J. FREDERICK MOTZ, District Judge.
Ted Figueroa ("Plaintiff") sued Timothy Geithner ("Defendant"), Secretary of the U.S. Department of the Treasury ("Treasury Department"), alleging discrimination in violation of Section 501 of the Rehabilitation Act of 1973. Defendant has filed a Motion for Summary Judgment. For the
Plaintiff is a totally blind employee of the Internal Revenue Service ("IRS"), a division of the Treasury Department. (Opp. to Def.'s Mot. for Summ. J. ("Pl.'s Response"), Ex. 1.) Plaintiff has been employed by the IRS since 1994, when he was hired as a computer programmer—GS-5 IT Specialist—in the IRS's Tax Delinquent Account project (TDA). (See id., Ex. 1.)
Arlene Rosh has worked for the IRS since 1976. (Mem. of Law in Supp. of Def.'s Mot. for Summ. J. ("Def.'s Mem."), Ex. 2 at 9-10.) Ms. Rosh was a section chief in TDA from the early 1990s until 2000, when she was promoted to Chief of the Account Services Branch. (See id., Ex. 2 at 9-15.) Robert Ragano has worked for the IRS since 1993, and has been the Director of the Filing and Payment Compliance Division since 2006. (Id., Ex. 3 at 9-11.) Mr. Ragano is Ms. Rosh's immediate supervisor. (Id., Ex. 3 at 11.) Prior to the selection at issue, Mr. Ragano had never met Plaintiff and did not know he was disabled. (Id., Ex. 3 at 14, 32.)
In his original IRS hiring process, which was conducted through the Lions World School for the Blind, Plaintiff interviewed with Ms. Rosh and five or six other IRS managers (although it is unclear who made the ultimate hiring decision). Only disabled persons were interviewed for this particular programming position in TDA. (See id., Ex. 1 at 19; Pl.'s Response, Ex. 1.)
Plaintiff remained a computer programmer in TDA, working in the cobalt language, until 2001. (Pl.'s Response, Ex. 1.) Until her promotion to Chief of the Account Services Branch in 2000, Ms. Rosh was Plaintiff's immediate supervisor in TDA. (See Def.'s Mem., Ex. 2 at 11-15; Pl.'s Response, Ex. 1.) In his first few years working in TDA, Plaintiff and Ms. Rosh had a productive and friendly relationship, and Plaintiff had no trouble getting the accommodations he needed to do his job effectively. (Def.'s Mem., Ex. 1 at 33-34.)
In 2001, Plaintiff alleges that his relationship with Ms. Rosh began to deteriorate as he became a more assertive employee. First, Plaintiff accepted various leadership positions in the Visually Impaired Employee Workforce ("VIEW"), an advocacy organization for visually impaired IRS employees. Second, Plaintiff reported the allegedly longstanding harassment of a co-worker, Randy Wakefield. Third, Plaintiff unsuccessfully sought a promotion. Fourth, Plaintiff requested an accommodation—limiting his time in front of a computer to a few hours a day by decreasing the time he spent programming and increasing the time he spent on analysis—for neck and shoulder pain caused by a car accident and the unique physical stresses on a blind programmer.
Eventually, Plaintiff left TDA to work as a computer programmer, also in the cobalt language, in the Penalty, Interest, Notice, Explanation ("PINEX") section of the IRS. Plaintiff described this work in PINEX
Throughout his time at the IRS, Plaintiff received only excellent job performance reviews, many of which were signed and authored by Ms. Rosh.
In early 2006, Plaintiff applied for a different programming job within the IRS. (Pl.'s Response, Ex. 1.) Ms. Rosh chose Linda Squires over Plaintiff for this position. (Id., Ex. 1.) Later in 2006, management internally posted
Plaintiff applied to Vacancy Announcement Number 35-22-6W1-383-BT. (See id., Ex. 1 at 83; Pl.'s Response, Ex. 5 at 106-28.) Among other things, Plaintiff's application described his educational background, past work experience, performance evaluations, and leadership role in VIEW. (Pl.'s Response, Ex. 5 at 110-13, 120-28.) Plaintiff expressly mentioned his past work in TDA as a programmer. (See,
As the recommending official responsible for filling these Lead IT Specialist Vacancies, Ms. Rosh was tasked with making recommendations to Mr. Ragano, who was the selecting official. (Id., Ex. 5 at 41-42.) To that end, Ms. Rosh created a three-person panel of IRS managers—Cathy Gray, Nancy Palmer, and Robert Schwartz—to evaluate the candidates and provide her with a best qualified list. (Id., Ex. 5 at 52-54.) Ms. Rosh instructed the panel, two of whom were her immediate subordinates, that she was looking for someone who had team leader experience and who was currently working in TDA. (Id., Ex. 9 at 54, 76-77.)
