Webster v. Modly

UNITED STATES DISTRICT COURT
FOR THE DISTRICT OF COLUMBIA
KATRINA L. WEBSTER,
Plaintiff,
v.
No. 20-cv-0610 (DLF)
KENNETH J. BRAITHWAITE, Secretary of
the Navy,
Defendant.
MEMORANDUM OPINION
Katrina L. Webster, acting pro se, brings this action against Kenneth J. Braithwaite in his
official capacity as the Secretary of the Navy.1 She asserts various claims under Title VII. 42
U.S.C. § 2000e, et seq. Before the Court is the Secretary’s Motion to Dismiss. Dkt. 12. For the
reasons that follow, the Court will grant the motion.
I. BACKGROUND
Webster works as a secretary for Strategic Systems Programs, a division within the
Department of the Navy. See Compl. ¶¶ 8–9, 13, 18, Dkt. 1. On May 20, 2017, Webster filed an
equal employment opportunity (EEO) complaint alleging that she had been subjected to
discrimination on the basis of race and in retaliation for her previous EEO activity when her
supervisor, Captain Patrick Croley, allowed a contract employee to subject Webster to a hostile
working environment. See id. ¶¶ 12, 14. Specifically, Webster alleged that one of the Navy’s
contract employees referred to her as “trouble,” cautioned another employee that “[i]f you see
1
When this suit began, Thomas Modly was the Acting Secretary of the Navy. When Kenneth J.
Braithwaite became the Secretary, he was automatically substituted as the proper defendant. See
Fed. R. Civ. P. 25(d).
[Webster], turn the other way,” told Webster that he had warned her new supervisor to “watch
out” for her, and attempted to remove a printer from her desk. See id. ¶¶ 14–15.
After completing an investigation into Webster’s claims, the Navy issued a final decision
on January 8, 2018, concluding that Webster had “failed to prove that the [Navy] subjected her to
discrimination as alleged.” Compl. Ex. A (“EEOC Decision”) at 2–3, Dkt. 1-2. On February 6,
2018, Webster appealed that decision to the Equal Employment Opportunity Commission
(EEOC) pursuant to 29 C.F.R. § 1614.403(a). Id. at 2.
On February 14, 2020, the EEOC upheld the Navy’s determination that Webster had not
been subjected to a hostile work environment. See id. at 4. It determined that Webster had
“failed to demonstrate a causal link between the alleged harassment and her protected
characteristics,” see id. at 4 n.2, and thus, it declined to consider whether the alleged working
conditions were sufficiently severe or pervasive to constitute a hostile work environment, see id.The EEOC did find, however, that Croley had wrongfully disclosed Webster’s prior EEO
activity to Tarik Yameen, a Navy employee who served as the Fire Control and Guidance Branch
Deputy. See Compl. ¶ 12. While Webster had not raised this claim administratively, see id.
¶ 25; see also EEOC Decision at 2, 6, the EEOC concluded that Croley’s disclosure, “on its
face,” constituted unlawful retaliation and determined that “compensatory damages may be
awarded should [Webster] be able to show she suffered a compensable harm as a result of the
disclosure.” Id. at 6–7. Accordingly, the EEOC ordered the Navy to undertake a supplemental
investigation with respect to this potential claim within ninety days. See id. at 7, 13–14.
In addition, the EEOC reviewed the Navy’s antiharassment policy “in its entirety,” see id.
at 7, and found that it did not fully comply with Management Directive 715—the policy
guidance that the EEOC “provides to federal agencies for their use in establishing and
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maintaining effective” EEO programs—for two reasons. See id. at 7–8, 12–13. First, the Navy’s
antiharassment policy did not “set out with specificity the complaint procedures by which an
employee may raise a claim of harassment, including time frames for the processing of . . .
harassment allegations as well as naming officials who can receive such claims.” Id. at 12.
Second, the policy did “not provide notice of the requisite confidentiality accorded to the filing
of claims of harassment.” Id. The EEOC thus ordered the Navy “to seek technical assistance
from the Commission’s Office of Federal Operations, Federal Sector Programs, and to correct
the deficiencies” in the Navy’s antiharassment policy that it had identified. See id. at 13.
