Kim S.,1 Complainant,v.Robert M. Speer, Acting Secretary, Department of the Army, Agency.Download PDFEqual Employment Opportunity CommissionApr 21, 20170120150575 (E.E.O.C. Apr. 21, 2017) Copy Citation U.S. EQUAL EMPLOYMENT OPPORTUNITY COMMISSION Office of Federal Operations P.O. Box 77960 Washington, DC 20013 Kim S.,1 Complainant, v. Robert M. Speer, Acting Secretary, Department of the Army, Agency. Appeal No. 0120150575 Hearing No. 531-2014-00099X Agency No. ARAPG12MAR04368 DECISION On November 21, 2014, Complainant filed an appeal, pursuant to 29 C.F.R. § 1614.403(a), from the Agency’s October 23, 2014, final order concerning her equal employment opportunity (EEO) complaint alleging employment discrimination in violation of Section 501 of the Rehabilitation Act of 1973 (Rehabilitation Act), as amended, 29 U.S.C. § 791 et seq. For the following reasons, the Commission AFFIRMS the Agency’s final order. BACKGROUND At the time of events giving rise to this complaint, Complainant worked as a Program Analyst, GS-0304-11, in the Department of the Army, Communications Electronics Command Logistics and Readiness Center (CECOMLRC), Enterprise Soldier Aviation Directorate (ESA), in Aberdeen, Maryland. On November 20, 2012, Complainant filed an EEO complaint alleging that the Agency discriminated against her on the basis of disability (Cerebral Palsy) when: (1) on March 13, 2012, her first-line supervisor (S1) denied her reasonable accommodation request to telework; (2) in mid-February 2012, CECOM denied her union representation because she was on 100% telework and not on the base one day a week; (3) from February 2011 to February 2012, she received work request e-mails on her personal computer; (4) on January 14, 2012, she was placed on 4.25 hours of leave without pay (LWOP); and (5) on 1 This case has been randomly assigned a pseudonym which will replace Complainant’s name when the decision is published to non-parties and the Commission’s website. 0120150575 2 November 30, 2011, she received a “2” rating on her performance appraisal for the rating period November 1, 2011 to October 31, 2011. Following the investigation, the Agency provided Complainant with a copy of the report of investigation and notice of her right to request a hearing before an EEOC Administrative Judge (AJ). Complainant timely requested a hearing. When the Complainant did not object, the AJ assigned to the case granted the Agency’s April 15, 2014, motion for a decision without a hearing and issued a decision without a hearing on September 24, 2014. The Agency subsequently issued a final order adopting the AJ’s finding that Complainant failed to prove that the Agency subjected her to discrimination as alleged. UNDISPSUTED FACTS Complainant has Cerebral Palsy. Her condition is permanent. She was diagnosed with the condition as a child. Her condition is progressive; she has significant secondary right arm and leg weakness, grand mal seizures, hernias, chronic sprains to her arm, migraines, panic disorder, and asthma. Complainant’s responsibilities involved managing the travel needs of the people within her department. She made travel arrangements for employees, controlled disbursements for travel, and she performed bookkeeping functions for the ESA travel budget. Complainant began working at the Agency in 1987 at Fort Monmouth, New Jersey. Under the Base Closure and Realignment Commission (BRAC), her duty station was transferred to Aberdeen Proving Ground, in Aberdeen, Maryland. In 2010, her condition progressed to the point where she could not travel to work. In March 2010, the Agency granted her reasonable accommodation request of 100% working from home (telework). Complainant lives in New Brunswick, New Jersey, which is roughly 150 miles away from Aberdeen, Maryland. The telework agreement was a temporary agreement, renewable at regular intervals. Through the telework agreement, the Agency gave Complainant a laptop for regular use and an alternate laptop in case of computer malfunction. It also provided Complainant with a printer. During Complainant's telework period, her computer or internet connection stopped working. As an accommodation, the Agency sent an information technology (IT) person to Complainant's home to fix the computer problem. During Complainant's telework agreement, she infrequently travelled to Aberdeen Proving Ground to meet some work obligations. On October 6, 2011, Complainant’s doctor (MD) wrote S1, stating that he strongly advised that Complainant take medical leave from September 27 to October 11, 2011. He attributed the need for her medical leave to her increased risk of seizures, exacerbated by excessive stress. Notwithstanding the October 11, 2011 date in his letter, MD asserted that he would not be able to provide the Agency with a date for Complainant to return to work until her condition stabilized. On the same day, Complainant also sent S1 an e-mail with a “pdf” file of MD’s letter. Complainant sent the e-mail from her personal e-mail address to S1’s