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OFFICE OF COMPLIANCE LA 200, John Adams Building, 110 Second               Street, S.E.              Washington, DC 20540-1999 
_______________________SHERRY M. BRITTON      Complainant,                 v.                             Case No. 01-AC-346(CV,FM,RP)                                                 Date: June 3, 2003OFFICE OF THE ARCHITECT  OF THE CAPITOL_______________________
Before the Board of Directors: Susan S. Robfogel,               Chair; Barbara L. Camens, Alan V. Friedman; Roberta L. Holzwarth;               Barbara Childs Wallace, Members.

DECISION AND REMAND ORDER               OF THE BOARD OF DIRECTORS

I. Introduction

This reprisal and Family and Medical Leave Act               ("FMLA") case, brought under Section 405 of the Congressional               Accountability Act ("CAA") (2 U.S.C. §1405), is before               the Board pursuant to the Complainant employee's petition for review               of the Hearing Officer's dismissal of the complaint, prior to discovery               or a hearing. The issues on appeal essentially deal with the timeliness               and merits of the Complainant's FMLA claims and whether her allegedly               related discipline by the Employing Office ("the Architect")               is encompassed by the CAA's anti-retaliation provision (Section               207 of the CAA, 2 U.S.C. §1317).

We affirm the Hearing Officer's conclusion that               the Complainant's denial of FMLA leave by Respondent is time-barred.               However, we reverse the Hearing Officer's dismissal of Complainant's               alleged reprisal-motivated disciplinary action and remand that issue               to the Hearing Officer for further proceedings consistent with the               opinion.

II. Statement of the Case

A. Background1

On April 13, 2000 the Complainant employee left               work abruptly during the afternoon without first providing notice               or obtaining employer permission, upon learning telephonically that               her child had committed a violent act at school and was about to               be taken into police custody.2 The Complainant did not               contact her supervisor until the afternoon of the following day               (Friday) when she telephonically asked to be placed on FMLA status               from the time of Thursday departure through the following Monday.3               Her supervisor disapproved her FMLA request for Thursday-Friday               but tentatively approved it for the prospective Monday absence.               The Architect's management, at its own initiative and with finality,               ultimately denied the Complainant's FMLA request covering April               13-14, 2000, on August 18, 2000. The Complainant did not seek counseling               from the Office, pursuant to the CAA, until May 11, 2001, which               was more than 250 days after August 18, 2000.

The Architect, on June 20, 2000, proposed that               the Complainant be suspended without pay for five days: for being               on absence-without-leave ("AWOL") on April 13-14, 2000;               for using foul language before leaving the office on April 13; and               for driving unsafely and failing to identify herself when leaving               the employee parking lot on April 13. The Architect afforded the               Complainant what the pleadings refer to as a "hearing",               and on November 15, 2000, the Architect issued to the Complainant               a reduced penalty in the form of a formal reprimand citing the Complainant               (1) for uttering a profane expletive at work and (2) leaving work               without supervisory permission. The reprimand remained in the Complainant's               official personnel file for one year and still may be utilized to               enhance penalties should the Architect again consider disciplining               the Complainant. The pleadings do not disclose whether the proposed               suspension and resultant reprimand otherwise affected the Complainant's               working conditions; e.g., regarding assignments, promotability,               performance evaluation, etc. The Complainant sought counseling from               the Office of Compliance on May 11, 2001, which was within the prescribed               180-day period from the imposition of her formal reprimand.

B. Hearing Officer's Decision

The Hearing Officer, on written motion and oral               arguments, dismissed the complaint prior to any discovery or an               evidentiary hearing. The Hearing Officer stated his reasons on the               record and issued a short written dismissal order referencing the               hearing transcript of his findings. The dismissal was based upon               the following conclusions: (1) the FMLA Claim was time-barred for               not having been presented within 180-days from when the Architect               disapproved the Complainant's FMLA request for April 13-14, 2000;               alternatively, (2) the Complainant failed to establish her entitlement               to FMLA Leave; (3) the retaliation allegation did not state a claim               because (a) requesting and taking FMLA leave was not a protected               activity, (b) formally reprimanding the Complainant for requesting               and taking FMLA leave did not rise to an actionable adverse action,               and (c) there was no showing of a causal connection between the               leave request and the formal reprimand; (4) the hostile working               environment claim was redundant to the reprisal claim. In view of               his conclusions, the Hearing Officer did not address the Architect's               argument that the Complainant's failure to plead that she had worked               the statutorily requisite number of hours in the twelve month period               preceding her FMLA request was fatal to her claim.4

III. Positions of the Parties

A. Appellant/ Complainant

The Complainant contends that subsequent to the               Architect's August 2000 determination to deny her FMLA leave for               April 13-14, 2000, the Architect, within the 180- day filing period               prior to her counseling request, altered the time period of her               FMLA eligibility. She also argues that the statute of limitations               period should begin to run from November 15, 2000, when the Architect               formally reprimanded her, inter alia,               for being AWOL during the April 2000 period for which she was denied               FMLA leave. The Complainant further contends that by giving her               a written reprimand the Architect committed an act proscribed by               the anti-reprisal clause of the CAA.

