summary table of contents · xviii table of contents 1. collective bargaining agreement; grievance...

MSPB CASE SUMMARIES i

SUMMARY TABLE OF CONTENTS

GLOSSARY............................................................................................................................................. iADVERSE ACTIONS ............................................................................................................................ 1ARBITRATION/COLLECTIVE BARGAINING-RELATED ISSUES ...................................................... 33ATTORNEY FEES ............................................................................................................................... 45BOARD PROCEDURES ...................................................................................................................... 59COMPLIANCE AND ENFORCEMENT ................................................................................................ 89CONSTITUTIONAL ISSUES ............................................................................................................... 97DEFENSES ....................................................................................................................................... 101DISCOVERY ...................................................................................................................................... 119DISCRIMINATION ........................................................................................................................... 123EVIDENCE ........................................................................................................................................ 151HARMFUL ERROR ........................................................................................................................... 167HEARINGS ....................................................................................................................................... 183INTERIM RELIEF .............................................................................................................................. 199JUDGES AND ARBITRATORS .......................................................................................................... 203JUDICIAL REVIEW ........................................................................................................................... 207JURISDICTION ................................................................................................................................ 227LEAVE ............................................................................................................................................... 283MITIGATION AND AGGRAVATING FACTORS ................................................................................ 285MOOTNESS ...................................................................................................................................... 299NEXUS .............................................................................................................................................. 307PAY ISSUES ....................................................................................................................................... 311PERFORMANCE-BASED ACTIONS—CHAPTER 43 ....................................................................... 313PROHIBITED PERSONNEL PRACTICES; REPRISAL ....................................................................... 319REDUCTION IN FORCE; FURLOUGHS ........................................................................................... 377REEMPLOYMENT RIGHTS ............................................................................................................... 385REMEDIES ........................................................................................................................................ 395REPRESENTATION .......................................................................................................................... 409RETIREMENT ................................................................................................................................... 413SANCTIONS ...................................................................................................................................... 467SENIOR EXECUTIVE SERVICE ......................................................................................................... 471SETTLEMENTS ................................................................................................................................. 473STATUTORY AND REGULATORY CONSTRUCTION ....................................................................... 503SUBSTANTIVE OFFENSES .............................................................................................................. 513TIMELINESS ..................................................................................................................................... 547USERRA ........................................................................................................................................... 589VEOA ................................................................................................................................................ 607TABLE OF CASES.............................................................................................................................. 625INDEX ............................................................................................................................................... 667

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MSPB CASE SUMMARIES iii

TABLE OF CONTENTS

GLOSSARY............................................................................................................................................. iADVERSE ACTIONS ............................................................................................................................ 1A. ACTIONS AGAINST ALJS....................................................................................................................................................................................................................... 1

1. CONDUCT UNBECOMING ..................................................................................................................................................................................................... 12. CONSTRUCTIVE ADVERSE ACTIONS; TUNIK .................................................................................................................................................................. 13. FAILURE TO FOLLOW PERFORMANCE-RELATED DIRECTIVES................................................................................................................................. 14. FURLOUGHS ............................................................................................................................................................................................................................... 15. “GOOD CAUSE” STANDARD .................................................................................................................................................................................................. 26. JURISDICTION ............................................................................................................................................................................................................................ 27. PROCEDURE ................................................................................................................................................................................................................................ 38. STATUS DURING REMOVAL PROCEEDINGS ................................................................................................................................................................... 3

B. APPOINTMENTS; PROMOTIONS, CANCELATION ....................................................................................................................................................................... 3C. ARBITRATION REVIEW ........................................................................................................................................................................................................................... 3D. CHARGES .................................................................................................................................................................................................................................................... 3

1. INTENT ELEMENT ...................................................................................................................................................................................................................... 32. MERGER ........................................................................................................................................................................................................................................ 4

E. CONSTRUCTIVE ADVERSE ACTIONS ............................................................................................................................................................................................... 41. BOARD AUTHORITY ................................................................................................................................................................................................................. 42. COERCION; INVOLUNTARINESS .......................................................................................................................................................................................... 43. DISCRIMINATION ALLEGATIONS ........................................................................................................................................................................................ 64. INVOLUNTARY DOWNGRADINGS ...................................................................................................................................................................................... 75. INVOLUNTARY REASSIGNMENTS ....................................................................................................................................................................................... 76. INVOLUNTARY RESIGNATIONS ............................................................................................................................................................................................ 77. INVOLUNTARY RETIREMENT ..............................................................................................................................................................................................10

a. Disability Retirement ...............................................................................................................................................................................................14b. Whistleblower Reprisal ...........................................................................................................................................................................................15

8. JURISDICTIONAL SHOWING...............................................................................................................................................................................................159. SETTLEMENT-RELATED ........................................................................................................................................................................................................1510. SUSPENSIONS ..........................................................................................................................................................................................................................16

a. Absences ......................................................................................................................................................................................................................18b. Certain Privileges ......................................................................................................................................................................................................18c. Intolerable Working Conditions ..........................................................................................................................................................................18d. Light Duty ....................................................................................................................................................................................................................18e. Pleading Standards ..................................................................................................................................................................................................19

11. TIMELINESS ...............................................................................................................................................................................................................................19F. DISABILITY RELATED............................................................................................................................................................................................................................19

1. AGENCY-INITIATED ACTIONS ............................................................................................................................................................................................202. EVIDENTIARY BURDENS .......................................................................................................................................................................................................203. RECOVERY BETWEEN DATE OF REMOVAL AND MSPB DECISION .......................................................................................................................204. WORKERS’ COMPENSATION ...............................................................................................................................................................................................20

G. ENFORCED LEAVE .................................................................................................................................................................................................................................21H. INDEFINITE SUSPENSIONS ...............................................................................................................................................................................................................23

1. ACCESS TO CLASSIFIED INFORMATION; SECURITY CLEARANCES......................................................................................................................232. CRIMINAL CHARGES/PROCEEDINGS ..............................................................................................................................................................................243. DURATION .................................................................................................................................................................................................................................254. MEDICAL CONDITION ...........................................................................................................................................................................................................255. PROCEDURES; DUE PROCESS ............................................................................................................................................................................................256. REASSIGNMENT; ALTERNATIVES ......................................................................................................................................................................................277. REGULATORY ERROR .............................................................................................................................................................................................................288. REMEDIES ..................................................................................................................................................................................................................................289. SENSITIVE POSITIONS ...........................................................................................................................................................................................................2810. SEVERITY OF PENALTY .........................................................................................................................................................................................................29

I. NATIONAL SECURITY ISSUES ...........................................................................................................................................................................................................29J. PERFORMANCE BASED .......................................................................................................................................................................................................................30

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K. REMOVAL .................................................................................................................................................................................................................................................30L. SELECTIVE SERVICE ..............................................................................................................................................................................................................................30M. SERVICE EFFICIENCY ............................................................................................................................................................................................................................30

1. RESPONDEAT SUPERIOR ........................................................................................................................................................................................................30N. SUITABILITY DETERMINATIONS ......................................................................................................................................................................................................30

1. AGENCY DETERMINATIONS UNDER DELEGATED AUTHORITY FROM OPM ...................................................................................................32O. SUSPENSIONS .........................................................................................................................................................................................................................................32

1. INDEFINITE SUSPENSIONS ..................................................................................................................................................................................................32

ARBITRATION/COLLECTIVE BARGAINING-RELATED ISSUES ...................................................... 33A. AGENCY INITIATED REVIEW ..............................................................................................................................................................................................................33B. ARBITRAL V. APPEAL CONTEXT ......................................................................................................................................................................................................33C. ARBITRATORS..........................................................................................................................................................................................................................................33D. ATTORNEY FEES .....................................................................................................................................................................................................................................33E. AWARDS ....................................................................................................................................................................................................................................................33F. BOARD JURISDICTION AND REVIEW AUTHORITY OVER ARBITRATION DECISIONS ..................................................................................................33

1. § 2302; PROHIBITED PERSONNEL PRACTICES ALLEGATIONS ..............................................................................................................................332. ARBITRATOR’S FACTUAL FINDINGS ................................................................................................................................................................................343. ARGUMENTS NOT RAISED BELOW ..................................................................................................................................................................................344. ATTORNEY FEES ......................................................................................................................................................................................................................345. COLLATERAL ESTOPPEL .......................................................................................................................................................................................................356. COMPLIANCE ISSUES ............................................................................................................................................................................................................357. CONTRACT INTERPRETATION ............................................................................................................................................................................................358. DISCRIMINATION ....................................................................................................................................................................................................................359. FINAL AWARDS ........................................................................................................................................................................................................................3510. FLEXIPLACE DECISIONS .......................................................................................................................................................................................................3511. PENALTY DETERMINATIONS ..............................................................................................................................................................................................3512. POSTAL SERVICE EMPLOYEES ............................................................................................................................................................................................3613. PROCEDURAL ISSUES ...........................................................................................................................................................................................................3614. REDUCTION IN FORCE ..........................................................................................................................................................................................................3615. REVIEW BY FULL BOARD ......................................................................................................................................................................................................3616. SCOPE OF REVIEW ..................................................................................................................................................................................................................3617. SUBMISSIONS TO THE MSPB ..............................................................................................................................................................................................3718. TIMELINESS ...............................................................................................................................................................................................................................3719. ULPS .............................................................................................................................................................................................................................................3720. UNION ANIMUS ........................................................................................................................................................................................................................3721. VACATING, SETTING ASIDE, MODIFYING DECISIONS OF ARBITRATORS .........................................................................................................37

G. CONTRACT INTERPRETATION ..........................................................................................................................................................................................................38H. ELECTION OF REMEDIES ...................................................................................................................................................................................................................38

1. ADVERSE ACTIONS AND PERFORMANCE CASES ......................................................................................................................................................382. BELATED ELECTION ...............................................................................................................................................................................................................393. DISCRIMINATION ....................................................................................................................................................................................................................394. PREVIOUSLY FILED BOARD APPEALS .............................................................................................................................................................................395. PROHIBITED PERSONNEL PRACTICES AND INDIVIDUAL RIGHTS OF ACTION ..............................................................................................396. REDUCTION IN FORCE ..........................................................................................................................................................................................................397. SETTLEMENT EFFECT ............................................................................................................................................................................................................408. TIMELINESS ISSUES ................................................................................................................................................................................................................409. ULPS .............................................................................................................................................................................................................................................4010. USERRA ......................................................................................................................................................................................................................................4011. USPS .............................................................................................................................................................................................................................................4012. WIGI DENIALS ..........................................................................................................................................................................................................................40

I. FEDERAL CIRCUIT REVIEW.................................................................................................................................................................................................................40J. GOOD FAITH COLLECTIVE BARGAINING .....................................................................................................................................................................................41K. HARMFUL ERROR .................................................................................................................................................................................................................................41L. NEGOTIABILITY ......................................................................................................................................................................................................................................41M. PENALTIES—TIME SERVED................................................................................................................................................................................................................41N. PROCEDURE ............................................................................................................................................................................................................................................42O. STANDARD OF REVIEW .......................................................................................................................................................................................................................42P. TIMELY APPEALS ...................................................................................................................................................................................................................................43Q. UNION REPRESENTATION UNDER § 7114 ...................................................................................................................................................................................43

MSPB CASE SUMMARIES v

R. USPS ...........................................................................................................................................................................................................................................................43

ATTORNEY FEES ............................................................................................................................... 45A. ATTORNEY CLIENT RELATIONSHIP .................................................................................................................................................................................................45B. AUTHORITY TO AWARD .....................................................................................................................................................................................................................45

1. AGE DISCRIMINATION ..........................................................................................................................................................................................................452. AMERICAN JOBS CREATIONS ACT ...................................................................................................................................................................................453. BACK PAY ACT ..........................................................................................................................................................................................................................454. BOARD AUTHORITY ...............................................................................................................................................................................................................455. EQUAL ACCESS TO JUSTICE ACT ......................................................................................................................................................................................456. PROHIBITED PERSONNEL PRACTICES ............................................................................................................................................................................467. USERRA .......................................................................................................................................................................................................................................468. VEOA ............................................................................................................................................................................................................................................47

C. BURDEN OF PROOF ..............................................................................................................................................................................................................................47D. CIVIL RIGHTS STATUTES ......................................................................................................................................................................................................................47E. CLEARLY WITHOUT MERIT ................................................................................................................................................................................................................47F. COSTS AND EXPENSES .......................................................................................................................................................................................................................48

1. ELECTRONIC RESEARCH ......................................................................................................................................................................................................482. FAXES ...........................................................................................................................................................................................................................................483. PHOTOCOPYING .....................................................................................................................................................................................................................484. TRAVEL EXPENSES ..................................................................................................................................................................................................................48

G. COURT APPEARANCES ........................................................................................................................................................................................................................48H. ENFORCEMENT PROCEEDINGS .......................................................................................................................................................................................................48I. EQUITABLE RELIEF ................................................................................................................................................................................................................................48J. FEE DETERMINATIONS ........................................................................................................................................................................................................................48K. FEE PETITIONS ........................................................................................................................................................................................................................................48

1. CONFLICTS OF INTEREST ....................................................................................................................................................................................................482. SUPPLEMENTAL AND CORRECTED FEE PETITIONS ..................................................................................................................................................483. TIME ITEMIZATION .................................................................................................................................................................................................................484. TIMING AND PLACE OF FILING .........................................................................................................................................................................................49

L. GROSS PROCEDURAL ERROR ..........................................................................................................................................................................................................49M. INCURRED ...............................................................................................................................................................................................................................................49N. INTEREST OF JUSTICE ..........................................................................................................................................................................................................................49O. KNEW OR SHOULD HAVE KNOWN ................................................................................................................................................................................................50P. LAW CLERKS, PARALEGALS AND PRO SE APPELLANTS .........................................................................................................................................................50Q. MEDIATION ..............................................................................................................................................................................................................................................50R. MIXED CASES ..........................................................................................................................................................................................................................................50S. MOOTNESS ..............................................................................................................................................................................................................................................50T. OSC CASES ...............................................................................................................................................................................................................................................50U. PREVAILING PARTY ..............................................................................................................................................................................................................................51

1. CANCELATION OR RESCISSION OF ACTION ................................................................................................................................................................512. CATALYST THEORY ................................................................................................................................................................................................................513. ENFORCEMENT PROCEEDINGS ........................................................................................................................................................................................524. EQUAL ACCESS TO JUSTICE ACT ......................................................................................................................................................................................525. MITIGATION OF PENALTY ....................................................................................................................................................................................................526. PREVAILING THROUGH MSPB PROCEDURES ..............................................................................................................................................................527. REMANDS ..................................................................................................................................................................................................................................528. SETTLEMENTS ..........................................................................................................................................................................................................................539. UNSUCCESSFUL CLAIMS .....................................................................................................................................................................................................5310. USERRA .......................................................................................................................................................................................................................................53

V. PROCEDURE ............................................................................................................................................................................................................................................53W. REASONABLENESS OF FEES ..............................................................................................................................................................................................................54

1. ENHANCEMENTS ....................................................................................................................................................................................................................542. FEES ALLOWED ........................................................................................................................................................................................................................543. HENSLEY-LODESTAR ..............................................................................................................................................................................................................544. HOURLY RATE ...........................................................................................................................................................................................................................545. JUDGE’S RESPONSIBILITY ...................................................................................................................................................................................................556. LAFFEY MATRIX ........................................................................................................................................................................................................................557. NOTICE TO COUNSEL OF DEFECTS IN FEE MOTION .................................................................................................................................................558. TIME INVESTED ........................................................................................................................................................................................................................55

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X. REPRESENTATIVE’S RIGHT TO FEES ................................................................................................................................................................................................56Y. SETTLEMENT-RELATED ISSUES ......................................................................................................................................................................................................56Z. SUBSTANTIAL INNOCENCE ..............................................................................................................................................................................................................56AA. UNION LEGAL DEFENSE FUNDS .....................................................................................................................................................................................................57BB. USE OF COUNSEL; LICENSURE .........................................................................................................................................................................................................57CC. WAIVER OF FEES ....................................................................................................................................................................................................................................57

BOARD PROCEDURES ...................................................................................................................... 59A. ADVISORY OPINIONS ..........................................................................................................................................................................................................................59B. AGENCY RESPONSE TO APPEAL ......................................................................................................................................................................................................59C. ARBITRATION AWARDS REVIEWS ...................................................................................................................................................................................................59D. BOARD AUTHORITY ............................................................................................................................................................................................................................60

1. AGENCY REGULATIONS .......................................................................................................................................................................................................602. CLERK OF THE BOARD ..........................................................................................................................................................................................................603. DISAGREEMENTS BETWEEN/AMONG MEMBERS ......................................................................................................................................................604. JUDICIAL NOTICE ....................................................................................................................................................................................................................605. REASSIGNING CASES.............................................................................................................................................................................................................606. SENSITIVE SECURITY INFORMATION ..............................................................................................................................................................................607. SUA SPONTE .............................................................................................................................................................................................................................608. SUFFICIENCY OF THE RECORD ..........................................................................................................................................................................................609. TRANSFER OF CASE TO OTHER FORA .............................................................................................................................................................................60

E. CONFIDENTIALITY ...............................................................................................................................................................................................................................601. ANONYMITY; “JOHN AND JANE DOE” APPEALS .........................................................................................................................................................602. SEALING RECORDS OR CASE FILES .................................................................................................................................................................................61

F. CONTINUANCES ...................................................................................................................................................................................................................................61G. DE NOVO REVIEW ..................................................................................................................................................................................................................................61H. DELAYS IN PROCESSING .....................................................................................................................................................................................................................61I. DISMISSALS ............................................................................................................................................................................................................................................61

1. 120-DAY ADJUDICATION STANDARD.............................................................................................................................................................................612. ADJUDICATORY EFFICIENCY ..............................................................................................................................................................................................623. APPEALS FROM OSC .............................................................................................................................................................................................................624. CRIMINAL CHARGES DISPOSITION .................................................................................................................................................................................625. DESIGNATION OF REPRESENTATIVE ...............................................................................................................................................................................626. DISABILITY RETIREMENT .....................................................................................................................................................................................................627. FAILURE TO FOLLOW PROCEDURE ..................................................................................................................................................................................628. FAILURE TO PROSECUTE ......................................................................................................................................................................................................629. FAILURE TO STATE A CLAIM ................................................................................................................................................................................................6310. OPM RESCISSION ....................................................................................................................................................................................................................6311. PROCEDURES ...........................................................................................................................................................................................................................6312. REFILING .....................................................................................................................................................................................................................................6313. REQUEST FOR RECONSIDERATION ..................................................................................................................................................................................6314. RESCISSION ...............................................................................................................................................................................................................................6315. SANCTIONS ...............................................................................................................................................................................................................................6316. SETTLEMENTS ..........................................................................................................................................................................................................................6417. TIMELINESS ...............................................................................................................................................................................................................................6418. WITH PREJUDICE ....................................................................................................................................................................................................................6419. WITHOUT PREJUDICE ...........................................................................................................................................................................................................6420. USERRA .......................................................................................................................................................................................................................................66

J. FORWARDS ..............................................................................................................................................................................................................................................67K. INITIAL DECISION—CONTENTS ......................................................................................................................................................................................................67L. INITIAL DECISION—REQUIRED ANALYSIS ..................................................................................................................................................................................68M. INTERLOCUTORY APPEALS ..............................................................................................................................................................................................................68N. ISSUES NOT PREVIOUSLY RAISED ...................................................................................................................................................................................................69O. JUDICIAL REVIEW ..................................................................................................................................................................................................................................69P. MENTALLY INCOMPETENT APPELLANTS; FRENCH PROCEDURES .....................................................................................................................................69Q. MERITS OF THE CASE ...........................................................................................................................................................................................................................69

1. MERITS OF THE CASE VERSUS JURISDICTIONAL ANALYSIS ..................................................................................................................................69R. PETITION FOR REVIEW ........................................................................................................................................................................................................................70

1. AGENCY RESPONSE ...............................................................................................................................................................................................................702. BOARD REQUESTS FOR ADDITIONAL INFORMATION .............................................................................................................................................70

MSPB CASE SUMMARIES vii

3. DISMISSALS ..............................................................................................................................................................................................................................704. FACTUAL AND CREDIBILITY FINDINGS ..........................................................................................................................................................................705. INEFFECTIVE ASSISTANCE OF COUNSEL .......................................................................................................................................................................726. NEW ARGUMENTS ..................................................................................................................................................................................................................727. PLEADINGS................................................................................................................................................................................................................................728. QUORUM ....................................................................................................................................................................................................................................729. REPLY AND SUPPLEMENTAL BRIEFS ...............................................................................................................................................................................72

S. PRESERVATION OF ERROR ................................................................................................................................................................................................................73T. PRESERVING THE RECORD ................................................................................................................................................................................................................73U. PRO SE APPELLANTS ............................................................................................................................................................................................................................74

1. AJ ROLE .......................................................................................................................................................................................................................................74V. PROPER PARTIES ...................................................................................................................................................................................................................................75W. RECAPTIONING APPEALS ..................................................................................................................................................................................................................75X. REGULATION REVIEW REQUEST ......................................................................................................................................................................................................75Y. REMAND ..................................................................................................................................................................................................................................................75

1. AVOIDING REMAND...............................................................................................................................................................................................................752. VACATING INITIAL DECISION .............................................................................................................................................................................................75

