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DISTRICT OF COLUMBIA COURT OF APPEALS

No. 17-CV-1123

JUDY COFIELD, et al., APPELLANTS,

V.

DISTRICT OF COLUMBIA OFFICE OF EMPLOYEE APPEALS, et al., APPELLEES.

Appeal from the Superior Court of the

District of Columbia

(2016-CA-006119-P(MPA))

(Hon. John M. Mott and Robert R. Rigsby, Trial Judges)

(Argued September 12, 2019 Decided June 15, 2023)

Stephen C. Leckar, with whom David Wachtel was on the brief, for appellants.

Holly M. Johnson, Assistant Attorney General at the time the brief was filed, 

with whom Karl A. Racine, Attorney General for the District of Columbia at the time 

the brief was filed, Loren L. Alikhan, Solicitor General at the time the brief was filed, 

Caroline S. Van Zile, Deputy Solicitor General at the time the brief was filed, were 

on the brief, for appellee District of Columbia Office of Contracting and

Procurement.

Lasheka Brown Bassey filed a Statement in Lieu of Brief for appellee District 

of Columbia Office of Employee Appeals.
2

Before RUIZ, FISHER,

* and THOMPSON,** Senior Judges.

RUIZ, Senior Judge: Appellants, Judy Cofield and Sarinita Beale, challenge a 

decision of the District of Columbia Office of Employee Appeals (OEA) upholding 

the elimination of their positions with the District of Columbia Office of Contracting 

and Procurement (OCP) as part of a reduction in force (RIF). Appellants contend

that (1) their terminations were improper because they were placed into 

single-person retention registers based on positions they did not officially occupy in 

violation of the regulations governing RIFs, and (2) this action deprived them of 

their right to compete for other positions if they had been placed on their proper 

(non-single) retention register. Appellants also allege that the purported RIF was a 

pretextual adverse action. Appellant Beale contends that OEA erroneously declined, 

on jurisdictional grounds, to consider her claim to priority reemployment. We affirm 

in part and reverse in part. We uphold appellants’ RIF terminations and remand for 

a determination by OEA in the first instance as to whether it has jurisdiction over

appellant Beale’s priority reemployment rights claim.

 * Senior Judge Fisher was an Associate Judge of the court at the time of 

argument. On August 23, 2020, he began his service as a Senior Judge.

** Senior Judge Thompson was an Associate Judge of the court at the time of 

argument. On February 18, 2022, she began her service as a Senior Judge.
3

I. Background

A. The D.C. Comprehensive Merit Personnel Act

The District of Columbia Comprehensive Merit Personnel Act (CMPA) 

guarantees certain benefits to District employees “relating to appointments, 

promotions, discipline, separation, pay, unemployment compensation, health, 

disability and death benefits, leave, retirement, insurance, and veterans preference.” 

D.C. Code § 1-601.01(2). The CMPA provides two mechanisms by which the 

District can conduct a RIF: (1) the general RIF statute, id. § 1-624.01; and (2) the 

Abolishment Act, id. § 1-624.08.1

 Relevant to this appeal, under both RIF statutes,

an employee who is slated for termination is entitled to one round of lateral 

competition for positions within their competitive level and priority reemployment 

consideration if they are separated. Id. § 1-624.02(a)(2)-(5) (general RIF Act); 

Id. § 1-624.08(d)-(e), (h) (Abolishment Act).

2

 1 The Abolishment Act “affords District of Columbia agencies an opportunity 

each fiscal year to use a streamlined procedure to abolish positions that they have 

identified before February 1 of the fiscal year, without regard to whether there is a 

fiscal emergency or budget crisis.” Stevens v. D.C. Dep’t of Health, 150 A.3d 307, 

316 (D.C. 2016).

2 “The general RIF statute ‘embod[ies] broader RIF procedures than those 

found in the Abolishment Act[.]’” Stevens, 150 A.3d at 312 (alterations in original) 
4

When lateral competition occurs, under either the general RIF statute or the 

Abolishment Act, an employee who occupies a position slated for abolishment 

competes for retention with other employees in the same competitive area and level. 

6-B D.C.M.R. § 2412.2. An employee’s competitive area generally consists of the 

entire agency to which they are assigned, id. § 2409.1, but it may consist of a smaller 

(“lesser”) organizational unit within the agency. Id. § 2409.3.3

Within each competitive area are competitive levels. Id. § 2410.4. 

Competitive levels are assigned based on an employee’s “position of record,” id.