B. Appellee/Architect

The Architect argues that its August 18, 2000               denial of the Complainant's FMLA request was a discrete act from               which the 180- day filing period commenced. Moreover, the Architect's               later re-computation of the Complainant's FMLA eligibility period               was unrelated to her denied FMLA request, but instead dealt with               computing the twelve month period for measuring the Complainant's               eligibility to claim up to 12 weeks of FMLA leave. The Architect               also submits that the Complainant had not engaged in protected activity               by requesting and taking FMLA leave, and that a formal reprimand               does not fall within the protection of the CAA anti-reprisal clause.

 IV. Analysis and Conclusions

A. Timeliness Issue

The Supreme Court held in Delaware               State College v. Ricks, 449 U.S.250, 257-58 (1980), that               Title VII relief is generally not available with respect to a decision,               which is made during the limitations period, not to rescind a discriminatory               decision that took place outside the limitation period. In not allowing               Ricks to challenge his termination, the Supreme Court held: "It               is simply insufficient for Ricks to allege that his termination               "gives present effect to the past illegal act and therefore               perpetuates the consequences of forbidden discrimination."               Ricks, 449 U.S. 257-58.

In National Railroad               Passenger Corp. [Amtrak] v. Morgan, 536 U.S. 101 (2002),               the Supreme Court held that when an employee seeks redress for discrete               acts of discrimination or retaliation, (s)he may not invoke the               doctrine of continuing violation               to recover for acts that occurred prior to the filing period. The               Court did allow employees to use the doctrine, however, when they               allege hostile work environment,5 permitting employees               to file within the requisite time period for any act that is part               of the hostile work environment. According to the Supreme Court,               "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 `unlawful employment practice'". Id.               In contrast, hostile environment claims involve unlawful employment               practices that cannot be said to occur on any particular day, but               occur over a series of days or years. Id.               (citing Harris v. Forklift Systems, Inc.,               510 U.S. 17, 21 (1993)). "Discrete discriminatory acts are               not actionable if time barred, even when they are related to acts               alleged in timely filed charges." Id. at p. 114.

The Complainant has alleged the following discrete               events: (1) in 1999 the Architect denied her request to alter her               basic working hours to accommodate the medical and special needs               of her child until she had successfully grieved the matter; (2)               in mid-April and August 2000 the Architect partially disapproved               her request for FMLA leave to deal with an emergency connected with               her child's diagnosed conditions; and (3) in November 2000 the Architect               decided formally to reprimand the Complainant for misconduct, including               leaving work without permission during the April period of her disapproved               FMLA request.

The Hearing Officer's dismissal on untimeliness               grounds would be sustainable only "if it is clear that no relief               could be granted under any set of facts that could be proved consistent               with the allegations." H.J. Inc. v.               Northwest Bell Telephone Co., 492 U.S. 229, 249-50 (1989).               We do find such required clarity in this pleaded record. The Complainant               has alleged three individual and discrete acts relating to her alleged               exercise of FMLA rights regarding her child, only the last of which               occurred within the 180 filing period in which the Complainant timely               sought counseling. While the Complainant characterizes these actions               as constituting a hostile work environment they are nevertheless               discrete acts that do not represent the time-blurred conduct the               Supreme Court addressed in Amtrak               as falling within the narrowed continuing               violation doctrine. See, e.g., Gary               G. Sharpe, et. al. v. Bruce Cureton, et al., 319 F.3d 259               (6th Cir. 2003); and Florence Deanna Ballard               v. Steven A. Kandarian, Executive Director, Pension Benefit Guaranty               Corp., 2002 U.S. App. LEXIS 26759 (D.C. Cir., 2002).

Accordingly, we affirm the Hearing Officer's               conclusion that the Complainant's FMLA claim is time barred regarding               the Architect's denial of her requests for FMLA leave for her absences               on April 13-14, 2000.

