Petition for Writ of Certiorari — Annecia M. Fort, Petitioner v. Department of Labor, et al.
Supreme Court briefMay 23, 2023
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U.S. Department of Labor
Administrative Review Board
200 Constitution Ave. NW
Washington, DC 20210-0001
In the Matter of:
ANNE CIA M. FORT,
COMPLAINANT,
v.
ARB CASE NO. 2018-0026
ALJ CASE NO. 2017-STA-00028
DATE: October 1, 2020
LANDSTAR TRANSPORTATION
LOGISTICS, INC.,
RESPONDENT.
BEFORE:
THE ADMINISTRATIVE REVIEW BOARD
Appearances:
For the Complainant:
Annecia M. Fort; pro se; Jacksonville, Florida
For the Respondent:
G. Thomas Harper, Esq.; The Law and Mediation Offices of G. Thomas
Harper, LLC; Jacksonville, Florida
Before: James A. Haynes, Thomas H. Burrell and Heather C. Leslie,
Administrative Appeals Judges
ORDER DENYING RECONSIDERATION
PER Curiam. The Complainant, Annecia Fort, filed a complaint alleging that
her employer, Landstar Transportation Logistics, Inc. (Landstar), retaliated against
her for engaging in activities protected by the employee protection provisions of the
Surface Transportation Assistance Act of 1982 (STAA) as amended.! On February 2,
1
49 U.S.C. § 31105 (2007) as implemented at 29 C.F.R. Part 1978 (2019); see 49
U.S.C. § 42121 (2000) (providing standards referenced in the STAA).
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2018, a Department of Labor Administrative Law Judge (ALJ) issued an order in
which he granted Landstar’s Motion for Summary Decision on the issue that
Complainant failed to establish a genuine issue of material fact by showing that
prior to her discharge she had engaged in any activity that the STAA protects. On
March 6, 2020, we affirmed the ALJ’s conclusion that the Respondent was entitled
to summary decision holding that it was in accordance with law and the undisputed
facts. On March 23, 2020, Fort filed a Petition for Review seeking reconsideration of
our decision.
The ARB is authorized to reconsider a decision upon the filing of a motion for
reconsideration within a reasonable time of the date on which the decision was
issued.2 We will reconsider our decisions under limited circumstances, which
include: (i) material differences in fact or law from those presented to a court of
which the moving party could not have known through reasonable diligence, (ii) new
material facts that occurred after the court’s decision, (iii) a change in the law after
the court’s decision, or (iv) failure to consider material facts presented to the court
before its decision.3
Fort asserts that we should reconsider our decision due to the “inaccuracy of
the events and timelines surrounding the retaliation. Specifically, she raises the
events involving driver Michael Pease, which she alleges demonstrates that she
reported violations of applicable safety regulations. The Board considered and
rejected this contention in its decision. None of Fort’s arguments fall within any of
the four limited circumstances under which we will reconsider our decisions.
Therefore, we DENY her Request.
Fort may appeal our decision as described in the regulations at 29 C.F.R. § 29
C.F.R. § 1978.112 (Judicial review).
SO ORDERED.
2
Toland v. Firstfleet, Inc., ARB No. 2009-0091, ALJ No. 2009-STA-00011 (ARB Mar.
8, 2011).
3
See, e.g., Williams v. United Airlines, ARB No. 2008-0063, ALJ No. 2008-AIR-00003
slip op. at 2-3 (ARB June 23, 2010).
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[DO NOT PUBLISH]
3it tfie
Mmhh jihttes Court of
5tar flic 'iHcUcnffy Circuit
No. 20-13998
Non-Argument Calendar
ANNECIA M. FORT,
Petitioner,
versus
U.S. DEPARTMENT OF LABOR,
ADMINISTRATIVE REVIEW BOARD,
LANDSTAR TRANSPORTATION LOGISTICS, INC.,
Respondents.
Petition for Review of a Decision of the
Department of Labor
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Opinion of the Court
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Agency No. ARB2018-0026
Before Jordan, Newsom, and Luck, Circuit Judges.