§ 2410.2, and include employees “in the same grade . . . and classification series and 

which are sufficiently alike in qualification requirements, duties, responsibilities, 

 

(quoting Washington Tchrs.’ Union, Local #6 v. D.C. Pub. Schs., 960 A.2d 1123, 

1134 (D.C. 2008)).

3 Under 6-B D.C.M.R. § 2409.3:

An agency head may request that the personnel 

authority establish lesser competitive areas by submitting 

a written request that includes the following: 

(a) a description of the proposed competitive area or areas 

which includes a clearly stated mission statement, the 

operations, functions, and organizational segments 

affected; 

(b) an organizational chart of the agency which identifies 

the proposed competitive areas; and

(c) a justification for the need to establish a lesser 

competitive area. 
5

and working conditions so that the incumbent of one (1) position could successfully 

perform the duties and responsibilities of any of the other positions.” Id. § 2410.4. 

“An employee’s position of record is the position for which the employee receives 

pay or the position from which the employee has been temporarily reassigned or 

promoted on a temporary or term basis.” Id. § 2410.3; see also District of Columbia 

v. King, 766 A.2d 38, 45 (D.C. 2001) (“[An employee’s] competitive level must be 

based on his official position of record.”). “The fact that an employee may have 

been detailed to a different position at the time of his or her RIF does not change the 

fact that the establishment of the employee’s competitive level is based on the 

official position description.” King, 766 A.2d at 45.

An employee may be in a single-person competitive area if that employee is 

the only person at her competitive level. Where an employee is placed in a 

single-person competitive area, “there is no one against whom . . . she [can] 

compete, and therefore . . . the one-round-of-lateral-competition requirement . . . is 

inapplicable.” Stevens, 150 A.3d at 323-24. Central to this appeal is whether 

appellants were properly RIF’d from their respective positions of record, which the 

agency determined were single-person competitive areas.
6

B. Factual and Procedural Background

Following the 2008 nationwide recession, the District of Columbia

experienced economic distress. Due to an anticipated budget shortfall, the Office of 

the City Administrator informed District agencies, including OCP, that they would 

need to reduce their budgets. In response, OCP’s then-Chief of Staff, Wilbur Giles,

directed his senior managers to identify “existing inefficiencies and redundancies” 

in their divisions. The senior managers recommended six positions for abolishment, 

including appellants’ positions. At the time of the RIF, Cofield was a grade 11 Staff 

Assistant in the Office of the Assistant Director for Procurement, and Beale was a 

grade 12 Program Analyst in the Office of Procurement Support. Appellants were 

served with separation notices on April 20, 2009, and separated from OCP on May 

22, 2009. 

In June 2009, appellants contested the abolishment of their positions in a 

consolidated action before an OEA administrative judge (AJ). The AJ held a fourday hearing in May 2012, at which appellants challenged their terminations,

asserting that the RIF at OCP was a pretextual adverse action targeted at them. 

Beale argued she was selected for termination so that an agency manager, Sharon 

Kershbaum, could hire a family friend, Chelsea Lisbon, to work at OCP. Cofield
7

claimed that she too had been selected for termination so that a higher-paid but less 

experienced employee, Virginia Paris, who allegedly was a friend of agency 

manager Judith McCarthy, could take her place. Cofield also asserted that her 

termination was due in part to her activities as a union shop steward. Additionally, 

appellants alleged that their removals were not conducted in accordance with the 

RIF regulations because they had been improperly placed in lesser competitive areas

that did not correspond to their positions. Last, appellants argued that they were 

entitled to priority reemployment. 

The AJ found that OCP’s April 2009 RIF was not initiated by the OCP 

Director but was grounded in the District’s financial crisis, which caused the City 

Administrator to order District agencies, including OCP, to reduce their budgets for 

fiscal year 2010. As a result, the AJ concluded that the RIF was conducted under 

the Abolishment Act, which was enacted “specifically for the purpose of addressing 

budgetary issues resulting in a RIF.” The AJ also concluded that the evidence in the 

record did not support appellants’ claims that the RIF of appellants was pretextual, 

that the newly hired employees were friends of upper management, or that the new 

hires were replacements for appellants. Additionally, the AJ determined that there 

was no evidence in the record suggesting that appellants were improperly placed in 

their respective single-person competitive levels, and therefore, they were not
8

eligible for one round of lateral competition. The AJ declined to consider Cofield’s 

claim that her priority reemployment rights had been violated on the grounds that 

OEA lacked jurisdiction to consider such claims which were subject to a grievance 

procedure, appealable to the Mayor or Superior Court; moreover, according to the 

AJ, appellants were not entitled to reemployment priority because the RIF was

conducted under the Abolishment Act.

