Id. The policy further notes that “making rounds and logging rounds are essential.” Id. Officers are reminded that suicides may be prevented if officers are caring and that many inmates “just need someone to talk to.” Id. Officers are warned that if they ignore obvious signs of suicidal intent they could be legally liable if the inmate commits suicide. Id. The Sheriffs Department Order Number 5410.1, effective date February 24, 1997, recites that “[i]t is the policy of the Denver Sheriff Department that all staff responsible for inmate supervision are trained in the implementation of a suicide prevention program.” Romero Aff. Attach. 6, Exhibit A-5 to Denver’s Mot. for Summ. J., EOF No. 197-8. The Order identifies signs of a suicidal inmate, including statements regarding suicidal intent or history, depressed appearance or discussion of recent losses, physical indications of past suicide attempts, a significant sentence or general despondency over his charges or case. Id. The Order provides that the intake process should include a screening for suicidal inmates and that medical staff will determine appropriate housing and referrals. Id. Procedures for suicide watch are set forth, as are procedures for responding to a suicide attempt. Id.

Deputies are trained in suicide prevention at the academy, although there is no ongoing or additional training other than what is contained in the written policies. There is no specific or different training regarding suicide prevention for deaf inmates. Deputies are trained and expected to know that suicide is a particular risk at jails and detention facilities, and that feelings of isolation or seclusion can increase the risk.

One deputy responsible for Vigil whose deposition was taken showed that he knew that high risk periods included holidays, booking and court dates, sentencings, and after getting bad news from home and family. He also knew of warning signs, such as withdrawal. Another deputy who was on duty on Vigil’s tier could not name risk factors when asked in his deposition.

Representatives of the Sheriff Department stated that the mental health screening process is an important aspect of suicide prevention. Jail deputies in general do not have information about mental health needs of inmates or access to their mental health or medical records. They also do not generally know about an inmate’s charges or potential sentence or personal information such as birthdays.

DHHA provides nursing staff on site at both the PADF and the Jail and has physicians and psychiatrists available on call. DHHA trains deputies at the academy regarding the proper response to inmate medical problems and how to recognize common acute presentations.

In the Second Amended and Supplemental Complaint (ECF No. 48), which governs at this time, the following claims are asserted: (1) violations of Section 504 of the Rehabilitation Act, against Denver; (2) violations of the Americans with Disabilities Act (“ADA”) against Denver; (3) 42 U.S.C. § 1983 claim asserted by Plaintiff Ulibarri and the Estate for violations of the Eighth and Fourteenth Amendments against all Defendants (individual and official capacity); (4) 42 U.S.C. § 1983 claim asserted by Plaintiff Ulibarri, the Estate, and Plaintiff Burke for state created danger against all Defendants (individual and official capacity); (5) denial of due process for failure to train and/or supervise against all Defendants (individual and official capacity); (6) denial of due process, special relationship, asserted by Plaintiffs the Estate, Krebs, and Burke against all Defendants (individual and official capacity); (7) state negligence claim asserted by Plaintiff Ulibarri and the Estate against Denver; (8) state wrongful death claim asserted by Plaintiff Ulibarri against Denver; (9) state negligence claim for failure to train and supervise asserted by Plaintiff Ulibarri and the Estate against Denver.

A. Objections to Orders of Magistrate Judge

I first address the two Objections to the orders of Magistrate Judge Watanabe. On non-dispositive matters, I may modify or set aside any portion of a magistrate judge’s order that I find to be clearly erroneous or contrary to law. Fed. R. Civ. P. 72(a).

