Taylor, Jacqueline v. FDIC

United States Court of Appeals

FOR THE DISTRICT OF COLUMBIA CIRCUIT

Argued October 17, 1997 Decided December 30, 1997

No. 96-5267

Jacqueline P. Taylor, et al.,

Appellants

v.

Federal Deposit Insurance Corporation and

Ricki Helfer, Chairman, FDIC,

Appellees

Appeal from the United States District Court

for the District of Columbia

(No. 94cv01916)

Robert C. Seldon argued the cause for appellants. With

him on the brief was Joanne Royce.

Marina Utgoff Braswell, Assistant U.S. Attorney, argued

the cause for appellees. With her on the brief was Mary Lou

Leary, U.S. Attorney, and R. Craig Lawrence, Assistant U.S.

Attorney. John D. Bates, Assistant U.S. Attorney, entered

an appearance.

Before: Williams, Sentelle and Rogers, Circuit Judges.

Opinion for the Court filed by Circuit Judge Williams.

Concurring opinion filed by Circuit Judge Rogers.

Williams, Circuit Judge: Three former employees of the

Resolution Trust Corporation ("RTC") have sued the corpora-

tion, claiming that it retaliated against them for making

protected disclosures, in violation of the RTC Whistleblower

Act, 12 U.S.C. s 1441a(q), and the First Amendment. When

the RTC's statutory life expired, its statutory successor, the

Federal Deposit Insurance Corporation ("FDIC"), was substi-

tuted as defendant. On the FDIC's motion for dismissal or,

alternatively, for summary judgment, the district court dis-

missed the statutory counts of the complaint under Rule

12(b)(6) and entered summary judgment for the defendant on

the constitutional counts. This appeal followed. Except to

the extent that we vacate for want of jurisdiction, we affirm.

* * *

The Financial Institutions Reform, Recovery, and Enforce-

ment Act of 1989 created the RTC to manage and resolve

savings and loan cases. 12 U.S.C. s 1441a(b). With the

exception of its CEO, the RTC had no employees of its own;

it drew them instead from the FDIC. 12 U.S.C.

s 1441a(b)(8). In 1991, appellants Bruce Pederson and Jac-

queline Taylor were senior attorneys in the RTC's Western

Regional Office in Denver, attached to the Professional Lia-

bility Section ("PLS"), whose assigned task was to bring suits

against disloyal fiduciaries of failed savings and loans. The

third appellant, Juan Luis Burgos-Gandia, occupied a differ-

ent office (Dallas) and served in a different capacity. A

fourth ex-employee plaintiff, Richard Dunn, is not a party to

this appeal but will be conspicuous by his absence.

Pederson and Taylor's conflict with the RTC began in 1992,

when they took issue with a reorganization of their office

initiated in anticipation of the RTC's 1995 statutory sunset.

See 12 U.S.C. s 1441a(m)(1). In March of 1992, Pederson

circulated a memo to RTC management detailing his concerns

that the reorganization would hinder the PLS. Joint Appen-

dix ("J.A.") 786. To no avail; the reorganization went on as

planned and on May 11 of 1992, he and Taylor were selected

for return to the FDIC as part of the "put-back" program.1

In anticipation, they were assigned to a "Special Projects

Unit" which occupied a different Denver office and, according

to Pederson and Taylor, constituted a professional purgato-

ry--they were denied meaningful work, support staff, com-

puter links and supplies, and they were ostracized by former

colleagues afraid to be seen with them. J.A. 754-55.

Having achieved little with his internal memo, Pederson

changed forum and theme: During the summer and into the

fall of 1992, he and Taylor communicated with the General

Accounting Office ("GAO") and testified before the Senate

Banking Committee, alleging now that the reorganization was

concocted to protect well-connected malefactors by ham-

stringing their PLS pursuers. The GAO and RTC's Inspec-

tor General investigated; reports issued in the summer of

1993 found no illicit cronyism, but concluded that the reorga-

nization had been handled poorly.

The put-back program was canceled in July 1992, but

Pederson and Taylor remained in their Special Projects exile.

There, they contend, they were subject to continual retalia-

tion and discrimination until their May 1995 resignations

(which they characterize as constructive discharges).

Appellant Burgos was employed as a litigator in RTC's

Dallas office. His troubles started, he alleges, when he

notified his superiors of overbilling by outside counsel. In

response, RTC management allegedly assigned him to unde-

sirable cases, including some in which the RTC had already

defaulted. Burgos claims that in one of these cases, Crabb v.

Federal Home Loan Mortgage Corp., his superiors continued

__________

1 Appellants' briefs have not directed us to any evidence associat-

ing Taylor with any protest activity of hers, with or without

Pederson, before the May 1992 "put-backs." In the summary

judgment analysis we assume in her favor that such evidence exists.

to litigate despite a settlement, against the wishes of the

client (another branch of the RTC) and in order to conceal

their earlier default. Burgos urged his supervisors to aban-

don the litigation; when they did not heed him, he directed

outside counsel to withdraw a pending motion. Burgos's

superiors ordered him to rescind that instruction; when he

refused, they countermanded it themselves. Burgos then

filed an "Informative Motion" with the Crabb court, disclosing

the role of his superiors in the decision to continue litigation,

as well as his opposition to that decision.

The RTC notified Burgos that he would be fired for this

insubordination; in fact it simply placed him on paid adminis-

trative leave. Eventually informed that he would be demoted

two pay grades, he resigned on January 8, 1995. Like Taylor

and Pederson, Burgos characterizes his resignation as a

constructive discharge.

