In order to
inspect the work
that would shortly need to be done, preparing and welding certain
spray nozzles, Mr. Tentinger, Benson and Hamilton had to crawl in
the water in narrow areas. They were properly outfitted with
plastic protective clothing of 4 mil thickness, and negative
pressure masks. Nevertheless, in crawling in the confined hot,
area their protective clothing was substantially ripped; all
[Page 3]
three came out soaked with water and sweat; Mr. Tentinger, in
particular, upon removing his mask seemed to be near to heat
exhaustion. The conditions were referred to as miserable.
All three were "frisked" and found to be without
contamination,
although Mr. Hamilton's knee at first caused the machine
to "flicker" indicating there may be some radiation. A recheck
revealed low contamination level.
On Tuesday, May 19, Claimant met with Roger Hassebroek and
Joe Bowen, both boilermakers, who complained that the water was
potentially contaminated and that additionally it was not safe to
weld under those conditions. He apparently went to see the
health physics people concerning possible contamination.
Claimant, thereupon, went to David Kerr, fire marshall for
Iowa Electric, who was acting safety representative for the whole
plant in the absence of Carl Voegeler, on Wednesday, May 20, at
approximately 8:00 a.m. Mr. Kerr told him not to have welding
going in the water. A "hold" had been put on the work during the
previous evening, apparently based on concern over the safety
factor of welding in the water.
Keith Ellingwood and Leon Hamilton, supervisors, upon arriving
to work at approximately 7:45 a.m. learned of the "hold". They
went to the health physics department who told them the problem
concerned an electrical problem; approval to remove the "hold"
would have to be obtained through their supervisor, Kevin Konzem.
Mr. Konzem told them the question related solely to the concern
of welding in water; from a radiologic viewpoint there was no
reason not to continue work in the manner prescribed by the
Radiation Work Permit.
Ellingwood and Hamilton returned to the condenser work area
where the crew awaited resolution of the WP "hold" before they
could go to work. Sartain at that time confronted Ellingwood in
an agressive manner, stating that the work had been shut down by
Dave Kerr. Ellingwood and Hamilton then went into a staff meeting
at approximately 9:00 a.m. At approximately 10:00 a.m., Hamilton
emerged with a termination slip initialled by Mr. Gerald L. Nielsen,
chief manager of the entire project for Bechtel. Hamilton
confronted Sartain and ordered him to go into the condenser to work.
Sartain stated he was not going to go into contaminated water,
[Page 4]
that he would not refuse to work but he would not go through the
water. Hamilton terminated Claimant, who called the NRC from a
phone booth outside the building.
That same afternoon, by apparent coincidence Mr. Sartain was
at the Red Fox Tavern, when Mr. Nielsen and his counterpart from
Iowa Electric, Tracey Lacy, arrived for lunch. Sartain without
provocation verbally abused Mr. Nielsen, followed him outside
and twice punched him, challenging Mr. Nielsen to retaliate.
Testimony
Duane Sartain testified that he had worked 3 or 4 times on
shutdowns for Bechtel over the 18 years he's been a boilermaker
(T-12). He was not told NRC maintained an office on the premises
prior to discharge (T-15, 16). On Saturday's inspection he saw
Mr. Tentinger come out of the condenser gasping, he was sick and
not feeling good. He was frisked for radiation and none was found.
Leon Hamilton was frisked and found that his knees were contaminated
(T-16-18; #1). Roger Hassebroek complained that the working
conditions were terrible and the water might be contaminated
(T-19). Paul Benson told Sartain that Ellingwood and Hamilton
had decided that Bowen and Hasselbroek were going to be pulled
off the job and Sartain was going to do it (T-20). Dave Kerr
told him (Sartain) that no one had to work under the conditions
he explained. He later confronted Benson, Hamilton and Ellingwood
and told them what Kerr had said. They said it had all been
cleared and taken care of and that they could work in there. He
(Sartain) returned to health physics again and asked them if the
water was still contaminated and they said yes no one should be
working there until the water was removed (T-21). He (Sartain)
was aware that Tentinger, Benson and Hamilton had been frisked
and no contamination was found (T44). He knew all personnel had
to pass through the "Blue Max" that detected any radiation (T-46,
45). Everday when he (Sartain) was a foreman, Neilsen would down
and talk to Sartain like he "was a dog". He knew that Bechtel
had installed low wattage electrical lights and brought in an air
powered compressor (T-60, 61). He saw Kerr again after his
confrontation with Ellingwood (T-72). He did not know boards
were coming to take care of the electrical (welding) problem,
and that it had been discussed earlier in the week (T-73).