The written EEOC decision advised Webster that she had thirty days to file a request for
the Commission to reconsider its decision. See id. at 15 (citing 29 C.F.R. § 1614.405). It also
informed Webster that she had the right to file a civil action within ninety days, see id. at 16, but
warned her that doing so would terminate the administrative processing of her EEO complaint,
see id.Webster filed this action on March 2, 2020. See Compl. Thereafter, the Secretary filed
the instant motion to dismiss, see Mot. to Dismiss, Dkt. 12, which is fully briefed.
II. LEGAL STANDARDS
Rule 12(b)(6) of the Federal Rules of Civil Procedure allows a defendant to move to
dismiss the complaint for failure to state a claim upon which relief can be granted. Fed. R. Civ.
P. 12(b)(6). To survive a Rule 12(b)(6) motion, a complaint must contain factual matter
sufficient to “state a claim to relief that is plausible on its face.” Bell Atl. Corp. v. Twombly, 550
U.S. 544, 570 (2007). A facially plausible claim is one that “allows the court to draw the
reasonable inference that the defendant is liable for the misconduct alleged.” Iqbal, 556 U.S. at
678. This standard does not amount to a specific probability requirement, but it does require
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“more than a sheer possibility that a defendant has acted unlawfully.” Id.; see also Twombly,
550 U.S. at 557 (“Factual allegations must be enough to raise a right to relief above the
speculative level.”). A complaint need not contain “detailed factual allegations,” but alleging
facts that are “merely consistent with a defendant’s liability . . . stops short of the line between
possibility and plausibility.” Iqbal, 556 U.S. at 678 (internal quotation marks omitted).
Well-pleaded factual allegations are “entitled to [an] assumption of truth,” id. at 679, and
the court construes the complaint “in favor of the plaintiff, who must be granted the benefit of all
inferences that can be derived from the facts alleged,” Hettinga v. United States, 677 F.3d 471,
476 (D.C. Cir. 2012) (internal quotation marks omitted). “A document filed pro se is to be
liberally construed, and a pro se complaint, however inartfully pleaded, must be held to less
stringent standards than formal pleadings drafted by lawyers.” Erickson v. Pardus, 551 U.S. 89,
94 (2007) (internal citation and quotation marks omitted). However, “the Supreme Court has
made clear that . . . there is no requirement ‘that procedural rules in ordinary civil litigation
should be interpreted so as to excuse mistakes by those who proceed without counsel.’” Jean-
Pierre v. Fed. Bureau of Prisons, 880 F. Supp. 2d 95, 100 (D.D.C. 2012) (citing McNeil v.
United States, 508 U.S. 106, 113 (1993)).
Although a pro se complaint is generally entitled to liberal construction, see Washington
v. Geren, 675 F. Supp. 2d 26, 31 (D.D.C. 2009), the assumption of truth does not apply to a
“legal conclusion couched as a factual allegation,” Iqbal, 556 U.S. at 678 (internal quotation
marks omitted). An “unadorned, the defendant-unlawfully-harmed-me accusation” is not
credited; likewise, “[t]hreadbare recitals of the elements of a cause of action, supported by mere
conclusory statements, do not suffice.” Id.
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When deciding a Rule 12(b)(6) motion, the court may consider only the complaint itself,
documents attached to the complaint, documents incorporated by reference in the complaint, and
judicially noticeable materials. EEOC v. St. Francis Xavier Parochial Sch., 117 F.3d 621, 624
(D.C. Cir. 1997). A Rule 12(b)(6) dismissal “is a resolution on the merits and is ordinarily
prejudicial.” Okusami v. Psychiatric Inst. of Wash., Inc., 959 F.2d 1062, 1066 (D.C. Cir. 1992).
III. ANALYSIS
Although it is difficult to determine the precise nature of Webster’s claims,2 the
complaint includes two counts. See Compl. at 10–11. The first alleges that Webster “suffered
retaliatory action when she was not promoted in 21 plus years thus forcing her to remain in [a]
low grade Secretarial position for more than 21 years.” See id. ¶¶ 31–35. The second count
appears to assert a claim for damages based on the problems with the Navy’s antiharassment
policy that the EEOC identified in its February 14, 2020 decision. See id. ¶¶ 11, 30, 37.
