Discharge Of Public Employee For Refusal To Participate In EAP Wasn't Wrongful Discharge In Violation Of Public Policy

Brian Fosmo worked for the Washington State Ferries (WSF) for 14 years. In 1996, he received a verbal warning for being unavailable for 10 days while he was on call. Later, he received a written reprimand for failing to report for duty. Less than one month later, he abandoned his required post while he was on watch duty.

On August 12, 1996, WSF terminated Fosmo. His labor representative then filed a grievance on his behalf. At the grievance meeting with WSF management, Fosmo and his representative negotiated a conditional reinstatement agreement. Under that agreement, WSF agreed to rescind Fosmo's termination and, instead, suspend him for 30 days. In return, Fosmo agreed to participate in the EAS program, the official employee assistance program for state employees, and comply with the program's recommendations.

Fosmo refused to participate in the EAS program. On October 14, 1996, WSF wrote a letter to Fosmo terminating him a second time. That letter stated: "As a result of your failure to comply with the re-instatement conditions, your termination is effective immediately."

Fosmo sued, alleging his second termination was wrongful. The trial court dismissed Fosmo's complaint on summary judgment, and he appealed. The Court of Appeals of Washington identified as the determinative issue in Fosmo's case whether the terms of his reinstatement agreement violated the public policy set forth in RCW 41.04.730. Under that statute, nonparticipation in the employee advisory service (EAS) program "shall not be a factor in any decision affecting an employee's job security...." The reinstatement agreement signed by Fosmo required that he participate in the EAS program. However, because he was no longer an employee when he signed the agreement, the agreement did not violate any clearly mandated public policy. The Court of Appeals therefore affirmed the trial court:

Fosmo argues that the State cannot fire an employee for not participating in the EAS program. Consequently, the terms of his reinstatement agreement violate public policy.

"It is well settled that parties may incorporate into a contract any provision that is not illegal or against public policy." Agreements against public policy are unenforceable.

A claim alleging wrongful termination in violation of public policy requires proof of four elements: (1) a clear mandate of public policy; (2) discouraging the conduct the employee engaged in would jeopardize that public policy; (3) the public policy-linked conduct caused the termination; and (4) the employer is not able to offer an overriding justification for the termination.

Fosmo's claim fails on all four points, but consideration of the first element is sufficient to affirm the trial court's decision. The Legislature established the EAS program to assist state employees "in resolving personal problems that impair their performance...." This was based on a legislative finding that "[a]ssisting employees in resolving personal problems that impair their performance will result in a more productive work force, better morale, reduced stress, reduced use of medical benefits, reduced absenteeism, lower turnover rates, and fewer accidents."

Our Supreme Court has explained how to determine whether a clear mandate of public policy has been violated:

[C]ourts should inquire whether the employer's conduct contravenes the letter or purpose of a constitutional, statutory, or regulatory provision or scheme. Prior judicial decisions may also establish the relevant public policy. However, courts should proceed cautiously if called upon to declare public policy absent some prior legislative or judicial expression on the subject.

Fosmo alleges that there is a clear mandate of public policy in RCW 41.04.730. That section of the statute explains that participation or nonparticipation in the employee assistance program "shall not be a factor in any decision affecting an employee's job security...."

Fosmo was initially terminated by the Washington State Ferries for flagrant, unexcused absenteeism, not for refusing to participate in the EAS program. Through his union, he filed a grievance contesting his termination. He then negotiated a settlement agreement. As a condition of his reinstatement, Fosmo agreed to be assessed by the EAS program, comply with its recommendations, and submit to drug testing.

The reinstatement agreement at issue in this case made participation in the EAS program a condition of reinstatement and continued employment. When Fosmo agreed to the conditions of his reinstatement, he was no longer a state employee. When he violated the conditions of his conditional reinstatement he was properly terminated. No clear mandate of public policy was implicated. The statute does not set forth any relevant public policy that terminated employees cannot agree to participate in the EAS program, nor that having violated the terms of their own agreement they cannot be dismissed. The State is therefore entitled to judgment as a matter of law.

Fosmo v. State Dept of Personnel

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