Id. at 16-19. Roberts then testified that he informed state and federal agencies of his safety concerns and asked them to investigate. Id. at 46-49.
At the hearing, M-D's counsel questioned its witnesses about Roberts's statements that he contacted federal agencies and informed M-D employees and managers about his concern that M-D's practices violated federal safety requirements. Most significantly, M-D called Ramia as its witness to dispute Roberts's testimony that on Tuesday he informed Ramia that he had complained to state and federal agencies about M-D's violations of safety requirements. Id. at 48-51. Ramia testified that he could not recall Roberts telling him that Roberts was in the process of filing safety complaints against M-D. Id. at 154-59. M-D's whole purpose in calling Ramia as a witness was to counter Roberts's testimony about contacting state and federal agencies and filing a complaint.
[Page 9]
In addition, Roberts testified that he told Jamison on September 17 that he intended to investigate Jamison's opinion about pre-trip reports overriding post-trips, and was told to go home. Id. at 41. Jamison later denied that Roberts said anything about an investigation of Jamison's actions. Id. at 170, 179-84. Further, Jeffcoat testified that she did not hear Roberts tell Jamison that his actions would be investigated. Id. at 117. Moreover, Jamison was questioned about Roberts's statements at the meeting that he intended to follow the DOT regulations. Id. at 176-88. Again, the testimony elicited by M-D's counsel was directed at countering Roberts's allegations of external and internal complaints and M-D's knowledge of those complaints.
We conclude that although Roberts's complaint did not specifically address the safety complaints he made to federal officials, M-D knew from the opening statement made by Roberts's counsel that Roberts intended to try the case on the theory of retaliation for making such protected complaints. M-D made no objection and instead affirmatively defended against that theory by calling a witness (Ramia) whose sole testimony on direct addressed whether M-D had knowledge of those complaints prior to the meeting at which Roberts was fired. M-D also questioned other witnesses (Jamison and Jeffcoat) about conversations related to that theory of the case. We therefore conclude that M-D consented to try the issue, and may not now object that it was not timely raised.
Requirements of the STAA
Section 405 of the STAA provides in pertinent part:
(a) Prohibitions. - (1) A person may not discharge an employee, or discipline or discriminate against an employee regarding pay, terms, or privileges of employment, because�
(A) the employee, or another person at the employee's request, has filed a complaint or begun a proceeding related to a violation of a commercial motor vehicle safety regulation, standard, or order, or has testified or will testify in such a proceeding; or
(B) the employee refused to operate a vehicle because�
(i) the operation violates a regulation, standard, or order of the United States related to commercial motor vehicle safety or health; or
(ii) the employee has a reasonable apprehension of serious injury to the employee or the public because of the vehicle's unsafe condition.
(2) Under paragraph (1)(B)(ii) of this subsection, an employee's apprehension of serious injury is reasonable only if a reasonable individual in the circumstances then confronting the employee would conclude that the unsafe condition establishes a real danger of accident, injury, or serious impairment to health. To qualify for protection, the employee must have sought from the employer, and been unable to obtain, correction of the unsafe condition.
49 U.S.C.A. § 31105(a).
[Page 10]
Roberts Engaged in Conduct Protected by the STAA
Violation of Safety Requirements: The defective windshield wipers
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We agree with the ALJ's conclusion that had Roberts obeyed Jamison's instruction to drive Vehicle No. 2 to Penske he would have violated the literal requirement of section 392.7 that the vehicle not be driven unless the wipers are in "good working order." R. D. & O. at 31. Manifestly, the wipers were not -- they were torn and dry-rotted, and the metal was scraping the glass; further, their defective condition was not contested.8 CX 7; TR at 40. See 49 C.F.R. § 393.78(a)("Every卼ruck, and truck tractor, having a windshield, shall be equipped with at least two automatically-operating windshield wiper blades, one on each side of the centerline of the windshield, for cleaning rain, snow, or other moisture from the windshield and which shall be in such condition as to provide clear vision for the driver.") 9
Jamison testified that even though the regulation (49 C.F.R. § 392.7) was clear, "we can all use common sense on something like that." TR at 175-78. While Monday, September 17, 2001, was a sunny day with not "a cloud in the sky," TR at 136, and Roberts was asked to drive only nine miles to get the wipers repaired, nothing in section 392.7 or the Interpretations sanctioned by the Department of Transportation (DOT) appears to give the driver discretion to drive under such circumstances. In fact, Appendix G of the regulations requires that windshield wipers be "operative at all times." See Appendix G to Subchapter B桵inimum Periodic Inspection Standards, Comparison of Appendix G and the new North American Uniform Driver-Vehicle Inspection Procedure at 387 (Feb. 2002); RX 6.