B. The Reprisal Claim

Applying Title VII precedent, the Hearing Officer               concluded that the Architect's formal reprimand of the Complainant,               did not rise to the level of an actionable personnel event. In addition,               the Hearing Officer expressed some sympathy, while not definitively               ruling on the Architect's position, for the argument that the Complainant               had not engaged in activity protected by the CAA's anti-reprisal               clause, which only encompasses the opposition to unlawful practices               or participation in the CAA's dispute resolution process. Instead,               the Complainant alleged reprisal because she had exercised her rights               to request and take leave under the FMLA.

We do not find it necessary to interpret the               scope of Section 207 of the CAA to decide this appeal because the               FMLA's internal anti-reprisal provision ( 29 U.S.C. §2615)               is applied to this case through section 202(a) of the Congressional               Accountability Act (2 U.S.C. § 1312(a)). 6

The FMLA makes it illegal for an employer "to               interfere with, restrain or deny the exercise of or attempt to exercise               an [FMLA] right . . . ."[29 U.S.C. §2615(a)(1)]. That               protection is also reflected in the Office of Compliance's FMLA               Regulations at §825.220. The anti-retaliation provision plainly               covers Complainant's act of requesting FMLA leave under 29 U.S.C.               §2612; and her opposition to the Architect's proposal that               she be suspended for five days for alleged misconduct, which included               the AWOL period for which the Architect had denied the Complainant's               FMLA requests. The prohibition clearly is broader than a non-discrimination               anti-retaliation provision. Indeed, the immediately following provisions               prohibit discrimination against employees who oppose practices made               unlawful by the statute or who participate in the FMLA enforcement               process. [29 U.S.C. §2615(a)(2) & (b)]. In other words,               when Congress intended the FMLA to limit protection to discrimination,               it stated so expressly.

The prohibition on interference with FMLA rights               appears to be modeled on Section 8(a)(1) of the National Labor Relations               Act ("NLRA"), which prohibits employer interference, restraint               or coercion of employees' rights to engage or refrain from engaging               in union and other concerted activities. [29 U.S.C. §158(a)(1)].               See Bachelder v. America West Airlines,               259 F.3d 112 (9th Cir. 2001). Discriminatory intent is not necessary               to establish a violation of Section 8(a)(1). Rather, the National               Labor Relations Board ("NLRB") and the courts objectively               balance the employees' rights against the employer's property and               managerial interests. See Republic Aviation               Corp. v. NLRB, 324 U.S. 793 (1945).

There is no requirement under NLRA decisional               law that actionable retaliation in the form of coercion or discrimination               constitute an "ultimate", "tangible", or "permanent"               management decision. Rather, prohibited retaliation under the NLRA               turns on whether the action unlawfully coerces an employee under               §8(a)(1) or discriminates against an employee under §8(a)(4).               The protective emphasis focuses on the foreseeable effects of the               employer conduct and not necessarily on whether the employee has               suffered an ultimate personnel action such as discharge, suspension,               demotion, denied promotion, etc.. See.               e.g., Bill Johnson's Restaurants v. NLRB, 461 U.S. 731 (1983);               Howard Manuf. Co., Inc. 231 NLRB               731 (1977).

We believe, based upon the foregoing, that the               Complainant's allegation of disciplinary retaliation for exercising               her FMLA rights was sufficient to have survived a dismissal motion               on the pleadings. However, the Hearing Officer may consider, following               discovery and/or after a hearing, whether Complainant's alleged               mistreatment met "some threshold level of substantiality".               See Tia Graham v. State Farm Mutual Insurance               Company, 193 F.3d 1274 (11th Cir. 1999) [ employer placed               a non-repercussion memorandum in plaintiff's file stating that she               had been AWOL]; Wideman v. Wal-Mart Stores,               Inc. 141 F.3rd 1453 (11th Cir. 1998); and Sharon               M. Frankel v. U.S. Postal Service, 96 F. Supp. 2d 19 (D.               MA, 2000).              [Court treated as actionable a supervisor's "official discussion"               with plaintiff regarding her leave usage, although finding no retaliation               because the supervisor was then unaware of her FMLA protected activity].

C. Hearing Officer's Merits Rulings by               Summary Judgment

Fed. R. Civ. P. 56(c)               provides that summary judgment "shall be rendered forthwith"               if the record shows "that there is no genuine issue as to any               material fact and that the moving party is entitled to a judgment               as a matter of law". See Celotex Corp.               v. Catrett, 477 U.S. 317, 322-328 (1986); Anderson               v. Liberty Lobby, Inc., 477 U.S. 242, 248-252 (1986). A genuine               issue of material fact exists if the evidence in the record would               allow a reasonable jury to return a verdict for the non-moving party.               See Anderson, 477 U.S. at 248. In               making this determination, the non-moving party's evidence must               be credited, and all justifiable inferences are to be resolved in               his/her favor. See id. at 255. However,               the existence of a mere scintilla of evidence in support of a position               is insufficient; the non-moving party must produce admissible evidence               on which a jury could reasonably find in his/her favor. See id.               at 252.

