Jerrald M. Johnson v. United States Postal Service

under cir- a limited time within possi- creating the reasonable

cumstances harm. Because of con-

bility of substantial ambiguous jury

fusing and instructions causation, and in- respect to incorrect

with respect to the state-of-the-

structions If, defense, trial. we remand for a

art new remand, certify the trial court wishes

on any

to the Nebraska rulings in our or other

questions addressed law, it, of Nebraska about

uncertainties

course, is free to do so.38 JOHNSON, ald M.

J err

Plaintiff-Appellant, SERVICE, POSTAL

UNITED STATES

Defendant-Appellee.

No. 86-2780. Appeals, States Court

United

Tenth Circuit.

Nov. 15, 1989.

Rehearing Denied Feb. rulings, superceded our law established stipulation parties’ that Nebraska 38. The rulings contrary Nebraska law go by any governs And should applies on retrial. it Supreme Court. Nebraska saying the law 13, 1985, July Equal from the he received Employment Opportunity Commission (EEOC) informing him that he had letter receipt the letter to thirty days from the of file a civil action in federal district court. filed with July On Mr. Johnson proceed a motion to the district court pauperis appointment of forma and for Roberts, (Thomas L. of E. Bates Brian plaintiff was days counsel. Four later the Johnson, P.C., Engle- Carney and Pryor, his motion to brief), wood, Colo., of him on the with was denied his motion for but Johnson, P.C., Engle- Pryor, Carney and appointment of counsel. Johnson v. Unit- Colo., wood, plaintiff-appellant. ed Postal States 113 F.R.D. Miller, (Robert N. U.S. Jerry R. Atencio (D.Colo.1986). Conlin, L. Asst. U.S. Atty., and Colleen 12, 1985, August Mr. Johnson On brief), Denver, Colo., him on the Atty., complaint filed his under Title VII of the Colo., Denver, Atty., for defend- Asst. U.S. Rights naming Act of as defend- Civil ant-appellee. Postal ants the United States Service McKAY, “The Local 321.” The district McWILLIAMS and Mailhandlers Before TACHA, Judges. subsequently dismissed Mr. John- Circuit That son’s claim the union.

TACHA, Judge. appealed. dismissal is not Because Mr. grant summary proceeding pauperis, of in forma appeal This is from Johnson was judgment by in favor of defendant on Marshal was ordered the court U.S. jurisdiction. The issue grounds complaint. of lack to serve the summons and rules appeal is whether the federal al- Marshal served the U.S. Postal Service U.S. complaint to amend his mail, by low certified the summons and com- a failure to name or serve order to correct plaint being August received on the stat- party the correct defendant within upon No service was made the United utory Because we hold Attorney States for the federal district or allow, rules do not so we that the federal Attorney upon the General of United hold that the action should be dismissed States, 4(d)(5) required by as Fed.R.Civ.P. affirm. failure to state a claim.1 We 4(d)(4). and Fed.R.Civ.P. 24, 1986, January the district court On I. why an order to show cause service issued plaintiff, Mr. December On incomplete. still Mr. John- was

Johnson, discharged position from his son, counsel, by represented now showed at the Denver Bulk Mail as a mail handler failing perfect- sufficient cause for The United States Postal Service Center. 120-day time limit of ed service within the from work cited his unauthorized absences 4(j), granted the Fed.R.Civ.P. and the court the reason for the dismissal. John- thirty days perfect which however, alleges, the actual rea- son Johnson, 113 F.R.D. at 74. The service. permanent dis- for the action was the son Attorney, plaintiff then served the U.S. right ability of his foot. Service, Attorney Postal and the Gen- eral. Mr. Johnson also filed a second his administrative pursued Mr. Johnson alleging complaint amended discrimination through the available channels. On appeal proper grounds for dismissal based on ina- held that the 1. The district court naming improp- bility to name the unable to amend proper amend a party, and that the action therefore which er is failure to state a claim subject matter should be dismissed for lack granted. relief can be We treat the dismissal jurisdiction. Johnson v. United States Postal court as such a dismissal. the district Here, (D.Colo.1986). 113 F.R.D. amended, 29 U.S.C 794a. physical §§ on the basis employment filed Employment discrimination actions handicap. employees of the U.S. Postal Service under moved to dismiss Postal Service The U.S. by 42 VII are controlled Title juris matter for lack the action 2000e-16(c). thirty- sets a This statute diction, defendant to capacity of of failure day claims and for service, sued, and inabil insufficiency of be actions, that, in such civil “the head of establishes proper defendant. the ity to substitute The. unit, agency, as department, the or that, the court held because district 42 appropriate, shall be the defendant.” correct named the had not served or 2000e-16(c). U.S.C. § defendant, under the unable party complaint to to federal rules amend form, present In its the Rehabilita action should be proper party, the name the provide private Act of 1973 does for tion juris subject matter lack of dismissed for against govern federal of action the cause appeals. Mr. Johnson diction. Id. employment discrimination based ment however, handicap. agree, with the We II. the Rehabilitation under Ninth Act, remedy “section 501 is exclusive summary the grant of reviewing a When employment by discrimination ordinarily determine we must judgment, handicap.” of Service on basis fact Postal of material any genuine whether issue Serv., Postal 752 Boyd v. United States and, not, if the district whether remains 410, (9th Cir.1985). 413 Section 501— F.2d correctly applied the law. Franks section under which (10th Cir. not Nimmo, F.2d 1235 provides pri for a brought this however, 1986). Here, grant of sum action— employees. for federal cause of action vate solely com mary judgment was based “ Congress, having spe unlikely the federal noncompliance with pliance ‘[I]t or employment of cifically addressed there were no procedure and rules of civil (as by agencies dis handicapped federal judgment disputes. factual material employment by recipients, them from tinct legal issues. We there entirely upon turns nonfederal, money) in sec of federal of review. selves employ a de novo standard fore again a few have so done 812 tion Postal Carey v. United States ” (quot in section 504.’ Cir.1987). later sections F.2d Postal ing v. United States McGuinness action, in his brought this (7th Cir.1984)). 706 of Title complaint, under section initial 505(a), Moreover, 29 U.S.C. section Rights Act of 1964 as VII of the Civil 794a(a), that makes sec- and, provides the 2000e-5,2 in his lens amended, 42 U.S.C. § § procedural- clear 29 U.S.C. under sections tion complaint, § second amended 505(a)(1)provides that an ac- ly.3 Section Act of of the Rehabilitation 504 and 505 remedies, rights (a)(1) procedures, perhaps Although is bet- action Rights brought Act having under 717 of the Civil in section as set forth ter characterized 2000e-16), Rights including (42 Act of 1964 Title VII of the Civil 717 of U.S.C. § of 1964 2000e-16, amended, 706(k) see 42 U.S.C. 706(f) U.S.C. through § as application sections of employee (stating that federal (k)), 2000e-5(f) § (42 through shall U.S.C. "may a civil file criteria of section who meets any complaint respect available with of this provided in 2000e-5 section action title, any employee or of this section 791 title"), consequence distinction by aggrieved employment applicant for Clearly, employment present an case. for the by complaint, disposition of final such employ- a federal action filed discrimination complaint. on such take final action failure to procedural meet the Title VII must ee under fashioning equitable affirmative ac- an 2000e-16(c). The 42 U.S.C. requirements of section, may remedy a court under such tion furthermore, to file a sec- allowed plaintiff, the reasonableness take into account properly that more ond amended place any necessary accommoda- work cost tion, Act brought the Rehabilitation the action under availability alternatives there- and the of 1973. appropriate in order relief other for or remedy. equitable 505(a) achieve provides that: 3. Section operates against brought under section 501 whom a claim is asserted relates tion constraints of Title procedural under the foregoing provision if the back is satis- Rights of 1964. VII of the Civil Act and, period provided fied within the 794a(a)(l). This means that such U.S.C. § commencing law for the action actions are U.S.C. party brought in by to be amend- 2000e-16(c)’s naming ment, (1) party has received such department, agency, or “the head of the notice of the institution of the action that unit” defendant. prejudiced will main- 2000e-16(c). brought If Mr. Johnson had merits, taining a defense on the 501, he this action under section would not knew or should have known but for escaped constraints of concerning identity a mistake the' furthermore, only hold, Title We that VII. proper party, the action would have been private provides section 501 cause of brought against party. employees bringing action for federal delivery mailing alleging employment discrimination action Attorney, the United States or United handicap.4 based on Attorney’s designee, States or the Attor- States, ney General of the United or an