* * *

As we have said, the district court dismissed the statutory

claims of Pederson, Taylor and Burgos and granted the FDIC

summary judgment on the constitutional ones. But there was

another ex-employee, Dunn, who had joined the original

claim. (A fifth plaintiff, the Government Accountability Pro-

ject, was also a party to the district court litigation but has

withdrawn from the action.) Although the district court

dismissed the statutory claims of all plaintiffs, it initially

withheld judgment on Dunn's constitutional claims. To avoid

delay in their appeal, the three plaintiffs now before us filed a

Motion to Direct Entry of Final Judgment without waiting for

the disposition of Dunn's claims, arguing in the words of Rule

54(b) that there was "no just reason for delay." The court

then issued an order, observing that grant of the plaintiffs'

motion would be "just and proper," and ordering that the

clerk "be directed" to enter final judgment dismissing their

claims.

Rule 54(b) mediates between the sometimes antagonistic

goals of avoiding piecemeal appeals and giving parties timely

justice. See Curtiss-Wright Corp. v. General Elec. Co., 446

U.S. 1, 8 (1980). In a case involving multiple claims or

parties, it allows the district court to "direct the entry of a

final judgment as to one or more but fewer than all of the

claims or parties only upon an express determination that

there is no just reason for delay and upon an express

direction for the entry of judgment." Federal Rule of Civil

Procedure 54(b). The district court functions as a "dispatch-

er," determining in its sound discretion when a claim should

proceed on to appellate resolution, and when it should await

its fellows.2 Curtiss-Wright, 446 U.S at 8.

Here, the district court's order clearly gave the "express

direction" that the rule requires, but did it make the neces-

sary "express determination"? Given plaintiffs' invocation of

Rule 54(b)'s "no just reason for delay" formula in their motion

for entry of judgment under that rule, and the court's obvious

embrace of their position, it is as clear as these things get

that the court was convinced that the rule's criteria were

satisfied. Our circuit has never decided precisely what a

Rule 54(b) "express determination" requires. In Kelly v.

Lee's Old Fashioned Hamburgers, Inc., 908 F.2d 1218 (5th

Cir. 1990), a deeply split Fifth Circuit considered the issue en

banc, the majority finding it sufficient that the order and

related parts of the record revealed an "unmistakable intent

to enter a partial final judgment under Rule 54(b)." Id. at

1220. There was no need, said the majority, for the district

judge to "mechanically recite the words 'no just reason for

delay.' " Id. The majority, however, never really answered

the dissenters' point that "express," the Rule's modifier of

"determination," does not normally mean "implied." Id. at

1222; accord Granack v. Continental Casualty Co., 977 F.2d

1143, 1144-45 (7th Cir. 1992).

__________

2 The district court may not, of course, use Rule 54(b) to certify a

judgment that is not final by ordinary standards. See Curtiss-

Wright, 446 U.S. at 7-8; Tolson v. United States, 732 F.2d 998, 999

(D.C. Cir. 1984). It is clear that the dismissals and summary

judgments at issue here possess the requisite finality; they dispose

of all the claims of the appellants here.

Without some convincing answer to the Fifth Circuit dis-

senters' challenge, we do not know how our circuit could

reject their analysis. Certainly no such answer emerged at

oral argument. Were we to apply the dissenters' view, we

would be compelled to dismiss the appeal. Here that would

be clearly wasteful in the short run: the case would vanish

from the docket of a panel that has invested much time on the

merits. Our dismissal of this appeal, besides following the

rules as understood by the Fifth Circuit dissenters, would

have its pay-off in future cases, by inspiring closer district

court focus on the criteria of Rule 54(b) and by removing

ambiguities as to what they actually require.

In this case, happily, we need not bite this distasteful

bullet. The government raised the Rule 54(b) issue in a

motion for dismissal or summary affirmance before a motions

panel of this court. The motion was denied, see March 31,

1997 Order, Taylor v. FDIC (No. 96-5267), and that decision

is law of the case, preclusive for all matters decided expressly

or by necessary implication. See Crocker v. Piedmont Avia-

tion, 49 F.3d 735, 739 (D.C. Cir. 1995). The panel's decision

is binding, even though the adequacy of the determination is

a jurisdictional prerequisite. See LaShawn A. v. Barry, 87

F.3d 1389, 1394 (D.C. Cir. 1996) (en banc).

Law of the case, yes; law of the circuit, no. The order of

the motions panel went unpublished and will bind no panel of

this court in any other case. See D.C. Cir. Rule 28(c). Thus

the issue that so divided the Fifth Circuit remains unresolved

here. Cf. U.S. General, Inc. v. City of Joliet, 598 F.2d 1050,

1051 n.1 (7th Cir. 1979) ("Future Rule 54(b) certifications with

similar deficiencies may not be expected to survive in this

court.").

While on the subject of Rule 54(b), we note that some

appellate courts not only demand that the "express determi-

nation" be literally express but also expect the district court

to supply a statement of reasons. The lack of such a state-

ment may leave the appellate court uncertain whether the

district judge exercised its discretion soundly, or indeed

whether it exercised its discretion at all. See, e.g., United

States v. Ettrick Wood Products, Inc., 916 F.2d 1211, 1218

(7th Cir. 1990); Allis-Chalmers Corp. v. Philadelphia Elec-

tric Co., 521 F.2d 360, 364 (3d Cir. 1975). Its presence aids

both the circuit reviewer and the district decisionmaker. See

Arlinghaus v. Ritenour, 543 F.2d 461, 464 (2d Cir. 1976).

With a clear statement of reasons, "discretion carefully exer-

cised is rarely upset." Ettrick Wood, 916 F.2d at 1218.

As law of the case removes the Rule 54(b) problem from

our purview, we proceed to the merits.