We do not believe that the pre-discovery record               before the Hearing Officer permitted an informed decision on summary               judgment on whether a causation nexus existed between the Complainant's               protected activities and the Architect disciplining her.7               The record did not afford the Hearing Officer the benefit of an               evidentiary basis to assess causation regarding the Complainant's               disciplinary action under the circumstantial proof model for FMLA               retaliation cases. Darby v. Bratch,               287 F3d 673, 679 (8th Cir. 2002); Candis               v. Allen Health Systems, Inc., et               al., 302 F3d 827 (8th Cir. 2002); Graham               v. State Farm Mutual Ins. Co., 193 F.3d 1274 (11th Cir. 1999);               Maldonado v. U.S. Bank, 186 F.3d               759 (7th Cir. 1999).

The pleadings allege that the Complainant engaged               in FMLA protected activity, that management proposed that she be               disciplined in proximate time thereto, inter               alia, upon allegations against Complainant arguably reflecting               her partially disapproved FMLA requests. Based upon this showing,               we believe that it was improper to dismiss the complaint or grant               summary judgment without affording the Complainant the opportunity               to conduct discovery.

ORDER

Pursuant to Section 406(e) of the Congressional               Accountability Act and Section 8.01(e) of the Office's Procedural               Rules, the Board reverses the Hearing Officer's dismissal of the               complaint and remands the matter for further proceedings consistent               with this decision.

It is so ordered.

___________________              Susan S. Robfogel, Chair

___________________              Barbara L. Camens, Member

____________________              Alan V. Friedman, Member

____________________              Roberta L. Holzwarth, Member

____________________              Barbara Childs Wallace, Member

              Issued, Washington, D.C.: June 3, 2003

CERTIFICATE OF SERVICE

 I hereby certify that on this 3rd day of June,               2003, I delivered a copy of this Decision of the Board of Directors               to the following parties by the identified means:

 First-Class Mail Postage-Prepaid

Jeffrey H. Leib, Esquire              5104 34th Street, N.W.              Washington, D.C. 20008

Ms. Sherry M. Britton              8189 Woodland Lane              Chesapeake, MD 20732

First-Class Mail Postage-Prepaid              & Facsimile Mail (202-789-1708)

Christine M. Cooper, Esquire              McGuiness, Norris & Williams, LLP              1015 Fifteenth Street, N.W.              Suite 1200              Washington, D.C. 20005

              ___________________              Kisha L. Harley              Office of Compliance

1 Inasmuch as this appeal arose from               a complaint dismissal the Board shall accept as true all well-pleaded               factual complaint allegations and draw all reasonable inferences               in the Complainant's favor. *H.J. Inc. Northwest Bell Telephone               Co.*, 492 U.S. 229, 249-50 (1989); Conley v. Gibson, 355 U.S.               (1957); and *In re Burlington Coat Factory Sec. Litig.*, 114               F.3d 1410, 1424-25 (3d Cir. 1997).

2 In 1999 the Architect permitted (after               she grieved the matter) the Complainant to alter her normal working               hours to accommodate the medical and other special needs of her               child.

3 Upon returning to work on April 18               the Complainant completed two written leave request slips reasserting               her oral FMLA requests for her absences on April 13, 14 and 17,               2000.

4 That contention is without merit.               The Office of Compliance FMLA Regulations, at §825.110(c),               state:"[A]n employing office must be able to clearly demonstrate               that such an employee did not work 1,250 hours during the previous               12 months in order to claim that the employee is not `eligible'               for FMLA leave". Accordingly, that showing constitutes an affirmative               employing office defense and not a complainant employee's pleading               requirement.

5 Count III of the Complaint does allege               a hostile work environment.

6 Although the written complaint did               not specifically allege that the Architect retaliated against the               Complainant in violation of 29 U.S.C. §2615, it is premised               upon the FMLA. Accordingly, the Complainant put the Architect on               notice that she was asserting FMLA rights, obligations, and protections,               potentially including the FMLA's anti-retaliation provision.

7 In view of our finding that the Complainant               is time barred from raising her denial of FMLA leave claim, it is               unnecessary for us to address the Hearing Officer's grounds for               granting summary judgment on the merits of that claim. 

 
Questions or comments regarding this service? Contact wwwadmin@compliance.gov.
              
 

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