Gothers v. Secretary of Health and Human Services

In the United States Court of Federal Claims

OFFICE OF SPECIAL MASTERS

No. 20-2033V

THOMAS GOTHERS, Chief Special Master Corcoran

Petitioner, Filed: March 4, 2026

v.

SECRETARY OF HEALTH AND

HUMAN SERVICES,

Respondent.

Timothy J. Mason, Law Office of Sylvia Chin-Caplan, LLC, Boston, MA, for Petitioner.

Jay Travis Williamson, U.S. Department of Justice, Washington, DC, for Respondent.

DECISION AWARDING ATTORNEY’S FEES AND COSTS 1

On December 30, 2020, Thomas Gothers filed a petition for compensation under

the National Vaccine Injury Compensation Program, 42 U.S.C. §300aa-10, et seq. 2 (the

“Vaccine Act”). Petitioner alleged that he suffered a shoulder injury related to vaccine

administration (“SIRVA”) following an influenza (“flu”) vaccine he received on October 1,

2019. Petition at 1. The case was assigned to the Special Processing Unit of the Office

of Special Masters.

Although the claim was unsuccessful, I find it possessed sufficient reasonable

basis to permit an award of attorney’s fees. But a reduction in the amount of fees and

costs to be awarded is appropriate, for the reason stated below.

1 Because this Decision contains a reasoned explanation for the action taken in this case, it must be made

publicly accessible and will be posted on the United States Court of Federal Claims' website, and/or

at https://www.govinfo.gov/app/collection/uscourts/national/cofc, in accordance with the E-Government

Act of 2002. 44 U.S.C. § 3501 note (2018) (Federal Management and Promotion of Electronic Government

Services). This means the Decision will be available to anyone with access to the internet. In

accordance with Vaccine Rule 18(b), Petitioner has 14 days to identify and move to redact medical or other

information, the disclosure of which would constitute an unwarranted invasion of privacy. If, upon review, I

agree that the identified material fits within this definition, I will redact such material from public access.

2 National Childhood Vaccine Injury Act of 1986, Pub. L. No. 99-660, 100 Stat. 3755. Hereinafter, for ease

of citation, all section references to the Vaccine Act will be to the pertinent subparagraph of 42 U.S.C.

§ 300aa (2018).

I. Relevant Procedural History

On October 24, 2022, Respondent filed his Rule 4(c) Report contending that

Petitioner had not established that the onset of his shoulder pain occurred within 48 hours,

as required for a Table SIRVA claim. Rule 4(c) Report at 7. After reviewing the record

and both parties’ briefs regarding entitlement, I issued a decision dismissing Petitioner’s

Table SIRVA claim, and ordering him to show cause how a non-Table claim might

succeed. ECF No. 46. Petitioner then sought to dismiss his case, while also filing a Motion

for Review of my decision. See ECF No. 55, 57. The Motion to Review was denied on

September 24, 2024. ECF No. 64.

On March 26, 2025, Petitioner filed a motion seeking a total of $41,744.53 in

attorney fees and costs, comprised of $41,243.70 in fees, $98.83 in costs, and $402.00

in out-of-pocket expenses incurred by Petitioner personally. ECF No. 67 at 1. Respondent

reacted to the motion, stating that he “defers to the court regarding whether the statutory

requirements for an award of attorney’s fees and costs are met in this case,” and if so,

requesting that I exercise my discretion as to the amount to be awarded. ECF No. 68.

II. Reasonable Basis

A. Legal Standard

Motivated by a desire to ensure that petitioners have adequate assistance from

counsel when pursuing their claims, Congress determined that attorney’s fees and costs

may be awarded even in unsuccessful claims. H.R. REP. NO. 99-908, at 22 reprinted in

1986 U.S.C.C.A.N. 6344, 6363; see also Sebelius v. Cloer, 569 U.S. 369, 380 (2013)

(discussing this goal when determining that attorneys’ fees and costs may be awarded

even when the petition was untimely filed). As Judge Lettow noted in Davis, “the Vaccine

Program employs a liberal fee-shifting scheme.” Davis v. Sec’y of Health & Human Servs.,

105 Fed. Cl. 627, 634 (2012). It may be the only federal fee-shifting statute that permits

unsuccessful litigants to recover fees and costs.

