Section 1614.401(a)-(e) identifies those entitled to file appeals to the Commission. Section 1614.402(a) provides that appeals to the Commission must be filed by an appellant within thirty (30) days(1) of receipt of an agency's dismissal, final action, or decision. If the complainant is represented by an attorney of record, the 30-day time limit shall begin to run from the date of receipt by the attorney of the notice of dismissal, final action, or final decision. If an agency determines not to implement the decision of an Administrative Judge either in full or in part, it must notify the complainant of its determination in a final order issued within forty (40) days of its receipt of the Administrative Judge's decision and it must simultaneously file an appeal with the Commission. All such appeals must be filed with the Commission at the following address:
Equal Employment Opportunity Commission
Office of Federal Operations
P.O. Box 77960
Washington, DC 20013
As an alternative to mailing, appeals may be hand-delivered to:
Equal Employment Opportunity Commission
Office of Federal Operations
131 M Street, NE
Suite 5SW12G
Washington, DC 2050
As a further alternative, appeals may be sent by fax to:
(202) 663-7022
The appellant shall furnish a copy of the appeal to the opposing party at the same time it is filed with the Commission. In or attached to the appeal to the Commission, the appellant must certify the date and method by which service was made on the opposing party.
The individual appellant should use EEOC Form 573, Notice of Appeal/Petition. A copy of the Form is attached as Appendix K to this Management Directive. The agency shall attach a copy of EEOC Form 573 to all decisions, actions, and dismissals of equal employment complaints. The Commission has prepared a separate form that agencies may use to file appeals with the Commission. A copy of that form is attached as Appendix O.
(1) where the agency's final action/final order advises the complainant that the agency accepts the Administrative Judge's decision, the agency will advise the complainant that s/he has thirty (30) days from the date the complainant receives the agency's final order to file an appeal of the final order.
(2) the agency's failure to take final action by issuing a final order within this 40-day review period will be deemed acceptance of the Administrative Judge's decision;
(3) the complainant's 30-day period for filing an appeal of the agency's final order/Administrative Judge's decision begins at the conclusion of the agency's 40-day review period;
(4) where the agency's final action/final order advises the complainant that the agency has determined not to fully implement the Administrative Judge's decision, the agency must file an appeal of the Administrative Judge's decision simultaneously with notifying the complainant of its determination (providing the complainant with a copy of the appeal) and advise the complainant of his/her right to file a separate appeal of the Administrative Judge's decision within 30 days of the complainant's receipt of the agency's final order.
When the Administrative Judge issues a procedural dismissal, s/he must advise the complainant that the complainant will have the right to file an appeal of the agency's final order within 30 days of the complainant's receipt thereof.
A petition to vacate a resolution may be filed with the Administrative Judge asserting that the resolution favors only the class agent or is not fair, adequate, and reasonable to the class as a whole. An Administrative Judge's decision that a class action settlement agreement is fair, adequate, and reasonable binds all members of the class. The decision must inform the petitioner of the right to appeal the decision to the Commission. The decision must include a copy of EEOC Form 573, Notice of Appeal/Petition.
An Administrative Judge's decision that a resolution is not fair, adequate, and reasonable vacates the agreement between the class agent and the agency. The decision must inform the class agent, the petitioner, class members, and the agency, of the right to appeal the decision to the Commission. The decision must include a copy of EEOC Form 573, Notice of Appeal/Petition (Appendix K). The agency may use the separate form at Appendix O for filing its appeal with the Commission.
An agency final action involves agency issuance of a final order to the complainant. The final order informs the complainant whether the agency will fully implement the decision of the Administrative Judge and contains notice of the complainant's right to appeal to EEOC. The term "fully implement" means that the agency adopts without modification the decision of the Administrative Judge. If the agency's final order advises the complainant that the agency will not fully implement the decision of the Administrative Judge, the agency must file an appeal of the decision with EEOC simultaneously with issuing the final order to the complainant. In this way, an agency will take final action on a complaint referred to an Administrative Judge by issuing a final order, but it will not be provided with the opportunity of introducing new evidence or writing a new decision in the case. The agency may use the form attached hereto as Appendix O to file its appeal with the Commission. Whether the agency's final order advises the complainant that the agency will or will not fully implement the Administrative Judge's decision, the agency must provide the complainant with a copy of EEOC Form 573, Notice of Appeal/Petition (Appendix K).
Where the agency issues a final order in which it agrees to fully implement the Administrative Judge's decision, the order must inform the complainant that s/he has the right to file an appeal of the Administrative Judge's decision and agency's final order.