M-D argues that Appendix A of the North American Standard Vehicle Out-of-Service Criteria specifically provides that a vehicle shall be placed out of service due to faulty windshield wipers "only in inclement weather requiring use of windshield wipers." Thus, M-D contends, it properly sent Roberts home for refusing to drive Truck No. 2. Respondent's Memorandum of Law at 21.
The definitions of "Out of Service Order" in 49 C.F.R.§§ 383.5 and 390.5 refer to those criteria. They are a reference guide developed and maintained by the Commercial Vehicle Safety Alliance梐n association of state, local, provincial, and federal officials梩o assist enforcement personnel in deciding whether to a allow a driver, found in violation of the law, to continue in commerce. Thus, they apply only to authorized safety inspections of vehicles on the road. Further, the Supplementary Information guidance states that the out-of-service criteria "are usually less stringent" than the regulations in that they allow a violation of a regulation to continue if it presents no immediate or undue threat to public safety. 63 Fed. Reg. 38792 (1998). See Appendix A, North American Standard Vehicle Out-of-Service Criteria , Policy Statement (Handbook Edition, 2002).
[Page 11]
In this case, neither truck was on the road and enforcement personnel were not involved in Roberts's decision to take Truck No. 2 out of service. Therefore, the out-of-service criteria do not apply. Because it is undisputed that the windshield wipers were not in good working order, and operating the truck would have violated section 392.7, we find that Roberts's refusal to drive Truck No. 2 was protected activity under 49 U.S.C.A. § 31105(a)(1)(B)(i) and that M-D had knowledge of that activity through Roberts's interactions with Jamison, Jeffcoat and Ramia.
Violation of Safety Requirement:The defective brakes
Substantial evidence supports the ALJ's finding that the brakes on Truck No. 1 were defective (the testimony of Roberts and Jeffcoat). TR 30-34, 109-113. It clearly would have been a violation of DOT regulations to drive with defective brakes. 49 C.F.R. § 392.7. Roberts therefore engaged in protected conduct when, by taking Truck No. 1 out of service, he refused to drive.
The Inaccurate Post-Trip Reports
The ALJ also found that Roberts engaged in protected activity under subsection (B)(i) by refusing to drive Truck No. 1 because the post-trip report was inaccurate and by refusing to drive Truck No. 2 because the September 5 post-trip report was inaccurate and the September 10 report was "falsified." R. D. & O. at 31-32. He found that the post-trip reports "failed to conform [to] and thus violated" 49 C.F.R. §§ 396.11 and 396.13. R. D. & O. at 32. Our reading of sections 396.11 and 396.13, covering post and pre-trip inspections and reports, does not convince us that an incomplete or inaccurate post-trip report alone necessarily justifies a refusal to drive under 49 U.S.C.A. § 31105(a)(1)(B)(i).
Under section 396.11, every motor carrier shall require its drivers to prepare a written report at the completion of each day's work covering vehicle parts and accessories, including windshield wipers, and identify any defect or deficiency that would affect the safety of operation of the vehicle or result in mechanical breakdown. 49 C.F.R. § 396.11(a)-(b). Prior to requiring or permitting a driver to operate the vehicle, the carrier shall repair any defect or deficiency listed on the report "likely to affect the safety of operation of the vehicle" and certify on the report that the repairs have been made or are unnecessary. 49 C.F.R. § 396.11(c)(1).
Section 396.13 provides that, before driving a motor vehicle, the inspecting driver shall be satisfied that it is in safe operating condition, review the last driver vehicle inspection report, and sign the report if defects and deficiencies noted by the previous driver were certified to have been repaired. 49 C.F.R. § 396.13(a)-(c).
