FILED United States Court of Appeals Tenth Circuit 

### March 12, 2014 Elisabeth A. Shumaker Clerk of Court PUBLISH UNITED STATES COURT OF APPEALS FOR THE TENTH CIRCUIT

MARCIA EISENHOUR, Plaintiff - Appellant,

v. WEBER COUNTY, a political division of the State of Utah; CRAIG D. STOREY, CRAIG DEARDON, KENNETH BISCHOFF, and JAN ZOGMAISTER, in their official and individual capacities, Defendants - Appellees. No. 12-4190 (D.C. No. 1:10-CV-00022-DB) (D. Utah)

ORDER

________________________________ Before GORSUCH , BALDOCK , and BACHARACH , Circuit Judges.

________________________________ The Plaintiff requests rehearing, and the panel grants the request. The Court vacates the opinion issued originally on December 31, 2013. The clerk is directed to substitute the attached amended decision and to file it contemporaneously with this
order.
Entered for the Court

ELISABETH A. SHUMAKER, ClerkFILED United States Court of Appeals Tenth Circuit 

### March 12, 2014 Elisabeth A. Shumaker Clerk of Court PUBLISH UNITED STATES COURT OF APPEALS FOR THE TENTH CIRCUIT

MARCIA EISENHOUR, Plaintiff - Appellant,

v. WEBER COUNTY, a political division of the State of Utah; CRAIG D. STOREY, CRAIG DEARDON, KENNETH BISCHOFF, and JAN ZOGMAISTER, in their official and individual capacities, Defendants - Appellees. No. 12-4190 (D.C. No. 1:10-CV-00022-DB) (D. Utah)

ORDER

________________________________ Before GORSUCH , BALDOCK , and BACHARACH , Circuit Judges.

________________________________ Defendant Craig Storey has requested rehearing, arguing in part: (1) The panel opinion erroneously relied in part on sworn testimony before the Judicial Conduct Commission even though the testimony was deemed inadmissible; and (2) the evidence does not support Ms. Eisenhour’s claim that Defendant Storey knowingly and intentionally committed sexual harassment by telling her about adream. On these issues, Defendant Storey has also requested en banc consideration. In addition, he seeks en banc consideration on the issue of qualified immunity. The panel grants rehearing on the first issue, which involves reliance on the Commission testimony by Ms. Eisenhour. The remainder of the petition for panel rehearing is denied. In light of the partial grant of the petition, however, the panel vacates the opinion issued on December 31, 2013. The clerk is directed to substitute the attached amended decision and to file it contemporaneously with this order. The petition was also transmitted to all of the judges of the Court who are in regular active service, and no member of the panel or a judge in regular active service has requested that the court be polled. Thus, the petition for en banc
consideration is denied.
Entered for the Court

ELISABETH A. SHUMAKER, Clerk

-2-PUBLISH UNITED STATES COURT OF APPEALS TENTH CIRCUIT

MARCIA EISENHOUR, Plaintiff-Appellant,

12-4190 v. WEBER COUNTY, a political division of the State of Utah; CRAIG D. STOREY, CRAIG DEARDON, KENNETH BISCHOFF, and JAN ZOGMAISTER, in their official and individual capacities, Defendants-Appellees.

Appeal from the United States District Court for the District of Utah (D.C. No. 1:10-CV-00022-DB)
April Hollingsworth of Holli ngsworth Law Office, LLC, Sa lt Lake City, Utah, for Plaintiff-Appellant. Susan Black Dunn (Kathleen Liuzzi, on the briefs), of Dunn & Dunn, P.C., Salt Lake City, Utah, for Defendants-Appe llees Weber County, Craig Deardon, Kenneth Bischoff, and Jan Zogmaister. Linette B. Hutton of Winder & Counsel, PC, Salt Lake City, Utah, for DefendantAppellee Craig D. Storey.

Before GORSUCH , BALDOCK , and BACHARACH , Circuit Judges. FILED United States Court of Appeals Tenth Circuit 