The agency further must inform the complainant that s/he must file an appeal within 30 days of his/her receipt of the agency's final order and the agency must provide the complainant with a copy of EEOC Form 573, Notice of Appeal/Petition (Appendix K).
Where the agency issues a final order through which it informs the complainant that it does not intend to fully implement the Administrative Judge's final decision, the agency's final order must inform the complainant that the agency, simultaneously with the issuance of its final order to the complainant, has filed an appeal of the Administrative Judge's decision with the Commission. The agency may use the form appended hereto at Appendix O to file its appeal with the Commission.
The agency must provide the complainant with a copy of the appeal. The final order further must inform the complainant of the following:
(1) the complainant may file a separate appeal of the agency's final order;
(2) the Commission, as a general rule and in the absence of a separate appeal from the complainant, will review only the agency's decision not to fully implement the Administrative Judge's decision; and
(3) if the complainant contends that the Administrative Judge erred either in any rulings made during the pendency of the action or in the decision, the complainant must file a separate appeal from the agency's final order to challenge such errors.
The final order must inform the complainant that any such appeal must be filed within 30 days of the complainant's receipt of the final order and the agency must provide the complainant with a copy of EEOC Form 573, Notice of Appeal/Petition (Appendix K).
In any case where the agency issues a final decision (e.g., where the complainant elects to have the agency issue a final decision following completion of the investigation or in a class action case, where the agency issues the decision on the merits of class complaints), the agency must inform the complainant of his/her right to file an appeal with the EEOC and provide the complainant with a copy of EEOC Form 573, Notice of Appeal/Petition (Appendix K). The agency further must inform the complainant that any such appeal must be filed within 30 days of complainant's receipt of the agency's final decision.
Where the agency issues a decision dismissing a complaint in its entirety pursuant to § 1614.107(a), the agency must inform the complainant of his/her right to file an appeal with the EEOC and provide the complainant with a copy of EEOC Form 573, Notice of Appeal/Petition (Appendix K). The agency further must inform the complainant that any such appeal must be filed within 30 days of complainant's receipt of the agency's dismissal decision.
The agency must advise the complainant that s/he may appeal a final agency decision on a mixed case complaint by filing the appeal with the Merit Systems Protection Board (not the EEOC). The agency further must inform the complainant that any such appeal must be filed within 30 days of his/her receipt of the agency's decision. For a fuller discussion concerning the processing of mixed cases, see Chapter 4, Section II of this Management Directive.
The Commission's regulations governing appeals to the Commission are located at subpart D of Part 1614. Section 1614.401 sets out who may appeal to the Commission when an issue of employment discrimination is raised either alone or in connection with a grievance, settlement, or a Merit Systems Protection Board (MSPB) claim.
The agency may use the form appended hereto at Appendix O to file its appeal with the Commission.
An Administrative Judge's decision to vacate a proposed resolution of a class complaint on the grounds that it is not fair, adequate, and reasonable to the class as a whole. The agency may use the form appended hereto at Appendix O to file its appeal with the Commission
The complainant, agent, grievant, or individual class claimant (hereinafter appellant) must file an appeal by mailing the appeal to:
Equal Employment Opportunity Commission
Office of Federal Operations
P.O. Box 19848
Washington, D.C. 20036
As an alternative to mailing, appeals may be hand-delivered to:
Equal Employment Opportunity Commission
Office of Federal Operations
1801 L Street, N.W.
Washington, D.C. 20507
As a further alternative, appeals may be sent by fax to:
(202) 663-7022
The appellant should use EEOC Form 573, Notice of Appeal/Petition (Appendix K), and should indicate what is being appealed.
The agency also should file an appeal with the Commission by mail or hand-delivery at the above-noted addresses, or by fax at the telephone number noted above. The agency may file its appeal by using the form appended hereto at Appendix O to file its appeal with the Commission and/or by providing the Commission with a copy of the order it sends to the complainant.
Where an agency files an appeal simultaneously with providing the complainant with a final order indicating that it does not intend to fully implement the decision of the Administrative Judge, the complainant need not file a separate appeal as a prerequisite to Commission review of the propriety of the agency's decision not to implement the Administrative Judge's decision. If, however, the complainant believes that other issues presented in his/her complaint and addressed by the Administrative Judge were wrongly decided, or if the complainant believes that the Administrative Judge's decision contained errors, the complainant should file an appeal from the agency's final order in order to ensure that the Commission will address these issues as well. Although the Commission has the right to review all of the issues in a complaint on appeal, it also has the discretion not to do so and may focus only on the issues specifically raised on appeal.
The appellant shall furnish a copy of the appeal to the agency at the same time it is filed with the Commission. In or attached to the appeal to the Commission, the appellant must certify the date and method by which service was made on the agency.
