Lin v. Potter

Filing 46

ORDER by Judge Beeler granting in part and denying in part 35 Motion to Dismiss for Lack of Jurisdiction (lblc2S, COURT STAFF) (Filed on 4/21/2011)

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1 2 3 4 5 6 7 8 UNITED STATES DISTRICT COURT 9 Northern District of California 10 Oakland Division XING XING LIN, 12 For the Northern District of California UNITED STATES DISTRICT COURT 11 No. C 10-03757 LB Plaintiff, ORDER DISMISSING PLAINTIFF’S FIRST AMENDED COMPLAINT v. 13 14 JOHN E. POTTER, POSTMASTER GENERAL, UNITED STATES POSTAL SERVICE, [ECF No. 35] 15 16 Defendant. _____________________________________/ 17 I. INTRODUCTION 18 On February 8, 2011, Plaintiff Xing Xing Lin filed a first amended complaint alleging that her 19 employer, Defendant United States Postal Service, discriminated against her based on race, national 20 origin, and sex by delaying updating her qualifications in a register used to evaluate eligibility for 21 promotions and thus denying her promotions, in violation of Title VII of the Civil Rights Act of 22 1964. See First Amended Complaint, ECF No. 30 at 12-13, ¶¶ 48-59.1 Ms. Lin also claims that the 23 Postal Service retaliated against her for prior EEO activity by the delay and denial of promotions. 24 See id. at 14, ¶¶ 60-62. 25 The Postal Service moved to dismiss the first amended complaint for failure to state a claim and 26 27 1 28 Citations are to the Electronic Case File (“ECF”) with pin cites to the electronic page number at the top of the document, not the pages at the bottom. C 10-03757 LB ORDER DISMISSING PLAINTIFF’S FAC 1 for lack of subject-matter jurisdiction based on Ms. Lin’s failure to include facts in her EEO 2 complaint establishing elements of her discrimination claims. Motion to Dismiss, ECF No. 35. 3 Because Ms. Lin’s claims are reasonably related to her EEO complaint, this court has subject- 4 matter jurisdiction over the claims contained in her first amended complaint. In addition, because 5 Ms. Lin timely initiated the EEO process, her claims are not time-barred. 6 As to claims one, two, and three alleging discrimination based on race, national origin, and sex 7 in violation of Title VII, the court dismisses the claims for failure to state a claim under Rule 8 12(b)(6). Ms. Lin pleaded insufficient facts regarding whether a similarly-situated individual outside 9 her protected class was treated more favorably. 10 As to claim four alleging retaliation for her 2008 EEO activity, the court dismisses the claim for failure to state a claim under Rule 12(b)(6). Ms. Lin did not plead sufficient facts regarding the 12 For the Northern District of California UNITED STATES DISTRICT COURT 11 causal link between the adverse employment action and the protected activity. 13 14 Because Ms. Lin may be able to amend her complaint to plead sufficient facts regarding all four claims, the court grants her leave to amend. 15 16 II. BACKGROUND A. The Postal Service’s Promotion System 17 Ms. Lin is a Chinese female employee of the United States Postal Service. FAC, ECF No. 30 at , 18 ¶ 8.2 Her employment is subject to a Collective Bargaining Agreement between the American Postal 19 Workers Union and the Postal Service. Id. at ¶ 9; ECF No. 30-3 at 1, Exh. C. The Agreement 20 mandates that when maintenance craft employees such as Ms. Lin request an update of their 21 qualifications in a database maintained by the Postal Service called the Promotion Eligibility 22 Register, management has 37 calendar days from the date of the update request to “complete the 23 process and have results back in the office and notify the employee.” Id. When an employee wants 24 a promotion, management must first update her knowledge, skills, and abilities before the Postal 25 2 26 27 28 The facts relevant to the analysis of whether Ms. Lin fails to state a claim under Federal Rule of Civil Procedure 12(b)(6) are all from the complaint. Additional facts submitted by the parties are identified by their source and are relevant only to the Postal Service’s factual challenge under Rule 12(b)(1) to the court’s subject-matter jurisdiction. See Savage v. Glendale High School, Dist. No. 205, 343 F.3d 1036, 1040 n.2 (9th Cir. 2003). C 10-03757 LB ORDER DISMISSING PLAINTIFF’S FAC 2 1 Service can place her on the Promotion Eligibility Register for the next level promotion. Id. at ¶ 10. 2 The Postal Service, according to the terms of the Collective Bargaining Agreement, grants all 3 promotions in accordance with this register system, which is primarily a seniority-based system. Id. 4 at 11. 5 When the Postal Service has a vacant or newly-established duty assignment, the collective 6 bargaining agreement requires that it post the vacancy for seven days along with a notice of intent 7 that it will fill the vacancy using the preferred assignment register or the promotion eligibility 8 register. Id. at 4-5, ¶ 12; ECF No. 30-2 at 3, Exh. B. The preferred assignment selection register lets 9 employees specify in numerical order which assignments they would prefer over their current assignments. Id. ECF No. 30-2 at 4, Exh. B. The Postal Service must offer the vacancy to 11 employees in the following order. 12 For the Northern District of California UNITED STATES DISTRICT COURT 10 First, the Postal Service must offer newly established or vacant duty assignments to the most 13 senior employees from the appropriate preferred assignment register. Id. at 4, § 5. Second, the 14 Postal Service must offer the position to a part-time employee who has submitted a preferred 15 assignment form for a full-time position within his or her current salary level and occupational 16 group. Id. at 5. Third, if the Postal Service cannot fill the vacancy from within the salary level or 17 occupational group, it must consider giving the position to a higher-level qualified employee who 18 previously submitted a written request for assignment to a lower level. Id. Finally, the collective 19 bargaining agreement states, “Where a vacant or newly established duty assignment cannot be filled 20 from an established preferred assignment register, and the assignment is to be filled by means of a 21 promotion, selection shall be made from the appropriate eligibility register.” Id. at 4. In short, if