UNITED STATES OF AMERICA

MERIT SYSTEMS PROTECTION BOARD 

ANGELA R. CONAWAY,

Appellant,

v.

DEPARTMENT OF COMMERCE,

Agency.

DOCKET NUMBER

CH-0752-16-0166-I-2

DATE: September 22, 2022

THIS FINAL ORDER IS NONPRECEDENTIAL1

Angela R. Conaway, Piketon, Ohio, pro se.

Frances C. Silva, Esquire, Washington, D.C., for the agency.

BEFORE

Cathy A. Harris, Vice Chairman

Raymond A. Limon, Member

Tristan L. Leavitt, Member

FINAL ORDER

¶1 The appellant has filed a petition for review of the initial decision, which 

affirmed the agency’s action removing her. For the reasons discussed below, we 

GRANT the petition for review, REVERSE the initial decision in part, and DO 

NOT SUSTAIN the appellant’s removal. However, we AFFIRM the initial 

 

1 A nonprecedential order is one that the Board has determined does not add 

significantly to the body of MSPB case law. Parties may cite nonprecedential orders, 

but such orders have no precedential value; the Board and administrative judges are not 

required to follow or distinguish them in any future decisions. In contrast, a 

precedential decision issued as an Opinion and Order has been identified by the Board 

as significantly contributing to the Board’s case law. See 5 C.F.R. § 1201.117(c).
2

decision in part to the extent it found that the appellant failed to establish 

disability discrimination.

BACKGROUND

¶2 Prior to the removal at issue in this appeal, the appellant was employed by 

the agency’s Census Bureau as a GS-6 Field Supervisor. Conaway v. Department 

of Commerce, MSPB Docket No. CH-0752-16-0166-I-1, Initial Appeal File 

(IAF), Tab 6, Subtab 4h. In addition to her supervisory duties, she occasionally 

conducted interviews with survey respondents. Id., Subtab 4y. The agency 

reviewed several of the appellant’s cases in March 2014 as part of its routine 

quality control measures and discovered discrepancies in three of her Current 

Population Survey (CPS) cases.

2

 Id., Subtab 4r. On April 2, 2014, the 

appellant’s second-level supervisor issued her a “5-day letter” notifying her of the 

discrepancies and permitting her an opportunity to respond. Id. In relevant part, 

the letter stated that the appellant submitted Case #1 as a completed interview but 

that, upon reinterview, the respondent denied speaking to the appellant on the 

date in question. Id. The appellant responded to the 5-day letter, stating that she 

spoke to the Case #1 respondent at about 9:38 p.m. on that date and that it was the 

household’s seventh interview. Id., Subtab 4q. She explained that the respondent 

was angry that she had been called again and stated that “nothing had changed” 

since her last interview. Id. She further explained that she entered some 

information based on her “previous knowledge of the case that [the respondent 

and her spouse] both usually worked 50 hours a week and were at the same job 

doing the same thing” and entered “refused” in other fields regarding the number 

of hours worked in the current week and a prior week. Id. 

 

2 CPS surveys collect information regarding the labor force, such as where the 

respondent and other household members work, their occupation, number of hours they 

worked in the survey week, and how many hours they usually work per week. Conaway

v. Department of Commerce, MSPB Docket No. CH-0752-16-0166-I-2, Refiled Appeal 

File (RAF), Tab 14, Hearing Compact Disc (HCD) (testimony of a Field Supervisor).
3

¶3 On June 19, 2014, the agency proposed to remove the appellant on the basis 

of one charge of “Providing False Information Regarding Census Bureau 

Questionnaires” supported by one specification alleging that, on Ma rch 22, 2014, 

she provided false information in CPS Case #1.3 Id., Subtab 4l. The background 

section of the proposal notice stated that, upon reinterview of Case #1, the survey 

respondent claimed that she did not speak to the appellant in March 2014. Id. In 

an apparent alternative, the background section further stated that the appellant 

“submitted an interview as complete even though [she] did not ask the respondent 

all survey questions as worded” pursuant to CPS Interviewer Manual, 

Section 2.2.1, which requires that interviewers ask questions exactly as worded so 

that they will yield comparable results. Id. 

¶4 The appellant submitted a written response to the deciding official attesting 

that she spoke to the Case #1 respondent in March 2014 and denying that she 

falsified any data. IAF, Tab 6, Subtab 4j, part 1. She stated that she had 

conducted five prior interviews with this respondent, who had requested not to be 

contacted further and who, on the date in question, was very angry at being called 

again. Id. The appellant stated that she verified that the respondent and her 

spouse still worked at the same place but did not ask what job they did or how 

many hours they worked because she already knew that information from the 

prior interviews and because the respondent had said that “nothing would change 

unless [she or her spouse] died.” Id. The appellant stated that she put “refused” 

on the number of hours the respondent and her husband had worked that week and 

ended the interview. Id. 