Sartain has been involved in three other lawsuits involving
employment (T-77). He said to Hamilton that he wanted to see the
NRC. He contacted the NRC on May 21 (T-840 85). He knew the
[Page 5]
layoff would be within a week or 10 days; he expected to get a
job right after the layoff through the union (T-96-98). As
safety marshall he wanted safe conditions for himself and other
workers. He didn't have animosity toward the company, just Mr.
Neilsen (T-100).
Roger Hasselbroek testified: the water he crawled through
was "crapped up". The HP told him not to crawl in it. Sartain
told him not to go back in the water when he saw him the next day
(T-110-113). Concerning the confrontation with Hamilton, he
stated:
"Duane came back and asked if he was going
to do anything about that crapped up water.
Leon says they are going to put boards in
the work area and that was it, but he still
had to crawl through the water to get to the
work area. Leon asked if he was refusing to
crawl through the crapped up water. Then
they had an argument." (T-117).
Hasselbroek felt his complaint about the water to Sartain was a
formal complaint (T-131). In his opinion, the water could have
been vacuumed out in a short time if they fixed the leaky valve,
but the company did not want to take time to do that (T-155-157).
Joe Bowen testified: that Hasselbroek came out of the
condenser wet and said it was potentially contaminated. Bowen
had been contaminated before and it was no fun. They were, also,
concerned about the welding being done in water (T-140, 141). He
discussed the matter with Sartain, considering it a complaint
(T-142). After Sartain was discharged, carpenters came to put
boards in place, the ladder was changed so that it shortened the
distance to the work place (T-146, 147). He understood that a
leaky valve was causing the water problem. For safety's sake,
the water should have been removed, or planks put down throughout
the floor of the condenser (T-151-153).
Dave Kerr testified: when an unsafe condition is reported
he tries to follow-up and find out what the condition is and
correct it. He can stop work process of Bechtel if a condition
is unsafe. He didn't know Sartain before his telling him at 8:00
a.m. May 20, that the condenser was unsafe for welding and was
contaminated (T-160, 161). He (Kerr) contacted health phsyics
[Page 6]
who said from a radiological standpoint he had no problem. He
suggested they try to stop the leaking. He called Marie Honey
Miller who indicated she was not in charge of the project, but
would find out who was (T-162, 163). At that point Mr. Sartain
left; he next saw him coincidently at the Red Fox Tavern at noon.
Kerr had told Sartain to try to pump out the water and not do
welding (T-163). At 10:00 a.m. he was paged by Ellingwood who
told him they had built a scaffold in the condenser bay and
provided heavier plastic protective clothing. Kerr said as long
as the workers were not soaking wet and were not standing in
water when they were welding they could go ahead with the work
(T-164). He had thought that Sartain and his crew would do the
welding (T-166-168). At the Red Fox he was "flabbergasted" to
learn that Sartain had been the safety marshall that week and
"dumbfounded" to learn he'd been fired for reporting the safety
concern to him (Kerr) (T-168-169). He (Sartain) also mentioned
something about going to NRC, Kerr believed Sartain was sincere
in reporting the unsafe condition (T-170). His main concern was
that of welders standing in water, however, he also, discussed
contaminated water (T-175). Iowa Electric and Bechtel have a
high commitment to safety (T-174). Kerr conveyed to Sartain that
there was no radiological problem according to health phsyics
(T-176). Mr. Ellingwood told Kerr that the carpenters would
place "scaffolding" in the condenser, and that low voltage would
be used (T-179-181).
Henry McQueen , a boilermaker, testified: he helped make a
weld after Sartain was fired. The welder had his feet in the
water. Mr. Benson told him the water was potentially contaminated
(T-186-188). They had trouble setting up the boards and moving
the ladder (T-190). He checked with the HP himself and was
satisfied there was not a high level of radiation (T-192). He
thought they could have squeegeed up the water (T-198).