A. Count I
In count I, Webster alleges that she “suffered retaliatory action when she was not
promoted . . . forcing her to remain in a low grade Secretarial position for more than 21 years.”
Id. ¶ 35. While additional details regarding this claim are sparse, the title of the count is
“Retaliation” and it specifically references four EEO complaints: EEO complaint numbers “11-
00030-02576; 12-00030-00282; 09-00030-00674; [and] 15-00030-01985.” See id. at 10.
2
For example, the complaint lists various “issues presented,” see, e.g., Compl. ¶¶ 10–12, but it
also asserts a retaliatory non-promotion claim that is seemingly unrelated to those issues, id. ¶¶
33–35. The complaint also does not clearly indicate which of the complaint’s “factual
allegations”—largely direct quotations from the EEOC’s February 14, 2020 decision—are
associated with each claim, see, e.g., id. ¶¶ 17–30. Although pro se complaints are construed
liberally and held to less stringent standards than pleadings drafted by lawyers, courts decline to
“parse every possible claim advanced” where a pro se plaintiff enumerates certain claims and the
complaint is otherwise “imprecise and difficult to comprehend.” See Canen v. Wells Fargo
Bank, N.A., 118 F. Supp. 3d 164, 166 (D.D.C. 2015).
5
Because Webster has already litigated claims associated with those EEO complaints in a separate
case before this Court, see Webster v. Spencer, No. 17-cv-1472, 2020 WL 2104231 (D.D.C. May
1, 2020), she is precluded from raising them here.
“The doctrine of res judicata prevents repetitious litigation involving the same causes of
action or the same issues.” I.A.M. Nat’l Pension Fund v. Indus. Gear Mfg. Co., 723 F.2d 944,
946 (D.C. Cir. 1983). “Under the claim preclusion aspect of res judicata, a final judgment on the
merits in a prior suit involving the same parties or their privies bars subsequent suits based on the
same cause of action.” Jacobsen v. Oliver, 201 F. Supp. 2d 93, 102 (D.C. Cir. 2002) (internal
quotation marks omitted). This “prevents parties from relitigating issues they raised or could
have raised in a prior action on the same claim.” Id. (internal quotation marks omitted). Claim
preclusion bars a plaintiff’s claims when “there has been prior litigation (1) involving the same
claims or cause of action, (2) between the same parties or their privies, and (3) there has been a
final, valid judgment on the merits, (4) by a court of competent jurisdiction.” Smalls v. United
States, 471 F.3d 186, 192 (D.C. Cir. 2006).
All four of those elements are satisfied here. In previous litigation, Webster filed various
Title VII claims against the Secretary, alleging that “multiple Navy employees ha[d] colluded . . .
to deny her promotions, bonuses, and awards,” in retaliation for her prior EEO activity, see
Webster, 2020 WL 2104231, at *1 (internal quotation marks omitted). This Court ruled in favor
of the Secretary on all claims, including those that were based on the same EEO complaints that
Webster relies upon here. See id. at *3 n.5, 13 (granting the Secretary’s motion for summary
judgment with respect to claims associated with complaint numbers 11-00030-02576, 12-00030-
00282, and 15-00030-01985); id. at *11 (dismissing claims associated with complaint number
09-00030-00674 for failure to timely exhaust administrative remedies); see also Ham v. District
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of Columbia, No. 16-cv-1720, 2017 WL 1628872, at *1–2 (D.D.C. May 1, 2017) (recognizing
dismissal of Title VII claims on exhaustion grounds constitutes a judgment on the merits under
the claim preclusion doctrine). Finally, Webster “does not contest that this Court is a court of
competent jurisdiction.” See Arpaio v. Robillard, 459 F. Supp. 3d 62, 67 (D.D.C. 2020). Thus,
her retaliation claim is “barred by claim preclusion,” id., and count I will be dismissed.3
B. Count II
Turning to count II—a claim titled “Harassment”—Webster appears to seek damages on
the grounds that the Navy’s antiharassment policy does not fully comply with EEOC
Management Directive 715, as outlined by the EEOC in its February 14, 2020 decision. See
Compl. ¶ 37. This count also fails to state a claim.
By regulation, the Navy is required to comply with EEOC directives, see 29 C.F.R.
