Document ID: s3://data.kl3m.ai/documents/govinfo/USCOURTS/USCOURTS-cand-3_16-cv-03487/USCOURTS-cand-3_16-cv-03487-0/pdf.json

Parties Involved:
Sheila Blackman-Baham
Plaintiff
Jeh Johnson
Defendant
John F. Kelly
Defendant

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United States District Court

Northern District of California

UNITED STATES DISTRICT COURT

NORTHERN DISTRICT OF CALIFORNIA

SHEILA BLACKMAN-BAHAM,

Plaintiff,

v.

JOHN F. KELLY, Secretary of the

Department of Homeland Security

Defendant.

Case No. 16-cv-03487-JCS 

ORDER GRANTING IN PART AND

DENYING IN PART MOTION TO 

DISMISS

Re: Dkt. No. 20

I. INTRODUCTION

Plaintiff Sheila Blackman-Baham, an employee of the Federal Emergency Management 

Agency (―FEMA‖), brings this action against the Secretary of the Department of Homeland 

Security1based on alleged employment discrimination based on age, race, sex, and disability and 

retaliation for prior EEO activity. Defendant has brought a Motion to Dismiss (―Motion‖) 

seeking dismissal of Plaintiff‘s complaint for failure to exhaust administrative remedies under 

Rule 12(b)(1) and failure to state a claim under Rule 12(b)(6). The Court vacated the hearing 

pursuant to Civil Local Rule 7-1(b) and took the Motion under submission. See Docket No. 28. 

For the reasons stated below, the Motion is GRANTED in part and DENIED in part.

2

II. BACKGROUND

A. The First Amended Complaint

Plaintiff began working for FEMA on October 10, 2010. First Amended Complaint 

(―FAC‖) ¶ 6(b). She alleges that Defendant ―started harassing, and making plaintiff‘s working 

 

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John Kelly has replaced Jeh Johnson as Secretary of the Department of Homeland Security and is 

therefore substituted as a defendant. See Fed. R. Civ. P. 25(d).

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The parties have consented to the jurisdiction of the undersigned United States magistrate judge 

pursuant to 28 U.S.C. § 636(c). 

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environment hostile, as early as her first couple of months‖ in retaliation for her ―prior EEO 

activity.‖ Id. ¶ 6(c). This retaliation allegedly included ―attempt[ing] to disqualify [P]laintiff

for re-employment, . . . interviewing [her] physicians, neighbors, [and] landlords[,] suggesting 

negative characteristics about [her][,] [a]ccusing [her] of acting disrespectfully, or not 

cooperating‖ and ―denying [her] training and promotional opportunities.‖ Id.; see also id. ¶ 6(d) 

(alleging that in March 2011 Defendant ―harassed plaintiff[ ] about her reinvestigation‖) & (e) 

(alleging that in April 2011 Defendant ―denied plaintiff consideration for a promotional 

opportunity, while forcing plaintiff to perform the duties of the higher grade position for almost 90 

days, without promotional pay‖).

Plaintiff further alleges that in September 2011, Defendant ―denied [her] training 

opportunities and additional pay, to process the first wrongful termination,‖ id. ¶ 6(f), ―barred 

[P]laintiff from her workspace, and charged her almost two weeks of Leave Without Pay.‖ Id. ¶

6(g). According to Plaintiff, Defendant ―improperly stated facts to MSPB‖ in connection with the 

two weeks of leave without pay, causing the MSPB to rule in Defendant‘s favor based on this 

inaccurate information. Id. ¶ 6(g). Plaintiff also alleges that Defendant ―attempted to wrongfully 

terminate plaintiff as a probationary employee, based on her period of unemployment and illness.‖ 

Id. ¶ 6(i). Plaintiff further alleges that Defendant ―posted termination documents on [her] 

residence in plain view of Plaintiff‘s neighbors or anyone else to see.‖ Id. ¶ 6(h). According to 

Plaintiff, Defendant ―was allowed to retract the [termination] when plaintiff proved she was in fact 

an employee, not subject to a probation period.‖ Id. ¶ 6(i).3

Plaintiff alleges that in January 2012, Defendant wrongfully terminated her a second time, 

based on her debts during her time of unemployment and illness, and that this decision caused her 

and her family to become homeless. Id. ¶ 6(j). This decision was overturned by the MSPB in 

 

3As discussed below, Plaintiff filed two MSPB appeals during this period, one on November 2, 

2011 challenging her termination and another on December 11, 2011 seeking back pay for the 

two-week period referenced above on the basis that she had been constructively suspended from 

duty. See RJN, Exs. A & C. In the first MSPB proceeding, FEMA conceded Plaintiff was not a 

subject to a probationary period and reinstated Plaintiff with back pay. In the second MSPB 

proceeding, the Administrative Judge concluded that Plaintiff‘s absence from work during the 

two-week period was voluntary and therefore did not constitute a constructive suspension. 

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August 2013, at which time Plaintiff was restored to her position. Id. ¶ 6(k). 

Plaintiff also alleges that Defendant mischaracterized her EEO claims (discussed below), 

tried to direct Plaintiff to the wrong place to file her EEOC case, and attempted to mislead the 

EEOC into believing that she had abandoned her claims. Id. ¶ 6(l)-(n). Plaintiff further alleges 

Defendant has continued to ―harass, not promote and discriminate[ ] against [P]laintiff continually 

since her return [to work] in August 2013.‖ Id. ¶ 6(o). 

Plaintiff alleges that the EEOC issued an ―Order/Dismissal in Favor of U.S. District Court 

Action‖ on March 24, 2016. Id. ¶ 7. She initiated this action on June 22, 2016, when she filed the 

original complaint. She filed her FAC on September 30, 2016.

Plaintiff alleges that Defendant discriminated against her based on her age, sex, race,

gender and ―physical/mental disabilities.‖ Id. ¶ 5.4 She also asserts a retaliation claim based on 

her prior EEO activity (discussed below). She asserts the following claims in the FAC:

1) Claim One: Violation of Title VII of the Civil Rights Act of 1964, 42 U.S.C. §§ 2000e 

et seq. (―Title VII‖), the Age Discrimination in Employment Act of 1967, 29 U.S.C. § 633a 

(―ADEA‖), and the Rehabilitation Act of 1973, 29 U.S.C. § 791 (―Rehabilitation Act‖) based on

the allegation that Defendant ―processed two wrongful terminations against [P]laintiff, because 

she was unemployed and ill for almost two years and had debt, violating [P]laintiff‘s due process 

rights.‖ FAC ¶ 9. In this claim, Plaintiff alleges that she is a ―tenured disabled employee who is 

in a protected class‖ but does not specifically identify a particular protected class. Id. 

2) Claim Two: Failure to consider Plaintiff for a promotional opportunity, in violation of 

Rehabilitation Act and the Lilly Ledbetter Fair Pay Act of 2009 (Pub.L. No. 111–2) (―LLA‖) 

based on the allegation that she ―was denied consideration for a promotion and career 

advancement opportunity, although she had completed almost 90 days in the [position], without 

the additional higher grade of pay.‖ Id. ¶ 11. Plaintiff does not identify the type of discrimination 

she contends led to Defendant‘s failure to consider her for promotion and career advancement.

 

4Although Plaintiff does not allege specific facts in her complaint relating to her age, race or 

disability, she states in her December 19, 2011 EEO Complaint that she was born in May 1963, 

that she is African-American and that she suffers from depression and chronic hip and knee pain. 

Wallace Decl., Ex. A.

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3) Claim Three: Retaliation for prior EEO activity, in violation of Title VII 

and the ADEA based on the allegation that ―[d]uring [P]laintiff‘s interview with the investigator, 

and during the process of [P]laintiff‘s investigation, [P]laintiff was harassed about her ongoing 

EEO case.‖ Id. ¶

4) Claim Four: Disability Discrimination in violation of Rehabilitation Act and the LLA

based on allegation that ―Plaintiff was denied training opportunities, which were later used against

[her] future [deployability] . . .[w]hile other‘s outside plaintiff‘s protected class were trained, and 

entitled to additional pay.‖ Id. ¶ 15. 

5) Claim Five: Failure to afford Plaintiff additional wages, in violation of the

Rehabilitation Act of 1973 and Fair Pay Act of 2009 based on allegation that Defendant 

―prevented [P]laintiff from deploying to disaster declarations, which prevented [P]laintiff from 

earning additional wages, which were tax free . . . [w]hile other similar[ly] situated contract 

specialists not in plaintiff‘s protected class were not treated the same.‖ Id. ¶ 17. Again, Plaintiff 

does not identify a specific ―protected class.‖ 

6) Claim Six: Hostile working environment in violation of the Title VII, the ADEA and 

the Rehabilitation Act based on allegation that Defendant ―subject plaintiff to harsh working 

conditions and hostile environments, while violating [P]laintiff‘s due process rights‖ even though 

Plaintiff ―was a tenured disabled employee and the defendant was well aware of [Plaintiff‘s] 

medical conditions.‖ Id. ¶ 19.

7) Claim Seven: Disparate Treatment in violation of the Title VII, the ADEA and the 

Rehabilitation Act based on allegation that Plaintiff is a ―tenured qualified disabled employee, 

who is in a protected class‖ and ―was subjected to discriminatory treatment, different from other

employees who were not in her protected class, but were similarly situate[ed].‖ Id. ¶ 21. Plaintiff 

does not identify the specific type of discrimination alleged under this claim.

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B. Administrative Proceedings5

As set forth below, Plaintiff filed MSPB Appeals challenging her terminations in 2011 and 

2012, as well as a another MSPB appeal challenging FEMA‘s failure to pay her wages for the 

two-week period leading up to her first termination. In addition, following EEO counseling, she 

filed a formal EEO complaint on December 10, 2011 (culminating in the March 24, 2016 Order/

Dismissal in Favor of U.S. District Court Action) (―First EEO Complaint‖) and another EEO 

Complaint on April 11, 2016 (―Second EEO Complaint‖), which is still pending.

1. The November 2, 2011 MSPB Appeal

On October 6, 2011, Plaintiff was officially terminated from her position of contract 

specialist with FEMA, which is part of the Department of Homeland Security (―Agency‖), based 

on her failure to pass a background investigation conducted by the Office of Personnel 

Management (―OPM‖) and her status as a probationary employee. See Opposition, Ex. 6 (October 

6, 2011 Letter entitled ―Notice of Decision to Terminate during Probationary Period‖); RJN, Ex. 

B (February 9, 2012 Initial Decision). On November 2, 2011, Plaintiff filed an MSPB Appeal 

challenging her termination on the ground that she was hired under the Agency‘s reinstatement 

authority because of her prior Federal service with the Department of the Navy and therefore was 

not subject to a probationary period. RJN, Ex. A (November 2, 2011 Appeal) & B (February 9, 

2012 Initial Decision). The Agency conceded that Plaintiff was not, in fact, ―in a probationary 

 

5 Defendant has requested that the Court take judicial notice of: 1) three Merit System Protection 

Board (―MSPB‖) appeals filed by Plaintiff and the Initial Decisions issued as to those appeals; and 

2) a series of email exchanges between Plaintiff and two EEO Specialists at FEMA related to the 

scope of Plaintiff‘s EEO claims. See Docket Nos. 20-2 and 26-2. Plaintiff also submitted 

documents related to her administrative proceedings. See Exhibits 1-25 to Plaintiff‘s Opposition 

brief, Docket Nos. 24-1 and 24-2. Defendant did not object to Plaintiff‘s reliance on these 

documents or question their authenticity. Likewise, Plaintiff did not object to Defendant‘s requests 

or question the authenticity of the documents Defendant filed in support of the Motion. Therefore, 

the Court takes judicial notice of all of the extra-pleading documents submitted by the parties on 

the basis that they are ―records and reports of administrative bodies.‖ See Interstate Nat. Gas Co. 

v. S. California Gas Co., 209 F.2d 380, 385 (9th Cir. 1953); see also Lacayo v. Donahue, No. 14-

cv-4077 JSC, 2015 WL 993448 (Mar. 4, 2015, N.D. Cal.) (―The extrinsic evidence that Defendant 

submitted all pertains to Plaintiff‘s administrative proceedings with the EEO; thus, all are either 

referenced in the complaint or matters of public record and properly considered on either a 

12(b)(1) or 12(b)(6) motion to dismiss.‖). 