Agency e-mail. 0120150575 3 In her e-mail, Complainant asked S1 to reply to the personal e-mail address stating that he received her letter. She also asked S1 to call her at home if he had any questions. On October 20, 2011, MD wrote S1 to inform him that Complainant's condition had stabilized, and he anticipated that she could return to work on Monday, October 24, 2011. On October 23, 2011, Complainant again e-mailed S1 using her personal e-mail address to ask whether he had received MD’s October 20 letter. In her email, Complainant asked whether there were any tasks that would require her immediate attention when she returned to work on October 24. Complainant re-sent the same e-mail the following morning, October 24, from her work e-mail address. On November 1, 2011, MD wrote that Complainant's disability prevented her from commuting and ambulating in an office. He ruled out the use of a wheelchair due to her hand and arm weakness. MD recommended that Complainant permanently telework. Complainant returned to work. On or about November 30, 2011, she also received her annual performance appraisal in which S1 rated her performance element as “Excellent,” and rated her overall performance as “Successful.” On December 5, 2011, Complainant e-mailed S1, her second-line supervisor (S2) and a Human Resources Specialist (HR) to contest her evaluation. HR responded that to contest her appraisal, she should contact her union representative (U1). Complainant was seen again by MD on December 6, 2011, who determined that her condition required that she take an indefinite medical leave. The same day, a social worker (SW) who was working with MD, e-mailed S1 and S2 to inform them that Complainant would be out of work on an indefinite leave of absence due to her medical condition. SW’s email directed that “[Complainant] has been ordered by her neurologist to take a break and recuperate with no disruptions.” During her absence from work, S1 communicated with MD about the nature of Complainant’s disability and possible reasonable accommodations. Their correspondence focused on an alternative work schedule for Complainant. During that correspondence, MD told S1 that Complainant would be able to return to work on January 18, 2012. S1 told MD that Complainant’s work was mission critical, and that she was needed on Mondays and Fridays. Any alternative work schedule in which she was absent on Mondays or Fridays was not acceptable. On Friday, January 13, 2012, Complainant e-mailed S1 and S2 using her personal e-mail address. She stated that, in contrast to what S1 claimed, prior to 2010 she had always worked a compressed work schedule in which her regular day off was on Monday. She claimed that her work schedule was changed in 2010, and her subsequent attempts to alter it back had been denied, as recently as November 2011. Finally, she framed the need for Mondays as a day off in the context of her disability, stating that she required three days out of work to recuperate and reduce the chance of a disability-related injury. S1 responded to Complainant's e-mail from her personal e-mail address the following day. He told Complainant that he was happy to have her back to work, and that there would be a staff meeting that Wednesday. He suggested that she call in to listen to the meeting. On the alternate work schedule issue, he informed her that having every Monday off was not an option, given their work requirements. He suggested three options: (1) a four-day compressed 0120150575 4 work schedule with a regular day off on Tuesday, Wednesday, or Thursday; (2) her current alternate work schedule of every other Monday off; or (3) a regular 40-hour work week. Complainant responded to S1’s e-mail with a proposed fourth option, where she worked a compressed work schedule, with her regular day off alternating each week between Mondays and Tuesdays. On Tuesday, January 17, 2012, Complainant sent S1 another e-mail from her private e-mail account. In her e-mail, she reiterated her request for an alternating regular day off and asked S1 to confirm that he received her messages. The same day, Complainant and S1 traded another set of e-mails, also from Complainant’s personal e-mail. They confirmed the work arrangement Complainant proposed. Complainant also stated that she would not be returning to work based on their disagreement about Complainant’s proposed alternate work schedule. S1 sent Complainant a final e-mail on January 17 stating that he spoke with his supervisors and they determined that any work schedule in which Complainant would be absent on Mondays or Fridays would not be in keeping with the Agency’s mission requirements. He asked Complainant to speak with her medical team and advise. On January 19, 2012, U1 e-mailed S1 and S2 to inform them that the union was representing Complainant. In his e-mail, U1 stated that, pursuant to MD, all correspondence concerning Complainant must be sent through him. On January 21, 2012, S1 e-mailed Complainant. He sent the message to