On August 18, 2008, Magistrate Judge Watanabe entered an order (ECF No. 76) denying Plaintiffs’ Motion to Compel Discovery Responses (ECF No. 57). In their motion, Plaintiffs requested fuller responses to Interrogatories 5, 6, 10, and 11, unredacted versions of several documents, and complete interrogatory responses signed under oath by the defendants to whom they were directed. Magistrate Judge Watanabe ruled that Interrogatories 5, 10, and 11 were overly broad and no further response was required; Interrogatory 6 was fully answered by Defendants with information after reasonable inquiry and no further response was required; and the unredacted versions of the documents at issue, which were reviewed by Magistrate Judge Watanabe in camera, fall within the official information privilege and did not need to be disclosed.

Plaintiffs filed a timely Objection (ECF No. 80) arguing that the information at issue is critical to their case and that the order was clearly erroneous and contrary to law. I have reviewed the interrogatories at issue and see no clear error in Magistrate Judge Watanabe’s determination. The interrogatories were either answered or were overbroad and/or unduly burdensome. Although Plaintiffs attempted to limit the scope of the requests by narrowing the discovery sought, this does not demonstrate that the Magistrate Judge’s decision regarding the interrogatories as propounded was in error.

With respect to the documents, it appears that Plaintiffs’ attorneys were permitted to read but not to make copies of the unredacted documents. Plaintiffs make no argument that the documents do not fall within the official information privilege but rather argue that “the concerns evinced by Defendants could have easily been addressed through a protective order” and contend that Magistrate Judge Watanabe did not go through a ten-factor balancing analysis to determine whether the interests of disclosure outweigh the interests of the government entity asserting the privilege. However, Plaintiffs have not shown that Magistrate Judge Watanabe’s ultimate conclusion, that the redactions at issue here are privileged, was clearly erroneous or contrary to law. Accordingly, Plaintiffs’ objection is overruled.

The second order was entered November 10, 2008, 2008 WL 4861925 (ECF No. 104). In it, Magistrate Judge Watanabe addressed Plaintiffs’ Second Motion to Compel Discovery Responses (ECF No. 90) and Plaintiffs’ Motion to Amend Scheduling Order (ECF No. 91). In the motion to compel, Plaintiffs sought the production of the personnel and internal affairs files for 60 individuals identified in Defendants’ initial disclosures and further sought responses to discovery requests that Defendants refused to respond to on the grounds that the Plaintiffs had exceeded the limits in the Scheduling Order. In the motion to amend, Plaintiffs sought to amend the Scheduling Order to provide for fifty additional depositions, ten additional interrogatories, and ten additional document requests, and to continue discovery for four more months. Magistrate Watanabe denied the request for the files as overly broad and because Plaintiffs had not established that the personnel and other files were reasonably calculated to lead to the discovery of admissible evidence or that a compelling interest justified the intrusion. Magistrate Judge Watanabe also found that Plaintiffs had exceeded the number of discovery requests permitted by the Scheduling Order but that the Defendants’ objections in this regard were overruled. Therefore, unless another objection was presented, Defendants were ordered to respond to the discovery requests. Magistrate Judge Watanabe determined that the Plaintiffs had not shown good cause for their request for additional discovery, particularly since Plaintiffs had already been given lengthy extensions to the original deadlines. However, an extension of time was granted for expert disclosures.

In their Objection (ECF No. 113), Plaintiffs appear to object only to the portion of the order denying them fifty additional depositions. Plaintiffs argue that this order was erroneous because Defendants had disclosed a number of witnesses without specifically identifying the subject of their knowledge or testimony. In response, Defendants argue that Plaintiffs were not diligent with respect to this issue. Defendants point out that Plaintiffs previously sought to amend the Scheduling Order after disclosure of many of these witnesses but did not seek additional discovery. In addition, Defendants argue that information about the witnesses is readily discerned through the documents produced and other discovery. I agree with Defendants and conclude that Plaintiffs have not demonstrated that Magistrate Judge Watanabe’s denial of these additional depositions was clearly erroneous or contrary to law. Again, Plaintiffs’ objection is overruled.