### March 12, 2014
Elisabeth A. Shumaker Clerk of Court2 BACHARACH , Circuit Judge.

Marcia Eisenhour sued Weber County, three of its county commissioners, and a state judge. According to Ms. Eisenhour, th e judge (Craig Storey) sexually harassed her and the County retaliated against her for reporting the harassment. She claimed violations of Utah’s Whistleblower Act, the First Amendment, the Fourteenth Amendment’s Due Process and Equal Protecti on Clauses, and Title VII. The district court granted summary judgment to the defendants on all claims. Ms. Eisenhour challenges this ruling and the district court’s exclusion of her testimony on disciplinary proceedings involving the judge. We affirm: (1) the exclusion of Ms. Eisenhour’s testimony during the discip linary proceedings involving Judge Storey, and (2) the award of summary judgment on the claims against the County for violation of the Fourteenth Amendment’s Eq ual Protection and Due Process Clauses, liability under Title VII, and violation of the Whistleblower Act relating to the refusal to rehire her. But, we conclude that genuine issues of mate rial fact existed on: (1) the claims against the County under the Whistlebl ower Act and the First Ame ndment based on closing of the Justice Court, (2) the First Amendmen t claim against the County Commissioners, and (3) the claim against Judge Storey base d on the Fourteenth Amendment’s Equal3 Protection Clause. Accordingly, on these claims, we reverse the award of summary judgment.
I. Ms. Eisenhour’s Evidence The facts, presented in the light most favorable to Ms. Eisenhour as the party opposing summary judgm ent, are as follows: A. Ms. Eisenhour’s Evidence of Sexual Harassment Ms. Eisenhour worked for Weber County for 24 years, serving as the Court Administrator for the Weber Co unty Justice Court under the direct supervision of Judge Storey. According to Ms. Eisenhour, she was subjected to offensive touching and unreasonable questions about her activities away from work. Judge Storey began acting inappropriatel y toward Ms. Eisenhour in early 2008. He became “touchy” and wo uld often stand so close to her that his groin rubbed against her. In addition to the touching, Judge Stor ey once called Ms. Eisen hour into his office and told her that he had a dream about her in which she was naked. Ms. Eisenhour also found a poem by Judge Storey, which reve aled his romantic feelings for her. According to Ms. Eisenhour, she was al so subjected to unreasonable demands about her activities. Before 2008, she was allowed to work flexible hours and to miss work without obtaining prior approval. In 2008, however, Judge Storey told Ms. Eisenhour that her frequent absences and unpredictable work patterns had become a problem and that, in the future , she could not miss work with out his approval. To obtain4 approval, she would need to tell him wher e she was going, what she was doing, and whom she would be with. Perceiving the ne w policy as “possessive” and an attempt to control her, Ms. Eisenhour went to the Coun ty Attorney’s Office and complained of sexual harassment by Judge Storey. Ms. Eisenhour was immediately placed on paid administrative leave pending an investigation.
B. Evidence of an Investigation into Ms. Eisenhour’s Allegations The County launched an investigation into Ms. Eisenhour’s allegations. Ms. Eisenhour told investigators about the poe m, Judge Storey’s dream about her, the inappropriate touching, and the new restrictio ns on missing work. The investigators also interviewed witnesses, includi ng Judge Storey. But, Ms. Eisenhour testified that the investigators had never asked Judge Storey wh ether the allegations were true. Instead, she stated that the investigation focused on her work ethic and the quality of her work. Ms. Eisenhour eventually retu rned to work. Wh en she did, she became part of the Clerk/Auditor’s Department and was no longer supervised by Judge Storey. To minimize contact between Judge Storey and Ms. Eise nhour, the County moved Judge Storey’s office to a different floor and designated a de puty court clerk as a liaison between Judge Storey and Ms. Eisenhour. The County ultimately decided not to di scipline Judge Storey and referred Ms. Eisenhour’s complaints to Utah’s Judici al Conduct Commission. The Commission investigated the incident, fo und no misconduct on Judge Storey’s part, and dismissed the5 allegations. Ms. Eisenhour reacted by goi ng to the press. Tw o newspapers printed articles about the allegations, stating that no action was being taken against Judge Storey. C. Evidence Involving the Co unty’s Decision to Close the Justice Court Between August and Decemb er 2009, the County Commissioners decided to close the Justice Court, which mean t the loss of Ms. Eisenhour’s job. The County maintains that the Commissioners made the decision be cause of increasing revenue losses rather than Ms. Eisenhour’s allegations or her deci sion to go to the media. After the court closed, Ms. Eisenhour applied to the County for three vacant positions. Unsuccessful, Ms. Eisenhour lost not only her job but also the potential for retirement benefits. Because Judge Storey had more years of serv ice, however, he was able to retire with benefits.
II. Ms. Eisenhour’s Claims and the Dist rict Court’s Ruling on Summary Judgment On March 13, 2009, Ms. Eisenhour filed claims with Utah’s Antidiscrimination and Labor Division and the Eq ual Employment Opportunity Commission, alleging sexual harassment and retaliation. Still dissatisfied, she sued Judge Storey , Weber County, and the County Commissioners, in voking Title VII, 42 U.S.C. § 1983, and the Utah Whistleblower Act. 1 The district court granted summary judgmen t to the defendants on all claims. The court reasoned that Judge Stor ey had qualified immunity and di d not act with the intent to

1 Ms. Eisenhour also sued Judge Storey for intentional infliction of emotional distress, but she does not address that cause of action in this appeal.6 violate Ms. Eisenhour’s equal-protection rights . On the claims ag ainst the County, the district court held that it lacked jurisdicti on over the Title VII claim, that the equalprotection claim failed because Judge Storey was not an offi cial policymaker, that the First Amendment claim failed because Ms. Eisenhour had not engaged in protected speech, and that her due-process claim failed because she had not established a property interest in her employment. III. Exclusion of Ms. Eisenh our’s Deposition Testimony In deciding whether to grant summary j udgment, the district court declined to consider Ms. Eisenhour’s deposition testim ony taken during the Judicial Conduct Commission’s investigation. The parties agre e that the issue is governed by Utah Code Ann. § 78A-11-112. 2 Appellant’s App. vol. 1, at 318, 321-22, 366-69, 373-75. This statute provides in pertinent part that “[t]he transmission, production, or disclosure of any complaints, papers, or testimony in the course of proceedings before the commission . . . may not be introduced in any civil action. ” Utah Code Ann. § 78A-11-112(1). Ms. Eisenhour disagrees with the ruling, but we conclude that the court did not err.