III. agency or officer who would have been a Johnson, therefore, must meet proper named, defendant if satisfies the statutory requirements the clear of 42 U.S. (1) (2) requirement of clauses hereof 2000e-16(c). right C. His of action is § respect any with to the United States or thirty-day limita statute’s agency brought or officer thereof to be period, proceed against and he must into the action as a defendant. Here, the head of the U.S. Postal Service. proper defendant —the Postmaster Gen 15(c). Fed.R.Civ.P. The rule history has a eral —was never named or served. The producing interpretative problems for possible only plaintiff, avenue for Cooper courts, see v. United States therefore, provision is the federal rules’ Serv., 1022, 1024, Postal 471 U.S. 105 S.Ct. situations, under certain allows the 2034, 2035, (1985) (White, J., 85 L.Ed.2d 316 pleadings, relation back of amended Fed.R. dissenting certiorari) (“the from denial of 15(c). Civ.P. Appeals Courts of have not taken a consist- approach provision”), ent to this and for 15(c) provides that: Supreme recently that reason the Court Whenever the claim or defense asserted problems, undertook a resolution of those pleading in the amended arose out of the Fortune, see v. 21, 22, Schiavone conduct, transaction, or occurrence set (1986) 106 S.Ct. 91 L.Ed.2d 18 attempted forth or to be set forth in the (noting certiorari had been to re- original pleading, the amendment relates “apparent original pleading. among solve conflict back the date of the Courts changing Appeals”). An amendment remedies, (2) (6th Cir.1984); procedures, rights set Prewitt v. United States Post- Rights forth in title VI of the Civil Act of 1964 al Cir. Unit A any person aggrieved by circuits, however, shall be available to Nov.1981). Those have held any by any recipient act or failure to act applica- that Title VII constraints are provider Federal assistance or Federal of such ble to a that does with a feder- assistance under section 794 of this title. employment handicap al discrimination action 794a(a). § 29 U.S.C. Smith, 260, 262; § 504. See 742 F.2d at Prewitt, Following proce- 662 F.2d at 304. that Although holding puts us odds principle, dural such a would be re- Circuits, position and Sixth Fifth of those quired by requirements to abide all the of 42 render the circuits would same end result for 2000e-16(c), including designation its plaintiff. The Fifth and Sixth Circuits have agency head or unit head as the provide held that both 30-day period. private employees defendant and its limitations cause of action federal employment very requirements prove handicap. These are the that fatal discrimination based on Smith v. United States Postal case. Mr. Johnson’s Any at 2386. notice Fortune, Id. at S.Ct. In Schiavone Time, Incorporated had received of the (1986), that 91 L.Ed.2d had come after the end of the attempted to Court States United Therefore, the fourth Rules of of the Federal clarify “Rule test had not element of the application to a and its Procedure Civil at 2384. This met. See id. S.Ct. of a defend less-than-precise denomination fact that the result was not altered near in federal court complaints filed ant day mailed one after the initial service was period of limitations.” expiration of the run; statute of limitations had 22, 106 at 2381. The Id. at “a initial described Fortune as 15(c), that, under rule stated having principal foreign corporation its of- upon four dependent back [ Relation Building, fices at Time and Life Sixth Ave- factors, satisfied: of which must be all Street, York, nue and 50th New New York out have arisen (1) claim must the basic 10020”; that Fortune was an internal divi- original in the conduct set forth Time, Incorporated; the initial sion of brought in party to be pleading; Time, Incorporated’s service was mailed to that it such notice must have received service, registered agent; the initial or that maintaining prejudiced will not be refused, being forwarded to before defense; (3) party must or should Time, Incorporated’s department law con for a mistake known but have indicating “papers that the a cover letter cerning identity, the action would Time, Incorporated publisher were for it; (4) the sec brought against been 2381, Id. at 106 S.Ct. at Fortune.” must have requirements and third ond (Stevens, 2384; 34, at 106 S.Ct. at 2387 id. limi prescribed the fulfilled within J., remained firm in dissenting). The Court tations “plain language” the conviction that 29, There is no at 2384. at 106 S.Ct. Id. 30, met. Id. at the rule had not been met the first ele- Mr. Johnson dispute that S.Ct. at 2384. analysis therefore test. Our ment of this rule Court also addressed The Schiavone second, third, and fourth upon the focuses 15(c)’s provisions requirement that be elements. period provided by law for met “within the Schiavone, timely filed plaintiffs, in The commencing against the action [the alleging complaints in federal district pointed out brought The Court to be in].” story in a cover they had been libeled 3, with its clear statement that rule naming magazine and Fortune of Fortune by filing a is commenced civil action “[a] 22-23, 106 at at S.Ct. defendant. Id. as the 3, court,” Fed.R.Civ.P. complaint with the “ ‘Fortune,’ however, only a trade 2381. of an action governs the “commencement” an internal division and the name of mark Schiavone, the federal rules. 23, Time, Incorporated....” Id. at Thus, al at 2384. at 106 S.Ct. U.S. applicable statute 2381. After the S.Ct. at days from the 4(j) allows 120 though rule filing passed, but for of limitations process, service of filing of a for ser permissible period for within the 15(c) well must met requirements of rule plaintiffs attempted process, the period vice of for limitations by the end of the Time, registered Incorporated’s meaning of complaint; “plain serve filing a 15(c) not to agent. Id. at of rule language” that service. Id. it an exten agent by “engrafting refused changed period equal at 2381. limitations sion of the time, complaints to name inferred from amended their asserted reasonable then Time, Incorporat timely filed “Fortune, the service of a also known as Rule for Time, defendant, complaint.” and served as the ed” by mail. Id.

