Doc
Post
E-signatures
PlayMaker
Second Chair
Verbatim
Sign in
→
Request access
Mendez v. City of Topeka
, No. 25-4065-JWB (District of Kan. (D. KAN) 2026)
Case details
Full caption
KANSAS ROBBY MENDEZ v. CITY OF TOPEKA
Country
United States
Jurisdiction
Federal
Court
District of Kansas (D. KAN)
Decided
2026
Disposition
Dismissed
1
IN
THE
UNITED
STATES
DISTRICT
COURT
FOR
THE
DISTRICT
OF
KANSAS
ROBBY
MENDEZ,
Plaintiff,
v.
Case
No.
25-4065-JWB
CITY
OF
TOPEKA,
et
al.,
Defendants.
MEMORANDUM
AND
ORDER
This
matter
is
before
the
court
on
Defendants’
motion
to
di
smiss
and
Plaintiff’s
motion
to
supplement.
(Docs.
20,
24.)
The
motions
have
been
fully
briefed
and
are
ripe
for
decision.
(Docs.
22,
23,
26,
27.)
The
motion
to
dismiss
is
GRANT
ED
IN
PART
and
DE
NIED
IN
PART
and
Plaintiff’s
motion
to
supplement
is
DE
NIED
for
the
reasons
stated
herein.
I.
Facts
The
facts
set
forth
herein
are
taken
from
the
amended
complaint.
(D
oc.
18.)
Plaintiff
was
employed
by
Defendant
City
of
Topeka,
Kanas
(“
the
City”)
in
the
Water
Distribution
Division.
Plaintiff
began
his
employment
with
the
City
in
2018.
On
A
ugust
23,
2023,
Plaintiff
applied
for
leave
under
the
Family
Medical
Leave
Act
(“
FMLA”)
for
the
birth
of
his
child.
(
Id.
¶
9.)
Plaintiff
took
six
weeks
of
approved
FMLA
leave
and
was
also
granted
intermitte
nt
FMLA
leave
up
until
July
1,
2024.
After
returning
fro
m
his
initial
leave,
Plaintiff
received
mana
gement
approval
for
intermittent
leave
but
he
often
had
to
cancel
th
e
leave
because
manageme
nt
failed
to
provide
coverage.
(
Id.
¶
10A.)
After
his
return
in
October
2023,
Plaintiff’s
supervisor
scrutinized
his
use
of
leave,
undermined
his
assignments,
and
made
demeaning
or
hostile
rema
rks
toward
him.
In
January
2024,
Plaintiff
filed
an
internal
complaint
against
management
for
FMLA
interference
and
Case
5:25-cv-04065-JWB-RES
Document
28
Filed
01/16/26
Page
1
of
14
2
harassment.
In
March
2024,
the
complaint
was
substantiated
and
a
manager
was
disciplined.
(
Id.
¶
12.)
The
investigation
was
conduc
ted
by
Defendant
Alicia
Chavez,
the
City
Investigator.
(Doc.
1-3.)
1
In
April
2024,
“management
accused
Plaintiff
of
theft
that
allegedly
occurred
in
September
2023
and
also
made
allegations
of
forgery.”
(Doc
.
18
¶
14.)
These
allegati
ons
were
investigated
by
the
Topeka
Police
Department
and
were
not
substantiated.
No
other
employees
were
investigated.
Between
April
and
July
2024,
Plai
ntiff
was
falsely
accused
of
additional
rule
violations.
In
June
2024,
both
Pl
aintiff
and
Pete
Vobach
made
al
legations
of
violations
of
the
City’s
Professional
Integrity
and
Harassment
po
licy.
(Doc.
1-15
at
2.)
Defendant
Chavez
was
assigned
to
investigate
this
matte
r.
Although
Plaintiff
requested
a
union
represen
tative,
Chavez
denied
the
request.
(Doc.
18
¶
15A.)
Chavez’s
letter
to
Plaintiff
indicated
that
she
believed
that
he
had
withdrawn
his
union
membership
at
the
t
ime
and,
as
a
result,
would
not
have
access
to
a
union
representative.
(Doc.
1-15
at
2.)
Chavez
told
Plaintiff
that
if
this
was
incorrect
he
could
request
union
representation.
(
Id.
)
On
July
1,
2024,
Plaintiff
was
pl
aced
on
administrativ
e
leave.
The
City
advised
Plaintiff
that
he
was
on
leave
because
he
was
involved
in
an
altercation
where
he
shoved
another
co-worker.
(Doc.
1-6
at
18.)
Plaintiff’s
description
of
the
even
ts
stated
that
the
co-worker
verbally
attacked
him
and
then
bumped
him
in
his
chest.
(
Id.
at
3.)
Plaintiff
“pushed
h
im
away”
after
he
did
this.