Z. REOPENING AND RECONSIDERATION ..........................................................................................................................................................................................751. ANNUITY ERRORS ...................................................................................................................................................................................................................762. BOARD AUTHORITY ...............................................................................................................................................................................................................763. CASE PROCESSING ERRORS ...............................................................................................................................................................................................774. CHANGE IN BOARD PRECEDENT ......................................................................................................................................................................................775. CHANGE OF LAW ....................................................................................................................................................................................................................776. DILIGENCE REQUIREMENT ..................................................................................................................................................................................................777. ELECTION OF REMEDIES ......................................................................................................................................................................................................778. ERRORS BELOW .......................................................................................................................................................................................................................779. FEDERAL CIRCUIT PRECEDENT .........................................................................................................................................................................................7810. INTEREST OF JUSTICE ...........................................................................................................................................................................................................7811. JURISDICTIONAL ISSUES .....................................................................................................................................................................................................7812. LAW OF THE CASE ..................................................................................................................................................................................................................7913. NEW AND MATERIAL EVIDENCE; UNUSUAL CIRCUMSTANCES ...........................................................................................................................7914. PREMATURE FILINGS .............................................................................................................................................................................................................8015. PRO SE APPELLANTS ..............................................................................................................................................................................................................8016. PUBLIC INTEREST ....................................................................................................................................................................................................................8017. REMEDIES ..................................................................................................................................................................................................................................8118. RETIREMENT CASES ...............................................................................................................................................................................................................8119. SETTLEMENT AGREEMENTS ...............................................................................................................................................................................................8120. SUA SPONTE REOPENING .....................................................................................................................................................................................................8121. SUPREME COURT PRECEDENT ..........................................................................................................................................................................................8122. TIMELINESS ISSUES ................................................................................................................................................................................................................8123. TO REVIEW EVIDENCE ...........................................................................................................................................................................................................83

AA. REQUEST FOR EXTENSION ................................................................................................................................................................................................................83BB. RESCISSION .............................................................................................................................................................................................................................................83CC. STAYS .........................................................................................................................................................................................................................................................83DD. STIPULATIONS .......................................................................................................................................................................................................................................84EE. TWO MEMBER RULE .............................................................................................................................................................................................................................84FF. VENUE ........................................................................................................................................................................................................................................................84GG. WITHDRAWAL OF APPEAL.................................................................................................................................................................................................................84

1. ACT OF FINALITY ....................................................................................................................................................................................................................842. BASIC RIGHTS AND MANIFEST INJUSTICE ...................................................................................................................................................................853. BY APPELLANT .........................................................................................................................................................................................................................854. BY REPRESENTATIVE ..............................................................................................................................................................................................................855. CLEAR, UNEQUIVOCAL, AND DECISIVE ACTION........................................................................................................................................................866. INCAPACITY AND MENTAL ILLNESS CLAIMS ...............................................................................................................................................................867. JUDGE’S ERROR ......................................................................................................................................................................................................................868. MISINFORMATION; DURESS; MISREPRESENTATION .................................................................................................................................................879. MISLEADING OR INCOMPLETE INFORMATION ..........................................................................................................................................................8710. PETITION FOR REVIEW FOLLOWING WITHDRAWAL .................................................................................................................................................8711. REINSTATEMENT OF APPEAL .............................................................................................................................................................................................87

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12. REQUEST FOR RECONSIDERATION FOLLOWING WITHDRAWAL .........................................................................................................................8713. SETTLEMENT PROVISIONS RELATING TO WITHDRAWALS .....................................................................................................................................8814. WITHDRAWAL TO PURSUE EEO COMPLAINT ..............................................................................................................................................................8815. WITHDRAWAL TO PURSUE GRIEVANCE .........................................................................................................................................................................88

COMPLIANCE AND ENFORCEMENT ................................................................................................ 89A. COMPLIANCE ..........................................................................................................................................................................................................................................89

1. BACK PAY ...................................................................................................................................................................................................................................892. BURDEN OF PROOF; PROOF OF COMPLIANCE ...........................................................................................................................................................893. DEMOTION OF SUPERVISORS ..........................................................................................................................................................................................904. DISMISSAL ON PROOF .........................................................................................................................................................................................................905. EVIDENCE RELATING TO COMPLIANCE .........................................................................................................................................................................906. KNOWLEDGE OF FAILURE TO COMPLY ..........................................................................................................................................................................917. REHIRING....................................................................................................................................................................................................................................918. RESPONSIBLE AGENCY OFFICIAL, IDENTIFYING ........................................................................................................................................................919. SANCTIONS FOR NONCOMPLIANCE ..............................................................................................................................................................................91

B. ENFORCEMENT ......................................................................................................................................................................................................................................911. BACK PAY ....................................................................................................................................................................................................................................912. BOARD AUTHORITY ...............................................................................................................................................................................................................913. DISCOVERY ................................................................................................................................................................................................................................914. ENFORCEMENT LIMITATIONS ............................................................................................................................................................................................915. ENFORCEMENT OF MSPB DECISIONS ............................................................................................................................................................................926. EVIDENCE RELATING TO ENFORCEMENT......................................................................................................................................................................927. HEARINGS ..................................................................................................................................................................................................................................928. PETITION FOR ENFORCEMENT PROCEDURES ...........................................................................................................................................................92

C. RETURN TO DUTY .................................................................................................................................................................................................................................931. COLLECTIVE BARGAINING AGREEMENTS ....................................................................................................................................................................932. DELAY IN RESTORATION .....................................................................................................................................................................................................933. DEMOTIONS .............................................................................................................................................................................................................................934. INTERIM RELIEF ......................................................................................................................................................................................................................935. LEAVE ..........................................................................................................................................................................................................................................936. MEDICAL LIMITATIONS .........................................................................................................................................................................................................937. PRIORITY CONSIDERATION ...............................................................................................................................................................................................948. PROMOTIONS ..........................................................................................................................................................................................................................949. RELOCATION ............................................................................................................................................................................................................................9410. STATUS QUO ANTE ..................................................................................................................................................................................................................9411. TERM APPOINTMENT ...........................................................................................................................................................................................................9512. WORK SCHEDULE ..................................................................................................................................................................................................................95

D. TIMELINESS ..............................................................................................................................................................................................................................................95

CONSTITUTIONAL ISSUES ............................................................................................................... 97A. CLASSIFIED INFORMATION, ACCESS .............................................................................................................................................................................................97B. CONSTITUTIONAL CHALLENGES, GENERALLY .........................................................................................................................................................................97C. DOUBLE JEOPARDY .............................................................................................................................................................................................................................97D. DUE PROCESS .........................................................................................................................................................................................................................................97E. EQUAL PROTECTION ...........................................................................................................................................................................................................................97F. FIFTH AMENDMENT .............................................................................................................................................................................................................................98G. FIRST AMENDMENT ............................................................................................................................................................................................................................98H. PROPERTY AND LIBERTY INTERESTS ............................................................................................................................................................................................99I. SEARCH AND SEIZURE .......................................................................................................................................................................................................................99J. SELF INCRIMINATION .........................................................................................................................................................................................................................99K. SUPREMACY CLAUSE ....................................................................................................................................................................................................................... 100L. “UNDER COLOR OF STATE LAW” .................................................................................................................................................................................................. 100

DEFENSES ....................................................................................................................................... 101A. AFFIRMATIVE DEFENSES ................................................................................................................................................................................................................. 101

1. PROCEDURE ........................................................................................................................................................................................................................... 1012. WAIVER .................................................................................................................................................................................................................................... 101

B. COLLATERAL ESTOPPEL .................................................................................................................................................................................................................. 1011. CRIMINAL CHARGES PLEA ............................................................................................................................................................................................... 1012. CRIMINAL CONVICTIONS ................................................................................................................................................................................................. 101

MSPB CASE SUMMARIES ix

3. EEOC DECISIONS ................................................................................................................................................................................................................. 1014. ERRORS OR CHANGES IN THE LAW .............................................................................................................................................................................. 1025. EXCEPTIONS TO COLLATERAL ESTOPPEL .................................................................................................................................................................. 1026. FULLY REPRESENTED ......................................................................................................................................................................................................... 1027. GRIEVANCES; ARBITRATION ............................................................................................................................................................................................ 1028. ISSUE IDENTIFICATION ...................................................................................................................................................................................................... 1029. JUDICIAL REVIEW ................................................................................................................................................................................................................ 10210. JURISDICTIONAL ISSUES .................................................................................................................................................................................................. 10211. OPM DECISIONS ................................................................................................................................................................................................................... 10312. OTHER ADMINISTRATIVE PROCEEDINGS ................................................................................................................................................................... 10313. PRIOR ADJUDICATION ....................................................................................................................................................................................................... 10314. PROHIBITED PERSONNEL PRACTICES ......................................................................................................................................................................... 10315. RAISED SUA SPONTE BY MSPB ........................................................................................................................................................................................ 10416. SETTLEMENT RELATED ISSUES ...................................................................................................................................................................................... 10417. SUCCESSIVE MSPB APPEALS; DISMISSALS ............................................................................................................................................................... 10418. UNEMPLOYMENT COMPENSATION APPEALS .......................................................................................................................................................... 10419. USERRA .................................................................................................................................................................................................................................... 104

C. DISPARATE PENALTIES; TREATMENT .......................................................................................................................................................................................... 104D. DUE PROCESS CHALLENGES ......................................................................................................................................................................................................... 105E. EQUITABLE ESTOPPEL ...................................................................................................................................................................................................................... 105F. EQUITABLE TOLLING ........................................................................................................................................................................................................................ 106G. ESTOPPEL, GENERALLY ................................................................................................................................................................................................................... 106H. FAILURE TO STATE A CLAIM ............................................................................................................................................................................................................ 106I. INCAPACITY; INCOMPETENCE ...................................................................................................................................................................................................... 107J. JUDICIAL ESTOPPEL .......................................................................................................................................................................................................................... 107K. LACHES ................................................................................................................................................................................................................................................... 107L. LAW OF THE CASE ............................................................................................................................................................................................................................. 108M. MARITAL STATUS DISCRIMINATION ........................................................................................................................................................................................... 109N. NOT IN ACCORDANCE WITH LAW ............................................................................................................................................................................................... 109O. PARTISAN POLITICAL REASONS .................................................................................................................................................................................................. 109P. PRIVILEGE .............................................................................................................................................................................................................................................. 110Q. PROHIBITED PERSONNEL PRACTICES ....................................................................................................................................................................................... 110R. REASONABLENESS OF THE PENALTY ......................................................................................................................................................................................... 110S. REPRISAL ............................................................................................................................................................................................................................................... 110T. RES JUDICATA ...................................................................................................................................................................................................................................... 111

1. AFFIRMATIVE DEFENSES ................................................................................................................................................................................................... 1122. CONTRACT AND ADMINISTRATIVE GRIEVANCE; ARBITRATION CASES ......................................................................................................... 1123. COURT DECISIONS .............................................................................................................................................................................................................. 1124. ELEMENTS OF RES JUDICATA ........................................................................................................................................................................................... 1135. ISSUE IDENTIFICATION AND PRIOR CAUSE OF ACTION ...................................................................................................................................... 1146. JURISDICTIONAL ISSUES .................................................................................................................................................................................................. 1147. OPM DECISIONS ................................................................................................................................................................................................................... 1158. OWCP DECISIONS ................................................................................................................................................................................................................ 1159. PARTY IDENTIFICATION .................................................................................................................................................................................................... 11510. POSTAL SERVICE EMPLOYEES ......................................................................................................................................................................................... 11511. PROHIBITED PERSONNEL PRACTICES ......................................................................................................................................................................... 11512. SETTLEMENTS ....................................................................................................................................................................................................................... 11613. SOCIAL SECURITY DETERMINATIONS ......................................................................................................................................................................... 11614. SUCCESSIVE DISCIPLINARY ACTIONS ......................................................................................................................................................................... 11615. SUCCESSIVE MSPB APPEALS ........................................................................................................................................................................................... 11616. UNEMPLOYMENT COMPENSATION APPEALS .......................................................................................................................................................... 116

U. SELF-DEFENSE .................................................................................................................................................................................................................................... 116V. USERRA VIOLATIONS ........................................................................................................................................................................................................................ 117

DISCOVERY ...................................................................................................................................... 119A. DEFINED ................................................................................................................................................................................................................................................. 119B. ELECTRONIC RECORDS .................................................................................................................................................................................................................... 119C. ENFORCEMENT PROCEEDINGS .................................................................................................................................................................................................... 119D. ENTITLEMENT TO DISCOVERY....................................................................................................................................................................................................... 119E. IN CAMERA REVIEW............................................................................................................................................................................................................................ 119

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F. INITIATING DISCOVERY ................................................................................................................................................................................................................... 119G. INSUFFICIENT TIME FOR DISCOVERY ......................................................................................................................................................................................... 119H. INTERLOCUTORY APPEALS REGARDING DISCOVERY ......................................................................................................................................................... 119I. IRA CASES .............................................................................................................................................................................................................................................. 119J. JURISDICTIONAL DETERMINATIONS AND TIMING OF DISCOVERY ............................................................................................................................... 119K. LIMITING DISCOVERY ....................................................................................................................................................................................................................... 120L. MOTIONS TO COMPEL...................................................................................................................................................................................................................... 120M. PHYSICAL INSPECTION OF DOCUMENTS ................................................................................................................................................................................ 120N. PRESERVING THE RECORD.............................................................................................................................................................................................................. 121O. PRIVILEGE CLAIMS ............................................................................................................................................................................................................................. 121P. REASONABLY CALCULATED; TOO BROAD; IMMATERIAL; IRRELEVANT ........................................................................................................................ 121Q. REVIEW OF DISCOVERY RULINGS ................................................................................................................................................................................................ 121R. SUBSTANTIAL COMPLIANCE WITH DEADLINES .................................................................................................................................................................... 121S. TIMELINESS OF REQUESTS AND ANSWERS ............................................................................................................................................................................. 122T. UNDER OATH ....................................................................................................................................................................................................................................... 122

DISCRIMINATION ........................................................................................................................... 123A. AFFIRMATIVE DEFENSE ORDER .................................................................................................................................................................................................... 123B. AGE DISCRIMINATION ..................................................................................................................................................................................................................... 123

1. AGENCY QUESTIONS ABOUT RETIREMENT PLANS ............................................................................................................................................... 1232. BURDEN OF PROOF ............................................................................................................................................................................................................ 1233. COMPENSATORY DAMAGES ........................................................................................................................................................................................... 1234. DISPARATE IMPACT ............................................................................................................................................................................................................. 1235. OLDER WORKERS BENEFIT PROTECTION ACT ......................................................................................................................................................... 1236. OVER 40 YEARS OF AGE .................................................................................................................................................................................................... 1247. PRETEXT .................................................................................................................................................................................................................................. 1248. SETTLEMENT RELATED ...................................................................................................................................................................................................... 1249. STANDARD OF REVIEW ..................................................................................................................................................................................................... 124

C. BURDEN OF PROOF ........................................................................................................................................................................................................................... 1241. ADMINISTRATIVE JUDGE’S DUTY TO INFORM APPELLANT OF BURDEN ..................................................................................................... 1242. DIRECT EVIDENCE CASES ................................................................................................................................................................................................. 1243. DISCRIMINATION ALLEGATIONS AS AFFIRMATIVE DEFENSE ............................................................................................................................ 1254. INDIRECT EVIDENCE ........................................................................................................................................................................................................... 1255. LEGITIMATE NONDISCRIMINATORY REASONS ........................................................................................................................................................ 1256. MIXED MOTIVE CASES ....................................................................................................................................................................................................... 1257. PREGNANCY .......................................................................................................................................................................................................................... 1258. PRETEXT .................................................................................................................................................................................................................................. 1269. PRIMA FACIE CASE................................................................................................................................................................................................................ 126

a. Comparators ............................................................................................................................................................................................................ 12610. REHABILITATION ACT AND ADA .................................................................................................................................................................................... 12611. SHIFTING BURDEN OF PROOF ........................................................................................................................................................................................ 12612. VICARIOUS LIABILITY ......................................................................................................................................................................................................... 12713. VIOLATIONS OF AGENCY POLICIES IMPLICATING TITLE VII ............................................................................................................................... 127

D. “CAT’S PAW” .......................................................................................................................................................................................................................................... 127E. CONFIDENTIAL INFORMATION ................................................................................................................................................................................................... 127F. CONSTRUCTIVE AGENCY ACTIONS ........................................................................................................................................................................................... 127G. DIRECT VS. INDIRECT EVIDENCE OF DISCRIMINATION ...................................................................................................................................................... 128H. DISABILITY: PHYSICAL; MENTAL ................................................................................................................................................................................................. 128

1. ACCOMMODATION ............................................................................................................................................................................................................ 128a. Arrival Time .............................................................................................................................................................................................................. 128b. Burden of Proof for Failure to Accommodate Claims ............................................................................................................................... 128c. Enforced Leave; Suspensions ............................................................................................................................................................................ 129d. Flexible Work Schedule ........................................................................................................................................................................................ 129e. Interactive Process ................................................................................................................................................................................................. 129f. Job Restructuring; New Position ...................................................................................................................................................................... 130g. Light Duty Assignment ........................................................................................................................................................................................ 130h. Promotions ............................................................................................................................................................................................................... 131i. Reassignment .......................................................................................................................................................................................................... 131j. Sources of Accommodative Rights Other Than by Law ........................................................................................................................... 131k. Supervisor Change ............................................................................................................................................................................................... 131

MSPB CASE SUMMARIES xi

l. Undue Burden ......................................................................................................................................................................................................... 1312. BURDEN OF PROOF IN DISABILITY DISCRIMINATION CASES ............................................................................................................................ 1323. CASE-BY-CASE DETERMINATIONS ................................................................................................................................................................................ 1324. DEFENSES ............................................................................................................................................................................................................................... 1325. DIRECT THREAT DEFENSE ................................................................................................................................................................................................ 1326. EFFECTS OF MEDICATION; MITIGATING MEASURES ............................................................................................................................................. 1337. ESSENTIAL FUNCTIONS OF THE POSITION ............................................................................................................................................................... 1338. “HANDICAPPED” .................................................................................................................................................................................................................. 1339. INDIVIDUALS REGARDED AS OR PERCEIVED AS DISABLED .............................................................................................................................. 133

a. Association With Disabled Persons ................................................................................................................................................................. 13410. MAJOR LIFE ACTIVITY ........................................................................................................................................................................................................ 134

a. Pregnancy ................................................................................................................................................................................................................. 13411. MEDICAL EXAMINATIONS AND INQUIRIES ............................................................................................................................................................... 13512. MISCONDUCT ....................................................................................................................................................................................................................... 13513. MIXED MOTIVE CASES ....................................................................................................................................................................................................... 13514. QUALIFIED INDIVIDUAL WITH A DISABILITY ............................................................................................................................................................ 13515. REMEDIES ............................................................................................................................................................................................................................... 13616. SPECIFIC DISABILITIES ....................................................................................................................................................................................................... 136

a. Addictions ................................................................................................................................................................................................................ 136b. Stress .......................................................................................................................................................................................................................... 136

17. STANDARD OF REVIEW ..................................................................................................................................................................................................... 13618. SUBSTANTIALLY LIMITED ................................................................................................................................................................................................. 13619. TRANSITORY CONDITIONS .............................................................................................................................................................................................. 13720. USERRA .................................................................................................................................................................................................................................... 137

I. DISPARATE IMPACT; TREATMENT ................................................................................................................................................................................................ 137J. EXHAUSTION OF REMEDIES ......................................................................................................................................................................................................... 138K. HOSTILE WORK ENVIRONMENT ................................................................................................................................................................................................... 138

1. SEXUAL HARASSMENT; SEX-BASED HARASSMENT .............................................................................................................................................. 138L. MIXED CASE PROCEDURES ........................................................................................................................................................................................................... 139

1. APPEALS FROM FINAL AGENCY DECISIONS ............................................................................................................................................................ 1392. APPEALS FROM GRIEVANCES ......................................................................................................................................................................................... 1393. ARBITRATION DECISIONS ................................................................................................................................................................................................. 1394. BINDING EFFECT OF EEO RULINGS; REGULATIONS .............................................................................................................................................. 1395. CIVIL ACTIONS ...................................................................................................................................................................................................................... 1406. COURT REVIEW ..................................................................................................................................................................................................................... 1407. DISCIPLINE PENDING BEFORE THE EEOC .................................................................................................................................................................. 1408. ELECTION OF REMEDIES ................................................................................................................................................................................................... 1409. ERROR ....................................................................................................................................................................................................................................... 14110. ESTOPPEL ................................................................................................................................................................................................................................ 14111. FORCED RETIREMENT; RESIGNATION.......................................................................................................................................................................... 14112. IRAS ........................................................................................................................................................................................................................................... 14113. JUDGE’S DUTY TO RESOLVE ISSUES AND INFORM APPELLANT OF ELEMENTS OF PROOF .................................................................. 14114. JURISDICTION ....................................................................................................................................................................................................................... 14115. MOOTNESS ............................................................................................................................................................................................................................. 14216. MULTIPLE FILING OPTIONS ............................................................................................................................................................................................. 14217. NONMIXED MATTERS ........................................................................................................................................................................................................ 14218. NOTICE OF APPEAL RIGHTS ............................................................................................................................................................................................ 14219. ON PFR ..................................................................................................................................................................................................................................... 14320. OPM ........................................................................................................................................................................................................................................... 14321. PROPOSING OFFICIALS ..................................................................................................................................................................................................... 14322. RELIEF ....................................................................................................................................................................................................................................... 14323. RETIREMENT RELATED APPEALS ................................................................................................................................................................................... 14324. REVIEW AUTHORITY ........................................................................................................................................................................................................... 14325. SETTLEMENT AGREEMENTS ............................................................................................................................................................................................ 14326. SPECIAL PANEL; PRECEDENTIAL EFFECT OF PRIOR DECISIONS....................................................................................................................... 14427. STANDING ............................................................................................................................................................................................................................... 14428. SUMMARY JUDGMENT ...................................................................................................................................................................................................... 14429. TIMELINESS AND TOLLING .............................................................................................................................................................................................. 14430. USERRA .................................................................................................................................................................................................................................... 145

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31. VETERAN’S RIGHTS ............................................................................................................................................................................................................. 14532. WAIVER; ABANDONMENT OF DISCRIMINATION CLAIMS .................................................................................................................................... 145

M. NATIONAL ORIGIN DISCRIMINATION ........................................................................................................................................................................................ 146N. RACE DISCRIMINATION .................................................................................................................................................................................................................. 146O. RELIGIOUS DISCRIMINATION ........................................................................................................................................................................................................ 146P. REMEDIES ............................................................................................................................................................................................................................................. 146