* * *

Pederson and Taylor were employed in the same office and

allege largely the same pattern of disclosure and retaliation.

We examine their claims as a unit, then those of Burgos.

The district court dismissed Pederson and Taylor's statuto-

ry claims under Rule 12(b)(6). We review this disposition de

novo, Alicke v. MCI Communications Corp., 111 F.3d 909,

912 (D.C. Cir. 1997), and find that we cannot agree.

Dismissal under Rule 12(b)(6) is proper when, taking the

material allegations of the complaint as admitted, Jenkins v.

McKeithen, 395 U.S. 411, 421 (1969), and construing them in

plaintiffs' favor, Scheuer v. Rhodes, 416 U.S. 232, 236 (1974),

the court finds that the plaintiffs have failed to allege all the

material elements of their cause of action. See, e.g., Kowal v.

MCI Communications Corp., 16 F.3d 1271, 1276 (D.C. Cir.

1994).

Pederson and Taylor's statutory count claims that the RTC

violated the RTC Whistleblower Act, 12 U.S.C. s 1441a(q),

which prohibits discharge of or discrimination against em-

ployees because of their disclosure of information to the RTC,

the Thrift Depositor Oversight Board, the Attorney General,

or any appropriate Federal banking agency. But not all

disclosures qualify for protection. The statute was amended

effective December 17, 1993 to include disclosures of "gross

mismanagement, a gross waste of funds, an abuse of authori-

ty, or a substantial and specific danger to public health or

safety." The 1991 enactment, by contrast, protected only

disclosures relating to "a possible violation of any law or

regulation." Pub. L. No. 102-242, s 251, 105 Stat. 2236

(1991); 12 U.S.C. s 1831j.

The legal import of this is not that disclosures before the

amendment are governed by the old statute and those after

by the new. That would be akin to allowing discrimination

against female employees if it were based on the fact that

they had been women before the passage of Title VII. The

relevant acts are the alleged retaliations. Those after the

amendment are actionable if they came in response to disclo-

sures (whenever made) in the broader class; 3 retaliation

before the amendment is actionable only if the instigating

disclosure revealed a possible violation of law or regulation.4

Thus, to state a claim for the purposes of Rule 12(b)(6),

Pederson and Taylor must allege 1) a qualifying disclosure

that 2) contributed to 3) retaliation, where what is required

for a disclosure to qualify depends on the date of the alleged

retaliation. This they achieve; p 20 of their Complaint alleg-

es that they "reported their concerns to the RTC Office of

__________

3 The greater the interval between pre-December 17, 1993 disclo-

sures and later adverse decisions, of course, the harder it will be for

the plaintiff to show the causal link. But that is just a practical

issue of proof.

4 Pederson and Taylor argue that the amendments should be

given retroactive effect, so that pre-amendment retaliations (if there

were any) for then-unprotected disclosures would become actionable

when the disclosures became protected. This approach would

"attach[ ] new legal consequences to events completed before [the

amendments'] enactment," Landgraf v. USI Film Products, 511

U.S. 244, 270 (1994). Landgraf says that statutes should not be

read to produce such retroactivity in the absence of clear Congres-

sional intent, see id., which is completely absent here. See Walleri

v. Federal Home Loan Bank of Seattle, 965 F. Supp. 1459, 1466 (D.

Or. 1997).

Inspector General regarding ... staffing decisions that po-

tentially violated personnel laws and regulations." Para-

graphs 29-42 (Pederson) and 47-52 (Taylor) allege retaliation,

and WW 128-32 (Pederson) and 153-56 (Taylor) recapitulate

and allege the causal links.

The FDIC argues that the allegations of p 20 are in essence

legal, not factual, and need not be accepted as true for the

purposes of a Rule 12(b)(6) motion. The underlying notion is

sound: Courts accept plaintiffs' allegations of fact, not their

conclusions of law. See Kowal, 16 F.3d at 1276. If plaintiffs

include the text of a disclosure in their pleadings, and then

claim that it revealed a possible violation of law, we are not

bound to accept that legal conclusion. If, however, they

merely allege that they "disclosed a possible violation of law,"

that is a statement of material fact that must be accepted as

true for a Rule 12(b)(6) motion. We may not draw upon facts

from outside the pleadings. See Henthorn v. Dep't of the

Navy, 29 F.3d 682, 688 (D.C. Cir. 1994). In consequence, a

vague and conclusory complaint may survive a 12(b)(6) motion

where more detail would disclose fatal weaknesses; defen-

dants' remedy "is not to move [for] dismissal but to serve

contention interrogatories ... or to proceed to summary

judgment." Orthmann v. Apple River Campground, Inc.,

757 F.2d 909, 915 (7th Cir. 1985).

Here in fact the FDIC's motion to dismiss requested

summary judgment in the alternative, and if summary judg-

ment is the correct disposition, we may convert and affirm on

those grounds. Cf. Helvering v. Gowran, 302 U.S. 238, 245

(1937). Summary judgment is appropriate if the pleadings

and record "show that there is no genuine issue as to any

material fact and the moving party is entitled to a judgment

as a matter of law." Federal Rule of Civil Procedure 56(c);

Anderson v. Liberty Lobby, Inc., 477 U.S. 242, 248 (1986).

We examine the facts in the record and reasonable inferences

in the light most favorable to the nonmoving party, Wardlaw

v. Pickett, 1 F.3d 1297, 1299 (D.C. Cir. 1993), but do not

accept bare conclusory allegations as fact. See Harding v.