Incorporated Here, timely filed his com- Mr. Johnson limitations day that the plaint held that on the the Court allowed him 4(j) then expired. correctly affirmed appellate court had perfect service. point to days from that complaints. district court’s dismissal proceeding problems in Because Mr. Johnson court allowed those to be correct- Marshal was di- pauperis, problems U.S. ed. Mr. Johnson’s arise not from inadequate service, perfect inadequate rected to service. The U.S. Mar- but from an shal, however, only complaint. served the named de- Even if the U.S. Marshal had correctly 4(d) fendant —the U.S. Postal Service—and not followed rule at the time of Attorney General and U.S. Attor- Mr. Johnson’s and had served the ney, designee, required by or or her Attorney Attorney, or General the U.S. 4(d)(5); 4(d)(4). Fed.R.Civ.P. id. provisions above reformed of rule court, however, The district allowed Mr. would not have been met unless that ser- problems. Johnson to correct these service day vice had been made on the same as Mr. Johnson, See 113 F.R.D. at 74. filing. Yet, Johnson’s under rule days U.S. Marshal had which to form, In its current rule 15 addresses the perfect facts, service. In the face of such issue of relation back based service of lay there is no reason to at the U.S. Mar- Attorney Attorney General or entirely shal’s feet the blame a mistake government agency a suit precipitated by inadequacy plain- incorporated official. That issue was into complaint. tiff’s the rule in 1966 when rule 15 was amended response commentary, e.g., critical IV. Byse, Suing “Wrong” Defendant Judicial Review Federal Administra- appeal contends on Proposals Reform, tive Action: 77 that the district court erred (1963), Harv.L.Rev. 40 and the rule thirty-day based on specifically problems amended to address equitable considerations. This circuit does against government agencies in suits consider thirty-day that “the time limitation officials. That section of rule now of section jurisdictional is not provides that: may equitable tolling delivery appropriate Orr, mailing or cases.” Martinez v. (10th Cir.1984). F.2d Attorney, United States or United After con Attorney’s designee, present

States or the Attor- sideration of the facts and our cir States, ney law, conclude, however, General of United or an cuit’s case we that agency or officer who would have been a appropriate equitable is not an case for named, proper defendant if tolling. satisfies the requirement[s] preju- [notice The Martinez court noted that: knowledge orig- dice and of of mistake in This circuit’s decisions have indicated complaint] respect inal to the United that the time limits contained Title VII any agency States or or officer thereof only will be tolled where the circumstanc- brought to be into the action as a defend- es of the case rise to a level of “active ant. deception” pow- sufficient to invoke the 15(c). Fed.R.Civ.P. Rule still in- equity. ers of Newspaper Cottrell v. us, however, require- structs that these (10th Agency Corp., 590 F.2d 838-39 ments must be fulfilled within the limita- Cir.1979). instance, equitable tolling For commencing