The panel created a numerical score for the applicants based on three criteria: (1) past performance evaluations, (2) critical elements of the position to be filled, and (3) awards. (Id., Ex. 5 at 82-84.) On past performance evaluations, Alexander Harris and Plaintiff had equal scores of 4.6 out of 5. On critical elements of the position, Mr. Harris had a score of 5 out of 5 and Plaintiff had a score of 4 out of 5. On awards, Mr. Harris had 0 and Plaintiff had 3. Because critical elements were weighed substantially more heavily than awards, Mr. Harris edged Plaintiff 47.6 to 46.6 on overall numerical score.
After evaluating all the applications, the panel placed Plaintiff, Mr. Harris, and three other applicants on a best qualified list, which was forwarded to Ms. Rosh (See id., Ex. 5 at 56, Ex. 8 at 53-57.) Mr. Harris and Plaintiff had the two highest scores (the third highest score was 43), and the ranking panel considered them both a "good amount" or "substantially" more qualified than the others on the best qualified list. (See id., Ex. 5 at 813, 105, 130, 147, 167, Ex. 8 at 53-57.) Ms. Rosh decided to forego interviewing any of the candidates and recommended that Mr. Ragano hire Mr. Harris. (Id., Ex. 9 at 75.) Ms. Rosh only recommended filling one of the two vacancies at this time, allegedly because she believed Mr. Harris was the only applicant sufficiently qualified for the job. (Id., Ex. 9 at 89-94.) As her primary rationale for denying Plaintiff the second vacancy, Ms. Rosh cited Plaintiff's lack of recent experience "coding, testing, transmitting programs"; lack of recent TDA experience; and lack of experience with on-the-job-training of other programmers. (See id., Ex. 9 at 89-94, 101-09.)
Mr. Ragano followed Ms. Rosh's recommendation and hired Mr. Harris as a Lead IT Specialist in TDA, effective January 15, 2007.
Plaintiff learned he was not selected for the position on or around January 15, 2007. (Id., Ex. 5 at 19.) Shortly thereafter, pursuant to IRS policy, Plaintiff asked his immediate supervisor, Mary Ellen Pritts, for an explanation of this decision. (Id., Ex. 1.) Ms. Pritts informed Plaintiff that he did not receive the promotion because he lacked TDA experience. (Id., Ex. 1.) When Plaintiff responded that he in fact had seven years of TDA experience, Ms. Pritts said that she would look into it and then later told him that the position required recent TDA experience. (Id., Ex. 1 (emphasis added).) On February 21, 2007, Plaintiff sought consultation with an EEO counselor regarding his allegations of discrimination in being "nonselected for a position as an IT Specialist GS-2210-13 (Announcement Number 35-22-6WI383BT)." (Id., Ex. 5 at 19-20.)
With one of the positions for Lead IT Specialist in TDA still vacant, Ms. Rosh, unbeknownst to Plaintiff, moved to fill this second vacancy from a best qualified list developed via an external job posting. (Id., Ex. 9 at 93, 105-06.) Once Ms. Rosh moved to the external list, she no longer considered applicants, such as Plaintiff, who had only applied through the internal posting. (Id., Ex. 9 at 105-08.)
After conducting interviews from the external list, Ms. Rosh hired Michael Long.
On May 20, 2007, Plaintiff filed an administrative complaint with the Treasury Department's EEO office alleging he was discriminated against because of his disability when he was not selected as a Lead IT Specialist per Vacancy Announcement Number 35-22-6W1-383-BT. (See Compl. ¶ 2; Pl.'s Response, Ex. 5 at 2, 5.) In June of 2008, a final administrative decision was issued, presumably denying Plaintiff any relief. (See Compl. ¶ 2.)
Also in 2008, Plaintiff was promoted to a GS-13 position in the Service Center Imaging Processing System ("SCRIPS"). (Def.'s Mem., Ex. 1 at 8-17.)