The agency must certify to the Commission that it has provided the appellant with a copy of the order in which it advised the appellant that it did not intend to fully implement the Administrative Judge's decision, that it informed the appellant of his/her right to file an appeal of its decision and provided the appellant with information as to how s/he may file an appeal, and that it provided the appellant with a copy of EEOC Form 573, Notice of Appeal/Petition (Appendix K).
If an appellant files an appeal beyond the applicable time limits, the Commission may dismiss the appeal. The agency should advise the complainant in its dismissal decision or final order that if s/he files his/her appeal beyond the thirty (30) day period set forth in the Commission's regulations, s/he should provide an explanation as to why his/her appeal should be accepted despite its untimeliness. If the appellant cannot explain why his/her untimeliness should be excused in accordance with § 1614.604, the Commission may dismiss the appeal as untimely.
The appellant may file a brief or statement in support of his/her appeal with the Office of Federal Operations. The brief or statement must be filed within thirty (30) days of filing the notice of appeal.
The agency may file a brief or statement in support of its final action. The brief or statement must be filed within 20 (twenty) days of its filing of its appeal.
The Office of Federal Operations (OFO) will accept briefs or statements in support of appeals by fax transmittal, provided they are no more than ten (10) pages long.
Any statement or brief in opposition to an appeal must be submitted to OFO and served on the opposing party within thirty (30) days of receipt of the statement or brief supporting the appeal. Where both the appellant and the agency file appeals and briefs or statements in support of their appeals, both parties may file statements in opposition to the appeal of the other party. If no brief or statement supporting the appeal is filed, the party opposing the appeal must file its opposition within 60 (sixty) days of the receipt of the appeal. OFO will accept opposition briefs or statements to the appeal by fax transmittal, provided they are no more than 10 pages long.
The agency must submit the complaint file to OFO within 30 days of notification that the complainant has filed an appeal or within 30 days of submission of an appeal by the agency. If the complaint was adjudicated by an Administrative Judge, the complaint file must include copies of all documents issued by or served on the Administrative Judge, including, but not limited to, all correspondence to and from the Administrative Judge, orders from the Administrative Judge, and motions and briefs of the parties. Agencies should develop internal procedures that will ensure the prompt submission of complaint files upon a determination not to fully implement an Administrative Judge's decision or notice that a complainant has filed an appeal.
The appeal will be docketed upon receipt in OFO and will be acknowledged in writing.
Where both the agency and the complainant file appeals based on the same complaint following the agency's issuance of an order stating that it does not intend to fully implement the decision of the Administrative Judge, the Commission shall consolidate the appeals under a single EEOC Appeal No. and consider both appeals simultaneously.
Where the record is complete, OFO shall issue a decision in accordance with § 1614.405.
While the Commission retains the right to supplement the record on appeal, it is intended that this right will be exercised only in rare instances to avoid a miscarriage of justice.
Absent good cause shown, there is no legitimate basis for the failure of either party to an appeal to comply with the appellate procedures in § 1614.404 or to respond fully and in a timely fashion to a request for information. Accordingly, where either party to an appeal fails without good cause shown to comply with the appellate procedures in § 1614.404 or fails to respond fully and in a timely fashion to requests for information, OFO shall, in appropriate circumstances, impose the following sanctions:
See § 1614.404(c). OFO will aggressively utilize sanctions if parties fail, without good cause shown, to comply with the appellate procedures or to respond fully and timely to information requests.
Before OFO issues sanctions on either party, it will provide the party with a notice to show cause why the sanctions identified in the notice should not be imposed and will further provide the party with an opportunity to cure its noncompliance with a request from OFO or noncompliance with applicable appeals procedures within a reasonable period of time, to be noted in the order. If the party fails to cure its noncompliance, OFO shall impose the sanctions identified in its notice.(9)
An appellate decision issued under § 1614.405(a) is final pursuant to § 1614.407 unless the Commission reconsiders the case. A party may request reconsideration within thirty (30) days of receipt of a decision of the Commission, which the Commission in its discretion may grant, if the party demonstrates that 1) the appellate decision involved a clearly erroneous interpretation of material fact or law or 2) the decision will have a substantial impact on the policies, practices, or operations of the agency. See § 1614.405(b); Section VII of this Chapter.
Generally, standards of review delineate the nature of the inquiry on appeal by establishing the extent to which the reviewing body will substitute its own judgment for that of the prior decision-maker. The Commission has essentially employed a de novo standard of review in issuing appeals decisions since it took over the federal sector EEO function from the Civil Service Commission pursuant to Reorganization Plan No. 1 of 1978.
