Grier v. Secretary of Army, 85-8050

• Decision Date: 19 September 1986
• Docket Number: No. 85-8050,85-8050
• Citation: 799 F.2d 721
• Parties: 50 Fair Empl.Prac.Cas. 1378, 41 Empl. Prac. Dec. P 36,667 Miriam GRIER, Plaintiff-Appellant, v. SECRETARY OF the ARMY; Headquarters, United States Army Forces Command, Fort McPherson, Georgia; Adjutant General, Administrative Services, United States Army Forces Command; Officer in Charge, Mail and Distribution Classified Section, United States Army Forces Command; and Chief, Civilian Personnel, United States Army Forces Command, Defendants-Appellees.
• Court: U.S. Court of Appeals — Eleventh Circuit

Page 721

799 F.2d 721

50 Fair Empl.Prac.Cas. 1378,

41 Empl. Prac. Dec. P 36,667

Miriam GRIER, Plaintiff-Appellant, v. SECRETARY OF the ARMY; Headquarters, United States Army

Forces Command, Fort McPherson, Georgia; Adjutant General,

Administrative Services, United States Army Forces Command;

Officer in Charge, Mail and Distribution Classified Section,

United States Army Forces Command; and Chief, Civilian

Personnel, United States Army Forces Command, Defendants-Appellees.

No. 85-8050.

United States Court of Appeals, Eleventh Circuit.

Sept. 19, 1986.

J.T. Hollin, Jr., Atlanta, Ga., for plaintiff-appellant.

Myles Eastwood, Asst. U.S. Atty., Atlanta, Ga., for defendants-appellees.

Before RONEY, Chief Judge, CLARK, Circuit Judge and FAIRCHILD ^*, Senior Circuit Judge.

PER CURIAM:

Plaintiff appeals from a judgment in favor of the defendants pursuant to a motion for summary judgment, on her claims of racial discrimination and denial of due process regarding her employment with the United States Army. For the reasons below, we affirm the judgment as to plaintiff's due process claim, and modify it so as to dismiss without prejudice plaintiff's racial discrimination claim.

On January 25, 1982, plaintiff, a black female, received a temporary appointment, scheduled to expire September 29, 1982, as a Mail Clerk at the United States Army Forces Command, Fort McPherson, Georgia. The personnel office at Fort McPherson proceeded to search for a permanent Mail Clerk in either April or May 1982. Pursuant to an Army regulation providing for non-competitive selection, ¹ two referral lists were issued to the selecting officials. The first list contained three candidates, including plaintiff. According to the uncontroverted affidavit of the Civilian Personnel Officer, additional names were requested, no selection having been made from the first list. The Personnel Office then issued a second list of eight candidates, in addition to those on the first list. On June 29, 1982, an eligible white female was selected from the second list for the permanent position.

The Chief Selecting Officer stated that the selectee was hired because of "[e]xperience in mail handling, basic correspondence, and no physical disabilities as far as heavy lifting, prolong [sic] standing." There is no formal record of why plaintiff was not chosen, as Army regulations do not require the selecting official to state reasons for rejection. See AR 690-300, ch. 335.1, requirement 4. While no performance deficiencies were noted in plaintiff's personnel file, there was deposition testimony that plaintiff's work was not satisfactory.

On July 12, 1982, plaintiff filed a grievance by letter with the proper Army personnel office, which was subsequently supplemented by her and by her attorney. Plaintiff alleged that Army regulations were not followed, and that a less qualified person was selected; no claim of racial discrimination was made at that time. Her grievance was referred to the United States Army Civilian Appellate Review Agency, Southeast Region. On December 16, 1982, the Examiner denied the relief requested, finding that the noncompetitive referral procedure was authorized by the governing regulations; that the selectee met the appropriate qualifications requirements and was eligible for noncompetitive selection; that plaintiff was interviewed and received full consideration for the position; that there was no requirement to issue a vacancy announcement under noncompetitive procedures; and that plaintiff was not adversely affected by being asked to resign, as the selection had already been made. This decision became final on February 4, 1983. On March 4, 1983, plaintiff filed the instant action.

I

The district court properly treated plaintiff's allegation that she was "adversely affected because of her race" as a claim brought pursuant to Title VII of the Civil Rights Act of 1964, 42 U.S.C. 2000 et seq., ² and entered judgment in favor of the Secretary of the Army, based on plaintiff's failure to exhaust her administrative remedies.