Defendant alleges that this Court lacks jurisdiction to consider any claim of discrimination arising from the IRS's failure to promote Plaintiff to the second Lead IT Specialist position because Plaintiff did not apply for that position or comply with the administrative review requirements to challenge nonselection for that position. Specifically, Defendant alleges that Plaintiff
The Rehabilitation Act prohibits federal agencies from discriminating against qualified employees based on a disability and authorizes civil actions to remedy such discrimination.
As a prerequisite to such a suit, a federal employee must seek administrative review of his claim and comply with various administrative procedures.
In addition to EEO counseling, a federal employee must file a timely administrative complaint with the employer-agency—and the agency generally must take final action on that complaint—challenging the adverse employment action. See 29 C.F.R. 1614.106(a); Young, 828, F.2d at 237 (citing an older version of § 1614.106 (§ 1613.214(a)(1)(ii))). Although the scope of the subsequent civil suit is constrained by the allegations in the administrative complaint, "[a]n administrative charge of discrimination does not strictly limit [the civil suit]; rather the scope of the civil action is confined only by the scope of the administrative investigation that can reasonably be expected to follow the [administrative] charge of discrimination." Lane v. Wal-Mart Stores East, Inc., 69 F.Supp.2d 749, 755-56 (D.Md.1999) (quoting Chisholm v. United States Postal Serv., 665 F.2d 482, 491 (4th Cir.1981)); Chisholm, 665 F.2d at 491 (in a Title VII action, where administrative complaint had only challenged promotion and detailing, holding that plaintiff could bring claims of discrimination in discipline and testing because "allegation ... that USPS discriminated in promotions sufficed to put USPS on notice that the entire promotion system was being challenged, including ... discipline and testing" (internal citations omitted)); cf. § 1614.106(c) ("A complaint must contain a signed statement from the person claiming to be aggrieved or that person's attorney. This statement must be sufficiently precise to identify the aggrieved individual and the agency and to describe generally the action(s) or practice(s) that form the basis of the complaint."); Smith v. First Union Nat'l Bank, 202 F.3d 234, 247-48 (4th Cir. 2000) ("If a plaintiff's claims ... are reasonably related to her EEOC charge and can be expected to follow from a reasonable administrative investigation, the plaintiff may advance such claims in her subsequent civil suit [against a private employer].").
Plaintiff met all the procedural hurdles necessary to file a civil suit challenging his nonselection for both Lead IT Specialist vacancies. First, Plaintiff applied and was rejected for this second position. TDA announced two Lead IT Specialist vacancies per Vacancy Announcement Number 35-22-6W1-383-BT and Plaintiff applied to that announcement. The selection of Mr. Harris and nonselection of Plaintiff, though part of one hiring process, included two distinct decisions: choosing Mr. Harris over Plaintiff for one vacancy and passing over Plaintiff for the second vacancy. Cf. Hux v. City of Newport News, 451 F.3d 311, 316 (4th Cir.2006) (in a Title VII action, discussing plaintiff's nonselection for one of six promotional vacancies as one hiring "process" but evaluating the plaintiff's qualifications against those of each of the six promoted employees). Plaintiff's failure to apply to the external announcement or directly compete
Second, Plaintiff satisfied the forty-five-day time limit for seeking EEO counseling by contacting an EEO counselor, regarding his nonselection for both Lead IT Specialist positions, on February 21, 2007. If January 15, 2007 was the "effective date" of the discrimination against Plaintiff, as suggested in the EEO counselor report, then Plaintiff sought EEO counseling within forty-five days of the discrimination. If January 15, 2007 was merely when Plaintiff became aware of his allegedly discriminatory nonselection, then the EEO was required to extend the forty-five day window. Either way, Defendant has not met its burden of proving that Plaintiff failed to comply with this procedural requirement. Cf. Shiver, 549 F.3d at 1344 ("[Plaintiff] contacted an EEO counselor within 45 days of ... the date that he learned that his demotion had become effective. Thus, ... his administrative complaint was timely ....").
Finally, Plaintiff properly pursued an administrative complaint challenging nonselection in a manner that permits him to challenge nonselection for both positions in this civil action. In expressly claiming discrimination in nonselection for Lead IT Specialist per Vacancy Announcement Number 35-22-6W1-383-BT, Plaintiff's administrative complaint appears to cover his nonselection for both Lead IT Specialist vacancies advertised under that announcement number. (See, e.g., Pl.'s Response, Ex. 5 at 2, 9, 29-33.) Even if the administrative complaint only challenged the decision to hire Mr. Harris over Plaintiff,
Because Plaintiff raises a genuine issue about whether the non-discriminatory reasons offered by Defendant for the failure to promote Plaintiff were a pretext to mask intentional discrimination, Defendant's Motion to for Summary Judgment will be denied.