Per Curiam:
Proceeding pro se, Annecia Fort alleged that her employer,
Landstar Transportation Logistics, Inc., retaliated against her, in vi
olation of the Surface Transportation Assistance Act, 49 U.S.C . section 31105. She petitions us to review the affirmance of the summary decision for Landstar. We deny her petition.
FACTUAL BACKGROUND
From November 2004 to October 2015, Fort worked for
Landstar as a Log Compliance Representative. In this position,
Fort made sure that Landstar's truck drivers complied with Dep artment of Transportation regulations about hours of sendee. The
three incidents that allegedly constituted Fort's protected activity
occurred between November 2014 and August 2015.
First, in November 2014, Fort recommended that driver Mi
chael Pease be disqualified from driving for Landstar because he
had multiple log violations. Although Fort's immediate supervisor
agreed with her recommendation, Compliance Director Mahal Ca
son, at arLagents request, sent Mr. Pease for retraining on the elec
tronic logging device instead of disqualifying him. After learning
that Mr. Pease got into two accidents in one day, Fort went above
Director Cason's head to Mike Cobb Vice President for Safety and
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Compliance, and told him about her disqualification recommenda
tion. Because Mr. Pease had two accidents on the same day, he
was disqualified.
Second, in January 2015, Fort complained to Director Cason
about how a driver’s call was handled. About half of the Log C ompliance Department, including Fort , was attending a training session when driver Jose Martinez called Fort back about training on
the electronic logging device. Because Fort was in training and the
department was short-staffed, an employee told Mr. Martinez to
call back the next day and to use paper logs in the meantime. Fort
thought that having a driver call back contradicted company pol
icy, so she instructed the employee that it did, spoke with the su
pervisor who had approved the response, and reported the incident
to Director Cason. Director Cason counseled the supervisor about
managing employee availability to avoid being short-staffed, and
she determined that the incident didn t violate any regulations.
And third, in August 2015, Fort told Vice President Cobb
that a driver’s record had been improperly changed. Landstar con
ducted a mock Department of Transportation audit of driver rec
ords and discovered that driver Andrea Hurddrobneck’s logs
showed that she had been in her sleeper berth for the past three
weeks. Ms. Hurddrobneck simply forgot to log off when she took
her truck in for repairs. Because she couldn’t access her truck to
log off in the usual way, an employee logged her off from Landstar’s demonstration terminal.
Landstar did not inform Ms.
cy
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Hurddrobneck that it remotely changed her status in the system
until after it had done so.
Fort submitted a one-page complaint to human resources al
leging that because she complained about the three
incidents,
Landstar retaliated against her by writing her up "with false
accusations,” fabricating a "demeaning annual review” for her, attempt
ing to lie about events, and pursuing her "constructive termina
tion.” Sensing an irreparably "broken relationship” between Fort
and the management m the Log Compliance Department, Land
star put Fort on leave, with full pay and benefits, so she could in
terview for positions elsewhere in the company. Eventually, Fort
assumed the position of Carrier Qualifications Service Specialist,
making the same pay as before.
PROCEDURAL HISTORY
Fort filed a whistleblower screening form with the Occup ational Safety and Health Administration. The Department of La
bor construed the form as asserting that Landstar retaliated
against
Fort, in violation of the Act. After an investigation, the Depart
ment of Labor found “no reasonable cause to believe" that Landstar violated the Act. Fort appealed the Department's decision to
the Office of Administrative Law Judges.
Landstar moved for summary decision. It argued that Fort
could not show that she engaged in protected activity because the
incidents with Mr. Pease, Mr. Martinez, and Ms. Hurddrobneck
didn't involve Landstar's violation of federal law and because Fort
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couldn t establish that she reasonably believed that Landstar was
violating a motor vehicle safety regulation. Fort also couldn't es
tablish an adverse employment action, Landstar said, because she
didn't suffer any economic harm and because human resources—
not a supervisor involved with the three incidents—put her on paid
leave until she found another position in a different department in
the company. And Landstar argued that Fort couldn't show causa
tion because too much time passed between the alleged protected
activity and adverse action for temporal proximity to support an
inference of causation, because Landstar encouraged safety com
plaints and compliance with federal regulations, and because Landstar had legitimate nonretaliatory reasons for removing Fort from
the Log Compliance Department: her deep resentments and “de
structive influence on others.”
