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**OFFICE              OF COMPLIANCE**LA 200, John Adams Building, 110 Second Street, S.E.              Washington, D.C. 20540-1999
__________________________WILLIAM H. GAGE,     Appellant (Employee),             v.                                       Case No. 00-AC-21(CV)OFFICE OF THE ARCHITECT OF  THE CAPITOL,     Appellee (Employing Office).___________________________
Before the Board of Directors: Susan S. Robfogel,              Chair; Barbara L. Camens, Alan V. Friedman; Roberta L. Holzwarth;              Barbara Childs Wallace, Members.

**DECISION OF THE BOARD              OF DIRECTORS**

 William H. Gage, an African American, ("appellant"),              appeals only from that portion of the Hearing Officer's Decision              and Order, dated April 25, 2001, concluding that the Office of the              Architect of the Capitol ("appellee") did not racially discriminate              against him with respect to his application for the position of              Assistant Superintendent of the Capitol Building, GS-1601-13/14,              ("Capitol Position"). (1) For the              reasons set forth below, the Board affirms the Hearing Officer's              Decision.            
**I.**

The appellant entered the appellee's employ in              June 1997. In February 1998, he was promoted to the position of              Supervisory Service Compliance Specialist (GS-1601-12) in the House              Office Buildings, a position he still occupies. [H. O. Decision,              Finding No. 2]. (2) During the latter              part of 1999, the appellant applied for four promotional opportunitiesthrough              the appellee's Human Resources Management Division. The Division's              Acting Chief, Ms. Medlin (Caucasian), determined that the appellant              was not minimally qualified (3)for              one position at the Supreme Court and the two positions in the House              office buildings. The selectees for those positions were one African              American and two Caucasian individuals. [H.O. Decision, Finding              No. 8]. Those selections are not in issue in this appeal. *See,              footnote 2, supra.*

Appellant's application for the Assistant Superintendent              of the Capitol Building vacancy ("Capitol Position"), which is the              subject of this appeal, was processed entirely by Ms. Scriber, an              African American and a subordinate of Ms. Medlin. In reviewing the              appellant's application package, Ms. Scriber concluded that neither              the appellant's prior military experience nor his experience with              the appellee satisfied the required one-year specialized GS-12 level              experience for the Capitol Position. In seeking to favor the appellant              (Ms. Scriber and the appellant formerly were residential neighbors),              Ms. Scriber sought the judgment of her colleague, Mr. Cortez. However,              Mr. Cortez also believed that the appellant was not minimally qualified.              Before finding the appellant not minimally qualified Ms. Scriber              did not discuss the matter with her supervisor, Ms. Medlin. Ms.              Scriber did find as minimally qualified Mr. Donald Keith White (Caucasian),              who was ultimately selected for the Capitol Position. [H.O. Decision,              Findings 10-15]. (4)

Subsequent to learning that the appellee had              rated him as not minimally qualified for the aforementioned four              vacancies, appellant had several conversations with Ms. Medlin,              and a meeting with Ms. Medlin and her supervisor, Mr. Suarez (Hispanic).Unpersuaded              by their explanations, the appellant sought the assistance of his              Congressman, who wrote to the appellee. The appellee responded with              a letter drafted by Ms. Medlin, explaining why the appellant's application              did not support a rating of minimally qualified. [H.O. Decision,              Findings 18-19].

 Ms. Medlin acknowledged at the hearing that              Ms. Scriber's qualification review sheet evaluating the appellant's              application was "not well completed" and contained "a lot of inconsistencies              and irregularities". (5) The Hearing              Officer found that Ms. Scriber lacked adequate training to perform              her job properlyand he provided examples: (1)she did not know how              to evaluate theappellant's military experience; and (2) she was              unfamiliar with the "Add-on" qualifications rule that would have              allowed the appellant's experience with the appellee to satisfy              the subject position's one-year specialized experience requirement.              [H.O. Decision, Finding Nos. 11-13 &22].