2 Because the parties agree th at the issue is governed by the Utah statute, we need not independently determine whether admi ssibility of Ms. Eisenhour’s testimony was governed by federal law or state law. We note, however, that federal law would also render the testimony confidential if the investig ation had involved a federal judge rather than a state judge. 28 U.S.C. § 360(a) (2006); see also 10th Cir. Rules for JudicialConduct & Judicial-Disability Proceedings, Rule 23(a)-(b), (d) (restricting disclosure of judicial-conduct investigations involving federal judges in the Tenth Circuit).7 Our review is de novo. Cent. Kan. Credit Union v. Mut. Guar. Corp. , 102 F.3d 1097, 1104 (10th Cir. 1996). Under a plain reading of section 78 A-11-112(1), testimony taken during the course of proceedings be fore the Judicial Conduct Commission cannot be introduced in a civil action. The statut e elsewhere authorizes disclosure under limited circumstances, but the issue here is whether the deposition transcript can be introduced, not whether it can be disclosed. See Utah Code Ann. § 78A-11-1 12(3). Thus, the district court had an obligation to exclude the test imony taken during the Judicial Conduct Commission’s investigation. IV. Summary Judgment Because Ms. Eisenhour’s deposition testim ony was properly excluded, we do not consider it in our review of the summary-judgmen t ruling. In this re view, we agree with the district court that the statute of limita tions barred Ms. Eisenhour ’s Whistleblower Act claim based on the County’s refusal to re hire her, that the Title VII claim was unexhausted, that Ms. Eisenhour lacked a property interest for her due-process claim, and that the County did not incur liability for an equal-protec tion violation because Judge Storey was not a “policymaker” regarding the a lleged acts. But we also conclude that the district court erred in granting summary j udgment: (1) to Judge Storey on the § 1983 claim for an equal-protection violation, (2 ) to the County and County Commissioners on the § 1983 claim for violation of the First Amendment, a nd (3) to the County on the8 Whistleblower Act claim based on closing of the Justice Court. In ou r view, the evidence created a genuine issue of material fact on these claims. A. Standard of Review “We review the district court’s grant of summary judgment de novo, employing the same legal standard applicab le in the district court.” Thomson v. Salt Lake Cnty. , 584 F.3d 1304, 1311 (10th Cir. 2009 ). Summary judgment is appr opriate only if the evidence reflects the absence of a genuin e issue of material fact. Id. In making this assessment, we must view the evidence in the light most favorable to Ms. Eisenhour, the party opposing summary judgment. Noland v. McAdoo , 39 F.3d 269, 271 (10th Cir. 1994). B. Title VII Claim Ms. Eisenhour asserts a claim under Title VII for retaliation. The district court held that it lacked jurisdic tion over the claim because Ms. Eisenhour failed to exhaust administrative remedies. We agree. Federal courts lack jurisdiction over Title VII claims that were not previously covered in a claim presented to the Eq ual Employment Opportunity Commission. Shikles v. Sprint/United Mgmt. Co. , 426 F.3d 1304, 1317 (10th Ci r. 2005). Ms. Eisenhour filed an EEOC claim for sexual harassment, but this claim did not refer to any of the retaliatory acts underlying the eventu al cause of action under Title VII. Ms. Eisenhour argues that she had no obligation to file a new EEOC claim because the new incidents were “reasonabl y related” to the claim she had made.9 Although this argument might once have been viable, it is no longer. In 2003, we addressed a similar argument in Martinez v. Potter , 347 F.3d 1208, 1210 (10th Cir. 2003). There the plaintiff asse rted a claim with the EEOC in July 1999 fo r retaliatory conduct that had occurred in May 1999. In the eventual court action, however, the plaintiff alleged retaliation for conduct taking place after the EEOC co mplaint. The issue
in Martinez was whether the plaintiff failed to exhaust claims that post-dated the submission to the EEOC. The federal district court applied the old test in our circuit: whether the suit involved claims reasonably related to the allegations in the EEOC complaint. We held, howeve r, that this test had been effectively overruled by the Supreme Court. Martinez , 347 F.3d at 1210 (citing Nat’l R.R. Passenger Corp. v. Morgan , 536 U.S. 101, 122 (2002) ). Under the new test, each act of retaliation must be separately exhausted, even when acts that post-date the EEOC complaint reasonably relate to others presented to the EEOC. Id. at 1210-11. The Plaintiff relies on two of our decisions issued prior to 2003: Simms v. Oklahoma ex rel. Departm ent of Mental Health , 165 F.3d 1321, 1326 (10th Cir. 1999), and Seymore v. Shawver & Sons, Inc. , 111 F.3d 794, 799 (1 0th Cir. 1997). These decisions did suggest that exhaustion was unnecessary for claims related to those presented in an earlier EEOC complaint. Simms , 165 F.3d at 1326; Seymore , 111 F.3d at 799. But this view was unambiguously rejected in 2003 when we decided Martinez v.
Potter , 347 F.3d 1208, 1210-11 (10th Cir. 2003). See, e.g. , Annett v. Univ. of Kan. , 37110 F.3d 1233, 1238 (10th Cir. 2004) (noting that Seymore has been effectively abrogated in our circuit). Under the new rule, federal courts lack jurisdiction over incidents occurring after the filing of an EEOC claim unless the plai ntiff files a new EEOC claim or otherwise amends her original EEOC claim to add the new incidents. See 29 C.F.R. § 1601.12(b). Because Ms. Eisenhour did not file a new EEOC claim or amend he r submission to add the new incidents, the Title VII claim was unexha usted. As a result, we affirm the award of summary judgment to the County on the Title VII retaliation claim. C. First Amendment Claim Ms. Eisenhour invokes the First Amendm ent, claiming that the County retaliated against her by closing the Justice Court when she spoke to the medi a about the Judicial Conduct Commission’s investigation of Judge Storey. The County urged summary judgment on grounds that: (1 ) the communications to the media did not involve protected speech, and (2) it closed the Jus tice Court because of budgetary considerations rather than a retaliatory motive. We conclude that triable issues of fact existed and that the district court erred in granting summary judgment to the County.11 When we are faced with a First Ame ndment claim by a public employee, the district court must balance the First Amendmen t interests of that employee, speaking as a concerned citizen, with the gov ernment’s interests in “promo ting the efficiency of the public services it performs through its employees.” Pickering v. Bd. of Educ. of Twp. High Sch. Dist. 205 , 391 U.S. 563, 568 (1968). To con duct this balancing, the district court asks: (1) whether the speech was ma de pursuant to an employee ’s official duties; (2) whether the speech was on a matter of public concern; (3) whether the government’s interests, as employer, in promoting the efficiency of the public service are sufficient to outw eigh the plaintiff’s free spee ch interests; (4) whether the protected speech was a motivating factor in the adverse employment action; and (5) whether the defenda nt would have reached th e same employment decision in the absence of the protected conduct. Dixon v. Kirkpatrick , 553 F.3d 1294, 1301-02 (10th Ci r. 2009). While the first three inquiries involve matters of law, th e last two are questions of fact. Id. at 1302. In its motion for summary judgment and its appellate brief, the County addressed only the second and fourth factors. Viewing the evidence in the li ght most favorable to Ms. Eisenhour, we hold that her comments to the media involved protected speech and that she presented sufficient evidence for a reasonable fa ct-finder to infer that her comments were a motivating factor in the County’s decision to close the Court. The threshold question is whether Ms. Eisenhour’s communications to the media were protected under the First Amendment. See Wren v. Spurlock , 798 F.2d 1313, 1317 (10th Cir. 1986). In decidi ng whether the communication is constitutionally protected,12 we ask whether it relates to a matter of public concern (which is protected) or a matter of purely personal interest (w hich is not protected). Wulf v. City of Wichita , 883 F.2d 842, 856-57 (10th Cir. 1989). We must consider the speaker’s motivati on: Was the speech calculated to redress personal grievances or did it have some broader public purpose? Starrett v. Wadley , 876 F.2d 808, 81 6 (10th Cir. 1989). Speech involves a public concern when the speaker in tends to “‘bring to light actual or potential wrongdoing or breach of public trust’” by a public official or to “disclose[] any evidence of corruption, im propriety, or other malfeasance” within a governmental entity. Conaway v. Smith , 853 F.2d 789, 796 (1 0th Cir. 1988) (quoting Connick v. Myers , 461 U.S. 138, 148 (1983)). Wh en we evaluate whether speech concerns the public, we do so “by the content, form, and context of a given statement, as revealed by the whole record.” Connick v. Myers , 461 U.S. 138, 147-48 (1983). It is true, as the County argues, that Ms. Eisenhour cannot turn an “everyday employment dispute[]” into a constitutional violation. Borough of Duryea, Pa. v.
Guarnieri , __ U.S. __, 131 S. Ct. 2 488, 2501 (2011). But when Ms. Eisenhour spoke to the media, the subject-matter involved not only her employment dispute, but also her complaints about the work of the Judicial Conduct Committee. For example, the Salt
Lake Tribune article included an allegation that the Utah Judicial Conduct Commission had failed to properly perform its duty by refu sing to hear from eight witnesses during a closed-door hearing on the alle ged harassment. Appellant’s App. vol. 2, at 874. And this13 commission was the investigative body entrus ted by the public to uphold judicial integrity, which involves a public interest. See Landmark Commc’ns, Inc. v. Virginia , 435 U.S. 829, 839 (1978) (s tating in another First Ame ndment context that “[t]he operations of the courts and the judicial cond uct of judges are matters of utmost public concern”); Caperton v. A.T. Massey Coal Co. , 556 U.S. 868, 889 (2009) (stating that public confidence in elected judges is “a vital st ate interest”). As the County argues, one can reasonabl y infer that Ms. Ei senhour’s motivation was personal, as well as public, for the artic le referred to her allegations against Judge Storey as well as the Commission’s failure to hear from the eight witnesses. But a mixed motive is not fatal to her claim. See Deutsch v. Jordan , 618 F.3d 1093, 1100 (10th Cir. 2010) (“But the speaker’s havi ng a highly personal motive for a disclosure does not necessarily mean that th e speech is not a matter of public concern.”); Wulf v. City of Wichita , 883 F.2d 842, 860 n.26 (10th Cir. 1989) (n oting that while speech was “linked to some degree to [the plaintiff’s] personal di spute with [the defe ndant] on and to his dissatisfaction with his transfer to [another] [d]epartment, wh ich he viewed as retaliatory, [the speech also] contain[ed] a llegations of public concern”). The existence of an interest that is public, as well as pr ivate, is also borne out by the forum and timing of Ms. Eisenhour’s spe ech. She chose to sp eak with the media, through a public forum, only after the Commission had allegedly failed to carry out its investigatory obligation. See Considine v. Bd. of Cnty. Comm’rs of Cnty. of Adams,14 Colo. , 910 F.2d 695, 700 (10th Cir. 1990) (holdi ng that statements we re protected under the First Amendment in part b ecause they had been made to the media, which suggested an intent to disclose wrong doing by government officials); see also Markos v. City of
Atlanta , 364 F.3d 567, 571 (5th Cir. 2004) (noting that the form of the plaintiff’s speech was “quintessentially public as his comments a ppeared in the form of an article in the local newspaper”). The County re lies heavily on Workman v. Jordan , 32 F.3d 475 (10th Cir. 1994), and David v. City & Cnty. of Denver , 101 F.3d 1344 (10th Cir. 1996). Acknowledging that our facts differ from those in Workman and David, the County cite s these cases to “show that the Tenth Circuit has held that sexual harassment complaints address personal matters, not matters of public concern.” Br. Weber County Appellees at 28. For the sake of argument, we can assume that sexual hara ssment does not involve a matter of public concern. Here, though, Ms. Eisenhour’s st atements to the media addressed not only sexual harassment, but also the failure of a governmental entity to properly carry out its public responsibilities. No such allegation existed in Workman or David