Paul Benson testified: that in his opinion Sartain expressed
a legitimate safety concern on May 20, but that at the time of
discharge he did not express a legitimate safety concern. He was
fired because of the confrontation with Hamilton more so than
because of the safety concern. In order to work in the condenser
a confined space entry permit was needed, as well as radiation
work permit (T-204). The RWP spelled out safety precaution such
as mask and plastic rain coat, and shoe covers and rubber shoes.
The work conditions were miserable (T-206). He reported the HP
changed the RWP to 8 mil suits since the lighter ones ripped. In
[Page 7]
order to fix the leaky valves, if repacking was needed it would
take 2 weeks, replacing would take a little longer. He asked BP
about pumps; he concluded it would be hard to get the water out
(T-206-209). He thought he would be contaminated since he was
soaking wet on the Saturday inspection; but he checked it out and
wasn't (T-211). On May 20 there was an HP hold on the job at
different periods in the morning. Sartain expressed to Hamilton
and Ellingwood a concern about contaminated water and the
electrical-welding problem. Mr. Ellingwood said they would take
care of it; the discussion was heated (T218, 219). Sartain started
the confrontation (T-220). Hamilton (and perhaps Ellingwood)
came back later and said that the safety people and the HP people
had approved the work provided that the boards had gone in.
Benson ordered these (boards) just before break; to his knowledge
nobody else had (T-220-223). He (Benson) was told to assign the
work assigned previously to Bowen and Hasselbroek to Sartain.
Benson opined this was as a result of the confrontation (T-224).
This was done before he had knowledge of approval of all the
safety and HP people. He did not know whether he had approval
from Kerr (T-225). At that time there was a reasonable safety
concern for both the welding and grinding on the prep(aration)
because the boards were not down (T-225). Benson had no intention
of sending anybody down into the bottom of the condenser that
morning until the boards were in place (T-226). Hamilton came
back and Sartain had a heated discussion with him. Sartain
repeatedly said he would not go through contaminated water. He,
also, said the job was unsafe and he would see the NRC. Benson,
thought the contamination concern was not reasonable, but that
Sartain had a legitimate and serious concern. He had no knowledge
that Sartain had ever been told the planking would be installed
(T-226-229). He was told to assign Sartain the job because he
would refuse it, and thus could be discharged (T-230). The job
was to replace a broken spray nozzle (T-232).
Mr. Richard Rockill , mechanical maintenance supervisor, for
Iowa Electric, testified: that the water was coming from leaking
exhaust hood sprays as well as drain lines. The water could have
been squeegeed out, but it would have come right back in (T-243-
245).
Kevin Konzem , health physics foreman, testified: the initial
surveys revealed low levels of contamination and low dose rates.
There was sufficient protection from contamination (T-247-252).
He spoke to Ellingwood and Hamilton at 8:30 a.m. on May 20, who
[Page 8]
wanted to know the reason for the hold on work at the condenser
bay. Konzem checked it out and found that the hold had been put
on by Dave Kerr, who should be consulted (T-254-259). Mr. Konzem
never conveyed the information directly to Sartain. The radiation
work permit states contamination levels, radiation levels, as
well as the protective clothing requirements for entry (T-265).
Keith Ellingwood , testified: that Sartain was discharged for
challenging me to fire him and the method he did that (T-275). He
explained the safety precautions needed to be followed in nuclear
plants during such repairs, including; a hot work permit, for
grinding, burning or welding, combustible permit for cleaning
solutions or equipment, confined entry permit and radiation work
permit. In addition, Iowa Electric had an As Low As Reasonably
Achievable Program (ALARA), to achieve the lowest possible
radiation doses (T-271-278). Leon Hamilton, Paul Benson and he had a
meeting on Monday morning after the Saturday inspection. They
discussed what needed to be done in order to do the job safely.
Also, a low voltage lighting system was discussed, utilizing air
power tools instead of electric powered grinders, drills, and
saws (T-297-299). Also, Mr. Benson was to talk to the HP's on
contamination, suggested heavy duty suits; also, fresh air.
There should not have been a reasonable radiological concern.
