REBECCA R. PALLMEYER, District Judge.
Plaintiff Dede Atiogbe has sued Defendant Megan Brennan in her capacity as Postmaster General of the United States Postal Service. Atiogbe was a USPS employee who went on leave in late 2013, and claims she was subjected to discrimination on the basis of her disability and retaliation in a variety of ways during the period leading up to and during her leave. In particular, Atiogbe claims her health insurance coverage was prematurely terminated. Defendant has moved to dismiss, arguing that Atiogbe did not exhaust her administrative remedies and has failed to state a claim. For the reasons stated below, the motion is granted in part and denied in part.
The allegations in Atiogbe's complaint are presumed true for this motion. See Stanek v. St. Charles Cmty. Unit Sch. Dist. No. 303, 783 F.3d 634, 637 (7th Cir. 2015). In addition, Atiogbe has made additional allegations in an affidavit attached in her response to Defendant's motion to dismiss. Defendants accept these facts as true for this motion, so the court does so as well. See Hentosh v. Herman M. Finch Univ. of Health Scis./The Chicago Med. Sch., 167 F.3d 1170, 1173 n.3 (7th Cir. 1999) ("[A] plaintiff need not put all of the essential facts in the complaint. He may add them by affidavit or brief in order to defeat a motion to dismiss if these facts are consistent with the allegations in the complaint.") (internal citation and quotation marks omitted). The court will also consider relevant documents from the EEO administrative proceedings, which Atiogbe refers to in her complaint and which Defendant has attached to its motion. See Yassan v. J.P. Morgan Chase & Co., 708 F.3d 963, 975 (7th Cir. 2013) ("[D]ocuments attached to a motion to dismiss are considered part of the pleadings if they are referred to in the plaintiff's complaint and are central to his claim.") (internal citation and quotation marks omitted); In re First Chicago Corp. Sec. Litig., 769 F.Supp. 1444, 1450 (N.D. Ill. 1991); see also 5A CHARLES ALAN WRIGHT & ARTHUR R. MILLER, FEDERAL PRACTICE & PROCEDURE § 1327 (3d ed. 2004) (The court may consider "pertinent documents that a plaintiff fails to append to his complaint but that a defendant attaches to his motion to dismiss[.]").
Dede Atigobe is (or was) an employee of the United States Postal Service, where she has worked as a letter carrier.
Atiogbe suffers from diabetes, high blood pressure, migraines, fibroids, knee injuries, depression, anxiety, and post-traumatic stress disorder. (SAC ¶ 10.) She complains that she experienced a hostile work environment beginning in 2007 (id. at ¶ 12), and offers specifics about conduct that occurred from 2013 to the present. In late 2013, Atiogbe alleges that she took leave without pay and "provided the necessary paperwork to do so" (she does not say what this paperwork was). (Id. at ¶¶ 13-14.) Atiogbe took this this leave because she was "in and out of the hospital" for conditions she does not identify. (Id. at ¶ 13.) She returned to work on October 29, when she gave her manager, Jacqueline Hudson, a statement from her doctor, and requested unspecified "accommodations." (Id. at ¶¶ 15-16.) Atiogbe alleges that Hudson "rejected the doctor's statement and requested a more detail[ed] note." (Id. at ¶ 16.) Atiogbe accordingly provided a more detailed doctor's note, and repeated her request for unnamed "certain accommodations." (Id. at ¶¶ 17-18.) Atiogbe alleges that her request was "completely ignored" and that "she found herself in a hostile work environment." (Id. at ¶ 19.)
For the next several days, Atiogbe alleges, she was required to work without being given breaks to "take medication, nourishment, and rest"—presumably, these are the accommodations she requested. (Id. at ¶ 20.) She complains that Defendant did not follow procedure to determine whether there were positions available where Atiogbe could work with her "restrictions." (Id. at ¶ 21.) She was required to share a vehicle and a scanner with another employee,
Atiogbe was hospitalized for unidentified treatment from November 13 to November 23, 2013, and remained in an "Intensive Outpatient Partial Hospitalization Program" until March 24, 2014. (Id. at ¶ 25.) She claims that she "submitted the necessary paperwork to secure her employment" during this period. (Id. at ¶ 26.) Yet from January to March 2014, Atiogbe received several five-day-notice letters warning that she had been absent without authorization for more than five days. (Id. at ¶ 27.) One of these notices, dated March 7, stated that Atiogbe had five days "to submit acceptable documentation for [her] absence." (Ex. A to Mot. to Dismiss [35-1].)