The appellant presented the hearing testimony              of Ms. Greene, a GS-14 Management and Program Analyst at the Federal              Aviation Authority, whom the appellee employed during the mid-1990's              in its merit promotion function. The Hearing Officer credited her              conclusions that based upon her evaluation of appellant's military              experience and the proper application of the *Add-on*Rule,              that the appellant was minimally qualified for the Capitol Position.              The Hearing Officer further found, upon Ms. Greene's testimony,              that the selectee, Mr. White, "was given an unfair improper advantage              in the competition for the Capitol position". Ms. Greene opined              that Mr. White's documented experience was not qualifying and he              had been advantaged "[t]hrough unofficial, non-competitive placement,              contrary to the [Architect's] merit selection policy".              (6) Ms. Medlin's hearing testimony acknowledged that Mr.              White had gained an unfair advantage over other applicants because              those "Acting" assignments were undocumented; however, she did not              believe that those irregularities should prejudice Mr. White regarding              his promotion to the Capitol Position. [H.O.Decision, Finding Nos.              20-25].

**II.**

Relying upon McDonnell Douglas Corp. v. Green,              411 U.S. 792 (1973), the Hearing Officer concluded that the appellant              met his burden of establishing a *prima facie* showing of              discrimination by proving: (1) he is a member of a protected group              (African American); (2) he applied for and was qualified for a job              that the employer was seeking to fill; and (3) that the appellee              rejected his application and awarded the job to a less qualified              candidate who is not a member of the appellant's protected class.              [H.O. Decision, pp. 14-16]. The Hearing Officer then applied the              second prong of McDonnell Douglas Corp. v.Green,, which requires              an employer to articulate a legitimate non-discriminatory explanation              for its action. The appellee submitted that Ms. Scriber, who found              that the appellant was not minimally qualified and that Mr. White              was so qualified, "genuinely and honestly believed that those were              true and correct qualification determinations". The Hearing Officer              accepted this "genuinely held belief" defense citing Willis v. Marion              County Auditor's Office, 118 F.3d 542, 548 (7th Cir.              1997). The Hearing Officer found that Ms. Scriber was mistaken in              her qualification determinations, "probably due to inadequate training              and the press of an excessive workload [but] she genuinely believed              them". He also found that her qualifying of Mr. White was nothing              "other than an honest, albeit erroneous call, particularly since              his application essentially showed that, for the preceding 22 months,              he had held, on an 'acting' basis, the very job sought to be filled              and the one immediately above it". [H.O. Decision, pp. 16-17].

 The Hearing Officer, while accepting the appellee's              explanation, concluded, *arguendo*, that even if he rejected              the appellee's explanation as pretextual, he still would not infer              discrimination based upon this record. In this regard, the Hearing              Officer noted that the record lacked even a hint of racialanimus              or discrimination, that an African American found the appellant              not to be minimally qualified, and that the one non-minority, Ms.              Medlin, "played no crucial role with respect to qualifying applicants              for the Capitol position". The Hearing Officer criticized the performance              of appellee's human resources operation but noted that Title VII              of the Civil Rights Act of 1964, while prohibiting discrimination,              "does not guarantee that all of an employer's personnel decisions              will be correct or even fair". [H.O. Decision, pp.17-20]. 

**III.**

 The appellant argues on appeal that the Hearing              Officer should have found discrimination essentially because: (1)              Ms. Medlin had a legal duty and obligation to audit the work of              an incompetent subordinate, Ms. Scriber, who mis-evaluated the appellant              as not qualified for the Capitol Position;              (7) (2) Ms. Medlin improperly ratified Ms. Scriber's determination;              (8) (3) the successful candidate, Mr. White, committed              serious impropriety by including false qualifying information on              his application; (9) (4) Ms. Scriber's              good faith belief is irrelevant because Ms. Medlin was really the              decision maker; (10) (5) the Hearing              Officer considered defenses of inadequate training and workload              that the appellee never offered; (11)              and (6) the Hearing Officer, throughout his conclusions of law,              has shown "an obvious bias in favor of the [appellee]. He has made              conclusions that are supported with half-truths and outright false              acts." (12)

 The appellee characterizes appellant's appeal              as containing "an abundance of sweeping charges". The appellee counters              that evidence of discrimination of any kind is "glaringly absent"              from the record.

**IV.**

 Under section 406(c) of the Congressional Accountability              Act ("CAA"), "[t]he Board shall set aside a decision of a hearing              officer if the Board determines that the decision was -

 (1) arbitrary, capricious, an abuse of discretion,              or otherwise not consistent with law;

 (2) not made consistent with required procedures;              or

 (3) unsupported by substantial evidence."