tions an action.5 may where a plain Mr. Johnson failed to meet the lan- been “lulled past into inaction her 15(c)’s clear, guage of rule employer, reformed re- agencies, state or federal quirements. Although the U.S. Marshal the courts.” Carlile v. South Routt perfect 4(d), 3-J, failed to service under rule School District RE 652 F.2d sure, Attorney original 5. To be when the complaint. General and the of mistake in the See Schia Attorney Fortune, were served as defendants under vone v. plaintiff’s complaint, second amended that (1986). 91 L.Ed.2d 18 still action, light post-1966 seen in the of the however, requires, that those elements be met 15(c), met the second and third elements of the period: within the limitations the fourth ele four-pronged Schiavone test: the elements of ment of the Schiavone test. Id. prejudicial knowledge notice that is not and of thirty bring suit within right to had the Cir.1981); (10th see Gonzalez-Aller receipt of the letter. Lenkurt, Inc.], days of GTE Balseyro [v. Likewise, ^[857] if a [(10th “actively Cir.1983)]. mis- plaintiff’s at 1111. The “right letter also request reopening discussed the Id. The way by the extraordinary EEOC.” led,” in some reconsideration or “has of action asserting his or her the latter course plaintiff followed prevented from been bring limi- chance to tolling thereby of the missed his permit rights,” we will Siegfried failed “to suit, v. letter had make period. for the Wilkerson tations Inc., right to and the right to sue Agency, clear that the Insurance Cottrell, Cir.1982); distinct, independent (10th see also reopening are request only pursue election to rights, F.2d at that an former.” completely waives the latter circuit, time Thus, a Title VII in this Id. equitable concluded that court Id. This if there has been only tolled will be limit “Martinez was appropriate, tolling was has not Mr. Johnson deception.” “active by the inaction and lulled into in fact misled also here and we “actively misled” Id. at EEOC.” inac- “lulled into he was not conclude way rises to active any tion” cases, Mr. Johnson In to these contrast case of our circuit’s standard deception into inac- actively misled or lulled law. adequate com- failure to file tion. His Dist. representation Routt School not due to false plaint South In Carlile Cir.1981), court, 3-J, agency, putative defend- by any 652 F.2d 981 RE explicitly short, “[although propriety of told the ant. district com necessarily tolling be considered be deter- equitable her action would must basis,” mo of her case-by-case of the time Gonzalez- mined on menced plain- a state pauperis, in forma Balseyro, 702 F.2d tion to Aller ap equitable her not merit subsequently relied here does tiff’s ment case This court at 983. counsel. pointed in the district obliged acquiesce felt of some Finally, the back relation limita unilateral extension court’s previously has been allowed amendments note that 986. We period. Id. at identity-of-interest ex the so-called set as a case frequent citation spite of its 28 n. U.S. at ception. See eq principle of this circuit’s forth ting (listing circuit-level 7, 2384 n. 7 it itself stated that tolling, Carlile uitable summa cases). Supreme The solely by the district court’s compelled it only adopting exception, while rized doing limit our so we that and action “[i]n filing stating “[t]imely by that arguendo, and particular facts holding specially to the limita and notice within complaint, aof Id. related.” above circumstances named in the period to Len Balseyro v. GTE Gonzalez-Aller In imputation of notice to permits complaint, Cir.1983), (10th kurt, Inc., F.2d sufficiently relat named and subsequently unambiguously told clerk district 29, at 2384. 106 S.Ct. party.” Id. ed right-to-sue his that the concerning the iden case law This circuit’s Title VII limitations toll letter noted, exception has how tity-of-interest had had sufficient until the 15(c) is an rule ever, post-1966 859. Id. at counsel. opportunity obtain procedures explicit statement successfully ob having never plaintiff, exception. up that make safeguards se, pro proceeding and thus counsel tained v. United States Indem. Co. Travelers See Id. statement. upon the clerk’s relied Co., 382 Specialties rel. ex Construction eq determined court therefore This Cir.1967) (“The 1966 to the circum applicable uitable clarifies, by explicitly simply amendment that case. stances its procedure and stating, permissive existed safeguards which let- Martinez, received a the plaintiff In promulgation.”). since he under Rule informing him that the EEOC

ter from Regardless of whether rule has codi- analysis consider to be an erroneous identity-of-interest, fied the doctrine of result this case. fails,

Johnson’s case because he does not I. meet an essential of both the given rule and the doctrine: he has not 30, 1983, On December the U.S. Postal period.” “notice within the limitations discharged Service Mr. Johnson from his

position as a mail handler at the Denver Bulk Mail pursued Center. Mr. Johnson V. administrative review of his dismissal for summary, attempt Mr. Johnson’s months, approximately eighteen first with amend his falls short of the re- System the Merit Protection Board and la- quirements clearly established rule 15. Equal Employment Opportuni- ter with the joinWe those circuits which have held that ty (“EEOC”). Commission In both fora the clearly controls on facts similar participated U.S. Postal Service as the ad- 15(c), Discussing this case.6 versary party. July On Mr. John- Supreme Court has stated: son received a final (“right-to-sue”) decision notice, linchpin and notice within notifying letter from the EEOC him that he course, the limitations Of there thirty days receipt from of the letter to here, is an element of arbitrariness but file a civil action federal district court. any is a characteristic of days Five receiving “right-to- after period. And it is an im- arbitrariness petitioned sue” letter Mr. Johnson the dis- posed by legislature and not permission trict court proceed judicial process. requested appoint- forma 477 U.S. at 106 S.Ct. at later, ment of days counsel. Four July on 22, the court denied Mr. Johnson’s motion The order of the district court is AF- appointment of counsel but FIRMED. proceed motion to pauperis,1 ordered the U.S. Marshal to serve the sum-