the 22 Postal Service is unable to fill a vacancy using the first three methods, only then can it promote 23 someone from the Promotion Eligibility Register. Id. 24 B. Ms. Lin’s 2007 and 2008 EEO Activity And Settlement 25 The Postal Service initially hired Ms. Lin as a Labor Custodian on January 21, 2006. Id. at 5, ¶ 26 15. On about January 24, 2007, the Postal Service added Ms. Lin’s name to the Maintenance 27 Mechanic Promotion Eligibility Register. Id. Starting on February 26, 2007, Ms. Lin began 28 performing the tasks of a Maintenance Mechanic (a higher-ranked position designated as “MM7” C 10-03757 LB ORDER DISMISSING PLAINTIFF’S FAC 3 1 level and previously known as “MM6” level) at the Postal Service’s San Francisco P&DC Finance 2 Station without receiving a formal promotion to the position. Id. The Postal Service’s management 3 later revoked this assignment and sent Ms. Lin back to being a Labor Custodian. Id. 4 In order to qualify for a position as a Maintenance Mechanic, Ms. Lin had required training, 5 passed a test at the end of the training, and satisfied all qualifications to be promoted to the MM7 6 position. Id. at 5, ¶ 16. After completing the training program, Ms. Lin became eligible not only for 7 the MM7 position, but also for the next-level promotion to the Maintenance Mechanic MPE 9 8 position (previously known as “MPE 8”). Id. at 5-6, ¶ 16. Thereafter, on October 19, 2007, she 9 submitted a request to update her professional qualifications (called “Knowledge, Skills and her eligible to receive the next promotion to MPE 9. Id. Ed Cuadra, the MSS coordinator for the 12 For the Northern District of California Abilities” or “KSAs”) in the Promotion Eligibility Register. Id. at 6, ¶ 16. This update would make 11 UNITED STATES DISTRICT COURT 10 San Francisco District in charge of Maintenance Craft promotions and who approves all promotion 13 updates, did not respond to Ms. Lin’s request to update her qualifications. Id. 14 15 After Ms. Lin filed a grievance on November 9, 2007, the Postal Service offered her an MM7 position with the San Francisco Air Mail Center on January 5, 2008. Id. at 6, ¶¶ 17-18. 16 On March 5, 2008, Ms. Lin contacted the agency’s internal Equal Employment Opportunity 17 Counselor to initiate a complaint alleging a discriminatory denial of promotion and refusal to update 18 her professional qualifications in the Promotion Eligibility Register. Id. at 6, ¶ 19. In that 19 complaint, Ms. Lin alleged that Ed Cuadra had refused to process her qualification updates because 20 of her national origin (Chinese) and sex (female). Id., ECF No. 41 at 1, Exh. D. 21 After completing mediation, the parties entered into a settlement agreement on May 6, 2008 with 22 the following terms: (1) the Postal Service was ordered to schedule a review panel to evaluate Ms. 23 Lin’s request to have her KSA professional qualifications updated within 30 days; and (2) Ms. Lin 24 was retroactively promoted to an MM7 position as of October 19, 2007. Id. at 6, ¶ 20. Despite the 25 settlement, the Postal Service did not adjust Ms. Lin’s wage rates, bonuses, and benefits to “that 26 level to which she is entitled in accordance with the retroactive promotion.” Id. at 6, ¶ 21. 27 C. Events in 2009 and Ms. Lin’s August 2009 EEO Activity 28 On January 27, 2009, Ms. Lin asked Ed Cuadra to have her qualifications updated to the MPE 9 C 10-03757 LB ORDER DISMISSING PLAINTIFF’S FAC 4 1 level. Id. at 7, ¶ 22. Based on the terms of the Collective Bargaining Agreement, the Postal Service 2 had 37 days from the date of her request – or until March 5, 2009 – to process her updated 3 qualifications and render a decision. Id. at ¶ 23. Ed Cuadra refused to update Ms. Lin’s eligibility 4 qualifications. Id. at 7, ¶ 24. On August 31, 2009, the Postal Service notified Ms. Lin by mail about 5 the response to her update request, and on October 6, 2009, it updated her qualifications and placed 6 her on the MPE 9 Promotion Eligibility Register. Id. at 7, ¶¶ 25, 26. 7 On April 2, 2009, the Postal Service posted an MPE 9 vacant duty assignment intending to fill 8 the vacancy from the preferred assignment register. Id. at 8, ¶ 28; ECF No. 30-7 at 1, Exh. G. No 9 employee on the preferred assignment register bid for the vacancy. Id. preferred assignment register. Id. at ¶ 29; ECF No. 30-8 at 1, Exh. H. No employee on the preferred 12 For the Northern District of California On April 17, 2009, the Postal Service posted another MPE 9 vacancy intending to fill it from the 11 UNITED STATES DISTRICT COURT 10 assignment register bid for the vacancy. Id. On about August 1, 2009, the Postal Service awarded 13 the April 17, 2009 vacancy to Santiago Villamar. Id. at ¶ 31; ECF No. 30-9 at 1, Exh. I. Ms. Lin 14 does not claim that the Postal Service wrongfully awarded this vacancy to Mr. Villamar. Id. at 11, ¶ 15 43. (As she clarified at oral argument, part of the relevance is an illustration of how the promotion 16 process is supposed to work, as opposed to what she alleges happened to her.) 17 On about August 13, 2009, Ms. Lin contacted an EEO counselor to request pre-complaint 18 processing for discrimination and retaliation for the Postal Service’s failure to update her promotion 19 eligibility and corresponding denial of promotion opportunities. Id., ECF No. 41 at 4, Exh. J. The 20 pre-complaint alleged that J. Abeyta, R. Wills, and Ed Cuadra, among others, discriminated against 21 her because of her race (Asian), national origin (Chinese), and sex (female). Id. She also sought 22 pre-complaint processing for the Postal Service’s denial of [presumably retroactive] promotion 23 wages and benefits for the 2008 retroactive promotion and refusal to comply with the 2008 24 settlement agreement. Id. She alleged that the discriminatory conduct began on August 3, 2009 on a 25 continuing basis at the “MGR San Francisco AMC, BLDG 660 W Field Rd.” Id. 26 In late August 2009, the Postal Service notified Ms. Lin about its response to her update request, 27 and on October 6, 2009, it updated her qualifications and placed her on the MPE 9 Promotion 28 Eligibility Register. Id. at 7, ¶¶ 25, 26. At that time, Ms. Lin was on the top of the MPE 9 register. C 10-03757 LB ORDER DISMISSING PLAINTIFF’S FAC 5 1 Id. at 10, ¶ 40; ECF No. 30-6 at 1, Exh. F.3 Ms. Lin claims that the Postal Service should have 2 activated her MPE 9 promotion eligibility when it received her qualifying updated test score on 3 about August 31, 2009. Id. On October 10, 2009, four days after it placed her on the Promotion 4 Eligibility Register, the Postal Service awarded the April 2, 2009 vacancy to Willie Mata, an 5 individual who was not on the promotion eligibility register and therefore, Ms. Lin claims, was not 6 qualified to receive the promotion. Id. at 11, ¶¶ 42-43. 