4

 

After appellants sought review, the Superior Court (Hon. John M. Mott) 

issued an Amended Order affirming the AJ’s determination that the RIF was carried 

out pursuant to the Abolishment Act and that OEA lacked jurisdiction to consider 

claims concerning priority reemployment rights. But the trial court could not 

“determine from the record if [appellants had been] properly separated from their 

respective positions of record, as both of them [had been] reassigned in the months 

preceding the RIF.” The trial court identified a discrepancy between Beale’s SF-50 

(personnel action form) and the position used to determine her competitive area:

Beale was reassigned to a Program Analyst position on 

February 1, 2009, whereas Cofield was assigned to the 

“Goods Unit” in January 2009, before being shifted back

to her original position on March 15, 2009. Beale’s “Form 

[SF-]50” identifies her February 2009 reassignment to 

 4 The AJ’s decision predated Stevens, in which we concluded that RIFs under 

the Abolishment Act can be undertaken each year following timing and notification 

requirements, “without regard to particular financial circumstances.” 150 A.3d at 

319.
9

OCP as a whole, without identifying any particular 

subdivision. However, the justification documents used 

by DCHR in creating the lesser competitive area identified 

Beale’s position as being located in the “Procurement 

Support” subdivision of OCP. Similarly, Beale’s RIF 

notice identifies “Procurement Support” as her position’s 

competitive area.

The trial court thought there might be a similar discrepancy with respect to Cofield. 

However, because Cofield’s Form SF-50 had not been submitted into evidence, the 

trial court could not determine whether Cofield had been properly terminated. The 

trial court remanded the case to OEA to determine whether there was substantial 

evidence in the record that appellants had been terminated from their positions of 

record consistent with the RIF regulations. 

On remand, the AJ concluded that appellants had been properly placed in their 

respective single-person competitive levels based on their positions of record and,

therefore, were not eligible for one round of lateral competition. Because the record

contained unexecuted copies of appellants’ Form SF-50s, 5 the AJ relied on 

appellants’ pay stubs to determine their official positions of record. The AJ found 

that appellants’ paystubs listed the same positions as those “slated for abolishment”

in the administrative order submitted to the Mayor’s office requesting RIF 

 5 The SF-50 forms showed Beale’s position as a “Program Analyst” and 

Cofield’s position as a “Staff Assistant.” 
10

authorization. Appellants again sought review in the Superior Court (Hon. Robert 

R. Rigsby), which affirmed the AJ’s decision. This appeal followed.

II. Standard of Review

“[W]e review agency decisions on appeal from the Superior Court the same 

way we review administrative appeals that come to us directly.” Dupree v. D.C.

Dep’t of Corr., 132 A.3d 150, 154 (D.C. 2016). “Thus, in the final analysis, 

confining ourselves strictly to the administrative record, we review the OEA’s 

decision, not the Superior Court’s, and we must affirm the OEA’s decision so long 

as it is supported by substantial evidence in the record and otherwise in accordance 

with law.” Id. at 154 (quoting Settlemire v. D.C. Off. of Emp. Appeals, 

898 A.2d 902, 905 n.4 (D.C. 2006)). “To pass muster, an administrative agency

decision must state findings of fact on each material, contested factual issue; those

findings must be supported by substantial evidence in the agency record; and the

agency’s conclusions of law must follow rationally from its findings.” Murchison 

v. D.C. Dep’t of Pub. Works, 813 A.2d 203, 205 (D.C. 2002). “Questions of law, 

including questions regarding the interpretation of a statute or regulation, are 

reviewed de novo.” Dupree, 132 A.3d at 154.
11

III. Analysis

Appellants raise three arguments on appeal. First, they contend that the AJ

erroneously declined to rely on their Form SF-50s when determining whether OCP 

properly separated them from their positions of record. Second, they assert that the 

AJ erroneously rejected their claim that OCP’s RIF was pretextual and, as applied 

to them, was a disguised adverse action. Finally, Beale argues that the AJ

erroneously declined, on jurisdictional grounds, to consider her claim that OCP 

violated her priority reemployment rights. We address each argument in turn.