(
Id.
at
4.)
The
investigation
into
the
alterca
tion
was
conducted
by
Defendant
Chavez.
On
August
26,
2024,
Plaintiff
submitted
an
internal
comp
laint
of
continued
FMLA
retaliation.
(
Id
.
at
1.)
Plaintiff
named
Defendant
Sylvia
Davis,
Director
of
Utilities,
as
the
individual
who
was
taking
retaliatory
actions.
Plaintiff’s
complaint
was
not
investigated.
On
September
3,
a
pre-termination
1
The
court
may
consider
documents
filed
contemporaneous
ly
with
Plaintiff’s
complaint
without
converting
the
motion
to
one
for
summary
judgment
as
the
parties
do
not
dispute
the
authenticity
of
the
exhibits.
See
Smith
v.
United
States
,
561
F.3d
1090,
1098
(10th
Cir.
2009).
Case
5:25-cv-04065-JWB-RES
Document
28
Filed
01/16/26
Page
2
of
14
3
hearing
was
held.
Pamela
Foster
,
the
Director
of
Human
Resources
at
the
time,
conducted
the
hearing.
On
October
18,
she
i
ssued
findings
and
rejected
Davi
s’s
recommendation
to
terminate
Plaintiff.
Foster
stated
that
she
was
sending
“t
his
matter
back
to
mana
gement
to
determine
a
non-
termination
resolution.”
(Doc
.
1-7
at
2.)
Plaintiff
was
not
immediately
reinstated.
During
his
leave,
Plaintiff
was
denied
his
re
tirement
contributions
and
the
ability
to
earn
overtime.
Ultimately,
Davis
imposed
a
five-day
unpaid
suspension
from
March
17
through
March
21,
2025.
(Doc.
1-8
at
2.)
On
March
24,
2025,
Plainti
ff
was
allowed
to
return
to
work.
The
next
day,
Plaintiff
was
again
accused
of
rule
violations
and
placed
on
leave.
According
to
the
City’s
notice
to
Plaintiff,
the
City
stated
that
it
was
invest
igating
a
report
that
Plai
ntiff
had
a
heated
verbal
exchange
with
Cole
Engle
on
March
25.
(Doc.
1-
9
at
2.)
After
her
investigation,
Chavez
found
that
Plaintiff
poured
bleach
in
a
nother
employee’s
locker
which
viol
ated
workplace
policies.
(Doc.
1-10
at
2.)
Plaintiff
alleges
that
he
had
exculpat
ory
video
evidence
that
he
was
not
involved
in
the
incident
because
another
employee
ente
red
the
locker
room
after
he
did.
2
An
exhibit
to
Plaintiff’s
original
complaint,
however,
makes
clear
that
Ch
avez
reviewed
the
video
footage.
(Doc.
1-10.)
Plaintiff
also
had
a
witness
who
had
information
regarding
the
allegations
but
asserts
that
Chavez
failed
to
follow
up
with
th
is
information.
(Doc.
18
¶
24.)
On
April
18,
a
second
pre-termination
hearing
was
conducted
by
Fo
ster.
Three
days
later
and
prior
to
issuing
a
d
ecision,
Foster
resigned.
On
May
24,
Plaintiff
was
terminated.
Defendant
Robert
Perez,
the
City
Manager,
approved
the
termination
recommendation
after
review
ing
all
of
the
hearing
evidence.
(
Id.
¶
26;
Doc.
1-12.)
After
his
termination,
Plaintiff
attempted
to
pursue
a
grievance
through
the
union
but
was
told
that
he
did
not
have
standing
to
pursue
the
grievance.
Plaintiff
filed
this
action
on
July
2,
2
Plaintiff
alleges
that
Chavez
falsely
concluded
that
he
was
the
only
one
to
enter
the
locker
room
during
the
time
period.
(Doc.
18
¶
23A.)
This
contradi
cts
Plaintiff’s
exhibit
attached
to
his
original
complaint
which
clearly
states
that
Chavez
reviewed
the
foot
age
and
identified
the
time
periods
that
all
individuals
entered
and
exited
the
locker
room.
(Doc.
1-10
at
3.)
Case
5:25-cv-04065-JWB-RES
Document
28
Filed
01/16/26
Page
3
of
14
4
2025.
(Doc.
1.)
Plaintiff
asserts
claims
of
FMLA
retaliation,
FM
LA
interference,
and
a
violation
of
due
process
against
the
City,
Chavez,
Davis,
and
Perez.
Defendants
move
to
dismiss
on
the
basis
that
Plaintiff’s
amended
co
mplaint
fails
to
state
a
claim.
(Doc.
20.)
The
individual
Defendants
also
assert
that
they
are
entitled
to
qualified
immunity.