7 Ms. Lin signed a formal EEO Complaint of Discrimination on October 28, 2009 alleging that Ed 8 Cuadra, Carol Croteau, and Jack Abeyta discriminated against her because of her race (Asian), 9 national origin (Chinese), and sex (female) by failing to update her promotion eligibility and that the discrimination occurred at the San Francisco AMC (Air Mail Center) and began on August 12 For the Northern District of California therefore, denying her “promotion opportunities.” Id., ECF No. 41 at 7, Exh. K. Ms. Lin alleged 11 UNITED STATES DISTRICT COURT 10 3, 2009 on a continuing basis. Id. Ms. Lin also claimed that the Postal Service retaliated against her 13 for her EEO activity. Id. On November 23, 2009, the agency dismissed her complaint for failure to 14 state a claim. Id. at 9, ¶ 36; ECF No. 30-12 at 1-5, Exh. L. The agency stated that “due to 15 downsizing, the Postal Service has not had any vacant positions to fill” and thus, Ms. Lin had not 16 actually suffered a harm. Id., ECF No. 30-12 at 2, Exh. L. 17 Ms. Lin appealed this decision to the Equal Employment Opportunity Commission (EEOC). Id. 18 at 10, ¶ 37; ECF No. 30-1 at 1-4, Exh. A. On appeal to the EEOC, Ms. Lin argued in part that as a 19 result of the Postal Service’s failure to update her promotion eligibility, it denied her the April 2 and 20 April 17, 2009 promotions. Id. at 2. In its June 3, 2010 decision affirming the Postal Service’s 21 dismissal and issuing the notice of a right to sue, the EEOC stated that Ms. Lin had raised the two 22 promotions for the first time on appeal and told Ms. Lin to “initiate the EEO complaint process 23 regarding these matters if she chooses to pursue them further.” Id. Ms. Lin filed the complaint in 24 this case on August 24, 2010. Complaint, ECF No. 1. 25 26 27 28 3 The Postal Service argues that, due to an error, Ms. Lin was listed before Rodelio Perez on the Promotion Eligibility Register. Motion to Dismiss, ECF No. 35 at 13-14 n.5. Those facts may be true and may be relevant to a summary judgment motion, but the court does not consider them when evaluating a motion to dismiss for failure to state a claim. C 10-03757 LB ORDER DISMISSING PLAINTIFF’S FAC 6 1 2 D. Procedural History The Postal Service filed a motion to dismiss Ms. Lin’s initial complaint on November 30, 2010. 3 ECF No. 9. The court heard oral argument on that motion on January 20, 2011 and granted in part 4 and denied in part the Postal Service’s motion to dismiss on January 22, 2011. 1/22/11 Order, ECF 5 No. 27. The court gave Ms. Lin leave to amend. Id. 6 On February 8, 2011, Ms. Lin filed a first amended complaint. ECF No. 30. The Postal Service 7 filed a motion to dismiss Ms. Lin’s first amended complaint on March 17, 2011. ECF No. 35. The 8 court heard oral argument on the Postal Service’s motion on April 21, 2011. 9 10 III. LEGAL STANDARDS A. Rule 12(b)(1) Dismissal of a claim is appropriate under Federal Rule of Civil Procedure Rule 12(b)(1) when 12 For the Northern District of California UNITED STATES DISTRICT COURT 11 the court lacks subject-matter jurisdiction over the claim. Federal subject-matter jurisdiction must 13 exist at the time the action is commenced. Morongo Band of Mission Indians v. California Bd. of 14 Equalization, 858 F.2d 1376, 1380 (9th Cir. 1988). 15 A Rule 12(b)(1) motion may either attack the sufficiency of the complaint to establish federal 16 jurisdiction (a facial challenge) or allege a lack of jurisdiction that exists despite the formal 17 sufficiency of the complaint (a factual challenge). See White v. Lee, 227 F.3d 1214, 1242 (9th Cir. 18 2000); Thornhill Publishing Co., Inc. v. General Tel. & Electronics Corp., 594 F.2d 730, 733 (9th 19 Cir. 1979); Roberts v. Corrothers, 812 F.2d 1173, 1177 (9th Cir. 1987). A facial attack asserts lack 20 of federal jurisdiction based on the complaint alone, and the court must “accept all allegations of fact 21 in the complaint as true and construe them in the light most favorable to the plaintiffs.” See Warren 22 v. Fox Family Worldwide, Inc., 328 F.3d 1136, 1139 (9th Cir. 2003). By contrast, with a factual 23 challenge, a court need not assume the truth of factual allegations but may hear additional evidence 24 about jurisdiction and resolve factual disputes when necessary. See Roberts, 812 F.2d at 1177 25 (quotation omitted). If a defendant challenges jurisdiction by presenting evidence, then the party 26 opposing the motion must present sufficient evidence to support the court’s subject-matter 27 jurisdiction. See Savage v. Glendale Union High School, Dist. No. 205, Maricopa County, 343 F.3d 28 1036, 1040 n.2 (9th Cir. 2003). C 10-03757 LB ORDER DISMISSING PLAINTIFF’S FAC 7 1 Dismissal of a complaint without leave to amend should only be granted where the jurisdictional 2 defect cannot be cured by amendment. Eminence Capital, LLC v. Aspeon, Inc., 316 F.3d 1048, 1052 3 (9th Cir. 2003). 4 B. Rule 12(b)(6) 5 A court may dismiss a complaint under Federal Rule of Civil Procedure 12(b)(6) when it does 6 not contain enough facts to state a claim to relief that is plausible on its face. See Bell Atlantic Corp. 7 v. Twombly, 550 U.S. 544, 570 (2007). “A claim has facial plausibility when the plaintiff pleads 8 factual content that allows the court to draw the reasonable inference that the defendant is liable for 9 the misconduct alleged.” Ashcroft v. Iqbal, 129 S.Ct. 1937, 1949 (2009). “The plausibility standard defendant has acted unlawfully.” Id. (quoting Twombly, 550 U.S. at 557.) “While a complaint 12 For the Northern District of California is not akin to a ‘probability requirement,’ but it asks for more than a sheer possibility that a 11 UNITED STATES DISTRICT COURT 10 attacked by a Rule 12(b)(6) motion to dismiss does not need detailed factual allegations, a plaintiff’s 13 obligation to provide the ‘grounds’ of his ‘entitle[ment] to relief’ requires more than labels and 14 conclusions, and a formulaic recitation of the elements of a cause of action will not do. Factual 15 allegations must be enough to raise a right to relief above the speculative level.” Twombly, 550 16 U.S. at 555 (internal citations and parentheticals omitted). 