On March 28, she received a notice that her position with USPS was terminated. (SAC ¶ 28.) Atiogbe alleges that she received these notices because Hudson and another USPS manager named Lisa Frazier "put in paperwork to prematurely terminate [her] employment." (Atiogbe Aff. ¶ 10; see SAC ¶ 38.) She filed a union grievance on April 1, and she claims that she was "excluded" from the resulting investigation; she does not say whether or to what extent an employee is ordinarily entitled to participate in such an investigation. (SAC ¶¶ 29, 31-32, 65.) The dispute resolution team, which consisted of representatives from both USPS and the union, rescinded her termination on June 19. (Id. at ¶ 32; Ex. D to Mot. to Dismiss [35-4].) In the meantime, Atiogbe was "in constant contact" with USPS Human Resources and the USPS Employee Assistance Program. (Atiogbe Aff. ¶ 13.)
Despite this favorable resolution, Atiogbe alleges that she received another termination notification (dated June 20) on June 23.
In her complaint, Atiogbe alleges that she received notice on April 30, 2014 that her health benefits would be terminated, though she does not say when this termination would take effect. (SAC ¶ 30.) Defendants, however, have provided a copy of the notice, which is dated February 20, 2014. (Ex. B to Mot. to Dismiss [35-2].) In her subsequent affidavit, Atiogbe effectively concedes the February 20 letter notified her that her health insurance would be terminated, though it is not clear whether she stands by her assertion that she did not receive it until April 30. (Atiogbe Aff. ¶¶ 8-9.)
Although it was sent before the March 7 and March 28 letters warning that Atiogbe was absent without authorization), the February 20 letter acknowledges that Atiogbe was "in a leave without pay (LWOP) status" beginning November 11, 2013. (Ex. B. to Mot. to Dismiss.) It states that Atiogbe had 31 days to decide whether to continue her health benefits for 365 days,
On June 23, 2014, Atiogbe received another letter about her benefits (dated June 20). This letter does refer to Atiogbe's "separation from the U.S. Postal Service" and may be the "separation notice" that Atiogbe claims to have received on June 23. (Ex. F to Mot. to Dismiss [35-6]; Atiogbe Aff. ¶ 14.) Although the February 20 letter stated that Atiogbe's benefits would continue for 365 days, this June letter announced that the benefits had ended on May 2, 2014; the court notes, however, that Atiogbe has not specifically complained about the late notice. (Ex. F to Mot. to Dismiss.)
On August 8, Atiogbe saw the doctor, and learned during that visit that her health insurance had not covered her last two doctor's visits. (SAC ¶ 41.) Atiogbe does not provide the dates of those previous appointments, but the court presumes they occurred after her benefits terminated on May 2. On August 10, she went to fill a prescription, and someone at the pharmacy advised her that her health insurance had been terminated. (Id. at ¶ 39.) Over the next several weeks, Atiogbe complained to various USPS employees and union representatives about these circumstances. (Id. at ¶ 40.)
On July 16, 2014, Atiogbe "put in her request to initiate EEO Counseling." (Id. at ¶ 69.) She received a letter dated August 5 which "outlined" a "required 10-day response[,]" but "due [to Atiogbe's] hospitalization and mental state she was unable to reasonabl[y] reply." (Id.) She does not explain what prevented her from responding to this letter and pursuing the EEO process; in her affidavit, she merely repeats that she "became ill and was unable to complete the process." (Atiogbe Aff. ¶ 17.)
In her complaint, Atiogbe alleges that she submitted another "request for pre-complaint counseling" on September 16, 2014. (SAC ¶ 6.)