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period‖ in its November 25, 2011 response and that it had followed improper procedures in 

terminating Plaintiff. RJN, Ex. B (February 9, 2012 Initial Decision) at 3. It rescinded the 

termination and paid Plaintiff back-pay from the date of termination, October 6, 2011. Id. 

The presiding Administrative Judge (―AJ‖) then issued an order to show cause why the 

appeal should not be dismissed as moot on the basis that the status quo ante had been restored. Id. 

Plaintiff did not respond or provide any evidence that she was entitled to compensatory damages 

or any further relief beyond that which had already been provided. Id. at 5. The AJ concluded the 

appeal was moot because the Agency had ―granted status quo ante relief regarding back pay, 

interest and by placing the appellant in a paid status.‖ Id. at 7. Consequently, the AJ found that the 

MSPB could ―not assert jurisdiction over the rescinded action.‖ Id. at 13; see also id. at 1 (―There 

has been no determination that the Board has jurisdiction over this appeal‖). The Initial Decision 

also included a notice informing Plaintiff that it would become the final decision of the MSPB on 

March 15, 2012 and explaining her options for appealing the decision. 

Plaintiff does not allege that she challenged the AJ‘s Initial Decision or that she pursued 

any claims related to the termination in any other forum and there is nothing in the record that 

suggests that she did. 

2. The December 13, 2011 MSPB Appeal

On September 16, 2011, two weeks prior to the termination that was the subject of the 

MSPB appeal discussed above, Plaintiff learned that her scheduled deployment to a disaster site in 

Connecticut was being cancelled and that the Agency planned to terminate her based on her failure 

to pass the background investigation discussed above. RJN, Ex. D (April 10, 2012 Initial 

Decision) at 13. Plaintiff did not return to work prior to her official termination, on October 6, 

2011, and in her December 13, 2011 MSPB appeal she alleged that she had been barred from her 

workplace without pay, amounting to a constructive suspension. RJN, Ex. C (December 13, 2011 

MSPB Appeal) at 3. In her MSPB Appeal, she sought back-pay and benefits for this two-week 

period. The AJ considered the evidence presented by Plaintiff and the Agency and dismissed 

Plaintiff‘s claim for lack of jurisdiction on the basis of her finding that Plaintiff had voluntarily 

failed to report for duty and had not been constructively suspended from duty. Id. at 23 (―The 

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Board has no jurisdiction over the voluntary decision of an employee not to report for duty‖).

Like the previous decision by the AJ, the December 13, 2011 Initial Decision included a 

notice explaining to Plaintiff how she could appeal that decision. Again, Plaintiff does not allege 

that she took any further action in connection with this two-week period in any forum and there is 

nothing in the record that suggests that she did.

3. The April 20, 2012 MSPB Appeal

On March 21, 2012, the Agency again terminated Plaintiff from her FEMA position. RJN, 

Ex. F (May 29, 2013 Initial Decision) at 5. The Agency cited her failure to pass the background 

investigation discussed above, finding that certain unpaid debts showed that she had engaged in 

dishonest conduct and therefore, that she did not meet the ―suitability‖ requirement for her 

position. RJN, Ex. F (May 29, 2013 Initial Decision) at 5-8. Plaintiff filed an MSPB appeal 

challenging that termination on April 20, 2012. RJN, Ex. E (April 20, 2012 MSPB appeal). 

Whereas the Agency had followed the wrong procedures in terminating Plaintiff on October 6, 

2011, the March 21, 2012 termination was carried out according to the procedures that apply to 

non-probationary employees. See RJN, Ex. F (May 29, 2013 Initial Decision) at 5-6. Because 

the Agency apparently followed the correct procedures with respect to this termination, the focus 

of the AJ‘s initial decision was on whether the Agency‘s suitability determination was proper. 

She found that it was not. Id. at 18. 

The AJ examined in detail the specific debts that were the subject of the Agency‘s 

conclusion, which included certain unpaid taxes as well as various debts owed to other creditors. 

Id. at 16-19. As to the circumstances which gave rise to these debts, the AJ credited Plaintiff‘s 

testimony that the ―debts arose initially because illness forced her to reduce her work hours, and 

continued because extended unemployment significantly reduced her income.‖ Id. at 16. The AJ 

further found that Plaintiff ―engaged in a good faith effort to pay her taxes,‖ that there was ―no 

indication of fraud or deceit in the acquisition of any of her debts,‖ and that while Plaintiff‘s 

―circumstances have been difficult, including homelessness, continued depression and lack of 

resources, she testified that has obtained some employment which has enabled her to make efforts 

to satisfy the remaining debt.‖ Id. at 18. The AJ therefore concluded that Plaintiff‘s ―reduced 

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income, extended unemployment, and physical and mental illness fully explain[ed] her financial 

circumstances‖ and that the Agency had not met its burden of showing that Plaintiff was 

unsuitable for Federal service due to dishonesty. Id. The AJ sustained Plaintiff‘s charge and 

ordered that the Agency restore Plaintiff to her position at FEMA retroactive to March 22, 2012. 

Id. at 19. Again, Plaintiff did not pursue any further challenges in any forum based on her second 

termination.

4. The December 19, 2011 EEO Complaint

On October 19, 2011, Plaintiff sought EEO counseling – a prerequisite to filing a formal 

EEO complaint. See Wallace Decl., Ex. A (December 19, 2011 EEO Complaint showing that 

Plaintiff first contacted an EEO counselor on October 19, 2011). She was assigned an EEO 

counselor, Stacy Merriwether. Opposition, Ex. 3 (October 31, 2011 email from Mr. Merriwether 

informing Plaintiff that he had been assigned as her EEO counselor). Mr. Merriwether‘s email 

indicated that Plaintiff sought counseling both as to the October 6, 2011 termination and as to an 

alleged hostile work environment. Id. When Plaintiff filed her formal EEO Complaint, however, 

on December 19, 2011 (almost a month after the Agency had rescinded the October 6, 2011 

termination) she did not list her October 6, 2011 termination in her description of the conduct that 

was the basis of her discrimination claims. Wallace Decl. Ex. A (―December 19, 2011 EEO 

Complaint‖ or ―First EEO Complaint‖). Id.

In her First EEO Complaint, Plaintiff checked the following boxes for the bases of the 

alleged discrimination: 1) Race; 2) Sex; 3) Age; 4) Physical or Mental Disability; and 5) 

Retaliation/Reprisal for prior EEO activity. Id. In the margin next to the boxes, she wrote that her 

race is ―African-American,‖ her sex is ―Female,‖ her date of birth is ―5/X/63,‖ that her disability is 

―chronic pain hip/knee [illegible] Depression‖ and that her prior EEO activity was in ―2011, 

2008.‖ Id. Plaintiff identified the ―action taken against [her] that [she] believe[d] was 

discriminatory‖ in an attachment. Id. The attachment listed the following conduct in support of 

Plaintiff‘s discrimination claims:

1. Receipt of JPMorgan Chase Bank Statement: $34.26

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2. When my deployment was cancelled, it deprived me of overtime hours.

3. Defamation of character: 

11/9/10 - Debbie Lewis, Celesta Cook accused me of time-card

fraud.

12/30/10 - Celesta questioning my therapy appointment and 

schedule.

1/28/l1 - When Debbie Lewis accused me of time card fraud

8/16/11 - When Cheryl Lipari told Kimberlee Brown ―on two 

occasions my behavior or communication was disrespectful or rude‖

7/25/11 When Cheryl Lipari told David Orris ―I had an attitude 

problem‖

6/21/11 – When Michael Lull told me to get approval of my work 

from another employee, who was not my technical Supervisor.

6/11/1 l - Within the ―Letter of Caution‖

4. Denial of training: CON215, CON353, Disaster Contracting

5. Letter of Caution: Michael Hull issued the letter; it alleged that Cheryl and et.al 

complained. The complaints were all about the Regional Contracting Officers duties, 

which I was not official, assigned or compensated for performing.

6. Non Selection: Personnel said ―I didn‘t qualify because I didn‘t have the training or 

education‖, they failed to request ―waiver‖. Ann# MG-2011-81 369-KJD-464993D/M

7. Tele- work denial: Michael Lull returned my request and said ―You need to provide 

additional doctor‘s explanation of how this schedule will help you, and explain your 

condition, whether its permanent or temporary‖.

8. Hostile Work Environment: 

11/9/10 Celesta Cook reported to Ameka Ali ―I failed to record my 

time correctly‖ time card fraud.

12/30/10 Celesta Cook questioned my working schedule again, 

although it had been approved the prior month.

1/28/11 When Debbie Lewis accused me of time card fraud

2/7/11 – When Cheryl Lipari told my supervisor in Headquarters ―I 

didn‘t follow proper procedures in having my training approved‖ 

and ―I had an attitude‖

2/22/11 –When Debbie Lewis refused to return my doctor‘s report

3/1/11 – When Cheryl Lipari‘s Administrative Specialist accused 

me of ―talking too loud‖

3/3/11 – When Celesta Cook called me into her office to inform me 

that ―Nancy Ward doesn‘t want me to represent her or Region IX‖.

4/11/11- When Fred Sanchez falsely accuses me of speaking 

disrespectfully to him, because I disagreed with his opinion

4/21/11 – When Michael Lull calls me into his office for counseling 

―Cheryl Lipari said she noticed you in the hall talking to employees, 

wasting time‖

4/21/11 – When Michael Lull told me ―you are not entitled to break 

by-laws‖

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Wallace Decl., Ex. A (First EEO Complaint). 

In a letter dated July 13, 2012, the Director of FEMA‘s Office of Equal Rights, Pauline 

Campbell, informed Plaintiff that her office had accepted Plaintiff‘s EEO claim of ―hostile work 

environment based on race (African American), sex (Female), age (5/1963), physical disability 

(Chronic Pain, Hip/knee Replacement), mental disability (Depression) and retaliation.‖ Wallace 

Decl., Ex. B (July 13, 2012 Letter). The letter listed the following incidents that the Office of 

Equal Rights understood to be the basis of Plaintiff‘s claim: 

 On August 16, 2011 and several occasions, you allege that your co-workers described you 

as ―disrespectful, rude and appeared to have an attitude problem‖ to your other co-workers.

 On June 21, 2011, you allege your supervisor told you to get approval of work from 

another employee that was not your supervisor. 

 On June 11, 2011, you allege you were issued a Letter of Caution that referenced 

complainants about your regional contracting duties.

 On June 11, 2011 and March 11, 2011, you allege that the Regional Administrator denied 

your training requests.

 On May 11, 2011, you allege that you were not selected for the Regional Contracting 

Officer position (MG-2011-81369-KJD-464993 D/M).

