Richard Cullom v. Jesse Brown, Secretary, Department of Veterans Affairs

209 F.3d 1035, 2000 U.S. App. LEXIS 7056, 77 Empl. Prac. Dec. (CCH) 46,380, 83 Fair Empl. Prac. Cas. (BNA) 1515, 2000 WL 424249
CourtCourt of Appeals for the Seventh Circuit
DecidedApril 20, 2000
Docket99-1178
StatusPublished
Cited by30 cases

This text of 209 F.3d 1035 (Richard Cullom v. Jesse Brown, Secretary, Department of Veterans Affairs) is published on Counsel Stack Legal Research, covering Court of Appeals for the Seventh Circuit primary law. Counsel Stack provides free access to over 12 million legal documents including statutes, case law, regulations, and constitutions.

Bluebook
Richard Cullom v. Jesse Brown, Secretary, Department of Veterans Affairs, 209 F.3d 1035, 2000 U.S. App. LEXIS 7056, 77 Empl. Prac. Dec. (CCH) 46,380, 83 Fair Empl. Prac. Cas. (BNA) 1515, 2000 WL 424249 (7th Cir. 2000).

Opinion

MANION, Circuit Judge.

After what appeared to be a successful period of employment as a civilian Navy employee, Richard Cullom accepted a position with the Hines VA Hospital as a staffing specialist. But he soon became dissatisfied with his employment situation and over a period of time he filed several EEO complaints against the Veterans Administration (VA) for discrimination. In the hope of avoiding future complaints, superiors at the hospital ordered Cullom’s immediate supervisor to overrate him on his performance evaluations. This did not work. Cullom ultimately sued the VA for race and employment discrimination, this time claiming that by overrating him, it made him ineligible for a remedial program that supposedly would have accelerated his advancement to a higher grade. The district court noted that “the case presents the novel question of whether Plaintiff was retaliated against by receiving a favorable work evaluation while being refused promotion. Alternatively, the case raises the question of whether Plaintiff was retaliated against by reason of Defendant’s failure to provide Plaintiff with an honest evaluation and the remedial benefits to which he was then entitled.” Cullom v. Brown, 27 F.Supp.2d 1089, 1090-91 (N.D.Ill.1998). The district court concluded that the unwarranted favorable ratings constituted retaliation in violation of Title VII, and awarded Cullom $1500 in damages plus attorney’s fees and costs. We conclude that giving Cullom a rating higher than he deserved may have been a poor and even dishonest policy, but it was not unlawful retaliation. We therefore reverse.

I. Facts

Richard Cullom is a 55-year-old black man and an honorably discharged veteran. Prior to coming to the VA, he had jobs in both the public and private sectors (including one stint as an EEO specialist for the United States Army). Immediately before joining the VA, Cullom worked as a civilian for the Navy, where he was eventually promoted to the GS-11 level. While at the Navy, Cullom was rated “fully successful” at both the GS-9 and GS-11 levels. 1

As the district court noted, Cullom has had a “rocky employment history with the VA.” Id. at 1091. It hired him in September 1990 as a GS-9 staffing specialist on a temporary appointment (not to exceed one year). Six months into this assignment, his immediate supervisor, a black female, thought Cullom’s work was unacceptable and fired him effective March 21, 1991. Cullom filed an EEO complaint (his first), alleging that his supervisor had discriminated against him on the basis of his sex by depriving him of the proper training. The VA settled his complaint in October 1992. Under the settlement, the VA reinstated Cullom as a full-time GS-9 personnel staffing specialist, subject to a six-month probationary period. Significantly, the settlement “set forth written performance standards” for him. Id.

Although Cullom’s GS-9 position, even with his probationary status, had the potential for promotion to GS-11, Cullom did not perform well. His immediate supervisor, Dean Lapcewich, was frequently dis *1038 pleased with his work. When Cullom requested a series of training opportunities to assist him in his new position, Lapce-wich established a comprehensive training program for Cullom and authorized him to attend training courses. He also assigned Cullom a senior staffing specialist who could mentor him and provide him with on-the-job training. But despite these efforts, Cullom continued to perform poorly at the GS-9 level.

The VA has five ratings for employee performance: (1) outstanding; (2) highly successful; (3) fully successful; (4) minimally successful; and (5) unacceptable. Under the YA’s Merit Promotion Plan (Merit Plan), promotion is not guaranteed. An employee must achieve a rating of at least “fully successful” to be eligible for promotion and must be in his present position for at least one year. But simply being eligible does not make advancement a sure thing. The employee must also demonstrate the ability to perform the duties of the next level. 2

Lapcewich wanted to rate Cullom “minimally successful” because he felt his work contained significant and numerous errors, even after his substantial formal and informal training. Because of Cullom’s probationary status, a “minimally successful” rating would most likely have resulted in his termination. At a minimum, it would have caused Cullom to be placed in a Performance Improvement Program, or “PIP.” This is, in essence, a remedial program for employees who are not performing up to standards (those who receive a performance rating below “fully successful”). It affords sub-par employees the opportunity to improve or develop skills. But this “opportunity” is double-edged. Placement in a PIP also places the employee on probation, subject to termination. At oral argument, the VA pointed out that for many employees it is the last stop before dismissal.

Fearing another EEO complaint if Cul-lom were to receive the lower rating, Lap-cewich’s supervisor — who was required to sign off on employee evaluations — rejected Lapcewich’s proposed “minimally successful” recommendation. He instead directed Lapcewich to overrate Cullom as “fully successful.” Lapcewich rated Cullom accordingly and did not advise him of the “minimally successful” level of performance he was really exhibiting at the GS-9 level. Lapcewich did, however, meet with Cullom to discuss performance standards, although Cullom refused to sign a form indicating that he had received the standards.

The strategy of appeasement, if it can be called a strategy, did not work. In September 1993, Cullom filed a second EEO complaint. He alleged that Lapcewich and other VA managers had retaliated against him for his prior EEO complaint by not promoting him to the level that he had held in the Navy, GS-11. He alleged Lap-cewich knew about his Navy background, yet “remained completely driven to make me compete again for the grade I previously had.”

In December, while Cullom’s second EEO complaint was pending, Lapcewich gave Cullom his mid-yegr performance review. Ás before, Lapcewich thought Cul-lom was not performing at the GS-9 level. But again, aware of Cullom’s complaint, higher ■ supervisors directed Lapcewich to overrate him as “fully successful.” Lapce-wich did so, rather than place Cullom in a PIP on probationary status, as a lower rating would have required. Again, Lap-cewich did not inform Cullom of his true level of performance. But he did tell him that he was making too many mistakes, that his work required too much review, *1039 and that he took too long on a relatively minor project.

In April 1994, the VA settled Cullom’s second complaint by agreeing to place him in a nine-month, off-site program designed to train “personnel interns” who were usually GS-7s. Placing Cullom in this program was the idea of Cullom’s EEO investigator who concluded, after reviewing Cullom’s personnel file, that the program would provide Cullom with basic personnel skills (skills Cullom had contended that he did not possess due to inadequate training). The settlement, however, did not mention the possibility of promotion to GS-11.

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209 F.3d 1035, 2000 U.S. App. LEXIS 7056, 77 Empl. Prac. Dec. (CCH) 46,380, 83 Fair Empl. Prac. Cas. (BNA) 1515, 2000 WL 424249, Counsel Stack Legal Research, https://law.counselstack.com/opinion/richard-cullom-v-jesse-brown-secretary-department-of-veterans-affairs-ca7-2000.