After
the
motion
to
dismiss
was
fully
briefed,
Pl
aintiff
filed
a
motion
to
file
a
supplemental
complaint.
(Doc.
24.)
Plaintiff
seeks
leave
to
add
facts
concerning
co
nduct
that
was
allegedly
undertaken
by
Chavez
in
a
differen
t
employment
matter
involving
the
City’s
poli
ce
department
and
is
currently
being
litigated
in
this
district,
Cross
v.
City
of
Topeka
,
Case
No.
24-4092.
(Doc.
24-1.)
Based
on
Plaintiff’s
motion,
it
is
clear
that
Plaintiff
ha
s
no
personal
knowledge
of
these
allegations
but
seeks
to
adopt
them
as
fa
cts
in
his
own
compla
int.
Notably,
the
Cross
matter
is
currently
pending
and
there
has
not
b
een
a
final
adjudication.
Plaintiff’s
motion
is
denied
as
it
is
clear
that
he
merely
seek
s
to
adopt
facts
that
have
been
alleged
in
an
ongoing
matter
and
of
which
he
lacks
personal
knowledge.
II.
Standard
Because
Plaintiff
is
proceeding
pro
se,
the
c
ourt
is
to
liberally
c
onstrue
his
filings.
United
States
v.
Pinson
,
584
F.3d
972,
975
(10th
Cir.
2009).
Howeve
r,
liberally
constr
uing
filings
does
not
mean
supplying
additional
factual
allegations
or
constructing
a
legal
theory
on
Plaintiff’s
behalf.
Whitney
v.
New
Mexico
,
113
F.3d
1170,
1173-74
(10th
Cir.
1997).
In
order
to
withstand
a
motion
to
dismiss
for
fa
ilure
to
state
a
cl
aim,
a
complaint
must
contai
n
enough
allegations
of
fact
to
state
a
claim
for
relief
th
at
is
plausible
on
its
face.
Robbins
v.
Oklahoma
,
519
F.3d
1242,
1247
(10th
Cir.
2008)
(citing
Bell
Atl.
Corp.
v.
Twombly
,
550
U.S.
544,
127
S.
Ct.
1955,
1974
(2007)).
All
well-pleaded
facts
and
the
reasonable
inferen
ces
derived
from
those
facts
are
viewed
in
the
light
most
favorable
to
Plaintiff.
Archuleta
v.
Wagner
,
523
F.3d
1278,
1283
(10th
Cir.
2008).
Case
5:25-cv-04065-JWB-RES
Document
28
Filed
01/16/26
Page
4
of
14
5
Conclusory
allegations,
however,
have
no
bearing
upon
the
court’s
consideration.
Shero
v.
City
of
Grove,
Okla.
,
510
F.3d
1196,
1200
(10th
Cir.
2007).
III.
Analysis
A.
FMLA
Retaliation
The
FMLA
provides
that
a
quali
fying
employee
is
entitled
to
“take
up
to
twelve
weeks
of
unpaid
leave,
without
fear
of
termination.”
Smothers
v.
Solvay
Chemicals,
Inc.
,
740
F.3d
530,
539
(10th
Cir.
2014).
It
is
a
viola
tion
of
the
FMLA
to
retaliate
against
an
employee
who
takes
FMLA
leave.
Id.
at
539–40
(citing
29
U.S.C.
§
2615(a)(2);
Khalik
v.
United
Air
Lines
,
671
F.3d
1188,
1193
(10th
Cir.
2012)).
To
establish
a
case
of
reta
liation,
Plaintiff
must
s
how
(1)
he
“engaged
in
a
protected
activity;”
(2
)
Defendants
took
materially
adverse
action(s)
against
him;
and
(3)
the
“circumstances
permit
an
inference
of
causal
co
nnection
between
the
acti
on
and
the
FMLA
leave,
in
this
case
based
on
te
mporal
proximity.”
Id.
Here,
Defendants
argue
for
dismissal
on
the
ba
sis
that
the
only
materially
adverse
action
taken
by
the
City
was
termination
and
the
ter
mination
was
too
far
removed
from
his
protected
activity
of
FMLA
leave.
In
response,
Plaintif
f
asserts
that
the
adverse
actions
included
false
accusations
of
workplace
violations,
placement
on
administrative
leave,
denial
of
a
union
representative,
biased
investigations,
and
his
termination.
Turning
to
the
elements,
it
is
clear
that
Plai
ntiff
engaged
in
protect
ed
activity.
He
was
on
FMLA
leave
until
October
2023
an
d
then
took
interm
ittent
FMLA
leave
up
until
June
2024.
Plaintiff
also
filed
an
internal
complaint
of
FMLA
retaliation
in
January
2024
and
that
complaint
was
found
to
be
substantiated
in
March
2024.