. Unlike the plaintiffs in Workman and David , Ms. Eisenhour presented evidence not only of sexual harassment, but also of a lapse by a public body charged with overseeing the judiciary. Viewing this evid ence in the light most favorable to Ms. Eisenhour, we conclude that her statements to the media involved a matter of public15 concern, as well as private concern. See Pucci v. Nineteenth Dist. Court , 628 F.3d 752 (6th Cir. 2010). 3 Having held that the speech involves a public concer n, we must address the County’s argument that its closin g of the Justice Court was not retaliatory. We reject this argument, concluding that the summary-ju dgment evidence would allow a reasonable fact-finder to conclude that the County te rminated Ms. Eisenhour because of her comments to the media. This evidence includes: (1) the tim ing of the County’s announcement that it would close the Justic e Court, and (2) the court’s profitability. First, a reasonable fact-finder could conclu de that the County decided to close the Justice Court soon after newspapers had p ublished Ms. Eisenhour’s allegations. The Salt
Lake Tribune article, the first to be released, was published August 4, 2009. Appellant’s App. vol. 2, at 873-74. Only one week later, County officials began discussing the possibility of closing the Court. Appellant’s App. vol. 3, at 992-94 (e-mails between the County Attorney and County Commissioners, discussing the possibility of closing the Justice Court). And, according to County offi cials, they ultimately decided to close the