Before an aggrieved employee may seek relief through the filing of a civil action in federal court, Sec. 717(c) requires that he or she must first seek relief in the agency that has allegedly engaged in discrimination. Brown v. GSA, 425 U.S. at 832, 96 S.Ct. at 1967-68. This requirement is not a technicality; "[r]ather, it is part and parcel of the congressional design to vest in the federal agencies and officials engaged in hiring and promoting personnel 'primary responsibility' for maintaining nondiscrimination in employment." Kizas v. Webster, 707 F.2d 524, 544 (D.C.Cir.1983).

It is indisputed that plaintiff has never filed a charge of racial discrimination with the EEO Office, or any other office or personnel, at Fort McPherson. Her grievance related solely to questions of whether she was more qualified than the person selected and whether Army personnel complied with applicable regulations. The first mention of an improper racial basis for the hiring of the selectee is in her complaint filed in this action. Thus, the "complaint of discrimination" required by Sec. 717(c) was never filed, and plaintiff's complaint must be dismissed. See Scott v. Perry, 569 F.2d 1064, 1065-66 (9th Cir.1978) (no indication that racial discrimination ever alleged prior to suit); cf. Griffin v. Carlin, 755 F.2d 1516, 1522 (11th Cir.1985) (administrative charge that blacks were denied training and opportunity for advancement, reasonably read, includes challenge to written tests); Mangiapane v. Adams, 661 F.2d 1388, 1390-91 (D.C.Cir.1981) (charge of failure to promote based on gender need not specify promotions denied).

Plaintiff argues that she should be excused from the requirement that any charge of racial discrimination be filed with the agency because she was counseled not to file such a charge by an Army personnel officer and the Atlanta Office of the EEOC. However, even if her version of events is assumed to be true, such equitable considerations are relevant to whether the timeliness requirement for filing a charge should be subject to equitable tolling, not whether a charge must ever be filed at all; it is her failure to exhaust or even begin her administrative remedies that bars her suit. Siegel v. Kreps, 654 F.2d 773, 777 (D.C.Cir.1981). While the timeliness requirement does not erect a jurisdictional prerequisite to suit, Zipes v. Trans World Airlines, 455 U.S. 385, 397, 102 S.Ct. 1127, 1134, 71 L.Ed.2d 234 (1982), this does not "suggest[ ] that parties complaining of federal employment discrimination in violation of Title VII should ever be waived into court without filing any initial charge with the agency whose practice is challenged." Kizas v. Webster, 707 F.2d at 545-46 (emphasis in the original).

Plaintiff may still file an untimely charge and make her initial argument for equitable tolling in that forum. Of course, we express no opinion as to whether plaintiff can demonstrate facts warranting tolling. See Ross v. United States Postal Service, 696 F.2d 720, 722 (9th Cir.1983) ("When there is a failure to exhaust because of lack of notice, the complainant may still file an untimely charge and allow the agency to decide whether the lack of notice excuses untimeliness. In this way, administrative remedies may still be exhausted."); cf. Jarrell v. United States Post Office, 753 F.2d 1088, 1091-92 (D.C.Cir.1985) (issue of whether plaintiff justifiably relied on advice of EEO officer in failing to file timely charge remanded to district court to consider plaintiff's equitable argument, rejected by defendant's EEO office, that late filing should be excused). Therefore, plaintiff's Title VII claim should have been dismissed without prejudice.

II

Plaintiff also claims that she was denied due process of law by the selection of someone allegedly "less qualified," and by the failure to follow Army regulations. The district court properly treated this as a claim pursuant to the Administrative Procedure Act ("APA"), 5 U.S.C. 701 et seq., ³ and granted summary judgment for the defendants on that basis.

Although plaintiff has never clearly set forth her APA claim, it appears that she seeks review under Sec. 706(2)(A) and (D). ⁴ Her unsupported contention that de novo review is warranted under Sec. 706(2)(F) must be rejected, because the decision to hire someone else was neither "adjudicatory in nature" nor were the "agency fact finding procedures [ ] inadequate." Citizens to Preserve Overton Park, Inc. v. Volpe, 401 U.S. 402, 415, 91 S.Ct. 814, 823, 28 L.Ed.2d 136 (1971); cf. Porter v. Califano, 592 F.2d 770, 782 (5th Cir.1979) (suspension without pay adjudicatory, and accused officials intimately involved with factfinding).

Upon review of the administrative record, plaintiff's claim under Sec. 706(2)(A) amounts to nothing more than her belief that she, not the selectee, was the best qualified person for the job. She has presented no evidence that the decision to hire an eligible person who possessed the minimum qualifications was "arbitrary, capricious, an abuse of discretion, or otherwise not in accordance with law." All...