17 In considering a motion to dismiss, a court must accept all of the plaintiff's allegations as true 18 and construe them in the light most favorable to the plaintiff. See id. at 550; Erickson v. Pardus, 551 19 U.S. 89, 93-94 (2007); Vasquez v. Los Angeles County, 487 F.3d 1246, 1249 (9th Cir. 2007). 20 In reviewing a motion to dismiss, courts may consider documents attached to the complaint. 21 Parks School of Business, Inc. v. Symington, 51 F.3d 1480, 1484 (9th Cir. 1995) (citation omitted). 22 If the court dismisses the complaint, it should grant leave to amend even if no request to amend 23 is made “unless it determines that the pleading could not possibly be cured by the allegation of other 24 facts.” Lopez v. Smith, 203 F.3d 1122, 1127 (9th Cir. 2000) (quoting Cook, Perkiss and Liehe, Inc. v. 25 Northern California Collection Serv. Inc., 911 F.2d 242, 247 (9th Cir. 1990)). IV. DISCUSSION 26 27 28 Plaintiff alleges race, national origin, and sex discrimination because the Postal Service delayed updating her qualifications in its promotional eligibility, thereby denying her promotion C 10-03757 LB ORDER DISMISSING PLAINTIFF’S FAC 8 1 opportunities, promotion eligibility, and promotion wages and benefits. The Postal Service asserts 2 two grounds for dismissing the claims: lack of subject matter jurisdiction under Federal Rule of 3 Civil Procedure 12(b)(1), and failure to state a claim under Rule 12(b)(6). 4 A. Lack of Subject Matter Jurisdiction 5 The Postal Service argues that the court lacks subject-matter jurisdiction to hear Ms. Lin’s 6 claims because (1) she failed to allege the specific promotions that she was denied in her EEO 7 complaint, and (2) she did not exhaust her administrative remedies when she failed to timely initiate 8 the EEO administrative process. Motion to Dismiss, ECF No. 35 at 17-19. 9 More specifically, the government asserts that Ms. Lin’s EEO complaint did not refer to specific specific material employment benefit) and therefore, she failed to exhaust her administrative 12 For the Northern District of California job postings (and allegedly lost promotions) on April 2 and April 17, 2009 (or the loss of any other 11 UNITED STATES DISTRICT COURT 10 remedies. Id. at 19. Also, she knew of the April 2, 2009 job posting on that date and therefore had 13 until May 17, 2009 to initiate the EEO pre-complaint process, but waited until August 2009 (a 14 period outside the 45-day limit). Id. The Postal Service further argues that even if the relevant 15 discriminatory act was October 10, 2010 (the date it awarded the position to Mr. Mata) instead of the 16 job posting date of April 2, 2009, Ms. Lin’s August 13, 2009 initiation was premature because the 17 Postal Service had not yet filled the position, and Ms. Lin had not yet suffered any harm. Id. In 18 essence, the Postal Service claims that Ms. Lin either initiated the EEO process late (after the 45-day 19 limitation period that follows the April 2, 2009 alleged discriminatory act) or initiated the EEO 20 process prematurely (before the October 10, 2010 allegedly discriminatory act). In either instance, 21 the Postal Service asserts that Ms. Lin has failed to exhaust her administrative remedies and 22 therefore, the court does not have subject-matter jurisdiction over her claims. Id. at 20. 23 Ms. Lin responded that even though her EEO complaint did not include specific references to the 24 April 2 and April 17, 2009 vacancies, this information is reasonably related to the claims she 25 asserted in the EEO complaint and therefore, she exhausted her administrative remedies. 26 Opposition, ECF No. 37 at 12-16. As a result, according to Ms. Lin, the court has subject-matter 27 jurisdiction. Id. 28 Two issues are at play in this case, either of which could result in dismissal of Ms. Lin’s first C 10-03757 LB ORDER DISMISSING PLAINTIFF’S FAC 9 1 amended complaint. First, the court must decide whether it has subject-matter jurisdiction to hear 2 Ms. Lin’s claims even though she did not specifically allege them in her EEO complaint. To do this, 3 the court must determine whether the factual allegations in her first amended complaint are 4 reasonably related to the factual allegations in her EEO complaint. 5 Second, if the court has subject-matter jurisdiction, it must determine whether Ms. Lin timely 6 initiated the EEO administrative process and thus, whether her claims are time-barred. Whether Ms. 7 Lin timely initiated the EEO process is not a jurisdictional prerequisite. See Irwin v. Dept. of 8 Veterans Affairs, 498 U.S. 89, 93-96 (1990). Nonetheless, if Ms. Lin failed to timely initiate the 9 administrative process, dismissal may be appropriate, though not for lack of subject-matter claims of discriminatory conduct that occurred more than 45 days before they filed their complaint 12 For the Northern District of California jurisdiction. Lyons v. England, 307 F.3d 1092, 1108 (9th Cir. 2002) (holding that the plaintiff’s 11 UNITED STATES DISTRICT COURT 10 were time-barred). The court will address each of these issues in turn. 13 1. Ms. Lin’s Federal Claims are Within the Scope of the EEOC Investigation 14 Though Ms. Lin did not specifically mention the April 2, 2009 vacancy in her EEO complaint, 15 her federal claims are within the scope of the EEOC’s actual investigation or an investigation that 16 could reasonably be expected to grow out of her charges of discrimination. See EEOC v. Farmer 17 Bros. Co., 31 F.3d 891, 899 (9th Cir. 1994). Moreover, Ms. Lin’s federal claims are consistent with 18 her original theory of the case. See B.K.B. v. Maui Police Dep’t, 276 F.3d 1091, 1100 (9th Cir. 19 2002). Therefore, the court has subject-matter jurisdiction. 