However, Congress did not intend that every losing petition be automatically

entitled to attorney’s fees. Perreira v. Sec’y of Health & Human Servs., 33 F.3d 1375,

1377 (Fed. Cir. 1994). And there is also a prerequisite to even obtaining fees in an

unsuccessful case. The special master or court may award attorney’s fees and costs in a

case in which compensation was not awarded only if “that the petition was brought in

good faith and there was a reasonable basis for the claim for which the petition was

brought.” Section 15(e)(1). Reasonable basis is a prerequisite to a fee award for

unsuccessful cases – but establishing it does not automatically require an award, as

special masters are still empowered by the Act to deny or limit fees. James-Cornelius on

behalf of E. J. v. Sec'y of Health & Human Servs., 984 F.3d 1374, 1379 (Fed. Cir. 2021)

(“even when these two requirements are satisfied, a special master retains discretion to

grant or deny attorneys’ fees”).

2

As the Federal Circuit has explained, whether a discretionary fees award is

appropriate involves two distinct inquiries – a subjective one (assessing whether the

petition was brought in good faith), and an objective one (ascertaining whether

reasonable basis existed). Simmons v. Sec’y of Health & Human Servs., 875 F.3d 632,

635 (Fed. Cir. 2017) (quoting Chuisano v. Sec’y of Health & Human Servs., 116 Fed. Cl.

276, 289 (2014)). “Good faith is a subjective test, satisfied through subjective evidence.”

Cottingham v. Sec’y of Health & Human Servs., 971 F.3d 1337, 1344 (Fed. Cir. 2020)

(“Cottingham I”). “[T]he ‘good faith’ requirement . . . focuses upon whether petitioner

honestly believed he had a legitimate claim for compensation.” Turner v. Sec’y of Health

& Human Servs., No. 99-0544V, 2007 WL 4410030, at *5 (Fed. Cl. Spec. Mstr. Nov. 30,

2007).

Cases in which good faith has been found to be lacking often involve petitioners

who failed to produce or actively concealed evidence undermining their claims. Purnell-

Reid v. Sec’y of Health & Human Servs., No. 18-1101V, 2020 WL 2203712 (Fed. Cl.

Spec. Mstr. Apr. 6, 2020); Crowding v. Sec’y of Health & Human Servs., No. 16-0876V,

2019 WL 1332797 (Fed. Cl. Spec. Mstr. Feb. 26, 2019); Heath v. Sec'y of Health & Human

Servs., No. 08-0086V, 2011 WL 4433646 (Fed. Cl. Spec. Mstr. Aug. 25, 2011); Carter v.

Sec'y of Health & Human Servs., No. 90-3659V, 1996 WL 402033 (Fed. Cl. Spec. Mstr.

July 3, 1996).

“Additionally, a petitioner’s attorney’s conduct may also be relevant when

evaluating good faith.” Purnell-Reid, 2020 WL 2203712, at *6. “Counsel still have a duty

to investigate a Program claim even if they reasonably find their client to be a credible

individual.” Cortez v. Sec'y of Health & Human Servs., No. 09-0176V, 2014 WL 1604002,

at *8 (Fed. Cl. Spec. Mstr. Mar. 26, 2014). Factors, such as a looming statute of limitations

and the conduct of counsel, are properly considered when determining whether good faith

exists – but do not bear on the claim’s objective basis. Simmons, 875 F.3d at 636;

Amankwaa v. Sec'y of Health & Human Servs., 138 Fed. Cl. 282, 289 (2018) (“the effort

that an attorney makes to investigate a claim or to ensure that a claim is asserted before

the expiration of the statutory limitations period . . . are properly evaluated in determining

whether a petition was brought in good faith”).

“Reasonable basis, on the other hand, is an objective test, satisfied through

objective evidence.” Cottingham I, 971 F.3d at 1344. The reasonable basis requirement

examines “not at the likelihood of success [of a claim] but more to the feasibility of the

claim.” Turner, 2007 WL 4410030, at *6 (quoting Di Roma v. Sec’y of Health & Human

Servs., No. 90-3277V, 1993 WL 496981, at *1 (Fed. Cl. Spec. Mstr. Nov. 18, 1993)). The

Federal Circuit recently explained “that a reasonable basis analysis is limited to objective

evidence, and that subjective considerations, such as counsel’s subjective views on the

adequacy of a complaint, do not factor into a reasonable basis determination.” James-

Cornelius, 984 F.3d at 1379.

