NOTE: This disposition is nonprecedential.

United States Court of Appeals 

for the Federal Circuit ______________________

SHERRY MOORE,

Petitioner

v.

DEPARTMENT OF HOMELAND SECURITY,

Respondent

______________________

2018-1985

______________________

Petition for review of an arbitrator's decision by John 

M. Donoghue.

______________________

Decided: July 9, 2019

______________________

SHERRY MOORE, Stratford, NJ, pro se. 

 DOUGLAS GLENN EDELSCHICK, Commercial Litigation 

Branch, Civil Division, United States Department of Justice, Washington, DC, for respondent. Also represented by 

JOSEPH H. HUNT, ROBERT EDWARD KIRSCHMAN, JR.,

FRANKLIN E. WHITE, JR.; PATRICK DYSON, Office of the 

Chief Counsel, Immigration and Customs Enforcement, 

United States Department of Homeland Security, Los Angeles, CA. 

 ______________________
2 MOORE v. DHS

Before LOURIE, O’MALLEY, and WALLACH, Circuit Judges.

PER CURIAM.

Petitioner Sherry Moore appeals an arbitration decision, which upheld the Department of Homeland Security’s 

(“DHS”) removal of Ms. Moore from her position as a Deportation Officer with U.S. Immigration and Customs Enforcement (“ICE”). Resp’t’s Appx. 9; see Resp’t’s Appx. 2–

10 (Arbitrator Decision).1 We have jurisdiction pursuant 

to 5 U.S.C. §§ 7121(f) and 7703(b)(1). We affirm. 

BACKGROUND

From 1997 through 2016, Ms. Moore held various law 

enforcement positions at DHS. Resp’t’s Appx. 13. In 2007 

and 2008, Ms. Moore was serving as an Immigration Enforcement Agent (“IEA”) when DHS initiated two fact-finding inquiries into whether she had failed to follow agency 

travel procedures on nine separate occasions, see Resp’t’s 

Appx. 61–66 (Inquiry Results on Travel Procedures), and 

whether she had failed to pay her Government-issued 

credit card, see Resp’t’s Appx. 32–34 (Inquiry Results on 

Credit Card). Following the two inquiries, DHS determined that Ms. Moore failed to follow agency travel procedures, see Resp’t’s Appx. 62–66, and failed to pay her 

Government-issued credit card, see Resp’t’s Appx. 32–34. 

In 2009, DHS commenced a third fact-finding inquiry to 

determine whether Ms. Moore complied with agency procedures when she provided her firearm to someone who was 

not employed by the agency, see Resp’t’s Appx. 144–47 (Inquiry Results on Firearm). 

 

1 Resp’t’s Appx. refers to the Department of Homeland Security’s Supplemental Appendix attached to its response brief. 
MOORE v. DHS 3

During the three investigations, DHS documented 

what they described as a “lack of candor” on two separate 

occasions. First, in June 2008, DHS asked Ms. Moore under oath “[w]hy is it that you failed to follow policy and procedure relative to authorizations and vouchers incident to 

official travel.” Resp’t’s Appx. 91. Ms. Moore responded 

that “management . . . here had never shown [her] that it 

was ever important,” and “[t]hey never said a word about 

it until [she] was served [with] the [performance work 

plan].” Resp’t’s Appx. 91. Second, in February 2008, Ms. 

Moore told her supervisor that she paid her Governmentissued credit card, see Resp’t’s Appx. 54, when the credit 

card balance remained unpaid through March 12, 2008, see

Resp’t’s Appx. 41 (Credit Card Balance). From June 13, 

2008 through August 18, 2014, Ms. Moore was out of the 

office due to a work-related injury. Resp’t’s Appx. 2. Upon 

her return to work, Ms. Moore served as a Deportation Officer. In October 2015, DHS notified Ms. Moore of her proposed removal explaining that the “lack of candor” issue 

was “extremely serious.” Resp’t’s Appx. 27. 

In April 2016, DHS removed Ms. Moore from her position as a Deportation Officer. Resp’t’s Appx. 11–18. DHS 

notified Ms. Moore that she “ha[d] the right to contest [the 

Agency Removal Decision]” with either the Merit Systems 

Protection Board (“MSPB”) or an arbitrator, Resp’t’s Appx. 