3 The issue in Pucci was similar. There, a deputy court administrator complained about one of the judges and was terminated. She sued the judge, claiming that he retaliated against her for exercisi ng her First Amendment rights. See Pucci , 628 F.3d at 758-59. The judge argued that he was en titled to summary judgmen t because the deputy court administrator’s complain t involved an internal complaint and did not constitute protected speech. See id . at 768. The Sixth Circuit Cour t of Appeals rejected the judge’s argument, stating that “the nature of [the deputy court administ rator’s] complaints implicate[d] the propriety and legality of pub lic, in-court judicial c onduct, and render[ed] her speech of sufficient pub lic gravity to warrant Firs t Amendment protection.” Id

.16 Court by December 2009. Id. at 974 (deposition of Jan Zo gmaister), 1020 (deposition of Ken Bischoff); id. vol. 2, at 882-83 (de position of Alan McEwan). Second, the evidence creates a genuine i ssue of fact about the legitimacy of the County’s explanation for closing the Justice Court. The County states that it was not financially feasible to continue operating the Court. But Ms. Eisenh our presents evidence that when the County decided to close the Justice C ourt, it was still generating a net profit. Id. vol. 3, at 982-88 (Weber County budget summaries of revenues and expenditures for 2007 to 2009). And the C ounty’s budget projections for 2009 showed that the Justice Court again expected to generate a net profit. Id . Indeed, the Defendants concede that the court earned $127,000 in net income in 2009. Br. Weber County Appellees at 7. From the evidence, the fact-finder could reasonably connect: (1) the County’s decision to close the Court, with (2) Ms. Eisenhour’s remarks to the media. Because the speech involves a matter of public concern and the fact-finder could reasonably infer a retaliatory motive, the district court erred by granting summary judgment to the Co unty on the First Amendment claim. D. Qualified Immunity for the County Commissioners On the First Amendment claim for retalia tion, Ms. Eisenhour has also sued three county commissioners in th eir personal capacities. Th is claim is based on the17 Commissioners’ decision to close the Justice Co urt. Their motivation, according to Ms. Eisenhour, was to retaliate fo r her comments to the media. Like the County, the Commissioners argued in the district court and in our court that Ms. Eisenhour’s speech was not protected under the First Amendment and that the County closed the co urthouse because of budgetary considerations rather than a retaliatory motive. Appellant’s App. vol. 1, at 176-78; Br. Weber County Appellees at
30-33. 4 As discussed above, these arguments in volve factual issues turning on the resolution of conflicting evidence, thereby pr eventing summary judgmen t for the County. Because the Commissioners’ argument for su mmary judgment was virt ually identical to the County’s, we conclude that the same issu es of fact prevent summary judgment for the three county commissioners. Accordingly, we hold that the Commissioners were not entitled to summary judgment ba sed on qualified immunity. E. Whistleblower Act Claim Ms. Eisenhour alleges that the County viol ated Utah’s Whistleblower Act, which prohibits government employers from retalia ting against employees who report employer misconduct. Utah Code Ann. § 67-21-3(1)(a). According to Ms. Eisenhour, the County violated the state law by closing the Justice C ourt and refusing to hi re her. The County argues that Ms. Eisenhour waited too long to assert the claim a nd lacks evidence of