1. ATTORNEY FEES ................................................................................................................................................................................................................... 1462. COMPENSATORY DAMAGES ........................................................................................................................................................................................... 1463. DISCIPLINE CASES ............................................................................................................................................................................................................... 1474. EEOC’S AUTHORITY TO SEEK RELIEF ............................................................................................................................................................................ 1475. FRONT PAY .............................................................................................................................................................................................................................. 1476. MIXED MOTIVE CASES ....................................................................................................................................................................................................... 1477. REINSTATEMENT .................................................................................................................................................................................................................. 147

Q. REPRISAL ............................................................................................................................................................................................................................................... 147R. SEX DISCRIMINATION ...................................................................................................................................................................................................................... 148

1. SEXUAL ORIENTATION ....................................................................................................................................................................................................... 149S. SPECIAL PANEL PROCEEDINGS ................................................................................................................................................................................................... 149

EVIDENCE ........................................................................................................................................ 151A. ADMISSIBILITY OF EVIDENCE ....................................................................................................................................................................................................... 151B. ADMISSIONS ........................................................................................................................................................................................................................................ 151C. CIRCUMSTANTIAL; DIRECT EVIDENCE ...................................................................................................................................................................................... 151

1. CIRCUMSTANTIAL EVIDENCE.......................................................................................................................................................................................... 1512. SUBSTITUTES FOR DIRECT EVIDENCE ........................................................................................................................................................................ 151

a. Presumptions ......................................................................................................................................................................................................... 151i. Judicial Notice .......................................................................................................................................................................................... 151ii. Mail Delivery ............................................................................................................................................................................................. 151iii. Public Officers .......................................................................................................................................................................................... 152

b. Res Judicata ............................................................................................................................................................................................................. 152i. OPM Annuity Determinations ........................................................................................................................................................... 152

D. COMPARATORS ................................................................................................................................................................................................................................... 152E. CONFIDENTIALITY ............................................................................................................................................................................................................................. 153F. CREDIBILITY FINDINGS ................................................................................................................................................................................................................... 153

1. CONTEMPORANEOUS STATEMENTS AND NOTATIONS ...................................................................................................................................... 1532. CREDIBILITY AND DEMEANOR-BASED FINDINGS; STANDARD OF REVIEW ................................................................................................ 1533. IMPLAUSIBLE OR INHERENTLY IMPROBABLE TESTIMONY ................................................................................................................................. 1544. IMPLICIT CREDIBILITY FINDINGS .................................................................................................................................................................................. 1545. INCONSISTENCIES; DENIALS; MEMORY LAPSE; FAILURE TO PROVIDE STATEMENT ................................................................................. 1546. JUDICIAL REVIEW ................................................................................................................................................................................................................ 1557. SELF-SERVING TESTIMONY; BIAS; CRIMINAL CONVICTION; PAST MISCONDUCT ..................................................................................... 1558. SWORN STATEMENTS ......................................................................................................................................................................................................... 1569. TELEPHONIC HEARINGS ................................................................................................................................................................................................... 156

G. DISABILITY CASES .............................................................................................................................................................................................................................. 156H. DRUG TESTS ......................................................................................................................................................................................................................................... 156I. EEO INVESTIGATIONS AS EVIDENCE .......................................................................................................................................................................................... 156J. EXCLUDED ............................................................................................................................................................................................................................................ 156K. EXPERT TESTIMONY .......................................................................................................................................................................................................................... 157L. EXPLANATORY MATERIAL ............................................................................................................................................................................................................... 157M. FEDERAL RULES OF EVIDENCE ..................................................................................................................................................................................................... 157N. HABIT ...................................................................................................................................................................................................................................................... 157O. HEARING CONDUCT AS EVIDENCE ............................................................................................................................................................................................. 157P. HEARSAY ................................................................................................................................................................................................................................................ 157Q. IMPEACHMENT EVIDENCE ............................................................................................................................................................................................................ 158R. MEDICAL EVIDENCE .......................................................................................................................................................................................................................... 158S. NEW AND MATERIAL ........................................................................................................................................................................................................................ 158

1. BOARD AUTHORITY ........................................................................................................................................................................................................... 1582. CLOSE OF THE RECORD ..................................................................................................................................................................................................... 1583. DISPARATE TREATMENT .................................................................................................................................................................................................... 1604. DUE DILIGENCE TEST ......................................................................................................................................................................................................... 1605. DVA RATING DECISIONS ................................................................................................................................................................................................... 161

MSPB CASE SUMMARIES xiii

6. ERROR BELOW ...................................................................................................................................................................................................................... 1617. IMPEACHMENT EVIDENCE .............................................................................................................................................................................................. 1618. ISSUES; ARGUMENTS NOT RAISED BELOW .............................................................................................................................................................. 1619. JURISDICTIONAL ISSUES ................................................................................................................................................................................................. 16110. NEW AND MATERIAL EVIDENCE FINDINGS .............................................................................................................................................................. 16211. PAST DISCIPLINARY RECORD .......................................................................................................................................................................................... 16212. PREVIOUSLY AVAILABLE EVIDENCE ............................................................................................................................................................................. 16213. RELEVANCE ........................................................................................................................................................................................................................... 16314. REOPENING ........................................................................................................................................................................................................................... 16315. SUBSEQUENT MEDICAL EVIDENCE, OWCP DETERMINATIONS ....................................................................................................................... 16316. TIMELINESS OF FILINGS ................................................................................................................................................................................................... 16417. TRANSCRIPT ........................................................................................................................................................................................................................... 164

T. PLEADINGS STATEMENTS ............................................................................................................................................................................................................... 164U. POLYGRAPH ......................................................................................................................................................................................................................................... 164V. PREPONDERANCE ............................................................................................................................................................................................................................. 164W. PRESUMPTIONS .................................................................................................................................................................................................................................. 164X. PRIOR ACTS .......................................................................................................................................................................................................................................... 164Y. PRIVILEGE ............................................................................................................................................................................................................................................. 165Z. PROBATIVE VALUE .............................................................................................................................................................................................................................. 165AA. PROPOSAL NOTICE AS EVIDENCE ............................................................................................................................................................................................... 165BB. REBUTTAL EVIDENCE ....................................................................................................................................................................................................................... 165CC. RELEVANCE .......................................................................................................................................................................................................................................... 165DD. REPRESENTATIVES STATEMENTS .................................................................................................................................................................................................. 165EE. SETTLEMENT DISCUSSIONS AS EVIDENCE .............................................................................................................................................................................. 165FF. SPOLIATION .......................................................................................................................................................................................................................................... 165GG. SUBSTANTIAL EVIDENCE................................................................................................................................................................................................................. 166HH. SWORN STATEMENTS ....................................................................................................................................................................................................................... 166II. TESTIMONY........................................................................................................................................................................................................................................... 166

HARMFUL ERROR ........................................................................................................................... 167A. BURDEN OF PROOF .......................................................................................................................................................................................................................... 167B. COLLECTIVE BARGAINING AGREEMENT VIOLATIONS ........................................................................................................................................................ 167C. DEPARTMENT OF DEFENSE ........................................................................................................................................................................................................... 167D. DUE PROCESS ...................................................................................................................................................................................................................................... 167

1. DUE PROCESS, EXCEPTIONS ........................................................................................................................................................................................... 169a. Crime Provision ....................................................................................................................................................................................................... 170

E. “EMPLOYEE” ......................................................................................................................................................................................................................................... 170F. ERRORS IN PROPOSAL NOTICE AND REPLY PROCESS ........................................................................................................................................................ 170

1. AGENCY DECISIONAL PROCEDURES ........................................................................................................................................................................... 1702. AMENDING CHARGES ........................................................................................................................................................................................................ 1703. BASIC RIGHTS EXCEPTIONS ............................................................................................................................................................................................. 1704. CHARGE SPLITTING ............................................................................................................................................................................................................ 1715. DELAY IN DECISION ............................................................................................................................................................................................................ 1716. DISCREPANCIES BETWEEN THE CHARGE AND THE SPECIFICATION............................................................................................................... 1717. ERRORS IN DATES ................................................................................................................................................................................................................ 1718. ESTOPPEL; DOUBLE JEOPARDY ..................................................................................................................................................................................... 1719. EXTENSION REQUESTS ...................................................................................................................................................................................................... 17210. FRAMING OF CHARGES ..................................................................................................................................................................................................... 17211. MULTIPLE CHARGES ........................................................................................................................................................................................................... 17312. MULTIPLE SPECIFICATIONS SUPPORTING A SINGLE CHARGE .......................................................................................................................... 17313. NOTICE OF APPEAL RIGHTS ............................................................................................................................................................................................ 17314. NOTICE OF CHARGES ......................................................................................................................................................................................................... 17415. OPPORTUNITY TO RESPOND .......................................................................................................................................................................................... 17416. PROCEDURAL OR REGULATORY ERRORS .................................................................................................................................................................. 17517. PROPOSAL NOTICE ............................................................................................................................................................................................................. 17518. REPLY, FAILURE TO CONSIDER ........................................................................................................................................................................................ 17519. SHORTENED NOTICE PERIOD ......................................................................................................................................................................................... 17620. STALE CHARGES; LACHES................................................................................................................................................................................................. 17621. SUSTAINED CHARGE DIFFERENT FROM PROPOSED CHARGE .......................................................................................................................... 17622. TABLE OF PENALTIES .......................................................................................................................................................................................................... 176

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23. TECHNICAL DEFICIENCIES ............................................................................................................................................................................................... 17624. THIRTY DAYS FROM DATE OF NOTICE ........................................................................................................................................................................ 17625. TIME TO RESPOND .............................................................................................................................................................................................................. 17726. WAIVER OF REPLY RIGHT .................................................................................................................................................................................................. 177

G. ESTOPPEL .............................................................................................................................................................................................................................................. 177H. EX PARTE CONTACT OR CONSIDERATIONS .............................................................................................................................................................................. 177I. HARMFUL ERROR STANDARD ....................................................................................................................................................................................................... 180J. HARMFUL ERROR VS. DUE PROCESS CHALLENGE .............................................................................................................................................................. 180K. HARMLESS ERROR ............................................................................................................................................................................................................................. 180L. INDEFINITE SUSPENSION ............................................................................................................................................................................................................... 181M. PERFORMANCE BASED ACTIONS ............................................................................................................................................................................................... 181N. PROCEDURE ........................................................................................................................................................................................................................................ 181

1. SETTING ASIDE AGENCY ACTIONS............................................................................................................................................................................... 181O. PROPOSING; DECIDING OFFICIALS ............................................................................................................................................................................................ 181

1. BIAS BY DECIDING OFFICIAL........................................................................................................................................................................................... 182P. RIGHT TO REPRESENTATION .......................................................................................................................................................................................................... 182Q. STATUTORY AND REGULATORY VIOLATIONS ......................................................................................................................................................................... 182R. VETERANS PREFERENCE ................................................................................................................................................................................................................. 182S. WAIVER OF DUE PROCESS RIGHTS ............................................................................................................................................................................................ 182T. ZERO TOLERANCE POLICY ............................................................................................................................................................................................................ 182

HEARINGS ....................................................................................................................................... 183A. CONDUCT OF THE HEARING; RESPONSIBILITIES OF THE JUDGE ................................................................................................................................... 183

1. ENSURING RECORD DEVELOPMENT ............................................................................................................................................................................ 183a. Judge’s Duty to Inform an Appellant of the Governing Law; Assistance of Pro Se Appellants; Liberal Construction

of Pleadings ............................................................................................................................................................................................................. 183b. Subpoenas................................................................................................................................................................................................................ 183c. Witness Production ............................................................................................................................................................................................... 183

2. INTERPRETERS ...................................................................................................................................................................................................................... 183B. CONTINUANCES ................................................................................................................................................................................................................................. 183C. POSTHEARING ACTIVITIES ............................................................................................................................................................................................................. 184

1. CLOSE OF THE RECORD ..................................................................................................................................................................................................... 1842. CLOSING ARGUMENTS; POSTHEARING BRIEFS ....................................................................................................................................................... 184

D. POSTPONEMENT ................................................................................................................................................................................................................................ 184E. PREHEARING PROCEDURES ........................................................................................................................................................................................................... 184

1. AFFIRMATIVE DEFENSES WAIVER .................................................................................................................................................................................. 1842. DISCOVERY ............................................................................................................................................................................................................................ 1853. PLEADINGS............................................................................................................................................................................................................................. 185

a. Amendments to Pleadings ................................................................................................................................................................................. 185b. Content ...................................................................................................................................................................................................................... 185c. Explanatory Material ............................................................................................................................................................................................. 185d. Intervention; Amicus Filings .............................................................................................................................................................................. 185e. Joinder; Consolidation ......................................................................................................................................................................................... 186f. Liberally Construed ............................................................................................................................................................................................... 187g. Motion to Strike ...................................................................................................................................................................................................... 187h. Pleading Procedure ............................................................................................................................................................................................... 188i. Pro Se Appellants .................................................................................................................................................................................................... 188j. Protective Orders ................................................................................................................................................................................................... 188k. Summary Judgment ............................................................................................................................................................................................. 188l. Survival of Claims; Motion to Substitute ....................................................................................................................................................... 189

4. PREHEARING CONFERENCE ............................................................................................................................................................................................ 1895. SUMMARY JUDGMENT ...................................................................................................................................................................................................... 1906. SUSPENSION OF CASE PROCESSING ........................................................................................................................................................................... 190

F. PRESERVING THE RECORD.............................................................................................................................................................................................................. 190G. RIGHT TO A HEARING ...................................................................................................................................................................................................................... 190

1. AGENCY ACTIONS .............................................................................................................................................................................................................. 1902. AMICUS CURIAE .................................................................................................................................................................................................................... 1903. COMPLIANCE MATTERS ................................................................................................................................................................................................... 1904. CONSTRUCTIVE AGENCY ACTIONS ............................................................................................................................................................................. 1905. DISABILITY RETIREMENT ................................................................................................................................................................................................. 190

MSPB CASE SUMMARIES xv

6. DISPUTES OF MATERIAL FACT ....................................................................................................................................................................................... 1907. DOCUMENTARY SUBMISSIONS IN LIEU OF HEARING ......................................................................................................................................... 1918. EVIDENTIARY HEARINGS ................................................................................................................................................................................................. 1919. FAIR HEARING ....................................................................................................................................................................................................................... 19110. IN-PERSON HEARINGS ...................................................................................................................................................................................................... 19111. IRAS .......................................................................................................................................................................................................................................... 19112. JURISDICTIONAL MATTERS ............................................................................................................................................................................................ 19213. MINIMUM DUE PROCESS ................................................................................................................................................................................................ 19314. NEW HEARING ...................................................................................................................................................................................................................... 19315. PETITIONS FOR ENFORCEMENT ................................................................................................................................................................................... 19316. PROBATIONARY PERIODS ............................................................................................................................................................................................... 19317. REQUESTS FOR ORAL ARGUMENT .............................................................................................................................................................................. 19318. RESTORATION APPEALS ................................................................................................................................................................................................... 19319. SANCTIONS ........................................................................................................................................................................................................................... 19320. SETTLEMENT AGREEMENTS ........................................................................................................................................................................................... 19421. STATUTORY RIGHTS ........................................................................................................................................................................................................... 19422. SUITABILITY ........................................................................................................................................................................................................................... 19423. TIMELINESS ........................................................................................................................................................................................................................... 194

H. TELEPHONIC HEARINGS ................................................................................................................................................................................................................. 194I. TRANSCRIPT; HEARING RECORDING .......................................................................................................................................................................................... 194J. VIDEO CONFERENCE HEARINGS .................................................................................................................................................................................................. 195K. WAIVER ................................................................................................................................................................................................................................................... 195

1. CASES DECIDED WITHOUT A HEARING ...................................................................................................................................................................... 1962. UNTIMELY HEARING REQUEST ....................................................................................................................................................................................... 196

L. WITHDRAWAL OF HEARING REQUEST ...................................................................................................................................................................................... 196M. WITNESSES; PARTICIPANTS AND TESTIMONY ........................................................................................................................................................................ 196

1. CREDIBILITY ISSUES; HILLEN ........................................................................................................................................................................................... 1962. DECISIONS ON THE RECORD ........................................................................................................................................................................................... 1963. EXCLUDING WITNESSES OR TESTIMONY ................................................................................................................................................................... 1964. EXPERT WITNESSES ............................................................................................................................................................................................................ 1975. INTIMIDATION ....................................................................................................................................................................................................................... 1976. PRIVACY FOR WITNESSES ................................................................................................................................................................................................. 1977. PRODUCTION OF WITNESSES ........................................................................................................................................................................................ 1978. REPETITIOUS TESTIMONY ................................................................................................................................................................................................ 1979. REPRESENTATIVES AS WITNESSES ................................................................................................................................................................................ 19710. REQUESTS BY WITNESSES ................................................................................................................................................................................................ 197

INTERIM RELIEF .............................................................................................................................. 199A. AGENCY COMPLIANCE WITH INTERIM RELIEF ORDERS ..................................................................................................................................................... 199B. AVAILABLE INTERIM RELIEF .......................................................................................................................................................................................................... 199C. ENTITLEMENT ..................................................................................................................................................................................................................................... 200D. LIMITATIONS ON OR DENIAL OF INTERIM RELIEF ................................................................................................................................................................. 200E. PROCEDURE ........................................................................................................................................................................................................................................ 200

1. COMPLIANCE PROCEEDINGS ......................................................................................................................................................................................... 2002. DISMISSALS ........................................................................................................................................................................................................................... 2003. MOOTNESS ............................................................................................................................................................................................................................. 2004. STAYS ........................................................................................................................................................................................................................................ 2015. TIME FOR FILING AND TIMELINESS ISSUES............................................................................................................................................................... 201

F. RETIREMENT, EFFECT ON INTERIM RELIEF ............................................................................................................................................................................... 201G. RETURN TO DUTY .............................................................................................................................................................................................................................. 201H. UNDUE DISRUPTION ....................................................................................................................................................................................................................... 202I. VEOA ...................................................................................................................................................................................................................................................... 202

JUDGES AND ARBITRATORS .......................................................................................................... 203A. AUTHORITY........................................................................................................................................................................................................................................... 203

1. HEARING DENIAL/SUMMARY JUDGMENT ................................................................................................................................................................ 2032. INITIAL DECISIONS .............................................................................................................................................................................................................. 2033. REOPENING APPEALS ....................................................................................................................................................................................................... 2034. SANCTIONS ............................................................................................................................................................................................................................ 2035. STRIKING CLAIMS ................................................................................................................................................................................................................ 203

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6. WITNESSES ............................................................................................................................................................................................................................. 203B. BIAS ALLEGATIONS ........................................................................................................................................................................................................................... 203

1. ARBITRATORS ........................................................................................................................................................................................................................ 2032. CASE-RELATED RULINGS .................................................................................................................................................................................................. 2033. DISCRIMINATORY BIAS ...................................................................................................................................................................................................... 2044. EX PARTE COMMUNICATIONS ......................................................................................................................................................................................... 2045. JUDGE’S COMMENTS AS EVIDENCE OF BIAS ........................................................................................................................................................... 2046. PRESUMPTION OF HONESTY AND INTEGRITY ........................................................................................................................................................ 2047. PROCEDURAL ACTIONS AS EVIDENCE OF BIAS ...................................................................................................................................................... 2058. RECUSAL ................................................................................................................................................................................................................................. 2059. RELATIONSHIP WITH COUNSEL, PARTY, OR WITNESS ........................................................................................................................................... 20510. SETTLEMENT EFFORTS ...................................................................................................................................................................................................... 20511. STANDARD OF PROOF ....................................................................................................................................................................................................... 20512. TIMING FOR RAISING BIAS ALLEGATIONS ................................................................................................................................................................. 205

C. DISQUALIFICATION ........................................................................................................................................................................................................................... 205D. DUTY TO RESOLVE AFFIRMATIVE DEFENSES .......................................................................................................................................................................... 206E. JUDGES’ HANDBOOK ......................................................................................................................................................................................................................... 206

JUDICIAL REVIEW ........................................................................................................................... 207A. ACTIONS AGAINST INDIVIDUALS AND THE GOVERNMENT; BIVENS ............................................................................................................................. 207

1. SIXTH CIRCUIT ...................................................................................................................................................................................................................... 207B. AGENCY DEPARTURE FROM PAST PRECEDENT ..................................................................................................................................................................... 207C. AGENCY REGULATIONS/MANUALS INTERPRETATION AND DEFERENCE ................................................................................................................... 207D. ANTHRAX VACCINATION IMMUNIZATION PROGRAM ....................................................................................................................................................... 208E. ARBITRATION AWARDS REVIEW ................................................................................................................................................................................................... 208

1. TIMELINESS ............................................................................................................................................................................................................................ 209F. ATTORNEY FEES AND COSTS ........................................................................................................................................................................................................ 209G. COLLATERAL ORDERS ...................................................................................................................................................................................................................... 209H. COLLECTIVE BARGAINING AGREEMENTS ................................................................................................................................................................................ 209I. CREDIBILITY DETERMINATIONS ................................................................................................................................................................................................... 209J. DISCOVERY ........................................................................................................................................................................................................................................... 209K. DISCRIMINATION ISSUES; MIXED CASES .................................................................................................................................................................................. 209L. DISMISSALS ......................................................................................................................................................................................................................................... 212M. ELECTION OF REMEDIES ................................................................................................................................................................................................................ 212N. EVIDENCE .............................................................................................................................................................................................................................................. 212O. EXHAUSTION OF REMEDIES .......................................................................................................................................................................................................... 212P. FINAL AND APPEALABLE DECISIONS ........................................................................................................................................................................................ 213Q. FINAL JUDGMENT RULE .................................................................................................................................................................................................................. 213R. HATCH ACT ........................................................................................................................................................................................................................................... 213S. HEARINGS ............................................................................................................................................................................................................................................ 213T. INSURANCE CLAIMS ......................................................................................................................................................................................................................... 213U. INTERLOCUTORY APPEALS ........................................................................................................................................................................................................... 214V. JURISDICTION...................................................................................................................................................................................................................................... 214W. MOOTNESS ........................................................................................................................................................................................................................................... 214X. NONPRECEDENTIAL DECISIONS ................................................................................................................................................................................................. 214Y. OPM DETERMINATIONS .................................................................................................................................................................................................................. 214Z. PENALTY DETERMINATIONS .......................................................................................................................................................................................................... 214AA. PRECEDENTIAL DECISIONS ........................................................................................................................................................................................................... 215BB. PRO SE APPELLANTS ......................................................................................................................................................................................................................... 215CC. PROCEDURAL RULES ........................................................................................................................................................................................................................ 215DD. PROPER PARTY .................................................................................................................................................................................................................................... 215EE. RAISED FOR THE FIRST TIME ON APPEAL ................................................................................................................................................................................. 215FF. REGULATION REVIEW ....................................................................................................................................................................................................................... 216GG. RELIEF OUTSIDE THE CIVIL SERVICE REFORM ACT ............................................................................................................................................................... 216