3

Although clearly easier to meet than the preponderant standard required for

compensation, “courts have struggled with the nature and quantum of evidence

necessary to establish a reasonable basis.” Wirtshafter v. Sec’y of Health & Human

Servs., 155 Fed. Cl. 665 at 671 (Fed. Cl. 2021). “[I]t is generally accepted that ‘a petitioner

must furnish some evidence in support of the claim.’” Id. (quoting Chuisano, 116 Fed. Cl.

at 288, emphasis added in Wirtshafter). Citing the prima facie elements of a successful

claim described in Section 11(c)(1), the Federal Circuit recently instructed that the level

of the objective evidence sufficient for a special master to find reasonable basis should

be “more than a mere scintilla but less than a preponderance of proof.” Cottingham I, 971

F.3d at 1345-46. “This formulation does not appear to define reasonable basis so much

as set its outer bounds.” Cottingham v. Sec’y of Health & Human Servs., 159 Fed. Cl.

328, 333, (Fed. Cl. 2022), aff’d without op., No. 2022-1737, 2023 WL 7545047 (Fed. Cir.

Nov. 14, 2023) (“Cottingham II”). “[T]he Federal Circuit’s statement that a special master

‘could’ find reasonable basis based upon more than a mere scintilla does not mandate

such a finding.” Cottingham II, 159 Fed. Cl. at 333 (citing Cottingham I, 971 F.3d at 1346).

Furthermore, the issue of reasonable basis is not a static inquiry. The reasonable

basis which existed when a claim was filed may cease to exist as further evidence is

presented. Perreira, 33 F.3d at 1377. In Perreira, the Federal Circuit affirmed a special

master’s determination that reasonable basis was lost after Petitioner’s “expert opinion,

which formed the basis of the claim, was found to be unsupported by either medical

literature or studies.” Id. at 1376.

B. Existence of Reasonable Basis in this Case

I dismissed this case because I determined that Petitioner had not preponderantly

established that the onset of her shoulder pain likely occurred within 48 hours of

vaccination. ECF No. 46, at *6-7. Petitioner’s first medical appointment documenting

shoulder pain took place on March 2, 2020 - five months after vaccination. Id. at *6. Prior

to that appointment, Petitioner had opportunities to report his shoulder pain to his

chiropractor, but did not. Id. And although he consistently attributed his pain to his

vaccination, Petitioner’s medical records document reports of onset outside of the 48 hour

window. Id. at 7. One record stated that Petitioner’s pain began “gradually.” Id.

Although this evidence was insufficient to substantiate Petitioner’s Table claim, it

is sufficient to satisfy the much lower reasonable basis standard. Petitioner consistently

attributed his pain to his vaccination, and provided reasonable explanations for his delay

in seeking treatment, including advice given to him by his wife, who is a nurse, and

attempts at self-care. Id. at 6. Further, I dismissed only Petitioner’s Table claim – not his

entire petition, leaving open a path to compensation as a non-Table claim. Thus, there

was objective proof in support of the claim. And there is no other basis for a denial of

fees. Therefore, the only remaining question is the appropriate amount of the attorney’s

fees and costs to be awarded.

4

III. Appropriate Amount of Fees and Costs to be Awarded

Under the Vaccine Program, reasonable attorneys’ fees and costs are limited to

those “incurred in any proceeding on [a] petition.” Section 15(e)(1); see also Krause v.

Sec’y of Health & Human Servs., No. 01-93V, 2012 WL 4477431, at *6 (Fed. Cl. Spec.

Mstr. June 20, 2012). It is clearly established that secretarial and administrative work

“should be considered as normal overhead office costs included within the attorneys’ fee

rates.” Rochester v. U.S., 18 Cl. Ct. 379, 387 (1989); Dingle v. Sec’y of Health & Hum.