 On April 21, 2011, you allege you were called to your supervisor‘s office to be

admonished for ―wasting time.‖ You allege that your supervisor told you that you were not 

entitled to breaks by law.

 Sometime in early 2011, you allege that your supervisor denied your request for medical 

telework.

 On December 30, 2010, you allege that a co-worker questioned your therapy appointment 

and schedule.

 On November 19, 2010, you allege that your co-workers accused you of timecard fraud.

Wallace Decl., Ex. B (July 13, 2012 Letter). Plaintiff was informed that within five days she 

should submit ―written clarification‖ of her claims if she was ―not satisfied with the claims as 

identified‖ and that the Office of Equal Rights would assume that she was ―satisfied with‖ the 

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claims as stated if it did not hear from her. Id. 

On July 21, 2012, Plaintiff sent an email to Ms. Campbell informing her that she had 

received the July 13, 2012 letter but that she needed an extension on the deadline to respond 

because she was homeless and was ―unable to communicate other than hand writing and sending 

through the postal service.‖ Opposition, Ex. 22. She also explained that she could ―only get to the 

mailing address once the week‖ and asked that Ms. Campbell ―[p]lease consider [her] situation 

when sending correspondence to that address.‖ Id. 

On August 29, 2012 (after Plaintiff‘s second termination and before she had been restored 

to her position as a result of the second MSPB appeal), the EEO Investigator assigned to 

investigate Plaintiff‘s EEO Complaint, Eddie Neal, conducted an examination of Plaintiff, under 

oath, in connection with her EEO Complaint. See Wallace Decl., Ex. C (Affidavit). Mr. Neal 

sought to establish that Plaintiff‘s March 2012 termination was not part of Plaintiff‘s claim and the 

following exchange occurred:

Neal: Okay. Now what is your current status with the Department 

of Homeland Security?

Plaintiff: Terminated

Neal: Okay . . .I don‘t see the termination as part of what I am 

investigating. Was that filed as a separate claim?

Plaintiff: The termination had to be filed with the MSPB Board 

within thirty days after it was effected.

Neal: Okay. So –

Plaintiff: And they said I could not file an EEO on it if I was to file 

with the MSPB Board.

Neal: Okay. So I just wanted to make sure it wasn‘t part of what 

I‘m doing. Okay. Alright.

Id. at 3. 

In response to Plaintiff‘s September 3, 2012 email, EEO Specialist Kristena Jenkins sent 

Plaintiff an email on September 5, 2012 asking Plaintiff to call her to discuss her EEO claims. 

Reding Decl., Ex. I. Plaintiff responded that she would be unable to talk with Ms. Jenkins, 

however, and told her that all of the information about her claims could be found in the original 

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EEO complaint and Plaintiff‘s communications with Mr. Merriwether. Id.

On January 6, 2014, Pauline Campbell, of the Office of Equal Rights, sent Plaintiff a letter 

stating that her complaint was being amended to include ―added claims‖ and asked Plaintiff‘s 

permission to extend the 180-day deadline for investigation by 90 days. Opposition, Ex. 18. 

Plaintiff did not agree to the extension, however, stating in an email to Ms. Jenkins on February 

24, 2014 that she did not agree to the extension. Reding Decl. Ex. J. She stated: ―I am not sure 

what these  ̳added claims‘ are, and at this point I do not want to spend any additional time to 

investigate them. Therefore, please move forward with this email with the claims that the 

investigation is completed.‖ Id. 

On March 23, 2016, Plaintiff notified the EEOC that she had elected to pursue her

discrimination claim in federal district court rather than await a decision from the EEOC as her 

EEO complaint had been pending for more than 180 days. Wallace Decl., Ex. D. Accordingly, on 

March 24, 2016, an Administrative Judge of the EEOC issued an Order/Dismissal in Favor of U.S. 

District Court Action. Id. 

5. The April 11, 2016 EEO Complaint

On April 11, 2016, Plaintiff filed a second EEO complaint alleging discrimination on the 

basis of ―Race,‖ ―Color,‖ ―Physical or Mental Disability‖ and Retaliation/Reprisal for prior EEO 

activity. Wallace Decl., Ex. E. She also hand-wrote in the section for identifying the bases for 

alleged discrimination ―Hostile Working Environment; Continuing Violations.‖ In the attachment 

describing the basis for the claims, Plaintiff claimed she has been subject to ―Retaliation (2013-

2016); Disparate treatment (2013-2016); Denial of Training (2013-January 2016); Performance 

Appraisal 2015 (February 9, 2015); [and] Hostile working environment (2013-2016).‖ Id. She 

states that ―[c]ontinuing violations have been present‖ and lists the following 14 examples in 

support of her claim:

1. Calls from Angela Meeks prior to my arrival, then she basically ordered that I find

internet access to send her a list of things I needed to accommodate my disabilities.

However, equipment was not received until 2015.

2. On arrival back to work - Angela Meeks accused me of some sort of behavior, not

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resembling my personality or my professionalism.

3. Angela Meeks reported something wrong to Personnel Security regarding a threat made

to me.

4. Disparate treatment on the team I was placed on.

5. Toni/Joni/Angela/Chris - assign me to a ―Trainee‖ task book, despite my history with

FEMA or my past experiences.

6. No assignments as an 1102 until the end of 2015.

7. Accusations about a behavior and events that were not true.

8. My Performance evaluation for 2015 (when Angela Meeks attempted to add events that

were untrue). Then my rating not reflecting the removal of the negative untrue

information,

9. No deployments for three years

10. When finally deployed, no accommodations for my disabilities

11. While deployed my reasonable accommodations form sent to others.

12. While deployed my health conditions sent to others.

13. While deployed, harassed by deployed supervisor in various ways (task book, work

assignments, treated differently than others).

14. Various comments made by team-mates about me being crazy or a problem employee 

(2013-2016)

Wallace Decl., Ex. E. As of the date Plaintiff filed her complaint initiating this action the EEOC 

was still investigating her claim.

C. The Motion

In the Motion, Defendant asserts that Plaintiff‘s claims should be dismissed under Rule 

12(b)(1) for lack of subject matter jurisdiction on the basis that she failed to exhaust her 

administrative remedies. Motion at 2. Defendant further asserts that even if Plaintiff has satisfied 

the exhaustion requirement, Plaintiff‘s claims should be dismissed under Rule 12(b)(6) for failure 

to state valid claims. Id.

In arguing that Plaintiff failed to exhaust her administrative remedies, Defendant points to 

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the fact that Plaintiff challenged her two terminations in MSPB appeals, arguing that this 

constituted an irrevocable election to proceed in that forum and bars Plaintiff‘s claims in this 

action to the extent her claims are based on her terminations. Id. at 7-10. According to Defendant, 

all of the remaining claims of discrimination Plaintiff asserts in this action are subject to dismissal 

for failure to properly exhaust administrative remedies because all of the conduct listed in the 

December 19, 2011 EEO Complaint occurred more than 45 days before she initiated EEO 

counseling and therefore, her claims were untimely. Id. at 11. Defendant further contends 

Plaintiff is barred from asserting claims in this action based on her suspension and terminations, 

or the alleged failure to provide training in September 2011, see FAC ¶ 6(f), because she did not 

challenge these actions in her EEO complaint. Id. at 12-13. Finally, Defendant argues that 

Plaintiff has not alleged sufficient facts to support a plausible inference that she was subject to 

discrimination on the basis of sex, age, race or disability; nor, Defendant contends, has Plaintiff 

alleged facts sufficient to support an inference that she was retaliated against for EEO activity. Id. 

at 13-17.

In her Opposition brief, Plaintiff contends the EEOC omitted certain claims from its 

investigation of her December 19, 2011 EEO Complaint even though she notified the EEOC of the 

omitted claims on numerous occasions. Opposition at 15-16. In fact, Plaintiff asserts, all of the 

claims asserted in her FAC were submitted to the agency for EEO counseling within 45 days of 

the discriminatory conduct and included in her First EEO Complaint. Id. at 18. Plaintiff further 

asserts that she has alleged sufficient facts to state valid discrimination claims for the purposes of 

Rule 12(b)(6).

In its Reply brief, Defendant rejects Plaintiff‘s assertion that all of her claims in this action 

were raised within 45 days in her request for EEO counseling and included in the December 19, 

2011 EEO Complaint. Defendant further points to the fact that Plaintiff did not consent to a 90-

day extension of time to allow the EEOC to investigate ―added claims.‖ See Reding Decl., Ex. J. 

Defendant also argues that even if Plaintiff included her terminations in her EEO Complaint, she 

abandoned any claims based on the terminations by failing to cooperate and provide further 

information about these claims to the EEO investigator. Id. at 7. In support of this contention, 

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Defendant cites Plaintiff‘s September 5, 2012 email to Kristena Jenkins stating that she could not 

talk to Ms. Jenkins on the telephone about her added claims and that all of the information about 

her claims could be found in her EEO Complaint and her communications with Mr. Neal. Reding 

Decl., Ex. I.

III. ANALYSIS

A. Legal Standards under Rule 12(b)(1) and 12(b)(6)

1. Rule 12(b)(1)

Pursuant to Rule 12(b)(1) of the Federal Rules of Civil Procedure, a district court must 

dismiss an action if it lacks jurisdiction over the subject matter of the suit. See Fed. R. Civ. P. 

12(b)(1). ―Subject matter jurisdiction can never be forfeited or waived and federal courts have a 

continuing independent obligation to determine whether subject-matter jurisdiction exists.‖ Leeson 

v. Transamerica Disability Income Plan, 671 F.3d 969, 975 n.12 (9th Cir. 2012) (internal 

quotation marks and citations omitted). On a motion to dismiss for lack of subject matter 

jurisdiction under Rule 12(b)(1), it is the plaintiff‘s burden to establish the existence of subject 

matter jurisdiction. Kingman Reef Atoll Invs., LLC v. United States, 541 F.3d 1189, 1197 (9th 

Cir. 2008). A party challenging the court‘s subject matter jurisdiction under Rule 12(b)(1) may 

bring a facial challenge or a factual challenge. See White v. Lee, 227 F.3d 1214, 1242 (9th Cir. 

2000). In evaluating a facial challenge to subject matter jurisdiction, the court accepts the factual 

allegations in the complaint as true. See Miranda v. Reno, 238 F.3d 1156, 1157 n.1 (9th Cir. 

2001). Where a defendant brings a factual challenge, on the other hand, ―a court may look beyond 

the complaint to matters of public record without having to convert the motion into one for 

summary judgment.‖ White, 227 F.3d at 1242 (citation omitted). Once the moving party has 

made a factual challenge by offering affidavits or other evidence to dispute the allegations in the 

complaint, the party opposing the motion must ―present affidavits or any other evidence necessary 

to satisfy its burden of establishing that the court, in fact, possesses subject matter jurisdiction.‖ 

McCarthy v. Brennan, No. 15-CV-03308-JSC, 2017 WL 386346, at *5 (N.D. Cal. Jan. 27, 2017) 

(quoting St. Clair v. City of Chico, 880 F.2d 199, 201 (9th Cir. 1989)).

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2. Rule 12(b)(6)

A complaint may be dismissed for failure to state a claim on which relief can be granted 

under Rule 12(b)(6) of the Federal Rules of Civil Procedure. ―The purpose of a motion to dismiss 

under Rule 12(b)(6) is to test the legal sufficiency of the complaint.‖ N. Star Int’l v. Ariz. Corp. 