[Page 12]
Neither regulation addresses inaccurate or incomplete post-trip reports. At the hearing, Jamison indicated that a short drive and a pre-trip inspection could "override" an incomplete or inaccurate post-inspection report and "would suffice." TR at 179. Jeffcoat explained that she routinely did "in-house" inspections for M-D's drivers when post-trip reports were missing. Id. at 136-39. And Roberts admitted that he had previously operated a truck with an inaccurate mileage recorded on the post-trip report after doing a short drive and pre-trip inspection, and that he would have driven Truck No. 2 if it had not needed the wipers repaired. Id. at 75-77, 85-87.
DOT has issued an interpretation of the regulations which specifically permits a substitute post-trip report to be created when, in unusual circumstances, the post-trip report is missing. U.S. DOT Interpretations, Part 396, Question 14 at 462 (May 4, 1997); RX 4 at 3. Thus, it is questionable whether Roberts engaged in protected activity by refusing to drive because the post-trip reports he reviewed were inaccurate. However, as noted above, because the refusals to drive were justified based on the defective wipers and brakes, we uphold the ALJ's determination that Roberts engaged in protected refusals to drive the trucks.
Reasonable Apprehension of Serious Injury
We also disagree with the ALJ's finding that Roberts engaged in protected activity pursuant to 49 U.S.C.A. § 31105(a)(1)(B)(ii). The ALJ found that Roberts had a reasonable apprehension of serious injury to himself or the public "because of the unsafe condition of Truck No. 2" and was unable to obtain correction of the unsafe condition. R. D. & O. at 32.
An employee's apprehension of serious injury is reasonable only if a reasonable individual in the circumstances then confronting the employee would conclude that the unsafe condition establishes a real danger of accident, injury, or serious impairment to health. 49 U.S.C.A. §31105(a)(2). Not only must a complainant prove that he had an apprehension of serious injury due to his truck's unsafe condition, but also he must show that a reasonable person in his position would have concluded that the condition of the truck was a real danger to himself or the public. Thus, the reasonable apprehension provision requires that the complainant's apprehension be objectively reasonable. Dalton v. Copart, Inc. , ARB No. 01-020, ALJ No. 1999-STA-46, slip op. at 6 (ARB July 19, 2001). Further, to be protected under the STAA, an employee's refusal to drive because of a reasonable apprehension of serious injury must be based on the information available to the employee at the time of the refusal. Helgren v. Minnesota Corn Processors, Inc. , ARB No. 01-042, ALJ No. 00-STA-44, slip op. at 3 (ARB July 31, 2003).
The ALJ did not explain the basis for Roberts's apprehension, and we can find no evidence in the record to substantiate a reasonable apprehension. In this case, aside from the post-trip reports, the only information available to Roberts when he refused to drive Truck No. 2 to Penske was that the windshield wiper was rotted out. CX 15 at 344-45. Because he was sent home and did not finish his pre-trip inspection of Truck No. 2, he was unaware of other deficiencies found later梚noperable tail and brake lights and lack of grease on the fifth wheel. CX 8, TR at 43. Roberts maintained that the defective wipers involved safety, but the record contains no evidence that under the circumstances the defective wipers alone presented any threat of serious injury to Roberts or the public. CX 15 at 345-46. In fact, it is undisputed there was no threat of rain on September 17, 2001. Further, Roberts produced no evidence (testimonial or otherwise) that driving the truck to Penske (only nine miles away) with defective wipers on a sunny day when there was no threat of rain would present any threat of serious injury to himself or the public. Because substantial evidence does not support the ALJ's finding under subsection (B)(ii), we reverse it. 49 U.S.C.A. § 31105(a)(1)(B)(ii).
[Page 13]
Internal and External Complaints
Substantial evidence supports the ALJ's findings that Roberts made internal and external complaints related to violation of safety requirements and that M-D had knowledge of that protected activity. Roberts testified that he contacted state and federal agencies and advised them that, contrary to federal requirements, M-D was failing to require its drivers to complete post-trip reports, and that, further, he had been directed to drive a vehicle with defective wipers. TR at 46-48. Roberts also made Jeffcoat and Jamison aware of his complaints. Id. at 35-42. In addition, he told Ramia of his complaints to federal authorities. Id. at 49-51. Further, at the outset of the September 18, 2001, meeting with M-D managers, Roberts specifically talked about his complaints to DOT. CX 15 at 326-27.