§ 1614.102(e); see also 42 U.S.C. § 2000e-16(b), and the EEOC is charged with overseeing
compliance with EEO programs, see 29 C.F.R. § 1614.102(e); see also 42 U.S.C. § 2000e-16(b).
Title VII, however, does not vest Webster, or any other individual, with a cause of action to
enforce general EEOC policies; it instead is designed to make individuals whole for injuries that
flow from unlawful employment discrimination, see Albemarle Paper Co. v. Moody, 422 U.S.
405, 418 (1975), and “creates only a cause of action for discrimination,” Young v. Sullivan, 733
3
Even construing Webster’s complaint liberally, see Washington, 675 F. Supp. 2d at 31, Webster
does not state a retaliation claim with respect to Croley’s disclosure of Webster’s prior EEO
activity. Although Webster lists “reprisal” as one of the “issues presented,” see Compl. ¶ 12, and
quotes repeatedly from the EEOC’s analysis and findings with respect to Croley’s disclosure as
part of the complaint’s “background” or “factual allegations,” see, e.g., id. ¶¶ 17–29, 31, she
does not clearly enumerate such a claim in either of its two counts, see id. at 10–11. Nor does
she reference the relevant EEO complaint number in either count, though she does refer to
others. Compare id. (alleging that the claim numbers relevant to count I are: “11-00030-02576;
12-00030-00282; 09-00030-00674; [and] 15-00030-01985”), with EEOC Decision at 2 (listing
the relevant claim number as “17-00030-01579”).
7
F. Supp. 131, 132 (D.D.C. 1990), aff’d, 946 F.2d 1568 (D.C. Cir. 1991). Under Title VII, an
“employee’s claims must, at a minimum, relate to allegations of discrimination,” Achagzai v.
Broad. Bd. of Governors, 170 F. Supp. 3d 164, 175 (D.D.C. 2016), but Webster bases her
“Harassment” claim on generalized concerns regarding the Navy’s “handling of harassment
claims,” see Compl. ¶ 37; see also id. (alleging that the Navy’s antiharassment policy has been
deficient “for the duration of [Webster]’s employment”), as opposed to specific allegations of
discrimination that Webster personally experienced.4
To the extent that Webster’s complaint, liberally construed, alleges an independent
hostile work environment claim that is unrelated to the claims this Court addressed in Webster,
2020 WL 2104231, see supra Part I.A, it fails as a matter of law. Webster’s allegations—that a
contract employee referred to her as “trouble,” cautioned another employee that “[i]f you see
[Webster], turn the other way,” told Webster that he’d warned her new supervisor to “watch out”
for her, and attempted to remove a printer from her desk, see Compl. ¶ 15—are not “sufficiently
severe or pervasive to alter the conditions of the victim’s employment and create an abusive
working environment.” Baloch v. Kempthorne, 550 F.3d 1191, 1201 (D.C. Cir. 2008) (quoting
Harris v. Forklift Sys., Inc., 510 U.S. 17, 21 (1993)); see Nat’l R.R. Passenger Corp. v. Morgan,
536 U.S. 101, 116 (2002) (noting that the workplace must be permeated with “discriminatory
intimidation, ridicule, and insult”); see also Nurriddin v. Bolden, 674 F. Supp. 2d 64, 93–94
(D.D.C. 2009) (plaintiff failed to state a claim for relief where his claim was based, in part, on
allegations that management “unfairly reprimanded and criticized [the plaintiff], made
disparaging remarks about his EEO complaints, closely scrutinized his work, . . . and engaged in
4
For the reasons stated in note 3, supra, the Court does not construe Webster’s complaint to
allege a retaliation claim with respect to Croley’s disclosure of her prior EEO activity.
8
a series of discussions to end his eligibility for workers’ compensation and to terminate his
employment at NASA, before finally firing him” (internal quotation marks omitted)). Because
Webster does not allege a viable discrimination claim under Title VII, count II will be dismissed.
CONCLUSION
For the foregoing reasons, the Secretary’s motion to dismiss is granted. A separate order
consistent with this decision accompanies this memorandum opinion.
________________________
DABNEY L. FRIEDRICH
December 14, 2020 United States District Judge
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