Gray, 9 F.3d 150, 154 (D.C. Cir. 1993). What this standard

comes down to is that Pederson and Taylor must show, with

respect to each essential issue on which they will bear the

burden of proof at trial, either that the issue is conceded in

their favor or that it turns on a genuinely disputed question

of fact. See Celotex Corp. v. Catrett, 477 U.S. 317, 322-23

(1986).

From Pederson and Taylor's brief we learn that the per-

sonnel laws and regulations alleged to have been violated are

5 U.S.C. s 3502(a) and 5 CFR s 351.201. Appellants' Br. at

26. The former instructs the Office of Personnel Manage-

ment to prescribe regulations for retention preferences in a

reduction in force; the latter obliges agencies to follow 5

CFR Part 351 during a reduction in force. How the reorga-

nization possibly violated these requirements is not apparent,

especially given the FDIC's uncontroverted assertion that the

reorganization did not constitute a reduction in force and

hence was not governed by these sections.5

At oral argument, Pederson and Taylor's counsel explained

that they did not respond to the FDIC's assertion because it

was so ludicrous. Dignified silence is a dangerous tactic at

best; here it proves fatal. Pederson and Taylor fail to offer

any evidence that the cited laws even apply, much less were

possibly violated. Their statement of genuine issues of mate-

rial fact, filed pursuant to Local Rule 108(h), makes only the

cryptic claim that the reorganization violated the law by

failing to promote "the efficiency of the service," J.A. 294, a

phrase that appears nowhere in 5 CFR Part 351. We con-

clude that there is no genuine issue of fact here: The

memorandum to RTC management concerning the reorgani-

__________

5 5 CFR s 351.201 limits its coverage to occasions on which an

agency "releases a competing employee from his or her competitive

level by furlough for more than 30 days, separation, demotion, or

reassignment requiring displacement...." It is not at all clear

that the reorganization entailed any releases from "competitive

level," since FDIC employees on loan to the RTC were by statute

entitled to "be returned to a similar position." 12 U.S.C.

s 1441a(q)(8)(B)(i).

zation did not relate to any potential violation of law or

regulation.

Pederson and Taylor had also asserted that the reorganiza-

tion was undertaken to protect disloyal savings and loan

fiduciaries; these assertions may well relate to possible viola-

tions of some law. They were made in the first instance,

however, not to RTC superiors or the Attorney General but

to GAO and the Senate Banking Committee, J.A. 380, reach-

ing any statutorily covered recipients only indirectly. Plain-

tiffs argue that it should make no difference. But the RTC

Whistleblower Act affords its special protection (beyond that

provided by the First Amendment) only for the act of "pro-

vid[ing] information to" designated entities. 12 U.S.C.

s 1441a(q)(1). It seems reasonable that Congress would

afford special protection for communications directed to the

specified entities, all ones with a capacity to remedy wrongs

brought to their attention, and would withhold the protection

from communications that only drift into such hands by

happenstance. Appellants' reading would completely thwart

this channeling function.

Still, Pederson and Taylor's March 1992 memo arguably

discloses gross mismanagement and hence might qualify un-

der the amended statute. Thus, they would be protected,

after December 17, 1993, from retaliation for that memo.

Their problem is that they fail to identify such retaliation--or,

indeed, any post-1993 retaliation at all. They focus primarily

on their selection for the put-back program and exile in the

Special Projects Unit. The reassignment occurred May 11,

1992--too early to be proscribed retaliation given that the

March 1992 memo was not protected at that time, and also,

even if proscribed, too early to be actionable when this suit

was filed in September 1994, given the two-year limitations

period of the RTC Whistleblower Act.

Beyond this, Pederson points to a search of his computer

and Taylor to an alleged "gag order" imposed in violation of

her First Amendment rights in March 1994. Pederson's

claim fails because the computer search took place, according

to his affidavit, "[o]n or about March 12, 1993," J.A. 760, again

too early to be proscribed, given that he had at that time

made no disclosures protected by the pre-December 1993

law.6 Taylor's claim fails because the "gag order," attached

to her affidavit, does little more than set out the principle

"that attorneys do not discuss client matters with the media

absent express client permission." J.A. 685. Although the

memo clearly asserted the author's view that Taylor's "media

contacts" violated the principle of client loyalty and confiden-

tiality, and would justify at least a "formal reprimand," the

author explicitly refrained even from that. To the limited

extent that the memo goes beyond directing Taylor's atten-

tion to the policy, evidently of general application within the

RTC and not unique to her, it does not qualify either as

retaliation or discrimination, and is on its face no more than a

response--perhaps a testy one--to Taylor's (unprotected)

media communications, not to the March 1992 internal memo.

Both Pederson and Taylor suggest that their career ad-

vancement has been hindered "since May 1992 until the

__________

6 Pederson attempts to make the computer incident do double

duty, offering the search itself as an example of retaliation, and

arguing also that his disclosure of the search was disclosure of a

Fourth Amendment violation "directly to senior management." Ap-

pellants' Reply Br. at 13. Because this disclosure may have taken

place as early as March 12, 1993, it pre-dates the amendments and

would, if qualifying for Whistleblower Act protection, extend Peder-

son's protection back to that date. We assume that the search did

qualify as a possible illegality. Nothing in Pederson's affidavits,

however, supports the claim that he disclosed it to senior manage-

ment, or to any listed entity. There is evidence that Pederson

discussed the matter with Barbara Shangraw, who herself had

ordered the search, but the conversation was at her request for the

purpose of driving home to Pederson the policy against using

corporate facilities for personal purposes. J.A. 1218, 1444. We

assume arguendo that a disclosure of an illegality to the perpetrator

herself could in some instances qualify (as where the whistleblower

tells a covered person of an illegality that, unbeknownst to the

whistleblower, had been ordered by the covered person). But we

do not think that protesting about the legality of a search to a

superior who ordered it, in the context of a meeting called by the

superior to discuss its fruits, can fairly be characterized as a

disclosure--except of the employee's view of the event.

present." J.A. 336-37, 758-59. Ascertaining the relevant

dates for their various allegations is not easy, but we can find

only a few incidents occurring after December 17, 1993.