14–15, which Ms. Moore did. In December 2017, an arbitrator heard testimony from six witnesses and reviewed 

documents admitted into evidence of the alleged misconduct. Resp’t’s Appx. 1 (Certified List of Exhibits), 215–415 

(Hearing Transcript). In March 2018, after the Hearing 

on the matter, the Arbitrator issued its arbitrator decision

denying Ms. Moore’s grievance and sustaining her removal 

from DHS. Resp’t’s Appx. 2–10. In the Arbitrator Decision, 

the Arbitrator explained, inter alia, that “the essence of a 

law enforcement officer’s duty is veracity” and “[t]he 

Agency’s loss of faith in Ms. Moore’s ability to perform the 

essential elements of her job is not misplaced” because Ms. 
4 MOORE v. DHS

Moore “was untruthful when she [said] . . . that she had 

never been told that it was important that she follow travel 

procedures” and when she said “she had paid her government issued credit card.” Resp’t’s Appx. 8–9. In July 2018, 

Ms. Moore appealed the Arbitrator Decision. 

DISCUSSION

We apply the same substantive standards of review to 

arbitration decisions as to the MSPB decisions. 5 U.S.C. 

§ 7121(f); see Appleberry v. Dep’t of Homeland Sec., 793 

F.3d 1291, 1295 (Fed. Cir. 2015). We must affirm the arbitrator’s decision unless it is: “(1) arbitrary, capricious, an 

abuse of discretion, or otherwise not in accordance with 

law; (2) obtained without procedures required by law, rule, 

or regulation having been followed; or (3) unsupported by 

substantial evidence.” 5 U.S.C. § 7703(c). 

On appeal, Ms. Moore primarily asserts that her termination for “lack of candor” was improper. Pet’r’s Br. 19. 

Specifically, Ms. Moore asserts that the Arbitrator’s decision to uphold DHS’s “termination [decision] is due to the 

Lack of Candor claim” because her removal “could not be 

upheld on the basis of the travel voucher, credit card, and 

firearms issues.” Pet’r’s Br. 26.2 We disagree. 

 

2 Ms. Moore argues she was removed for three minor offenses that she had “accepted responsibility” for, 

Pet’r’s Br. 7–19, 27, and “[were] fully resolved in 2008,” id.

at 15. 

Preliminarily, Ms. Moore asserts that DHS violated the 

law by sustaining lack of candor charges not previously referred to DHS’s Joint Intake Center (“JIC”) for inquiry. 

Pet’r’s Br. 19. Nothing requires an agency to refer misconduct allegations to the JIC prior to initiating an adverse 

action pursuant to disciplinary actions. Resp’t’s 

Appx. 420–23 (explaining, in the Collective Bargaining 

Agreement, the procedures for disciplinary and adverse 
MOORE v. DHS 5

The Arbitrator properly considered the Douglas factors 

when evaluating Ms. Moore’s case. Ms. Moore asserts that 

“the Douglas factors were not properly assessed and removal of a seasoned federal employee . . . did not promote 

the efficiency of the service.” Pet’r’s Br. 25 (capitalization 

modified); see Douglas v. Veterans Admin., 5 M.S.P.R. 280, 

305–06 (1981) (articulating the Douglas factors that are 

used by agencies “when deciding what penalty is appropriate, including not only the gravity of the offense but such 

other matters as mitigating circumstances”);3 Resp’t’s 

Appx. 19–24 (Douglas factors review form). Ms. Moore also 

asserts that DHS’s “last[-]chance settlement agreement,” 

providing for a ten-day suspension, was “illegal and 

amounted to extortion.” Pet’r’s Br. 23 (capitalization modified). As we have explained, “[d]isparate treatment is not 

shown by comparing a penalty imposed by an agency with 

one emanating from a settlement agreement.” Dick v. U.S. 

Postal Serv., 975 F.2d 869 (Fed. Cir. 1992) (Table). Thus, 

 

actions for American Federation of Government Employees, AFL-CIO). Nevertheless, the JIC-referred inquiries 

into Ms. Moore’s conduct documented her false statements 

in February and June 2008, which DHS used to bring lack 

of candor charges. Resp’t’s Appx. 32–34, 61–66, 140–41 

(Inquiry Results Regarding Government Issued Credit 

Card). See O’Hara v. Dep’t of Homeland Sec., 612 F. App’x 

593, 595–96 (Fed. Cir. 2015) (sustaining removal for lack 

of candor where mitigating factors exist). 

3 In Douglas, the MSPB recognized twelve non-exhaustive “factors that are relevant for [agency] consideration in determining the appropriateness of a penalty.” 5 

M.S.P.R. at 305–06. The MSPB recognized that “[n]ot all 

of these factors will be pertinent in every case.” Id. at 306; 

see Kumferman v. Dep’t of Navy, 785 F.2d 286, 291 (Fed. 

Cir. 1986) (“It is not reversible error if the [MSPB or arbitrator] fails expressly to discuss all of the Douglas factors.” 

(citation omitted)). 
6 MOORE v. DHS

the Board did not act arbitrarily or capriciously in refusing 

to use last-chance settlement agreements as comparators. 