Servs., No. 08-579V, 2014 WL 630473, at *4 (Fed. Cl. Spec. Mstr. Jan. 24, 2014). “[B]illing

for clerical and other secretarial work is not permitted in the Vaccine Program.” Mostovoy

v. Sec’y of Health Hum. Servs., No. 02-10V, 2016 WL 720969, at *5 (Fed. Cl. Spec. Mstr.

Feb. 4, 2016) (citing Rochester, 18 Cl. Ct. at 387).

Counsel must submit fee requests that include contemporaneous and specific

billing records indicating the service performed, the number of hours expended on the

service, and the name of the person performing the service. See Savin v. Sec’y of Health

& Human Servs., 85 Fed. Cl. 313, 316-18 (2008). Counsel should not include in their fee

requests hours that are “excessive, redundant, or otherwise unnecessary.” Saxton v.

Sec’y of Health & Human Servs., 3 F.3d 1517, 1521 (Fed. Cir. 1993) (quoting Hensley v.

Eckerhart, 461 U.S. 424, 434 (1983)). It is “well within the special master’s discretion to

reduce the hours to a number that, in [her] experience and judgment, [is] reasonable for

the work done.” Id. at 1522. Furthermore, the special master may reduce a fee request

sua sponte, apart from objections raised by respondent and without providing a petitioner

notice and opportunity to respond. See Sabella v. Sec’y of Health & Human Servs., 86

Fed. Cl. 201, 209 (2009). A special master need not engage in a line-by-line analysis of

petitioner’s fee application when reducing fees. Broekelschen v. Sec’y of Health & Human

Servs., 102 Fed. Cl. 719, 729 (2011).

A. Attorney Fees

I have reviewed the billing records submitted with Petitioner’s request. The rates

requested for work performed through 2025 are reasonable and consistent with our prior

determinations and will therefore be awarded herein. But I deem the total amount of time

devoted to briefing entitlement to be excessive. See Petitioner’s Brief Regarding Onset,

filed Jan. 20, 2023, ECF No. 43; Petitioner’s Reply to Respondent’s Response to Brief

Regarding Onset, filed March 8, 2023, ECF No. 45. Petitioner’s counsel expended

approximately 41.8 hours drafting the entitlement brief and 2.8 hours drafting the reply,

totaling 44.6 3 hours. ECF No. 67 at 13-15.

3

This total is calculated as follows: 3.8 hours billed at a rate of $275.00 on 12/30/2022 and 40.8 hours billed

at a rate of $300.00 on 1/3/2023, 1/4/2023, 1/5/2023, 1/6/2023 (2 entries), 1/11/2023, 1/12/2023, 1/13/2023,

1/17/2023, 1/19/2023, 1/20/2023, 3/1/2023, 3/7/2023 (2 entries), 3/8/2023 by attorney Timothy Mason.

ECF No. 67 at 13-15.

5

It is unreasonable for counsel to spend so much time briefing the matter of

entitlement in this case, given its glaring factual deficiencies. I have identified numerous

cases (which may reasonably be compared to time spent in this matter), 4 in which

attorneys have accomplished this task more efficiently. 5 Accordingly, I will reduce the

sum to be awarded for the subcategory of entitlement briefing (a total of 44.6 hours, or

$13,285.00) by thirty percent. Such an across-the-board reduction (which I am

empowered to adopt) 6 fairly captures the overbilling evidenced by this work, without

requiring me to act as a “green eye-shaded accountant” in identifying with specificity each

objectionable task relevant to this one sub-area of work performed on the case. This

results in a reduction of $3,985.50. 7

4 Special masters may use comparisons to attorneys performing similar tasks to determine if hours are

excessive. See Saxton v. Sec’y of Health & Hum. Servs., 3 F.3d 1517, 1518-1521 (Fed. Cir. 1993).