Comm’n, 720 F.2d 578, 581 (9th Cir. 1983). Generally, a claimant‘s burden at the pleading stage 

is relatively light. Rule 8(a) of the Federal Rules of Civil Procedure states that ―[a] pleading 

which sets forth a claim for relief . . . shall contain . . . a short and plain statement of the claim 

showing that the pleader is entitled to relief.‖ Fed. R. Civ. P. 8(a).

In ruling on a motion to dismiss under Rule 12(b)(6), the court takes ―all allegations of 

material fact as true and construe[s] them in the light most favorable to the non-moving party.‖

Parks Sch. of Bus. v. Symington, 51 F.3d 1480, 1484 (9th Cir. 1995). Dismissal may be based on a 

lack of a cognizable legal theory or on the absence of facts that would support a valid theory. 

Balistreri v. Pacifica Police Dep’t, 901 F.2d 696, 699 (9th Cir. 1990). A pleading must ―contain 

either direct or inferential allegations respecting all the material elements necessary to sustain 

recovery under some viable legal theory.‖ Bell Atl. Corp. v. Twombly, 550 U.S. 544, 562 (2007) 

(citing Car Carriers, Inc. v. Ford Motor Co., 745 F.2d 1101, 1106 (7th Cir. 1984)). ―A pleading 

that offers  ̳labels and conclusions‘ or  ̳a formulaic recitation of the elements of a cause of action 

will not do.‘‖ Ashcroft v. Iqbal, 556 U.S. 662, 678 (2009) (quoting Twombly, 550 U.S. at 555). 

―[C]ourts  ̳are not bound to accept as true a legal conclusion couched as a factual allegation.‘‖

Twombly, 550 U.S. at 555 (quoting Papasan v. Allain, 478 U.S. 265, 286 (1986)). ―Nor does a 

[pleading] suffice if it tenders  ̳naked assertion[s]‘ devoid of  ̳further factual enhancement.‘‖ Iqbal, 

556 U.S. at 678 (quoting Twombly, 550 U.S. at 557). Rather, the claim must be ― ̳plausible on its 

face,‘‖ meaning that the claimant must plead sufficient factual allegations to ―allow[] the court to 

draw the reasonable inference that the defendant is liable for the misconduct alleged.‖ Id. (quoting 

Twombly, 550 U.S. at 570).

Pro se pleadings are generally liberally construed and held to a less stringent standard. See 

Erickson v. Pardus, 551 U.S. 89, 94 (2007). Even post-Iqbal, courts must still liberally construe 

pro se filings. Hebbe v. Pliler, 627 F.3d 338 (9th Cir. 2010). As the Ninth Circuit explained in 

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Hebbe v. Pliler, ―[w]hile the standard is higher, our obligation remains, where the petitioner is pro 

se, particularly in civil rights cases, to construe the pleadings liberally and to afford the petitioner 

the benefit of any doubt.‖ 627 F.3d at 342. Nevertheless, the Court may not ―supply essential 

elements of the claim that were not initially pled.‖ Ivey v. Bd. of Regents of the Univ. of Alaska, 

673 F.2d 266, 268 (9th Cir.1982).

If the Court dismisses a complaint under Rule 12(b)(6), it should ―grant leave to amend 

even if no request to amend the pleading was made, unless it determines that the pleading could 

not possibly be cured by the allegation of other facts.‖ Lopez v. Smith, 203 F.3d 1122, 1127 (9th 

Cir. 2000) (en banc) (internal quotation marks and citations omitted).

B. Statutes Invoked in Support of Plaintiff’s Claims

Plaintiff asserts each of her claims under multiple statutes, each of which the Court 

describes briefly below.

1. Title VII 

Under Title VII, it is unlawful ―to fail or refuse to hire or to discharge any individual, or 

otherwise to discriminate against any individual with respect to his compensation, terms, 

conditions, or privileges of employment, because of such individual‘s race, color, religion, sex, or 

national origin.‖ 42 U.S.C. § 2000e-2(a)(1). Title VII also prohibits employers from retaliating

against an employee for ―oppos[ing] any practice made an unlawful employment practice‖ under 

Title VII. 42 U.S.C. § 2000e-3(a). 

Title VII‘s protections were extended to federal employees in 1972, when Congress 

amended the Act to provide that ―[a]ll personnel actions‖ affecting federal employees must be 

―made free from any discrimination based on race, color, religion, sex, or national origin.‖ 42 

U.S.C.A. § 2000e-16. The Ninth Circuit has further held that in enacting Section 2000e-16, 

Congress intended to protect federal employees from retaliation. See Ayon v. Sampson, 547 F.2d 

446, 449 (9th Cir. 1976) (―We agree with the parties that Congress, in enacting 42 U.S.C. §

2000e-16 and thereby extending the equal employment opportunity provisions of the Civil Rights 

Act to federal employees, intended to include the protections from harassment and retaliation 

embodied in the Civil Rights Act.‖). 

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2. The Rehabilitation Act

Both the Americans with Disabilities Act (―ADA‖) and the Rehabilitation Act prohibit 

discrimination against an otherwise qualified individual based on his or her disability. CaleroCerezo v. U.S. Dep’t of Justice, 355 F.3d 6, 19 (1st Cir. 2004). The Rehabilitation Act is the 

precursor to the ADA and applies to federal employees. See Daniels v. Chertoff, No. CV 06-2891 

PHXJAT, 2007 WL 1140401, at *2 (D. Ariz. Apr. 17, 2007) (citing 42 U.S.C. § 12111(5)(B)(i) 

and Calero–Cerezo v. U.S. Dept. of Justice, 355 F.3d 6, 11 n. 1 (1st Cir.2004)). While

the ADA excludes the federal government from its definition of ―employer,‖ see 42 U.S.C. § 

12111(5)(B)(i), the ADA‘s ―standards of substantive liability are incorporated in the 

Rehabilitation Act.‖ Walton v. U.S. Marshals Serv., 492 F.3d 998, 1005 (9th Cir. 2007).

―Both disparate treatment of a disabled person and refusal to make a reasonable 

accommodation for a disabled person are actionable under the Rehabilitation Act of 1973, 29 

U.S.C. § 791.‖ Gaytan v. Solis, No. C 07-6367 SBA, 2012 WL 2367822, at *3 (N.D. Cal. June 21, 

2012) (citing Vinson v. Thomas, 288 F.3d 1145, 1154 (9th Cir. 2002); Mustafa v. Clark County 

Sch. Dist., 157 F.3d 1169, 1176 (9th Cir. 1998)); see also McCarthy v. Brennan, No. 15-CV03308-JSC, 2017 WL 386346, at *7 (N.D. Cal. Jan. 27, 2017) (explaining that ― ̳[d]isability 

discrimination‘ encompasses disparate treatment—denying an employee equal jobs or benefits 

because of the employee‘s disability, 42 U.S.C. § 12112(a), (b)(4), and failure to accommodate a 

disability, 42 U.S.C. § 12112(a), (b)(5)).‖ 

To state a prima facie case under the Rehabilitation Act based on disparate treatment, ―a 

plaintiff must demonstrate that (1) she is a person with a disability, (2) who is otherwise qualified 

for employment, and (3) suffered discrimination because of her disability.‖ Domingo v. Donohue, 

No. 13-cv-4150 CRB, 2014 WL 605485, at *12 (N.D. Cal. Feb. 14, 2014) (quoting Walton v. U.S. 

Marshals Serv., 492 F.3d 998, 1005 (9th Cir. 2007)). To state a claim under the Rehabilitation 

Act for failure to accommodate, a plaintiff must ―plead facts sufficient to plausibly allege (1) she 

is disabled, (2) she is a qualified individual, and (3) a reasonable accommodation is possible that 

would enable her to perform the essential functions of her job.‖ Estell v. McHugh, No. 15-cv04898-MEJ, 2016 WL 4140819, at *5 (N.D. Cal. Aug. 4, 2016) (citing Zukle v. Regents of the 

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Univ. of Cal., 166 F.3d 1041, 1045 (9th Cir. 1999)). 

3. The ADEA

Under the ADEA, it is ―unlawful for an employer . . . to discharge any individual or 

otherwise discriminate against any individual with respect to his compensation, terms, conditions, 

or privileges of employment, because of such individual‘s age.‖ 29 U.S.C.A. § 623. While the 

term ―employer‖ excludes the United States, see 29 U.S.C. § 630(b), the ADEA also contains a 

―federal sector provision‖ that applies to federal employees and provides that ―[a]ll personnel 

actions affecting employees or applicants for employment who are at least 40 years of age . . . 

shall be made free from any discrimination based on age.‖ Gomez-Perez v. Potter, 553 U.S. 474, 

479 (2008) (citing 29 U.S.C. § 633a(a)). 

In order to establish a prima facie case of discrimination under the ADEA, a plaintiff must 

show that (1) she is a member of a protected class; (2) she was qualified for her position; (3) she 

experienced an adverse employment action; and (4) similarly situated individuals outside her

protected class were treated more favorably, or other circumstances surrounding the adverse 

employment action give rise to an inference of discrimination. Whitman v. Mineta, 541 F.3d 929, 

932 (9th Cir. 2008). Further, the Supreme Court held in Gomez-Perez that the federal sector 

provision protects federal employees from ―retaliation for complaining about age discrimination.‖ 

553 U.S. at 488. 

4. Lilly Ledbetter Fair Pay Act 

The LLA was enacted into law on January 29, 2009 in order to legislatively overturn the 

Supreme Court‘s decision in Ledbetter v. Goodyear Tire & Rubber Co., 550 U.S. 618 (2007). In 

Ledbetter, the plaintiff asserted sex discrimination claims under Title VII, alleging that throughout 

her career with Defendant Goodyear she had been given poor evaluations based on her sex, 

resulting in a significantly lower salary than was being paid to her male colleagues by the end of 

her career. 550 U.S. at 621-622. The Court, however, found that the pay-setting decisions in 

Ledbetter were discrete acts that triggered the running of the time allowed to file an EEOC charge, 

even though the effects of those decisions, in the form of lower compensation, continued into the 

limitations period. Id. at 623, 628. As a result, the plaintiff‘s claims were found to be untimely.

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In response, Congress amended 42 U.S.C. § 2000e–5(e) to provide as follows:

For purposes of this section, an unlawful employment practice 

occurs, with respect to discrimination in compensation in violation 

of this subchapter, when a discriminatory compensation decision or 

other practice is adopted, when an individual becomes subject to a 

discriminatory compensation decision or other practice, or when an 

individual is affected by application of a discriminatory 

compensation decision or other practice, including each time wages, 

benefits, or other compensation is paid, resulting in whole or in part 

from such a decision or other practice.

42 U.S.C. § 2000e–5(e)(3)(A) (emphasis added). Similarly, the LLA also modifies the ADEA and 

the Rehabilitation Act ―to clarify that a discriminatory compensation decision or other practice 

that is unlawful under such Acts occurs each time compensation is paid pursuant to the 

discriminatory compensation decision or other practice, and for other purposes.‖ See PL 111–2 [S 

181], January 29, 2009. In other words, the LLA does not create a free-standing civil rights cause 

of action but instead, works in tandem with existing civil rights laws to ―trigger[] a new filing 

period, in effect reviving a claim that otherwise would have been time-barred because of a failure 

to exhaust administrative remedies within 180 days of the original discriminatory compensation 

decision or practice.‖ Johnson v. District of Columbia, 632 F. Supp. 2d 20, 22 (D.D.C. 2009). 

C. Exhaustion Requirements

1. Title VII and the Rehabilitation Act

In order to bring a discrimination claim in federal district court under Title VII or the 

Rehabilitation Act, a plaintiff first must exhaust her administrative remedies. Sommatino v. 