1. ADMINISTRATIVE PROCEDURE ACT ............................................................................................................................................................................. 2162. BACK PAY ACT ....................................................................................................................................................................................................................... 2163. CONSTITUTION ..................................................................................................................................................................................................................... 2164. FEDERAL LAW ENFORCEMENT PAY REFORM ACT ................................................................................................................................................. 2175. LIBERTY INTEREST ............................................................................................................................................................................................................... 2176. PRIVACY ACT ......................................................................................................................................................................................................................... 217

MSPB CASE SUMMARIES xvii

7. PROPERTY INTEREST .......................................................................................................................................................................................................... 217HH. REMANDS .............................................................................................................................................................................................................................................. 217II. REMEDIAL AUTHORITY .................................................................................................................................................................................................................... 217JJ. REQUEST TO REOPEN ....................................................................................................................................................................................................................... 217KK. RETIREMENT AND DISABILITY RETIREMENT APPEALS ....................................................................................................................................................... 217LL. REVIEW REQUESTS ............................................................................................................................................................................................................................ 218MM. RIPENESS .............................................................................................................................................................................................................................................. 218NN. SCOPE OF REVIEW ............................................................................................................................................................................................................................. 218

1. OVERRULING PRECEDENT ............................................................................................................................................................................................... 2182. PROCEDURAL ISSUES ........................................................................................................................................................................................................ 2183. “QUESTIONS OF FACT” ...................................................................................................................................................................................................... 2184. “QUESTIONS OF LAW” ........................................................................................................................................................................................................ 2195. RECORD BELOW ................................................................................................................................................................................................................... 219

OO. SECURITY CLEARANCE DETERMINATIONS .............................................................................................................................................................................. 219PP. SETTLEMENTS ..................................................................................................................................................................................................................................... 219QQ. STANDARD OF REVIEW .................................................................................................................................................................................................................... 220RR. STATUTE OF LIMITATIONS .............................................................................................................................................................................................................. 221SS. STATUTORY AND REGULATORY INTERPRETATION ............................................................................................................................................................... 221TT. SUBSTANTIAL EVIDENCE................................................................................................................................................................................................................. 222UU. TIMELINESS AND TOLLING ............................................................................................................................................................................................................. 223VV. TRANSFERS ........................................................................................................................................................................................................................................... 225WW. TUCKER ACT JURISDICTION .......................................................................................................................................................................................................... 225XX. UNION STANDING .............................................................................................................................................................................................................................. 226

JURISDICTION ................................................................................................................................ 227A. AGENCIES WITH SPECIALIZED PERSONNEL SYSTEMS ........................................................................................................................................................ 227

1. AGRICULTURE........................................................................................................................................................................................................................ 2272. BUREAU OF INDIAN AFFAIRS .......................................................................................................................................................................................... 2273. CIA; DEFENSE DEPARTMENT INTELLIGENCE ............................................................................................................................................................ 2274. DEPARTMENT OF HOMELAND SECURITY .................................................................................................................................................................. 227

a. TSA .............................................................................................................................................................................................................................. 2275. DEPARTMENT OF VETERANS AFFAIRS ........................................................................................................................................................................ 228

a. Title 38 Medical Professional ............................................................................................................................................................................. 228b. Veterans Canteen Service ................................................................................................................................................................................... 228

6. DEPENDENTS SCHOOLS PERSONNEL ......................................................................................................................................................................... 2287. FEDERAL AVIATION ADMINISTRATION ....................................................................................................................................................................... 2298. LIBRARY OF CONGRESS; CONGRESSIONAL EMPLOYEES .................................................................................................................................... 2309. PEACE CORPS; WORLD BANK EMPLOYEES ................................................................................................................................................................ 23010. TENNESSEE VALLEY AUTHORITY RETIREES ASSOCIATION ................................................................................................................................. 230

B. ANNUITANTS ........................................................................................................................................................................................................................................ 230C. APPELLATE JURISDICTION ............................................................................................................................................................................................................. 230D. APPOINTMENTS .................................................................................................................................................................................................................................. 230

1. ACTIONS AGAINST ALJS ................................................................................................................................................................................................... 2312. CONFIDENTIAL EMPLOYEES ........................................................................................................................................................................................... 2313. CONTRACTORS ..................................................................................................................................................................................................................... 2314. ERRONEOUS APPOINTMENT .......................................................................................................................................................................................... 2315. EXCEPTED SERVICE ............................................................................................................................................................................................................. 2316. INTERMITTENT ...................................................................................................................................................................................................................... 2317. JUDICIAL BRANCH EMPLOYEES ..................................................................................................................................................................................... 2318. LIMITED APPOINTMENTS ................................................................................................................................................................................................. 2319. NONAPPROPRIATED FUND EMPLOYEES.................................................................................................................................................................... 23210. REINSTATEMENT .................................................................................................................................................................................................................. 23211. SEASONAL APPOINTMENTS ........................................................................................................................................................................................... 23212. SENIOR EXECUTIVE SERVICE ........................................................................................................................................................................................... 23213. STUDENTS .............................................................................................................................................................................................................................. 23214. TEMPORARY AND TERM APPOINTMENTS ................................................................................................................................................................. 23215. VETERANS PREFERENCE ................................................................................................................................................................................................... 23316. VETERANS RECRUITMENT ACT ...................................................................................................................................................................................... 23417. WHITE HOUSE AND EXECUTIVE OFFICE OF THE PRESIDENT ............................................................................................................................ 234

E. ARBITRATION; COLLECTIVE BARGAINING AGREEMENT-RELATED ISSUES ................................................................................................................ 234

xviii TABLE OF CONTENTS

1. COLLECTIVE BARGAINING AGREEMENT; GRIEVANCE PROCEDURES ............................................................................................................. 2342. REVIEW AUTHORITY OF ARBITRATION DECISIONS ............................................................................................................................................... 2353. UNFAIR LABOR PRACTICE CHARGES ........................................................................................................................................................................... 235

F. BREADTH OF BOARD JURISDICTION .......................................................................................................................................................................................... 235G. BURDEN OF PROOF .......................................................................................................................................................................................................................... 235H. COMPETITIVE SERVICE ..................................................................................................................................................................................................................... 236I. CONSENT OF PARTIES ...................................................................................................................................................................................................................... 236J. CURRENT CONTINUOUS SERVICE ............................................................................................................................................................................................... 236

1. IN AN EXECUTIVE AGENCY .............................................................................................................................................................................................. 2372. SAME OR SIMILAR ............................................................................................................................................................................................................... 238

K. DEMONSTRATION PROJECTS ....................................................................................................................................................................................................... 238L. DISCOVERY AND TIMELINESS ISSUES ........................................................................................................................................................................................ 238M. DISCRIMINATION COMPLAINTS; MIXED CASES .................................................................................................................................................................... 238N. DISMISSALS .......................................................................................................................................................................................................................................... 238O. ELECTION OF REMEDIES ................................................................................................................................................................................................................. 239P. “EMPLOYEES” ....................................................................................................................................................................................................................................... 239Q. EVIDENCE OF JURISDICTION ......................................................................................................................................................................................................... 240

1. OBLIGATION TO PRODUCE EVIDENCE BEARING ON JURISDICTION .............................................................................................................. 240R. EVIDENTIARY HEARINGS ................................................................................................................................................................................................................. 240S. EXCEPTED SERVICE .......................................................................................................................................................................................................................... 240

1. APPOINTMENTS ................................................................................................................................................................................................................... 2402. DERIVATIVE PREFERENCE ELIGIBLE STATUS ............................................................................................................................................................. 2413. DISABLED VETERAN ........................................................................................................................................................................................................... 2414. EXECUTIVE AGENCY EMPLOYEES ................................................................................................................................................................................. 2415. NONPREFERENCE ELIGIBLE ............................................................................................................................................................................................. 2416. PENDING CONVERSION TO THE COMPETITIVE SERVICE ..................................................................................................................................... 2417. PREFERENCE ELIGIBLE EMPLOYEES ............................................................................................................................................................................. 2418. PROBATIONARY PERIOD ................................................................................................................................................................................................... 2429. TEMPORARY APPOINTMENTS ........................................................................................................................................................................................ 24310. WITHOUT REGARD TO THE CIVIL SERVICE LAWS.................................................................................................................................................... 243

T. EXPANDING BOARD JURISDICTION ........................................................................................................................................................................................... 2431. AGENCIES CANNOT EXPAND BOARD JURISDICTION AUTHORITY .................................................................................................................. 2432. BOARD CANNOT EXPAND ITS JURISDICTIONAL AUTHORITY ........................................................................................................................... 2433. COURTS CANNOT EXPAND BOARD JURISDICTION AUTHORITY ..................................................................................................................... 243

U. FAMILY AND MEDICAL LEAVE ACT .............................................................................................................................................................................................. 243V. FEDERAL CAREER INTERNSHIP PROGRAM; PATHWAYS ...................................................................................................................................................... 244W. FEDERAL EMPLOYEES’ COMPENSATION ACT ......................................................................................................................................................................... 244X. FEDERAL EMPLOYEES’ GROUP LIFE INSURANCE ACT ......................................................................................................................................................... 244Y. JUDGE’S RESPONSIBILITIES ........................................................................................................................................................................................................... 244Z. LOSS OF APPEAL RIGHTS BY CHANGE IN POSITION............................................................................................................................................................ 245AA. MERITS DETERMINATIONS WITHOUT JURISDICTIONAL DETERMINATIONS ............................................................................................................. 245BB. NATIONAL GEOSPATIAL-INTELLIGENCE AGENCY (FORMERLY NATIONAL IMAGERY AND MAPPING AGENCY) ......................................... 246CC. NATIONAL GUARD TECHNICIANS; MILITARY RESERVE MEMBERS ................................................................................................................................. 246DD. NATURE OF PERSONNEL ACTION APPEALED TO THE MSPB ............................................................................................................................................ 246

1. ABSENT WITHOUT LEAVE, PLACEMENT ON .............................................................................................................................................................. 2462. ACCESS TO COMPUTER AND NETWORK SYSTEMS, DENIAL OF ....................................................................................................................... 2463. ADMINISTRATIVE LEAVE, PLACEMENT ON ................................................................................................................................................................ 2464. APPOINTMENT ERRORS .................................................................................................................................................................................................... 2465. CLASSIFICATION APPEALS............................................................................................................................................................................................... 2476. CLINICAL PRIVILEGES, SUSPENSION OF ..................................................................................................................................................................... 2477. CONSTITUTIONAL VIOLATIONS ..................................................................................................................................................................................... 2478. CONSTRUCTIVE ADVERSE ACTIONS ............................................................................................................................................................................ 2479. EMPLOYMENT OFFERS ...................................................................................................................................................................................................... 24810. EXAMINATION SCORES ..................................................................................................................................................................................................... 24811. FURLOUGH ............................................................................................................................................................................................................................ 24812. INVOLUNTARY SEPARATION ........................................................................................................................................................................................... 24813. LIVING QUARTERS ALLOWANCE ................................................................................................................................................................................... 24814. NONSELECTIONS ................................................................................................................................................................................................................. 24915. OWCP BENEFITS; INSURANCE PROGRAMS ............................................................................................................................................................... 249

MSPB CASE SUMMARIES xix

16. PAY AND CLASSIFICATION .............................................................................................................................................................................................. 250a. “Basic Pay” ................................................................................................................................................................................................................. 250b. Debt Collection ....................................................................................................................................................................................................... 250c. Demotion .................................................................................................................................................................................................................. 250d. Grade and Pay Retention .................................................................................................................................................................................... 251e. Individual Retirement Records.......................................................................................................................................................................... 251f. Leave Disputes ........................................................................................................................................................................................................ 252g. Pay Correction ......................................................................................................................................................................................................... 252h. Pay System Change ............................................................................................................................................................................................... 252i. Pay System Conversion ........................................................................................................................................................................................ 252j. Premium Pay; Bonuses; LEAPA; Living Quarters Allowance ................................................................................................................... 252k. Reduction in Grade ............................................................................................................................................................................................... 253l. Reduction in Pay .................................................................................................................................................................................................... 253m. WIGI Denial ............................................................................................................................................................................................................... 255

17. PERFORMANCE RELATED ACTIONS ............................................................................................................................................................................. 25518. PROHIBITED PERSONNEL PRACTICES ......................................................................................................................................................................... 25519. PROMOTION ISSUES ........................................................................................................................................................................................................... 25520. PROPOSED ADVERSE ACTIONS ..................................................................................................................................................................................... 25521. REASSIGNMENT; TRANSFERS; DETAILS; AND DIRECTED ASSIGNMENTS ..................................................................................................... 25522. REDUCTION IN FORCE ....................................................................................................................................................................................................... 25623. REDUCTION IN RANK ......................................................................................................................................................................................................... 25624. REFUNDS OF DEDUCTIONS ............................................................................................................................................................................................ 25625. RESCINDED, CANCELED OR MODIFIED ACTIONS .................................................................................................................................................. 25726. RESTORATION APPEALS; REQUESTS FOR REINSTATEMENT ............................................................................................................................... 25727. SUPERVISORY DUTIES, REMOVAL ................................................................................................................................................................................. 25828. SUSPENSIONS ....................................................................................................................................................................................................................... 258

EE. NONFRIVOLOUS ALLEGATIONS ................................................................................................................................................................................................... 259FF. OPM DETERMINATIONS .................................................................................................................................................................................................................. 259GG. PETITIONS FOR ENFORCEMENT .................................................................................................................................................................................................. 260HH. POSTAL SERVICE EMPLOYEES ....................................................................................................................................................................................................... 260

1. POSTAL PERSONNELISTS AND CONFIDENTIAL EMPLOYEES ............................................................................................................................. 2612. POSTAL SUPERVISORS ....................................................................................................................................................................................................... 2613. PREFERENCE ELIGIBILITY.................................................................................................................................................................................................. 261

II. PRIORITY CONSIDERATION ............................................................................................................................................................................................................ 2621. REEMPLOYMENT PRIORITY LISTS.................................................................................................................................................................................. 2622. TSA ............................................................................................................................................................................................................................................. 262

JJ. PRIVACY ACT VIOLATIONS.............................................................................................................................................................................................................. 262KK. PROBATIONERS; 5 USC § 7511(A)(1)(A) .................................................................................................................................................................................... 263

1. APPEAL RIGHTS .................................................................................................................................................................................................................... 2632. APPLICATION OF MCCORMICK V. AIR FORCE ............................................................................................................................................................. 2633. APPOINTMENTS ................................................................................................................................................................................................................... 2644. CALCULATING PROBATIONARY PERIOD .................................................................................................................................................................... 2645. CALCULATING YEARS OF SERVICE ................................................................................................................................................................................ 2656. COLLECTIVE BARGAINING AGREEMENT .................................................................................................................................................................... 2657. CONSTITUTIONAL CHALLENGES .................................................................................................................................................................................. 2658. CURRENT CONTINUOUS SERVICE ................................................................................................................................................................................. 2659. “EMPLOYEE” ........................................................................................................................................................................................................................... 26610. PARTISAN POLITICAL REASONS; MARITAL STATUS ............................................................................................................................................... 26711. PREAPPOINTMENT CONDITIONS; POSTAPPOINTMENT REASONS ................................................................................................................. 26812. PRIOR COMPETITIVE AND EXCEPTED SERVICE; TACKING ................................................................................................................................... 26813. PROBATIONARY SUPERVISORS ...................................................................................................................................................................................... 27014. PROCEDURE ........................................................................................................................................................................................................................... 27015. SUITABILITY ACTIONS ........................................................................................................................................................................................................ 27016. SUITABILITY DISQUALIFICATION; DEBARMENT ACTION ..................................................................................................................................... 27117. TERM APPOINTMENTS ...................................................................................................................................................................................................... 27118. WAIVER OF APPEAL RIGHTS ............................................................................................................................................................................................ 271

LL. REGULATION REVIEW ....................................................................................................................................................................................................................... 2711. EMPLOYMENT PRACTICES ............................................................................................................................................................................................... 2712. FAILURE OF OPM TO ISSUE A REGULATION .............................................................................................................................................................. 273

xx TABLE OF CONTENTS

3. OPM QUALIFICATION STANDARDS .............................................................................................................................................................................. 2744. PASSOVER DETERMINATIONS ........................................................................................................................................................................................ 2745. PLEADING REQUIREMENTS ............................................................................................................................................................................................. 2746. REGULATION IMPLEMENTATION REVIEW .................................................................................................................................................................. 274

a. Senior Executive Service ..................................................................................................................................................................................... 2747. REVIEW PROCESS................................................................................................................................................................................................................. 274

MM. REMEDIES .............................................................................................................................................................................................................................................. 275NN. RETIREMENT ......................................................................................................................................................................................................................................... 275OO. RIPENESS FOR REVIEW ..................................................................................................................................................................................................................... 275PP. “SAME OR SIMILAR POSITIONS” TEST ........................................................................................................................................................................................ 275QQ. SECURITY CLEARANCE DETERMINATIONS; DETERMINATIONS RELATED TO SENSITIVE POSITIONS .............................................................. 276RR. SENIOR EXECUTIVE SERVICE ......................................................................................................................................................................................................... 277SS. SETTLEMENT RELATED ISSUES ..................................................................................................................................................................................................... 277TT. STAFFORD ACT .................................................................................................................................................................................................................................... 277UU. STANDARD OF REVIEW .................................................................................................................................................................................................................... 277VV. STATE ACTIONS ................................................................................................................................................................................................................................... 277WW. SUA SPONTE JURISDICTIONAL REVIEWS .................................................................................................................................................................................. 277XX. SUITABILITY DETERMINATIONS ................................................................................................................................................................................................... 278YY. TEMPORARY AND TERM APPOINTMENTS ............................................................................................................................................................................... 279ZZ. TIMELINESS ........................................................................................................................................................................................................................................... 279AAA. TIMING OF JURISDICTION DETERMINATIONS ....................................................................................................................................................................... 280BBB. USERRA .................................................................................................................................................................................................................................................. 280CCC. VEOA ....................................................................................................................................................................................................................................................... 280DDD. VETERANS PREFERENCE ACT ........................................................................................................................................................................................................ 280EEE. WESTFALL ACT .................................................................................................................................................................................................................................... 280FFF. WITHDRAWAL ...................................................................................................................................................................................................................................... 280GGG. WRITTEN RECORD .............................................................................................................................................................................................................................. 280

LEAVE ............................................................................................................................................... 283A. ACCRUED LEAVE ................................................................................................................................................................................................................................ 283B. ADMINISTRATIVE LEAVE ................................................................................................................................................................................................................. 283C. ANNUAL LEAVE .................................................................................................................................................................................................................................. 283D. EVIDENCE .............................................................................................................................................................................................................................................. 283E. FAMILY AND MEDICAL LEAVE ACT .............................................................................................................................................................................................. 283F. LEAVE WITHOUT PAY ........................................................................................................................................................................................................................ 283G. MILITARY LEAVE ................................................................................................................................................................................................................................. 283H. OWCP ..................................................................................................................................................................................................................................................... 284I. REQUIRED TIME OFF ........................................................................................................................................................................................................................ 284

MITIGATION AND AGGRAVATING FACTORS ................................................................................ 285A. AGENCY CONSIDERATION OF PAST DISCIPLINE ................................................................................................................................................................... 285

1. CHALLENGING PAST DISCIPLINE .................................................................................................................................................................................. 2852. CLEARLY ERRONEOUS STANDARD FOR BOARD REVIEW OF PRIOR DISCIPLINARY ACTION ................................................................ 2853. NOTICE REQUIREMENTS FOR CONSIDERING PAST DISCIPLINE ....................................................................................................................... 2854. PENDING CHALLENGE TO PAST DISCIPLINE ............................................................................................................................................................ 2855. PROVING PAST DISCIPLINE .............................................................................................................................................................................................. 286

B. ARTICULATION OF RELEVANT FACTORS .................................................................................................................................................................................. 2861. BY THE AGENCY .................................................................................................................................................................................................................... 2862. BY THE MSPB ........................................................................................................................................................................................................................ 286

C. DEFERENCE TO AGENCY OFFICIALS ........................................................................................................................................................................................... 287D. DEPARTMENT OF HOMELAND SECURITY ............................................................................................................................................................................... 287E. DOUGLAS FACTORS ........................................................................................................................................................................................................................... 287

1. AGGRAVATING FACTORS .................................................................................................................................................................................................. 2872. ALJ DISCIPLINE CASES ....................................................................................................................................................................................................... 2873. FAILURE TO CONSIDER RELEVANT MITIGATING FACTORS .................................................................................................................................. 2874. NO EMPHASIS ON ANY PARTICULAR FACTOR ......................................................................................................................................................... 288

F. EMPLOYEE JOB LEVEL ..................................................................................................................................................................................................................... 2881. OFFICIAL DUTY STATION ................................................................................................................................................................................................. 288