None of the actual failures to promote fell after that date.

Pederson applied for various section chief positions, all before

the fall of 1993, J.A. 758-59, and Taylor, so far as her affidavit

reveals, applied for nothing after August 1993. J.A. 679-82.

Two allegations do stretch across the December 1993

threshold. First is the repeated failure to designate either

Pederson or Taylor the acting section chief when their superi-

ors temporarily left the office. J.A. 337, 759. To make out a

prima facie case of retaliation under the RTC Whistleblower

Act, a plaintiff must show that a protected disclosure was a

contributing factor in the adverse action complained of. See

12 U.S.C. s 1441a(q)(5) (prescribing use of 5 U.S.C. s 1221's

burden of proof system); 5 U.S.C. s 1221(e)(1). This does

not absolve the plaintiff of the need to offer evidence that

would amount at least to a prima facie showing of discrimina-

tion under McDonnell Douglas Corp. v. Green, 411 U.S. 792,

802 (1973).

Pederson and Taylor have both failed to cross that modest

threshold. McDonnell Douglas requires the plaintiff to show

(among other items) that he "applied and was qualified" for

the vacancy, as well as that the employer, though rejecting

plaintiff, continued to seek applicants of plaintiff's qualifica-

tions. Id. Pederson and Taylor offer no such evidence with

respect to the acting section chief position.

Equally damaging for Pederson and Taylor, we do not

believe that temporary designation as acting section chief is

one of the "terms, conditions, or privileges of employment"

compassed by the Act. 12 U.S.C. s 1441a(q)(1). The phrase

"terms, conditions, or privileges of employment" is identical

to the language of Title VII, 42 U.S.C. s 2000e-2(a). Courts

applying Title VII have consistently focused on "ultimate

employment decisions such as hiring, granting leave, dis-

charging, promoting, and compensating ... [and not] inter-

locutory or mediate decisions having no immediate effect

upon employment conditions...." Page v. Bolger, 645 F.2d

227, 233 (4th Cir. 1981) (en banc); accord Dollis v. Rubin, 77

F.3d 777, 781-82 (5th Cir. 1995). This circuit has never

decided the issue. See Mungin v. Katten Muchin & Zavis,

116 F.3d 1549, 1555 (D.C. Cir. 1997) (noting issue without

deciding). But see Hayes v. Shalala, 902 F. Supp. 259, 266-

67 (D.D.C. 1995) (rejecting Page).

We need not decide that precise issue either; what defeats

these claims (besides want of a prima facie case) is not that

the denials complained of were mediate but that they were

minor. The federal courts cannot be wheeled into action for

every workplace slight, even one that was possibly based on

protected conduct. Cf. Yates v. Avco Corp., 819 F.2d 630, 638

(6th Cir. 1987) (finding no adverse action where employer

required employee to sign form acknowledging circumstances

of transfer and failed properly to document sick leave).

Pederson's allegation that he was refused permission to

attend an internal RTC course on alternative dispute resolu-

tion, J.A. 1771-72, the second qualifying claim, also fails for

want of a prima facie case. Assuming that exclusion from

this one seminar amounted to such a denial of training

opportunities as to represent an adverse action, see Page, 645

F.2d at 233, Pederson has failed to show how his treatment

differed from that of similarly-situated employees.

Finally, both Taylor and Pederson allege a continuing--

indeed, "unrelenting"--pattern of retaliation extending up

until their resignations. In part this fails for lack of specifici-

ty, but the more serious flaw is that the specific elements of

the litany--isolation, misdirected mail, poor telephone service,

unsuitable work--simply constitute the consequences of the

initial reassignment. Even if that reassignment was retalia-

tory, it was not wrongful, since at that point Pederson and

Taylor had made no disclosures qualifying them for RTC

Whistleblower Act protection; and even if it were wrongful,

any resulting claim would have been time-barred at the point

when Pederson and Taylor filed suit. Absent some evidence

that officials aggravated conditions in appellants' occupational

Siberia, the new statute could not render the continuing

consequences of an innocent action wrongful--unless the

amendment affirmatively called for remediation of the past

innocent act. In any case, an untimely suit "cannot be

revived by pointing to effects within the limitations period of

unlawful acts that occurred earlier." Dasgupta v. University

of Wisconsin Board of Regents, 121 F.3d 1138, 1140 (7th Cir.

1997); see Palmer v. Barry, 894 F.2d 449, 453 (D.C. Cir.

1990). Just as the failure of appellants' superiors to relieve

them from life in Special Projects, though occurring within

the limitations period, cannot revive their claim or toll the

statute of limitations, neither can that inaction constitute

post-December 17, 1993 retaliation.

Nor does the concept of "continuing violation" assist Peder-

son and Taylor in showing that the continuation of their grim

working conditions amounted to a post-1993 retaliation. For

statute of limitations purposes, a continuing violation is "one

that could not reasonably have been expected to be made the

subject of a lawsuit when it first occurred because its charac-

ter as a violation did not become clear until it was repeated

during the limitations period," Dasgupta, 121 F.3d at 1139,

typically because it is only its cumulative impact (as in the

case of a hostile work environment) that reveals its illegality,

id. But the banishment of Pederson and Taylor to Special

Projects, as they allege it, amply manifested itself as a

possible retaliation from the start. Just as the continuing low

pay entailed by a demotion cannot toll the statute of limita-

tions covering the demotion, so continuing hardship in Special

Projects cannot qualify as a post-1993 retaliation.