The administrative law judge granted summary decision for
Landstar because Fort couldn t show that she engaged in protected
activity. A reasonable person with Fort's training and experience,
the administrative law judge explained, wouldn't believe that any
of the three incidents violated a motor vehicle regulation. As to
the incident with Ms. Hurddrobneck, the administrative law judge
said that “[a] reasonable person with more than a decade of experience in log compliance would not have an objectively reasonable
belief' that Landstar had to get Ms. Hurddrobneck's “consent be
fore correcting an obviously incorrect log.” The regulation requir
ing a driver to confirm or reject a change to the driver's record of
sN
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duty status did not go into effect until six months after the incident
with Ms. Hurddrobneck.
Fort appealed the summary decision to the Administrative
Review Board, which affirmed. The Board agreed with the admin
istrative law judge that Fort failed to show any protected activity.
It explained that “none of [FortJ's reports concerned violations of
the [Act] or safety related matters; rather, each complained-of inci
dent had to do with electronic logging device problems and
not
safety matters.”
Fort asked the Board to reconsider its affirmance, and it de
nied her request. Fort petitioned us to review the Board's deci
sion.1
We asked the parties to address jurisdictional questions about whether the
Board s summary decision affirmance was a final agency decision even though
Fort did not receive a formal evidentiary hearing, whether we can construe
Fort s petition as seeking review of the affirmance, and whether Fort's request
for reconsideration of the affirmance tolled the time for her to petition for re
view. After considering the parties' responses, we agree with the respondents
that the Board s affirmance was a final agency decision, Fields v. U.S. Dep'tof
Lab. Admin. Rev. Bd., 173 F.3d 811, 812 (11th Cir. 1999), United States v.
Cheramie Bo-TrucNo. 5, Inc., 538 F.2d 696, 698 (5th Cir. 1976), and we can__
and do—construe Fort's pro se petition as seeking review of that decision
And we agree with the Department that Fort’s appeal is timely because her
request for reconsideration tolled the period for her to petition us for review.
See Interstate Com. Comm 'n v. Bhd. ofLocomotive EngJrs, 482 U.S. 270 284
(1987) ("[T]he timely petition for administrative reconsideration stayed the
running of the . . . limitation period until the petition had been acted upon by
the [Board]."). Thus, we have jurisdiction to consider Fort’s petition.
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STANDARD OF REVIEW
We review “agency action[s], findings, and conclusions” to
determine whether they are “arbitrary, capricious, an abuse of dis
cretion, or otherwise not in accordance with law.”
5 U.S.C.
§ 706(2)(A); see 49 U.S.C. § 31105(d). We review the Department’s
legal conclusions de novo and its factual findings for substantial ev
idence. Stone & Webster Constr., Inc. v. U.S. Dep't ofLab., 684
F.3d 1127, 1132 (11th Cir. 2012).
DISCUSSION
Fort contends that the Board erred in affirming the summary decision against her because the summary decision conflicted
with the law and the evidence and because the Board credited
Landstar’s version of events over hers and overlooked that Landstar admitted to engaging in unacceptable behavior. Landstar re
taliated against Fort, she says, because she “reported unethical, un
lawful events” like the incident with Ms. Hurddrobneck. Fort also
argues that Mr. Pease’s “egregious behavior put public safety at
risk,” Landstar’s “violations were performed with intent,” and un
der Dick v. Tango Transp., ARB No. 14-054, ALJ No. 2013-STA-60,
slip op. at *7 (Dep’t of Lab. Admin. Rev. Bd. Aug. 30, 2016), she
didn’t need to “complain about a specific safety regulation”; she
just needed to complain '“related to’ safety regulations.”