20 Title VII actions by federal employees are governed by 42 U.S.C. § 2000e-16. An employee 21 must exhaust administrative remedies with her agency within the time limits specified in EEOC 22 regulations. The plaintiff must make a complaint to an EEO counselor within 45 days of the alleged 23 discrimination, which is the pre-complaint process, and then file a written complaint with the agency 24 within 15 days of the final interview with the EEO counselor. 29 C.F.R. §§ 1614.105(a), .106(b). If 25 the plaintiff takes the case to the EEOC, the plaintiff must file the complaint with the EEOC within 26 30 days of the agency’s final decision. Id. § 1614.402(a). When, as here, the EEOC issues a final 27 decision, the plaintiff has 90 days from the EEOC’s decision to file an action in federal court. 42 28 U.S.C. § 200e-16(c); 29 C.F.R. § 1614.408. C 10-03757 LB ORDER DISMISSING PLAINTIFF’S FAC 10 1 Generally a federal court may not consider allegations outside the administrative complaint. See 2 Freeman v. Oakland Unified Sch. Dist., 291 F.3d 632, 636 (9th Cir. 2002). Substantial compliance 3 with the requirement that discrimination complaints must be presented to the appropriate agency is a 4 jurisdictional prerequisite. Sommantino v. United States, 255 F.3d 704, 708 (9th Cir. 2001). The 5 time limits themselves are not jurisdictional but are subject to equitable tolling, just like claims 6 against private employers. Irwin, 498 U.S. at 93-96. 7 Courts nonetheless may consider claims not presented in the administrative complaint if the 8 factual allegations in the federal complaint are reasonably related to the factual allegations in the 9 EEO complaint. See Freeman, 291 F.3d at 637. To make this determination, the court must decide the EEOC’s actual investigation or an EEOC investigation which can reasonably be expected to 12 For the Northern District of California whether the allegations not included in the original charge would have fallen “within the scope of 11 UNITED STATES DISTRICT COURT 10 grow out of the charge of discrimination.” See Farmer Bros., 31 F.3d at 899 (internal quotation 13 marks omitted) (emphasis in original). This requires courts to consider (1) the alleged basis of 14 discrimination, (2) the dates of discriminatory acts specified within the charge, (3) perpetrators of 15 discrimination named in the charge, and (4) locations at which discrimination is alleged to have 16 occurred. See B.K.B., 276 F.3d at 1100. Additionally, “the court should consider plaintiff’s civil 17 claims to be reasonably related to allegations in the charge to the extent that those claims are 18 consistent with the plaintiff’s original theory of the case.” Id. Courts must construe the initial EEO 19 charge “with the utmost liberality.” Farmer Bros., 31 F.3d at 899 (internal quotation marks and 20 citation omitted). 21 Ms. Lin’s August 13, 2009 Information for Pre-Complaint Counseling states that on a continuing 22 basis since August 3, 2009, the Postal Service had discriminated against her by failing to update her 23 promotion eligibility. ECF No. 41 at 4, Exh. J. In particular, her pre-complaint information alleged 24 that the discrimination occurred at the “MGR San Francisco AMC, BLDG 660 W Field Rd.” facility 25 and that Ed Cuadra, J. Abeyta, and R. Wills, among others, engaged in the discriminatory conduct. 26 Id. at 4-5. Likewise, her October 28, 2009 formal EEO complaint alleges that as a result of the 27 Postal Service’s failure to update her promotion eligibility status, it denied her “promotions” 28 beginning on August 3, 2009 and continuing to the present. ECF No. 41 at 7, Exh. K. The formal C 10-03757 LB ORDER DISMISSING PLAINTIFF’S FAC 11 1 complaint also states that the discrimination occurred at the “San Francisco AMC” and that Ed 2 Cuadra, Jack Abeyta, and Carol Croteau engaged in the discriminatory conduct. Id. at 7. During the 3 Agency’s investigation, it found that “due to downsizing, the Postal Service has not had any vacant 4 positions to fill.” FAC, ECF No. 30-12 at 2, Exh. L. In response, Ms. Lin asserted in her appeal that 5 the Postal Service had, in fact, posted two available vacant positions on April 2 and April 17, 2009. 6 Id. ECF No. 30-1 at 2, Exh. A. 7 Ms. Lin’s federal claims allege that the Postal Service failed to update her promotion eligibility 8 and as a result, it denied her the April 2, 2009 promotion. FAC, ECF No. 30 at 11, ¶ 42. She claims 9 that Ed Cuadra, Jack Abeyta, and Carol Croteau engaged in the discriminatory conduct at the Postal the Postal Service failed to update her promotion qualifications beginning on about January 27, 2009 12 For the Northern District of California Service’s facilities in San Francisco. FAC, ECF No. 30 at 3, ¶ 6. In addition, Ms. Lin claims that 11 UNITED STATES DISTRICT COURT 10 and continuing until October 6, 2009 when it updated her eligibility but then awarded the April 2, 13 2009 position to Mr. Mata four days later. FAC, ECF No. 30 at 7, ¶¶ 22, 26. 14 Mindful that courts must construe EEOC complaints “with the utmost liberality,” Ms. Lin’s first 15 amended complaint fits squarely within the EEOC’s actual investigation or one that could 16 reasonably have grown out of her charges of discrimination. Farmer Bros., 31 F.3d at 899. First, 17 her Information for Pre-Complaint Counseling, her formal EEO complaint, and the claims in her 18 first amended complaint all assert the same basis of discrimination. ECF No. 41 at 4, 7, Exhs. J 19 (Information for Pre-Complaint Counseling) & K (formal EEO complaint); FAC, ECF No. 30 at 11, 20 ¶ 42. Specifically, Ms. Lin alleges that the Postal Service denied her promotions when it failed to 21 timely update her promotion eligibility. Id. Second, her EEO complaint alleges discrimination for 22 the exact time period that Ms. Lin alleges the Postal Service discriminated against her in her first 23 amended complaint. Id. Specifically, her EEO complaint asserts discrimination on a continuing 24 basis from August 3, 2009 through the October 10, 2009 date that she claims the Postal Service 25 wrongfully denied her a promotion, which also is alleged in her first amended complaint. Id. Third, 26 Ms. Lin named the same individuals who engaged in the allegedly discriminatory conduct in both 27 her EEO complaint and her first amended complaint. Id. Specifically, she named Ed Cuadra, Jack 28 Abeyta, and Carol Croteau. Id. Lastly, Ms. Lin asserts in her EEO complaint and her first amended C 10-03757 LB ORDER DISMISSING PLAINTIFF’S FAC 12 1 complaint that the Postal Service discriminated against her at the San Francisco division of its 2 offices. Id. Thus, the four factors outlined in B.K.B. indicate that the factual allegations in Ms. 3 Lin’s first amended complaint are reasonably related to the factual allegations in her EEO complaint. 