They asked the night shift on Tuesday to fabricate the planking
and install it. It had not happened on Wednesday morning. The
boards were not required from an HP standpoint or a safety stand-
point for personnel to take measurements and to do some checking
on the grinding and fit up the joints (T-299-300).
He was disturbed Wednesday morning that the planks were not
yet installed. He went to the HP desk to find out what the hold
was about. He found out the night shift log had a concern about
safety of welding with water present in the bottom of the condenser.
He then went over to see Mr. Hamilton and Kevin Konzem at 7:45-8:00
a.m. He asked Mr. Konzem whether he was aware of the hold on the
work in the condenser. He found out it was a safety concern for
insulating the welders. Mr. Konzem said there was no radiological
danger (T303).
Mr. Hamilton and he (Ellingwood) then went to inform Mr.
Benson that there was no hold on the job, the only concern was
about the welder and how it was going to be insulated.
"About that time Mr. Sartain walks through the entrance door
[Page 9]
into the turbine building and announces in a very loud voice that
(he has) a hold put on this job. Going to have to pump the
condenser out and dry it out before we go down there and do anymore
work. Dave Kerr says we cannot do anymore work in there until we
do that." (T-305). There was no real way to pump the water out,
water was leaking into the condenser from various drain systems.
The isolation valves are not designed to be 100% leak free. The
condenser is usually a wet environment anyway (T-306). It would
be a substantial period of time to get the water out of the
condenser. In his opinion it would not have been worth trying to
get the water out. Sartain walked up to Ellingwood, Hamilton,
and Benson and made the comments; at the time there was a group
of boilermakers around. Sartain said Kerr told him they were not
going to send a welder down there to stand in water and make a
weld. Ellingwood told Sartain they were not gong to send a welder
in there. Sartain started getting louder. Ellingwood told him
that they were not going to send welders down without putting
boards down. Sartain didn't want to hear about it (T-307).
Ellingwood told Hamilton they'd go to see Dave Kerr. "At
that point Mr. Sartain took a definite step forward, leaned up
with his face several inches away from mine and very loudly stated
well I am not going to crawl through that contaminated water and
if you do not like it you can fire me. " Everything before had
been safety, the contamination standpoint sounded like a challenge
for Ellingwood to fire him (T-308). Six to ten people were
around. Ellingwood turned and left to see Mr. Kerr. Sartain had
assumed a "fighting stance". He then asked Mr. Hamilton to follow
him to see Mr. Kerr at about 8:20 - 8:40 a.m. (T-309). A status
meeting was held at 9:00, including Mr. Nielsen. Ellingwood had
problems finding Mr. Kerr (T-310).
Mr. Kerr told him that as long as the welder had an insulating
platform to lay on and as long as he was not soaking wet when he
got on the platform and started to weld he had no problems with
it at all. He told Mr. Hamilton that he should get everything
started. He (Ellingwood) would see Mr. Nielsen. Ellingwood felt
Sartain should be given the opportunity to go to work or refuse
work (T-311). I told Mr. Hamilton to send Mr. Sartain in the
condenser and if Mr. Sartain refused to go that he was to be
terminated for refusal of work as directed (T-312).
He went over to Bechtel's construction office and caught Mr.
Nielsen going into the conference room for the regular staff
[Page 10]
meeting and explained to him very briefly that there was a problem
with Sartain and it may end with him being fired. Mr. Nielsen
said O.K. Safety was not discussed (T-313).
Approximately 9:40 a.m. Mr. Hamilton appeared and had the
termination slip in his hand, Ellingwood signed it. Mr. Nielsen
initialed it (T-314). He never told Mr. Sartain of his second
conversation with Mr. Kerr. Ellingwood felt Sartain expressed a
legitimate concern with respect to safety but not contaminated
water. It was the first time he raised it (T 322-323).
Bruce Tentinger , testified: that when he went in for the
inspection on Saturday he was concerned that the water might be
"crapped up". He was wet from knees to chest; he felt terrible
at the end of the one hour inspection, sick to his stomach,
approaching heat exhaustion (T-282-285). No detectable levels of
contamination were found when he was frisked (T- 287). He did
not tell Sartain he got a clean bill of health (T-292). If
Sartain had a genuine safety or health problem he should have
discussed it with him (Tentinger) (T-204).