 [2 U.S.C. §1406(c)]

"In making determinations under subsection              (c), the Board shall review the whole record, or those parts of              it cited by a party, and due account shall be taken of the rule              of prejudicial error." [2 U.S.C. §1406(d)].

 This appeal raises the ultimate question of              whether the appellee's explanation for finding the appellant not              qualified for promotion constitutes a pretext, ruse or subterfuge              to mask unlawful racial discrimination. 

 The ultimate burden of persuading the trier              of fact that the defendant intentionally discriminated against the              plaintiff remains at all times on the plaintiff. See McDonnell Douglas              Corp. v. Green, *supra,*and Texas Department of Community              Affairs v. Burdine, 450 U.S. 248 (1981). Once a defendant articulates              some legitimate non-discriminatory reason for its challenged action,              the burden shifts back to the plaintiff, who must demonstrate that              the defendant's explanation is but a pretext for discrimination..              See St. Mary's Honor Society v. Hicks, 509 U.S. 502 (1993) and Reeves              v. Sanderson Plumbing Products, Inc., 530 U.S. 133 (2000); Swanks              v. Washington Metro. Area Transit Auth., 179 F.3d 929 (D.C. Cir.              1999); Ruiz, et al. v. A.B. Chance Co., 234 F.3d 654, 671-2 (Fed.              Cir. 2000). Accordingly, the plaintiff must allege more than a dispute              over the facts upon which the challenged action was based. The plaintiff              must put forth evidence which demonstrates that the employer did              not "honestly believe" in the proffered non-discriminatory reason              for its adverse employment action. See Braithwaite v. Timken, 258              F.3d 488, 494 (6th Cir. 2001); Carpenter v. Federal National              Mortgage Association, 174 F.3d 231, 237 (D.C. Cir. 1999); Fischbach              v. District of Columbia Dept. of Corrections, 86 F.3d 1180, 1183              (D.C. Cir. 1996).

 The testimony of appellant's witness, Ms. Greene,              while establishing the appellee's errors in evaluating the appellant's              qualifications and those of the selectee, Mr. White, shed no light              on why the appellee so erred. The Hearing Officer, based upon the              hearing testimony of appellee's responsible employee, Ms. Scriber,              and the workload hardships her office was then operating under,              concluded that Ms. Scriber "genuinely believed" in her qualification              determinations. He further found that Ms. Scriber had made "an honest,              albeit erroneous call ". The Hearing Officer declined to infer discrimination,              noting "[T]here is not a hint of racial discrimination in this record".              [H.O. Decision, pp. 16-20]. 

 The Hearing Officer's rationale is supported              by the case law. 

 If in truth an agency's or an employer's verified,              detailed and documented inefficiency, absent any discriminatory              animus, accounts for results that nonetheless appear at first glance              to be the product of discrimination, it would be the height of unfairness              to infer fallaciously such a discriminatory animus. We do not mean              to condone inefficiency; we simply cannot punish it under Title              VII. With solace, we note: the phrase "to raise a shield of inefficiency,"              no matter how well factored and documented, does not translate automatically              as "to fend off a claim of discrimination;" a claimant may show              pretext. Hazel Hill v. Mississippi State Employment Service, et              al., 918 F.2d 1233, at 1239-1240 (5th Cir. 1990).

 In Fischbach v. D.C. Department of Corrections,              86 F.3d 1180 (D.C. Cir. 1996), the Court of Appeals stated:

 At this point, the district court seems to have              lost its compass. Even if a court suspects that a job applicant              "was victimized by poor selection procedures" it may not "second-guess              an employer's personnel decision absent demonstrably discriminatory              motive." Milton v. Weinberger, 696 F.2d 94 (D.C. Cir. 1982). Once              the employer has articulated a non-discriminatory explanation for              its action, as did the District here, the issue is not "the correctness              or desirability of [the] reasons offered ...[but] whether the employer              honestly believes in the reasons it offers." McCoy v. WGN Continental              Broadcasting Co., 957 F.2d 368, 373 (7th Cir. 1992).              See also Pignato v. American Trans. Air. Inc., 14 F.3d 342, 349              (7th Cir.1994) ("It is not enough for the plaintiff to              show that a reason given for a job action is not just, or fair,              or sensible. He must show that the explanation given is a phony              reason").