The Act prohibits an employer from “discharging,]. .. dis
ciplining,] or discriminating] against an employee regarding pay,
terms, or privileges of employment” because the employee “has
TO
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filed a complaint . . . related to a violation of a commercial motor
vehicle safety or security regulation, standard, or order.” 49U.S.C.
§ 31105(a)(l)(A)(i). Here, a violation includes "an act reasonably
perceived to be a violation.” Koch Foods
Secy, US. Dept of
Lab., 711 F.3d 476, 482 (11th Cir. 2013). The employee has the in
itial burden of making a prima facie case that her protected activity
"was a contributing factor in
the adverse employment action
against her. 49 U.S.C. §§ 31105(b)(1), 42121(b)(2)(B)(i). To make a
prima facie case, she must show: (1) she engaged in activity pro
tected under the Act; (2) she suffered an adverse employ ment action; and (3) a causal connection exists between the protected ac
tivity and adverse action. See Hurlbert v. St. Mary’s Health Care
Sys-, Inc., 439 F.3d 1286, 1297 (11th Cir. 2006) (Family and Medical
Leave Act); Bechtel Constr. Co. v. Secy of Lab., 50 F.3d 926 , 933
(11th Cir. 1995) (Energy Reorganization Act).
To establish protected activity, Fort had to show that she
reasonably believed that Landstar violated a motor vehicle safety
regulation. Dick, slip op. at *7. The belief had to be both subjec
tively and objectively reasonable. Id. To determine whether the
belief was objectively reasonable, we consider the information
available to a reasonable person in the same circumstances with the '
same training and experience as Fort. Id.
Although, under Dick, Fort didn’t have to prove an actual
violation of a specific safety regulation, she still had to show an ob
jectively reasonable belief related to violations of safety regula
tions. Id. But she failed to do so. The incidents with Mr. Pease,
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Mr. Martinez, and Ms. Hurddrobneck don't relate to safety viola
tions, and a reasonable Log Compliance Representative with Fort's
extensive work experience wouldn't believe that they do. Fort her
self recognized that Director Cason didn't violate any safety regu
lations in sending Mr. Pease for retraining instead of disqualifying
him. Fort described the incidents as violations of company policy,
not federal regulations. She could have made a colorable argument
that Landstar violated 49 C.F.R. section 395.30(d) when it corrected
Ms. Hurddrobneck's obviously incorrect record without the
driver's consent—if the regulation had been in effect at the time.
But the regulation wasn't yet in effect, and a reasonable person in
Fort's position wouldn't have believed it was. Thus, Fort failed to
establish protected activity to make a prima facie case of retaliation.
Fort's other arguments lack merit. The Board properly ap
plied the Act and viewed the record in the light most favorable to
her.
Substantial evidence supported the factual findings. And
Landstar never admitted to violating a federal motor vehicle safety
regulation with respect to the three complained-of incidents.
Because Fort didn't establish that she engaged in activity
protected under the Act, the summary decision for Landstar was
proper, and we deny her petition for review.
PETITION DENIED.
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No. 20-13998
j
ANNECIA M. FORT,
Petitioner,
versus
U.S. DEPARTMENT OF LABOR,
ADMINISTRATIVE REVIEW BOARD,
LANDSTAR TRANSPORTATION LOGISTICS, INC.,
Respondents.
Petition for Review of a Decision of the
Department of Labor
Agency No. ARB2018-0026
ISSUED AS MANDATE: 03/20/2023
' %
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JUDGMENT
It is hereby ordered, adjudged, and decreed that the opinion is
sued on this date in this appeal is entered as the judgment of this
Court.
Entered: January 11, 2023
For the Court: DavidJ,. Smith, Clerk of Court
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ISSUED AS MANDATE: 03/20/2023
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Administrative Review Board
200 Constitution Ave. NW
Washington, DC 20210-0001
U.S. Department of Labor
In the Matter of:
ANNECIA M. FORT,
ARB CASE NO. 2018-0026
COMPLAINANT,
ALJ CASE NO. 2017-STA-00028
DATE: March 6, 2020
v.
LANDSTAR TRANSPORTATION,
LOGISTICS, INC.,
RESPONDENT.