4 B.K.B., 276 F.3d at 1100. Lin promotions and found that it had not because no promotions were available. FAC, ECF No. 30- 7 12 at 1-5, Exh. L. That the Agency failed to discover the April 2, 2009 promotion does not change 8 the fact that the investigation explicitly encompassed promotions and the Postal Service’s alleged 9 denial of those opportunities. Moreover, because federal courts may hear Title VII claims that are 10 not specifically alleged in an EEO complaint, see Freeman, 291 F.3d at 637, it is irrelevant that the 11 EEOC instructed Ms. Lin to re-initiate the EEO process for the April 2 and April 17, 2009 12 For the Northern District of California In addition to those four factors, the Agency investigated whether the Postal Service denied Ms. 6 UNITED STATES DISTRICT COURT 5 promotion denials. The court agrees with the EEOC that Ms. Lin did not explicitly allege these two 13 dates of discrimination in her EEO complaint, but the inquiry at this stage is whether her federal 14 claims are reasonably related to the claims in her EEO complaint, which the court now finds that 15 they are. Id. 16 Additionally, Ms. Lin’s original theory of the case has remained constant. From her Information 17 for Pre-Complaint Counseling to her formal EEO Complaint to her first amended complaint, Ms. Lin 18 has maintained that the Postal Service discriminated against her when it failed to update her 19 promotion eligibility and as a result, denied her promotions. ECF No. 41 at 4, 7, Exhs. J 20 (Information for Pre-Complaint Counseling) & K (formal EEO complaint); FAC, ECF No. 30 at 11, 21 ¶ 42. Therefore, the claims in her first amended complaint are consistent with her original theory of 22 the case. 23 The claims in Ms. Lin’s first amended complaint regarding the denial of the April 2, 2009 24 promotion are within the scope of the EEOC’s actual investigation or one that can reasonably be 25 expected to grow out of her original charge of discrimination and are consistent with her original 26 theory of the case. Thus, the court has subject-matter jurisdiction over Ms. Lin’s claims. 27 2. Ms. Lin Timely Initiated the EEO Process 28 As the court notes above, the timely initiation of the EEO process is not a jurisdictional C 10-03757 LB ORDER DISMISSING PLAINTIFF’S FAC 13 1 prerequisite but rather a requirement that is subject to waiver. Irwin, 498 U.S. at 93-96 (citing Zipes 2 v. Trans World Airlines, Inc., 455 U.S. 385, 398 (1982)). With this in mind, though the court may 3 have subject-matter jurisdiction over her claims, dismissal may be warranted if Ms. Lin failed to 4 timely initiate the EEO process and equitable tolling of the limitation period is inappropriate. See 5 Lyons, 307 F.3d at 1108. As a result, the court must determine whether Ms. Lin timely initiated the 6 EEO process. 7 To determine whether Ms. Lin timely initiated the EEO process, the court must resolve whether Ms. Lin filed her Information for Pre-Complaint Counseling on August 13, 2009 (twelve days after 10 the Postal Service filled the April 17 vacancy), alleging that the Postal Service failed to update her 11 promotion eligibility. FAC, ECF No. 41 at 4, 9. Her formal EEO complaint filed on October 28, 12 For the Northern District of California her EEO complaint alleged a discriminatory act that occurred within the 45-day limitation period. 9 UNITED STATES DISTRICT COURT 8 2009 also stated that the Postal Service had denied her “promotions.” Id. at 7, Exh. K. The agency, 13 though, ruled that due to downsizing, “the Postal Service has not had any vacant positions to fill.” 14 FAC, ECF No. 30-12 at 2, Exh. L (Agency decision). In response, Ms. Lin argued on appeal to the 15 EEOC that in fact the Postal Service had two vacant positions available that it wrongfully denied 16 her, one of which was the April 17, 2009 vacancy. ECF No. 30-1 at 2, Exh. A. 17 In short, Ms. Lin’s October 28, 2009 complaint and her arguments on appeal indicate that she 18 sought redress for what she alleged was the Postal Services’ discriminatory denial of promotion 19 opportunities, including the denial on August 1, 2009. Because she initiated the EEO complaint 20 process within 45 days of the August 1, 2009 denial, her EEO complaint was timely. That Ms. Lin 21 now does not claim that the August 1, 2009 denial was discriminatory is irrelevant to whether or not 22 she timely initiated the EEO administrative process in the first instance. Moreover, that the EEOC 23 upheld the Agency’s dismissal of her complaint for failure to state a claim does not change the fact 24 that she timely initiated the EEO review. Therefore, Ms. Lin’s claims are not time-barred. 25 B. Dismissal For Failure to State a Claim Under Rule 12(b)(6) 26 1. Claims One, Two, and Three: Discrimination in Violation of Title VII 27 In claims one, two, and three, Ms. Lin alleges that the Postal Service discriminated against her 28 because of her race (Asian), national origin (Chinese), and sex (female) by failing to timely update C 10-03757 LB ORDER DISMISSING PLAINTIFF’S FAC 14 1 her qualifications in its Promotion Eligibility Register and thus failing to promote her. FAC, ECF 2 No. 30 at 9, ¶ 32. Ms. Lin claims that the April 2, 2009 MPE 9 vacancy remained open when she 3 filed her EEO complaint on August 13, 2009, and the Postal Service would have awarded her the bid 4 had it properly updated her qualifications following her numerous requests.4 Id. Even after the 5 Postal Service updated her qualifications and placed her on the Promotion Eligibility Register on 6 October 6, 2009, Ms. Lin asserts that it wrongfully denied her the April 2, 2009 MPE 9 vacancy 7 when it awarded that position on October 10, 2009 to a man who was not on the register. Id. at 11, ¶ 8 42. prove that (1) she belongs to a protected class, (2) she was qualified for the job (or promotion or 11 other benefit at issue), (3) she was subject to an adverse employment action, and (4) similarly- 12 For the Northern District of California To establish a prima facie case of employment discrimination under Title VII, Ms. Lin must 10 UNITED STATES DISTRICT COURT 9 situated individuals outside her protected class were treated more favorably. See Leong, 347 F.3d at 13 1124 (citing McDonnell Douglas Corp. v. Green, 411 U.S. 792, 802 (1973)). Though heightened 14 pleading standards are not mandated in Title VII cases, Ms. Lin must plead sufficient facts to state 15 the elements of a prima facie case of discrimination. Johnson v. Riverside Healthcare System, LP, 16 534 F.3d 1116, 1122 (9th Cir. 2008) (citing Williams v. Boeing Co., 517 F.3d 1120, 1130 (9th Cir. 17 2008)). 