McKAY, Judge, dissenting: mons and upon the defendant prepayment without the of fees.2 Johnson majority reads Schiavone v. For- v. United States Postal 113 F.R.D. tune, (D.Colo.1986). (1986), dictating L.Ed.2d 18 a broader principle Court, fact, than the se, Left option with no but to pro reading articulated. This has led to what I complaint3 Mr. Johnson filed August Mondy Secretary Army, Any may court of the United States autho- (D.C.Cir.1988); Army commencement, Williams v. & prosecution rize the or de- (3d Air Force Exch. 29-30 suit, any proceeding, fense of action or civil Cir.1987); Force, Department Paulk v. the Air criminal, therein, appeal pre- of Base, 79, (7th Chanute Air Force 830 F.2d 81 payment for, security of fees and costs or there- Cir.1987); Force, Secretary v. the Air Gonzales of by person who makes affidavit that he 392, (5th Cir.1987), denied, 394 cert. pay give security is unable to such costs or — -, 1245, U.S. S.Ct. 108 99 L.Ed.2d 443 therefor. Such affidavit shall state the nature (1988); Bd., Hymen Sys. v. Merit Protection 799 action, appeal defense or and affiant's 1421, (9th Cir.1986), denied, 1422 cert. 481 belief that he is entitled to redress. 1019, 1900, (1987). U.S. 95 L.Ed.2d 506 Mondy grounds Both and Paulk held that exist 1915(c) (1982) requires 28 U.S.C. § the U.S. equitable tolling, plaintiffs ed for and the process, Marshals to "issue and serve all and those cases therefore were allowed to amend perform pauperis] all duties in [in forma cases.” 1054, complaints. Mondy, their 845 F.2d at (limitations period during 1057 tolled "mar 3. There is some confusion in the record as to service; delay” speaks only shal’s of court of 1964, Rights which section of the Civil Act of 30-day 4(j)’s "deadline" and never mentions rule (1982), U.S.C. 2000e served as the basis of Mr. Paulk, 120-day period); service 830 F.2d at 83 1477, complaint. Johnson's initial See ante at & (limitations period during pendency tolled of in n. purposes 2. The issue is immaterial for of motion). parties agree since decision all 1915(a) (1982) provides: 1. 28 U.S.C. operative appeal critical section in this is 42 thirty-day period. limitations the within twenty-one days after 12, only 1986— notice, complaint timely the stat- could clearly within Absent and decision court’s However, problems to name two not be amended utory named the U.S. First, proper party. arose: defendant instead as Postal Service head, who, agency as General Postmaster II. statutorily-prescribed defendant. is the relied unfortunately Second, Mr. Johnson prece- issues with solid In this two timely and to effect U.S. Marshal on the circuit, circuits, and the in this sister dent July court’s pursuant to the service proper Court, time intersect for the first Supreme failed to do. Marshal This the Order. The first issue is wheth- this court. before not result, Postal Service was As a 2000e-16(c) permits eq- er U.S.C. § (three days after August 16 until served tolling applicable limitations uitable the U.S. and neither thirty-day period), pro in the case of a se period, especially Attorney General Attorney’s nor Office pauperis. in forma plaintiff proceeding required under Fed.R.Civ.P. was served is whether Fed.R.Civ.P. The second issue 4(d). 15(c) permits relation of an back failure Presumably due to the Marshal’s signifi- there is amended when service, January proper to effect identity an interest between im- cant Cause to Show issued an Order court proper and the properly-named defendant incom process was why service of as to party. Johnson, February plete. On first for the through counsel appearing Equitable tolling: A. time, his burden satisfied perfect Orr, 1107, in order thirty-day extension to In Martinez v. period, service that time pol service. Within Cir.1984),this court examined upon the complaint was made amended underlying the limitations icies General, Attorney Attorney, the 2000e-16(c) brought under section actions Johnson, 113 F.R. Postal Service. the U.S. thirty-day time “that and concluded D. at juris of section limitation equitable may dictional moved April the defendant On (footnote cases." 12(b) and to Fed.R.Civ.P. pursuant dismiss omitted) Secretary Mondy v. Accord 15(c). Court’s On the basis Army, 845 F.2d Fortune, 477 U.S. 1056-57 decision Schiavone Airlines, (D.C.Cir.1988).Zipes v. Trans World (1986),4 91 L.Ed.2d 18 Cf. 385, 393, 102 S.Ct. Inc., 455 U.S. granted defendant’s motion the court (1982) (holding L.Ed.2d 234 jurisdic- subject matter for lack of dismiss charge of discrimination Johnson, F.R.D. at 74-75. tion. pre jurisdictional not a EEOC dismis- requiring read court “a actions but rather VII requisite Title defendant, the Post- because the sal a statute of limita- like General, not received notice master complaints respective 2000e-16(c). their sets a 30- amended That section U.S.C. day defendant, subsequently bringing suit and as a to add Time agency department or prescribes that the which The district dis- on Time. served be named as the defendant. head must holding complaint, that the amend- the missed the date of the relate back to ment did not magazine plaintiffs sued Fortune In Schiavone 4. filing original because Time under Jersey’s one-year statute of New for within libel institution of the notice of the did not receive "Fortune,” however, only is limitations. provided period the law libel action within denoting of an internal division trademark Time, commencing against it. The Su- the action attempted Incorporated. plaintiffs affirmed, four-part setting preme forth registered agent in New Time’s on serve determining of "relation back” an when test for Jersey, agent because the refused service but per- will be pleading under Rule amended in the suit. not a named defendant was Time 21, Schiavone, 106 S.Ct. 2379. 477 U.S. expired, mitted. statutory filing period the the After 1484 waiver,