Appearances:
For the Complainant:
Annecia M. Fort; pro se; Jacksonville, Florida
For the Respondent:
G. Thomas Harper, Esq.; The Law and Mediation Offices of G.
Thomas Harper, LLC; Jacksonville, Florida
Before: Thomas H. Burrell, Acting Chief Administrative Appeals
Judge, James A. Haynes, and Heather C. Leslie, Administrative
Appeals Judges.
DECISION AND ORDER
PER CURIAM. This case arises under the employee protection provisions of the
Surface Transportation Assistance Act of 1982 (STAA) as amended.1 Annecia Fort
(Complainant) was employed by Landstar Transportation Logistics, Inc. (Landstar
or Respondent) as a Log Compliance Representative in Landstar’s Log Compliance
Department from November 2004 until October 2015, when she was transferred to
Landstar’s Carrier Qualification Department.2 Fort filed a complaint with the U.S.
Department of Labor’s Occupational Safety and Health Administration (OSHA) on
September 15, 2015. She alleged that the Respondent violated the terms of the
STAA by discharging her from the Log Compliance Department in retaliation for
raising safety concerns regarding three of the Business Capacity Owners (BOC or
“drivers”). Following an investigation, OSHA dismissed the complaint on December
23, 2016. Complainant objected to OSHA’s determination and requested a hearing
with the Office of Administrative Law Judges (OALJ).
On January 6, 2018, Respondent filed a Motion for Summary Decision which
Complainant opposed. After considering the Respondent’s Motion for Summary
Decision and Complainant’s Objection to Employer’s Motion, a Department of Labor
Administrative Law Judge (ALJ) granted the Respondent’s motion under 29 C.F.R.
§ 18.72 (2016) and cancelled the hearing. Order Granting Summary Decision (Feb.
2, 2018) (Order). Complainant appealed. We agree with the ALJ and affirm.
Jurisdiction and Standard of Review
The Administrative Review Board (ARB or Board) has jurisdiction to
review the ALJ’s STAA decision pursuant to Secretary’s Order No. 01-2020
(Delegation of Authority and Assignment of Responsibility to the
Administrative Review Board) (Feb. 21, 2020); 29 C.F.R. Part 1978.
The ARB reviews an ALJ’s grant of summary decision de novo under the
same standard the ALJ applies. Summary decision is permitted where “there
1
49 U.S.C. § 31105 (2007) as implemented at 29 C.F.R. Part 1978 (2018); see 49
U.S.C. § 42121 (2000) (providing standards referenced in the STAA).
2
Fort was working in Landstar’s Carrier Qualification Department at the time
the case was considered by the ALJ in February 2018.
2
i
is no genuine dispute as to any material fact and the movant is entitled to
decision as a matter of law.” 29 C.F.R. § 18.72(a) (2018). The ARB views the
record on the whole in the light most favorable to the non-moving party.
Micallef v. Harrah’s Rincon Casino & Resort, ARB No. 16-095, ALJ No. 2015SOX-025, slip op. at 3 (ARB July 5, 2018).
Discussion
STAA complaints are governed by the legal burdens of proof set forth in the
employee protection provision of the Wendell H. Ford Aviation Investment and
Reform Act for the 21st Century (AIR 21). 49 U.S.C. § 31105(b)(1); see 49 U.S.C.
§42121 (2000). To prevail on a STAA claim, an employee must prove by a
preponderance of the evidence that she engaged in protected activity that was a
contributing factor in an unfavorable personnel action taken against her. 49 U.S.C.
§ 42121(b)(2)(B)(iii). In light of our disposition of this matter, we limit our
discussion to the issue of whether the ALJ correctly granted summary decision on
the issue that Complainant failed to establish a genuine issue of material fact by
showing that prior to her discharge she had engaged in any activity that the STAA
protects.