B. Motions to Strike

1. Plaintiffs’ Motion to Strike

In their Motion to Strike (ECF No. 224), Plaintiffs request that I strike or disregard certain evidence submitted by Defendants with the Defendants’ Motions for Summary Judgment, specifically: (1) statements that constitute expert testimony under FRE 702 from witnesses that Defendants did not designate pursuant to FRCP 26(a)(2); (2) statements that are not made on personal knowledge; (3) statements that contradict testimony from witnesses designated by Defendants pursuant to FRCP 30(b)(6); and (4) hearsay. I will address each general category of objections.

Plaintiffs assert that evidence offered in the form of affidavits, specifically the Affidavit of Peter Crum, M.D. (Exh. A-6, ECF No. 197-9), Affidavit of John Romero (Exh. A-5, ECF No. 197-8), and Affidavit of Gary Wilson (Exh. A-7, ECF No. 197-10), contain statements that amount to expert opinions but that these witnesses were not offered or disclosed as experts. I conclude that the only statements that should be disregarded or stricken are Paragraphs 17 and 19 of Dr. Crum’s affidavit in which he opines that the “routine multiple daily nursing rounds and the weekly nursing round for inmates in Special Management provided ample opportunity for Vigil to receive medical attention” and that after review of Vigil’s file “there was no evidence of high risk behavior by Vigil that would be a warning sign of suicide, and that his suicide was not preventable.” ECF No. 197-9. The first statement, regarding whether Vigil had sufficient opportunity to obtain medical care, is a central question in dispute and so I do not consider this to be a statement of “undisputed” fact. The second, concerning whether Vigil’s suicide was preventable, appears to require specialized knowledge by a witness qualified by knowledge, skill, experience, training, or education under FRE 702. Since Dr. Crum was not disclosed as an expert in any relevant area, such as psychology or medical training on detection of suicide risks, these opinions will be disregarded.

The remaining statements at issue do not appear to involve opinions but rather are simply descriptions of events and routine practice concerning communications between inmates at the PADF and DCJ. I do not read the statements as containing any kind of opinion regarding the quality or effectiveness of the communication in general or as specifically applied to the deaf individuals involved in this litigation. Therefore, I will not strike these statements.

Next, Plaintiffs seek to exclude portions of the same affidavits on the grounds that the affiants do not have sufficient personal knowledge or because the affidavits contain conclusory statements. I disagree. I have reviewed the depositions and affidavits of these witnesses and am satisfied that the individuals whose affidavits are offered have adequate personal knowledge of the matters that they are describing. Accordingly, I do not exclude any other statements in these affidavits on this basis.

Plaintiffs seek to strike a significant portion of the affidavit of Dr. Crum to the extent it conflicts with the testimony of Denver’s Fed. R. Civ. P. 30(b)(6) designees. Dr. Crum provided the affidavit as a representative of the DHHA; the affidavit concerns the practices of the DHHA in providing medical services to the PADF and the Jail. The evidence Plaintiffs seek to strike primarily concerns the routine practices at the Jail in 2005, particularly with respect to the nurses making rounds. I see no conflict with the testimony of the official designees, who for the most part could not testify about the provision of medical services because those services are provided by DHHA. Plaintiffs apparently did not seek to take a 30(b)(6) deposition of DHHA. Because there is no conflict, I will not strike the contested portions of Dr. Crum’s affidavit.

Finally, Plaintiffs seek to strike any inadmissible hearsay contained in the affidavits. Several of the affidavits reference attached documents and restate their contents. See, e.g., Crum Aff., Exh. A-6, ECF No. 197-9, ¶ 16 (discussing Vigil’s medical records). To the extent that the affidavits provide context for the documents, I will deny the motion. To the extent the affidavits restate or interpret the documents, I will grant the motion and will consider only the documents themselves. Accordingly, the motion is granted with respect to Paragraph 16 of Dr. Crum’s affidavit and Paragraphs 19 and 20 of Mr. Romero’s affidavit to the extent that the affiants restate or interpret the contents of the referenced documents.