 Evidence indicating that an employer misjudged              an employee's performance or qualifications is, of course, relevant              to the question whether its stated reason is a pretext masking prohibited              discrimination, see Parker v. HUD, 891 F.2d 316, 322 (D.C. Cir.              1989); if the employer made an error too obvious to be unintentional,              perhaps it had an unlawful motive for doing so . . . . 

 See also Carpenter v. Federal National Mortgage              Association, 174 F.3d 231, 236 (D.C. Cir. 1999).

"Substantial evidence is more than a mere              scintilla. It means such relevant evidence as a reasonable mind              might accept as adequate to support a conclusion." Universal Camera              Corp. v. National Labor Relations Board, 340 U.S. 474, 477 (1951).              The Hearing Officer, based upon substantial record evidence,              (13) found that the appellee rendered honestly held, albeit              erroneous, qualification assessments of the appellee and the successful              applicant, Mr. White, for the Capitol Position vacancy. The Hearing              Officer reached this result through his careful balancing and weighing              of the evidence, credibility assessments, and application of the              applicable legal principles. The Hearing Officer emphasized that              the appellee's staffing specialists, such as Ms. Scriber, were not              properly trained specifically in making the determinations that              harmed the appellant and unduly advantaged the successful candidate              (e.g., evaluating military experience and temporary duty detail              assignments; and application of the "Add-on Rule"). [H.O. Decision,              p. 19]. 

 While another fact finder conceivably might              have drawn contrary inferences when reviewing this record *de              novo*, that certainly is not the Board's role under the substantial              evidence standard. In any event, racial discrimination Title VII              liability cannot rest solely upon a judge's determination that an              employer misjudged the relative qualifications of admittedly qualified              candidates. See Fischbach v. D.C. Dep't of Corr., *id.,*86              F.3d at 1183. A judge's role is to find and remedy unlawful discriminatory              hiring practices and not to act as a "super personnel department"              that second guesses employer's business judgments. See Simms v.              Oklahoma ex rel. Dep't of Mental Health & Substance Abuse Servs.,              165 F.3d 1321, 1330 (10th Cir.1999), cert. denied, 528              U.S. 815 (1999).

 We do not believe that the record contains evidence              warranting a finding that the appellee's articulated legitimate              non-discriminatory explanation for not promoting the appellant was              a "phony"one. See Fischbach v. D.C. Dep't of Corr., *id.,*86              F.3d at 1183. Such evidence may include, but is not limited to,              the following: prior treatment of the plaintiff; the employer's              policy and practices regarding minority employment (including statistical              data); disturbing procedural irregularities (e.g., falsifying or              manipulating hiring criteria); and the use of subjective criteria.              See Simms v. Oklahoma ex rel.Dep't of Mental Health & Substance              Abuse Servs, 165 F.3d 1321, at 1328.

 The appellant entered the appellee's employ              in June 1997 and he received his first promotion in February 1998.              His four unsuccessful promotion applications, including that raised              in this appeal, occurred in the latter part of calendar 1999. [H.O.              Decision, pp. 1-2]. Accordingly, the appellee's prior treatment              of the appellant does not support a finding of pretext. Moreover,              the record is devoid of evidence identifying any incriminating appellee              policy or practice regarding minority employment, disturbing procedural              irregularities (14), or the use              of subjective criteria. (15)

 The Board particularly notes that the record              contains no evidence disclosing how the appellee, in respect to              the other applicants for the Capitol Position, credited their prior              military experience and applied the "Add-on Rule". Such evidence              might have disclosed whether the appellee acted consistently on              a non-racial basis in making those determinations or if the appellee              applied them in a racially disparate manner. Moreover, no comparative              evidence was presented disclosing whether improperly credited undocumented              detail experience, such as that accorded to the successful applicant,              was denied to similarly situated African American applicants. Such              evidence, if presented, might have been highly probative. However,              it was the appellant's burden to produce such evidence under the              McDonnell Douglas paradigm. .See St. Mary's Honor Society v. Hicks,              509 U.S. 502 (1993) ; Reeves v. Sanderson Plumbing Products, Inc.,              530 U.S. 133 (2000); Swanks v. Washington Metro. Area Transit Auth.,              179 F.3d 929 (D.C. Cir. 1999); Ruiz, et al. v. A.B. Chance Co.,              234 F.3d 654, 671-2 (Fed. Cir. 2000). (16)

**V.**

The Board, for the reasons set forth above, affirms              the Hearing Officer's decision.