In her complaint, Fort referenced three incidents as protected activity under
the Act. First, on November 21, 2014, Fort recommended that Landstar disqualify a
driver from driving for Landstar because he had accumulated 76 violations for log
compliance issues. A Landstar agent requested Director of Compliance Mahal
Cason consider that the driver was an older, long-time driver who did not
understand electronic logs (ELD). Instead of disqualifying the driver based on the
electronic log violations, Cason referred him for additional training on how to use
the electronic logging system.3 The ALJ considered Fort’s allegation that Cason
exhibited an improper motivation for retaining the driver, but concluded that a
reasonable person would not^believe that electronic logging problems would
constitute a violation of a motor vehicle regulation. Further, viewing the evidence in
the light most favorable to Fort, the ALJ was not able to find a regulation
3
Two days after Fort made her recommendation to disqualify the first driver,
he had two separate minor accidents, which Fort reported to Vice-President Michael Cobb.
The driver was then disqualified from driving with Landstar.
3
implicated by Cason’s decision to retain the driver and give him retraining. ALJ
Order at 4.
Fort’s second allegation concerned an Hours of Service (HOS) alert from a
second driver’s ELD in January 2015. Fort called the second driver to provide log
compliance counseling but failed to reach him. When the second driver returned her
call on January 28, 2015, requesting to be trained on the ELD, a supervisor advised
another employee that Fort was in a meeting and instructed her to tell the second
driver to call back the next day. When she learned what had happened, Fort
reported her concerns to Director Cason. The ALJ concluded that while asking a
driver to call back at a later time may be inconsistent with company policy and
department practice, Complainant’s concern was not about a violation of any sort.4
The third incident of alleged protected activity involved a third driver. In
August 2015, Landstar underwent a mock Department of Transportation audit.
During the audit, the auditors reviewed the logs of the third driver and noted that
her log showed that she had been in her sleeper berth for three weeks. After an
investigation, a Log Compliance Department employee confirmed with the third
driver that she had taken her truck to the shop and had forgotten to change her
duty status. The third driver verbally consented to Landstar changing her status
remotely. Following a review of the applicable regulations, the ALJ concluded that
there was no regulation that would forbid an employer from changing the duty
status of a driver. Moreover, the ALJ concluded that no reasonable person would
believe that Landstar falsified the log or that the third driver had been in the
sleeper berth for three weeks.
On appeal, Complainant does not identify errors of law that would show that
the ALJ’s conclusions were wrong. Indeed, none of Complainant’s reports concerned
violations of the STAA or safety related matters; rather, each complained-ofincident had to do with electronic logging device problems and not safety matters.
Thus, upon de novo review of the ALJ’s conclusion that the Respondent was entitled
4
On appeal, Fort argues that the ALJ did not acknowledge her contention that
she reported that the driver was in violation of Federal Motor Carrier Safety Administration
Hours of Service regulations. However, the materials submitted to the ALJ reflect that Fort
reported HOS alerts and did not specify that the second driver had violated a regulation.
4
to summary decision as a matter of law, we hold that it is in accordance with law
and the undisputed facts. 29 C.F.R. § 18.72.
Conclusion
The ALJ properly concluded that the Respondent was entitled to summary
decision as a matter of law. Accordingly, the ALJ’s decision to GRANT the
Respondent’s motion for summary decision is AFFIRMED and the complaint is
hereby DENIED.
SO ORDERED.
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IN THE UNITED STATES COURT OF APPEALS
FOR THE ELEVENTH CIRCUIT
No. 20-13998-GG
ANNECIA M. FORT,
Petitioner,
versus
U.S. DEPARTMENT OF LABOR,
ADMINISTRATIVE REVIEW BOARD,
LANDSTAR TRANSPORTATION LOGISTICS, INC.,
Respondents.
Petition for Review of a Decision of the
Department of Labor
ON PETITIONS') FOR REHEARING AND PETITIONS) FOR REHEARING EN BANC
BEFORE: JORDAN, NEWSOM, and LUCK, Circuit Judges.
PER CURIAM:
The Petition for Rehearing En Banc is DENIED, no judge in regular active service on the Court
having requested that the Court be polled on rehearing en banc. (FRAP 35) The Petition for
Panel Rehearing is also denied. (FRAP 40)
ORD-46
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