Plain
tiff
also
submitted
anot
her
complaint
of
FMLA
retaliation
on
August
26.
The
court
finds
that
all
of
th
ese
actions
constitute
protected
activity.
See
id.
(holding
that
protected
activit
y
includes
taking
FMLA
leave);
Austin
v.
Jostens,
Inc
.,
2008
WL
Case
5:25-cv-04065-JWB-RES
Document
28
Filed
01/16/26
Page
5
of
14
6
4642277,
at
*11
(D.
Kan.
Oct.
16,
2008)
(discussing
that
protected
FMLA
activity
includes
informal
complaints)
(citing
Jeseritz
v.
Potter
,
282
F.3d
542,
548
(8th
Cir.
2002)).
Next,
Plaintiff
asserts
that
the
adverse
actions
include
false
accusations
of
workplace
violations,
placement
on
adminis
trative
leave,
denial
of
a
union
representative,
biased
investigations,
and
his
termination.
For
an
employment
action
to
be
ma
terially
adverse,
it
must
be
severe
enough
that
it
co
uld
“dissuade
a
reas
onable
worker
from
making
or
supporting
a
charge
of
discrimination.”
Burlington
Northern
and
Santa
Fe
Ry.
Co.
v.
White
,
548
U.S.
53,
57
(2006).
“A
strong
indicator
that
a
challenged
employment
action
is
adverse
is
that
the
action
causes
harm
to
future
employment
prospects.”
Braxton
v.
Nortek
Air
Sols.,
LLC
,
769
F.
App’x
600,
605
(10th
Cir.
2019).
Here,
Plaintiff
alleges
that
he
was
falsely
accused
of
crimes
in
April
2024
which
was
investigated
by
the
police.
This
satisfies
a
materi
ally
adverse
action
at
this
stage
of
the
proceeding
as
a
criminal
investigation
could
cause
harm
to
fu
ture
employment
and
carries
a
risk
of
damage
to
reputation.
See
Annett
v.
Univ.
of
Kansas
,
371
F.3d
1233,
1239
(10th
Cir.
2004).
Next,
Plaintiff
asserts
that
his
placement
on
administrative
leave
was
a
materially
adverse
action
because
he
lost
money
on
overtime
and
retiremen
t
contributions.
Because
the
administrative
leave
allegedly
impacted
Plaintiff
financially,
he
has
plausibly
a
lleged
a
materially
adve
rse
action.
Plaintiff’s
allegations
concerning
the
denial
of
a
union
representative
and
biased
investigations
do
not
rise
to
the
level
of
an
adverse
action.
Finally,
his
termination
is
clearly
an
a
dverse
action.
This
leaves
the
court
with
the
question
of
wh
ether
these
three
adverse
actions
were
causally
related
to
his
protected
activity.
The
court
may
infer
causation
when
ther
e
is
a
close
temporal
proximity
between
the
protected
activity
and
the
adverse
action.
See
e.g.,
Ward
v.
Jewell
,
772
F.3d
1199,
1203
(10th
Cir.
2014)
(“If
the
protected
conduct
is
closely
followed
by
the
adverse
action,
courts
have
often
infe
rred
a
causal
connection.”);
Anderson
v.
Coors
Brewing
Co
.,
181
F.3d
Case
5:25-cv-04065-JWB-RES
Document
28
Filed
01/16/26
Page
6
of
14
7
1171,
1179
(10th
Cir.
1999)
(noting
that
a
three-month
period
is
insufficient
to
establish
causation).
If
there
is
not
a
close
temporal
pr
oximity,
a
plaintiff
needs
to
allege
additional
evidence
to
establish
causation.
Id.
Defendants’
motion
asserts
that
there
is
no
temp
oral
proximity
because
the
time
period
at
issue
is
the
date
of
his
first
FM
LA
leave
to
his
termination,
which
is
more
than
one
year.
(Doc.
20
at
6.)
Contrary
to
Defendants’
assertions,
how
ever,
the
court
found
that
Plaintiff
engaged
in
protected
activity
on
multiple
occasions.
The
court
also
determined
that
Pl
aintiff
suffered
three
different
adverse
actions.
Given
the
clear
overlap
of
the
protected
activ
ity
and
alleged
adverse
actions,
the
court
finds
that
Plainti
ff
has
plausibly
alleged
causation
at
this
stage
of
the
proceedings.
Therefore,
the
motion
to
dismiss
this
claim
against
the
City
is
denied.
The
court
will
address
the
liability
of
the
individual
Defendants
infra
.
B.
FMLA
Interference
Next,
Defendants
seek
to
dismiss
Plaintiff’
s
claim
of
FMLA
interference.
The
FMLA
provides
that
eligible
employees
of
covered
em
ployers
may
have
up
to
twelve
weeks
of
unpaid
leave
for
serious
health
conditions
and
be
reinstated
to
a
former
pos
ition
or
an
equivalent
one
upon
return
from
leave.