A. Appellants’ Positions of Record

Appellants’ core contention is that the AJ erred in finding that appellants had 

been properly placed in their respective single-person competitive areas because,

they claim, their positions of record located them in agency-wide positions at OCP—

not the lesser competitive areas from which they were RIF’d. In support of their 

claim, appellants assert that their Form SF-50s clearly demonstrate that they held 

agency-wide positions, and that it was improper for the AJ to have used their 

paystubs to determine their positions of record. Alternatively, appellants argue that 

even their paystubs show their positions of record were agency-wide within OCP, 
12

not the lesser competitive areas from which they were RIF’d. We disagree with both 

contentions. In short, appellant’s argument is unpersuasive because (1) there is no 

requirement to use a Form SF-50 to determine an employee’s position of record, and 

(2) the record supports the AJ’s determination that appellants were employed in the 

lesser competitive areas designated for the RIF and, because they were the only 

employees at their level within their respective areas, they were not entitled to a 

round of competition.

Competitive areas are established by the employing agency or the District of 

Columbia Office of Human Resources when a RIF is requested and subsequently 

authorized expressly for the purpose of conducting the RIF. See 6-B D.C.M.R. 

§ 2409.2; see also Johnson v. D.C. Dep’t of Pub. Health, 162 A.3d 808, 810 (D.C. 

2017) (noting that “the DCHR director issued an amended administrative order” and 

“selected particular areas within the agency, thereby creating ‘lesser competitive 

areas’”); Stevens, 150 A.3d at 323 (noting an administrative order that authorized

RIF designated divisions within the Department of Health as lesser competitive 

areas). Under the regulations, “each agency shall constitute a single competitive 

area,” and “[l]esser competitive areas within an agency may be established by the 

personnel authority” or at the request of an agency head. See 6-B D.C.M.R. § 2409.1 

to .3.
13

Competitive levels, on the other hand, are “based upon the employee’s 

position of record,” which is “the position for which the employee receives pay or 

the position from which the employee has been temporarily reassigned or promoted 

on a temporary or term basis.” Id. § 2410.2 to .3. An employee is generally entitled 

to one round of lateral competition against other employees in the same competitive 

area and level. See id. § 2412.2. However, if an employee in the competitive area 

is the only person at her competitive level (i.e., a single-person competitive level),

“there is no one against whom . . . she [can] compete, and . . . the 

one-round-of-lateral-competition requirement . . . is inapplicable.” Stevens, 150 

A.3d at 323-24.

Appellants’ competitive areas were established by the administrative order 

requesting RIF authorization at OCP. The administrative order identified Cofield’s 

lesser competitive area as the Office of the Assistant Director for Procurement and 

Beale’s lesser competitive area as the Office of Procurement Support. It is true, as 

appellants contend, that their Form SF-50s do not list their respective lesser 

competitive areas and instead identify only OCP as their employing agency. But, as 

the District explained at oral argument, an employee’s Form SF-50 is unlikely to 

include the lesser competitive area that an employee will be placed in during a RIF 
14

because lesser competitive areas are created for the express purpose of conducting a 

RIF and limiting an employee’s competition rights.

6

 

Therefore, the question of whether appellants were entitled to a round of 

competition prior to termination turns on whether they were the only employees at

their competitive level within their respective lesser competitive areas.

On remand, the AJ determined that appellants had been properly separated 

from their positions of record because appellants’ position titles and position 

numbers in the administrative order were the same as those listed on their Form 

SF-50s.

7 However, because both appellants’ Form SF-50s were unexecuted, the AJ 

 6 This does not mean that the establishment of a lesser competitive area is

without procedural limitations. To the contrary, agencies must request “personnel 

authority” and provide a “justification for the need to establish a lesser competitive 

area.” 6-B D.C.M.R. § 2409.3(c). Moreover, the regulations prohibit the creation 

of lesser competitive areas that are smaller “than a major subdivision of an agency” 

or that are not “clearly identifiable and distinguish[able] from others in the agency 

in terms of mission, operation, function, and staff.” Id. § 2409.4. Here, the stated 

justification for the RIF at OCP was a “lack of funds” and appellants’ lesser 

competitive areas were located in clearly identifiable subdivisions of OCP as 

indicated on OCP’s organizational chart. 

7 The administrative order requesting authorization for the RIF at OCP listed 

Beale’s position of record as “Program Analyst” and her position number as 

“00026621,” the same position title and number listed on her Form SF-50. The 

administrative order listed Cofield’s position of record as a “Staff Assistant” and her 

position number as “00010575,” the same position title and number listed on her 

Form SF-50. 
15

looked to appellants’ paystubs to determine their positions of record. On this basis, 

the AJ concluded appellants had been properly placed in single-person competitive 

levels and were therefore not entitled to one round of lateral competition. 