G. FACTORS NOT CONSIDERED MITIGATING ............................................................................................................................................................................... 288H. MANDATORY PENALTIES ................................................................................................................................................................................................................. 288

MSPB CASE SUMMARIES xxi

I. NOT ALL CHARGES SUSTAINED ................................................................................................................................................................................................... 2881. REMAND TO AGENCY ........................................................................................................................................................................................................ 290

J. NOT ALL SPECIFICATIONS SUSTAINED .................................................................................................................................................................................... 290K. SPECIFIC MITIGATING FACTORS ................................................................................................................................................................................................. 291

1. CONDONATION .................................................................................................................................................................................................................... 2912. DISPARATE PENALTIES ....................................................................................................................................................................................................... 2913. EMPLOYEE JOB LEVEL ........................................................................................................................................................................................................ 2934. NATURE AND SERIOUSNESS OF THE OFFENSE ...................................................................................................................................................... 294

a. Zero Tolerance Policy ........................................................................................................................................................................................... 2945. PHYSICAL; MENTAL ILLNESSES; PERSONAL PROBLEMS ...................................................................................................................................... 2946. POST-REMOVAL FACTORS ............................................................................................................................................................................................... 2957. PROGRESSIVE DISCIPLINE ................................................................................................................................................................................................ 2958. REHABILITATION POTENTIAL .......................................................................................................................................................................................... 295

a. Deference to Deciding Officials ........................................................................................................................................................................ 296b. Forward Looking Analysis ................................................................................................................................................................................... 296c. Good Performance ................................................................................................................................................................................................ 296d. Intervening Conduct ............................................................................................................................................................................................ 296e. Position of Trust; Fiduciary Duty; Loss of Trust ............................................................................................................................................ 296f. Post-Removal Evidence ....................................................................................................................................................................................... 296g. Remorse .................................................................................................................................................................................................................... 297h. Repeated Conduct; Last Chance Agreements ............................................................................................................................................ 297

9. YEARS OF SERVICE ............................................................................................................................................................................................................. 297L. STALENESS OF CHARGES ............................................................................................................................................................................................................... 297M. TABLE OF PENALTIES ........................................................................................................................................................................................................................ 297

MOOTNESS ...................................................................................................................................... 299A. ACTION FOR DAMAGES ................................................................................................................................................................................................................... 299B. AFFIRMATIVE DEFENSES ................................................................................................................................................................................................................. 299C. ANNUITIES ........................................................................................................................................................................................................................................... 299D. CANCELATION; RESCISSION OF ACTION APPEALED .......................................................................................................................................................... 299

1. AGENCY ACTIONS TAKEN SUBSEQUENT TO CANCELATION OR RESCISSION OF ORIGINAL ACTION ............................................... 2992. ASSESSING MOOTNESS UPON CANCELATION AND STATUS QUO ANTE ....................................................................................................... 2993. OFFICIAL PERSONNEL FILE .............................................................................................................................................................................................. 300

E. COMPLETE RELIEF RECEIVED ....................................................................................................................................................................................................... 300F. ENFORCEMENT PETITIONS ........................................................................................................................................................................................................... 301G. INTERIM RELIEF .................................................................................................................................................................................................................................. 301H. OPM RESCINDS RECONSIDERATION OR FINAL DECISION ................................................................................................................................................ 301I. PROCEDURE FOLLOWED IF ACTION NOT COMPLETELY RESCINDED ......................................................................................................................... 302J. PROMISES TO PAY ............................................................................................................................................................................................................................. 302K. RELIEF REQUESTED .......................................................................................................................................................................................................................... 302L. RESIGNATION OR RETIREMENT PRIOR TO DECISION; TERMINATION ........................................................................................................................... 302M. RESTORATION OF STATUS QUO ANTE ........................................................................................................................................................................................ 302N. RETIREMENT APPEALS ..................................................................................................................................................................................................................... 303O. SETTLEMENT INDEPENDENT OF MSPB APPEAL ................................................................................................................................................................... 304P. STANDARD FOR MOOTNESS ........................................................................................................................................................................................................ 304Q. USERRA ................................................................................................................................................................................................................................................. 304R. VACATUR ............................................................................................................................................................................................................................................... 305S. WAIVER OF APPEAL ........................................................................................................................................................................................................................... 305T. WHISTLEBLOWER PROTECTION ACT ........................................................................................................................................................................................ 305U. WITHDRAWAL OF APPEAL.............................................................................................................................................................................................................. 306

NEXUS .............................................................................................................................................. 307A. AGENCY LOSS OF CONFIDENCE ................................................................................................................................................................................................. 307B. INDIAN CHILD PROTECTION AND FAMILY VIOLENCE PREVENTION ACT .................................................................................................................. 307C. MERRITT; BURDEN OF PROOF ...................................................................................................................................................................................................... 307D. SPECIFIC NEXUS DETERMINATIONS .......................................................................................................................................................................................... 307

1. ABSENCES ............................................................................................................................................................................................................................... 3072. ADVERSE PUBLICITY ........................................................................................................................................................................................................... 3073. CONDUCT CONTRARY TO AGENCY MISSION........................................................................................................................................................... 308

a. Employees’ Tax Problems ................................................................................................................................................................................... 308

xxii TABLE OF CONTENTS

4. FAILURE TO FOLLOW INSTRUCTIONS.......................................................................................................................................................................... 3085. FAILURE TO PAY DEBTS ...................................................................................................................................................................................................... 3086. LACK OF CANDOR .............................................................................................................................................................................................................. 3087. LAW ENFORCEMENT OFFICERS; GIGLIO IMPAIRMENT ......................................................................................................................................... 3088. OFF DUTY CONDUCT ........................................................................................................................................................................................................ 309

a. Violent Off-Duty Misconduct ............................................................................................................................................................................. 3099. ON PREMISES MISCONDUCT ......................................................................................................................................................................................... 30910. SEXUAL MISCONDUCT ..................................................................................................................................................................................................... 309

PAY ISSUES ....................................................................................................................................... 311A. COMMUTING TIME ........................................................................................................................................................................................................................... 311B. CORRECTION OF PAY ....................................................................................................................................................................................................................... 311C. DEMOTIONS ........................................................................................................................................................................................................................................ 311D. HIGH THREE ......................................................................................................................................................................................................................................... 311E. OVERTIME ............................................................................................................................................................................................................................................ 311F. PAY REDUCTION ................................................................................................................................................................................................................................ 311G. PORTAL-TO-PORTAL ACT ............................................................................................................................................................................................................... 311H. STANDBY DUTY; ON CALL STATUS ............................................................................................................................................................................................. 311I. VOLUNTARY SERVICES .................................................................................................................................................................................................................... 312

PERFORMANCE-BASED ACTIONS—CHAPTER 43 ....................................................................... 313A. DEFENSES .............................................................................................................................................................................................................................................. 313B. JURISDICTION ..................................................................................................................................................................................................................................... 313

1. GOVERNMENT CORPORATION ....................................................................................................................................................................................... 313C. MAINTENANCE OF PERFORMANCE APPRAISALS ................................................................................................................................................................ 313D. NECESSARY PROOF: SUBSTANTIAL EVIDENCE TEST ............................................................................................................................................................ 313E. OPM APPROVAL OF APPRAISAL SYSTEM ................................................................................................................................................................................. 314F. OPPORTUNITY TO IMPROVE .......................................................................................................................................................................................................... 315

1. ELEMENTS ............................................................................................................................................................................................................................... 3152. HARMFUL ERROR ................................................................................................................................................................................................................. 3163. POST-PIP PERFORMANCE ................................................................................................................................................................................................ 3164. PRE-PIP PERFORMANCE.................................................................................................................................................................................................... 3165. TIME ALLOWED .................................................................................................................................................................................................................... 316

G. PERFORMANCE STANDARDS ....................................................................................................................................................................................................... 3161. ABSOLUTE .............................................................................................................................................................................................................................. 3162. CRITERIA .................................................................................................................................................................................................................................. 316

a. Levels of Performance .......................................................................................................................................................................................... 3173. DEVELOPMENT OF PERFORMANCE STANDARDS .................................................................................................................................................. 3174. OBJECTIVITY; REASONABLENESS ................................................................................................................................................................................. 317

H. WIGI DENIALS; ACCEPTABLE LEVEL OF COMPETENCE ...................................................................................................................................................... 318

PROHIBITED PERSONNEL PRACTICES; REPRISAL ....................................................................... 319A. BURDEN OF PROOF ANALYSIS UNDER WHISTLEBLOWER PROTECTION ACT ........................................................................................................... 319

1. AGENCY’S CLEAR AND CONVINCING EVIDENCE .................................................................................................................................................... 3192. CIVIL RIGHTS CASES ........................................................................................................................................................................................................... 3223. CONTRIBUTING FACTOR ANALYSIS .............................................................................................................................................................................. 322

a. Disclosures Following the Personnel Action ................................................................................................................................................ 323b. Knowledge by Agency Managers of Appellant’s Whistleblowing; Constructive Knowledge; Cat’s Paw ............................... 323c. Per Se Timing/Knowledge Test .......................................................................................................................................................................... 325d. Reprisal Without Unlawful Motivation: Reprisal by Investigation—The Atypical Case ................................................................ 327e. Sequential Proof Not Required ......................................................................................................................................................................... 327

4. EVIDENCE OF REPRISAL .................................................................................................................................................................................................... 328a. Agency’s Evidence ................................................................................................................................................................................................. 328b. Agency’s Motive to Retaliate ............................................................................................................................................................................. 328c. Comparison Employees ....................................................................................................................................................................................... 329d. Overreaching ........................................................................................................................................................................................................... 330e. Similarly Situated Non-Whistleblowers ......................................................................................................................................................... 330

5. JUDGE’S ANALYSIS .............................................................................................................................................................................................................. 3306. OTHERWISE APPEALABLE ACTIONS ............................................................................................................................................................................ 3317. REPRISAL AS AN AFFIRMATIVE DEFENSE................................................................................................................................................................... 331

a. Res Judicata .............................................................................................................................................................................................................. 331

MSPB CASE SUMMARIES xxiii

b. TSA Employees ....................................................................................................................................................................................................... 331B. BURDEN OF PROOF FOR PROHIBITED PRACTICE NOT COVERED BY WHISTLEBLOWER PROTECTION ACT ................................................. 331

1. DISCIPLINARY CASES ......................................................................................................................................................................................................... 3312. REPRISAL AGAINST INDIVIDUAL INVOLVED IN UNION ACTIVITY.................................................................................................................... 331

C. CASES BROUGHT BY OSC ............................................................................................................................................................................................................... 3321. MSPB REFERRALS ................................................................................................................................................................................................................ 3322. OSC CORRECTIVE ACTIONS ............................................................................................................................................................................................. 332

a. Board Authority ...................................................................................................................................................................................................... 332b. Procedure.................................................................................................................................................................................................................. 332

i. Permissive Intervention ........................................................................................................................................................................ 3323. OSC DISCIPLINARY ACTIONS .......................................................................................................................................................................................... 332

a. Disciplinary Penalties ........................................................................................................................................................................................... 332i. Political Activity and Speech; Hatch Act Violations ..................................................................................................................... 332

b. Limits on Prosecutorial Authority .................................................................................................................................................................... 333i. Employees Who Take or Recommend Personnel Actions ........................................................................................................ 333

D. DEPARTMENT OF VETERANS AFFAIRS ....................................................................................................................................................................................... 333E. INDIVIDUAL RIGHT OF ACTION .................................................................................................................................................................................................... 333

1. COVERED AND EXCLUDED PERSONNEL ACTIONS ................................................................................................................................................ 333a. Actions Previously Appealed to the Board ................................................................................................................................................... 334b. Agency Investigations .......................................................................................................................................................................................... 334c. Appointment Expiration or Termination ....................................................................................................................................................... 334d. Benefits, Awards, and Bonuses ......................................................................................................................................................................... 334e. Blacklisting ............................................................................................................................................................................................................... 334f. Classification Matters ........................................................................................................................................................................................... 334g. Complaints by Persons Outside the Agency ................................................................................................................................................ 334h. Complaints Processing......................................................................................................................................................................................... 335i. Constructive Adverse Actions ........................................................................................................................................................................... 335j. Counseling ............................................................................................................................................................................................................... 335k. Decisions Concerning Leave; Pay; Changes in Duties; Idling; Overtime ............................................................................................ 335l. Failure to Take Personnel Action ...................................................................................................................................................................... 336m. Hostile Environment ............................................................................................................................................................................................. 336n. Manipulating Appointments ............................................................................................................................................................................. 336o. Memorandum of Warning .................................................................................................................................................................................. 337p. Nonselection ........................................................................................................................................................................................................... 337q. Performance Appraisals....................................................................................................................................................................................... 337r. Performance Improvement Periods ................................................................................................................................................................ 337s. Position Descriptions ............................................................................................................................................................................................ 337t. Probationary Termination ................................................................................................................................................................................... 338u. Promotions ............................................................................................................................................................................................................... 338v. Reassignments, Transfers, and Details ............................................................................................................................................................ 338w. Referrals to Employee Assistance Programs; Orders for Psychiatric Testing .................................................................................... 338x. Reinstate, Failure to .............................................................................................................................................................................................. 338y. Security Clearance Suspension or Revocation; Other Certifications; Secure Information .......................................................... 338z. SF-50 ........................................................................................................................................................................................................................... 339aa. Suspensions ............................................................................................................................................................................................................. 339bb. Telework Cancelation ........................................................................................................................................................................................... 339cc. Termination .............................................................................................................................................................................................................. 339dd. Threatened Personnel Actions .......................................................................................................................................................................... 339ee. Training ...................................................................................................................................................................................................................... 340ff. WIGI Denial ............................................................................................................................................................................................................... 340

2. JURISDICTIONAL ISSUES .................................................................................................................................................................................................. 340a. Constitutional and Due Process Claims ......................................................................................................................................................... 340b. Discrimination Claims Presented in IRA Appeals ....................................................................................................................................... 340c. Election and Preclusion of Remedies ............................................................................................................................................................. 340

i. EEO Complaint ......................................................................................................................................................................................... 341ii. Exhaustion of OSC Processes; Direct Appeal to MSPB of Otherwise Appealable Actions ............................................ 341iii. Grievance or MSPB Appeal .................................................................................................................................................................. 342

d. Exhaustion of Remedies ...................................................................................................................................................................................... 342e. Harmful Error Claims ............................................................................................................................................................................................. 344

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f. Rusin Model: Nonfrivolous Allegations Establish Jurisdiction ............................................................................................................... 344i. Hearing ........................................................................................................................................................................................................ 346ii. Jurisdictional Analysis Prior to Rusin ................................................................................................................................................ 346iii. Written Record ......................................................................................................................................................................................... 347

g. Standing .................................................................................................................................................................................................................... 347h. Status of Particular Agencies and Employees ............................................................................................................................................. 347

i. Administrator of Federal Benefits ...................................................................................................................................................... 347ii. Department of Veterans Affairs; Title 38 Employees .................................................................................................................. 347iii. Employees of Agencies Other Than the Agency Charged With Reprisal ............................................................................ 348iv. Federal Aviation Administration ........................................................................................................................................................ 348v. Federal Bureau of Investigation ......................................................................................................................................................... 348vi. Foreign Intelligence; Counterintelligence Agencies; Foreign Nationals ............................................................................. 348vii. Former Employees .................................................................................................................................................................................. 348viii. NAF Employees ........................................................................................................................................................................................ 348ix. National Guard Technicians ................................................................................................................................................................. 348x. Postal Service ............................................................................................................................................................................................ 349xi. Private Sector Employees; Applicants for Employment ............................................................................................................ 349xii. Transportation Security Agency ........................................................................................................................................................ 349xiii. Uniformed Services ................................................................................................................................................................................ 349

i. Variations on Order of Proof .............................................................................................................................................................................. 3493. PLEADING REQUIREMENTS ............................................................................................................................................................................................. 350

a. Judge’s Duty to Inform Appellant of Jurisdictional Requirements ...................................................................................................... 350b. MSPB Pleading Requirements ........................................................................................................................................................................... 351c. OSC Pleading Requirements .............................................................................................................................................................................. 351

i. Classification or Labeling of Disclosures Not Required ............................................................................................................. 352ii. OSC Closeout Letter ............................................................................................................................................................................... 352iii. Proof of Scope of Complaint Made to OSC .................................................................................................................................... 352

d. Specificity of Underlying Whistleblower Disclosure ................................................................................................................................. 3534. TIME FOR INITIATING IRA APPEAL ................................................................................................................................................................................ 353

a. Laches ........................................................................................................................................................................................................................ 354F. MIXED-CASE PROCEDURES ........................................................................................................................................................................................................... 354G. PROHIBITED PRACTICES OTHER THAN WHISTLEBLOWING REPRISAL ......................................................................................................................... 354

1. 5 USC 2302(B)(9) .................................................................................................................................................................................................................. 3542. DISCRIMINATION UNRELATED TO JOB PERFORMANCE; 5 USC 2302(B)(10) ................................................................................................ 3553. IMPROPER PERSONNEL RECOMMENDATIONS ........................................................................................................................................................ 3554. IMPROPER PREFERENCES AND PROMOTIONS; 5 USC 2302(B)(6) .................................................................................................................... 3555. NONDISCLOSURE POLICY ................................................................................................................................................................................................ 3566. REPRISAL FOR REFUSAL TO VIOLATE A LAW ............................................................................................................................................................ 356

H. REMEDIES .............................................................................................................................................................................................................................................. 356I. SIGNIFICANCE OF DISCOVERY...................................................................................................................................................................................................... 356J. STAYS OF PERSONNEL ACTIONS .................................................................................................................................................................................................. 356

1. STAYS THROUGH INDIVIDUAL APPEALS .................................................................................................................................................................... 356a. MSPB Review of Regional Stay Decision ....................................................................................................................................................... 356

2. STAYS THROUGH OSC PROCEEDINGS ......................................................................................................................................................................... 357a. Initial Stays ............................................................................................................................................................................................................... 357

i. Proof Supporting Stay Applications ................................................................................................................................................. 357ii. Stay Extensions ........................................................................................................................................................................................ 357

b. Nature of Relief ....................................................................................................................................................................................................... 358K. WHISTLEBLOWING REPRISAL ........................................................................................................................................................................................................ 358

1. DISPUTES OVER FORM OF WHISTLEBLOWING ........................................................................................................................................................ 358a. Disclosures Indirectly Involving the Government...................................................................................................................................... 358b. In Court Disclosures .............................................................................................................................................................................................. 358c. Information Already Known or Public ............................................................................................................................................................ 358d. Inspector General, Communications to ......................................................................................................................................................... 359e. News Media/Congress, Communications to ................................................................................................................................................ 359f. Officials Who Cannot Directly Remedy the Matters Disclosed .............................................................................................................. 359g. Ordinary Duties; Disclosure Through Extraordinary Means ................................................................................................................... 360h. Policy Disputes ........................................................................................................................................................................................................ 361i. Wrongdoers Receiving Disclosure; Internal Disagreements .................................................................................................................. 362

MSPB CASE SUMMARIES xxv

2. MISCONDUCT CONSTITUTING PROTECTED DISCLOSURES ............................................................................................................................... 3623. NO SHIELD FROM MISCONDUCT .................................................................................................................................................................................. 3624. PERSONNEL TREATED AS WHISTLEBLOWERS .......................................................................................................................................................... 363

a. Contractors ............................................................................................................................................................................................................... 363b. Individuals Perceived as Whistleblowers ....................................................................................................................................................... 363c. Whistleblower’s Aide ............................................................................................................................................................................................ 364

5. PROTECTED DISCLOSURES .............................................................................................................................................................................................. 364a. Belief of Other Employees; Disinterested Observer .................................................................................................................................. 364b. Disclosures Supporting Misconduct Charges ............................................................................................................................................. 364c. Filing Appeals; Testifying ..................................................................................................................................................................................... 364d. Grievances, Complaints, Appeals: Post-WPEA ............................................................................................................................................. 364e. Presumed Agency Good Faith; Irrefragable Proof Standard .................................................................................................................. 365f. Reasonableness of Allegations or Belief; False Statements; Motivation ............................................................................................ 365g. Response of Agency to Disclosure .................................................................................................................................................................. 367h. Specificity of Disclosure ....................................................................................................................................................................................... 367

6. RETROACTIVITY OF 2012 WHISTLEBLOWER PROTECTION ENHANCEMENT ACT ..................................................................................... 367a. Continuing Violations ........................................................................................................................................................................................... 367

7. STATUTORY DEFINITIONS ................................................................................................................................................................................................ 367a. Abuse of Authority ................................................................................................................................................................................................ 368b. Disclosure of Potential Harm ............................................................................................................................................................................. 368c. “Gross” Waste or Mismanagement ................................................................................................................................................................... 368d. Threats to Public Health and Safety ................................................................................................................................................................ 370e. Violations of Law, Rule, or Regulation ............................................................................................................................................................ 370

8. UNPROTECTED DISCLOSURES ....................................................................................................................................................................................... 373a. Appeals, Grievances, and Complaints ............................................................................................................................................................ 373b. Disclosures Prohibited by Law .......................................................................................................................................................................... 374c. EEO Complaints ...................................................................................................................................................................................................... 374

REDUCTION IN FORCE; FURLOUGHS ........................................................................................... 377A. ACTIONS APPEALABLE AS RIF ...................................................................................................................................................................................................... 377

1. PAY RATE CHANGES; DEMOTION; GRADE AND PAY RETENTION ..................................................................................................................... 3772. REASSIGNMENTS ................................................................................................................................................................................................................. 377

a. Representative Rate .............................................................................................................................................................................................. 377B. ASSIGNMENT RIGHTS ...................................................................................................................................................................................................................... 377

1. QUALIFICATIONS ASSESSMENT..................................................................................................................................................................................... 378C. AVAILABLE REMEDIES ...................................................................................................................................................................................................................... 378D. BONA FIDES ........................................................................................................................................................................................................................................... 378E. CHANGE TO LOWER GRADE .......................................................................................................................................................................................................... 378F. CLASSIFICATION ................................................................................................................................................................................................................................ 379G. COMPETITIVE AREA; LEVEL ............................................................................................................................................................................................................ 379