2. Defendants’ Motion to Strike Exhibits

In their Motion to Strike Exhibits in Plaintiffs’ Combined Response to Summary Judgment (ECF No. 243), Defendants seek to exclude certain exhibits submitted by Plaintiffs in their Response to the two Motions for Summary Judgment. Specifically, Defendants request that I disregard evidence that amounts to inadmissible hearsay, documents not properly authenticated, and evidence that is inadmissible as irrelevant.

Defendants’ objections based on authentication are overruled in that it appears that all of the contested evidence can be authenticated and indeed Plaintiffs provided authentication in their response to the motion to strike. As to the remaining issues, I rule as follows:

Exhibit 9, McCarten Aff. ¶ 5: hearsay objection is overruled, not offered for the truth of the matters asserted and/or admission of a party opponent.

Exhibit 17, Krebs Aff. ¶¶ 8,15,16: hearsay objection is overruled, not offered for the truth of the matters asserted.

Exhibit 20, excerpts of recording: hearsay objection is overruled as record of regularly conducted activity.

Exhibit 22, educational records of Shawn Vigil: hearsay objection is overruled as record of regularly conducted activity.

Exhibit 24: document/letter concerning another case: relevance objection granted, evidence regarding Nurse Costin’s conduct in a later-occurring case is immaterial to the issues here.

Exhibit 25: document/letter concerning another case: relevance objection granted.

Exhibit 31: photos of Vigil’s cell: relevance objection overruled as Plaintiffs have provided substitute photos with proper authentication.

Exhibit 32: notes of Shawn Vigil: hearsay objection overruled, not offered for the truth of the matters asserted.

Exhibit 41: report from U.S. Dept. of . Justice concerning facility operated by Defendants’ expert witness: relevance objection overruled, hearsay objection overruled as record of regularly conducted activity.

Exhibit 57, Aff. Of Julie Reiskin ¶¶ 6-12, 15, 19-21: lack of personal knowledge objection overruled, affiant has shown that she has personal knowledge of the matters stated in the affidavit.

Exhibit 58, Aff. Of Jennifer Pfau: objection that Pfau is not authorized to make statements on behalf of the CAD is overruled; Defendants have not shown that declarant’s statement that she is able to

speak for the organization is incorrect; objection based on lack of personal knowledge objection overruled as affiant has shown that she has personal knowledge of the matters stated in the affidavit.

C. Motions for Summary Judgment Standard of Review

Summary judgment is appropriate when there is no genuine issue as to any material fact and the moving party is entitled to judgment as a matter of law. Fed. R. Civ. P. 56. A factual issue is genuine if “the evidence is such that a reasonable jury could return a verdict for the nonmoving party.” Anderson v. Liberty Lobby, 477 U.S. 242, 248, 106 S.Ct. 2505, 91 L.Ed.2d 202 (1986).

Discussion

1. Claims 1 and 2: Violations of the Rehabilitation Act and ADA

Denver moves for summary judgment on Plaintiffs’ Claims 1 and 2 on numerous grounds. Denver does not dispute, for the purposes of summary judgment, that Vigil, Burke, and Krebs are qualified individuals with a disability for the purposes of the ADA or the Rehabilitation Act due to their deafness. However, Denver argues that any claims concerning Vigil can only be asserted for conduct occurring after August 28, 2005 because of a two-year statute of limitations. Denver further argues that any claims concerning the arrests of these individuals are barred because the ADA and Rehabilitation Act do not apply to arrests and/or because the failure to provide sign language interpreter during the arrests did not amount to discrimination. Denver then contends that the conditions of these individuals’ detentions were not discriminatory under the ADA and Rehabilitation Act.