Complainant’s work and personal e-mail, and he copied U1 in the body of the message. S1 reminded Complainant to fill out the SF-71, requesting leave, if she intended to be out the following week. He also stated that the Agency would be meeting with U1 the following week to discuss Complainant’s alternate work schedule. S1 wrote Complainant on February 2, 2012, stating that the Agency was willing to try, on a provisional basis, Complainant's proposal of a compressed work schedule, with alternating regular days off on Monday and Tuesday. He requested additional information about Complainant’s medical restrictions and diagnoses by no later than February 17, 2012. He also reminded Complainant that he expected her to return to work on February 6, 2012, and that if she did not return to work, her absence would be identified as Absent Without Leave until she produced updated medical records. In response, Complainant stated that S1’s letter contained inaccurate information about her request to change her schedule. Complainant referred S1 to U1, who she stated would speak with him about their ongoing dispute. S1 and U1 met on February 3, 2012. They agreed that Complainant could have a compressed work schedule where her regular day off was on Mondays. Due to concerns about its impact on the department, they agreed to a 90-day trial, with an assessment in 60 days. Finally, S1 approved Complainant’s sick leave through February 12, 2012. The Agency approved Complainant’s 20l2 and 2013 request for 100% telework from home. Complainant’s 2012 telework agreement, approved in March 2012, states that Complainant also works a compressed work schedule, with her regular day off on Monday. 0120150575 5 ANALYSIS AND FINDINGS In rendering this appellate decision, we must scrutinize the AJ’s legal and factual conclusions, and the Agency’s final order adopting them, de novo. See 29 C.F.R. § 1614.405(a) (stating that a “decision on an appeal from an Agency’s final action shall be based on a de novo review . . .”); see also Equal Employment Opportunity Management Directive for 29 C.F.R. Part 1614 (EEO MD-110), at Chap. 9, § VI.B. (Aug. 5, 2015) (providing that an administrative judge’s determination to issue a decision without a hearing, and the decision itself, will both be reviewed de novo). This essentially means that we should look at this case with fresh eyes. In other words, we are free to accept (if accurate) or reject (if erroneous) the AJ’s, and Agency’s factual conclusions and legal analysis – including on the ultimate fact of whether intentional discrimination occurred, and on the legal issue of whether any federal employment discrimination statute was violated. See id. at Chapter 9, § VI.A. (explaining that the de novo standard of review “requires that the Commission examine the record without regard to the factual and legal determinations of the previous decision maker,” and that EEOC “review the documents, statements, and testimony of record, including any timely and relevant submissions of the parties, and . . . issue its decision based on the Commission’s own assessment of the record and its interpretation of the law”). We must determine whether it was appropriate for the AJ to have issued a decision without a hearing on this record. The Commission's regulations allow an AJ to issue a decision without a hearing when he or she finds that there is no genuine issue of material fact. 29 C.F.R. § 1614.109(g). This regulation is patterned after the summary judgment procedure set forth in Rule 56 of the Federal Rules of Civil Procedure. The U.S. Supreme Court has held that summary judgment is appropriate where a court determines that, given the substantive legal and evidentiary standards that apply to the case, there exists no genuine issue of material fact. Anderson v. Liberty Lobby, Inc., 477 U.S. 242, 255 (1986). In ruling on a motion for summary judgment, a court’s function is not to weigh the evidence but rather to determine whether there are genuine issues for trial. Id. at 249. The evidence of the non-moving party must be believed at the summary judgment stage and all justifiable inferences must be drawn in the non-moving party’s favor. Id. at 255. An issue of fact is "genuine" if the evidence is such that a reasonable fact finder could find in favor of the non-moving party. Celotex v. Catrett, 477 U.S. 317, 322-23 (1986); Oliver v. Digital Equip. Corp., 846 F.2d 103, 105 (1st Cir. 1988). A fact is "material" if it has the potential to affect the outcome of the case. If a case can only be resolved by weighing conflicting evidence, issuing a decision without holding a hearing is not appropriate. In the context of an administrative proceeding, an AJ may properly consider issuing a decision without holding a hearing only upon a determination that the record has been adequately developed for summary disposition. See Petty v. Dep’t of Def., EEOC Appeal No. 01A24206 (July 11, 2003). Finally, an AJ should not rule in favor of one party without holding a hearing unless he