USPS sent an investigatory report to Atiogbe on March 16, 2015. (Ex. I to Mot. to Dismiss [35-9] at USPS 012-13.) Atiogbe avers that she "filed an appeal" on this date, but did not request a hearing. (Id.; Atiogbe Aff. ¶ 22.) The agency rejected Atiogbe's complaint on May 28, 2015. (Id. at USPS 024-25; see Atiogbe Aff. ¶ 23.) The agency addressed only Atiogbe's claim that her health insurance was terminated because of her disability—according to the agency decision, USPS dismissed her other allegations for "untimely contact with an EEO Counselor." (Ex. I to Mot. to Dismiss at USPS 012.)
Atiogbe received her Notice of Right to Sue letter on June 1, 2015
To overcome a motion to dismiss for failure to state a claim, the plaintiff must "state a claim to relief that is plausible on its face." Bell Atl. Corp. v. Twombly, 550 U.S. 544, 570 (2007). A claim is sufficiently plausible when "the plaintiff pleads factual content that allows the court to draw the reasonable inference that the defendant is liable for the misconduct alleged." Roberts v. City of Chicago, 817 F.3d 561, 564-65 (7th Cir. 2016) (quoting Ashcroft v. Iqbal, 556 U.S. 662, 678 (2009)). The court will not, however, accept "[t]hreadbare recitals of the elements of a cause of action[.]" Iqbal, 556 U.S. at 678.
First, Defendant argues that a portion of Atiogbe's claims must be dismissed for failure to exhaust administrative remedies. A plaintiff must "initiate contact with" an EEO counselor within 45 days of the alleged discriminatory conduct. 29 C.F.R. § 1614.105(a); see King v. Gonzales, 186 F. App'x 675, 676 (7th Cir. 2006) (exhaustion also applies to retaliation claims). This contact is the first step in the process of exhausting administrative remedies before suit in federal court. See Teal v. Potter, 559 F.3d 687, 691 (7th Cir. 2009).
Though Atiogbe contacted the USPS EEO on July 16, 2014, she admits that she did not file an EEO charge at that time. She then contacted an EEO counselor again on September 8, and ultimately completed the administrative process. Defendant argues that Atiogbe's claims based on conduct that occurred more than forty-five days before September 8
Atiogbe's first argument is a non-starter. She may have contacted an EEO counselor on July 16, but an abandoned EEO charge does not exhaust administrative remedies. See Griffin v. Runyon, No. 96 C 4117, 1997 WL 222944, at *4 (N.D. Ill. Apr. 30, 1997), on reconsideration in part, No. 96 C 4117, 1997 WL 359972 (N.D. Ill. June 24, 1997) ("[A]bandonment [of earlier EEO complaint] means that he did not exhaust his administrative remedies[.]"); Hill v. Runyon, 959 F.Supp. 488, 495 (N.D. Ill. 1997) (the plaintiff did not exhaust when "[h]e effectively abandoned administrative remedies in midstream[.]"); cf. Cheek v. W. & S. Life Ins. Co., 31 F.3d 497, 500 (7th Cir. 1994) ("As a general rule, a Title VII plaintiff cannot bring claims in a lawsuit that were not included in her EEOC charge."). Indeed, the word "exhaust" implies that a plaintiff must not merely initiate the administrative process, but follow it to completion. The fact that a plaintiff contacts a counselor does not exhaust his or her remedies unless he or she completes the administrative process.
Second, Atiogbe argues that the court should consider conduct outside the forty-five day window that is "like and reasonably related" to allegations that are not time-barred. In support, Atiogbe cites Jenkins v. Blue Cross Mutual Hospital Insurance, Inc., 538 F.2d 164, 167 (7th Cir. 1976) and Cheek v. Western & Southern Life Insurance Co., 31 F.3d 497, 500 (7th Cir. 1994), where the Seventh Circuit held when a complaint alleges conduct that was absent from an EEO charge, the court may consider those allegations when they are "like and reasonably related to" and "growing out of" EEO-charged conduct. But this test applies only when the additional allegations would have been timely if they had been included in the EEOC complaint. Adams v. City of Indianapolis, 742 F.3d 720, 730 (7th Cir. 2014) ("[D]iscrete discriminatory acts are not actionable if time barred, even when they are related to acts alleged in timely filed charges.") (quoting Nat'l R.R. Passenger Corp. v. Morgan, 536 U.S. 101, 113 (2002)); see also Arce v. Chicago Transit Auth., No. 14 C 102, 2015 WL 3504860, at *4 (N.D. Ill. June 2, 2015). This exception does not apply here.