Adverse Action and Respondent's Alleged Legitimate Reason for Termination
Initially, we affirm the ALJ's determination that M-D took adverse action in discharging Roberts on September 18, 2001. R. D. & O. at 33.10 The pivotal question is whether this action was motivated, even in part, by Roberts's protected activities.
M-D contends that it fired Roberts because he repeatedly refused to adhere to the company's policy regarding post-trip inspection reports. Respondent's Memorandum of Law at 23. The ALJ found this reason to be a pretext and not worthy of credence, based on his findings that "confusion" existed over the actual policy and that Hildegardner had decided to fire Roberts prior to the discussion about company policy at the meeting on September 18. R. D. & O. at 34-37.
The ARB has held that, in a case tried fully on the merits such as this, the relevant inquiry is whether the complainant established by a preponderance of the evidence that the reason for his discharge was his protected activity. Pike v. Public Storage Companies, Inc. , ARB No. 99-072, ALJ No. 98-STA-35, slip op. at 2 (ARB Aug. 10, 1999). See also Johnson v. Roadway Exp., ARB No. 99-111, ALJ No. 99-STA-5, slip op. at 7 n.11 (ARB Mar. 29, 2000). Thus, a complainant must prove that respondent's proffered reasons for taking adverse action were a pretext for discrimination. See Yellow Freight Sys., 27 F.3d at 1138 (adapting McDonnell Douglas burden-shifting rules to the STAA).
"[O]nce the employer's justification has been eliminated, discrimination may well be the most likely alternative explanation . . . . Thus, a plaintiff's prima facie case, combined with sufficient evidence to find that the employer's asserted justification is false, may permit the trier of fact to conclude that the employer unlawfully discriminated." Reeves v. Sanderson Plumbing Products, Inc., 530 U.S. 133, 147-48 (2000).
[Page 14]
Substantial evidence, including the following, supports the ALJ's conclusion that M-D fired Roberts, at least in part, in retaliation for his protected activities.11 The transcript of the September 18, 2001, meeting supports the ALJ's finding that Hildegardner was predisposed to fire Roberts from the outset. R. D. & O. at 36-37; CX 15 at 328, 334, 347-49, 352-53. Roberts adverted to his contact with DOT at the outset of the meeting, and the meeting itself was set very shortly after Roberts advised Ramia that he had contacted federal officials regarding safety violations at M-D. CX 15 at 326-27, TR at 5052. In addition, Roberts's refusal to drive based on defective wipers was specifically complained about at the meeting by M-D. CX 15 at 345-46. Throughout the meeting Roberts cited the specific federal requirements he believed M-D was violating, and M-D never explicitly stated that its policy met those requirements. Id. at 339-456, 351, 353-60. We therefore must adopt the ALJ's finding that Roberts was fired, at least in part, because he engaged in activity protected under the STAA.
Award of Damages and Back Pay
Compensatory damages
The ALJ awarded Roberts $10,000.00 in compensatory damages, based on his finding that Roberts's testimony regarding his humiliation and emotional stress was unrefuted, credible, and persuasive. R. D. & O. at 42. M-D argues that Roberts offered no evidence supporting his bare allegations, and the ALJ erred in awarding damages. Respondent's Memorandum of Law at 28.
An employer that has violated the employee protection provision may be ordered to abate the violation, reinstate the employee, and pay compensatory damages and lost wages. 49 U.S.C.S. § 31105(b)(3). In this case, the ALJ evaluated the complainant's testimony regarding emotional distress and provided a rationale that is supported by substantial evidence. R. D. & O. at 42.
Back Pay
The ALJ found that Roberts made no effort to seek employment from the day of his discharge until June 3, 2002, and was therefore not entitled to back pay for that period. R. D. & O. at 40. The ALJ awarded back pay from June 3, 2002, until March 6, 2003, for a total of $23,289.85, which included an offset for his interim, incidental earnings, and found Roberts entitled to $646.25 per week until reinstatement. R. D. & O. at 41, CX 16.
MD argues that the ALJ's award of back pay violates the requirement that a complainant must make a reasonable effort to obtain employment and fails to address Roberts's subsequent, part-time earnings. Respondent's Memorandum of Law at 25-27. Roberts contends that he should have received back pay from September 18, 2001, the date his employment terminated. Complainant's Brief at 2.