tions, subject estoppel, jurisdiction. and court’s on is 1054. Based (footnote omitted)).5 reading tolling.” the trial court equitable agreed the motion to dismiss. recognized by specifically One situation Relying Zipes, the District of Columbia justifying as the sister circuits rejected government’s the conten- statutory limitations —where jurisdictional. tion that the statute was proceeds pauper- pro se in forma Moreover, the court concluded that when a 42 action under an pro plaintiff proceeding pau- se in forma 2000e-16(c) in this case. In Mon § —arises peris justifiably relies the U.S. Mar- Secretary Army, 845 F.2d dy v. service, shal to effect and such service is 1051, the District of Columbia Circuit re statutory made Marshal after cently factually addressed a case almost period, equitable tolling applies limitations the one indistinguishable from before timely. and service will be deemed 845 challenge Mondy court. involved a F.2d at 1054-57. plaintiffs Title VII to dismissal from Wal Circuit, which, Even the Seventh unlike However, Army ter Reed Medical Center. circuit, 2000e-16(c)’s our views section time commencing two defects jurisdictional,6 limitation as v. Heck- Sims First, jeopardized action his suit: the com ler, (7th Cir.1984), 725 F.2d 1143 defendant, plaint wrong named the his ac exception tolling carved out an the limita- commander, tivity rather than the Secre period during pendency plain- of a Second, although tary Army. pauper- tiff’s motion to in forma filed, complaint the United Department is. See Paulk v. Air delayed nearly States Marshals service for Force, 79, (7th Cir.1987). 830 F.2d 82-83 months, 2000e-16(c)’s long past four thir § appeal Paulk involved the of a district ty-day deadline. 845 F.2d at 1052. Several court dismissal of a Title VII claim because served, months after the had named the U.S. Air Force filed an amended nam Casper defendant rather than Wein- ing defendant. berger, Secretary of the Air Force. In government sought dismissal on the Paulk, case, plaintiff proceed- inas ground plaintiffs failure to meet Also, pro pauperis. ed se and in statutory attempt defeated the in this in her to amend the 522], Zipes [92 serves as the foundation on which our 527 30 (1972) principle circuit has based its determination L.Ed.2d 679 That ]. must be 2000e-16(c), 2000e-5(f) like applied is limitational the time limit in 42 U.S.C. 2000e- [to jurisdictional, 5(f) rather than and thus as well.” ] Martinez, equitable tolling. 397, See 738 F.2d at Zipes, U.S. at 102 S.Ct. at 455 1109-10; accord, Mondy, 845 F.2d at 1054-55. Zipes only applicable The rationale of is not Court, turn, the case before us but also warrants the conclu- Zipes based its decision special (1) sion that courts should show solicitude Congress’s upon: treatment of the time limit pro in cases where se seek to vindicate provision entirely separate in a from the one courts, rights. their civil jurisdiction that defines the 394-95; 1133-34; (2) legisla- U.S. at 102 S.Ct. at split 6. The circuits have on the issue of whether id.; (3) history, prior reflecting tive cases period specified time in 42 U.S.C. assumption that the was not jurisdictional. Mondy See 397-98, jurisdictional, id. at 102 S.Ct. at 1134- 1051, (D.C. Secretary Army, F.2d 35; (4) purpose, Title VII’s remedial id. at Cir.1988) (non-jurisdictional); Hornsby v. United 102 S.Ct. at 1135. Serv., (3d Cir.1986) States Postal 787 F.2d specifically analytical The Court set forth the (non-jurisdictional); Milam v. United States approach addressing be used technical (11th Cir.1982) Postal 674 F.2d challenges by stating: to Title VII actions (same). Cooper Co., But see v. United States Postal In Love v. Pullman we announced a ... Cir.1984), cert. 715-16 guiding principle construing provi- denied, L.Ed.2d Declining literally sions of Title VII. to read Heckler, VII, (jurisdictional); Sims v. filing provision we ex- another of Title (7th Cir.1984) (jurisdictional); reading plained that a technical would be Auth., Valley statutory "particularly inappropriate Eastland v. Tennessee in a denied, (5th Cir.), laymen, cert. 434 U.S. in which unassisted 98 scheme (1977) (same). lawyers, process. initiate the Id. L.Ed.2d 479 [404 trained omitted) (citations (emphasis Paulk add- in complaint the defective ed).7 proper defend- give notice to the to failed provided by thirty-day period the ant within a This circuit observes court, re- 2000e-16(c). The district section of in forma the evaluation suit. the dismissed lying on virtually in re- is identical that motions and remand- reversed The Seventh in to that in effect purpose quirements ed. Therefore, it is rea- Seventh Circuit.8 the jurisdiction in this to assume that sonable proceed- court’s reviewing the district In too, delay while the district encountered in delay the Paulk the court found ings, eli- plaintiff’s a financial determines court to the U.S. complaint entrusted of a service a prepares or state- gibility under § 1915(a) 28 U.S.C. under Marshal § pau- in plaintiff’s denying the ment forma Circuit’s rule expectable due to fully peris motion, the entire limi- could consume may consider judge district the that period.9 tations or ma- frivolous the is whether v. County Center Baldwin Welcome In proceed leave to granting licious before Brown, pauperis under 1915(a) and § forma curiam), (per 80 L.Ed.2d 196 of the summons authorizing the issuance examples various gave the complaint_ The the service of justify eq- that procedural unfairness grant this motion deciding to delay Among cited tolling. those uitable limi- thirty-day easily consume the could the “the court led has impracticable period and make tations everything re- done she has believe pauperis petitions filing of Carlile South (citing of her" quired Tolling the limitations suits. in such 3-J, RE School District Routt pendency such period during the Cir.1981)). (10th Three months after motion, govern- even when the federal County decided, but without Baldwin allows 28 U.S.C. defendant, ment case, held that this court to that citation har- operate and Rule the bene- will denying Title VII moniously, instead of the time limits contained only where the circumstances Amendment of be tolled fits of decep- are most “active very who rise to a level of to the the case powers to need it. to invoke likely tion” sufficient limiting the time for policy statute suit Paulk court refers to which the benefits 7.The agency] Secretary against federal purposes” the 1966 of [a are those "remedial allowing Notes of the Advis- to Rule 15. offended Amendment would not have been explain: ory on Rules described the situations Committee back in relation knowing problem when an amend- above. [of Amendment). (Notes, the date of shall relate back to Fed.R.Civ.P. 15 ment original pleading] acutely in most has arisen for leave presented motion When by private parties offi- actions certain pauperis, district court in forma agencies States.... of the United cers if the satisfies should first determine instituted cases the recent claimants several eligibility of 28 the economic mistakenly de- named as action but 1915(a). finding of economic If States, agen- the [federal the United fendant made, should justification the court allow Secretary from cy], who had retired and a ... prepay- complaint to be docketed mistakes, Discovering their office.... ment of fees. complaints their moved to amend claimants to name the granted, district Once leave defendant; by this time 1915(d), may, dismiss com- statutory [period action] a civil process, prior if it plaint, service of even on the expired. were denied The motions had ground to be frivolous determines "would amount that the amendment proceeding malicious. a new commencement of Center, 797 Holiday Convention Inn in time as to avoid McCone v. not relate back omitted). Cir.1986) (citations statutory provision suit be ... statutory period]. brought within [the where, especially acute The risk is days only thirty period is the limitations intimately connected with back is Relation long. policy limitations. of the statute of instance, equity. equitable tolling For of the court to impecunious gen- assist may plaintiff where a erally unsophisticated plaintiffs navigate by past been “lulled into her safely through inaction maze created employer, agencies, by state or federal applicable statutes and rules. the courts." case, In Mr. Johnson’s the Marshal failed