United States, 255 F.3d 704, 709 (9th Cir. 2001) (Title VII); Vinieratos v. U.S., Dep't of Air 

Force Through Aldridge, 939 F.2d 762, 773 (9th Cir. 1991) (Rehabilitation Act). ―While not all 

administrative exhaustion requirements are jurisdictional in nature, Ninth Circuit  ̳case law holds 

that substantial compliance with the presentment of discrimination complaints to an appropriate 

administrative agency is a jurisdictional prerequisite.‘‖ McCarthy v. Brennan, No. 15-cv-03308-

JSC, 2017 WL 386346, at *6 (N.D. Cal. Jan. 27, 2017) (quoting Sommatino, 255 F.3d at 709). 

―The jurisdictional scope of the plaintiff‘s court action depends on the scope of the EEO[ ] charge 

and investigation.‖ Leong v. Potter, 347 F.3d 1117, 1121-22 (9th Cir. 2003). In particular, the 

district court has jurisdiction over the specific claims that were presented in the administrative 

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proceeding, claims of discrimination that are ―like or reasonably related to the allegations made 

before the EEO[ ],‖ and claims that ―reasonably could be expected to grow out of the allegations‖ 

in the administrative complaint. Id. at 1122. 

Courts must construe EEO charges ―with utmost liberality since they are made by those 

unschooled in the technicalities of formal pleading.‖ Sosa v. Hiraoka, 920 F.2d 1451, 1458 (9th 

Cir. 1990) (citation omitted). ― ̳[T]the crucial element of a charge of discrimination is the factual 

statement contained therein.‘‖ B.K.B. v. Maui Police Dep’t, 276 F.3d 1091, 1100 (9th Cir. 2002), 

as amended (Feb. 20, 2002) (quoting Sanchez v. Standard Brands, Inc., 431 F.2d 455, 462 (5th 

Cir.1970)). In B.K.B., the Ninth Circuit set forth the following factors for determining whether a 

plaintiff has exhausted claims based on allegations that were not set forth in the administrative 

complaint: (1) the ―alleged basis of the discrimination;‖ (2) ―dates of discriminatory acts specified 

in the charge;‖ (3) ―perpetrators of discrimination named in the charge;‖ and (4) ―any locations at 

which discrimination is alleged to have occurred.‖ McCarthy v. Brennan, 2017 WL 386346, at *6 

(quoting B.K.B., 276 F.3d at 1100). ―In addition, the court should consider plaintiff‘s civil claims 

to be reasonably related to allegations in the charge to the extent that those claims are consistent 

with the plaintiff's original theory of the case.‖ B.K.B., 276 F.3d at 1100.

2. The ADEA

Under the ADEA, federal employees can pursue their age discrimination claims through 

the EEOC, which has the authority to enforce the statute‘s federal employee non-discrimination 

provision. See 29 U.S.C. § 633(b). However, ―[u]nlike Title VII of the Civil Rights Act, 42 

U.S.C. § 2000e–16(c), the ADEA contains no express requirement that a federal employee 

complainant seek administrative relief, . . . except that an employee who wishes to file suit without 

pursuing administrative remedies must give the EEOC notice of intent to sue at least 30 days 

before filing suit.‖ Bankston v. White, 345 F.3d 768, 770 (9th Cir. 2003) (emphasis added); see 

also Boyd v. Lynch, No. 14-56800, 2016 WL 5764439, at *1 (9th Cir. Oct. 4, 2016) (unpublished) 

(holding that the district court had erred in dismissing an ADEA claim based on failure to exhaust

because ―exhaustion is not required‖ on ADEA claims) (citing Bankston, 345 F.3d at 770). In 

particular, ADEA provides that ―[w]hen the individual has not filed a complaint concerning age 

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discrimination with the [EEOC], no civil action may be commenced by any individual . . . until 

the individual has given the Commission not less than thirty days‘ notice of an intent to file such 

action.‖ 29 U.S.C.A. § 633a(d). The Ninth Circuit has further held that even where a plaintiff 

initiated administrative proceedings as to an ADEA claim and then abandoned them, that 

individual is not barred from bringing the ADEA claim in federal district court. See Bankston, 

345 F.3d at 775 (citing Bak v. Postal Service, 52 F.3d 241 (9th Cir. 1995)).

D. Administrative Procedures Governing Exhaustion of Discrimination Claims and 

“Mixed Complaints”

1. Procedures for Exhaustion under Title VII 

The ordinary procedure for a federal employee who seeks to exhaust her Title VII or 

Rehabilitation Act claims is to initially file an EEO complaint with her agency and then, once the 

agency has issued its final decision, appeal that decision to either the EEOC or a federal district 

court. Sloan v. West, 140 F.3d 1255, 1259 (9th Cir. 1998) (citing 29 C.F.R. § 1614.310(a)). An 

employee may also file an action in district court if, after 180 days from the date of appealing to 

the EEOC, the EEOC has not issued a final decision on the matter. 29 U.S.C. § 1614.407(b).

Before a federal employee is permitted to file an EEO Complaint with the agency, she 

must contact an EEO counselor. See 29 C.F.R. § 1614.105(a) (―Aggrieved persons who believe 

they have been discriminated against on the basis of race, color, religion, sex, national origin, age, 

disability, or genetic information must consult a Counselor prior to filing a complaint in order to 

try to informally resolve the matter.‖). The regulations require that ―[a]n aggrieved person must 

initiate contact with a Counselor within 45 days of the date of the matter alleged to be 

discriminatory or, in the case of personnel action, within 45 days of the effective date of the 

action.‖ 29 C.F.R. § 1614.105(a)(1). This 45-day time period may be extended, however, ―when 

the individual shows that he or she was not notified of the time limits and was not otherwise aware 

of them, that he or she did not know and reasonably should not have been known that the 

discriminatory matter or personnel action occurred, that despite due diligence he or she was 

prevented by circumstances beyond his or her control from contacting the counselor within the 

time limits, or for other reasons considered sufficient by the agency or the Commission.‖ 29 

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C.F.R. § 1614.105(a)(2); see also 29 C.F.R. § 1614.604 (―The time limits in this part are subject 

to waiver, estoppel and equitable tolling‖).

Similarly, the Ninth Circuit and district courts within the Ninth Circuit have found that the 

45-day limit is not jurisdictional and therefore is subject to waiver, estoppel and equitable tolling. 

See Kraus v. Presidio Trust Facilities Div./Residential Mgmt. Branch, 572 F.3d 1039, 1043 (9th 

Cir. 2009) (―although the regulatory pre-filing exhaustion requirement at § 1614.105 does not 

carry the full weight of statutory authority and is not a jurisdictional prerequisite for suit in federal 

court, we have consistently held that, absent waiver, estoppel, or equitable tolling, failure to 

comply with this regulation [is] . . . fatal to a federal employee‘s discrimination claim in federal 

court.‖ (internal citations and quotations omitted)); Lacayo v. Donahoe, No. 14-cv-04077-JSC, 

2015 WL 993448, at *8 (N.D. Cal. Mar. 4, 2015) (reviewing Ninth Circuit and district court 

authority and concluding that ―an employee‘s failure to follow to a tee the 45-day timing 

requirements is a  ̳shortcoming [that] relates to the substantive adequacy of [a plaintiff‘s] 

complaint[,]‘ not a jurisdictional flaw‖) (citing Taylor v. Blank, No. 1:12-cv-1931 AWI JLT, 2014 

WL 1577313, at *4 (E.D. Cal. Apr. 17, 2014); Mendoza v. Lehigh Southwest Cement Co., No. 11-

cv-01286 LHK, 2012 WL 1534754, at *5 (N.D. Cal. May 1, 2012); Norris v. Foxx, No. 13-cv4928 BHS, 2014 WL 935304, at *4 (W.D. Wash. Mar. 10, 2014)).6

 

The timeliness requirement for the purposes of exhaustion of discrimination claims further 

depends on whether the claim is based on discrete acts or a single discriminatory employment 

practice. ―[D]iscrete discriminatory acts are not actionable if time barred, even when they are 

related to acts alleged in timely filed charges.‖ Nat’l R.R. Passenger Corp. v. Morgan, 536 U.S. 

101, 113 (2002). Thus, ―[e]ach discrete discriminatory act starts a new clock for filing charges 

 

6

To the extent some district courts in the Ninth Circuit have concluded that the 45-day 

requirement is jurisdictional, see, .e.g., , Gill v. Gen. Servs. Admin., No. 14–cv–2999–MEJ, 2014 

WL 6469377, at *3 (N.D. Cal. Nov. 18, 2014); Williams v. Mabus, No. 5:13–cv–00470 HRL, 

2014 WL 5305819, at *4 (N.D. Cal. Oct. 16, 2014); Goel v. Shah, No. C 13– 3586 SBA, 2014 WL 

460867, at *2 (N.D. Cal. Feb. 3, 2014); Domingo v. Donohue, Nos. 13–cv–4150–CRB & 13–cv–

4151 CRB, 2014 WL 605485, at *7–8 (N.D. Cal. Feb. 14, 2014), the undersigned agrees with 

Judge Corley that these decisions are not persuasive on this question for the reasons stated in 

Lacayo. See 2015 WL 993448, at *8-9.

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alleging that act.‖ Id.; see also id. at 114 (―Discrete acts such as termination, failure to promote, 

denial of transfer, or refusal to hire are easy to identify. Each incident of discrimination and each 

retaliatory adverse employment decision constitutes a separate actionable  ̳unlawful employment 

practice.‘‖). 

On the other hand, ―[h]ostile environment claims are different in kind from discrete acts‖ 

because ―[t]heir very nature involves repeated conduct.‖ Id. at 115. A hostile work environment 

is an unlawful employment practice that ―occurs over a series of days or perhaps years and, in 

direct contrast to discrete acts, a single act of harassment may not be actionable on its own.‖ Id. 

(citation omitted). ―In determining whether an actionable hostile work environment claim exists, 

[courts] look to all the circumstances, including the frequency of the discriminatory conduct; its 

severity; whether it is physically threatening or humiliating, or a mere offensive utterance; and 

whether it unreasonably interferes with an employee‘s work performance.‖ Id. (internal 

quotations and citations omitted). Because a claim based on an unlawful employment practice is 

made up of a series of separate acts, the Morgan Court explained, the hostile work environment 

claim is timely so long as ―an act contributing to the claim occurs within the filing period.‖ Id. at 

117. 

Because of the fact-intensive nature of the inquiry as to whether a claim involves discrete 

conduct or a single ongoing employment practice, courts sometimes decline to address the 

question of timeliness for the purposes of exhaustion at the pleading stage of the case where it 

cannot be determined from the pleadings whether the employment practice at issue is a discrete act 

or ongoing. See, e.g. Guerrero v. Vilsack, 134 F. Supp. 3d 411, 432 (D.D.C. 2015) (finding that 

plaintiff‘s claims could be construed as alleging ongoing violations and that the Court could not 

conduct the inquiry required under Morgan at the pleading stage of the case, and also noting that 

―other courts in the district have likewise refrained from deciding, based on an EEO complaint 

alone, whether alleged violations are discrete or continuing.‖)

2. Procedures for Exhausting Where a Federal Employee Seeks to Pursue a 

“Mixed Complaint”

In 1978, Congress passed the Civil Service Reform Act (―CSRA‖), 5 U.S.C. § 1201 et 

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seq., ―with the hope of simplifying and revising the rules and regulations governing federal 

employees.‖ Sloan v. West, 140 F.3d 1255, 1258 (9th Cir. 1998). The CSRA created the Merit 

System Protection Board (―MSPB‖), which is a ―quasi-judicial Government agency‖ that 

adjudicates Federal employee appeals of agency personnel actions. Id. at 1258-59. The MSPB‘s 

appellate jurisdiction is limited to those appeals authorized by ―law, rule, or regulation.‖ 5 U.S.C. 