[Page 15]
A wrongfully terminated employee is entitled to back pay for the period after the termination of employment. 49 U.S.C.A. § 31105(b)(3) (2004). The employee has a duty to exercise reasonable diligence to attempt to mitigate damages. Griffith v. Atl. Inland Carrier , ARB No. 04-010, ALJ No. 02-STA-034, slip op. at 70 (ARB Feb. 20, 2004). However, the employer bears the burden of proving that the employee failed to mitigate. Starceski v. Westinghouse Elec. Corp. , 54 F.3d 1089, 1101 (3d Cir. 1995). The employer can satisfy its burden by establishing that "substantially equivalent positions were available [to the complainant] and he failed to use reasonable diligence in attempting to secure such a position." Hobby v. Ga. Power Co. , ARB Nos. 98-166, 98-169, ALJ No. 90-ERA-30, slip op. at 50 (ARB Feb. 9, 2001). A "substantially equivalent position" provides the same promotional opportunities, compensation, job duties, working conditions, and status. Id.
In this case, substantial evidence supports the ALJ's conclusion that Roberts made no effort to seek employment until June 2002. Roberts admitted as much, explaining that he was working on his OSHA complaint rather than looking for work. TR at 67-70. We therefore reject Roberts's contention that he is entitled to back pay for the period preceding June 3. Moreover, therefore, M-D did not need to prove the availability of substantially equivalent positions between September 19, 2001 and June 3, 2002. After that, Roberts applied to four companies but was able to obtain only a part-time, on-call position as a driver. Id. at 92-95. At that point, M-D had the burden of showing that Roberts was not diligently seeking full-time work by demonstrating the availability of jobs substantially equivalent to the one Roberts had and showing that he made no effort to obtain them. Johnson v. Roadway Express, Inc. , ARB No. 01-13, ALJ No. 99-STA-5, slip op. at 4 (ARB Dec. 30, 2002); see Weaver V. Casa Gallardo, Inc. , 922 F.2d 1515, 1527 (11th Cir. 1991).
M-D argued that Roberts made no effort to find substantially equivalent employment despite the fact the experienced drivers such as he were "in great demand." Respondent's Memorandum of Law at 25. M-D contends that Roberts's decision to "avoid regular work" relieves it of its burden to prove that substantially equivalent work was available. Id. at 26. Also, the ALJ failed to consider Roberts's earnings subsequent to the hearing on August 20, 2002. Id.
We disagree that M-D was relieved of its burden to show the availability of substantially equivalent work. Roberts's alleged lack of diligence in seeking full-time work after he obtained a part-time job in June 2002 did not shift the burden away from M-D. Rather, the burden remained with the employer for the entire time. The ALJ determined that M-D met its burden until June 3, 2002, because Roberts admitted that he was not exercising due diligence in seeking jobs.
After that time, M-D introduced no evidence showing either that Roberts was not seeking a full-time job or that substantially equivalent jobs were available. In fact, Roberts testified that his present employer was trying to provide him full-time work and that he was still doing some contractual work. TR at 94. All M-D did regarding substantially equivalent work was to ask the ALJ to take "judicial notice that there is a great need for truck drivers and finding jobs as a truck driver, if you have a proper license, is not a problem." TR at 19. This is not evidence of the availability of substantially equivalent employment. Therefore, for the period after June 3, 2003, M-D did not meet its burden of proving that Roberts failed to mitigate damages. Accordingly, Roberts is entitled to back pay after June 3.12
[Page 16]
Attorney's Fees
On April 30, 2003, the ALJ issued a Supplemental Decision and Order recommending an award of attorney's fees in the amount of $35,412.50, plus litigation expenses of $825.39, for a total of $36,237.89. M-D's counsel, The Kullman Firm, has paid this amount to Roberts's counsel. Roberts informed the ARB by letter dated May 19, 2003, that he had no objection to the payment of fees to his attorney. M-D has not filed any objection to the amount of attorney's fees awarded. Therefore, we affirm the ALJ's recommended award of attorney's fees.