Additionally, the Arbitrator’s affirmance of DHS’s removal of Ms. Moore was not arbitrary or capricious. Although removal is a severe penalty, it is within the 

Arbitrator’s discretion so long as the decision “reflects a 

reasoned concern for the factors appropriate to evaluating 

a penalty.” Kumferman, 785 F.2d at 291–92. This is precisely the situation here. The DHS identified Ms. Moore’s 

mitigating factors, including that she spent “nearly nineteen (19) years with the Agency,” that her work “has been 

at an acceptable level,” and that she had a variety of personal issues, such as “the difficult situation that [her] 

house had burned down a year prior to the majority of the 

misconduct, [her] health,” and her “financial issues.” 

Resp’t’s Appx. 13. The DHS weighed against the mitigating factors the aggravating factors such as, inter alia, the 

failure “to return [her] firearm to the firearms instructor 

and instead giv[ing] [her] firearm to a private citizen,” and 

the “effect a demotion/suspension would have on th[e] office 

as a whole.” Resp’t’s Appx. 13–14; see Douglas, 5 M.S.P.R.

at 305 (explaining that “the employee’s past disciplinary 

record” may be considered).

In making his decision, the Arbitrator considered that 

the Field Office Director of DHS had explained that he 

“thought long and hard as to whether there was a way to 

salvage” her career and “would have preferred using progressive discipline to try to correct the conduct in question,” 

but that “[a] suspension or demotion would send the wrong 

message [and that o]ther officers in th[e] office would believe that it is okay to cover up or lie about a mistake.” 

Resp’t’s Appx. 14. Considering all of these mitigating factors along with the seriousness of the offense, the Arbitrator agreed with the Field Office Director and determined 

that DHS “needs to rely on all reports it receives from its 

[Deportation Officers]” and “[i]t must have confidence that 

what it is told is true,” which it no longer has. Respt’s 
MOORE v. DHS 7

Appx. 9; see Resp’t’s Appx. 14 (explaining, by the Field Officer, that “[t]he seriousness of the offense, impact on [Ms. 

Moore’s] ability to perform [her] full range of duties[,] and 

lack of rehabilitative potential diminishes the effectiveness 

of a length suspension serving as a viable alternative sanction”). The Arbitrator concluded that “[i]t must be found 

that in this case just cause [for removal] has been established” after reviewing the Douglas factors that “[m]anagement has relied on.” Resp’t’s Appx. 7; see Resp’t’s Appx. 14 

(explaining, by management, that “after carefully balancing all of the Douglas Factors,” Ms. Moore’s “removal is 

warranted,” “reasonable,” and “promotes the efficiency of 

the service” where “a lesser penalty . . . would not meet the 

needs of the Agency”). The Arbitrator showed a reasoned 

concern for applying the Douglas factors appropriately and

carefully weighed these considerations before determining

that removal was appropriate.4

DHS’s removal of Ms. Moore based on two lack of candor charges is supported by substantial evidence because 

the record contains “such relevant evidence as a reasonable 

mind might accept as adequate to support a conclusion.” 

Wrocklage v. Dep’t of Homeland Sec., 769 F.3d 1363, 1366 

(Fed. Cir. 2014). Removal for lack of candor “is a broad[]

and . . . flexible concept whose contours and elements depend upon the particular context and conduct involved.” 

Ludlum v. Dep’t of Justice, 278 F.3d 1280, 1284 (Fed. Cir. 

2002). As Ms. Moore recognizes, the ICE Table of Offenses 

 

4 While Ms. Moore asserts that she was disciplined 

in 2015 for her lack of candor in 2008, see Pet’r’s Br. 26–27, 

she was on medical leave from June 13, 2008 through August 18, 2014 and, therefore, DHS could not complete a factual inquiry to take disciplinary actions, see Resp’t’s Appx 

2. DHS, however, still took the delay into account as a mitigating factor. Resp’t’s Appx. 23 (Douglas Factor Review 

Form). 
8 MOORE v. DHS

and Penalties states that “displaying lack of candor in any 

official inquiry or proceeding” warrants “[w]ritten reprimand to removal” at the “first offense.” Resp’t’s Appx. 175; 

see Pet’r’s Br. 21 (acknowledging that “Lack of Candor is a 

charge that can result in removal for a first time offense”).5 

In making the decision that removal is warranted and 

reasonable, and “promotes the efficiency of the service,” 