Third, Atiogbe argues that the forty-five day requirement to begin the EEO process should be tolled because of her mental illness, which prevented her from pursuing her complaints when she first contacted the EEO on July 16. "[M]ental illness tolls a statute of limitations only if the illness in fact prevents the sufferer from managing his affairs and thus from understanding his legal rights and acting upon them." Miller v. Runyon, 77 F.3d 189, 191 (7th Cir. 1996) (emphasis in original). Simply suffering from mental illness in general does not toll a statute of limitations. Instead, the plaintiff must allege specific facts about his or her condition during the relevant time period that prevented him or her from complying with the deadline. See Angiulo v. United States, 867 F.Supp.2d 990, 1001 (N.D. Ill. 2012).
Atiogbe claims that she initiated contact with the EEO counselor on July 16, but was "unable to complete the process" because she "became ill" and was hospitalized. (SAC ¶ 69; Atiogbe Aff. ¶ 17.) She does not, however, explain what she was hospitalized for or for how long she was hospitalized. Moreover, Atiogbe's allegations show that she was able to undertake other actions at approximately the same time. In June and July 2014, she was able to make "consistent calls" to various USPS employees. (Atiogbe Aff. ¶ 16; see SAC ¶ 67.) On July 21, she attended the USPS investigatory interview; on August 8, she visited her doctor; and on August 10, she went to her pharmacy to get medications. Atiogbe alleges that the EEO sent her a letter dated August 5, 2014, which required a response from her within ten days. During this ten-day window, she went to her doctor and to the pharmacy. Even taking as true Atiogbe's claim that she was hospitalized at some point, without more facts, she has not sufficiently alleged that she was unable to respond to the letter because of mental illness.
Plaintiff may be able to allege facts supporting an inference that her mental illness did in fact prevent her from pursing the administrative process earlier, such that the statute of limitations is properly tolled. The court will permit her to file an amended complaint if she can do so consistent with Rule 11.
To state a claim for disability discrimination, a plaintiff must allege "(1) that she is disabled; (2) that she is otherwise qualified to perform the essential functions of the job with or without reasonable accommodation; and (3) that the employer took an adverse job action against her because of her disability or failed to make a reasonable accommodation." Stevens v. Illinois Dep't of Transp., 210 F.3d 732, 736 (7th Cir. 2000). Here, Atiogbe's requests for accommodation occurred outside the statute of limitations window, and she alleges only one timely adverse action: termination of her health benefits.
Defendant argues that Atiogbe's claim must be dismissed because she does not allege that she was able to perform her essential job functions. Though Atiogbe alleges that she can currently perform her job functions (Atiogbe Aff. ¶ 3), Defendants point out that she does not allege that she could do so when the adverse action (termination of health benefits) occurred. Atiogbe claims she gave USPS documentation of her ability to perform these functions from "November 2013 through the present," but this is inconsistent with her allegation that she was on leave without pay, was hospitalized, and was too ill to pursue her original EEO counseling, which all occurred during this period. Cf. Garg v. Potter, 521 F.3d 731, 737 (7th Cir. 2008) (affirming summary judgment for employer when employee's "conduct clearly demonstrates her inability to perform her job."); compare King v. Aldi (Indiana), L.P., No. 1:15-CV-805-WTL-DML, 2016 WL 772830, at *2 (S.D. Ind. Feb. 23, 2016) (declining to dismiss complaint that alleged, without details, that the plaintiff was able to work at the "relevant times") with Stanek v. AT & T, No. 96 C 4096, 1997 WL 159102, at *3 (N.D. Ill. Mar. 28, 1997) (dismissing claim where the plaintiff admitted that he could not perform the essential functions of his job).
Yet the court is not convinced that Atiogbe must have been continuously able to work during this time; an employee on leave for health reasons usually cannot, by definition, perform his or her usual job functions while on leave. To require such a plaintiff to do so would be tantamount to a holding that a plaintiff on leave without pay can never state a claim of discrimination on the basis of her disability. Atiogbe alleges that she met USPS's requirements to go on leave without pay (and indeed, USPS sent her a letter to that effect). If she was properly on leave without pay, then Atiogbe at that time was not required to perform her ordinary job duties.