Appellants fail to cite any District statutes or regulations requiring that a Form 

SF-50 be the only evidence used to determine an employee’s position of record. The 

applicable regulations provide that an “employee’s position of record is the position 

for which the employee receives pay or the position from which the employee has 

been temporarily reassigned or promoted on a temporary or term basis.” 

6-B D.C.M.R. § 2410.3. But there is no requirement in the statute or regulation that 

only a Form SF-50 may be used to determine the position “for which the employee 

receives pay,” and it is reasonable for the OEA to rely on a pay stub as an accurate 

record of that position.

8 Although OEA may have historically relied on Form 

 8 Appellants cite the OEA’s initial decision in Ross v. OCP, OEA 

No. 2401-013-09R11, 7 (Apr. 8, 2013), for the proposition that OEA has relied 

almost exclusively on Form SF-50s to determine an employee’s position of record. 

But Ross carries little weight here. In Ross, the OEA determined that because the 

petitioner had not been officially reassigned to the agency division from which she 

was RIF’d, the petitioner’s official position of record was the position listed on her 

Form SF-50, which listed a different division from which she had recently been 

transferred. Id.; see 6-B D.C.M.R. § 2410.

Appellants’ reliance on Klipp v. Dep’t of Homeland Sec., 34 F.4th 1326 (Fed. 

Cir. 2022), is simply misplaced. Klipp presented the opposite situation, where the 

Merit Systems Protection Board relied solely on the position description, without 

considering, as it was required to do, the actual duties of the employee in determining 
16

SF-50s in making employee position-of-record-determinations, we cannot say it was 

error for the AJ, who thought there were no executed Form SF-50s in the record, to 

have looked to appellants’ paystubs in making this determination.9

Appellants’ alternative argument is that because their paystubs (as well as 

their Form SF-50s) did not identify the specific organizational unit within OCP to 

which they were assigned, their positions should be deemed to have been agency 

wide. Even if we assume the odd notion that there might be cases where a position 

is untethered to a particular organizational unit within an agency, deeming appellants 

to have occupied agency-wide positions is contrary to the OCP organizational charts 

in the record, which show their positions within the subdivisions of Procurement 

(Cofield) and Procurement Support (Beale). Moreover, appellants’ undisputed 

testimony establishes that they were RIF’d from the positions for which they 

 

whether those duties entitled him to credit as a law enforcement officer. 34 F.4th at 

1332. In this case, all the documentation of record (i.e., the SF-50s, paystubs, and 

RIF administrative order) specify the same positions for appellants, and appellants’ 

testimony confirmed the documentation was accurate.

9 On appeal, appellants argue the AJ was wrong in thinking that only 

non-executed versions of appellants’ Form SF-50s were submitted into the record, 

and include images of appellants’ executed Form SF-50s in their brief as evidence 

that executed versions of both forms were in the record. Even assuming that 

executed versions of appellants’ Form SF-50s were included in the record, appellants 

were not prejudiced by the AJ’s reliance on the paystubs where both sets of 

documents reflect the same positions and support the AJ’s decision. 
17

received pay and that they were employed in the organizational units that came 

within the designated lesser competitive areas, as required by the regulations. Beale 

testified that she was employed as a Program Analyst, and that she reported to Sheila 

Mobley, who oversaw the Office of Procurement Support. Similarly, Cofield 

testified that she was employed as a Staff Assistant, and that she reported to Donna 

McCarthy, the Assistant Director of Procurement. Thus, substantial evidence 

supports the AJ’s determination that because Beale was the only Program Analyst 

and Cofield was the only Staff Assistant in their respective lesser competitive areas

designated by OCP in connection with the RIF, they were not entitled to a round of 

lateral competition.

B. The RIF as a Pretextual Adverse Action

Next, appellants contend that the RIF, as applied to them, was a pretextual

adverse action because they were transferred into positions slated for abolishment. 