29
U.S.C.
§§
2612(a)(1),
26
14(a).
Under
the
FMLA,
an
employer
may
not
“interfere
with,
restrain,
or
deny
the
exercise
of
or
the
attempt
to
exercise,
any
right
provided
under
[the
FMLA].”
Id.
§
2615(a)(1).
To
prevai
l
on
a
claim
based
on
an
in
terference
or
entitlement
theory,
Plaintiff
must
demonstrate:
“(1)
that
he
was
entitled
to
FMLA
leave,
(2)
that
some
adverse
action
by
the
employer
interfered
wi
th
his
right
to
take
FMLA
leav
e,
and
(3)
that
the
employer’s
action
was
related
to
the
exercise
or
a
ttempted
exercise
of
his
FMLA
rights.”
Jones
v.
Denver
Public
Schools
,
427
F.3d
1315,
1319
(10th
Cir.
2005).
The
firs
t
element
is
not
in
dispute
here.
Case
5:25-cv-04065-JWB-RES
Document
28
Filed
01/16/26
Page
7
of
14
8
Defendants
move
to
dismiss
this
count
on
the
basis
that
Plain
tiff
has
not
plausibly
alleged
interference
with
FMLA
leave.
Defendants
assert
that
Plaintiff
was
granted
leave
and
he
used
his
leave
with
management
approval.
Defendants
argue
that
Plaintiff
unilaterally
canceled
his
leave
after
it
was
approved.
In
respons
e,
Plaintiff
argues
that
Defenda
nts
discouraged
and
hindered
his
leave
and
failed
to
reinstate
him
af
ter
his
leave.
In
support,
Plainti
ff
cites
to
Tenth
Circuit
authority
that
interference
occurs
when
an
employer
discourages
or
restrain
s
protected
leave.
(Doc.
22
at
7.)
While
those
cases
do
discuss
FMLA
interferen
ce,
they
do
not
stand
fo
r
the
proposition
that
the
discouragement
of
leave
as
opposed
to
an
outright
denial
is
su
fficient
for
an
adverse
action.
3
Rather,
to
satisfy
the
second
element,
“the
empl
oyee
must
show
that
[he]
was
prevented
from
taking
the
full
12
weeks[
]
of
leave
guaranteed
by
the
FMLA,
denied
reinstatement
following
leave,
or
denied
initial
permission
to
take
leave.”
Dalpiaz
v.
Carbon
Cnty.,
Utah
,
760
F.3d
1126,
1132
(10th
Cir.
2014).
Plaintiff
has
not
alleged
that
he
was
prevente
d
from
taking
leave
or
denied
permission
to
take
leave.
Rather,
he
alleged
th
at
he
did
not
take
appr
oved
leave
because
he
did
not
believe
that
the
City
was
going
to
provide
cove
rage
for
his
absence.
This
allegation
does
not
plausibly
allege
an
adverse
action
by
the
City.
Plaintiff
also
asserts
that
he
was
denied
reinstatement
upon
l
eave.
Plaintiff’s
allegations,
however,
do
not
support
such
a
finding.
Rather,
Plai
ntiff
was
back
at
work
after
his
leave
when
he
was
placed
on
administrative
le
ave
and
he
had
also
returned
to
work
prior
to
his
termination.
Therefore,
Plaintiff
has
not
plau
sibly
alleged
that
Defendants
inte
rfered
with
his
right
to
take
FMLA
leave.
Defendants’
motion
to
dismiss
this
claim
is
granted.
3
The
court
notes
that
Defendants
take
the
position
that
Plai
ntiff’s
brief
was
drafted
with
the
assistance
of
artificial
intelligence
(“AI”)
and
ask
the
court
to
re
quire
Plaintiff
to
disclose
whether
he
utilized
an
AI
program
and
then
certify
compliance
with
this
court’s
local
rules
and
the
Federal
Rules
of
Civil
Procedure.
Those
rules,
however,
do
not
impose
any
additional
compliance
in
the
event
a
party
utilized
AI
to
draft
a
brief.
This
court,
however,
admonishes
Plaintiff
to
verify
all
statements
and
case
citations
in
any
AI
crea
ted
brief.
Should
Plaintiff
f
ile
a
brief
with
inaccurate
statements
or
case
citations,
Plaintiff
could
be
subject
to
sanctions
under
Rule
11.
Case
5:25-cv-04065-JWB-RES
Document
28
Filed
01/16/26
Page
8
of
14
9
C.
Due
Process
Plaintiff
has
asserted
a
claim
under
42
U.S.C.
§
1983
for
the
alleged
vi
olation
of
his
right
to
due
process.