Leon Hamilton , testified: that he frisked himself after the
inspection and noticed a meter "flicker" on his left knee.
Checked with HP who found no contamination (T-330). In a Monday
meeting low voltage lights, fresh air and planking for welders
were agreed on. An order was put in on Monday with carpenters to
get planking done, but it was not done on Tuesday or Wednesday
(T-332, 333).
He went about jobs to be done on Wednesday, his first stop
was the condenser. Job had been put on hold, according to Mr.
Benson, by the health physics. HP said they could not weld
without putting down planks. Hamilton said they were going to
put down planks (T-335). Ellingwood and he (Hamilton) then went
to Kevin Konzem's office. Konzem didn't know why the work was on
hold (T-336).
Keith Ellingwood and he went back and were talking to Paul
Benson about what they were going to do, no welding was to be
done in the water. At that point Duane came in and in a loud
voice said, he had this job shutdown because of safety (T-337).
He (Hamilton) tried to explain to Sartain what had been done in
the area. They went to see Dave Kerr and explained what was
going to be done.
[Page 11]
Keith Ellingwood told him (Hamilton) to give Sartain instructions
to go on the job (T-338, 339). He had explained the condition
to Mr. Sartain, having lights, fresh air, etc. (T-341).
Hamilton at first felt there was a legitimate concern about
safety, but at the time of confrontation the only complaint was
going into the water (contamination). Hamilton gave Sartain the
slip of termination; he called NRC from the pay phone outside the
building (T-345-348).
In a deposition of October 2, 1987, Gerald R. Nielsen ,
project superintendent, the senior Bechtel representative on the site,
testified: Ellingwood was visibly upset by his confrontation
with Sartain when Nielsen saw him at the 9:00 a.m. meeting, May
20. Ellingwood assured Nielsen they had resolved the safety
issue and that there was no reason that the men shouldn't go to
work as directed (Dep- 14, 15). He initialed a termination slip
for Sartain at approximately 10:00 a.m. (Dep- 19, 20). On
cross-examination, Mr. Nielsen stated that Bechtel tries to take
care of problems internally; it can then go to the Iowa Electric
people. He denied retaliation against employees who go directly
to Iowa Electric (Dep- 34).
Conclusions
The threshold inquiry is whether Claimant, Duane Sartain was
involved in a protected activity under the Act. Employer contends
that an internal safety complaint in not protected under the Act,
relying on Brown & Root v. Donovan , 700 F.2d 281 (5th Cir. 1985).
The Courts have split of this issue. However, the majority view
would appear to be that internal complaints are protected under
the ERA and like statues; Mackowiah v. University Nuclear Systems ,
735 F.2d 1159 (9th Cir. 198-4); Phillips v. Department of Interior
Board of Mine Appeals , 500 F.2d 772 (D.C. Cir. 1974), cert.
denied , 420 U.S. 938 (1975); Kansas Gas & Electric Company v.
Brock, 780 F.2d 1505 (10th Cir. 1985). Moreover, the Secretary
of Labor has unequivocably taken the position that internal
complaints are protected under the ERA; Mackowiah v. University
Nuclear Systems, Inc ., 82-ERA-8 (April 29, 1983); Wells v.
Kansas Gas & Electric Company, et al , 83-ERA-12 (June 14, 1984);
Pensyl v. Catalaytic, Inc ., 83-ERA-2 (January 13, 1984).2 I
further note that as acting safety marshall, Claimant had an even
more natural role as a protected employee. Further, even assuming,
arguendo , internal complaints are not a protected activity, here,
[Page 12]
Claimant did state his desire to complain to the NRC of a safety
violation. Employer questions, however, both Claimant's motives
and timing. With respect to the latter, Employer, disingenously
contends that the determination to terminate Claimant was made
before he expressed his desire to complain to the NRC. Employer
in effect is, on the one hand, stating Claimant should first make
his complaints internally, but on the other hand, asking the Court
to sanction a "fast termination" before Claimant took his complaint
up the chain of command in an attempt to resolve the problem
without calling on NRC. Moreover, had Claimant acted precipitously
and gone to NRC before attempting to resolve the problem, he would
have violated his duty as an employee in not permitting Employer
time to solve its own problems. In short he utilized the internal
complaint procedure specified by Employer. So far as motivation
is concerned, absent a finding of a frivolous complaint, the
motivation of an employee in reporting a safety violation need
not be 100% pure, and is basically irrelevant.