1. VETERANS ADMINISTRATION ........................................................................................................................................................................................ 379H. CREDIT FOR PERFORMANCE ........................................................................................................................................................................................................ 379I. FURLOUGH ........................................................................................................................................................................................................................................... 379

1. DISCOVERY ............................................................................................................................................................................................................................. 3802. DUE PROCESS ....................................................................................................................................................................................................................... 381

J. JURISDICTION ..................................................................................................................................................................................................................................... 381K. PROCEDURES ...................................................................................................................................................................................................................................... 382L. REEMPLOYMENT PRIORITY LISTS ............................................................................................................................................................................................... 383M. REORGANIZATION ............................................................................................................................................................................................................................ 383N. RIF AS AN ADVERSE ACTION ......................................................................................................................................................................................................... 384O. RIF DEFENSES ...................................................................................................................................................................................................................................... 384P. VETERANS PREFERENCE ................................................................................................................................................................................................................. 384Q. VOLUNTARY DOWNGRADE ............................................................................................................................................................................................................ 384

REEMPLOYMENT RIGHTS ............................................................................................................... 385A. BASIS FOR SEPARATION .................................................................................................................................................................................................................. 385B. COMMUTING AREA JOB SEARCH ................................................................................................................................................................................................ 386C. MILITARY RETURN RIGHTS ............................................................................................................................................................................................................. 386D. NOTICE CONCERNING RESTORATION RIGHTS AND REEMPLOYMENT APPEAL RIGHTS ....................................................................................... 387E. POSTAL SERVICE NATIONAL REASSESSMENT PROCESS .................................................................................................................................................... 387

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F. RECOVERY FROM A COMPENSABLE INJURY ........................................................................................................................................................................... 3871. FULL RECOVERY .................................................................................................................................................................................................................. 3882. PARTIAL RECOVERY ............................................................................................................................................................................................................ 389

G. REHABILITATION ACT; AMERICANS WITH DISABILITIES ACT ........................................................................................................................................... 391H. REMEDIES .............................................................................................................................................................................................................................................. 392I. RESTORATION TO DUTY .................................................................................................................................................................................................................. 392J. STATUTORY AND REGULATORY BASIS ..................................................................................................................................................................................... 392

1. REMOVAL FOR CAUSE VERSUS COMPENSABLE INJURY ...................................................................................................................................... 392K. TIMELINESS OF RESTORATION REQUEST ................................................................................................................................................................................. 393L. VETERANS PREFERENCE ACT ........................................................................................................................................................................................................ 393

REMEDIES ........................................................................................................................................ 395A. ADMINISTRATIVE PROCEDURE ACT ........................................................................................................................................................................................... 395B. ALJ EXAMINATION ............................................................................................................................................................................................................................. 395C. AMERICAN JOBS CREATION ACT ................................................................................................................................................................................................. 395D. BACK PAY .............................................................................................................................................................................................................................................. 395

1. ADMINISTRATIVE LEAVE ................................................................................................................................................................................................... 3952. AGENCY COMPLIANCE ...................................................................................................................................................................................................... 3953. BOARD AUTHORITY ............................................................................................................................................................................................................ 3964. CALCULATING BACK PAY .................................................................................................................................................................................................. 3965. CODING PERSONNEL DOCUMENTS ............................................................................................................................................................................. 3986. DEDUCTIONS FROM AND ADJUSTMENTS TO BACK PAY .................................................................................................................................... 3987. DEPARTMENT OF TRANSPORTATION ACT ................................................................................................................................................................. 3988. ENTITLEMENT UNDER COLLECTIVE BARGAINING AGREEMENTS ................................................................................................................... 3989. FEDERAL ENTITIES SUBJECT TO ..................................................................................................................................................................................... 39810. INTEREST ................................................................................................................................................................................................................................. 398

a. Postal Service Employees.................................................................................................................................................................................... 39911. MAXIMUM RECOVERY PERIOD....................................................................................................................................................................................... 39912. OTHER REMEDIES UNDER THE BACK PAY ACT ......................................................................................................................................................... 39913. OUTSIDE WORK .................................................................................................................................................................................................................... 39914. OVERTIME; HOLIDAY PAY ................................................................................................................................................................................................. 39915. OWCP PAYMENTS ................................................................................................................................................................................................................ 40016. POSTAL SERVICE .................................................................................................................................................................................................................. 40017. PREMIUM PAY ........................................................................................................................................................................................................................ 40018. PROMOTIONS ........................................................................................................................................................................................................................ 40019. READY, WILLING AND ABLE ............................................................................................................................................................................................. 40020. RESTORATION TO DUTY .................................................................................................................................................................................................... 40121. RETIREMENT CONTRIBUTIONS ...................................................................................................................................................................................... 40122. RETIREMENT, EFFECT OF .................................................................................................................................................................................................. 40123. REVERSALS ............................................................................................................................................................................................................................. 40124. SECURITY CLEARANCE LOSS AND BACK PAY ENTITLEMENT ............................................................................................................................. 40125. STATUS QUO ANTE ................................................................................................................................................................................................................ 40226. TAX CONSEQUENCES ......................................................................................................................................................................................................... 40227. TIMELINESS OF CLAIM ....................................................................................................................................................................................................... 40228. “UNJUSTIFIED OR UNWARRANTED PERSONNEL ACTION” ................................................................................................................................. 40229. WHISTLEBLOWER PROTECTION ACT ........................................................................................................................................................................... 40230. WORK-RELATED DISABILITIES ........................................................................................................................................................................................ 402

E. BOARD AUTHORITY .......................................................................................................................................................................................................................... 402F. CLEAN RECORD; PURGING DOCUMENTS ................................................................................................................................................................................ 403G. COMPENSATORY DAMAGES ......................................................................................................................................................................................................... 403

1. FOR WHISTLEBLOWER REPRISAL .................................................................................................................................................................................. 404H. CONSEQUENTIAL DAMAGES ......................................................................................................................................................................................................... 404I. FRONT PAY ........................................................................................................................................................................................................................................... 405J. MEDICAL COSTS INCURRED ......................................................................................................................................................................................................... 405K. MIXED MOTIVE CASES ..................................................................................................................................................................................................................... 405L. NONPECUNIARY DAMAGES........................................................................................................................................................................................................... 405M. NONTRADITIONAL REMEDIES ...................................................................................................................................................................................................... 405N. OVERTIME AND PAY STATUTES ..................................................................................................................................................................................................... 405O. PERFORMANCE APPRAISAL, MODIFICATION ......................................................................................................................................................................... 405P. PROMOTIONS AND AWARDS ........................................................................................................................................................................................................ 405

MSPB CASE SUMMARIES xxvii

Q. PUNITIVE DAMAGES ......................................................................................................................................................................................................................... 406R. RECONSTRUCTING THE PERSONNEL ACTION ........................................................................................................................................................................ 406S. REEMPLOYMENT RIGHTS ................................................................................................................................................................................................................ 406T. REINSTATEMENT; STATUS QUO ANTE REMEDY ....................................................................................................................................................................... 406

1. DEMOTIONS ........................................................................................................................................................................................................................... 406U. RESCISSION OF AGENCY ACTION ............................................................................................................................................................................................... 406V. RETURN TO DUTY ............................................................................................................................................................................................................................... 406W. SOVEREIGN IMMUNITY .................................................................................................................................................................................................................... 406X. STAY REQUESTS .................................................................................................................................................................................................................................. 406Y. SUITABILITY DETERMINATIONS ................................................................................................................................................................................................... 407Z. SURVIVOR ANNUITIES ...................................................................................................................................................................................................................... 407AA. USERRA .................................................................................................................................................................................................................................................. 407BB. VEOA ....................................................................................................................................................................................................................................................... 407CC. WHISTLEBLOWER PROTECTION ACT ......................................................................................................................................................................................... 407

REPRESENTATION .......................................................................................................................... 409A. APPELLANT IS RESPONSIBLE FOR THE ACTIONS OF HIS REPRESENTATIVE ............................................................................................................... 409

1. EXCEPTIONS .......................................................................................................................................................................................................................... 409B. ATTORNEY-CLIENT RELATIONSHIP ............................................................................................................................................................................................. 409C. AUTHORITY TO ACT .......................................................................................................................................................................................................................... 409D. CONFLICTS OF INTEREST ................................................................................................................................................................................................................ 410E. DESIGNATIONS ................................................................................................................................................................................................................................... 410F. FAILURE TO PROSECUTE .................................................................................................................................................................................................................. 410G. INADEQUATE REPRESENTATION .................................................................................................................................................................................................. 410H. MISCONDUCT ...................................................................................................................................................................................................................................... 410I. MOTION TO DISQUALIFY ................................................................................................................................................................................................................ 410J. NON-ATTORNEYS ............................................................................................................................................................................................................................... 410K. RIGHT TO ................................................................................................................................................................................................................................................ 410L. SERVICE ON REPRESENTATIVE ...................................................................................................................................................................................................... 410M. STATE BAR RULES ............................................................................................................................................................................................................................... 411

RETIREMENT ................................................................................................................................... 413A. AGENCY COMPLIANCE WITH RETIREMENT PROCEDURES ............................................................................................................................................... 413B. ANNUITIES ........................................................................................................................................................................................................................................... 413

1. ALTERNATIVE FORMS OF ANNUITY .............................................................................................................................................................................. 4132. ANNUITY OVERPAYMENT ................................................................................................................................................................................................. 413

a. Disputes Over Amount of Overpayment ..................................................................................................................................................... 413b. Knowledge of Overpayment ............................................................................................................................................................................. 414c. Procedure.................................................................................................................................................................................................................. 414d. Prompt Notification Exception ......................................................................................................................................................................... 414e. Unconscionable Recovery .................................................................................................................................................................................. 414f. Waiver Procedure .................................................................................................................................................................................................. 415

3. APPLICATIONS ...................................................................................................................................................................................................................... 4174. BOARD AUTHORITY; JURISDICTION ............................................................................................................................................................................ 4175. COMPUTATION OF BENEFITS ......................................................................................................................................................................................... 418

a. COLAs ........................................................................................................................................................................................................................ 418b. Court Order, Effect of ............................................................................................................................................................................................ 419c. Disability Retirement ........................................................................................................................................................................................... 420d. Estoppel..................................................................................................................................................................................................................... 420e. “High-Three” ............................................................................................................................................................................................................. 420f. Interest ....................................................................................................................................................................................................................... 420g. Material Misinformation From Agency ......................................................................................................................................................... 420h. Offsets to Annuity .................................................................................................................................................................................................. 421i. Significance of Individual Retirement Record ............................................................................................................................................ 421j. Withdrawals ............................................................................................................................................................................................................. 421

6. CREDITABLE SERVICE ......................................................................................................................................................................................................... 4217. EFFECTIVE DATE .................................................................................................................................................................................................................. 4218. VOLUNTARY EARLY RETIREMENT AUTHORITY; VOLUNTARY SEPARATION INCENTIVE PAYMENT ...................................................... 422

C. APPLICATION, RECONSIDERATION, BOARD APPEALS ........................................................................................................................................................ 4221. BOARD JURISDICTION ....................................................................................................................................................................................................... 422

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2. COMPLIANCE ........................................................................................................................................................................................................................ 4233. JUDICIAL REVIEW ................................................................................................................................................................................................................ 4234. MISLEADING ADVICE ......................................................................................................................................................................................................... 4235. TIMELINESS ............................................................................................................................................................................................................................ 423

D. ATTORNEY FEES STANDARD IN RETIREMENT APPEALS ..................................................................................................................................................... 424E. CONVERSION TO/FROM SYSTEMS .............................................................................................................................................................................................. 424F. DEATH BENEFITS ............................................................................................................................................................................................................................... 424G. DEPOSITS............................................................................................................................................................................................................................................... 425H. DISABILITY RETIREMENT ................................................................................................................................................................................................................ 426

1. ACCOMMODATION ............................................................................................................................................................................................................. 4262. APPLICATIONS ..................................................................................................................................................................................................................... 426

a. Agency Breach Regarding Employee’s Application .................................................................................................................................. 426b. Agency-Initiated .................................................................................................................................................................................................... 426c. Incapacity ................................................................................................................................................................................................................. 426d. Incomplete Applications .................................................................................................................................................................................... 427e. Timeliness for Filing; Agency Obligation of Notice of Eligibility .......................................................................................................... 427f. Withdrawal of Application ................................................................................................................................................................................. 428

3. BOARD JURISDICTION ...................................................................................................................................................................................................... 4294. COMPLIANCE ....................................................................................................................................................................................................................... 4295. COMPUTING BENEFITS ..................................................................................................................................................................................................... 4296. CONTRACT EMPLOYEES; NONAPPROPRIATED FUND EMPLOYEES ................................................................................................................ 4297. CONTRIBUTIONS WITHDRAWAL .................................................................................................................................................................................... 4298. DVA DECISIONS ................................................................................................................................................................................................................... 4309. ENTITLEMENT ....................................................................................................................................................................................................................... 43010. EVIDENCE OF DISABILITY; BURDEN OF PROOF ...................................................................................................................................................... 430

a. Absences .................................................................................................................................................................................................................. 430b. Bruner and Chavez ................................................................................................................................................................................................. 430c. Disability Accommodation; Bracey ................................................................................................................................................................. 433d. Mullins-Howard Exception ................................................................................................................................................................................. 435e. Procedure ................................................................................................................................................................................................................ 436f. SSA Decisions; Trevan .......................................................................................................................................................................................... 436

11. HEARINGS .............................................................................................................................................................................................................................. 43712. INVOLUNTARY DISABILITY RETIREMENT .................................................................................................................................................................. 43713. JUDICIAL REVIEW ................................................................................................................................................................................................................ 43714. MILITARY SERVICE ............................................................................................................................................................................................................... 43715. OPM FAILURE TO CONSIDER A CONDITION .............................................................................................................................................................. 43916. QUALIFYING SERVICE ....................................................................................................................................................................................................... 439

a. Reemployed Annuitants ..................................................................................................................................................................................... 440b. Regular Employment ........................................................................................................................................................................................... 440c. Workers’ Compensation ....................................................................................................................................................................................... 440

17. RATINGS .................................................................................................................................................................................................................................. 44018. RECOVERY FROM DISABILITY; OWCP; RESTORATION OF EARNING CAPACITY .......................................................................................... 44019. SPECIFIC AILMENTS ........................................................................................................................................................................................................... 442

a. Arthritis ...................................................................................................................................................................................................................... 442b. Back, Neck, and Shoulder Problems ............................................................................................................................................................... 442c. Diabetes ................................................................................................................................................................................................................... 442d. Neurological ............................................................................................................................................................................................................ 442e. Psychiatric Problems ............................................................................................................................................................................................ 442f. Pulmonary Disease ............................................................................................................................................................................................... 444g. Stress and Hypertension ..................................................................................................................................................................................... 444h. Visual Problems ..................................................................................................................................................................................................... 444

20. TERMINATION OF DISABILITY RETIREMENT ............................................................................................................................................................ 444a. Burden of Proof ...................................................................................................................................................................................................... 444b. Medical Recovery ................................................................................................................................................................................................... 444c. Pay Rate ..................................................................................................................................................................................................................... 444d. Recurrence of Disability ...................................................................................................................................................................................... 444e. Restoration of Earning Capacity ....................................................................................................................................................................... 444

21. TIMELINESS FOR FILING .................................................................................................................................................................................................... 444I. DISCRIMINATION CLAIMS AGAINST OPM ............................................................................................................................................................................... 444

MSPB CASE SUMMARIES xxix

J. EARLY VOLUNTARY RETIREMENT AND DISCONTINUED SERVICE RETIREMENT ...................................................................................................... 445K. FERCCA .................................................................................................................................................................................................................................................. 445L. FERS ........................................................................................................................................................................................................................................................ 445M. FOREIGN RELATIONS AUTHORIZATION ACT ......................................................................................................................................................................... 446N. HEARINGS; EVIDENCE; PETITIONS FOR REVIEW ................................................................................................................................................................... 446O. INDIVIDUAL RETIREMENT RECORD ........................................................................................................................................................................................... 446P. JUDICIAL REVIEW ............................................................................................................................................................................................................................... 446Q. LUMP SUM PAYMENT ....................................................................................................................................................................................................................... 446R. OPTIONAL RETIREMENT ................................................................................................................................................................................................................. 446

1. CONVERSION TO AND FROM FERS .............................................................................................................................................................................. 4462. CREDITABLE AND COVERED SERVICE ......................................................................................................................................................................... 4473. REFUNDS; DEPOSITS; OFFSETS ...................................................................................................................................................................................... 4484. RETIREMENT BENEFITS ..................................................................................................................................................................................................... 448

S. PROCEDURES ....................................................................................................................................................................................................................................... 4481. AUTHORITY; GOVERNING LAW ..................................................................................................................................................................................... 4482. BOARD AUTHORITY ........................................................................................................................................................................................................... 4483. OPM FINAL DECISION ........................................................................................................................................................................................................ 449

T. QUALIFYING COURT ORDER .......................................................................................................................................................................................................... 449U. RECONSIDERATION BY OPM ......................................................................................................................................................................................................... 450

1. APPLICATION......................................................................................................................................................................................................................... 4502. FAILURE TO SEEK TIMELY RECONSIDERATION ........................................................................................................................................................ 4503. PROCEDURE .......................................................................................................................................................................................................................... 450

V. REFUNDS ............................................................................................................................................................................................................................................... 450W. SECURITY CLEARANCE RELATED ................................................................................................................................................................................................. 451X. SERVICE CREDIT ................................................................................................................................................................................................................................. 451

1. COVERAGE .............................................................................................................................................................................................................................. 452Y. SPECIAL RETIREMENT PROVISIONS ........................................................................................................................................................................................... 454

1. AIR TRAFFIC CONTROLLER AND AIR TRAFFIC CONTROL SPECIALIST RETIREMENT ............................................................................... 4542. CUSTOMS AND BORDER PATROL .................................................................................................................................................................................. 4543. FIREFIGHTERS ....................................................................................................................................................................................................................... 4544. LAW ENFORCEMENT OFFICERS ..................................................................................................................................................................................... 4555. NATIONAL GUARD TECHNICIANS ................................................................................................................................................................................ 457

Z. SURVIVOR ANNUITY ........................................................................................................................................................................................................................ 4571. ALLOTMENTS; ASSIGNMENTS ....................................................................................................................................................................................... 4572. CALCULATION ....................................................................................................................................................................................................................... 4583. CHILDREN .............................................................................................................................................................................................................................. 4584. COMPETENCY TO MAKE ELECTION .............................................................................................................................................................................. 4585. DEPOSITS ................................................................................................................................................................................................................................ 4586. ELECTION OPTIONS ............................................................................................................................................................................................................ 4587. HEALTH BENEFITS ............................................................................................................................................................................................................... 4628. MARITAL STATUS ................................................................................................................................................................................................................. 4629. NOTICE OF ELECTION ........................................................................................................................................................................................................ 46410. REMARRIAGE AFTER RETIREMENT................................................................................................................................................................................ 46411. REVIEW OF OPM DECISIONS ........................................................................................................................................................................................... 464

a. Intervenors ............................................................................................................................................................................................................... 46412. SOCIAL SECURITY OFFSET ............................................................................................................................................................................................... 46413. TIMELINESS AND METHOD OF ELECTION ................................................................................................................................................................. 46414. WAIVER .................................................................................................................................................................................................................................... 465

AA. THRIFT SAVINGS PLAN ..................................................................................................................................................................................................................... 465BB. WORKERS’ COMPENSATION .......................................................................................................................................................................................................... 465

SANCTIONS ...................................................................................................................................... 467A. ABUSE OF PROCESS; FRIVOLOUS APPEALS ............................................................................................................................................................................ 467B. ADVERSE INFERENCE........................................................................................................................................................................................................................ 467C. CANCELATION OF HEARING .......................................................................................................................................................................................................... 467D. COMPLIANCE ISSUES........................................................................................................................................................................................................................ 467

1. DISMISSAL FOR FAILURE TO COMPLY WITH ORDER.............................................................................................................................................. 468E. FAILURE TO COOPERATE IN DISCOVERY ................................................................................................................................................................................... 468F. FAILURE TO FOLLOW PREHEARING OR HEARING PROCEDURES .................................................................................................................................... 468G. FAILURE TO PROSECUTE APPEAL ................................................................................................................................................................................................ 469

xxx TABLE OF CONTENTS

H. FAILURE TO RESPOND TO APPEAL .............................................................................................................................................................................................. 469I. FAILURE TO SERVE ............................................................................................................................................................................................................................ 469J. JUDGE’S RESPONSIBILITIES ........................................................................................................................................................................................................... 469K. MONETARY SANCTIONS.................................................................................................................................................................................................................. 469L. SPOLIATION .......................................................................................................................................................................................................................................... 470

SENIOR EXECUTIVE SERVICE ......................................................................................................... 471A. CONSTRUCTIVE ADVERSE ACTIONS .......................................................................................................................................................................................... 471B. DEPARTMENT OF VETERANS AFFAIRS ....................................................................................................................................................................................... 471C. PERFORMANCE ................................................................................................................................................................................................................................... 471D. REDUCTION IN FORCE ..................................................................................................................................................................................................................... 471E. REFUSAL TO ACCEPT REASSIGNMENT ...................................................................................................................................................................................... 471

SETTLEMENTS ................................................................................................................................. 473A. ACCEPTANCE INTO RECORD FOR PURPOSES OF ENFORCEMENT OR COMPLIANCE ............................................................................................. 473B. AGREEMENT PROVISIONS ............................................................................................................................................................................................................. 473