The decision on an appeal from an agency's dismissal or final action shall be based on a de novo review, except that the review of the factual findings in a decision by an Administrative Judge issued pursuant to § 1614.109(i) shall be based on a substantial evidence standard of review. This Section of the Management Directive will ensure a degree of uniformity and predictability in assessing case development and in processing appeals.
Appeals of final decisions or actions issued by agencies, duly filed pursuant to § 1614.401(a), (d), or (e) will be considered by the Commission in the following manner:
The Commission shall consider an appeal by either an agency or a complainant following a final action based on a decision from an Administrative Judge issued pursuant to § 1614.109(g)(4) (decisions without a hearing), § 1614.109(i) (decisions on individual complaints), and § 1614.204(d) and (e) (decisions on class complaints), duly filed pursuant to § 1614.401 et seq., in the following manner:
A request for reconsideration is not a second appeal to the Commission. A party may request reconsideration within thirty (30) days of receipt of a Commission decision. The Commission, in its discretion, may grant the request if the party demonstrates that:
The Commission's decision on a request for reconsideration is final, and there is no further right by either party to request reconsideration. If the decision remands the complaint for further agency consideration, the parties retain the rights of appeal and reconsideration with respect to any subsequent decision.
When an agency or the Commission finds that the agency has discriminated against an applicant or employee, the agency shall provide an appropriate remedy as explained in Part 1614, subpart E.
Interest on back pay shall be included in the back pay computation.
When the relief ordered includes the offer of a position or a promotion, the offer shall be made to the complainant in writing, providing the complainant fifteen (15) days from receipt of the offer to notify the agency of the acceptance or rejection. Failure to respond within the15-day time limit shall be construed as a declination. Any back pay liability shall cease to accrue with either the actual placement of the complainant into the position in question, or with the date the offer was declined.
In its decision, the Commission will set out the amount of compensatory damages to be awarded by the respondent agency where the complainant has claimed compensatory damages, the Commission has found intentional discrimination on the merits of the complaint, and the Commission has found that the complainant is entitled to compensatory damages.
Attorney's fees and costs shall be awarded in accordance with § 1614.501(e) and Chapter 11 of this Management Directive.
When an individual accepts an offer of employment as a remedy for discrimination, s/he shall be deemed to have performed service for the agency during the period he would have served but for the discrimination for all purposes except for meeting service requirements for completion of a required probationary or trial period.
A discussion of the relief available in class cases is set forth in Chapter 8, Section XI, of this Management Directive.
Agencies should give priority to cases remanded for an investigation if this is necessary to comply with the time frames contained in an EEOC order. OFO will issue sanctions against agencies when it determines that agencies are not making reasonable efforts to comply with a Commission order to investigate a complaint.
Where a complainant's appeal includes a dismissed claim that the Administrative Judge has affirmed but that OFO reverses either on appeal or on reconsideration, OFO shall remand the dismissed claim to the Administrative Judge for further processing in accordance with § 1614.109. Where a complainant appeals from an agency final decision that includes a dismissed claim that OFO reverses, OFO shall remand the dismissed claim to the agency and include an order directing the agency to process the matter in accordance with § 1614.108, except that OFO may order the completion of the investigation within a time period shorter than 180 days.
Where a complainant files an appeal alleging a breach of a settlement agreement and the Commission determines that the agreement was breached, the complainant may request enforcement of the settlement agreement or may request reinstatement of the underlying complaint at the point at which the processing of the complaint was stopped.
A complainant may petition the Commission for enforcement of a decision issued under the Commission's appellate jurisdiction. § 1614.503(a). The petition shall be submitted to OFO and shall set forth the basis for the complainant's assertion that the agency is not complying with the decision. Subsequent to the docketing of a petition, acknowledgment letters will be sent to both parties identifying the new docket number and advising both parties of the right to submit a brief or to comment on the issue in dispute. The Commission may issue a notice to the head of any federal agency which has failed to comply with a decision to show cause why there is noncompliance. § 1614.503(e). Such notice may request the head of the agency or his/her representative to appear before the Commission or to respond to the notice in writing with adequate evidence of compliance or with compelling reasons for noncompliance. Id. The petitioner shall be notified of any decision made on the petition.
A complainant may file an appeal with the Commission for enforcement of an agency's final action through which the agency has accepted the decision of an Administrative Judge. § 1614.504(a) - (c). The complainant first must notify the agency's EEO Director of the agency's alleged noncompliance with the final action within thirty (30) days of when the complainant knew or should have become aware of the agency's noncompliance. If the agency has not responded to the complainant's notice within thirty-five (35) days, the complainant may file an appeal with the Commission. If the agency has responded to the complainant's notice before the complainant files an appeal with the Commission, the complainant must file an appeal within 30 days of his/her receipt of the agency's response.