I, also, find Mr. Sartain reported a legitimate safety
violation, and that his termination was not solely for a deliberate
confrontation and clear and direct challenge to the authority of
his supervisors as contended by Employer. With respect to
Claimant's underlying reasons and state of mind at time of
termination, Employer in its post-hearing brief contends (pp. 18-20):
"The nub of the question of what was in Mr.
Sartain's mind is contained in the
administrative law judge's single question to Mr.
Sartain whether his safety complaints were a
"coincidence". (Tr. 98:9-11). Sartain was
aware that the job would last, at most, ten
days. (Tr. 98:2-5). Even if it had not been
at a nuclear facility, the work was unpleasant
in the condenser and, all things equal, Sartain
would have preferred not to perform that work.
Moreover, Sartain clearly knew of the number
of levels of regulation of anything involved
in the nuclear power industry and the extremely
close scrutiny focused upon owners and
contractors in the industry. Sartain's past
experience clearly suggests he would have been and
was aware of the heavy regulation of the industry."
[Page 13]
Employer eloquently proceeded to point out Claimant's past
legal actions, his switching from the issue of safety to
contamination and his use of the NRC issue at the appropriate time.
While I find Employer's position to have merit, and based
upon my observation of Claimant, his past history and all
circumstances of the case, probably a valid explanation of Claimant's
primary underlying motivation, nevertheless, Employer's comments
concerning Claimant's actual state of mind are speculative.
On the other hand, two of Claimant's fellow workers, Joe
Bowen and Roger Hassebroek felt they were making formal complaints
to Mr. Sartain; in turn it was his duty as safety marshall to
investigate the situation and relay the concerns up the chain of
authority. Paul Benson felt the concern was legitimate and even
Employer's witness Mr. Ellingwood felt, at least in part, Sartain's
complaint concerning welding was a legitimate concern.
Moreover, Employer was not without fault so far as the
"confrontation" was concerned. The "hold" established on Wednesday
morning at 8:00 a.m. was obviously of immediate concern to Mr.
Ellingwood and Hamilton since it delayed start of work. After
one confrontation at approximately 8:30 a.m. between Ellingwood
and Sartain, Ellingwood obtained the termination slip and then
"set-up" Claimant's discharge by asking him to go into the
condenser area. While Claimant may have "switched" between
expressing concern over the safety factor of welding and "contaminated"
water, the testimony is clear that both concerns had been
consistently voiced by him. Crucially, Employer had already
decided to terminate Claimant before the safety problems and
proposed solutions were adequately presented to Claimant.
Moreover, while the evidence is not clear, Mr. Benson's testimony
might indicate that Sartain already knew the company intended to
get him terminated when he confronted Ellingwood on May 20 and
may partially explain, if not excuse, his belligerence at that
time. A motivation is not difficult to find, since Sartain had
taken his case directly to Bechtel's contractor, Iowa Electric,
thus bypassing and potentially embarassing Bechtel.
I further find that Claimant was clearly discharged for
reporting a safety violation. While Employer's allegation of
insubordination in its own mind and that of its agent may be
correct, there is little question that it involved an alleged
safety violation. It is unnecessary, therefore, to discuss "dual
[Page 14]
motive".
In Pensyl v. Catalytic, Inc ." 83-ERA-2 (1984), the Court
stated: "A worker has a right to refuse work when he has a good
faith, reasonable belief that working conditions are unsafe or
unhealthful. Whether the belief is reasonable depends on the
knowledge available to a reasonable man in the circumstances with
the Employee's training and experience." This principle was force-
fully restated in David H. Smith v. Catalytic, Inc ., 86-ERA-12
(Decision and Remand Order, May 28, 1986): "It is clear from the
record that Mr. Smith was fired for refusing to work in what he
believed was an unsafe area. if that belief was reasonable in
the circumstances, Mr. Smith was engaged in a protected activity
and discharging him for it violated the Act."