Appellants assert that (1) OCP’s stated rationale for the RIF, a lack of funds, was a 

sham because OCP hired Paris and Lisbon at the same time appellants’ positions 

were terminated; and (2) OCP failed to follow the regulations governing the 

establishment of lesser competitive areas. Because the AJ’s conclusion that the RIF 
18

was not a pretextual adverse action is supported by substantial evidence in the 

record, we must affirm the AJ’s decision.10

In rejecting appellants’ claim that the RIF was pretextual, the AJ first 

addressed appellants’ argument that they had been terminated to make room in the 

budget for Paris and Lisbon. The AJ determined that Paris was hired in early 

February 2009, before the RIF, and had not been hired to perform work previously 

performed by Cofield or Beale. Likewise, the AJ determined that OCP began 

recruiting for Lisbon’s program analyst position before the April 20, 2009, RIF and 

that she had not been hired to perform work previously performed by Beale or 

Cofield. Additionally, the AJ noted, there was “no actionable evidence” that Lisbon 

or Paris were friends of upper management at OCP. 

As for appellants’ placement in lesser competitive areas, the AJ concluded 

that there was nothing in the record to indicate their “placement in their respective 

competitive levels and areas was anything but proper.” Finally, relying on this 

 10 The District argues in its brief that the Abolishment Act precludes an appeal 

challenging the designation of a lesser competitive area. See D.C. Code 

§ 1-624.08(f); Stevens, 150 A.3d at 323. But we do not understand appellants’ 

argument as challenging the agency’s designation of lesser competitive areas for the 

RIF; what they dispute is that this was a true RIF, contending it was a disguised 

adverse action.
19

court’s decision in Anjuwan v. D.C. Dep’t of Public Works, 729 A.2d 883, 885 (D.C. 

1998), the AJ explained that he lacked the authority to second-guess determinations 

by the Mayor’s office that the city faced a shortage of funds, and that once such 

shortage is established, agencies have discretion in implementing a RIF to address 

the shortfall. Because the instant RIF was conducted pursuant to the order of the 

City Administrator to address a budgetary shortfall, OEA could not second-guess 

OCP’s decision as to which positions it would abolish. 

On appeal, appellants allege that they were transferred into positions that 

ended up in single-person competitive levels expressly for the purpose of 

terminating them, similar to the employee in Levitt v. D.C. Office of Employee

Appeals, 869 A.2d 364 (D.C. 2005), whose position was abolished in a RIF several 

weeks after his transfer into that position. Unlike the evidence in Levitt, the evidence 

here supports the AJ’s determination that appellants were not transferred into 

positions slated for abolishment. During the evidentiary hearing, Cofield testified 

that she was assigned to work on the D.C. Supply Schedule as a Staff Assistant in 

2005, a position located within the Office of the Assistant Director for Procurement

that she held for three years before the RIF. As for Beale, although her title was 

changed from Executive Assistant to Program Analyst three weeks before the RIF,

she testified that she voluntarily applied for a program analyst position because she 
20

was no longer performing the functions of an executive assistant. Thus, appellants’ 

contention that the AJ failed to adequately consider their claim that the RIF, as 

applied to them, was a pretextual adverse action is not persuasive.

Appellants’ argument that the lack of funds cited by OCP as the basis for the 

RIF was a sham fares no better. In Anjuwan, we explained that OEA does not have 

the “authority to second-guess the mayor’s decisions about the shortage of funds” or 

an agency’s “decisions about which positions should be abolished in implementing 

the RIF.” 729 A.2d at 885. Once OEA has determined that a “RIF is justified by a 

shortage of funds at the agency level, the agency has discretion to implement the 

RIF and may release employees whose positions are adequately funded.” Id. That 

is what occurred here, as shown in documents about actions taken by the City 

Administrator and OCP. The AJ did not err in declining to look behind the 

executive’s decision concerning funding and personnel to meet a financial shortfall.

Appellants also suggest that the AJ’s “threadbare” ruling warrants reversal 

because it fails to address “each material, contested factual issue” as we have 

required. Specifically, appellants claim the OEA ignored their argument that the 

RIF, as applied to them, was a pretextual adverse action. Not so. Following the

hearing, the AJ issued findings of fact addressing the contested factual issues and 
21

made conclusions of law that flow rationally from those findings. Appellants’ 

pretext claim was thoroughly explored during the four-day evidentiary hearing. Cf.