Section 504 of the Rehabilitation Act prohibits discrimination against the disabled by recipients of federal funding. 29 U.S.C. § 794. Denver does not deny that it is subject to the Rehabilitation Act. To establish a prima facie case of discrimination under the Rehabilitation Act, a plaintiff must demonstrate that he or she is handicapped under the act, is otherwise qualified to participate in the program, the program receives federal financial assistance, and the program discriminates against the plaintiff. Barber ex rel. Barber v. Colo. Dep’t Of Revenue, 562 F.3d 1222, 1228 (10th Cir.2009). To recover compensatory damages under section 504, a plaintiff must establish that the agency’s discrimination was intentional; this does not require “a showing of personal ill will or animosity toward the disabled person; rather, ‘intentional discrimination can be inferred from a defendant’s deliberate indifference to the strong likelihood that pursuit of its questioned policies will likely result in a violation of federally protected rights.’ ” Id. at 1228-29 (citation omitted); see also id. at 1229 (deliberate indifference requires two elements: (1) “knowledge that a harm to a federally protected right is substantially likely,” and (2) “a failure to act upon that ... likelihood.”) (citation omitted).

Title II of the ADA prohibits discrimination against the disabled by public entities. 42 U.S.C. § 12132. Again, there is no dispute that the PADF and Jail are subject to the ADA. In order to state a Title II claim, a plaintiff must demonstrate that he or she is a qualified individual with a disability; he or she was excluded from participation or denied the benefits of a public entity’s services, programs, or activities; and such exclusion, denial of benefits, or discrimination was because of the individual’s disability. Robertson v. Las Animas Cnty. Sheriffs Dep’t, 500 F.3d 1185, 1193 (10th Cir.2007). As with the Rehabilitation Act, the Tenth Circuit appears to require a showing of intentional discrimination before a plaintiff may recover compensatory damages for mental or emotional injury. Tyler v. City of Manhattan, 118 F.3d 1400, 1403-4 (10th Cir. 1997).

a. Arrests

I first examine whether the arrests of Vigil, Krebs, and Burke violated the ADA and Rehabilitation Act. Vigil was arrested on August 17, 2005 and the first complaint in this case was filed August 28, 2007. There appears to be no real dispute that a two-year statute of limitations applies to ADA and Rehabilitation Act claims. Quinn v. Univ. of Okla., 276 Fed.Appx. 809, 810-811 (10th Cir.2008) (unpublished); Hughes v. Colo. Dep’t of Corr., 594 F.Supp.2d 1226, 1235 (D.Colo.2009). Therefore, any claim based solely on Vigil’s arrest is time-barred.

Denver cites Rosen v. Montgomery County, Maryland, 121 F.3d 154, 157 (4th Cir.1997) for the proposition that a police arrest is not a “service, program, or activity” for which Title II of the ADA applies. However, as noted by Plaintiffs, the Tenth Circuit has observed, without adopting a similar rule, that other jurisdictions recognize disability discrimination claims in arrests based on the theory that the law enforcement officers “failed to reasonably accommodate the person’s disability in the course of investigation or arrest, causing the person to suffer greater injury or indignity in that process than other arrestees.” Gohier v. Enright, 186 F.3d 1216, 1220-21 (10th Cir.1999) (citing Gorman v. Bartch, 152 F.3d 907 (8th Cir.1998)). Because the plaintiff in Gohier did not argue a failure to reasonably accommodate theory similar to Gorman, the Tenth Circuit did not opine on whether such a theory would apply in that case. 186 F.3d at 1222 (“this court merely clarifies that a broad rule categorically excluding arrests from the scope of Title II ... is not the law”). Plaintiffs also cite Hainze v. Richards, 207 F.3d 795 (5th Cir.2000) for the proposition that when police respond to criminal activity or a disturbance, law enforcement officers are under a duty to reasonably accommodate an arrestee’s disability in handling and transporting the individual, assuming the area is secure and there is no threat to safety. 207 F.3d at 801-802.