Plaintiff
asserts
that
he
was
deprived
of
due
process
in
connection
with
his
termination
in
that
he
was
denied
union
repr
esentation,
denied
reassignment
of
a
biased
investigator,
subjected
to
fabricated
evidence,
and
terminated
by
Perez
instead
of
a
neutral
decision
maker.
(Docs.
18
at
10;
22
at
9.)
Defendants
move
to
dismiss
on
the
basis
that
Plaintiff
has
failed
to
state
a
claim
and,
alternatively,
that
the
indi
vidual
Defendants
are
entitled
to
qualified
immunity.
To
“assess
whether
an
individual
was
denied
pr
ocedural
due
process,
courts
must
engage
in
a
two-step
inquiry:
(1)
did
the
individual
possess
a
protected
interest
such
that
the
due
process
protections
were
applicable;
and,
if
so,
then
(2)
wa
s
the
individual
afforded
an
appropriate
level
of
process.”
Riggins
v.
Goodman
,
572
F.3d
1101,
1108
(10th
Cir.
2009)
(quoting
Montgomery
v.
City
of
Ardmore
,
365
F.3d
926,
935
(10th
Cir.
2004)).
“An
e
ssential
principle
of
due
process
is
that
a
deprivation
of
life,
liberty
or
property
‘be
preceded
by
notice
and
opportunity
for
hearing
appropriate
to
the
nature
of
the
case.’”
Cleveland
Bd.
of
Educ.
v.
Loudermill
,
470
U.S.
532,
542
(1985).
At
this
stage
of
the
proceedings,
Defendant
s
do
not
assert
that
Plaintiff
lacks
a
protected
property
interest
in
his
continue
d
employment.
To
determine
wh
ether
a
property
interest
in
continued
employment
exists,
the
court
looks
to
state
law.
See
Ney
v.
City
of
Hoisington,
Kan.
,
508
F.
Supp.
2d
877,
894
(D.
Kan.
2007).
Under
Kansas
law,
there
must
be
an
express
or
implied
contract
to
show
a
property
inte
rest
in
continued
employment.
Id.
at
893.
Plaintiff
alleges
that
he
was
a
member
of
the
union
and
had
a
property
interest
in
continue
d
employment.
(Doc.
18
¶
49.)
At
this
stage
of
the
proceeding,
the
court
will
a
ssume
that
Plaintiff
has
a
property
interest.
Therefore,
he
must
be
afforded
process
befo
re
that
property
intere
st
is
terminated.
Case
5:25-cv-04065-JWB-RES
Document
28
Filed
01/16/26
Page
9
of
14
10
The
“root
requirement”
of
the
Due
Process
Clau
se
is
“that
an
individual
be
given
an
opportunity
for
a
hearing
before
he
is
deprived
of
any
sign
ificant
property
interest.”
Loudermill
,
470
U.S.
at
542.
This
means
that
Plaintiff
mu
st
have
an
opportunity
to
be
heard
at
a
meaningful
time
and
manner
before
termination.
Langley
v.
Adams
County,
Colo
.,
987
F.2d
1473,
1480
(10th
Cir.
1993).
Based
on
Plaintiff’s
al
legations,
the
City
utilized
a
pr
ocess
that
involved
a
hearing
prior
to
his
termination.
For
gove
rnment
employees,
a
hearing
requi
res
1)
“oral
or
written
notice
[to
the
employee]
of
the
charges
against
him”;
(2
)
“an
explanation
of
the
employer’s
evidence”;
and
(3)
“an
opportunity
[for
the
employee]
to
present
his
side
of
the
story.”
Riggins
,
572
F.3d
at
1108.
“A
full
evidentiary
hearing
is
not
required
prior
to
an
adverse
employment
action.”
Id.
(quoting
West
v.
Grand
Cty.
,
967
F.2d
362,
367
(10th
Cir.
1992)).
Instead,
the
“individual
entitled
to
due
process
protection
needs
only
to
be
given
notice
and
an
oppor
tunity
to
respond.”
Id.
Here,
it
is
clear
that
Plaintiff
was
provided
no
tice
of
the
allegations
of
workplace
violations
prior
to
the
April
18,
2025
hearing.
(
See
Doc.
1-9
at
2.)
At
th
e
hearing,
there
was
evidence
presented
regarding
the
allege
d
violations.
Plai
ntiff
also
attended
the
hearing
and
had
opportunities
to
be
heard.
Based
on
the
allegations
,
Plaintiff
was
provided
all
the
process
that
was
necessary.
See
Riggins
,
572
F.3d
at
1109.
Plaintiff,
however,
asserts
that
his
due
process
rights
were
violated
because
Chavez
denied
his
right
to
a
union
representative.