Levitt, 869 A.2d at 366-67 (remanding to OEA for an evidentiary hearing where 

employee provided detailed allegations of improper employment actions). “[O]n 

questions of credibility[,] the fact-finding of hearing officers is entitled to great 

weight.” Johnson v. D.C. Dep’t of Pub. Health, 163 A.3d 746, 753 (D.C. 2017) 

(second alteration in original) (quoting Arthur v. D.C. Nurses’ Examining Bd., 

459 A.2d 141, 146 (D.C. 1983)). “[W]e are bound by factual findings ‘supported by 

substantial evidence on the record as a whole’ even if we ‘may have reached a 

different result based on an independent review of the record.’” Id. (quoting 

Williamson v. D.C. Bd. of Dentistry, 647 A.2d 389, 394 (D.C. 1994)). Here, the AJ 

heard the testimony and evidence presented over the course of the hearing, and based 

on his credibility determinations, made findings of fact. As a court of appellate 

review, we are not free to come to our own determinations. On this record, 

appellants have not demonstrated that the AJ’s decision is insufficient or 

unsupported.
22

C. OEA’s Jurisdiction Over Priority Reemployment Claims

Finally, appellant Beale11 argues that the AJ erroneously refused to consider

her claim to priority reemployment on grounds that OEA lacked jurisdiction. Beale 

asserts that her priority reemployment rights were violated when OCP hired Lisbon 

as a Program Analyst, a position identical to the one Beale held prior to her 

termination. Beale further argues that, under the OEA enabling act, OEA has 

jurisdiction over a priority reemployment claim because in hiring Lisbon, “OCP 

undertook such ‘final action’” that affected a RIF. The AJ opined that Beale’s

priority reemployment rights claim should have been filed as a grievance with OCP 

and, if denied, subject to appeal to the Mayor or Superior Court. The AJ explained 

that because OEA lacks jurisdiction over grievance appeals, OEA could not consider

Beale’s priority reemployment claims. The AJ further reasoned that because the 

instant RIF was conducted under the Abolishment Act, OCP was not required to 

engage in priority reemployment procedures. We remand to OEA for a 

determination of whether it has jurisdiction to consider Beale’s claim.

 11 Appellant Cofield does not press her priority reemployment claim on 

appeal.
23

First, we note that following a RIF, either under the general RIF statute or the 

Abolishment Act, qualifying employees who are not placed in another position 

pursuant to lateral competition are entitled to “[p]riority reemployment 

consideration.” See D.C. Code §§ 1-624.02(a)(3), 1-624.08(h). District regulations 

state that the “personnel authority shall establish and maintain a reemployment 

priority list for each agency.” 6-B D.C.M.R. § 2427.1. The regulations also require 

that a qualifying employee be “entered automatically on the reemployment priority 

list immediately after it has been determined that the employee is to be adversely 

affected by a reduction in force and not later than issuance of the notice of reduction 

in force.” Id. § 2427.5. It is clear, therefore, that Beale was entitled to priority 

reemployment consideration once it was determined that she would be terminated 

under the RIF.

The issue of jurisdiction to hear claims of deprivation of reemployment rights 

is not so clear. Under the CMPA,

[a]n employee may appeal a final agency decision

affecting a performance rating which results in removal of 

the employee (pursuant to subchapter XIII-A of this 

chapter), an adverse action for cause that results in 

removal, reduction in force (pursuant to subchapter XXIV 

of this chapter), reduction in grade, placement on enforced 

leave, or suspension for 10 days or more (pursuant to 

subchapter XVI-A of this chapter) to the Office upon the 

record and pursuant to other rules and regulations which
24

the Office may issue. Any appeal shall be filed within 30 

days of the effective date of the appealed agency action.

D.C. Code § 1-606.03(a). The CMPA provides for appeals to OEA by persons who 

have received a separation notice through a RIF “if he or she believes that his or her 

agency has incorrectly applied the provisions of this subchapter or the rules and 

regulations issued pursuant to this subchapter.” Id. § 1-624.04. The Abolishment 

Act further provides, however, that “[n]either the establishment of a competitive area 

smaller than an agency, nor the determination that a specific position is to be 

abolished, nor separation pursuant to this section” are reviewable, with two 

exceptions, only one of which involves OEA. Id. § 1-624.08(f). “An employee may 

file with the Office of Employee Appeals an appeal contesting that the separation 

procedures of subsections (d) [providing for one round of lateral competition] and 

(e) [providing for minimum 30-day written notice prior to separation] were not 

properly applied.” Id. § 1-624.08(f)(2). Other complaints “contesting a 

determination or a separation” are to be submitted pursuant to procedures established 

by the Mayor. Id. § 1-624.08(f)(1).