Defendant also argues that the court should dismiss the disability discrimination claim without prejudice because Atiogbe has not pleaded that she lost her health benefits because of her disability. Instead, Defendant argues, her benefits were terminated for "purely administrative reasons." (Def.'s Reply in Supp. of Mot. to Dismiss [42] 7.) Atiogbe acknowledges that the February 20 notice was a "standard personnel notice" (Atiogbe Aff. ¶ 9), but that notice states that her benefits should have continued for 365 days after her leave. Yet she was without health insurance as of August 2014, well before that termination should have occurred. The "administrative" nature of the notice does not explain why her benefits were terminated prematurely. It may well be that the inconsistent communications Atiogbe received were a product of bureaucratic confusion. Without explanation, however, she has sufficiently alleged that her disability was the reason for this early termination of benefits.
Atiogbe also claims Defendant took adverse action in retaliation for her protected activity. Defendant, first, argues that Atiogbe's retaliation claim is barred in its entirety, because she did not exhaust administrative remedies at all for her retaliation claim. Defendant points out that although Atiogbe wrote in her EEO pre-complaint counseling form that she was retaliated against, she did not mention her retaliation claim in her formal EEO complaint. See Conner v. Illinois Dep't of Nat. Res., 413 F.3d 675, 680 (7th Cir. 2005) (an administrative charge must "detail[] the alleged discriminatory conduct"); Thompson v. Fairmont Chicago Hotel, 525 F.Supp.2d 984, 990 (N.D. Ill. 2007) (dismissing a retaliation claim where the box for retaliation on the EEOC charge form was not marked). That Atiogbe mentioned retaliation in her pre-complaint form does not exhaust administrative remedies for that claim—if it did, the requirement for a formal EEO complaint would be meaningless.
A plaintiff can raise a claim in a lawsuit that was absent from an administrative charge if the claim and the administrative charge are (1) "like and reasonably related" to the charges actually described, and (2) the unmentioned claim "can reasonably be expected to grow out of an . . . investigation of the allegations in the charge." Cheek, 31 F.3d at 500. To satisfy this test, "the relevant claim and the administrative charge must, at minimum, describe the same conduct and implicate the same individuals." Reynolds v. Tangherlini, 737 F.3d 1093, 1100 (7th Cir. 2013) (internal citation and quotation marks omitted).
Atiogbe's EEO charge and the timely portion of her retaliation claim identify the same adverse action: termination of her health benefits. In her affidavit, Atiogbe identifies some individuals she believes are behind the five-day notices (Hudson and Frazier), but she does not appear to know which of them set the termination of health benefits in motion while she was on leave. An investigation into the allegations that she lost benefits because of her disability could reasonably reveal a retaliatory motive, as well. The court recognizes that claims of retaliation are often not deemed "like or reasonably related to" claims of substantive discrimination, see Sitar v. Indiana Dept. of Transp. 344 F.23d 720, 726 (7th Cir. 2003), but in this case the two claims do appear to involve the same conduct and the same individuals. The court concludes, for purposes of this motion, that Atiogbe's claim that the termination of health benefits was retaliatory is reasonably related to her administrative charge that her loss of benefits was discriminatory.
Second, Defendant urges that Atiogbe has not adequately alleged causation. Again, Defendants focus on the February 20 notice, pointing out that much of her protected conduct occurred after Atiogbe was on notice that her health benefits would end in 365 days. But again, Atiogbe alleges that her health benefits were terminated prematurely, so a decision to terminate her health benefits in or before August 2014 could have occurred after her various complaints between March and July 2014. Furthermore, Atiogbe specifically alleges that USPS wanted to terminate her benefits because of the financial burden her disability imposed. Though she does not name the specific individuals who were responsible for putting in motion the premature termination of her benefits, Atiogbe has alleged enough to infer that her complaints could plausibly have caused someone at USPS to terminate her benefits prematurely.
Defendant's motion to dismiss the second amended complaint [35] is granted in part and denied in part. Defendant's motion to dismiss the first amended complaint [29] is stricken as moot. If she desires, Atiogbe has 21 days to amend her complaint as outlined above.