18 19 i. Claims One, Two, and Three Are Dismissed Without Prejudice Ms. Lin sufficiently pleaded facts for elements one, two, and three, but failed to plead enough 20 facts regarding the fourth element. She alleges that she is a member of a protected class: Asian 21 (race), Chinese (national origin), and female (sex). FAC, ECF No. 30 at 3, ¶ 7. She also sufficiently 22 alleges that she satisfied the eligibility criteria (meaning, the qualifications) for the promotions that 23 24 25 26 27 28 4 Ms. Lin does not allege or argue that the Postal Service wrongfully denied her the April 17, 2009 promotion. FAC, ECF No. 30 at 11, ¶ 43; Opposition, ECF No. 37. She also affirmed in her opposition that she is not asserting a retaliation claim based on the Postal Service’s failure to abide by the terms of the 2008 settlement agreement, any claims based on 42 U.S.C. § 1983, or a breach of the collective bargaining agreement. Opposition, ECCF No. 37 at 17-19. Her counsel confirmed at oral argument that facts about these areas were alleged in the complaint to show either context, knowledge, or procedures. C 10-03757 LB ORDER DISMISSING PLAINTIFF’S FAC 15 1 should have been reflected in the Promotional Eligibility Register because she alleges that the Postal 2 Service updated her qualifications in late August 2009 and actually placed her on the Promotion 3 Eligibility Register on October 6, 2009. Id. at 7, ¶ 25, 10, ¶ 40. Ms. Lin also sufficiently alleged 4 that she was subject to an adverse employment action because the Postal Service denied her the 5 April 2, 2009 promotion on October 10, 2009. Id. at 11, ¶ 42; Breiner v. Nevada Dept. of 6 Corrections, 610 F.3d 1202, 1208 (9th Cir. 2010) (denial of a promotion constitutes an adverse 7 employment action). 8 9 As to the fourth element, however, Ms. Lin did not sufficiently allege facts that the Postal Service treated a similarly-situated individual outside of her protected class more favorably. Though 2009 promotion, is a man, she fails to allege any facts that suggest that he was not Asian and was not 12 For the Northern District of California Ms. Lin sufficiently pleads facts to suggest that Mr. Mata, the individual who received the April 2, 11 UNITED STATES DISTRICT COURT 10 Chinese. She argues in her opposition that Mr. Mata is a “non-Chinese” postal worker, but she fails 13 to allege any facts in her first amended complaint regarding Mr. Mata’s race or national origin. 14 Opposition, ECF No. 37 at 16. 15 Ms. Lin also fails to adequately allege facts that show that Mr. Mata was similarly-situated or 16 not qualified to receive the April 2, 2009 vacancy. While she claims that Mr. Mata was not qualified 17 to receive the April 2, 2009 promotion because he was not on the Promotion Eligibility Register, she 18 does not plead any facts as to why his absence on the register means that he was similarly-situated or 19 not qualified to receive the job. FAC, ECF No. 30 at 11, ¶ 43. As set forth in the facts section, the 20 Collective Bargaining Agreement (incorporated in the complaint) sets forth different procedures for 21 filling vacancies. It requires the Postal Service to first offer the vacancy to the most senior 22 employees on the preferred assignment register, then to part-time employees who have submitted a 23 preferred assignment form for a full-time position, then to more qualified individuals who requested 24 assignment to a lower level position. Id. at 30-2 at 4-5, § 5, Exh. B. Only after the Postal Service is 25 unable to fill the vacancy using these three methods can it offer the job to an individual on the 26 27 28 C 10-03757 LB ORDER DISMISSING PLAINTIFF’S FAC 16 1 promotion eligibility register.5 Id. Ms. Lin fails to allege that Mr. Mata was not (1) on the preferred 2 assignment register, (2) a part-time employee who submitted a preferred assignment form for a full- 3 time position, or (3) a more qualified individual who requested assignment to a lower-level position 4 – all situations that would have given Mr. Mata preference for the April 2, 2009 vacancy over Ms. 5 Lin. Id. Put another way, simply because Mr. Mata was not on the Promotion Eligibility Register 6 does not mean that he was less qualified or similarly-situated to Ms. Lin. Accordingly, the court 7 dismisses Ms. Lin’s first, second, and third claims without prejudice. Because it may be possible for 8 Ms. Lin to cure this deficiency, the court grants her leave to amend.6 9 10 As noted above, the court also holds that Ms. Lin sufficiently pleaded facts that Mr. Mata is a man, but she might want to allege that more specifically in any amended complaint. 2. Claim Four: Retaliation in Violation of Title VII 12 For the Northern District of California UNITED STATES DISTRICT COURT 11 Ms. Lin alleges that the Postal Service retaliated against her in 2009 for her 2008 EEO activity 13 14 15 16 17 18 19 20 21 22 23 5 The Collective Bargaining Agreement states, “Where a vacant or newly established duty assignment cannot be filled from an established preferred assignment register, and the assignment is to be filled by means of a promotion, selection shall be made from the appropriate eligibility register.” FAC, ECF No. 30-2 at 4, § 5, Exh. B (emphasis added). 