One final issue remains. The district court denied plain-

tiffs' motion for a continuance to take discovery, a decision

that they assign as error and that we have no difficulty in

affirming under the abuse of discretion standard appropriate

to Rule 56(f). That takes care of discovery with respect to

the grants of summary judgment by the district court, but

what of a converted 12(b)(6) dismissal? When a district court

converts a Rule 12(b)(6) motion to one for summary judg-

ment, it must allow all parties both a "reasonable opportunity

to present all material made pertinent to such a motion by

Rule 56" and a chance "to pursue reasonable discovery."

First Chicago Int'l v. United Exchange Co., Ltd., 836 F.2d

1375, 1380 (D.C. Cir. 1988) (quoting Federal Rule of Civil

Procedure 12(b)). The district court allowed the former, in

the form of affidavits. As to discovery, since we are convert-

ing the 12(b)(6) motion on appellate review, we do not have

the benefit of the district court's determination of the necessi-

ty of discovery before summary judgment on the statutory

count. It is possible that the district court, in denying the

continuance, implicitly found no need for discovery before

summary judgment on this count, but it is equally possible

that it had already flagged the count as failing to state a

claim, in which case the question of discovery would not arise.

We believe the soundest course, in this case, is to decide

the discovery question de novo. Pederson and Taylor, in

their motion for a continuance, make much of the fact that

retaliatory animus may be proved by circumstantial evidence.

J.A. 137. Discovery, they claim, is necessary to allow them to

ferret out such proof. But the weakness of Pederson and

Taylor's case is not that it lacks evidence of animus--though

it does--but that it lacks a showing of unlawful retaliation.

Discovery will not help on this front, and Pederson and

Taylor do not suggest that it will. There is no genuine issue

of fact as to the existence of proscribed retaliation. Accord-

ingly, we would rule as did the district court on discovery,

and, having converted the 12(b)(6) motion to a motion for

summary judgment, affirm the district court's dismissal of

Pederson and Taylor's statutory claim because a grant of

summary judgment would have been correct.

* * *

The district court granted summary judgment for the

FDIC on the First Amendment claims of Pederson and

Taylor, reasoning that the voluntary nature of their departure

precluded the equitable relief sought. Reviewing this deter-

mination de novo, we find that voluntary resignation bars not

merely relief but also federal jurisdiction.

To be sure, Pederson and Taylor term their resignations

"constructive discharges." We rejected that characterization

in our denial of a preliminary injunction, see Taylor v.

Resolution Trust Corp., 56 F.3d 1497, 1505 (D.C. Cir. 1995)

("Taylor I"), and although that decision lacks authoritative

weight for this appeal, see University of Texas v. Camenisch,

451 U.S. 390, 395 (1981), reconsideration has not changed our

opinion. "[A] constructive discharge occurs where the em-

ployer creates or tolerates discriminatory working conditions

that would drive a reasonable person to resign." Katradis v.

Dav-El of Wash., 846 F.2d 1482, 1485 (D.C. Cir. 1988)

(internal quotation marks omitted). It does not occur when

an employee leaves an unpleasant but objectively tolerable

job because alternatives have become more attractive, even if

the employer's misbehavior creates the unpleasantness or, as

we observed in the earlier appeal, its largesse affirmatively

increases the appeal of the employee's alternatives. The

standard may vary with the character of the job for which the

employee was hired and thus, indirectly, with the employee's

skills; conditions that are conventional for a stevedore may

be intolerable for a lawyer, and perhaps vice versa. But the

standard cannot ebb and flow with the tide of a particular

employee's specific job alternatives. Here, Pederson and

Taylor endured whatever the RTC inflicted until May 1995,

when they took advantage of the severance package offered

by the Voluntary Separation Incentive Program. They do

not suggest that any simultaneous increase in the wattage of

harassment drove them out. Thus no triable issue of fact

exists on the question of constructive discharge.7

A finding that no constructive discharge occurred will have

different consequences according to the type of relief request-

ed. Pederson and Taylor seek reassignment to their 1991

positions, injunctive relief against future harassment, and

damages. We examine each in turn. The request for reas-

signment appears in the original complaint, J.A. 125, and was

__________

7 Pederson and Taylor sought leave to amend their complaint in

order to offer new evidence bearing on constructive discharge. The

district court denied their motion, and we uphold that decision

under the abuse of discretion standard, given both the lateness of

the filing of the proposed amended complaint and its failure,

together with the additional affidavits (included in the Joint Appen-

dix) to firmly close the gaps in their case.

made when Pederson and Taylor were still employed by the

RTC. They left the RTC during the pendency of this litiga-

tion, and what used to be reassignment now accordingly

would require reinstatement. Since the original complaint

simply asks for "an order restoring" them to their 1991

positions, we could read it as in fact requesting reinstatement.

This would be consistent with the desires expressed in a

proposed amended complaint rejected by the district court.

To save this element of the First Amendment count, however,

would require more than turning reassignment into reinstate-

ment to account for the changed circumstances. The plain-

tiffs' voluntary departure creates a large hole in their cause of

action: In requesting reinstatement, they seek a remedy for

injury that is in large part self-inflicted. This is true whether

we treat the defect as a matter of standing or the merits.

Article III standing requires the plaintiff to show causa-

tion--that his injury is "fairly traceable to the defendant's

allegedly unlawful conduct." Allen v. Wright, 468 U.S. 737,

751 (1984). Our rejection of Pederson and Taylor's claim of

constructive discharge is concomitantly a decision that their

voluntary acts are sufficient independent causes of their

separation from the RTC.