4 The district court did not rule on the issue of qualified immunity. See Appellant’s App. vol. 1, at 385-86.18 retaliation. We agree with the County on the claim involving a refusal to rehire her. But we disagree with the Coun ty on the claim involving closing of the Court. Timeliness Under the Whistleblower Act, an empl oyee must sue within 180 days of the alleged violation. Utah Code Ann. § 67-2 1-3(1)(a). Ms. Eisenhou r maintains that her claim was timely, arguing that: (1) the Count y failed to rehire her as an “Election Specialist” within the 180-day period, (2) sh e began the action on October 19, 2010, by notifying the County through the administrative process, and (3) her claim relates back to her original complaint. First, Ms. Eisenhour argues that one of the retaliatory acts (the failure to hire her as an “Election Specialist”) took place with in the 180-day period . But she did not adequately present this argument to the distri ct court. In her re sponse to the summaryjudgment motion, she simply included a short footnote: “Even if this were not true [discussing relation-back of the first ame nded complaint], it is important that Ms. Eisenhour alleges that the County improperl y failed to consider her vacancies that occurred after Ju ly 15, 2010. See, e.g. , Additional Material Facts 45-51; Exhibits Q-S.” R. vol. 1, at 219 n.4. Because the Plaintiff did not adequately presen t this argument to the district court, it cannot be used to disturb the district court’s ruling. See Allison v. Bank
One-Denver , 289 F.3d 1223, 12 44 (10th Cir. 2002).19 Ms. Eisenhour’s second argument is inva lid because it confuses her administrative notice with the filing of a civil action. The two are distinct, as the Utah Court of Appeals explained in Thorpe v. Wash. City , 243 P.3d 500 (Utah Ct. App. 2010). There, the plaintiff argued that his filing of a notice of an administrative claim qualified as the “bring[ing] [of] a civil action” under the Whistleblower Act; thus, he contended that the civil action began when he filed an administra tive notice. Alternatively, he argued that he had tolled the statutory de adline by filing the notice. The Utah Court of Appeals rejected both arguments, holding that the 180- day period required th e filing of an action in a court rather than the filing of a notice in an admi nistrative agency. Thorpe , 243 P.3d
at 504-06. Like the plaintiff in Thorpe , Ms. Eisenhour waited more than 180 days from the alleged violation to assert a Whis tleblower Act claim. Thus, under Thorpe , Ms. Eisenhour waited too long to assert a c ourt claim under the Whistleblower Act even though she had submitted an admini strative claim within 180 days. Finally, Ms. Eisenhour argues that the Whis tleblower Act claim re lated back to the original complaint, which was filed within the 180-day period. Though Ms. Eisenhour waited too long to assert a Whistleblower Act claim in federal court, she did sue on other legal theories within the 180-day period. And even though the in itial complaint did not include a claim under the Whistleblower Act, she later amended the complaint to invoke the statute. This claim would be timely if it related back to the claims in the original20 complaint. For the closing of the court, the cl aim did relate back; for the refusal to rehire her, the claim did not relate back. Under Rule 15(c) of the Federal Rule s of Civil Procedure, amendments to pleadings relate back to the original fili ng when “the amendment asserts a claim or defense that arose out of the conduct, transa ction, or occurrence set out—or attempted to be set out—in the original pleading. ” Fed. R. Civ. P. 15(c)(1)(B). In the original complaint, Ms. Eisenhour alleged reta liation through multiple acts, including the County’s decision to clos e the Justice Court. The subsequent Whistleblower Act claim is based in part on th e same factual allegation from the original complaint. Thus, a genuine issue of ma terial fact exists on timeliness of the Whistleblower Act claim arisi ng out of the court closing. The refusal to rehire, however, did not ar ise out of the events in the original complaint because the vacancies did not open up until afte r Ms. Eisenhour had sued. As Ms. Eisenhour points out, she wa s not terminated until April 1, 2010, six weeks after she filed her original complaint. Thus, the eventu al claims for the refusal to rehire could not have related back to the original complain t. Those aspects of the Whistleblower Act claim were not filed within the 180-da y window; thus, they are time-barred. Evidence of Retaliation The County again denies a retaliatory motive fo r its decision to close the Justice Court, relying on budgetary considerations. As discussed above, however, the budgetary21 explanation creates a genuine issue of material fact. Thus, the County was not entitled to summary judgment on the Wh istleblower Act claim stemmi ng from the closing of the Justice Court. F. Due Process Claim Ms. Eisenhour argues that the County depriv ed her of a property interest in her job without due process of law. The district court held that Ms. Ei senhour had failed to establish a protected property interest. We agree. For purposes of the Fourteenth Ame ndment’s Due Process Clause, property interests must derive from some independent source, such as state law, contract, or other understandings that give rise to a claim of entitlement. Bd. of Regents of State Colls. v.
Roth , 408 U.S. 564, 577 (1972). Wh en a plaintiff claims a property interest in her job, we ask whether she had “a legitimate expecta tion of conti nued employment, ” as defined by some independent source such as a c ontract for a fixed term or state law. Hennigh v. City of Shawnee , 155 F.3d 1249, 1 253 (10th Cir. 1998). According to Ms. Eisenhour, she had a prop erty interest in continued employment with the County. But she does not identify a source for this interest. Thus, she cannot rebut the presumption under Utah law that her employm ent with the C ounty was at-will. See Fox v. MCI Commc’ns Corp. , 931 P.2d 857, 859 (Uta h 1997). And “[a]t-will employees lack a property interest in continued employment.” Darr v. Town of Telluride , 495 F.3d 1243, 1252 (10th Cir. 2007).22 Ms. Eisenhour also contends that she had a property interest involving: (1) preferential consideration for future vacanc ies, and (2) early vesting for retirement benefits. This contention is not supportable even when the evidence is viewed favorably to Ms. Eisenhour. She argues that the govern ing policies entitled her to a new job with the County. For this argument, she points to a provisio n in the Weber County Personnel Policies and Procedures Manual: “Tenured employees wh o are separated in reductions-in-force shall be placed on the reappointmen t register and may be reappo inted