1. BACK PAY ACT ...................................................................................................................................................................................................................... 4732. BOARD ENFORCEMENT ................................................................................................................................................................................................... 4743. CONFIDENTIALITY; NONDISCLOSURE PROVISIONS.............................................................................................................................................. 4744. JURISDICTION ...................................................................................................................................................................................................................... 4755. OLDER WORKERS BENEFIT PROTECTION ACT ......................................................................................................................................................... 4756. WAIVER OF APPEAL RIGHTS ............................................................................................................................................................................................ 4757. WAIVER OF FEES AND/OR DAMAGES .......................................................................................................................................................................... 477

C. BOARD REVIEW AUTHORITY ......................................................................................................................................................................................................... 477D. BREACH ................................................................................................................................................................................................................................................. 477

1. BURDEN OF PROOF ............................................................................................................................................................................................................ 4772. EFFECT OF BREACH ........................................................................................................................................................................................................... 4773. GOOD FAITH REQUIREMENT; HARASSMENT ........................................................................................................................................................... 4774. KNOWLEDGE OF BREACH ............................................................................................................................................................................................... 4775. MATERIALITY ......................................................................................................................................................................................................................... 4786. PROCEDURE .......................................................................................................................................................................................................................... 4797. REMEDIES FOR BREACH ................................................................................................................................................................................................... 479

a. Damages .................................................................................................................................................................................................................. 479b. Enforcement or Rescission ................................................................................................................................................................................ 479c. “No Enforcement Remedy” ................................................................................................................................................................................. 480d. Partial Remedy ........................................................................................................................................................................................................ 480e. Reinstatement ........................................................................................................................................................................................................ 480f. Specific Performance ........................................................................................................................................................................................... 480

8. SUBSTANTIAL PERFORMANCE ...................................................................................................................................................................................... 480E. COMPLIANCE AND ENFORCEMENT .......................................................................................................................................................................................... 480

1. AGREEMENT NOT TO SEEK REEMPLOYMENT ........................................................................................................................................................... 4812. BACK PAY ................................................................................................................................................................................................................................ 4813. BOARD AUTHORITY ............................................................................................................................................................................................................ 4814. COMPLIANCE STANDARD/BURDEN OF PROOF ...................................................................................................................................................... 4825. CONTRACT LAW CONTROLS .......................................................................................................................................................................................... 4826. DISABILITY RETIREMENT ................................................................................................................................................................................................. 4827. DISCONTINUED SERVICE RETIREMENT ...................................................................................................................................................................... 4828. DISMISSAL OF APPEAL AS SETTLED ............................................................................................................................................................................ 4829. ENFORCEMENT ..................................................................................................................................................................................................................... 483

a. Election Between Enforcement and Rescission .......................................................................................................................................... 483b. Petition for Enforcement ..................................................................................................................................................................................... 483

10. INTERPRETATION OF TERMS ........................................................................................................................................................................................... 48311. LAST CHANCE AGREEMENTS AS ENFORCEMENT .................................................................................................................................................. 48412. PERSONNEL FILE ................................................................................................................................................................................................................. 48413. PETITION FOR REVIEW ...................................................................................................................................................................................................... 48414. PRIORITY CONSIDERATION ............................................................................................................................................................................................ 48415. PROVISIONS THAT VIOLATE COLLECTIVE BARGAINING AGREEMENT ........................................................................................................... 48416. REINSTATEMENT OF APPEAL .......................................................................................................................................................................................... 48417. REMEDIES ............................................................................................................................................................................................................................... 48518. RESTORATION RIGHTS ....................................................................................................................................................................................................... 485

MSPB CASE SUMMARIES xxxi

19. SANCTIONS ............................................................................................................................................................................................................................ 48520. TIME FOR COMPLIANCE .................................................................................................................................................................................................... 48521. VALIDITY ................................................................................................................................................................................................................................ 48522. WAIVER ................................................................................................................................................................................................................................... 485

F. CONDITIONAL SETTLEMENTS; LAPSED OFFERS ................................................................................................................................................................... 485G. CONSTRUCTION; INTERPRETATION ........................................................................................................................................................................................... 485

1. AMBIGUOUS LANGUAGE ................................................................................................................................................................................................ 4852. AVOIDING ABSURD RESULTS ......................................................................................................................................................................................... 4863. CONTRACT LAW GOVERNS .............................................................................................................................................................................................. 4864. DEFINING TERMS ................................................................................................................................................................................................................ 4865. IMPLIED TERMS .................................................................................................................................................................................................................... 4866. INTEGRATED AGREEMENTS ............................................................................................................................................................................................ 4877. LANGUAGE CONTROLS .................................................................................................................................................................................................... 4878. LENGTH.................................................................................................................................................................................................................................... 4879. MODIFICATION OF SETTLEMENT TERMS ................................................................................................................................................................... 48810. OMITTED TERMS .................................................................................................................................................................................................................. 48811. PAROL EVIDENCE ................................................................................................................................................................................................................. 488

H. HATCH ACT SETTLEMENTS ............................................................................................................................................................................................................ 488I. IMPLIED GOOD FAITH ..................................................................................................................................................................................................................... 488J. LAST CHANCE AGREEMENTS ....................................................................................................................................................................................................... 488

1. AGENCY COMPLIANCE ..................................................................................................................................................................................................... 4882. APPELLANT’S COMPLIANCE .......................................................................................................................................................................................... 4893. BOARD REVIEW AUTHORITY .......................................................................................................................................................................................... 4894. DOUBLE JEOPARDY ............................................................................................................................................................................................................ 4895. PLEADING STANDARDS .................................................................................................................................................................................................... 4896. PUBLIC POLICY CONSIDERATIONS .............................................................................................................................................................................. 4907. UNDERLYING MISCONDUCT ........................................................................................................................................................................................... 4908. WAIVER OF APPEAL RIGHTS ............................................................................................................................................................................................ 490

K. ON PFR; PFE; JUDICIAL REVIEW ................................................................................................................................................................................................... 491L. ORAL AGREEMENTS .......................................................................................................................................................................................................................... 492M. PROCEDURE ........................................................................................................................................................................................................................................ 492

1. CHALLENGING THE VALIDITY OF AN AGREEMENT ............................................................................................................................................... 4922. CONDITIONAL DISMISSALS ........................................................................................................................................................................................... 4923. DISMISSALS .......................................................................................................................................................................................................................... 4924. PARTIES BOUND .................................................................................................................................................................................................................. 4935. RES JUDICATA ........................................................................................................................................................................................................................ 4936. SETTLEMENT OFFERS TREATED AS EVIDENCE ....................................................................................................................................................... 4937. SETTLEMENT REACHED OUTSIDE BOARD RECORD ............................................................................................................................................. 4938. TIMELINESS FOR CHALLENGES ..................................................................................................................................................................................... 493

N. SETTING ASIDE A SETTLEMENT AGREEMENT; VALIDITY OF THE AGREEMENT ....................................................................................................... 4931. COERCION; FRAUD; BAD FAITH ..................................................................................................................................................................................... 4932. CONDITIONS TO SETTLEMENT ....................................................................................................................................................................................... 4953. ERROR OR LACK OF AUTHORITY OF AGENCY’S COUNSEL ................................................................................................................................ 4954. ERROR OR LACK OF AUTHORITY OF APPELLANT’S COUNSEL ......................................................................................................................... 4955. MEETING OF THE MINDS; MUTUAL ASSENT ............................................................................................................................................................. 4956. MENTAL INCAPACITY ........................................................................................................................................................................................................ 4957. MISLEADING INFORMATION .......................................................................................................................................................................................... 4968. MUTUAL MISTAKE .............................................................................................................................................................................................................. 4969. ORAL AGREEMENTS .......................................................................................................................................................................................................... 49710. PUBLIC POLICY CONSIDERATIONS ............................................................................................................................................................................... 49711. RETIREMENT, INCORRECT INFORMATION PROVIDED BY AGENCY REGARDING RETIREMENT ............................................................ 49712. RETURNING PARTIES TO STATUS QUO ANTE ............................................................................................................................................................ 49713. UNLAWFUL ............................................................................................................................................................................................................................ 49714. VALIDITY.................................................................................................................................................................................................................................. 497

O. SETTLEMENT DISCUSSIONS ......................................................................................................................................................................................................... 498P. SPECIFIC TERMS OF AN AGREEMENT ....................................................................................................................................................................................... 498

1. ABSENCE-RELATED ............................................................................................................................................................................................................ 4982. APPLYING FOR POSITIONS ............................................................................................................................................................................................. 4983. BACK PAY ................................................................................................................................................................................................................................. 498

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4. “CLEAN RECORD”; EXPUNGEMENT OR WITHDRAWAL OF RECORDS ............................................................................................................. 4985. DEMOTION ............................................................................................................................................................................................................................ 4996. DISABILITY RETIREMENT ................................................................................................................................................................................................. 4997. FITNESS FOR DUTY EXAMS ............................................................................................................................................................................................ 4998. INTEGRATION CLAUSES .................................................................................................................................................................................................... 5009. INTERGOVERNMENTAL PERSONNEL ACT ................................................................................................................................................................. 50010. MITIGATED PENALTIES ..................................................................................................................................................................................................... 50011. OFFICIAL PERSONNEL FILE; EMPLOYMENT INQUIRIES ....................................................................................................................................... 50012. OWCP CLAIMS ..................................................................................................................................................................................................................... 50113. PRIORITY CONSIDERATION ............................................................................................................................................................................................ 50114. PROVISIONS EFFECTING JURISDICTION ................................................................................................................................................................... 50115. REINSTATEMENT ................................................................................................................................................................................................................. 50116. RESIGNATION ....................................................................................................................................................................................................................... 50117. RETIREMENT; ANNUITIES ................................................................................................................................................................................................. 50118. RETROACTIVE APPOINTMENTS .................................................................................................................................................................................... 50119. WITHDRAWAL FROM AGREEMENT .............................................................................................................................................................................. 502

Q. SUITABILITY DETERMINATIONS ................................................................................................................................................................................................... 502

STATUTORY AND REGULATORY CONSTRUCTION ....................................................................... 503A. AGENCY HANDBOOKS .................................................................................................................................................................................................................... 503B. AIR TRAFFIC CONTROLLERS, MANDATORY SEPARATION OF; 5 USC § 8335(A) ....................................................................................................... 503C. AMENDMENTS .................................................................................................................................................................................................................................... 503D. ATTORNEY FEE PROVISIONS ......................................................................................................................................................................................................... 503E. CIVIL SERVICE REFORM ACT ......................................................................................................................................................................................................... 503

1. JURISDICTION ...................................................................................................................................................................................................................... 503F. CONSTITUTIONAL CHALLENGES ................................................................................................................................................................................................ 504G. “EMPLOYEES” UNDER 5 USC § 2105 ........................................................................................................................................................................................... 504H. EXEMPTIONS; EXCEPTIONS UNDER STATUTES; REGULATIONS ..................................................................................................................................... 504I. FAMILY AND MEDICAL LEAVE ACT .............................................................................................................................................................................................. 504J. FEDERAL EMPLOYEES RETIREMENT SYSTEM ......................................................................................................................................................................... 504K. FEDERAL WORKFORCE FLEXIBILITY ACT ................................................................................................................................................................................ 504L. INDIAN CHILD PROTECTION AND FAMILY VIOLENCE PREVENTION ACT .................................................................................................................. 504M. INTERPRETATION OF LABOR AGREEMENTS ........................................................................................................................................................................... 504N. INTERPRETATION OF STATUTES AND REGULATIONS .......................................................................................................................................................... 504

1. AGENCY INTERPRETATIONS ........................................................................................................................................................................................... 5052. AVOIDANCE OF ABSURD CONCLUSIONS ................................................................................................................................................................. 5073. CHANGES IN THE LAW ...................................................................................................................................................................................................... 5074. CONGRESSIONAL INTENT ................................................................................................................................................................................................ 5075. COURT REVIEW OF STATUTORY INTERPRETATION ............................................................................................................................................... 5076. DEFERENCE TO ADMINISTRATIVE INTERPRETATIONS .......................................................................................................................................... 5077. “EJUSDEM GENERIS”; STATUTORY INTERPRETATION ............................................................................................................................................ 5078. LANGUAGE CONTROLS .................................................................................................................................................................................................... 5089. LEGISLATIVE HISTORY ....................................................................................................................................................................................................... 51010. RETROACTIVITY .................................................................................................................................................................................................................... 51011. STATEMENTS OF LEGISLATORS ..................................................................................................................................................................................... 51112. STATUTORY AMENDMENTS; CONGRESSIONAL FAILURE TO AMEND ............................................................................................................. 511

O. LAW ENFORCEMENT AVAILABILITY PAY ACT ......................................................................................................................................................................... 511P. “NOTWITHSTANDING ANY OTHER PROVISION OF LAW” .................................................................................................................................................. 511Q. “ORDINARY MEANING” ................................................................................................................................................................................................................... 511R. RELIANCE ON STATE STATUTES ................................................................................................................................................................................................... 511S. SOCIAL SECURITY ACT .................................................................................................................................................................................................................... 511T. SOVEREIGN IMMUNITY ................................................................................................................................................................................................................... 512U. STARE DECISIS ..................................................................................................................................................................................................................................... 512V. USERRA ................................................................................................................................................................................................................................................. 512

1. ATTORNEY FEES .................................................................................................................................................................................................................. 512W. VACATUR ............................................................................................................................................................................................................................................... 512X. VEOA ...................................................................................................................................................................................................................................................... 512Y. WAIVER OF STATUTORY RIGHTS ................................................................................................................................................................................................. 512

MSPB CASE SUMMARIES xxxiii

SUBSTANTIVE OFFENSES .............................................................................................................. 513A. ABSENCE-RELATED ........................................................................................................................................................................................................................... 513

1. ABSENCES AND LAST CHANCE AGREEMENTS ........................................................................................................................................................ 5132. ABSENT WITHOUT LEAVE (AWOL) ................................................................................................................................................................................ 5133. EXCESSIVE ABSENCES AND USE OF LEAVE WITHOUT PAY ................................................................................................................................. 5134. FAILURE TO FOLLOW LEAVE REQUESTING AND REPORTING PROCEDURES ............................................................................................... 5145. FAMILY AND MEDICAL LEAVE ACT ............................................................................................................................................................................... 5156. LEAVE RESTRICTION LETTERS AND MEDICAL AND OTHER CERTIFICATION REQUIREMENTS ............................................................. 5167. REMOVALS FOR APPROVED LEAVE .............................................................................................................................................................................. 5168. WORKERS’ COMPENSATION CASES .............................................................................................................................................................................. 516

B. ASSAULT; AGGRESSIVE AND/OR VIOLENT CONDUCT ......................................................................................................................................................... 516C. CARELESSNESS; NEGLIGENCE ...................................................................................................................................................................................................... 517D. CONDITIONS OF EMPLOYMENT, FAILURE TO MAINTAIN OR OBTAIN /INELIGIBILITY DETERMINATIONS ...................................................... 518

1. CERTAIN AUTHORIZATIONS ............................................................................................................................................................................................ 5192. SECURITY CLEARANCE DETERMINATIONS ............................................................................................................................................................... 5193. SENSITIVE POSITIONS; CONYERS ................................................................................................................................................................................... 521

E. CONDUCT ISSUES .............................................................................................................................................................................................................................. 5221. DISRESPECTFUL CONDUCT AND ABUSIVE LANGUAGE ...................................................................................................................................... 522

a. Defenses .................................................................................................................................................................................................................... 523i. Grievance Proceedings .......................................................................................................................................................................... 523ii. Medical Impairment ............................................................................................................................................................................... 523iii. Mitigation ................................................................................................................................................................................................... 523

2. UNACCEPTABLE CONDUCT; INAPPROPRIATE BEHAVIOR ................................................................................................................................... 5233. UNBECOMING CONDUCT ............................................................................................................................................................................................... 523

a. Menacing Comments ........................................................................................................................................................................................... 524F. CONFLICT OF INTEREST .................................................................................................................................................................................................................. 524G. CRIMINAL MISCONDUCT ............................................................................................................................................................................................................... 524

1. SUITABILITY DETERMINATIONS .................................................................................................................................................................................... 525H. CRITICAL STATEMENTS: CRITICISM OF THE AGENCY; PRIVATE VS. PUBLIC STATEMENTS; FIRST AMENDMENT .......................................... 525I. DRUG; ALCOHOL-RELATED ............................................................................................................................................................................................................ 526J. EXCEEDING AUTHORITY ................................................................................................................................................................................................................ 527K. FAILURE TO COOPERATE ................................................................................................................................................................................................................. 527

1. DEFENSES ............................................................................................................................................................................................................................... 527a. Obey Now; Grieve Later ....................................................................................................................................................................................... 527

2. INVESTIGATIONS .................................................................................................................................................................................................................. 5283. OBSTRUCTION ...................................................................................................................................................................................................................... 5284. SELF INCRIMINATION ......................................................................................................................................................................................................... 528

L. FAILURE TO FOLLOW INSTRUCTIONS ........................................................................................................................................................................................ 5281. DEFENSES ............................................................................................................................................................................................................................... 528

a. Improper Directives .............................................................................................................................................................................................. 5282. FIREFIGHTERS; LAW ENFORCEMENT OFFICERS ...................................................................................................................................................... 5283. MISINTERPRETATION; MISTAKE ..................................................................................................................................................................................... 5294. RELATIONSHIP TO SERVICE EFFICIENCY .................................................................................................................................................................... 529

M. FAILURE TO FOLLOW ORDERS ...................................................................................................................................................................................................... 5291. DRUG TESTS ........................................................................................................................................................................................................................... 5292. FITNESS EXAMINATION ..................................................................................................................................................................................................... 5293. INTENT ELEMENT ................................................................................................................................................................................................................. 529

N. FAILURE TO FOLLOW PROPER PROCEDURES ......................................................................................................................................................................... 529O. FAILURE TO REPORT MISCONDUCT ............................................................................................................................................................................................ 530P. FALSIFICATION; FRAUD ................................................................................................................................................................................................................... 530

1. DISCLOSURE STATEMENTS .............................................................................................................................................................................................. 5302. FALSE ACCUSATIONS; ABUSE OF EEO OR GRIEVANCE PROCESSES ................................................................................................................ 5303. FALSE INFORMATION VS. FALSIFICATION .................................................................................................................................................................. 5304. FALSIFICATION ELEMENTS ............................................................................................................................................................................................... 5305. FINANCIAL GAIN .................................................................................................................................................................................................................. 5316. INTENT ELEMENT ................................................................................................................................................................................................................. 5317. MEDICAL CERTIFICATES AND INQUIRIES ................................................................................................................................................................... 5318. MITIGATING FACTORS ....................................................................................................................................................................................................... 5319. NEGLECT OR MISTAKE ....................................................................................................................................................................................................... 531

xxxiv TABLE OF CONTENTS

10. PAY ............................................................................................................................................................................................................................................. 53211. PRE-EMPLOYMENT INFORMATION: EMPLOYMENT APPLICATIONS, SECURITY QUESTIONNAIRES, PRE-EMPLOYMENT

MEDICAL INQUIRIES AND ASSOCIATED DOCUMENTS ........................................................................................................................................ 53212. PRIVATE TRANSACTIONS .................................................................................................................................................................................................. 53213. RELIANCE UPON ADVISE OF COUNSEL OR OTHERS ............................................................................................................................................. 53214. STATEMENTS MADE DURING INVESTIGATIONS ...................................................................................................................................................... 53215. SUITABILITY DETERMINATIONS .................................................................................................................................................................................... 53216. TIME, ATTENDANCE AND WORK RECORDS .............................................................................................................................................................. 53317. TRAVEL VOUCHERS AND ASSOCIATED DOCUMENTS .......................................................................................................................................... 533

Q. FINANCIAL ISSUES ............................................................................................................................................................................................................................. 534R. INABILITY TO PERFORM FULL RANGE OF DUTIES ................................................................................................................................................................ 534S. INATTENTION TO DUTY; SLEEPING ON THE JOB .................................................................................................................................................................. 534T. INSUBORDINATION ........................................................................................................................................................................................................................... 534

1. DEFENSES ............................................................................................................................................................................................................................... 534a. Improper Directives .............................................................................................................................................................................................. 534b. Medical Impairment ............................................................................................................................................................................................. 534

2. INTENT ELEMENT ................................................................................................................................................................................................................. 534U. LACK OF CANDOR.............................................................................................................................................................................................................................. 535V. MANDATORY PENALTIES ................................................................................................................................................................................................................ 535W. MISREPRESENTATION ....................................................................................................................................................................................................................... 535X. MISUSE OR MISAPPROPRIATION OF GOVERNMENT PROPERTY OR FUNDS ............................................................................................................. 536

1. ACCESSING GOVERNMENT INFORMATION OR OFFICIAL RECORDS .............................................................................................................. 5362. COMPUTERS AND EMAIL ACCOUNTS ......................................................................................................................................................................... 5363. COWORKER’S PROPERTY .................................................................................................................................................................................................. 5364. CREDENTIALS OR PUBLIC POSITION ........................................................................................................................................................................... 5375. EEO MATERIALS .................................................................................................................................................................................................................... 5376. GOVERNMENT CREDIT CARD ......................................................................................................................................................................................... 5377. GOVERNMENT PROPERTY FOR PERSONAL GAIN ................................................................................................................................................... 5378. TELEPHONE ............................................................................................................................................................................................................................ 5379. UNAUTHORIZED DESTRUCTION ................................................................................................................................................................................... 53710. VEHICLES ................................................................................................................................................................................................................................. 538

Y. NEPOTISM ............................................................................................................................................................................................................................................. 538Z. OFF DUTY MISCONDUCT ............................................................................................................................................................................................................... 538AA. OUTSIDE EMPLOYMENT .................................................................................................................................................................................................................. 538BB. PATIENT ABUSE ................................................................................................................................................................................................................................... 538CC. PATIENTS, IMPROPER CONDUCT TOWARDS ........................................................................................................................................................................... 539DD. PERFORMANCE-BASED ACTIONS ............................................................................................................................................................................................... 539EE. PHYSICAL INABILITY TO PERFORM ............................................................................................................................................................................................ 540FF. PROFANE; OFFENSIVE LANGUAGE ............................................................................................................................................................................................. 540GG. REFUSAL TO ACCEPT REASSIGNMENT ...................................................................................................................................................................................... 541HH. REPRISAL .............................................................................................................................................................................................................................................. 542II. SEXUAL MISCONDUCT; HARASSMENT .................................................................................................................................................................................... 542JJ. SPECIAL CATEGORIES OF EMPLOYEES ..................................................................................................................................................................................... 543