This is quite consistent with their (theoretically) having a

claim against the RTC for its earlier mistreatment. Suppose

an employer wrongly denied an employee $25 in wages, upon

which the employee left in a huff. Plainly he would have no

claim to reinstatement, however valid his demand for $25

damages. Had Pederson and Taylor remained, they might

have been entitled to some sort of restoration to their earlier

status; having left under circumstances for which the RTC is

not legally culpable, however, they cannot claim that the RTC

has deprived them of their jobs, even if its prior treatment of

them, though falling short of constructive discharge, was

actionable. Failing to show causation, they lack standing.

Similarly, wrongful discharge (either actual or constructive)

is a necessary element of a claim for reinstatement--discrimi-

nation and voluntary resignation are not enough. See, e.g.,

Maney v. Brinkley Mun. Waterworks & Sewer Dep't, 802

F.2d 1073, 1075-76 (8th Cir. 1986); Derr v. Gulf Oil Corp.,

796 F.2d 340, 342-43 (10th Cir. 1986). Our rejection of the

allegation of constructive discharge thus would also serve to

resolve this claim against plaintiffs on the merits.

The appropriate treatment of cases in which the standing

inquiry overlaps with the merits so precisely is not entirely

clear. We have disposed of cases on standing grounds after

the merits-laden determination that a plaintiff's claim "ha[d]

no foundation in law," Claybrook v. Slater, 111 F.3d 904, 907

(D.C. Cir. 1997)--something we think could fairly be said of a

reinstatement claim made in the face of voluntary resignation.

See also Arjay Assocs. v. Bush, 891 F.2d 894, 898 (Fed. Cir.

1989) (affirming dismissal for lack of standing after conclud-

ing plaintiff lacked enforceable right). But cf. Lewis v.

Knutson, 699 F.2d 230, 237 (5th Cir. 1986) (suggesting that

element essential to both standing and merits should be

reviewed only for facial sufficiency of pleadings in standing

analysis); ACLU v. FCC, 523 F.2d 1344, 1348 (9th Cir. 1975)

(disposing of case on merits after determining that standing

and merits inquiries overlapped). In this case, the conse-

quences of a disposition based on lack of standing do not

differ greatly from those of one on the merits. On either

approach, plaintiffs' request for reinstatement fails as a result

of their voluntary resignation. The chief distinction is that

after finding no standing, we may not affirm the district

court's grant of summary judgment but must vacate and

remand with instructions to dismiss. See Ramallo v. Reno,

114 F.3d 1210, 1213-14 (D.C. Cir. 1997) (vacatur and remand

with instructions to dismiss is appropriate disposition when

appellate court loses jurisdiction). This disposition is em-

ployed regardless of whether the missing element of standing

is required for the substantive cause of action. See Clajon

Production Corp. v. Petera, 70 F.3d 1566, 1573 (10th Cir.

1995) (dismissing for lack of jurisdiction despite identity of

issues). Consequently, we will dispose of the reinstatement

claim on standing grounds.

The original complaint also sought a permanent injunction

against future retaliation. As we held before, Pederson and

Taylor's resignation moots this request by eliminating the

possibility of future harm and the utility of the injunction.

Taylor I, 56 F.3d at 1502-05. We have no jurisdiction over a

moot claim. Finally, they ask for compensatory damages, a

demand clearly not mooted by termination of employment.

See Bois v. Marsh, 801 F.2d 462, 468-71 (D.C. Cir. 1986). To

the extent that this request rests on the RTC Whistleblower

Act, which explicitly offers a damages remedy as well as

reinstatement, 12 U.S.C. s 1441a(q)(3), it falls with their

statutory claim, as discussed above.

Pederson and Taylor could also conceivably be seeking

damages under the First Amendment. The defendant in this

suit, however, is the FDIC, and no cause of action for

damages for constitutional violations--whether called a Bi-

vens action or not--is to be implied against government

agencies. FDIC v. Meyer, 510 U.S. 471, 484-86 (1994).

Pederson and Taylor also name the RTC CEO (succeeded by

the Chairman of the FDIC) as a defendant, but they name

him in his official capacity and allege no unlawful acts on his

part.8

As we have no jurisdiction over Pederson and Taylor's

constitutional claims to equitable relief, we vacate the district

court's grant of summary judgment and remand with instruc-

tions to dismiss.

* * *

__________

8 Even supposing that appellants intended to proceed against the

CEO individually, a suit for damages under the First Amendment

would not get off the ground. We will not infer a Bivens remedy

where Congress has created "comprehensive procedural and sub-

stantive provisions giving meaningful remedies against the United

States...." Bush v. Lucas, 462 U.S. 367, 368 (1983). Here Con-

gress's enactment of the RTC Whistleblower Act precludes a Bi-

vens action under the First Amendment. See Bush, 462 U.S. at 367-

90 (refusing to imply Bivens remedy under the First Amendment

given Civil Service Reform Act); Walleri v. Federal Home Loan

Bank of Seattle, 83 F.3d 1575, 1583-84 (9th Cir. 1996) (same with

respect to FDIC Whistleblower Act).

The third appellant is Burgos, who also brings statutory

and constitutional claims. We find his statutory complaint

facially inadequate and affirm the district court's dismissal;

we also affirm the grant of summary judgment on his consti-

tutional claim.

The retaliation that Burgos points to is, primarily, the

demotion that led to his resignation. Although the complaint

may be read to suggest that his assignment to "problem

cases" also constituted retaliation for disclosures about over-

billing by outside law firms, counsel appeared to abandon this

aspect at oral argument, describing it as merely stage-setting;

nor does Burgos mention it in his briefs. Appellants' Br. at

27, 32-34; Appellants' Reply Br. at 17-20.