or she ensures that the party opposing the ruling is given (1) ample notice of the proposal to issue a decision without a hearing, (2) a comprehensive statement of the allegedly undisputed material facts, (3) the opportunity to respond to such a statement, and (4) the chance to engage in discovery before responding, if 0120150575 6 necessary. According to the Supreme Court, Rule 56 itself precludes summary judgment “where the [party opposing summary judgment] has not had the opportunity to discover information that is essential to his opposition.” Anderson, 477 U.S. at 250. In the hearing context, this means that the administrative judge must enable the parties to engage in the amount of discovery necessary to properly respond to any motion for a decision without a hearing. Cf. 29 C.F.R. § 1614.109(g)(2) (suggesting that an administrative judge could order discovery, if necessary, after receiving an opposition to a motion for a decision without a hearing). Upon review of the record, we agree with the AJ’s findings and analysis as set forth below. Timeliness Issues On January 27, 2014, Complainant filed a document titled “additional charges that were previously dropped by the APG, EEO Office.” Complainant’s document recounted twelve incidents of alleged discrimination and harassment. In his decision, the AJ noted that many of these allegations were duplicative of the charges the Agency previously investigated, such as Complainant’s allegations of discrimination concerning the alternate work schedule, and the allegations of hostile work environment in the e-mail correspondence between S1 and Complainant. Others were new, such as the allegations of violations of the Health Insurance Portability and Accountability Act and overtime denial. The AJ concluded that such new allegations were untimely raised. We agree with the AJ’s findings with respect to these new allegations.2 Claim 1 – Denial of Reasonable Accommodation For the purposes of his decision, the AJ assumed, without deciding, that Complainant is a qualified individual with a disability, within the meaning of the Rehabilitation Act. The AJ noted that Complainant presented no evidence to support her contention that she was ever 2 We note that one of these allegations concerns Complainant’s claim that the Aberdeen Proving Ground facilities (offices and restrooms) are not accessible to the disabled. If Complainant believes that the facilities remain inaccessible, she may wish to pursue filing a complaint with the U.S. Access Board for the failure of the Agency to ensure its compliance with the Architectural Barriers Act (ABA), which requires that the design, construction, and alteration of Federal buildings be done in an accessible manner. See 42 U.S.C. §§ 4151 et seq. See also Gondos v. Dep't of Health and Human Services, EEOC Request No. 0520120589 (Feb. 25, 2015) (agency failure to insure that newly-constructed facility was accessible to complainant on move-in date stated a claim of failure to reasonably accommodate); Latarsha A. v. Fed. Energy Regulatory Comm., EEOC Appeal Nos. 0120123215 & 0120131079 (March 15, 2016) (Complainant was denied a reasonable accommodation when agency did not insure that agency facility met standards of accessibility under the Rehabilitation Act). 0120150575 7 denied full-time telework. In fact, the record contains documentary and testimonial evidence to the contrary. The AJ further noted that Complainant’s statements to the EEO investigator suggested that she may have been conflating a denial of telework with a denial of an alternate work schedule for which her regular day off would be on Mondays. To the extent that Claim 1 includes such an allegation, the AJ concluded that Complainant’s claim was unsuccessful in that she could not show an adverse employment action. The AJ noted that the record showed that the parties engaged in discussions regarding reasonable accommodations, discussions which resulted in Complainant obtaining the reasonable accommodation that she initially proposed. Specifically, the undisputed record shows that in January 2012, both Complainant and S1 were engaging in the interactive process to determine whether the Agency could provide Complainant with a reasonable accommodation of an alternate work schedule. The process began when MD requested on Complainant’s behalf a reasonable accommodation of a compressed work schedule with Complainant’s regular day off on Mondays. S1 informed Complainant’s representatives, and then Complainant directly when she contacted him, that her proposal would create an undue hardship. Complainant proposed an alternate work schedule of a compressed work week with her regular day off alternating between Monday and Tuesday. On February 2, 2012, S1 granted that request. The same day, Complainant wrote to S1 to state that she did not make that request for an alternate work schedule. The following day, S1 informed Complainant that, after discussion with her union representative, her initial request of a compressed work