“In construing statutes ‘[w]e look to the plain meaning of the statute first, 

construing words according to their ordinary meaning.’” Washington Tchrs.’ Union, 

960 A.2d at 1132 (alteration in original) (quoting Boyle v. Giral, 820 A.2d 561, 568 

(D.C. 2003)). “The literal words of [a] statute however, are not the sole index to 
25

legislative intent, but rather, are to be read in the light of the statute taken as a whole, 

and are to be given a sensible construction and one that would not work an obvious 

injustice.” Id. (alteration in original) (quoting Boyle, 820 A.2d at 568). We 

understand Beale’s argument to be that an agency’s failure to honor an employee’s 

priority reemployment rights comes within OEA’s general jurisdiction because it has

“an effect on” or “influence[s] in some way”12 a final agency decision involving a 

RIF. She bases this argument on the agency’s obligation to an employee to enter 

their name “automatically on the [agency’s] reemployment priority list immediately 

after it has been determined that the employee is adversely affected by the [RIF].” 

6-B D.C.M.R. § 2427.5.

It is premature for the court to decide this jurisdictional issue. “[T]he 

determination whether the OEA has jurisdiction is quintessentially a decision for the 

OEA to make in the first instance.” Washington Tchrs.’ Union, 960 A.2d at 1131 

(quoting Armstead v. District of Columbia, 810 A.2d 398, 400 (D.C. 2002)). To 

receive deference from the court on a matter of statutory interpretation, “agency 

interpretations must reflect the careful legal and policy analysis required in making 

choices among several competing statutory interpretations . . . and the record must 

 12 The ordinary meaning of “affect” is quite broad: “to produce an effect on; 

to influence in some way.” Affect, Black’s Law Dictionary (11th ed. 2019).
26

provide evidence that the agency considered the language, structure or purpose of 

the statute when selecting an interpretation.” Washington Hosp. Ctr. v. D.C. Dep’t 

of Emp. Servs., 789 A.2d 1261, 1264 (D.C. 2002) (quotation marks omitted) (quoting 

Kirkpatrick v. D.C. Pub. Schs., 786 A.2d 586, 594 (D.C. 2001)). However, there is 

no such record in this case. The AJ did not address Beale’s jurisdictional argument

by parsing the language, history and purpose of the relevant statutory provisions, 

opting to rely instead on the opinion of an employee who testified that Beale’s claim 

was a “grievance” outside OEA’s competence. That is plainly insufficient to 

constitute a reasoned decision that demands our deference. We remand the case to 

the Superior Court to further remand to the OEA for a determination in the first 

instance of its jurisdiction over priority reemployment claims.13 See id. at 1265.

 13 Appellants cite Rogers v. D.C. Public Schools, OEA No. 2401-0255-10R14 

(July 21, 2015), for the proposition that OEA has previously exercised jurisdiction 

over claims alleging violations of an employee’s priority reemployment rights. 

However, due to Rogers’s procedural posture, it does not support that OEA has 

jurisdiction over these claims. Rogers was remanded to OEA by the Superior Court 

for a finding on whether the agency (the District of Columbia Public Schools) had 

properly placed Rogers on its priority reemployment list. Id. at 3-5. On remand, the 

AJ determined that the agency had failed to prove that Rogers had been considered 

for priority reemployment as required by the regulations. Id. at 13. The OEA Board 

affirmed the AJ’s decision. Id. Neither the AJ nor the OEA Board considered 

whether OEA had jurisdiction to consider a claim asserting a violation of priority 

reemployment rights.

Our research into other OEA cases reveals that some address claims 

concerning priority reemployment rights, but without explaining the jurisdictional 

basis for doing so. These cases, which involve the general RIF statute, focused on 

whether the employee’s notice of separation referred to priority reemployment rights 
27

IV. Conclusion

We affirm in part and reverse and remand the case to the Superior Court for 

further proceedings before the OEA consistent with this opinion.

So ordered.

 

or determined that the employee had in fact been reemployed. See, e.g., Gamble v. 

Metro. Police Dep’t, OEA No. 2401-0018-12 (Mar. 7, 2017) (finding no violation 

of an employee’s priority reemployment rights when the employee’s separation 

notice explained the employee’s “right to priority placement consideration”); Taylor 

v. D.C. Pub. Schs., OEA No. J-0075-19 (Feb. 19, 2020) (same); Emp. v. D.C. Pub. 

Schs., OEA No. 2401-0041-21 (Feb. 16, 2023) (finding that the agency “satisfied 

the priority reemployment right” of an employee who found alternate employment 

within the agency). None appear to grapple with the question Beale raises: that the 

agency did not in fact consider her for priority reemployment.