The facts of this case present a very close question as to
whether Sartain had a reasonable belief of unsafe working
condition. As an 18 year boilermaker who had worked on many nuclear
plants and in construction, Sartain was aware of the dangers of
electrical welding in water as well as of contamination from
water in nuclear facilities. He, also, should have been aware of
the numerous precautions required and taken at such facilities.
That Sartain was subject to emotional outbursts appears certain;
that he could have more cautiously discovered the precautions
taken by Employer would not seem unreasonable. His approach to
Ellingwood seemed, at a bare minimum, to have been unwarranted and
disrespectful, if not confrontational. Nevertheless, crucially,
Claimant had a legitimate safety concern that had not been remedied
and which he had not been given full and adequate knowledge was
being addressed. While Employer followed up through Mr. Hamilton
and Ellingwood on both the welding and contaminated water problems,
the information as to what was to be done was not conveyed back
to Mr. Sartain before the confrontation. At that time, both Mr.
Ellingwood and Mr. Sartain were in an emotional confrontational
state and may not have focused on accurately and reasonably
communicating information. Mr. Kerr, in particular, had not
conveyed the fact that the carpenters were to put in scaffolding
for the welders. While Employer operated a safe plant, in this
instance they did not communicate in a reasonable manner, that
all safety precautions were being taken.
The ordering of Mr. Sartain into the condenser was a very
thinly guarded attempt to have him discharged. At the time
Hamilton already had his discharge slip in hand, "proof in the
[Page 15]
pudding." This action itself may have been discriminatory, in that
Claimant was required to do a different job because of his report
of a safety violation.
Mr. Sartain's position on potentially contaminated water is
much more tenuous. Having worked several months on the project
he should have known of the several permits and daily monitoring
required in order for work to proceed. Mr. Sartain apparently
made little attempt to further inquire as to whether the other
workers had experienced any contamination difficulties. On the
other hand, it could be argued that since the water was leaking
our of valves and the area was potentially contaminated, efforts
should have been made to keep all water out of the area. The
evidence was contradictory and inconclusive as to the feasability
of removing the water.
A concern was, also, expressed by Mr. Benson that even the
grinding preparatory to welding was unsafe under the circumstances.
The matter was not adequately addressed at the hearing. Mr.
Sartain apparently did not discuss this with Mr. Kerr or anyone
else.
Remedy
As discussed earlier, in my opinion this matter has
unfortunately arisen over primarily an employer/employee dispute,
involving a matter determined in the "heat of passion."3 It
could and should have been resolved amiacably without a hearing;
the matter does not rise to the dignity of what I believe a
"whistleblower" case entails; i.e. it lacks the interest in
public safety. While safety is, always, an important concern,
here only a few employees are involved; the public is not at
risk. Moreover, I wish to make it clear that while I find, based
on precedent and the overarching concern that the principal of
safety provided for under the Act be upheld, the actions and
probable motivation of Claimant were not what would usually be expected
of an employee. Claimant appeared to me to be more a combatant
for his own ego than a public spirited true "whistleblower". The
violation by Employer was of a technical rather than insidious
nature and could have been avoided by the slightest patience on
Employer's part. Additionally, perhaps in an attempt to have a
strong safety program, too many players were involved; in the
resulting confusion time was lost and supervisors became
[Page 16]
frustrated.
The remedy here fits the circumstances. Claimant knew the
job would last only one or two weeks longer; he would have other
jobs through his union. The statutory scheme of section 5851 is
to make an employee whole. Under other labor statutes, back pay
liability is cut off as of the date the employee's job would have
been terminated. Archchumbault v. United Computing Systems ,
Inc ., 786 F.2d 1507 (11th Cir. 1986); Foreman v. Fathers Union ,
557 F.2d 988 (2nd Cir. 1977). I find an award of 1 1/2 weeks
pay is appropriate. Neither the law nor equity demands more.
With respect to the issue of rehire, Claimant should not be
penalized for reporting an alleged safety violation. On the
other hand, Claimant's unprovoked assault on Gerald Nielsen, the
highest Bechtel representative on the site, is unjustified under
any circumstances including a discrimatory firing and could
constitute a separate offense.4 Mr.