schedule with a regular day off on Mondays was granted. The AJ noted that Complainant had not disputed the authenticity of the documentary evidence or presented contrary evidence. Claim 2 – Denial of Union Representation The AJ concluded that the record was devoid of evidence suggesting that Complainant’s disability was connected to the alleged denial of union representation. The AJ noted that the undisputed record showed that in January and February 2012, U1 represented Complainant in her reasonable accommodation dispute with the Agency, U1 held himself out to be Complainant’s agent, and he negotiated the alternative work schedule Complainant requested. The record is devoid of evidence that U1 ever stopped being her representative. Further, the AJ noted that Complainant stated in her submission to the EEO Counselor in November 2012 that U1 was her representative and he hand-delivered her complaint to the EEO Counselor. However, the AJ concluded that even assuming without deciding that at some point in February 2012, U1 decided to no longer represent Complainant, she offered no evidence to suggest that the reason for this decision was discrimination on the part of the Agency. Claim 3 – Emails Between Complainant and S1 Complainant described her e-mail exchanges with S1 as creating a hostile work environment. Specifically, she alleged that S1 created a hostile work environment by: (a) denying an alternate work schedule; (b) sending-mails to Complainant's personal computer, using her 0120150575 8 personal e-mail address, and giving her personal e-mail address to the Civilian Personnel Advisory Center; (c) requesting unnecessary medical documentation from her physicians; and (d) disseminating her confidential medical information by giving her telework agreement to third parties. The AJ concluded that Complainant’s allegations were insufficient to create a hostile work environment. Specifically, the AJ stated that even if true, Complainant’s claims were not objectively offensive, and had neither the severity nor the pervasiveness necessary to create a hostile work environment. First, the AJ noted that Complainant initiated the e-mail communications with S1. The record showed that she e-mailed him from November 2011 through January 2012 using her personal computer and personal e-mail address to discuss her disability, reasonable accommodations, and time and attendance matters. While the content of the communications deal with Complainant’s disability, the AJ noted that nothing in the communications themselves were objectively offensive or derogatory. Second, the AJ noted that S1 had a duty through the Rehabilitation Act to engage in the interactive process with Complainant once she indicated that she needed a reasonable accommodation. The record shows that S1 proposed three options for alternate work plans. As he stated in his email, these proposals were all made in the context of the Agency’s need for a point of contact to be available to do travel matters on Mondays. The record shows that Complainant rejected S1’s proposals. Complainant insisted on her preferred work schedule, both directly and through her union representative. The AJ found that nothing about that e-mail exchange reflected harassment rising to the level of a hostile work environment. The AJ also concluded that S1’s request for medical records was appropriate under the Rehabilitation Act. The AJ noted that the Agency’s inquiries were spurred by Complainant’s two requests for reasonable accommodations (i.e., an alternate work schedule and frequent breaks during her work day). The AJ also noted that S1's inquiries were directed to the specific concerns Complainant raised in her communications with him and found nothing about his inquiry constituted harassment based on disability. With respect to Complainant’s allegation of harassment concerning the dissemination of her medical information, the AJ noted that the Rehabilitation Act provides that employers may be informed concerning necessary medical restrictions of employee work duties and necessary accommodations. See 42 U.S.C. § 12112(d)(4), incorporating 42 U.S.C. § 12112(d)(3)(B). The AJ further noted that the undisputed record shows that the people Complainant alleged should not have access to her telework agreement were human resources personnel who had a right to have this information. The AJ concluded that Complainant had not established the objectively severe or pervasive element for a hostile work environment claim based solely on the allegation that a human resources person reviewed her telework agreement. Claim 4 - LWOP for 4.25 hours on January 14, 2012 The AJ concluded that Claim 4 was unsuccessful because there was no adverse employment action established. Specifically, the AJ noted that Complainant alleged that S1 placed her on leave without pay on January 14, 2012. However, January 14, 2012 was a Saturday which was not one of Complainant’s work days. The documentary evidence in the record indicates that Complainant was on