6 This argument was raised in somewhat conclusory fashion by the government. See, e.g., Motion to Dismiss, ECF No. 35 at 22-23; Reply, ECF No. 44 at 10. At oral argument, the government stated even more generally that the collective bargaining agreement and the employee handbook attached to the complaint show that other procedures apply to filling vacancies, and basically suggested that Ms. Lin would have to plead sufficient facts about all of these (unidentified) procedures to establish for pleading purposes that the Postal Service treated a similarly-situated person outside of her protected class more favorably. The court declines to undertake such a broad analysis of the attached documents itself. Its ruling here – requiring pleading of additional facts to show that Mr. Mata was not eligible under one of the three categories that precedes hiring from the Promotion Eligibility Register – is required because those categories apply before hiring from the Promotion Eligibility Register. 24 25 26 27 28 The Postal Service also suggests that the court should dismiss Ms. Lin’s claims with prejudice because “Plaintiff will not be able to establish that Willie Mata is less qualified than her or similarly situated to her, when, as Plaintiff likely knows, Willie Mata was on a PAR, and a GS-9, far more senior to her.” Motion to Dismiss, ECF No. 35 at 23 n.3. While those facts may be true, this is not a summary judgment hearing but instead is a 12(b)(6) hearing where the court takes as true all allegations in the complaint and cannot consider facts outside the complaint. C 10-03757 LB ORDER DISMISSING PLAINTIFF’S FAC 17 1 by not updating her promotion eligibility and therefore denying her promotions. FAC, ECF No. 30 2 at 11, ¶ 44. 3 To establish a prima facie case of retaliation under Title VII, Ms. Lin must prove that (1) she 4 engaged in a protected activity, (2) she suffered an adverse employment decision, and (3) there was 5 a causal link between the protected activity and the adverse employment decision. See Villiarimo v. 6 Aloha Island Air, Inc., 281 F.3d 1054, 1064 (9th Cir. 2002). 7 As to element one, an employee’s formal or informal complaints to a supervisor regarding 8 unlawful discrimination is “protected activity,” and it is immaterial whether the complaints are well- 9 founded. See Passantino v. Johnson & Johnson Consumer Products, Inc., 212 F.3d 493, 506-07 (9th 10 As to element two, for purposes of a retaliation claim, a “materially adverse employment 12 For the Northern District of California UNITED STATES DISTRICT COURT 11 Cir. 2000). decision” is one that would dissuade a reasonable worker from exercising protected rights, which is 13 a lower standard than that required for a Title VII discrimination claim. See Burlington Northern & 14 Santa Fe Ry. Co., 548 U.S. 53, 68 (2006); Michael v. Caterpillar Fin’l Servs. Corp., 496 F.3d at 15 595. Whether an employer’s action is materially adverse depends on the circumstances. For 16 example, a change in a work schedule may matter little to some employees and materially to a parent 17 with school-aged children. See Burlington Northern, 548 U.S. at 69. A supervisor’s failure to invite 18 a subordinate to lunch may be petty and trivial, or it might be an exclusion from a weekly training 19 lunch that contributes to the employee’s professional development. See id. What matters is whether 20 it might dissuade a reasonable employee from complaining about discrimination. See id. 21 As to element three, a plaintiff may establish a causal link between the protected activity and the 22 adverse action by circumstantial knowledge, including the employer’s knowledge of the protected 23 activity and a proximity in time between the protected action and the adverse employment act. See 24 Jordan v. Clark, 847 F.2d 1368, 1376 (9th Cir. 1988); Passantino, 212 F.3d at 507 (“when adverse 25 decisions are taken within a reasonable period of time after complaints of discrimination are made, 26 retaliatory intent may be inferred”). 27 Here, Ms. Lin pleaded sufficient facts that she engaged in a protected activity: she initiated a 28 claim with the EEO in 2008 that resulted in a settlement agreement. FAC, ECF No. 30 at 6, ¶¶ 19C 10-03757 LB ORDER DISMISSING PLAINTIFF’S FAC 18 1 20. She also adequately pleaded that she suffered a materially adverse employment decision: the 2 Postal Service denied her a promotion. Id. at 11, ¶ 42; Boone v. Goldin, 178 F.3d 253, 256-57 (9th 3 Cir. 1999) (denying or materially delaying a promotion is a materially-adverse employment 4 decision). 5 Ms. Lin did not plead sufficient facts regarding the causal link between the adverse employment the Postal Service allegedly denied her the April 2, 2009 promotion nearly a year and a half later on 8 October 10, 2009. FAC, ECF No. 30 at 6, ¶ 20, 11, ¶ 42. This year-and-a-half gap between the 9 protected activity and the alleged retaliatory action is too attenuated to infer a retaliatory intent by 10 itself, and Ms. Lin provides no other facts to support a causal link. See, e.g., Clark Cnty. Sch. Dist. 11 v. Breeden, 532 U.S. 268, 273 (2001) (a 20 month delay); Villiarimo, 281 F.3d at 1065 (a nearly 18- 12 For the Northern District of California action and the protected activity. The parties settled the 2008 EEO complaint on May 6, 2008, and 7 UNITED STATES DISTRICT COURT 6 month delay); Manatt v. Bank of America, N.A., 339 F.3d 792, 802 (9th Cir. 2003) (9-month delay). 13 She claims in her opposition that Ed Cuadra, the individual who signed the 2008 settlement 14 agreement, “presumably” decided to deny Ms. Lin the April 2, 2009 promotion and that therefore, 15 the court should infer retaliatory intent. Opposition, ECF No. 37 at 17. She fails, however, to allege 16 these facts in her first amended complaint. As a result, Ms. Lin’s retaliation claim is denied without 17 prejudice. Because it may be possible for Ms. Lin to cure this deficiency, the court grants her leave 18 to amend. 19 VI. CONCLUSION 20 The Postal Service’s motion to dismiss for lack of subject-matter jurisdiction is DENIED. 21 Ms. Lin’s first amended complaint is DISMISSED WITHOUT PREJUDICE. The court 22 grants Ms. Lin leave to amend. She shall file a second amended complaint no later than May 23, 23 2011. 24 This disposes of ECF No. 35. 25 IT IS SO ORDERED. 26 Dated: April 21, 2011 _______________________________ LAUREL BEELER United States Magistrate Judge 27 28 C 10-03757 LB ORDER DISMISSING PLAINTIFF’S FAC 19

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