1. FIDUCIARIES; POSITIONS OF TRUST ........................................................................................................................................................................... 5432. IMMIGRATION OFFICERS ................................................................................................................................................................................................. 5433. LAW ENFORCEMENT .......................................................................................................................................................................................................... 5434. SUPERVISORS ....................................................................................................................................................................................................................... 544

KK. THEFT ...................................................................................................................................................................................................................................................... 5441. GOVERNMENT CREDIT CARD ......................................................................................................................................................................................... 544

LL. THREATS ................................................................................................................................................................................................................................................. 545MM. UNAUTHORIZED DISCLOSURE OF INFORMATION .............................................................................................................................................................. 546

TIMELINESS ..................................................................................................................................... 547A. ARBITRATION AWARD REVIEW ..................................................................................................................................................................................................... 547B. CALCULATING TIMELINESS ............................................................................................................................................................................................................ 547C. CONSTRUCTIVE ADVERSE ACTIONS .......................................................................................................................................................................................... 547D. CONTENTS OF APPEAL .................................................................................................................................................................................................................... 547E. DUE DILIGENCE................................................................................................................................................................................................................................... 547F. EQUITABLE TOLLING ......................................................................................................................................................................................................................... 548G. EXCUSES FOR LATE FILING ............................................................................................................................................................................................................. 549

MSPB CASE SUMMARIES xxxv

1. APPEALS LOST IN THE MAIL ............................................................................................................................................................................................ 5492. APPEALS TO OR FROM CONGRESSIONAL OFFICES ............................................................................................................................................... 5493. CHANGE IN CONTROLLING LAW ................................................................................................................................................................................... 5494. CHANGE OF ADDRESS ....................................................................................................................................................................................................... 5495. CONTINUING OR RECURRING VIOLATIONS .............................................................................................................................................................. 5506. E-FILERS; CHANGE OF EMAIL ADDRESS ..................................................................................................................................................................... 5507. ERRORS IN INITIAL DECISION ......................................................................................................................................................................................... 5518. FAILURE TO RECEIVE INITIAL DECISION ...................................................................................................................................................................... 5519. FAMILY ISSUES ...................................................................................................................................................................................................................... 55110. FEAR OF RETALIATION; HARASSMENT........................................................................................................................................................................ 55111. FINANCIAL HARDSHIP ....................................................................................................................................................................................................... 55112. HOLIDAYS ............................................................................................................................................................................................................................... 55213. IGNORANCE OF THE LAW ................................................................................................................................................................................................. 55214. INCARCERATION; CRIMINAL PROCEEDINGS ............................................................................................................................................................ 55215. INFORMAL ATTEMPTS TO RESOLVE ISSUE ................................................................................................................................................................ 55216. MEDICAL ISSUES .................................................................................................................................................................................................................. 552

a. Caring for Family Member .................................................................................................................................................................................. 552b. Continuing Disorders and Filing Deadline ................................................................................................................................................... 553c. Lacy Standard of Proof for Medical Incapacity ............................................................................................................................................ 553d. Mental Impairment ............................................................................................................................................................................................... 554e. Of Counsel ................................................................................................................................................................................................................ 555f. Other Proceedings................................................................................................................................................................................................. 555g. Supporting Evidence ............................................................................................................................................................................................ 555h. Vision .......................................................................................................................................................................................................................... 558

17. MILITARY SERVICE ............................................................................................................................................................................................................... 55818. MISCALCULATION ............................................................................................................................................................................................................... 55819. MISDIRECTED APPEALS .................................................................................................................................................................................................... 558

a. Courier Mistake ....................................................................................................................................................................................................... 558b. MSPB ........................................................................................................................................................................................................................... 558c. OPM ............................................................................................................................................................................................................................ 559

20. NATURAL DISASTER............................................................................................................................................................................................................ 55921. NEED TO OBTAIN DOCUMENTATION ........................................................................................................................................................................... 55922. NEXUS ...................................................................................................................................................................................................................................... 56023. NOTICE OF MSPB APPEAL RIGHTS ............................................................................................................................................................................... 560

a. Actual Receipt ......................................................................................................................................................................................................... 560b. Agency Misrepresentation ................................................................................................................................................................................. 560c. Agency Obligation to Provide Notice ............................................................................................................................................................. 560d. Appellant’s Obligations ....................................................................................................................................................................................... 561e. Belated Receipt of Adverse Action Decision or MSPB Initial Decision................................................................................................ 562f. Constructive Action Without Agency Notice ............................................................................................................................................... 562g. Constructive Receipt ............................................................................................................................................................................................ 562h. Defective Notice ..................................................................................................................................................................................................... 562i. Enforced Leave; Indefinite Suspensions ........................................................................................................................................................ 562j. Lack of Notice Concerning Restoration Rights and Reemployment Appeal Rights ...................................................................... 563k. Misinformation ....................................................................................................................................................................................................... 563l. Mixed Case Notice Problems ............................................................................................................................................................................. 563m. Proof Concerning Delivery of Notice of Appeal Rights ............................................................................................................................ 563n. Representatives, Notice to .................................................................................................................................................................................. 563

24. OTHER PROCEEDINGS ....................................................................................................................................................................................................... 56325. REPRESENTATION ................................................................................................................................................................................................................ 564

a. Inadequate Representation ............................................................................................................................................................................... 564i. Excused: Agency Failures ...................................................................................................................................................................... 564ii. Excused: Inconsequential Delays....................................................................................................................................................... 565iii. Excused: Obstruction or Misrepresentation by Counsel ........................................................................................................... 565iv. Not Excused ............................................................................................................................................................................................... 565

b. Lack of Representation ........................................................................................................................................................................................ 56726. TECHNICAL DIFFICULTIES ................................................................................................................................................................................................ 56727. UNCERTAINTY AS TO OUTCOME OF A RELATED CASE; PENDING SETTLEMENT NEGOTIATIONS ...................................................... 567

a. EEOC ........................................................................................................................................................................................................................... 567

xxxvi TABLE OF CONTENTS

b. Grievance .................................................................................................................................................................................................................. 567c. MSPB ........................................................................................................................................................................................................................... 567d. Use of Alternate Forum ........................................................................................................................................................................................ 567

28. UNFAMILIARITY WITH MSPB PROCEDURES.............................................................................................................................................................. 568a. E-Filing ....................................................................................................................................................................................................................... 569b. Inability to Obtain Counsel ................................................................................................................................................................................ 569c. Language Difficulties ............................................................................................................................................................................................ 569d. Miscalculation of Time for Appeal ................................................................................................................................................................... 569e. Misdirected Appeals ............................................................................................................................................................................................. 570f. Pro Se Appellants .................................................................................................................................................................................................... 570

29. WAITING ON TRANSCRIPT ................................................................................................................................................................................................ 571H. EXTENSION REQUESTS .................................................................................................................................................................................................................... 571I. GOOD CAUSE FOR DELAY............................................................................................................................................................................................................... 571J. JUDICIAL REVIEW ............................................................................................................................................................................................................................... 572K. METHOD OF FILING; CORRESPONDENCE ................................................................................................................................................................................ 572

1. ELECTRONIC FILINGS ......................................................................................................................................................................................................... 5722. FACSIMILE ............................................................................................................................................................................................................................... 5723. MAIL .......................................................................................................................................................................................................................................... 573

a. Presumption of Delivery; Receipt .................................................................................................................................................................... 573L. MIXED CASES; DISCRIMINATION COMPLAINTS .................................................................................................................................................................... 574M. MOTION FOR ATTORNEY FEES...................................................................................................................................................................................................... 576N. MOTION FOR DISQUALIFICATION ............................................................................................................................................................................................... 576O. MOTIONS ............................................................................................................................................................................................................................................... 576P. ON PFR; PFE .......................................................................................................................................................................................................................................... 576Q. PREMATURE FILINGS ........................................................................................................................................................................................................................ 576R. PRESUMPTION .................................................................................................................................................................................................................................... 577S. PROHIBITED PERSONNEL PRACTICES ....................................................................................................................................................................................... 577T. REMANDS TO DETERMINE TIMELINESS .................................................................................................................................................................................... 578U. REOPENING IN THE INTEREST OF JUSTICE .............................................................................................................................................................................. 578V. REQUESTS FOR RECONSIDERATION ........................................................................................................................................................................................... 578W. RESPONSIBILITIES OF THE JUDGE AND THE PARTIES IN APPEALS INVOLVING TIMELINESS ISSUES ............................................................... 578

1. DUTY OF AGENCY AND JUDGE TO PRODUCE AND DEVELOP EVIDENCE .................................................................................................... 5782. DUTY OF APPELLANT TO PRODUCE EVIDENCE CONCERNING TIMELINESS ............................................................................................... 579

a. Failure to Respond; Silence ................................................................................................................................................................................ 580b. Late Response to Show Cause Order .............................................................................................................................................................. 581c. New Evidence .......................................................................................................................................................................................................... 581d. Sworn Statements ................................................................................................................................................................................................. 582e. Unsworn Statements ............................................................................................................................................................................................ 582

3. MENTAL OR PHYSICAL ILLNESS; LACY NOTICE ........................................................................................................................................................ 583X. RETROACTIVITY OF RULES ............................................................................................................................................................................................................. 583Y. SETTLEMENT RELATED .................................................................................................................................................................................................................... 583Z. TIME FOR FILING THE APPEAL ...................................................................................................................................................................................................... 584

1. INDEFINITE SUSPENSIONS ............................................................................................................................................................................................... 5852. JURISDICTION OR TIMELINESS AS ALTERNATE BASES FOR DISMISSAL OF APPEAL ................................................................................ 5853. NEGATIVE OPM RECONSIDERATION DECISION APPEALS ................................................................................................................................... 5864. USERRA .................................................................................................................................................................................................................................... 5865. VEOA ......................................................................................................................................................................................................................................... 587

AA. TIMELINESS AS A DEFENSE ............................................................................................................................................................................................................ 587BB. WAIVER; ALONZO GOOD CAUSE STANDARD .......................................................................................................................................................................... 587

1. PREJUDICE TO RESPONDENT ......................................................................................................................................................................................... 588

USERRA ........................................................................................................................................... 589A. BOARD JURISDICTION ..................................................................................................................................................................................................................... 589

1. NONFRIVOLOUS JURISDICTIONAL ALLEGATIONS................................................................................................................................................. 589B. COVERED EMPLOYEE ........................................................................................................................................................................................................................ 590C. COVERED PERSONNEL ACTIONS ................................................................................................................................................................................................. 590

1. BENEFITS AWARDED TO OTHERS DURING PERIOD OF MILITARY SERVICE .................................................................................................. 5902. CHANGE IN CONDITIONS/STATUS/DUTIES ............................................................................................................................................................... 5903. CONSTRUCTIVE ADVERSE ACTIONS ............................................................................................................................................................................ 5914. EDUCATION BENEFITS ....................................................................................................................................................................................................... 591

MSPB CASE SUMMARIES xxxvii

5. FAILURE TO APPOINT; NONSELECTION; BURDEN OF PROOF ............................................................................................................................ 5916. FAILURE TO PROMOTE ....................................................................................................................................................................................................... 5917. FEDERAL CAREER INTERN PROGRAM ......................................................................................................................................................................... 5928. HARASSMENT; HOSTILE WORK ENVIRONMENT ..................................................................................................................................................... 5929. MILITARY LEAVE; BUTTERBAUGH ................................................................................................................................................................................... 59210. READY RESERVE STATUS ................................................................................................................................................................................................... 59511. REASSIGNMENTS; TRANSFER.......................................................................................................................................................................................... 59512. REMOVAL FROM EMPLOYMENT; DEMOTION ........................................................................................................................................................... 59513. REPRISAL ................................................................................................................................................................................................................................. 59614. RETIREMENT PLANS ........................................................................................................................................................................................................... 59615. SECURITY CLEARANCE ...................................................................................................................................................................................................... 59616. SUSPENSIONS ....................................................................................................................................................................................................................... 597

D. DISMISSAL OF APPEALS .................................................................................................................................................................................................................. 597E. EMPLOYMENT PRACTICE CHALLENGES ................................................................................................................................................................................... 597

1. PASSOVER DETERMINATIONS ........................................................................................................................................................................................ 597F. EXHAUSTION OF REMEDIES .......................................................................................................................................................................................................... 598G. GOVERNING REGULATIONS ........................................................................................................................................................................................................... 598

1. HEARINGS ............................................................................................................................................................................................................................... 598H. INTERVENING RIF ............................................................................................................................................................................................................................... 598I. NATIONAL GUARD ............................................................................................................................................................................................................................. 598J. POSTAL SERVICE ................................................................................................................................................................................................................................. 598K. PROCEDURES ....................................................................................................................................................................................................................................... 599L. RECOVERY PERIOD FOR A USERRA CLAIM .............................................................................................................................................................................. 599M. RIGHT TO APPEAL .............................................................................................................................................................................................................................. 600N. STANDING ............................................................................................................................................................................................................................................. 600O. TIME FOR USERRA APPEALS .......................................................................................................................................................................................................... 600P. USERRA STATUTORY STRUCTURE ............................................................................................................................................................................................... 601

1. BURDEN OF PROOF ............................................................................................................................................................................................................ 6012. COVERED PERSONNEL; AGENCIES ............................................................................................................................................................................... 6033. DISABILITY INCURRED WHILE IN MILITARY SERVICE ............................................................................................................................................ 6044. DISCRIMINATION BECAUSE OF MILITARY SERVICE ............................................................................................................................................... 6045. INTERVENING RIF ................................................................................................................................................................................................................. 6046. LIBERAL CONSTRUCTION OF PLEADINGS; JURISDICTIONAL ALLEGATIONS; AVOIDANCE OF SUMMARY DISPOSITION ........ 6047. RELATED EEO VIOLATIONS; PROHIBITED PERSONNEL PRACTICES ALLEGATIONS................................................................................... 6058. SCOPE OF USERRA .............................................................................................................................................................................................................. 605

Q. WAIVER OF USERRA RIGHTS .......................................................................................................................................................................................................... 605

VEOA ................................................................................................................................................ 607A. AGE LIMITS ON EMPLOYMENT ..................................................................................................................................................................................................... 607B. APPOINTMENT PROCESS ................................................................................................................................................................................................................ 607

1. ASSESSMENT OF QUALIFICATIONS .............................................................................................................................................................................. 6072. CATEGORY RATING SYSTEM ............................................................................................................................................................................................ 6073. COLLECTIVE BARGAINING AGREEMENT .................................................................................................................................................................... 6074. CONCURRENT ANNOUNCEMENTS ............................................................................................................................................................................... 6075. CONSIDERATION PROCESS .............................................................................................................................................................................................. 6076. EDUCATIONAL REQUIREMENTS .................................................................................................................................................................................... 6077. FOREIGN SERVICE ................................................................................................................................................................................................................ 6078. MERIT PROMOTION ............................................................................................................................................................................................................ 608

C. BENEFITS................................................................................................................................................................................................................................................ 608D. COLLECTIVE BARGAINING AGREEMENT .................................................................................................................................................................................. 608E. COVERED AGENCY............................................................................................................................................................................................................................. 608F. COVERED PERSONNEL ..................................................................................................................................................................................................................... 608G. DAMAGES .............................................................................................................................................................................................................................................. 608H. GOVERNING REGULATIONS ........................................................................................................................................................................................................... 609

1. HEARINGS ............................................................................................................................................................................................................................... 609I. HIGH THREE .......................................................................................................................................................................................................................................... 609J. LIBERAL PLEADING STANDARD ................................................................................................................................................................................................... 609K. MOOTNESS ........................................................................................................................................................................................................................................... 609L. NONPERMANENT POSITIONS ....................................................................................................................................................................................................... 610M. NOTICE TO LABOR DEPARTMENT OF INTENT TO APPEAL ................................................................................................................................................. 610

xxxviii TABLE OF CONTENTS

N. PERSONNEL ACTIONS CHALLENGED ........................................................................................................................................................................................ 6101. APPOINTMENT THROUGH REINSTATEMENT ............................................................................................................................................................ 6102. COMPETITIVE APPOINTMENTS ...................................................................................................................................................................................... 6103. EXCEPTED SERVICE ............................................................................................................................................................................................................. 6104. FAILURE TO PROVIDE VETERANS PREFERENCE ....................................................................................................................................................... 6115. IMPROPER ASSESSMENT OF QUALIFICATIONS STANDARDS ............................................................................................................................ 6116. MANIPULATION OF APPOINTMENTS; PASSOVER PROCESS; MEDICAL SUITABILITY DETERMINATIONS ........................................ 6117. MERIT SELECTION; REASSIGNMENT; PROMOTIONS ............................................................................................................................................. 6128. NONSELECTION ................................................................................................................................................................................................................... 6149. PATHWAYS; FEDERAL CAREER INTERNSHIP PROGRAM ....................................................................................................................................... 61510. RELATED EEO VIOLATIONS .............................................................................................................................................................................................. 61511. VACANCY CANCELATION ................................................................................................................................................................................................. 61512. VETERANS RECRUITMENT APPOINTMENTS (PREVIOUSLY VETERANS READJUSTMENT AUTHORITY APPOINTMENTS) .......... 615

O. PROCEDURE ......................................................................................................................................................................................................................................... 616P. QUALIFICATIONS FOR POSITION ................................................................................................................................................................................................. 616Q. RETROACTIVITY .................................................................................................................................................................................................................................. 616R. TIME IN GRADE.................................................................................................................................................................................................................................... 616S. VEOA STATUTORY STRUCTURE .................................................................................................................................................................................................... 616

1. BOARD STANDARD OF REVIEW ..................................................................................................................................................................................... 6162. EXCLUSIONS .......................................................................................................................................................................................................................... 6173. EXCLUSIVITY OF VEOA REMEDY .................................................................................................................................................................................... 6174. EXHAUSTION OF REMEDIES; TIMELINESS; EQUITABLE TOLLING ..................................................................................................................... 6175. JURISDICTIONAL ALLEGATIONS ................................................................................................................................................................................... 6196. PROTECTION OF INDIVIDUALS WITH VETERANS’ PREFERENCE STATUS; POSTAL SERVICE; FOREIGN SERVICE ........................... 6207. REMEDIAL STRUCTURE; RECONSTRUCTION OF SELECTION ACTIONS; DAMAGES.................................................................................. 620

T. VETERANS BENEFITS IMPROVEMENT ACT ............................................................................................................................................................................... 623

TABLE OF CASES.............................................................................................................................. 625INDEX ............................................................................................................................................... 667

REFERENCE MATERIALS(DOWNLOAD AT WWW.DEWEYPUB.COM/REFMSCS)

REFERENCE MATERIALS 1: 5 CFR 1200 — BOARD ORGANIZATION ................................... REF-1

REFERENCE MATERIALS 2: 5 CFR 1201 — PRACTICES AND PROCEDURES ........................ REF-3

REFERENCE MATERIALS 3: 5 CFR 1202 — STATUTORY REVIEW BOARD .......................... REF-45

REFERENCE MATERIALS 4: 5 CFR 1203 — PROCEDURES FOR REVIEW OF RULES AND REGULATIONS OF THE OFFICE OF PERSONNEL MANAGEMENT ........................................................................ REF-47

REFERENCE MATERIALS 5: 5 CFR 1204 — AVAILABILITY OF OFFICIAL INFORMATION .. REF-51

REFERENCE MATERIALS 6: 5 CFR 1205 — PRIVACY ACT REGULATIONS ......................... REF-57

REFERENCE MATERIALS 7: 5 CFR 1206 — OPEN MEETINGS ............................................. REF-61

REFERENCE MATERIALS 8: 5 CFR 1207 — ENFORCEMENT OF NONDISCRIMINATION ON THE BASIS OF DISABILITY IN PROGRAMS OR ACTIVITIES CONDUCTED BY THE MSPB .......................... REF-65

REFERENCE MATERIALS 9: 5 CFR 1208 — PRACTICES AND PROCEDURES FOR APPEALS UNDER THE USERRA AND VEOA .................... REF-71

MSPB CASE SUMMARIES xxxix

REFERENCE MATERIALS 10: 5 CFR 1209 — PRACTICES AND PROCEDURES FOR APPEALS AND STAY REQUESTS OF PERSONNEL ACTIONS ALLEGEDLY BASED ON WHISTLEBLOWING ......................... REF-75

REFERENCE MATERIALS 11: 5 CFR 1210 — PRACTICES AND PROCEDURES FOR AN APPEAL OF A REMOVAL OR TRANSFER OF A SENIOR EXECUTIVE SERVICE EMPLOYEE BY THE SECRETARY OF THE DEPARTMENT OF VETERANS AFFAIRS .................... REF-81

REFERENCE MATERIALS 12: 5 CFR 1215 — DEBT MANAGEMENT ...................................... REF-87

REFERENCE MATERIALS 13: 5 CFR 1216 — TESTIMONY BY MSPB EMPLOYEES RELATING TO OFFICIAL INFORMATION AND PRODUCTION OF OFFICIAL RECORDS IN LEGAL PROCEEDINGS ................ REF-93

REFERENCE MATERIALS 14: LAWS RELATING TO THE MERIT SYSTEMS PROTECTION BOARD ...................................................................................... REF-97

REFERENCE MATERIALS 15: WHISTLEBLOWER PROTECTION ENHANCEMENT ACT OF 2012 ................................................................................... REF-135

REFERENCE MATERIALS 16: PRESIDENTIAL POLICY DIRECTIVE – PPD-19 ...................... REF-147

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summary table of contents · xviii table of contents 1. collective bargaining agreement; grievance...

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