without examination to any vacancies for which they are qualified.” Appellant’s App. vol. 2, at 623. But Ms. Eisenhour had no right to appear on the reap pointment register, for the County did not implement a reduction-in-force. A reduction-in-force occurs when “[a] department discontinues the use of [an] identifiable position.” Id. at 611. A reduction-in-force does not occur when, as here, an entire department is eliminated. See id. Therefore, Ms. Eisenhour did not have a property interest in preferential c onsideration for future vacancies. She also lacked an entitle ment to vest early for retir ement benefits. Under Utah law, a public employee qualifies to buy earl y retirement after accumulating 25 years of service. Utah Code Ann. § 49-12-701(1)(a). When the Justice Court closed, Ms. Eisenhour had three more months before sh e could obtain the re quired 25 years.23 Therefore, Ms. Eisenhour lacked a property interest in the opportunity for early retirement. G. Equal-Protection Claim Against the County Ms. Eisenhour asserts that the County viol ated her right to equal protection, and the district court granted summary judgmen t to the County on the ground that Judge Storey was not an official policymaker. We agree with the district court’s decision. “[A] municipality can be lia ble under Section 1983 for the acts of a municipal official only when the offi cial possesses ‘final policymak ing authority’ to establish municipal policy with respect to the acts in question.” Starrett v. Wadley , 876 F.2d 808, 814 (10th Cir. 1989) (quoting Pembaur v. City of Cincinnati , 475 U.S. 469, 483 (1986)). We apply this test to the tw o types of alleged acts: (1) Judge Storey’s inappropriate touching, and (2) his establishment of a rule that Ms. Eisenhour had to obtain prior approval before missing work. Accordingly, we must decide whether Judge Storey had final policymaking author ity for these acts. In determining whether Judge Storey had final policymaking authority, we consider two factors: (1) “whether his ‘dis cretionary decisions [w ere] constrained by general policies enacted by others,’” and (2) “w hether those ‘decisions [were] reviewable by others.’” Milligan-Hitt v. Bd. of Trs. of Sh eridan Cnty. Sch. Dist. No. 2 , 523 F.3d 1219, 1228 (10th Cir. 2008) (quoting Dill v. City of Edmond , 155 F.3d 1193, 1211 (10th Cir. 1998)). These factors in volve questions of law. Id. at 1224.24 Judge Storey lacked policymaking authority to touch Ms. Eisenhour inappropriately under the County’s se xual harassment policy. That policy unambiguously prohibited inappropriate touching. Appellant’s App. vol. 1, at 164. Thus, Judge Storey’s decision to touch Ms. Eisenh our was “constrained by [a policy] enacted by others.” See Milligan-Hitt , 523 F.3d at 1228. Under that policy, Judge Storey’s conduct was subject to review—and was in fact reviewed—by both the County and the Judicial Conduct Commission. Ms. Eisenhour argues that the County imp licitly gave Judge Storey the authority to touch her inappropriately by failing to ask Ju dge Storey whether he had done so. This argument confuses what the County did before a nd after the alleged touching. Even if the County failed to properly resp ond after-the-fact, this failur e would not suggest that the County had authorized Ju dge Storey to grope Ms. Eisenhour before-the-fact. Although Judge Storey ar guably had policymaking au thority with regard to scheduling of his staff, Ms. Eisenhour fails to explain how Judge Storey’s work-leave policy amounted to sexual harassment or otherw ise violated her equal-protection rights. On its face, Judge Storey’s po licy would not have constituted a denial of equal protection. To Ms. Eisenhour, Judge St orey implemented the policy as a way to hound her. But the policy itself did not constitute sexual ha rassment. As a result, the County cannot incur liability based on the judge’s adoption of a policy requiring Ms. Eisenhour to account for her time when she was missing work.25 Judge Storey lacked po licymaking authority to in appropriately touch Ms. Eisenhour, and his monitoring of her whereabouts (when missing work) did not violate the Equal Protection Clause. As a result, the County was entitled to summary judgment on the equal-protection claim. H. Equal-Protection Claim Against Judge Storey Ms. Eisenhour also asserts an equal-pr otection claim against Judge Storey. The district court concluded that Judge Storey is entitled to qualified immunity and that he did not act with the required intent. Judge Stor ey defends these conclusions, adding that Ms. Eisenhour did not show she had been treat ed differently from a similarly situated individual. We reverse the district court’s grant of summary judgment to Judge Storey, concluding that he is not entitle d to qualified immunity, that there is a fact-issue about whether Judge Storey inapprop riately touched Ms. Eisenhour, and that Ms. Eisenhour had no requirement to show she was treated differe ntly from a similarly situated individual. To overcome a defense of qualified immunity , a plaintiff must show that: (1) the defendant’s conduct violated the law, and (2 ) the law was clearly established when the violation occurred. Albright v. Rodriguez , 51 F.3d 1531, 1534- 35 (10th Cir. 1995). If Ms. Eisenhour makes this showing, the burden shifts to Judge Storey to establish that there is no genuine issue of material fact and that he is entitled to judgment as a matter of law. Id. at 1535. We hold that Ms. Eisenhour made the threshold showing and that issues of fact precluded summary judgment.26 In Starrett v. Wadley , 876 F.2d 808 (10th Cir. 1989 ), we recognized that sexual harassment could constitute an equal-pr otection violation. The facts in Starrett resemble those in Ms. Eisenhour’s sworn account. The Starrett plaintiff claimed that her supervisor had made sexual advances, asking to meet at secluded locations after hours, pinching her buttocks, placing his arm on her leg, and making obscene gestures. Id. at 814-15. We held that under those facts, a reasonable jury could conclude that the supervisor’s conduct discriminated against the plaintiff because of her sex, thereby depriving her of equal protection. Id. at 815.
Starrett governs because Ms. Eisenhour presents evidence that would also allow a reasonable jury to infer that she had been discriminated agai nst because of her sex. She states under oath that Judge Storey wrote an inappropriate poem about her, told her that he had a dream about her in which she was na ked, and rubbed his groin against her. Under Starrett , this evidence would allow a reasonable jury to conclude that Judge Storey violated her right to equal protection. And if Judge Storey committed an equal- protection violation, it would have been “clearly established” by our decision in Starrett