§ 7701(a). ―Generally, the Board is authorized to review  ̳adverse employment actions,‘ which 

fall into one of five categories: a removal, a suspension for more than 14 days, a reduction in 

grade, a reduction in pay, or a furlough of 30 days or less.‖ Sloan, 140 F.3d at 1259 (citing 5 

U.S.C. § 7512(1)-(5); 5 C.F.R. § 1201.3 (1997)). 

The Board also has pendent jurisdiction over discrimination claims brought in connection 

with an ―adverse action‖ otherwise appealable to it. 29 C.F.R. § 1614.302 (1997). This means 

that an employee seeking to pursue a claim of discrimination that is related to an adverse action 

has the option of exhausting the discrimination claim through procedures governing MSPB 

Appeals rather than through the EEO procedures described above. Sloan, 140 F.3d at 1259. In 

this scenario, the employee has two options: 1) she can file a ―mixed case complaint‖ with the 

agency EEO department that can then be appealed to the MPSB; or 2) she can file a ―mixed case 

appeal‖ directly with MPSB. 29 C.F.R. § 1614.302(b) (―An aggrieved person may initially file a 

mixed case complaint with an agency pursuant to this part or an appeal on the same matter with 

the MSPB pursuant to 5 CFR 1201.151, but not both.‖).

―A mixed case complaint is a complaint of employment discrimination filed with a federal 

agency based on race, color, religion, sex, national origin, age, disability, or genetic information 

related to or stemming from an action that can be appealed to the . . .[MSPB].‖ 29 C.F.R. § 

1614.302(a)(1). ―A mixed case appeal is an appeal filed with the MSPB that alleges that an 

appealable agency action was effected, in whole or in part, because of discrimination on the basis 

of race, color, religion, sex, national origin, disability, age, or genetic information.‖ 29 C.F.R. § 

1614.302(a)(2).7 While it is up to the employee to decide which route to follow, the employee 

 

7 Note, however, that the Ninth Circuit stated in Sloan that an appeal does not ―become a  ̳mixed 

case appeal‘‖ until the MSPB decides that it has jurisdiction over the case. Sloan, 140 F.3d at 

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may pursue only one of these options and ―whichever is filed first shall be considered an election 

to proceed in that forum.‖ 29 C.F.R. § 1614.302(b). 

When a mixed case is appealed to the MSPB, the MSPB must determine that it has 

jurisdiction over the employee‘s claims. Nater v. Riley, 114 F. Supp. 2d 17, 24 (D.P.R. 2000), 

aff‘d, 15 F. App‘x 11 (1st Cir. 2001). A finding by the MSPB that it lacks jurisdiction to hear a 

claim is appealable only to the United States Court of Appeals for the Federal Circuit. Sloan, 140 

F.3d at 1261 (―Thus, if the MSPB does not have jurisdiction over the non-discrimination claim, 

then the case is not a  ̳mixed case,‘ and any appeal of the jurisdictional determination must be filed 

in the Federal Circuit Court of Appeals.‖). On the other hand, if the MSPB finds it has jurisdiction 

over the appeal, the Administrative Judge decides the claims on the merits and the employee then 

has the option of seeking further MSPB review. Sloan, 140 F.3d at 1260. If the employee does 

not appeal the AJ‘s decision to the MSPB panel within 30 days, the AJ‘s decision becomes final 

and the employee can either appeal any related discrimination claims to the EEOC or file an action 

in the federal district court as to the discrimination claim. Id.; see also 29 C.F.R. § 1614.310.

E. Abandonment of Claims and the Scope of Claims That Were Exhausted in the 

First EEO Complaint

As discussed above, as of the time this action was initiated Plaintiff had received a rightto-sue letter only as to her First EEO Complaint. Thus, with respect to the claims in the FAC that 

Plaintiff is required to exhaust, Plaintiff must establish (at least) that these claims: 1) were either 

raised in the First EEO Complaint or are ―like or reasonably related to‖ those claims; and 2) were 

not abandoned during the EEO administrative proceedings.8 Defendant raises the issue of 

abandonment in its Reply brief when it argues that ―if Plaintiff raised her termination as a baisis 

for her alleged discrimination claims, she then abandoned that claim by failing to cooperate and 

provide further information to her EEO Specialist and Couselor.‖ Reply at 7. It also treats as 

abandoned (without providing legal authority for doing so) certain claims that were included in 

Plaintiff‘s First EEO Complaint but that were omitted from the July 13, 2012 letter listing the 

 

1259. 

8 As discussed further below, Plaintiff must also establish that her claims are timely.

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claims that FEMA‘s EEO department intended to investigate. See, e.g., Motion at 4, 12 

(describing conduct listed in July 13, 2012 letter and later stating that Plaintiff did not assert that 

―she was denied training opportunities and additional pay‖ even though the First EEO Complaint 

included in the list of discriminatory conduct ―Denial of training‖ and ―depriv[ation] of overtime 

hours‖). 

The Ninth Circuit has held that in certain situations, a claimant may fail to exhaust 

administrative remedies when he or she refuses to cooperate with the Agency‘s investigation. For 

example, in Tanious v. I.R.S., the court found that the plaintiff had failed to exhaust his 

administrative remedies where he had ―failed to comply with Board orders to make himself 

available for prehearing telephone conferences, failed to appear for a scheduled hearing, and 

refused to answer the Board‘s telephone calls or receive mail,‖ leading the MSPB to dismiss the

case for failure to prosecute. 915 F.2d 410, 411 (9th Cir. 1990). On the other hand, a claim is not 

barred – even if the plaintiff abandoned the claim in an administrative proceeding – if the 

administrative remedy is optional. Thus, as discussed above, a plaintiff may bring an ADEA 

claim in federal district court even if she previously abandoned that claim in an administrative 

proceeding. See Bankston v. White, 345 F.3d 768, 770 (9th Cir. 2003); Bak v. Postal Service, 52 

F.3d 241 (9th Cir. 1995)); see also Bullock v. Berrien, 688 F.3d 613, 618 (9th Cir. 2012) (finding 

that under the reasoning of Bankston, the same is true where a plaintiff seeking to assert a 

Rehabilitation Act claim initiated and then withdrew an optional appeal to the EEOC of the AJ‘s 

decision). 

Because exhaustion of administrative remedies is optional as to ADEA claims, the 

question of abandonment is not relevant to that claim. The Court also does not reach Defendant‘s 

argument that if Plaintiff included any discriminatory termination claims in her First EEO claim 

she subsequently abandoned them by failing to cooperate with the Agency‘s investigation of that 

claim. It is clear from the First EEO Complaint and Plaintiff‘s sworn affidavit that she did not, in 

fact, assert any claims for discriminatory termination in her First EEO Complaint and therefore, 

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the cases involving abandonment of claims are not on point.9

On the other hand, the Court rejects Defendant‘s suggestion that Plaintiff is limited to the 

claims that were listed in FEMA‘s July 13, 2012 letter in establishing exhaustion of her claims. 

A handful of district court cases in other Circuits have held that failure to respond to a ―framing of 

the issue‖ letter from the Agency EEO department that omits claims that were included in the 

original EEO complaint results in abandonment of the omitted claims. See, e.g., McKeithan v. 

Boarman, 803 F.Supp.2d 63, 68 (D.D.C.2011) (internal citations and quotation omitted), aff‘d in 

part, No. 11–5247, 2012 WL 1450565 (D.C. Cir. Apr. 12, 2012), aff‘d sub nom., McKeithan v. 

Vance–Cooks, 498 Fed. Appx. 47 (D.C.Cir.2013); Sellers v. U.S. Department of Defense, No. 

C.A. 07–418S, 2009 WL 559795 (D.R.I. Mar. 4, 2009). On the other hand, in Mokhtar v. Kerry, 

the court rejected this conclusion, finding based on the regulatory framework that governs EEO 

investigations that ―failure to cooperate during the administrative investigation must be treated as 

factually and legally distinct from failure to respond to the acceptance-of-claims letter.‖ 83 F. 

Supp. 3d 49, 66 (D.D.C. 2015), aff‘d, No. 15-5137, 2015 WL 9309960 (D.C. Cir. Dec. 4, 2015); 

see also Guerrero v. Vilsack, 134 F. Supp. 3d 411, 434 (D.D.C. 2015) (recognizing that courts in 

the D.C. Circuit are divided as to whether a plaintiff‘s failure to respond to the agency‘s framing 

of the issue supports a finding that a plaintiff has failed to exhaust her administrative remedies 

with respect to those claims). The undersigned finds the reasoning of Mokhtar to be persuasive. 

In any event, it is apparent from the record before the Court that under the facts of this case, 

Plaintiff made clear to FEMA that she did not agree with the framing of her claim in the letter and 

therefore, that Plaintiff did not through inaction abandon the claims that were omitted. Therefore, 

the Court looks to the underlying EEO Complaint to determine whether Plaintiff has exhausted her 

claims. 

 

9

The Court agrees with Defendant, however, that Plaintiff may not rely on her attempts to add

such claims for the purposes of demonstrating exhaustion where she denied the Agency‘s request 

for a 90-day extension to process those additional claims. It was Plaintiff‘s right to deny the 

Agency‘s request and to proceed without adding any claims. As a result, however, she is limited 

to the claims that were asserted in her First EEO Complaint for the purposes of exhaustion of 

administrative remedies.

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F. Claim One (Wrongful Termination)

In Claim One, Plaintiff alleges that her rights were violated under Title VII, the ADEA, 

and the Rehabilitation Act based on allegation that Defendant ―processed two wrongful 

terminations against [P]laintiff, because she was unemployed and ill for almost two years and had 

debt, violating [P]laintiff‘s due process rights.‖ FAC ¶ 9. Elsewhere in the complaint, she alleges 

that Defendant‘s conduct was discriminatory based on her race, sex, age, and physical/mental 

disability and in retaliation for prior EEO activity Therefore, construing the complaint liberally, 

the Court construes this claim to allege that her two terminations by FEMA were motivated by 

discriminatory animus based on Plaintiff‘s race, sex, age, and physical/mental disability and 

retaliatory intent related to Plaintiff‘s prior EEO activity. 

1. Whether Plaintiff has Exhausted

As discussed above, Title VII and the Rehabilitation Act require, as a jurisdictional matter, 

that a plaintiff must substantially comply with the ―presentment of discrimination complaints to an 

appropriate administrative agency.‘‖ Sommatino, 255 F.3d at 709. Further, in mixed cases 

involving claims that an adverse employment action was discriminatory, a federal employee must 

make an election as to the forum in which she will exhaust as to the particular ―matter.‖ 29 C.F.R. 

§ 1614.302(b). Here, Plaintiff elected to challenge both of her terminations before the MSPB. See 

RJN, Exs. A & E (MSPB appeals for Plaintiff‘s terminations in 2011 and 2012). The Court 

concludes that in doing so, she made an election as to her Title VII and Rehabilitation Act claims 

based on those terminations because the word ―matter‖ in the regulation refers to the underlying 

employment action, namely, her terminations. See Macy v. Dalton, 853 F. Supp. 350, 352 (E.D. 