In the absence of direct or circumstantial evidence of a discriminatory purpose,
To survive summary judgment under McDonnell Douglas, the plaintiff must first "prove a prima facie case of discrimination by a preponderance of the evidence." Evans v. Tech. Applications & Serv. Co., 80 F.3d 954, 959-60 (4th Cir. 1996) (internal citations omitted). If the plaintiff does so, the burden shifts to the defendant to offer a "legitimate, non-discriminatory reason for its employment action." Id. at 959; accord Holland v. Washington Homes, Inc., 487 F.3d 208, 214 (4th Cir.2007). Finally, if the defendant presents such a reason, the burden shifts back to the plaintiff to raise a genuine issue as to whether the proffered explanation was a pretext for unlawful discrimination. See Desmond, 530 F.3d at 962; Hux, 451 F.3d at 315; Evans, 80 F.3d at 959.
Because Defendant in this case does not contest Plaintiff's ability to establish a prima facie case,
Defendant has presented legitimate, non-discriminatory reasons for the adverse employment discrimination. The defendant's burden here is one of production, not persuasion. Reeves v. Sanderson Plumbing Prods., Inc., 530 U.S. 133, 142, 120 S.Ct. 2097, 147 L.Ed.2d 105 (2000); Holland, 487 F.3d at 214. "Job performance and relative employee qualifications are widely recognized as valid, non-discriminatory bases for any adverse employment decision." Evans, F.3d at 960.
Defendant has met its burden of production by presenting proposed testimony that Plaintiff was denied this promotion for the following reasons: (1) lack of recent programming experience, (2) lack of recent TDA experience, (3) a lower application score than Mr. Harris,
Plaintiff in this case has raised a genuine issue as to whether Defendant's explanations were a pretext for unlawful discrimination, and summary judgment is therefore inappropriate.
To establish pretext, a plaintiff must present evidence to allow a reasonable juror to find that (1) the legitimate, nondiscriminatory reasons were "unworthy of credence" and (2) unlawful discrimination was the actual motive for the decision. See Reeves, 530 U.S. at 143, 147, 120 S.Ct. 2097; Desmond, 530 F.3d at 962; Holland, 487 F.3d at 218.
Plaintiff may prove that the defendant's proffered reasons were unworthy of credence "by showing that [they] had no basis in fact, [they] did not in fact motivate
I have little trouble concluding that Plaintiff has presented sufficient evidence for a reasonable juror to find that all four of Defendant's proffered reasons were either factually false or did not in fact motivate nonselection. First, Plaintiff points to evidence contradicting the assertion that he lacked recent programming experience. Plaintiff's own affidavit alleges that, although he worked for a couple years in a non-programming capacity as a web site designer, he returned to programming in PINEX in 2005, where his work was "95% the same" as his programming in TDA. (Pl.'s Response, Ex. 1.) Although Defendant disputes this characterization, resolving the differing views of Plaintiff's work is best left to the fact finder.
Second, plaintiff points out that his lack of recent TDA experience, though factually true, could not have been the actual reason for his nonselection: Mr. Long lacked any TDA experience but was nonetheless hired as a Lead IT Specialist. Further, the internal vacancy announcement did not even mention TDA experience as a qualification for the position.
Third, the significance of Plaintiff's lack of programming-related leadership experience is belied by Mr. Long's lack of team leader experience. Although the interview may have drawn out Mr. Long's past informal mentoring and training work, Mr. Long's testimony that this Lead IT Specialist position is not a team leader position, and the fact that the vacancy announcement did not do more than merely mention general subject matter leadership experience, also suggest that experience instructing programmers was not as critical to this position as Defendant suggests. (See Def.'s Mem., Ex. 7 at 15-16; Pl's Response, Ex. 5 at 58-60.)
Finally, the slightly higher score given to Mr. Harris may explain why Mr. Harris was chosen over Plaintiff, but it does not explain why Plaintiff was not selected for the second position. In fact, considering how close the two scores were, Plaintiff's score, if anything, increases suspicion that he was denied the second position for improper reasons.