. See Lankford v. City of Hobart , 27 F.3d 477, 480 (10th Cir. 1994) (stating that “with this court’s opinion in Starrett v. Wadley

. . . it became clearly established that sexual hara ssment can constitute a violation of equal protection and give rise to an action under 42 U.S.C. § 1983”).27 Thus, Ms. Eisenhour has made her two-pa rt showing, and the burden shifts to Judge Storey to establish that there is no ge nuine issue of material fact. Judge Storey cannot meet this burden. The district court reached a contrary conclusion based on in applicable Supreme Court decisions and inappropriate reliance on the County’s evidence that Ms. Eisenhour had not complained about Judge Storey. In reaching its decision, the district c ourt relied on two Supreme Court cases: City of Canton v. Harris , 489 U.S. 378 (1989), and Daniels v. Williams , 474 U.S. 327 (1986). The district court’s reliance on these cases is misplaced. City of Canton is off-point; it identifies the mental state necessary to ho ld a government empl oyer liable based on a failure to train theory. 489 U.S. at 388. Daniels explains that § 1983 liability requires a deliberate act. 474 U.S. at 331. But the dist rict court fails to explain why the acts Ms. Eisenhour testified about

― discussing a dream in which she was naked and standing so closely to her that his groin rubbed against her—cannot be characterized as deliberate. The district court also noted evidence that Ms. Ei senhour had not complained about Judge Storey’s behavio r. But this evidence would not have precluded liability and was disputed by Ms. Eisenhour. Our cases do not suggest that a plaintiff’s failure to report harassment precludes liability fo r an equal-protec tion violation. See Lankford v. City of Hobart , 27 F.3d 477, 480-81 (10th Cir. 1994); Starrett v. Wadley , 876 F.2d 808, 814-15 (10th Cir. 1989). In any event, Ms. Eisenhour presented evidence that she had28 complained about Judge Storey’s behavior when she reported hi s sexual harassment to the County A ttorney in July 2008. Finally, Judge Storey contends that Ms . Eisenhour’s claim fails because she did not show that she had been treated differently from a similarly situated individual. We reject this argument. In cases involving an equal-protec tion violation based on sexual harassment, we have not required the plainti ff to show she was trea ted differently from a similarly situated individual. See Lankford , 27 F.3d at 480-81; Noland v. McAdoo , 39 F.3d 269, 272-73 (10th Cir. 1994); Woodward , 977 F.2d at 1400-01; Starrett , 876 F.2d at 814-15. It is enough that the plaintiff pr esents sufficient eviden ce that the defendant discriminated against her because of her sex, thereby depriving her of the right to equal protection of the laws. See Starrett , 876 F.2d at 814-15. V. Conclusion For the reasons stated above, we affi rm the award of summary judgment on Ms. Eisenhour’s claims against the County under the: (1) Whistleblower Act for a refusal to rehire her, (2) Title VII, and (3) § 1983 base d on a deprivation of du e process and denial of equal protection. We also hold that the district court properly excluded Ms. Eisenhour’s testimony taken during the judicial -misconduct investigation. But we agree with Ms. Eisenhour that genuine issues of f act precluded summary judgment on: (1) her § 1983 claim against the County and the County Commissioners based on the First Amendment, (2) the Whistleblower Act cl aim against the County based on the court29 closing, and (3) the § 1983 claim agains t Judge Storey based on the Fourteenth Amendment’s Equal Protection Clause. Accord ingly, we remand to the district court with instructions to vacate the award of summary judgment on these claims.