However,
that
allegation
concerns
the
investigation
in
to
prior
misconduct
and
was
not
the
investigation
surrounding
the
misconduct
that
resulted
in
his
termination.
Further,
the
docu
mentary
evidence
submitted
by
Plaintiff
shows
that
Chavez
believed
that
Plaint
iff
was
no
longer
a
member
of
the
union
and
it
was
for
this
reason
that
she
informed
Plaintiff
that
he
would
not
have
representation.
(Doc.
1-15
at
2.)
Plaintiff
was
also
told
that
he
could
correct
this
assumption
if
it
was
incorrect.
With
respect
to
his
termination
proceeding,
however,
Plai
ntiff
fails
to
allege
that
he
was
deprived
of
his
right
to
a
Case
5:25-cv-04065-JWB-RES
Document
28
Filed
01/16/26
Page
10
of
14
11
union
representative.
Notably,
Plaintiff
did
have
union
representation
at
the
hearing.
(Doc.
1-12
at
2.)
Next,
Plaintiff
contends
that
Chavez
was
biased
in
the
investigation.
The
facts
concerning
this
bias
involve
the
denial
of
a
union
representativ
e,
an
alleged
failure
to
investigate,
and
falsified
reports
about
the
video.
As
di
scussed,
Plaintiff
was
not
denied
a
union
representative
during
the
hearing.
Further,
Plaintiff
fail
s
to
allege
that
Chavez’s
conduct
prevented
him
from
being
heard
at
the
hearing.
Further,
Perez,
the
decisionmak
er,
reviewed
all
of
the
evidence
from
the
hearing,
including
the
videos.
(
Id.
)
Therefore,
to
the
extent
that
Plaintiff
believes
that
Chavez
somehow
misrepresented
the
video
evidence,
Perez
stated
that
he
reviewed
the
videos
prior
to
making
his
decision.
(Doc.
1-12
at
2.)
Therefore,
the
court
finds
that
the
allegations
regarding
Chavez
do
not
support
a
finding
that
the
pr
ocess
given
was
inadequate.
Finally,
Plaintiff
asserts
that
he
has
been
deprived
of
due
process
because
he
was
terminated
by
Perez
instead
of
by
a
neutral
decisi
onmaker.
Plaintiff
was
ultimately
terminated
by
Defendant
Perez
after
Foster
resign
ed.
Plaintiff
asserts
that
a
vi
olation
of
due
process
occurred
because
there
was
not
a
final
de
cision
by
the
decisionmaker
who
was
present
at
the
hearing.
Plaintiff,
however,
fails
to
point
to
any
authorit
y
that
the
decisionmaker
must
be
a
particular
individual.
Rather,
a
pl
aintiff
may
establish
a
violation
of
due
process
if
the
decisionmaker
was
biased.
See
Riggins
,
572
F.3d
at
1113–14.
Plain
tiff’s
amended
complaint
fails
to
set
forth
any
facts
to
show
that
Perez
was
biased
in
this
matter.
Rather,
Plaintiff’s
allegations
regarding
Perez’s
actions
are
almost
entirely
conclusory.
Further,
Plaintiff’s
conclusory
allegation
that
Perez
approved
his
termination
without
re
viewing
the
evidence
is
not
suppor
ted
by
the
evidence
Plaintiff
submitted
in
his
filings.
(Doc.
1-12
at
2.)
Therefore,
the
c
ourt
declines
to
consider
it.
Case
5:25-cv-04065-JWB-RES
Document
28
Filed
01/16/26
Page
11
of
14
12
Based
on
the
allegations
and
the
exhibits
Plaintiff
attached
to
his
original
complaint,
the
court
finds
that
Plaintiff
received
adequate
process
in
connection
w
ith
his
termination.
Therefore,
his
due
process
cla
im
is
dismissed.
D.
FMLA
Claim
against
the
Individual
Defendants
The
City
also
seeks
to
dismiss
the
rema
ining
FMLA
claim
against
the
individual
Defendants.
The
City
as
serts
that
individuals
ar
e
not
employers
under
the
FMLA
and
stated
that
the
Tenth
Circuit
had
yet
to
addre
ss
this
issue.
Contra
ry
to
Defendants’
assertion,
the
Tenth
Circuit
has
issued
a
ruling
on
this
issue
earlier
in
the
year.
See
Walkingstick
Dixon
v.
Okla.
ex
rel.
Reg’l
Univ.
Sys.
of
Okla.
Bd.
of
Regents
,
125
F.4th
1321
(10th
Cir.
2025).
In
that
matter,
the
Tenth
Circuit
held
that
the
FM
LA’s
“plain
language
app
lies
to
individuals
becaus
e
[the
statute]
defines
‘employers’
to
include
‘
any
person
who
acts,
directly
or
indirectly,
in
the
interest
of
an
employer
to
any
of
the
employees
of
such
employer.’”