*It is so ordered.*

Issued, Washington, D.C. November 14, 2001

1 The Hearing Officer              also concluded that the record contained no evidence to establish              that the appellee contemporaneously filled three other contested              vacancies with persons less qualified than the appellant. [H.O.              Decision, Finding No. 8]. The appellant asserts that only the Capitol              Position is the subject of his appeal. [appellant's brief, page              2].            
2 The Hearing Officer's              factual findings shall be referenced as numbered in his decision.              His conclusions of law will be referenced to decision page numbers.            
3 2A finding of              *minimally qualified* allows an applicant further promotion              consideration. [H.O. Decision, No. 9].            
4 Twenty-five persons              applied for the Capitol Position vacancy. Ms. Scriber rated 17 applicants              as qualified and 8 applicants as non-qualified. Mr. White was selected              from the qualified group. The record does not disclose the racial              composition of the applicant pool. [Hearing Exhibit No. 1].            
5 Ms. Medlin testified,              without contradiction, that she did not directly or indirectly review              Ms. Scriber's work on the subject merit promotion action before              it was certified to the selecting official. [Transcript ("Tr"),              p. 64].            
6 Mr. White's merit              promotion application referred to his experience and accomplishments              as "Acting Assistant Superintendent" and "Acting Deputy Superintendent"              of the Capitol Building. [Complainant's Exhibit no. 12].            
7 Appellant presented              no case law in support of his contention that such alleged *negligent              supervision* may evidence racial discrimination.            
8 This contention              apparently refers to Ms. Medlin's participation at a meeting with              the appellant and the appellee's human resources director after              the filling of the Capitol Position.            
9 The appellant              does not contend, nor does the record disclose, that Ms. Scriber              knew or suspected that Mr. White had mis-characterized his qualifications              at the that time that she evaluated his application.            
10 The record contains              no evidence disclosing that Ms. Medlin had any role regarding the              evaluation of the appellant's qualifications for the Capitol Position              until after the position had been filled. See footnote 8, supra              and Hearing Transcript p. 64.            
11 Ms. Medlin testified              that her office was in a workload crisis when it considered the              appellant's Capitol Position application due to its skeleton staff              of 3 and its need to fill vacancies consequent to appellee's 72              employees who elected early retirement or buyouts in October 1999.              [Hearing Transcript, pp. 84-86].            
12 Appellant supports              this allegation only by his disagreement with certain of the Hearing              Officer's findings.            
13 The hearing              testimony of Staffing Specialists Scriber & Cortez and their              supervisor, Ms. Medlin.            
14 The Hearing              Officer found that the Staffing Branch, on a non-discriminatory              across- the board- basis, failed to provide the appellant and all              other applicants with written notice concerning the outcome of the              vacancy announcements, as required by the appellee's policy. [H.O.              Decision, pp. 3-4].            
15 Staffing Specialist              Scriber applied the published U.S. Office of Personnel Management's              X-118 standards in assessing the qualifications of the appellant              and the other applicants for the Capitol Building position. [H.O.              Decision, Finding No. 9]. Ms. Scriber's misapplied those standards              in not crediting the appellant's prior military experience and by              not affording him the benefit of the "Add-on" experience-qualifying              rule. While such errors may be construed as constituting *subjective*criteria, there is no evidence that her misinterpretations              were disparately applied to applicants on the basis of race or upon              any other proscribed basis.            
16 The Hearing              Officer, while concluding that the appellee did not racially discriminate              against the appellant, opined that "[W]hat [the appellee] did in              [the appellant's] case was not right". [H.O. Decision, p. 20]. There              is no indication that the appellant exercised his rights under any              applicable grievance procedure to pursue his claims alleging violation              of appellee's merit promotion system.

 

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