Ellingwood testified that
"not eligible for rehire" indication on termination ordinarily
would remain in effect only 30 days according to standard company
practices. I find that Mr. Sartain's action against Mr. Nielsen
should be reevaluated under all the circumstances, as well as the
notation of "ineligible for rehire". This notation should not be
continued because of the circumstances of termination. Such
reevaluation should be made by an official of Bechtel other than
Mr. Nielsen.
Attorney Fees
Claimant's attorney has requested attorney fees for 100
hours at $120.00 per hour, for a total of $12,000.00 but has not
documented the hourly work. Employer has requested the hours of
work be specifically stated by affidavit. (Posthearing brief,
footnote 12). Attorney fee awards are based on the competence of
counsel, the complexity of the case and the amount of the award.
Claimant's counsel demonstrated a high degree of professional
competence, requiring marshalling of substantial evidence; however,
the award is not substantial. The requirement of expenditure of
attorney time may have been caused either by Employer's or
Claimant's intransigence. Nevertheless, an award cannot be granted
without submission of detailed time records. Claimant's counsel
is requested to forward a detailed list of hours expended and for
the purpose of each so that a supplemental decision and order can
[Page 17]
be made after a 10 day period for Employer's rebuttal.5
ORDER
1. Employer, Bechtel Construction Corporation
shall pay Claimant, Duane Sartain, for one
and one half weeks wages as compensation for
their discrimatory discharge of Mr. Sartain.
2. Bechtel shall review their determination of
"not eligible for rehire" of Mr. Sartain in
light of all the circumstances of this matter,
as indicated in this Decision and Order.
JOHN C. HOLMES
Administrative Law Judge
[ENDNOTES]
1 Conflicting testimony resulted on
whether or not the water
could be efficiently "squeegeed" out.
2 In Brown & Root , the
court cited the specific language of the
Act did not apply to internal complaints, the legislative history
does not support an extention of section 5851, and that the
section was designed to protect from retaliation corporate "whistle
blowers who inform repsonsible official of corporate failings".
(pp. 1031). Noting that the Act elsewhere provides for sanctions
against corporate officials who do not act on internal corporate
reports, the Court concludes (pp. 1024)- "Thus the overall plan
of the ERA is to maintain public safety not restructure the
employer-employee relationship." I find this argument persuasive.
As here and in probably the large majority of "whistleblower"
cases, by encompassing internal complaints as protected under the
Act, the real purpose of the whistleblower has been trivialized
from one of acting alone in the public interest to (often petty)
grievances involving employer/employee relationships. (See,
Joseph Guttman v. Passaic Valley Sewerage Commissioners , 85-WPC-2
(ALJ) (April 17, 1985).
3 While the
"confrontation" concerning an alleged safety
violation involved Mr. Sartain, Mr. Ellingwood, and Mr. Hamilton, the
failure to remedy the situation could have been through the
strong willed refusal to compromise of either Claimant or Mr.
Nielsen. Claimant on the one hand, felt Mr. Nielsen talked to him
"like a dog", he was so angered at Mr. Nielsen that he unprovokedly
punched him shortly after discharge. Mr. Nielsen undoubtably
upset at the work being closed down by Claimant, was willing to
sign a termination slip on 15 minutes notice with no investigation.
He was undoubtably not happy with being verbally and physically
abused by an employee several levels below him in authority, and may
have been unwilling to compromise after the incident.
4 Employer in post hearing
argument disingenuously cites
Claimant's own testimony that his altercation with Mr. Nielsen
was unrelated to his discharge, and that therefore, Claimant
should be paid only 1/2 day (i.e. he would have been discharged
anyway). Despite Claimant's contention it is obvious he punched
Nielsen as a result of the anger occasioned by his discharge.
5 To approve attorney fees is an
onerous burden since the
attorneys themselves are best aware of the time required for
preparation of a case, the attempts at settlement etc. It is to
be hoped that counsel can mutually agree on a reasonable attorney's
fee for Claimant's counsel, which would appear to be in the nature
of 2/3 of that requested, and that submission of a detailed
request to this Court would be unnecessary.