CONCLUSION
For the above stated reasons, we affirm the ALJ's conclusion that M-D violated the employee protection provision of the STAA by firing Roberts in retaliation for his protected activity pursuant to 49 U.S.C.A. § 31105(a)(1) (A) and (B)(i). We reverse his finding pursuant to subsection (B)(ii), because it is not supported by substantial evidence. In all other respects, we approve the ALJ's recommended decision and order, with the clarification that any earnings Roberts received following the hearing date are also to be deducted in calculating the amount of back pay due until reinstatement or bona fide offer of reinstatement.
SO ORDERED .
JUDITH S. BOGGS
Administrative Appeals Judge
M. CYNTHIA DOUGLASS
Chief Administrative Appeals Judge
[ENDNOTES]
1 Post-trip inspection reports, or driver vehicle inspection reports (DVIRs), are required under the Federal Motor Carrier Safety Regulations (FMCSRs), 49 C.F.R. § 396.11; CX 4.
2 The circumstances under which the second post-trip report was created and given to Roberts are unclear. Roberts testified that Jamison signed the report in front of him and gave it to him. TR at 39. Jamison testified that the report bore his signature but he did not recall completing it. Id. at 192-95. Jeffcoat testified that she found both reports in the truck and that she had earlier written in the date and other identifying information on the second report. She further testified that she did not complete it because the truck's taillights were defective and the truck therefore was unsafe to drive, and that Jamison could not have lawfully driven the truck nine miles because he didn't have the required license. Id. at 125-28, 132-35.
3 Testimony differs as to whether Jamison initially directed Roberts to drive his regular route with the defective wipers; however, it is uncontested that Jamison told Roberts to take the truck to Penske to have the defective wipers repaired, and that Roberts refused to do so.
4 Also unpersuasive was M-D's argument that Hildegardner, the manager who fired Roberts, was unaware of his protected activities and thus could not have discriminated against him. The ALJ found that Roberts announced his contact with DOT at the start of the September 18, 2001, meeting and that M-D's failure to call Hildegardner as a witness "diminished" the strength of its alleged legitimate business reasons for firing Roberts. R. D. & O. at 22.
5 This section prohibits discharge, discipline, or discrimination against an employee regarding pay, terms or privileges of employment because the employee refuses to operate a vehicle in violation of a federal commercial motor vehicle safety requirement.
6 This section prohibits discharge, discipline, or discrimination because a driver refuses to drive based on his or her reasonable apprehension of serious injury to self or the public because of the vehicle's unsafe condition. Section 31105(a)(2) defines such apprehension as a reasonable individual's conclusion in the circumstances that the unsafe condition establishes a real danger of accident, injury, or serious impairment to health. 49 U.S.C.A. § 31105(a)(2). To qualify for protection, the employee must have sought, and been unable to obtain, correction of the unsafe condition.
7 Nor does the transcript reflect any subsequent objections to trying the case on that theory.
8 The record is unclear whether one or both windshield wipers were defective. Jamison refers to the "passenger side" wiper, CX 15 at 346, while Roberts indicates more generally that the wipers were defective, TR at 40. See 49 C.F.R. § 392.7, referring to windshield wiper or wipers. Regardless, it is undisputed that they needed repair, and were repaired. CX 7-8.
9 Under this section, one wiper blade suffices when the vehicle is driven in a driveaway-towaway operation, is part of the property being transported, and has provision for only one blade. There is no indication in the record that the truck in question met those conditions.
10 There is no evidence that being sent home resulted in any loss of pay or otherwise adversely affected the terms or privileges of his employment. Roberts's case focused solely on the claim of wrongful discharge. Complaint at 1, TR at 12.
11 In making this determination we consider only the activities we found protected above, with the exception of Roberts's refusal to drive Truck No. 1 because it had defective brakes. The ALJ made no finding that any adverse action resulted from Roberts's refusal to drive Truck No. 1 on that basis. The record is clear that M-D did not request or demand that Roberts drive the truck, and there is no evidence that M-D considered Roberts's actions with respect to the defective brakes when it terminated his employment.
12 Roberts's entitlement to back pay after June 3, 2002, must, of course, be offset by any earnings from then until he is reinstated. We note that M-D does not challenge the lump sum award of back pay, which was offset by his interim earnings during the period leading up to June 3, 2002, and the restoration of other benefits.