Resp’t’s Appx. 9, the Arbitrator considered the facts, Article 

29 of the Master Agreement, the Douglas factors, and the 

Agency Removal Decision, Resp’t’s Appx. 2–9, which considered “all of the evidence of record, including the letter of 

proposal supporting [Ms. Moore’s] documentation, [her] 

written reply, [her] oral reply, the letter notifying [her] of 

additional material to be relied upon and [her] response to 

that letter,” Resp’t’s Appx. 12. Moreover, substantial evidence supports the Arbitrator’s finding that Ms. Moore 

lacked candor when she stated that she paid off her credit 

card bill. In March 2008, Ms. Moore’s supervisor submitted 

a memorandum stating that “[Ms.] Moore told [him] that 

she paid her credit card bill over the phone that same date 

[that he spoke with her] and that her account was now 

‘okay.’” Resp’t’s Appx. 201; see Resp’t’s Appx. 199 (stating, 

in 2016 by Ms. Moore’s former supervisor, that he “ha[s] 

never stated that [the 2008 memorandum] was false nor 

led [anyone] to believe that it was” and that his 2008 memorandum was accurate). Additionally, Ms. Moore’s supervisor testified at the Hearing that there were two responses 

from Ms. Moore, “[o]ne” was that “[the bill] was taken care” 

of, and “[t]he other one was that . . . she was addressing it.” 

Resp’t’s Appx. 261. The supervisor, therefore, clarified that 

 

5 The “ICE Table of Offenses and Penalties,” is a 

“guide to offenses and penalties . . . [and provides] assistance in assessing the appropriate penalty in disciplinary 

and adverse actions.” Resp’t’s Appx. 164; see Resp’t’s Appx. 

164–94 (ICE Table of Offenses and Penalties). 
MOORE v. DHS 9

it was in follow up conversations with Ms. Moore in March 

and April 2008 when she said “[i]ts going to be taken care 

of.” Resp’t’s Appx. 260–61; see Resp’t’s Appx. 58 (explaining, in a memorandum dated April 18, 2008, that Ms. 

Moore said she “would . . . pay her card”), 60 (explaining, 

in a memorandum dated April 24, 2008, a conversation documenting that Ms. Moore “told Citibank to withdraw the 

amount owed automatically on Monday, April 21, 2008”). 

Because Ms. Moore told her supervisors the bill was paid 

in Mach 2008, but then said that it would be paid in April 

2008, the Arbitrator properly determined that there was a 

lack of candor about this charge.

Substantial evidence also supports the Arbitrator’s decision that Ms. Moore lacked candor when she stated that 

management did not stress the importance of doing travel 

vouchers in a certain time frame. Ms. Moore admitted that 

“[i]t would seem that” she had discussions with management about “needing to timely submit the[] [travel] vouchers” in December 2006 and February 2007. Resp’t’s Appx. 

396–97. However, Ms. Moore admitted at the Hearing that 

it was “more than likely” that she received a memorandum 

dated December 22, 2006 from her field office director with 

the subject “travel vouchers and prompt payment of government credit card.” Resp’t’s Appx. 395. Ms. Moore also 

acknowledged at the Hearing that the memo went out to 

“the entire staff” for her field office and that it discussed 

“the importance . . . [of] having your travel voucher and 

government cards paid promptly.” Resp’t’s Appx. 395. Accordingly, substantial evidence supports the Arbitrator’s 

affirmance for lack of candor. Thus, the Arbitrator’s decision to remove Ms. Moore as a result for lack of candor was 

supported by substantial evidence and is not arbitrary or 

capricious.6

 

6 While Ms. Moore asserts that “the [A]rbitrator was 

not impartial and should have recused himself” because, 
10 MOORE v. DHS

CONCLUSION

We have considered Ms. Moore’s remaining arguments 

and find them unpersuasive. The Arbitrator Decision is 

AFFIRMED

 

inter alia, he had a “terrible relationship” with her union 

attorney, Pet’r’s Br. 3–7, we rejected a similar argument in 

Herra v. Department of Homeland Security concerning the 

same attorney, Thomas Tierney, who represented Ms. 

Moore. 498 F. App’x 35, 36–38, 40 (Fed. Cir. 2012). In 

Herra, Mr. Tierney “contend[ed] that the [a]rbitrator was 

biased, as evidenced by the [a]rbitrator’s comments that 

Mr. Tierney was unethical.” Id. at 40. Here, there is no 

objective evidence that the Arbitrator demonstrated any 

bias towards Ms. Moore. To the contrary, the Arbitrator

indicated that he decided against leniency because “Ms. 

Moore is a sworn law enforcement officer and held to a 

higher standard.” Resp’t’s Appx. 6; see Respt’s Appx. 13 

(explaining by the Field Officer Director that he decided 

against considering Ms. Moore’s “one-day suspension for 

Conduct Unbecoming a Law Enforcement Officer” because 

the “suspension occurred a long time ago”). The Arbitrator 

showed no indication that his alleged “terrible relationship” with Ms. Moore’s attorney warranted recusal.