medical leave for the whole week preceding January 14, 2012. In 0120150575 9 addition, the Agency's time and attendance records show that Complainant was on paid leave on January 13, 2012. The AJ further noted that Complainant had not offered contradictory evidence to the Agency's claims, or suggested that the documents reflecting her time and attendance were not accurate. Complainant also did not move to amend her complaint to a different date. Claim 5 – Performance Appraisal Assuming the facts in the light most favorable to Complainant, the AJ concluded that the record is devoid of evidence of disability animus on the part of the responsible management official. The AJ also noted that Complainant offered no comparators (outside of her protected class) who received a higher rating. Lastly, the AJ concluded that the comment that an employee must “walk on water” to get a higher rating was insufficient (without more) to prove discriminatory animus. CONCLUSION After a review of the record in its entirety, including consideration of all statements submitted on appeal, it is the decision of the Equal Employment Opportunity Commission to AFFIRM the Agency's final order, because the Equal Employment Opportunity Commission Administrative Judge’s issuance of summary judgment was appropriate and a preponderance of the record evidence does not establish that discrimination occurred. STATEMENT OF RIGHTS - ON APPEAL RECONSIDERATION (M0416) The Commission may, in its discretion, reconsider the decision in this case if the Complainant or the Agency submits a written request containing arguments or evidence which tend to establish that: 1. The appellate decision involved a clearly erroneous interpretation of material fact or law; or 2. The appellate decision will have a substantial impact on the policies, practices, or operations of the Agency. Requests to reconsider, with supporting statement or brief, must be filed with the Office of Federal Operations (OFO) within thirty (30) calendar days of receipt of this decision or within twenty (20) calendar days of receipt of another party’s timely request for reconsideration. See 29 C.F.R. § 1614.405; Equal Employment Opportunity Management Directive for 29 C.F.R. Part 1614 (EEO MD-110), at Chap. 9 § VII.B (Aug. 5, 2015). All requests and arguments must be submitted to the Director, Office of Federal Operations, Equal Employment Opportunity Commission. The requests may be submitted via regular mail to P.O. Box 77960, Washington, DC 20013, or by certified mail to 131 M Street, NE, Washington, DC 20507. In 0120150575 10 the absence of a legible postmark, the request to reconsider shall be deemed timely filed if it is received by mail within five days of the expiration of the applicable filing period. See 29 C.F.R. § 1614.604. The request or opposition must also include proof of service on the other party. Failure to file within the time period will result in dismissal of your request for reconsideration as untimely, unless extenuating circumstances prevented the timely filing of the request. Any supporting documentation must be submitted with your request for reconsideration. The Commission will consider requests for reconsideration filed after the deadline only in very limited circumstances. See 29 C.F.R. § 1614.604(c). COMPLAINANT’S RIGHT TO FILE A CIVIL ACTION (S0610) You have the right to file a civil action in an appropriate United States District Court within ninety (90) calendar days from the date that you receive this decision. If you file a civil action, you must name as the defendant in the complaint the person who is the official Agency head or department head, identifying that person by his or her full name and official title. Failure to do so may result in the dismissal of your case in court. “Agency” or “department” means the national organization, and not the local office, facility or department in which you work. If you file a request to reconsider and, also file a civil action, filing a civil action will terminate the administrative processing of your complaint. RIGHT TO REQUEST COUNSEL (Z0815) If you want to file a civil action but cannot pay the fees, costs, or security to do so, you may request permission from the court to proceed with the civil action without paying these fees or costs. Similarly, if you cannot afford an attorney to represent you in the civil action, you may request the court to appoint an attorney for you. You must submit the requests for waiver of court costs or appointment of an attorney directly to the court, not the Commission. The court has the sole discretion to grant or deny these types of requests. Such requests do not alter the time limits for filing a civil action (please read the paragraph titled Complainant’s Right to File a Civil Action for the specific time limits). FOR THE COMMISSION: ______________________________ Carlton M. Hadden’s signature Carlton M. Hadden, Director Office of Federal Operations April 21, 2017 Date Copy with citationCopy as parenthetical citation