Although a plaintiff must prove that the adverse employment decision was motivated by discrimination, proof that the proffered reasons were false may serve as circumstantial evidence of such discrimination. Reeves, 530 U.S at 147, 120 S.Ct. 2097. This inference is based on "the general principle of evidence law that the factfinder is entitled to consider a party's dishonesty about a material fact as affirmative evidence of guilt" and the fact that "once the employer's justification has been eliminated, discrimination may well be the most likely alternative explanation." Id. The probative value of falsity varies depending on whether there are alternative non-discriminatory (but non-proffered) explanations and the strength of the evidence establishing falsity. Id. at 148, 120 S.Ct. 2097. In some cases, falsity coupled with the evidence establishing the plaintiff's prima facie case
Plaintiff in this case has raised a genuine question as to whether the nonselection was motivated by unlawful discrimination. First, the falsity of Defendant's proffered reasons is probative of intentional discrimination; it suggests dishonesty on the part of Ms. Rosh,
Second, evidence that goes to Plaintiff's prima facie case also supports a discriminatory motive. More specifically, the circumstances that give rise to an inference of discrimination—Ms. Rosh recommended Mr. Harris (non-disabled) over a blind applicant for one of two identical vacancies, Ms. Rosh refused to recommend the blind applicant for the other vacancy, and the blind applicant's nonselection resulted in keeping the position open for months—are particularly probative of discriminatory intent in this case: Not only was a qualified disabled applicant passed over in favor of non-disabled applicant, but the disabled applicant had a nearly identical application score to that of the non-disabled applicant. Accordingly, the aggregation of the evidence that establishes Plaintiff's prima facie case and the evidence that Defendant's proffered reasons were unworthy of credence raises a genuine issue as to whether Plaintiff's nonselection was the result of unlawful discrimination.
This discussion is not to suggest that a fact finder must or should conclude that discrimination motivated the nonselection. In fact, there is some evidence weighing against a discriminatory motive. However, where there is substantial evidence that the proffered reasons are unworthy of credence and the facts establishing the prima facie case are particularly probative of discriminatory intent, determining whether unlawful discrimination has occurred is best left to the fact finder at trial.
For the reasons stated in the accompanying Memorandum, it is, this 10th day of May 2010
ORDERED
1. Defendant's motion for summary judgment is denied.
Some courts, however, describe the prima facie case of disability discrimination under the Rehabilitation Act as the Fourth Circuit seems to have described it in Brockman v. Snow: "To make a prima facie case of disability discrimination, [plaintiff] must prove that: (1) she has a disability under the RA; (2) she is qualified for the employment in question; and (3) she suffered an adverse employment action due to discrimination on the basis of disability." 217 Fed.Appx. 201, 208 (4th Cir. 2007). In my opinion, this is not an accurate description of the McDonnell Douglas prima facie test. If a plaintiff shows "an adverse employment action due to discrimination on the basis of disability," then the plaintiff would have already established unlawful discrimination, and the second and third steps of McDonnell Douglas—proffering legitimate reasons and determining pretext-would be irrelevant. Further, Brockman cites Doe v. Univ. of Maryland Med. Sys. Corp., 50 F.3d 1261, 1265 (4th Cir. 1995) to support this description, but page 1265 in Doe does not appear to describe the prima facie case under McDonnell Douglas. Even Defendant in this case describes the prima facie case as more lax than the Fourth Circuit did in Brockman. (Def.'s Mem. at 14.) Regardless, I need not resolve this confusion because Defendant does not challenge Plaintiff's ability to prove the elements of this prima facie case.
Although the Rehabilitation Act does not expressly implicate agency principles, prohibiting liability for anything other than the actions of official decisionmakers would thwart the purpose of the Rehabilitation Act just the same as it thwarts the purpose of Title VII and the ADEA. Moreover, I see no reason why the Rehabilitation Act would create a more burdensome standard, in comparison with Title VII or the ADEA, for holding a federal agency liable for the discriminatory actions of an employee. I therefore hold that the test announced in Hill and Reeves applies to claims of discrimination under the Rehabilitation Act.
Even assuming that Mr. Ragano was the official decisionmaker in this case and lacked any discriminatory motive, Plaintiff has presented evidence that Ms. Rosh was one of Plaintiff's superiors and was "principally responsible" for the failure to promote Plaintiff. Additionally, evidence that Ms. Rosh's promotion recommendations were always followed suggests she may have also been the "actual decisionmaker." Thus, Plaintiff need only offer evidence of Ms. Rosh's discriminatory motive to survive summary judgment.