Cal. 1994) (interpreting a similar election requirement for unionized federal employees using 

similar wording and finding that the word ―matter‖ refers to the ―underlying [employment] action‖ 

rather than the discrimination claim.) As a consequence, once the Initial Decisions of the AJ 

became final, thirty days after their issuance, Plaintiff was required to file her discriminatory 

termination claims within 30 days if she wished to proceed on them either before the EEOC or in 

federal district court. See 29 C.F.R. § 1614.310. The Initial Decisions that were issued in 

connection with Plaintiff‘s MSPB Appeals of her terminations were issued on February 9, 2012, 

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and May 29, 2013. See RJN, Exs. B & F. As she did not initiate this action until June 16, 2016, 

her claims are untimely to the extent they are based on her terminations.

10

The analysis is somewhat different for Plaintiff‘s ADEA claim. As discussed above, the 

Ninth Circuit has held that ADEA claims are not subject to the exhaustion requirements that apply 

to Title VII and Rehabilitation Act claims. See Bankston v. White, 345 F.3d 768, 770 (9th Cir. 

2003). Rather, ADEA requires only that ―[w]hen the individual has not filed a complaint 

concerning age discrimination with the [EEOC], no civil action may be commenced by any 

individual . . . until the individual has given the Commission not less than thirty days‘ notice of an 

intent to file such action. 29 U.S.C.A. § 633a(d). Here, however, Plaintiff has not alleged that she 

gave the required thirty days‘ notice to the Agency of her intent to assert an ADEA claim in 

federal district court. Further, as discussed above, she did not include her terminations in her First 

EEO Complaint and therefore, she cannot rely on her exhaustion of the claims in that complaint to 

establish that she has exhausted her administrative remedies as to the ADEA claim. Accordingly, 

the Court finds that Plaintiff has not satisfied the prerequisites for asserting her ADEA claim in 

federal district court.

2. Whether Plaintiff has Alleged Sufficient Facts to State Valid Claims

The Court further finds that the claims asserted in Claim One are insufficiently alleged 

under Rule 12(b)(6). Plaintiff‘s allegations concerning Defendant‘s discriminatory motives are 

entirely conclusory. She has alleged no specific facts that would support a plausible inference that 

her terminations were based on her age, sex, race, or alleged physical or mental disabilities, or that 

they were in retaliation for prior EEO activity. See Vasconcellos v. Sara Lee Bakery, No. C 13-

2685 SI, 2013 WL 4014520, at *2 (N.D. Cal. Aug. 5, 2013)(finding that employment 

discrimination claims did not satisfy the requirements of Rule 12(b)(6) where the plaintiff did ―not 

allege any facts in support of the claims that defendants terminated plaintiff on account of his 

 

10 The Court also notes that Plaintiff expressly omitted her 2011 termination from the EEO 

Complaint that she filed on December 19, 2011, see Wallace Decl., Ex. A. Moreover, she testified 

under oath in the EEO proceeding that she had done so intentionally because she had been 

instructed that she could not simultaneously pursue her discriminatory termination claim in her 

EEO proceedings and before the MSPB. See Wallace Decl., Ex. C at 3.

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physical disability, exercise of family leave, age, or filing for worker‘s compensation‖ and instead 

―simply allege[d] in a conclusory fashion that defendants  ̳considered plaintiff a problem 

employee‘ and  ̳decided to terminate plaintiff on the basis that‘ he exercised a right or based on his 

age or physical disability.‖) Further, she has not identified any specific disability in her FAC as 

the basis for her Rehabilitation Act claims or provided any specific facts about her prior EEO 

activity. Therefore, the allegations in the complaint are insufficient to support a reasonable 

inference of discrimination as to these claims.

For the reasons stated above, the Court DISMISSES the claims asserted in Claim One. 

With respect to the Rehabilitation Act and Title VII Claims, the Court concludes that Plaintiff‘s 

failure to timely file her discrimination and retaliation claims in federal district court or file an 

appeal with the EEOC after the MSPB‘s decision became final cannot be cured and therefore 

dismisses those claims with prejudice. With respect to the ADEA claim, Plaintiff may be able to 

establish that she gave the Agency the required 30 days‘ notice of intent to sue. Therefore, 

Plaintiff will be given leave to amend to allege facts showing that she has met this administrative 

prerequisite for bringing her ADEA claim and to allege specific facts sufficient to support an 

inference that her two terminations were motived by age discrimination.

G. Claim Two (Failure to Promote)

Plaintiff‘s failure to promote claim is asserted under the Rehabilitation Act and the LLA. 

The claim appears to be based on an alleged failure to promote Plaintiff in April 2011. See FAC ¶

6(e). See also Opposition at 10 & Ex. 8 (May 13, 2011 email stating that Blackman did not meet 

―the minimum training/education requirements‖ for a position described in job announcement 

MG-2011-81369-KJD-464993D/M2). The Court further construes the claim to be based on 

disability discrimination as the only substantive violation Plaintiff has alleged is under the 

Rehabilitation Act.

1. Whether Plaintiff Has Exhausted

With respect to the alleged failure to promote, it appears that Plaintiff may, in fact, have 

presented the same claim in her First EEO Complaint. In particular, in her First EEO Complaint, 

she listed her rejection for a position identified by Announcement Number MG-2011-81 369-

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KJD-464993D/M as one of the grounds for her discrimination complaint. Wallace Decl., Ex. A. 

Plaintiff lists the same job in her opposition brief in connection with Claim Two. Opposition at 

10. To the extent that Plaintiff did not initiate EEO counseling as to this conduct until October 

19, 2011, however, her claim is not timely. See Lyons v. England, 307 F.3d 1092, 1105 (9th Cir. 

2002) (holding that because plaintiff had not contacted EEO counselor within 45 days of incidents 

out of which claims arose, claims were time-barred and therefore not properly exhausted); Nat’l 

R.R. Passenger Corp. v. Morgan, 536 U.S. 101 (2002) (―[d]iscrete acts such as termination, 

failure to promote, denial of transfer, or refusal to hire are easy to identify. Each incident of 

discrimination and each retaliatory adverse employment decision constitutes a separate actionable 

 ̳unlawful employment practice.‘‖)(emphasis added).

The Court further concludes that Plaintiff cannot avoid this result by invoking the LLA.

The courts that have addressed the question have found that a failure to promote does not 

constitute an ―other practice‖ under the LLA that gives rise to a new violation with each paycheck. 

See Schuler v. PricewaterhouseCoopers, LLP, 595 F.3d 370, 375 (D.C. Cir. 2010) (―In context, 

therefore, we do not understand  ̳compensation decision or other practice‘ to refer to the decision 

to promote one employee but not another to a more remunerative position.‖); Ekweani v. 

Ameriprise Fin., Inc., No. CV-08-01101-PHX-FJM, 2010 WL 749648, at *5 (D. Ariz. Mar. 3, 

2010), aff'd, 444 F. App‘x 968 (9th Cir. 2011) (following Schuler and noting that ―[i]n the Ninth 

Circuit, alleging a failure to promote claim is not sufficient to state a claim for compensation 

discrimination.‖) (citing Williams v. Boeing Co., 517 F.3d 1120, 1131 (9th Cir. 2008)). The 

undersigned agrees.

Nonetheless, the 45-day requirement is not jurisdictional and is subject to equitable tolling, 

waiver and estoppel, as discussed above. Although Plaintiff has not alleged any facts that would 

support an inference that any of these doctrines apply, she may be able to allege such facts. 

Therefore, Plaintiff‘s claim is DISMISSED with leave to amend as to the failure to promote claim

based on the position discussed above to allege facts showing that the 45 day period was tolled 

under any of these doctrines. 

The Court concludes that Claim Two, as currently alleged, has not been exhausted.

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2. Whether Plaintiff has Alleged Sufficient Facts to State Valid Claims

Plaintiff alleges that she was denied promotions based on her disabilities. As discussed 

above, however, she has not identified the specific disability she contends was the basis of the 

discrimination. Nor has she alleged any specific facts that would support an inference that the 

promotion was denied as a result of a disability. Therefore, the Court finds that Claim Two does

not satisfy the requirements of Rule 12(b)(6). 

The Court DISMISSES Claim Two with leave to amend. 

H. Claim Three (Retaliation)

In Claim Three, Plaintiff alleges that ―[d]uring [P]laintiff‘s interview with the investigator, 

and during the process of [P]laintiff‘s investigation, [P]laintiff was harassed about her ongoing 

EEO case.‖ She asserts this claim under Title VII and the ADEA. 

1. Whether Plaintiff Has Exhausted

In her First EEO Complaint, Plaintiff marked the box for EEO Retaliation and wrote 

―2008‖ and ―2011‖ in the margin. The list of discriminatory actions in the attachment did not, 

however, include any conduct related to the OPM background investigation that appears to be the 

subject of this claim. Even if the mere fact that Plaintiff checked the box for EEO retaliation and 

listed her 2008 and 20011 EEO activity would have led the agency to investigate the alleged 

harassment by the OPM investigator, however, the record reflects that Plaintiff‘s claim is not 

timely. In particular, the unsuitability finding that resulted from the investigation was the subject 

of an August 5, 2011 letter indicating that the investigation had already concluded by that date. 

Wallace Decl., Ex. D at 6. As a consequence, any retaliatory harassment by the investigator, even 

if it constituted a single ongoing employment practice, would have ended more than 45 days 

before Plaintiff initiated EEO counseling. Thus, in the absence of any allegations that this claim 

was tolled, the Court concludes that it was untimely and not properly exhausted. Plaintiff will be 

permitted to amend to allege, if she can, facts showing the time for initiating EEO counseling was 

subject to waiver, estoppel or equitable tolling.

2. Whether Plaintiff has Alleged Sufficient Facts to State Valid Claims

To establish a prima facie case of retaliation, Plaintiff must prove that (1) she engaged in a 

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protected activity, (2) she suffered an adverse employment decision, and (3) there was a causal 

link between the protected activity and the adverse employment decision. Xing Xing Lin v. Potter, 

No. C-10-03757-LB, 2011 WL 1522382, at *12 (N.D. Cal. Apr. 21, 2011) (citing Villiarimo v. 

Aloha Island Air, Inc., 281 F.3d 1054, 1064 (9th Cir. 2002)). Plaintiff alleges that she was treated 

unfairly by the OPM investigator based on her prior EEO activity but fails to provide any facts in 

her complaint that identify this prior activity or support an inference that the investigator‘s conduct 

was motived by her prior her prior EEO activity. Finally, as the investigator was an OPM 

employee rather than an employee of the Department of Homeland Security, Plaintiff has not 

alleged facts supporting an inference that the Department of Homeland Security can be held liable 

for this conduct. Therefore, Plaintiff fails to state a valid claim. She will be permitted to amend to 

cure this defect if she can.

I. Claim Four (Denial of Training Opportunities)

Plaintiff alleges that she was denied training opportunities based on her disability in 

violation of the Rehabilitation Act and the LLA. Specifically, she alleges that she was ―denied 

training opportunities, which were later used against [her] future [deployability].‖ FAC ¶ 15. 

Elsewhere in the complaint, she alleges that she was denied training in September 2011. FAC ¶

6(f). As noted above, although Defendant states in its brief that Plaintiff did not included a failure 

to train allegation in her First EEO Complaint, see Motion at 12, she did include the following 

entry in her list of discriminatory actions: ―Denial of Training: CON215, CON353, Disaster 

contracting.‖ The Court cannot determine, however, whether this allegation was timely as 

Plaintiff did not state in the First EEO Complaint when these training opportunities were denied. 