Martinez, (citations 738 F.2d at 1110 omit- First, duty respects: to fulfill her in two ted) added). (emphasis appropriate par- she failed to serve all the case, required 4(d)(4),(5). by ties as In this Mr. Fed.R.Civ.P. Johnson filed his motion Although permitted the court later pauperis Mr. July forma mistake, Johnson granted 1985. The motion was to cure the Marshal’s days four (which need employ later in an Order in which the counsel court direct- afford), process. ed the U.S. Marshal to could ill participate serve Un- and to in a fortunately, special hearing, the Marshal did not undoubtedly serve the created un- U.S. Postal Service until days necessary three after frustration and confusion for period expired. the limitations Apply- plaintiff. Second, had this the Marshal failed ing tolling expounded process timely Baldwin to serve in a manner. The County, precedent, as well as our own it is majority by pointing minimizes this error period clear that the limitations should 120-day period be Rule 4’s justifying time tolled in this case. Once it its conclusion that “there is no reason to Johnson’s in pauperis petition, the lay at the U.S. Marshal’s feet the blame for forma court, through Office, the U.S. Marshal’s entirely precipitated a mistake by the inad- required by federal properly equacy law to plaintiff’s complaint.” Ante, Nothing serve defendants. more was ex- at 1480. But what is the basis of the of, pected or could by, have been done Mr. supposed inadequacy? According to the Johnson. A person reasonable in Mr. John- majority, it is complaint that the was filed position son’s would have understood that on the day last Order, by terms, the court’s provided justifiable had no expect reason to complaint that his properly prompt process service of since the Mar- served Unquestiona- manner. 120-day However, shal had a window. one bly, Mr. Johnson was “lulled into hypothetical inaction” brief fallacy demonstrates the by his reasonable reliance on the reasoning.

authorized statute implemented by Let us assume that Mr. Johnson had filed officers the court. pro complaint se within one week of the determining In appropriateness eq- court’s denial of his appointed motion for uitable to this a critical differ- (I counsel twenty-one days instead of later ence between the majority’s position and hasten to add that there is no evidence on my own is how we view the role of the U.S. suggest record to delay undue on Mr. in discharging responsibilities Marshal her part). Johnson’s Under 4(j), Fed.R.Civ.P. in in majority cases. The the Marshal would still have the same 120 takes the view that the days Marshal’s role is Thus, within which to act. if reason- merely to serve the as it is re- delays able in the prevent- Marshal’s office days provided ceived within the ed being service from effected until fifteen However, 4(j). 29 U.S.C. twenty days after the instructs that filed, officers of the court the Marshal complied “[t]he would have process, shall issue and serve all per- with Rule 4 but Mr. Johnson would still be ” type all duties of case. out of court thirty-day because the limita- form view, my plain language of section 42of U.S.C. 1915(c)imposes special duty upon officers not been met.10 majority's analysis 10. Under deception” such an outcome rises to “active completely though could be out of court extraordinary way even [prevents which "in some proceeded plaintiff] Marshal asserting rights.” within the time limit from his or her Un- permitted by law, 4(j). Fed.R.Civ.P. I submit that permit der our case this is sufficient to 15(c): under Rule B. Relation-back result accept that this harsh I cannot Congress or the by either was intended summary of majority’s affirmance endeavoring to assist in in courts misapplies to judgment forma Schiavone these view, my In plaintiffs. pauperis reading of does facts. A Schiavone that the 1915(c)’s language demands in case from hav- the not bar the ing day and act within court. cognizant of in Marshal be in provided statute period limitations Supreme out- the Court In Anything timely service. to effect order governing applicabili- the lined four factors the statutes nugatory render less would provisions of Fed.R. ty the of relation-back pau- in designed to assist rules 15(c): and Civ.P. forma courts. access the plaintiffs to peris (1) out the claim must have arisen basic original in the the set forth of conduct rejects view majority the the Finally, party brought to in pleading; (2) the into inaction” was “lulled Mr. that Johnson such notice it must have received that by his ways “actively deceived” inor other maintaining prejudiced in will not be upon court officials justifiable reliance (3) defense; party must or should that majority draws processes. court that, con- but for a mistake have known circumstances distinction between artificial cerning identity, the action would some- explicitly told party is where one it; sec- brought the forfeiting rights thing that leads to requirements must have ond and third one present as the such and situations limi- prescribed been fulfilled within order is not on a court where reliance period. tations respect- enough qualify. I overt deemed 106 S.Ct. at 2384. principled there is no fully submit dispute case there is no is re- The issue for that distinction. basis sec- requirement is met. As for the first fostered, is how that reliance liance ond, adopted, and Su- our circuit has employed. method This regardless of the recognized, the in preme Court Schiavone dealing with an true when especially is ex- availability “identity-of-interest” of an such as John- unsophisticated plaintiff an amendment that “under which ception son. in a after the substitutes equity precedent and our I conclude expired will relate limitations holding in this require a original of the of the back date equitably period was tolled limitations defendant the “correct” complaint” if Postal Service upon the U.S. service improperly- sufficiently identified Furthermore, should this circuit timely. 7,n. at 28 & party. U.S. named reasoning the District of Co- adopt (citing In- n. 7 Travelers at 2384 & and the Seventh Mondy in Circuit lumbia ex rel. Con- v. United States demnity Co. Paulk, limita- and hold that the in Co., 382 F.2d Specialties struction 2000e-16(c) is period of Cir.1967)). Although Cir- (10th the Third during pendency approach, tolled equitably rejected that in cuit Final- it pauperis motion. did not plaintiff’s forma consider and the it, applicable hold that Court’s ly, the court should before facts application of language approves must own 1915(c), U.S. Marshals exception circumstances: (and the applicable limitations within the ex- [identity-of-interest] 4(j)’s period) object time merely within Rule application duty ception avoid the discharge imposed order to prejudice no limitations when statute of statute. Mondy reasoning led the which It tolling See was similar equitable equitable applicability recognize Agency, Siegfried Ins. Wilkerson proceeding pro se when Martinez, Cir.1982); see also justifiably relies at 1110. 1054-57. service. Marshal to effect representatives re- party sought to The Air Force who would result to the complaint naming “The ceived the first added. were, likelihood, Air Force” all people received the amended same who Timely filing complaint, of a and notice complaint naming Secretary “The party to the within the I Air Force.” cannot believe that complaint, permit imputa- in the named absurdity tolerates such an that the law subsequently notice to a named tion of Secretary “prejudiced” by this mis- party. sufficiently and related take. 28-29, 106 (empha 477 U.S. at S.Ct. at 2384 398-99. added). sis precedent Consonant with our which can- recognized In this case the district court review, rejected without en banc notice to the Postal Service reality, this court should the demands of provided the would have Postmaster Gener- parties recognize, recognize what all al with informal or constructive notice. is, identity the clear of interest which ex- analogous dissenting opinion in an ists between the Postmaster General and case, Force, Secretary Air Gonzales v. Postal Under the circum- Service. (5th Cir.1987) J., (Brown, 824 F.2d 392 dis- properly in stances this case notice can be senting), states: General, imputed to the Postmaster result- important It is to remember that even ing prejudice in no to the defendant. I Secretary par- if the had been the named requirement conclude that the second he, ty, personally, probably never the Schiavone test is met.11 have received notice of Gonzales’ routine requires next that the Schiavone Secretary, claim. The Title VII when knowledge had have but for solely capacity, sued in his official and mistake, in it would have been named Air functionally Force are identical words, Judge action. Brown’s this re- purposes appeal. this suit and this quirement easily “is met” because “[n]o the Air Whether Force or some func- identity knowledge of interest and shared tionary Secretary in the office of the posited any can that is closer than that served, people Depart- the same [agency [agen- between his head] 12 summons, ment ... will cy].” analysis which satisfies the representative ap- same Air Force will prong applies second Schiavone also court, pear entity and the same will here, people because same who would shoulder the burden of loss if Gonzales repre- serve as Postmaster General’s prevails. participated sentatives as Mr. Johnson’s ad- years versaries almost two of adminis- nature, distinguishable suspicious easily 11. The facts of Schiavone are on one could conclude First, point. parties agency both that the knows of the were served after the limitations and, had run pitfalls presented by statutory language, present eq- unlike the no basis (2) regularly plaintiffs relies on a inadvertence Second, uitable existed. there is consid- through procedural maneuvering to win what it erably greater identity of interests between an might through adjudica not be able to secure agency agency head and than what nor- his/her See, e.g. Hymen Sys. tion on the merits. v. Merit mally operating exists between divisions Bd., (9th Cir.1986), Protection F.2d corporate general umbrella or between the denied, cert. 481 U.S. 107 S.Ct. (of organization corporate many) and one inter- (1987); L.Ed.2d 506 Jarrell v. United States Post nal divisions as was the case in Schiavone. Serv., (D.C.Cir.1985); Cooper al v. United States Postal 740 F.2d 714 12. The volume of case law on the indi- denied, Cir.1984), cert. that scores of cates employment their (1985). 85 L.Ed.2d 316 See also McGuire discrimination claims fed- Tisch, (S.D.N.Y.1987) v. 44 FEP Cases 1497 agencies eral dismissed for failure to name as WESTLAW, WL17658]; Hale department, agency, [available defendant the "head of the (N.D. unit, F.Supp. appropriate.” v. United States Postal Ill.1986), 42 U.S.C. 2000e-16(c). Many specifically opinion, 826 F.2d 1067 of these cases aff’d and, (7th Cir.1987). involve the Postal Service if one were of a a reason Applying proceedings. trative DELGADO, Gregorio, determine whether Pedro Elia test person