5 See, e.g., Proctor v. Sec’y of Health & Hum. Servs., No. 20-1236V (June 20, 2025) (14.0 and 7.9 hours

billed for drafting an entitlement brief and responsive entitlement brief, respectively); White v. Sec’y of

Health & Hum. Servs., No. 19-1886V (June 20, 2025) (11.0 and 7.0 hours billed for drafting an entitlement

brief and responsive entitlement brief, respectively); Ritter v. Sec’y of Health & Hum. Servs., No. 20-2013V

(Jan. 31, 2025) (11.1 and 3.3 hours billed for drafting an entitlement brief and a responsive entitlement

brief, respectively); Portock v. Sec’y of Health & Hum. Servs., No. 21-1653V (Jan. 17, 2025) (15.7 and 6.0

hours billed for drafting an entitlement brief and responsive entitlement brief, respectively); Mullur v. Sec’y

of Health & Hum. Servs., No. 21-0842V (Jan. 10, 2025) (10.9 and 9.1 hours billed for drafting an entitlement

brief and responsive entitlement brief, respectively); Fletcher v. Sec’y of Health & Hum. Servs., No. 20-

0127V (Apr. 25, 2024) (12.7 and 9.0 hours billed for drafting an entitlement brief and responsive entitlement

brief, respectively); Lamine v. Sec’y of Health & Hum. Servs., No. 20-1560V (Mar. 27, 2024) (8.9 and 7.2

hours billed for drafting an entitlement brief and responsive entitlement brief, respectively); Davenport v.

Sec’y of Health & Hum. Servs., No. 20-0206V (Mar. 25, 2024) (16.5 and 2.6 hours billed for drafting an

entitlement brief and a responsive entitlement brief, respectively); Graczyk v. Sec’y of Health & Hum.

Servs., No. 21-0376V (Feb. 9, 2024) (5.8 and 8.3 hours billed for drafting an entitlement brief and

responsive entitlement brief, respectively); Sisneros v. Sec’y of Health & Hum. Servs., No. 20-2070V (Feb.

8, 2024) (0.8 and 10.5 hours billed for drafting an entitlement brief and responsive entitlement brief,

respectively); Strand v. Sec’y of Health & Hum. Servs., No. 20-0365V (Feb. 5, 2024) (7.9 and 7.2 hours

billed for drafting an entitlement brief and a responsive entitlement brief, respectively); Griswold v. Sec’y of

Health & Hum. Servs., No. 19-1674V (May 30, 2024) (5.0 and 2.0 hours billed for drafting an entitlement

brief and responsive entitlement brief, respectively); McCallum v. Sec’y of Health & Hum. Servs., No. 19-

1991V (May 19, 2023) (8 hours billed for drafting an entitlement brief); Weso v. Sec’y of Health & Hum.

Servs., No. 19-0596V (May 16, 2024) (6.0 and 1.1 hours billed for drafting an entitlement brief and

responsive entitlement brief, respectively). These decisions can (or will) be found on the United States

Court of Federal Claims website, and/or at https://www.govinfo.gov/app/collection/uscourts/national/cofc.

6

Special masters are permitted to employ percentage reductions to hours billed, provided the reduction is

sufficiently explained. See, e.g., Abbott v. Sec’y of Health & Hum. Servs., 135 Fed. Cl. 107, 111 (2017);

Raymo v. Sec’y of Health & Hum. Servs, 129 Fed. Cl. 691, 702-704 (2016); Sabella v. Sec’y of Health &

Hum. Servs., 86 Fed. Cl. 201, 214 (2009).

7 This amount is calculated as follows: $13,285.00 x .30 = $3,985.50.

6

B. Attorney Costs

Petitioner has provided supporting documentation for all claimed costs. ECF No.

67 at 19-25. Respondent offered no specific objection to the rates or amounts sought. I

find the requested costs reasonable and hereby award them in full (including Petitioner’s

personally-incurred costs).

Conclusion

I have determined that an award of reasonable attorney’s fees and costs is

appropriate in this case even though compensation was not awarded. Section 15(e)(1).

Accordingly, I hereby GRANT, in part, Petitioner’s Motion for attorney’s fees and

costs and award a total of $37,759.03 (representing $37,258.20 for fees plus $98.83

costs and $402.00 for Petitioner out-of-pocket expenses) to be paid through an

ACH deposit to Petitioner’s counsel’s IOLTA account for prompt disbursement. The

Clerk of the Court is directed to enter judgment in accordance with this Decision. 8

IT IS SO ORDERED.

s/Brian H. Corcoran

Brian H. Corcoran

Chief Special Master

8 Pursuant to Vaccine Rule 11(a), entry of judgment can be expedited by the parties’ joint filing of notice

renouncing the right to seek review.

7