Filing a civil action terminates Commission processing of an appeal. See § 1614.409.
Agencies are required to notify complainants of their rights to appeal to the Commission and to file a civil action within the specified limitations periods. Agencies must also notify complainants of their statutory right to request court appointment of counsel for representation in connection with the filing of civil actions, which arise from Title VII and the Rehabilitation Act. See Hilliard v. Volcker, 659 F.2d 1125 (D.C. Cir. 1981). Therefore, agencies that are subject to 29 C.F.R. Part 1614 are required to include the appropriate language in every decision on complaints which allege discrimination. Sample language is provided in Chapter 10, Section IV, of this Management Directive.
Chapter 8 | Table of Content | Chapter 10
1. All time limits stated in this Management Directive are in calendar days. The time limits in Part 1614 are subject to waiver, estoppel, and equitable tolling. 29 C.F.R. § 1614.604(c). For further guidance, see EEOC Compliance Manual, Volume II, Section 605.
2. If service of the Administrative Judge's decision was by mail without the use of certified mail/return receipt, the agency may add five days to the date that the final action is due. This rule, adding five days to the date of service, shall apply in all instances where the party being served has the right to take an action within a period of time following such service, except where the serving party uses certified mail/return receipt and can establish the date of actual receipt.
3. An agency's final action on a complaint may include either 1) a final order from the agency stating whether it will fully implement the decision of the Administrative Judge, see § 1614.110(a), or 2) a final agency decision on the merits of the complaint where the complainant requested an immediate final decision pursuant to § 1614.108(f). See § 1614.110(b). The regulations further provide that the agency must file an appeal with the Commission at the same time it serves the final order on the complainant following receipt of a decision from an Administrative Judge where it does not intend to fully implement the decision. The agency's filing of an appeal of an Administrative Judge's decision that it does not intend to fully implement will result in the Commission's review of the agency's decision not to fully implement the Administrative Judge's decision. The complainant need not file a separate appeal to have the Commission review the agency's actions. Where, however, the complainant contends that the Administrative Judge erred either in any rulings made during the pendency of the action or in the decision, the complainant would need to file an appeal from the agency's final order to challenge such errors.
If an agency fails to take any action during the 40-day period, the Administrative Judge's decision would be deemed ratified and the complainant would be entitled to file an appeal of the Administrative Judge's decision as ratified after the expiration of the 40-day period. The agency would not be permitted to cross-appeal or challenge any aspect of the Administrative Judge's decision in this situation.
4. If the agency issues a final order to the complainant stating that it does not intend to fully implement the decision of the Administrative Judge but fails to file an appeal, the agency's final order has no effect on the Administrative Judge's decision. If the agency fails properly to issue a final order and file an appeal simultaneously with the issuance of the order, the Administrative Judge's decision will be deemed ratified by the agency upon the expiration of the agency's 40-day period for accepting or not accepting the Administrative Judge's decision.
5. See note 3, above.
6. Included is a dismissal of a complaint that does not meet the prerequisites of a class complaint as enumerated in § 1614.204(a)(2) where the decision to dismiss informs the class agent that the complaint is being filed as an individual complaint. The Office of Federal Operations, Appellate Review Programs, will provide expedited consideration of class complaints that are dismissed for failure to meet the prerequisites of a class complaint.
7. See § 1614.204(g)(4). A petition to vacate a resolution may be filed with the Administrative Judge asserting that the resolution favors only the class agent or is not fair, adequate, and reasonable to the class as a whole. The petitioner may file an appeal with the Commission if the Administrative Judge finds the resolution fair, adequate, and reasonable to the class as a whole. If the Administrative Judge finds the agreement not fair, adequate, and reasonable, the class agent, class members, and the agency may file an appeal.
8. As noted above, where the Administrative Judge finds the agreement not fair, adequate, and reasonable, the class agent, class members, and the agency may file an appeal. If the Administrative Judge finds that the agreement is fair, adequate, and reasonable, only the petitioner may file an appeal.
9. Sanctions usually will be contained in the decision of the Commission on appeal. If the sanction is contained in a separate order and not the decision on the appeal, the sanction is not immediately reviewable. Once OFO issues a decision on an appeal, the sanctioned party may request reconsideration pursuant to § 1614.405(b). If the sanction is issued while a matter is pending review under § 1614.405(b) or is contained in a § 1614.405(b) decision, there is no administrative review available.
This page was last modified on December 12, 2008.