able mistake, Llanes and Marta R. Marcelo have known” party “should Torres, Plaintiffs-Appellants, concludes that the dissent Gonzales third situation the Schiavone type satisfied. Gon should be SMITH, capacity in his official Jim (Brown, J., dissent zales, at 399 Secretary of of the State of Flor State ing). ida, Leahy, in official and David requires that notice Finally, Supervisor capacity of Elections as the knowledge of its repre proper party, County, Florida and as a of Dade suit, must in the law all involvement of a defendant class of probable sentative County pe- Supervisors in the prescribed limitations of Elections during the occur Florida, Defendants-Appellees, preceding discussion State riod. Given identity of interest equitable tolling and the element is that this exception, I conclude English Campaign, English Florida met in this case.13 Inc., Force, Legislative and U.S. Task Inc., Foundation, English Intervenors- III. Appellees. No. 88-6068. majority’s character- I believe 2000e-16(c) and Rule ization of § Appeals, United States Court of seeking unwary citizen to vindi- traps the Eleventh Circuit. disposition of this rights. The cate his civil 4, 1988. Nov. VII,14 contrary spirit of Title case mockery intent which and makes Rehearing Rehearing In Banc Federal Rules of Civil Proce- underlies the 19, 1988. Denied Dec. Therefore, respectfully I dissent. dure.15 Judge analysis in I believe Brown’s Gonzales analysis equitable tolling 13.This has relied on presents basis for an alternative is sound satisfy requirement appro- of notice to the rely properly finding that Mr. Johnson could priate parties within the limitations Al- provisions the tech- of Rule to correct ternatively, persuasively dissent in Gonzales naming See Gon- the defendant. nical error in argues result in that the harsh J., (Brown, zales, dissent- 396-400 Jersey dictated the New statute’s ing). the libel action "commence” within the (de- with "commencement” S.Ct. at 1134. Zipes, U.S. at 14. See service”). "filing plus fined as contrast, By language re- Civil Proce- Federal Rules of 15. Rule 1 of the quires only the suit be within the filed provides "shall be construed therefore, result, dure that the rules and, 30-day period, a different inexpensive just, speedy deter- to secure although one not inconsistent with every action.” mination indicated.

Case Details

Case Name: Jerrald M. Johnson v. United States Postal Service

Court Name: Court of Appeals for the Tenth Circuit

Date Published: Feb 15, 1989

Citation: 861 F.2d 1475

Docket Number: 86-2780

Court Abbreviation: 10th Cir.