I find the reasoning in Gorman and Hainze to be persuasive and will assume for the purposes of summary judgment that the Tenth Circuit would recognize a failure to reasonably accommodate theory during an arrest and examine whether Burke and Krebs can state a claim. I conclude that Krebs cannot demonstrate that he suffered “greater injury or indignity” than other arrestees in the arrest process because of the lack of a sign language interpreter. He described a certain amount of indignity with respect to his arrest, but this conduct came from the private security guard, not the Denver police officer. In Krebs’ deposition, he stated that the police officer was a “nice guy” and that the officer slowly and carefully said things like “calm down” and “take it easy” that Krebs could understand. Krebs Dep., Exh. A-16 to Denver’s Mot. for Summ. J., ECF No. 197-19, 70. Krebs was able to obtain medical attention for the injuries he incurred as a result of the scuffle with the guard. He was given a document with the charges and while he claims difficulty reading, it was apparently because of his glasses, not his reading ability. Although he did not fully understand why he was being arrested, he knew it had to do with biting the guard. Overall, I conclude that there is no genuine issue of fact regarding his arrest and that he did not suffer discriminatory injury or indignity during his arrest because of his disability.

Burke, on the other hand, has alleged facts which, if credited by a jury, could support a claim of disability discrimination in the course of her arrest. There is evidence that she did request a sign language interpreter and that there was some failure of communication with the police officers who effected her arrest. Specifically, despite the officer’s stated practice of permitting arrestees to bring their medication, Burke was not permitted to take diabetes medication and aids with her. There is evidence to indicate that both she and her husband attempted to convey that she needed these items but that, because of her disability, the officers did not understand her medical needs. As a result, a significant period of time passed before she saw a medical professional to assist her. Burke testified that she became hypoglycemic while waiting to be seen by the nurse and suffered avoidable discomfort as a result of the failure in communication. In addition, although arrestees are not permitted to have pagers and telephones at the detention facility, it does not appear that there is any policy against permitting these items during an arrest. Accommodating Burke’s disability by permitting her to retain her “Sidekick” device as a communication aid during her arrest could have decreased the difficulty she had in comprehending or obtaining assistance for her medical needs and in obtaining transportation after her release. Accordingly, I conclude that summary judgment is not appropriate on Burke’s ADA and Rehabilitation Act claim to the extent it is based on her arrest.

b. Detention

There is no dispute that disabled individuals are entitled to reasonable accommodations during detention or incarceration. Robertson, 500 F.8d at 1194-95. This means that the PADF and Jail were required to provide “meaningful” access to their programs and services for disabled detainees. Id. at 1195. To effectuate the mándate of the ADA, public entities must make “reasonable modifications in policies, practices, or procedures when the modifications are necessary to avoid discrimination on the basis of disability.” Id. (quoting 28 C.F.R. § 35.130(b)(7) and noting that “reasonable modifications” is understood to be equivalent to “reasonable accommodation” in the ADA’s employment provisions). This means that the entity should take steps to ensure that communications with disabled detainees are as effective as communications with others and that appropriate auxiliary aids and services are provided as necessary. 28 C.F.R. § 35.160(a) & (b)(1). “In determining what type of auxiliary aid and service is necessary, a public entity shall give primary consideration to the requests of the individual with disabilities.” 28 C.F.R. 35.160(b)(2). However, if an individual’s disability or the need for an accommodation is obvious, the failure to expressly request a specific accommodation is not fatal to an ADA claim. Robertson, 500 F.3d at 1197 n. 10 (“Whether the public entity’s knowledge derives from an individual’s request for an accommodation or an individual’s obvious need for an accommodation, the critical component of the entity’s knowledge is that it is aware not just that the individual is disabled, but that the individual’s disability affects his ability to receive the benefits of the entity’s services.”). A public entity is not required “to take any action that it can demonstrate would result in a fundamental alteration in the nature of a service, program, or activity or in undue financial and administrative burdens.” Robertson, 500 F.3d at 1196; 28 C.F.R. § 35.164.

With respect