The Court notes that in an email exchange with her EEO counselor, Plaintiff stated that she had 

been denied training in March 2011 and June 2011, see Opposition, Ex. 16. Thus, it appears likely 

that the training opportunities identified in the First EEO Complaint were denied more than 45 

days before Plaintiff initiated EEO counseling. It is possible, however, that the training 

opportunities referenced in the First EEO Complaint were the ones that she alleged in the FAC 

were denied in September 2011 (in which case, they would be timely). Because the Court cannot 

determine from the allegations whether the Denial of Training Opportunities claim is timely, it 

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finds that the claim fails to satisfy the exhaustion requirement as currently alleged. 

Plaintiff will be given an opportunity to amend as to this claim to allege, if she can, 

specific facts showing either that the training opportunities listed in her EEO Complaint occurred 

within 45 days of EEO counseling or that the 45-day counseling period was subject to waiver, 

estoppel or equitable tolling. The Court also finds the LLA does not apply to Plaintiff‘s failure to 

train claim and therefore does not render Plaintiff‘s claim timely in the event that the denials of 

training occurred more than 45 days before she initiated EEO counseling. See Daniels v. United 

Parcel Serv., Inc., 797 F. Supp. 2d 1163, 1185–86 (D. Kan. 2011), aff‘d, 701 F.3d 620 (10th Cir. 

2012) (holding that ―[d]enial of training is a discrete act that is governed by Morgan, not by the 

[LLA]‖). 

The Court further finds that Plaintiff has failed to allege any facts that would support a 

plausible inference that the alleged denial of training was a result of a disability for the same 

reasons discussed above. Therefore, this claim does not satisfy the requirements of Rule 12(b)(6). 

Plaintiff will be permitted to amend this claim to allege facts showing that Defendant‘s failure to 

train was based on Plaintiff‘s disabilities.

J. Claim Five (Failure to Pay Additional Wages)

In Claim Five, Plaintiff alleges that Defendant failed to afford her additional wages, in 

violation of the Rehabilitation Act and the LLA. In particular, she alleges Defendant ―prevented 

[P]laintiff from deploying to disaster declarations, which prevented [P]laintiff from earning 

additional wages, which were tax free.‖ As this claim is asserted under the Rehabilitation Act, the 

Court construes it is alleging that she was denied deployment on the basis of her disability.

1. Whether Plaintiff Has Exhausted

In her First EEO Complaint, Plaintiff included the following entry: ―When my 

deployment was cancelled, it deprived me of overtime hours.‖ Wallace Decl., Ex. A.11 Based on 

the records before the Court, it is reasonable to interpret this claim as referring to the cancellation 

 

11 Although this conduct was included in the First EEO Complaint, it was omitted from the 

Agency‘s July 13, 2012 Letter. See Wallace Decl., Ex. B. As discussed above, the Court relies on 

Plaintiff‘s EEO complaint rather than the Agency letter in determining the scope of exhaustion.

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of Plaintiff‘s deployment referenced in the April 10, 2012 Initial Decision in the MSPB Appeal 

relating to Plaintiff‘s alleged constructive suspension. See RJN, Ex. (April 10, 2012 Initial 

Decision) at 13. That cancellation occurred on September 16, 2011, within 45 days of initiating 

EEO counseling. Id. As a consequence, to the extent that this claim is based on the alleged 

discriminatory cancellation of Plaintiff‘s deployment in September 2011, she has exhausted that 

claim.

2. Whether Plaintiff States a Valid Claim

Like the claims discussed above, Plaintiff has alleged no facts in support of her allegation 

that her deployment was cancelled on the basis of her disability. Consequently, Plaintiff fails to 

state a valid claim, even though she has satisfied the exhaustion requirement as to this claim. 

Plaintiff will be given leave to amend to allege specific facts in support of this claim showing that 

Defendant‘s conduct was based on her disability.

K. Claim Six (Hostile Work Environment)

Plaintiff alleges that she was subject to a hostile work environment in violation of Title 

VII, the ADEA, and the Rehabilitation Act. Based on the statutes Plaintiff invokes in support of 

this claim, the Court construes it broadly to allege that the hostile work environment was based on 

her age, sex, race and disability, as well as her past EEO activity.

1. Whether Plaintiff has Exhausted

In her EEO Complaint, Plaintiff expressly stated that she had been subject to a hostile 

work environment and, as stated above, she checked the boxes for discrimination based on age, 

race, sex, disability, and prior EEO activity. See Wallace Decl., Ex. A. Defendant contends this 

claim was not properly exhausted because Plaintiff did not timely seek EEO counseling, pointing 

out that the specific entries in the attachment to the First EEO Complaint that were listed to show 

a hostile work environment were dated no later than April 2011, many months before Plaintiff 

initiated EEO counseling. The Court finds that Defendant‘s reading of the EEO charge is too 

narrow. As discussed above, courts must construe EEO charges ―with utmost liberality since they 

are made by those unschooled in the technicalities of formal pleading.‖ Sosa v. Hiraoka, 920 F.2d 

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1451, 1458 (9th Cir. 1990) (citation omitted). Plaintiff included a long list of discriminatory 

conduct in the attachment to her First EEO Complaint, listing them by number. Although number 

―8‖ was labeled ―hostile work environment,‖ many of the discrete acts listed elsewhere on her list 

could support a hostile work environment claim. Included on the list was Plaintiff‘s cancelled 

deployment (discussed above) and a credit card charge associated with that deployment for which 

Plaintiff apparently alleged she had not been reimbursed. The record reflects that the charge was 

incurred in mid-September 2011. See Opposition Exs. 14, 15. 

As discussed above, under Morgan, a hostile work environment claim is timely so long as 

any of the acts that support the claim were raised in a timely manner. Plaintiff included in her First 

EEO Complaint conduct that occurred within the 45-day period prior to initiating EEO counseling 

that may be part of a hostile work environment; she also claimed that she was subject to a hostile 

work environment. The Court concludes that at the pleading stage, that is sufficient for the 

purposes of demonstrating exhaustion of this claim.12 The Court does not, however, preclude 

Defendant from challenging this claim on exhaustion grounds at later stage of the case, when the 

Court is in a better position to evaluate whether the conduct that that occurred within the 45-day 

period was part of a continuing practice or rather, was a discrete discriminatory act for the 

purposes of Morgan.

2. Whether Plaintiff Has Stated a Claim 

Plaintiff‘s hostile work environment claim will require that she establish that the allegedly 

discriminatory conduct of Defendant was because of Plaintiff‘s membership in a protected group, 

whether that group is based on her age, race, sex or disability. As discussed above, Plaintiff has 

alleged no facts linking the alleged harassment to her membership in any protected class. 

Although she alleges generally that ―[o]ther similarly situated contract specialists not in plaintiff‘s 

protected class were not treated the same,‖ see, FAC ¶ 17, such conclusory allegations are not 

 

12 The Court notes that in Plaintiff‘s Second EEO Complaint, she asserts a hostile work 

environment claim for the period 2013 to 2016. Wallace Decl., Ex. E. That complaint has not 

been exhausted. The Court declines to address whether there should be a particular cut-off date as 

to the exhaustion of Plaintiff‘s hostile work-environment claim in this action. The parties did not 

brief that question and in any event, Plaintiff has not yet stated a valid hostile work environment 

claim under Rule 12(b)(6). 

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sufficient to meet the requirements of Rule 12(b)(6). Plaintiff will be permitted to amend to cure 

this defect if she can.

L. Claim Seven (Disparate Treatment Discrimination)

In Claim Seven, Plaintiff alleges ―[d]isparate [t]reatment‖ in violation of Title VII, the 

ADEA and the Rehabilitation Act based on the allegation that Plaintiff is a ―tenured qualified 

disabled employee, who is in a protected class‖ and ―was subjected to discriminatory treatment, 

different from other employees who were not in her protected class, but were similarly situat[ed].‖ 

The Court cannot discern the basis for this claim, which is entirely conclusory, or whether it has 

been exhausted. Therefore, the Court DISMISSES this claim pursuant to both Rule 12(b)(1) and 

12(b)(6) with leave to amend. 

IV. CONCLUSION

For the reasons stated above the Court GRANTS in part and DENIES in part Defendant‘s 

Motion to Dismiss and dismisses all of Plaintiff‘s claims with leave to amend to cure the 

deficiencies identified in this Order, as set forth below. In particular, the Court rules as follows:

 Claim One (Wrongful Termination): DISMISSED based on failure to exhaust 

administrative remedies and failure to state a claim. Plaintiff may amend to show 

that she has satisfied the administrative requirements for bringing her ADEA claim 

in federal court and to allege facts that support a plausible inference that her 

terminations were based on age discrimination. Leave to amend is DENIED to the 

extent this claim is based on other forms of discrimination under Title VII and the 

Rehabilitation Act.

 Claim Two (Failure to Promote): DISMISSED based on failure to exhaust 

administrative remedies and failure to state a claim. Plaintiff may amend to allege 

facts showing that the 45 deadline for initiating EEO counseling on this claim is 

subject to waiver, estoppel or equitable tolling and to allege facts supporting a 

plausible inference that the promotion was denied on the basis of a disability. 

 Claim Three (Retaliation): DISMISSED based on failure to exhaust administrative 

remedies and failure to state a claim. Plaintiff may amend to allege facts showing 

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that the 45 deadline for initiating EEO counseling on this claim is subject to waiver, 

estoppel or equitable tolling and establish a reasonable inference that the 

investigator was motivated by specific prior EEO conduct of which he had 

knowledge, and that the Department of Homeland Security can be held liable for 

his conduct.

 Claim Four (Denial of Training): DISMISSED based on failure to exhaust 

administrative remedies and failure to state a claim. Plaintiff may amend to allege 

facts showing that the training identified in her First EEO Complaint was denied 

within 45 days of initiating EEO counseling or that the 45-day deadline for 

initiating EEO counseling on this claim is subject to waiver, estoppel or equitable 

tolling. She may also amend to allege facts supporting a plausible inference that 

the training was denied on the basis of a disability. 

 Claim Five (Failure to Pay Additional Wages): DISMISSED based on failure to 

state a claim. Plaintiff may amend to allege facts showing that her deployment was 

cancelled on the basis of a disability.

 Claim Six (Hostile Work Environment): DISMISSED based on failure to state a 

claim. Plaintiff may amend to allege facts showing that she was subjected to a 

hostile work environment because of her age, sex, race and disability, as well as her 

past EEO activity. 

 Claim Seven (Disparate Treatment): DISMISSED based on failure to exhaust 

administrative remedies and failure to state a claim. Plaintiff may amend to allege 

specific facts identifying the basis for this claim and that Plaintiff has exhausted 

administrative remedies as to this claim.

Plaintiff, who is not represented by counsel, is encouraged to consult with the Federal Pro 

Bono Project‘s Legal Help Center in either of the Oakland or San Francisco federal courthouses 

for assistance. The San Francisco Legal Help Center office is located in Room 2796 on the 15th 

floor at 450 Golden Gate Avenue, San Francisco, CA 94102. The Oakland office is located in 

Room 470-S on the 4th floor at 1301 Clay Street, Oakland, CA 94612. Appointments can be 

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made by calling (415) 782-8982 or signing up in the appointment book located outside either 

office, and telephone appointments are available. Lawyers at the Legal Help Center can provide 

basic assistance to parties representing themselves but cannot provide legal representation.

Plaintiff’s amended complaint shall be filed within 45 days of the date of this Order.

IT IS SO ORDERED.

Dated: February 21, 2017

______________________________________

JOSEPH C. SPERO

Chief Magistrate Judge

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