The demotion came in response to Burgos's filing his

"Informative Motion" with the district court in the Crabb

litigation. As far as the RTC Whistleblower Act is con-

cerned, Burgos encounters the immediate difficulty that the

Act protects disclosures only to the entities specified: the

RTC, the Thrift Depositor Protection Oversight Board, the

Attorney General, or an appropriate banking agency. 12

U.S.C. 1441a(q). It does not protect communications to

courts. Although the "Informative Motion" states that a copy

is being sent to the RTC Inspector General, Burgos himself

does not claim that that copy played any role in his demotion;

his superiors were amply infuriated by his filing in court.

* * *

Burgos argues also that his demotion violated his First

Amendment rights, invoking the principle giving government

employees some protection from discipline for their speech.

See Connick v. Myers, 461 U.S. 138 (1983); Pickering v.

Board of Education, 391 U.S. 563 (1968). Nothing in this

doctrine automatically withholds protection for disclosures to

courts. Nonetheless, the district court granted summary

judgment to the defendant, and we affirm.

Pickering directs courts to strike "a balance between the

interests of the [employee], as a citizen, in commenting upon

matters of public concern and the interest of the State, as an

employer, in promoting the efficiency of the public services it

performs through its employees." Id. at 568. Connick

makes clear that the doctrine covers only speech on a matter

of public concern, i.e., of "political, social, or other concern to

the community." Connick, 461 U.S. at 146; see F.D.R. Fox

v. District of Columbia, 83 F.3d 1491, 1493 (D.C. Cir. 1996).

The public concern inquiry is one of law, Connick, 461 U.S.

at 150 n.10; Fox, 83 F.3d at 1493, to be determined by

looking at "the content, form, and context of a given state-

ment, as revealed by the whole record." Connick, 138 U.S. at

147-48. The district court concluded that Burgos's "Informa-

tive Motion" did not involve a matter of public concern.

Reviewing de novo, we agree.

Burgos in his briefs claims that he disclosed to the court

that his supervisors were continuing to litigate a moot case,

Appellants' Br. at 34, in order to cover up their earlier

default, Appellants' Br. at 19-20. This sort of governmental

misbehavior certainly sounds like an object of public concern,

although as a preliminary matter, it is not altogether clear

how the alleged cover-up was supposed to function. Litigat-

ing a settled case does not seem an effective strategy for

concealing a default; presumably, the shirkers would want to

slink away from court, not call attention to their neglect by

bringing motions to vacate. But we need not try to unravel

this tangle, for a glance at the actual "Informative Motion"

cuts clean through.

What that motion discloses is the following: The opposing

party had asked for sanctions against Burgos. He recom-

mended to his superiors that litigation be discontinued and

unilaterally instructed outside counsel to withdraw the pend-

ing motion to vacate the judgment. He refused an order to

change his instructions to the outside counsel, calling it

"unethical," and his superiors overrode his wishes. J.A.

1080-83. There is no mention of mootness, and none of an

attempt to camouflage default, but prominent reference to the

fact that sanctions were being sought.

The content, form, and context of the motion lead to the

conclusion that, as Burgos's First Affidavit admits, it was

intended to "identify[ ] who was responsible for the direction

of this litigation and that [Burgos] had ordered the Motion to

Vacate to be withdrawn." J.A. 997. Neither of these ele-

ments, without more, is a matter of public concern; released

to the public, this motion would reveal no more than "the fact

that a single employee is upset with the status quo." Con-

nick, 461 U.S. at 148. The purpose of the communication was

to avoid personal sanctions, not to expose wrongdoing.

Whatever the outcome with respect to the former (Burgos

does not tell us), there was no real gesture towards the latter,

and the incidental and unexplained reference to "unethical

conduct" does not change this fact. Of course a speaker

might combine an effort to deflect blame with a Connick-

qualifying revelation of government dereliction. But to say,

"He did it," or "He made me do it," where "it" is already

established, is just garden-variety finger-pointing. And rhe-

torical embellishments marginally increasing the associated

obloquy do not elevate it to a matter of public concern.

Accordingly, disciplinary actions taken in response to Bur-

gos's affidavit could not offend the First Amendment.

* * *

With respect to Pederson and Taylor, we convert the

government's 12(b)(6) motion on the statutory counts to a

motion for summary judgment and affirm. On the constitu-

tional count, finding no jurisdiction over the equitable claims

we vacate the grant of summary judgment and remand with

instructions to dismiss. We find no constitutional cause of

action for damages, and affirm the grant of summary judg-

ment. With respect to Burgos, we affirm both the dismissal

of the statutory count and the grant of summary judgment on

the constitutional count.

So ordered.

Rogers, Circuit Judge, concurring: I join the opinion of the

court save for its treatment of appellants' request for equita-

ble relief as a matter of constitutional standing. See opinion

at 17-19. Rather, because there was insufficient evidence to

show that appellants were constructively discharged, given

their voluntary departures, see opinion at 16-17, their request

for equitable relief fails for lack of an evidentiary foundation.

This finding seems to me to be the fundamental one. On

their pleadings, appellants' injury is traceable to appellees'

actions; that the court cannot credit the pleadings is not a

standing analysis, but a determination of evidentiary suffi-

ciency. See Claybrook v. Slater, 111 F.3d 904, 907 (D.C. Cir.

1997); Florida Audubon Soc'y v. Bentsen, 94 F.3d 658, 664

n.1 (D.C. Cir. 1996) (en banc) (citing Flast v. Cohen, 392 U.S.

83, 101 (1968)).