Id.
at
1342
(citing
29
U.S.C.
§
2611(4)(A)(I)).
The
court
also
notes
that
Walkingstick
involved
a
public
entity;
therefore,
it
is
clear
that
this
authority
applies
here.
When
determining
whether
an
indi
vidual
is
an
employer
und
er
the
FMLA,
the
court
is
to
apply
the
economic
reality
test.
Id.
Although
Defendan
ts
do
not
address
th
is
test,
they
do
assert
that
the
amended
complaint
fails
to
show
how
they
would
be
liable
in
their
individual
capacities.
The
court
will
turn
to
the
factors
in
the
test.
To
determine
whether
an
individual
is
an
employer
under
the
economic
reality
test,
courts
consider
“a
nonexclusive
and
overlapping
set
of
factors,”
including
“whether
the
alleged
employer
(1
)
had
the
power
to
hire
and
fire
the
employees,
(2)
supervised
and
controlled
employee
work
schedules
or
conditions
of
employment,
(3)
determined
the
rate
and
method
of
payment,
and
(4)
maintained
em
ployment
records.”
Graziadio
v.
Culinary
Inst.
of
Am
.,
817
F.3d
415,
422
(2d
Cir.
2016);
see
also
Walkingstick
,
125
F.4th
at
1342
(citing
to
Graziadio
for
the
applicati
on
of
the
test).
Case
5:25-cv-04065-JWB-RES
Document
28
Filed
01/16/26
Page
12
of
14
13
Turning
to
Chavez,
Plaintiff
has
alleged
that
sh
e
is
an
investigator
with
the
City
and
that
she
was
involved
in
the
investiga
tions
at
issue.
Alt
hough
he
argues
that
she
has
interfered
with
his
FMLA
rights,
he
fails
to
address
whether
she
could
be
c
onsidered
his
em
ployer
under
the
FMLA.
The
amended
complaint
fails
to
allege
any
facts
that
are
related
to
the
factors
the
court
considers
in
the
economic
reality
test.
Therefore,
the
motion
to
dismiss
the
FMLA
claims
against
Chavez
is
granted.
Next,
Davis
is
the
Director
of
Utilities
and
recommended
Plaintiff’s
termination.
Plaintiff
asserts
that
she
is
liable
because
she
placed
Pl
aintiff
on
administrative
leave.
The
amended
complaint
is
limited
on
facts
regarding
Davis’s
status
as
an
employer.
Based
on
the
allegations,
it
is
clear
that
she
needed
permi
ssion
to
terminate
Plaintiff
and
di
d
not
have
that
authority
on
her
own.
Further,
there
are
no
allegations
that
she
co
ntrolled
Plaintiff’s
schedu
le,
determined
his
rate
of
pay,
or
maintained
employment
records.
After
review,
the
c
ourt
finds
that
Plaintiff
has
not
plausibly
alleged
facts
that
would
support
a
finding
that
Davis
was
Plaintiff’s
employer.
Finally,
Perez
is
the
City
Manager.
He
appr
oved
Plaintiff’s
termination
after
reviewing
the
evidence
from
the
heari
ng.
Other
than
approving
the
termin
ation,
there
are
no
facts
regarding
Perez’s
role
in
Plaintiff’s
employment.
While
Perez
can
fire
employees,
there
are
no
allegations
that
he
controlled
Plaintiff’s
schedule
or
conditions
of
employment,
determined
his
rate
of
pay,
or
maintained
employment
records.
Therefore,
Plai
ntiff
has
not
plausibly
alleged
that
Perez
was
an
employer
under
the
FMLA.
Plaintiff’s
remaining
FMLA
claim
against
the
individuals
is
dismissed.
IV.
Conclusion
Case
5:25-cv-04065-JWB-RES
Document
28
Filed
01/16/26
Page
13
of
14
14
Defendants’
motion
to
dismiss
(Doc.
20)
is
GRANTED
IN
PART
and
DENIED
IN
PART.
It
is
denied
only
with
respect
to
Plaintiff’s
FMLA
retaliation
claim
against
the
City.
It
is
granted
as
to
all
other
claims
and
the
individual
Defendants
are
dismissed
from
this
matter.
Plaintiff’s
motion
to
supple
ment
(Doc.
24)
is
DENIED.
IT
IS
SO
ORDERED.
Dated
this
16th
day
of
January
2026.
__
s/
John
Broomes__________
JOHN
W.
BROOMES
CHIEF
UNITED
STATES
DISTRICT
JUDGE
Case
5:25-cv-04065-JWB-RES
Document
28
Filed
01/16/26
Page
14
of
14
Provenance
Know exactly where this document came from.
Members see the sourcing behind every authority on DocPost — so you can check the record yourself and cite with confidence.
Request access