¶5 In a decision letter dated September 2, 2014, the deciding official observed 

that the appellant admitted in her response to the proposal notice that she 

 

3

The administrative judge determined that, although the proposal notice and other 

references in the record indicate that the alleged misconduct occurred on March 22,

2014, the evidence and testimony established that the alleged misconduct actually 

occurred on March 25, 2014. RAF, Tab 16 at 3 n.3; IAF, Tab 6, Subtab 4s. We agree.
4

submitted answers for Case #1 even though she did not ask the respondent the 

questions as worded on the questionnaire, as required by agency policy. IAF,

Tab 6, Subtab 4i. Thus, she found that the reason for the proposed removal was 

fully supported by the evidence and imposed the appellant’s removal, effective 

September 5, 2014. Id. The appellant amended her pending equal employment 

opportunity (EEO) complaint to include a claim relating to her removal, which 

the agency’s Office of Civil Rights (OCR) accepted for investigation. Id., 

Subtab 4b, part 1. On November 13, 2015, the OCR issued a final agency 

decision finding no discrimination. Id., parts 1-2.

¶6 The appellant then appealed her removal to the Board, raising affirmative 

defenses of harmful procedural error and disability discrimination.

4

 IAF, Tab 1. 

The administrative judge dismissed the appeal without prejudice, and the appeal 

was automatically refiled on November 21, 2016. IAF, Tab 13; Conaway v. 

Department of Commerce, MSPB Docket No. CH-0752-16-0166-I-2, Refiled 

Appeal File (RAF), Tabs 1-2. After holding the appellant’s requested hearing, 

the administrative judge issued an initial decision finding that the agency proved 

the charge, nexus, and the reasonableness of the penalty and that the appellant 

failed to prove her affirmative defenses. RAF, Tab 16, Initial Decision (ID) 

at 6-23.

¶7 The appellant has filed a petition for review of the initial decision, and the 

agency has responded in opposition. Petition for Review (PFR) File, Tabs 1, 3. 

 

4

The appellant also appealed an alleged constructive suspension and a reduction in pay. 

The administrative judge issued an initial decision dismissing that appeal for lack o f 

jurisdiction. Conaway v. Department of Commerce, MSPB Docket No. CH-0752-16-

0165-I-1, Initial Decision (Oct. 13, 2016). A petition for review of the decision in that 

case is currently pending with the Board. 
5

ANALYSIS

The agency did not prove the charge of providing false information regarding 

census bureau questionnaires.

¶8 An agency is not required to affix a label to a charge but may simply 

describe the actions that constitute the misbehavior in narrative form in its charge 

letter. Hollingsworth v. Department of the Air Force, 121 M.S.P.R. 397, ¶ 4 

(2014). If, however, the agency chooses to label an act of alleged misconduct, 

then it must prove the elements that make up the legal definition of the charge, if 

any. Id. As noted above, the agency removed the appellant on the basis of one 

charge of providing false information regarding census bureau questionnaires 

supported by one specification alleging that she provided false information in

Case #1. IAF, Tab 6, Subtabs 4i, 4l. A charge of providing false information is 

considered to be a charge of falsification. See, e.g., Leatherbury v. Department of 

the Army, 524 F.3d 1293, 1297, 1300 (Fed. Cir. 2008) (construing charges of 

“filing a false claim against the government” and “filing a false travel voucher ” 

as charges of falsification); Rackers v. Department of Justice, 79 M.S.P.R. 262, 

266, 278 (1998) (considering a charge of “providing false information in official 

documents” as one of falsification), aff’d, 194 F.3d 1336 (Fed. Cir. 1999). To 

establish a charge of falsification, the agency must prove the following by 

preponderant evidence: (1) the appellant supplied incorrect information; and 

(2) she did so knowingly with intent to defraud, deceive, or mislead the agency

for her own private material gain.

5

Boo v. Department of Homeland Security, 

122 M.S.P.R. 100, ¶¶ 10-12 (2014). 

¶9 The administrative judge found that the appellant made contact with the 

household in Case #1 on March 25, 2014, but that she failed to ask questions of 

the respondent exactly as worded on the questionnaire in violation of agency 

 

5

Preponderant evidence is defined as the degree of relevant evidence that a reasonable 

person, considering the record as a whole, would accept as sufficient to find that a 

contested fact is more likely to be true than untrue. 5 C.F.R. § 1201.4(q). 
6

policies. ID at 9-10. He determined, however, that the appellant’s failure to ask 

the questions as worded on the questionnaire was not dispositive in the 

falsification charge because such conduct constitutes failure to follow survey 

procedures, which the agency explicitly distinguished from data falsification. ID 

at 11. Nonetheless, he concluded that the appellant’s concession during cross 

examination that she inputted data that she did not obtain during the March 25, 

2014 interview—specifically, hours usually worked each week for the respondent 

(42 hours) and her spouse (48 hours)—was sufficient to establish that she 

knowingly provided false information with the intent to deceive the agency. ID 

at 14-15. He further found that she did so for her own private material gain 

because completing surveys affected her performance appraisal. ID at 15.

¶10 Although the agency did not provide a copy of the Case #1 survey

containing the alleged false data, the trace file6reflects that the appellant entered 

a value of “42” into the survey at 9:02:43 p.m. on March 25, 2014, and a value of 

“48” at 9:02:53 p.m. IAF, Tab 6, Subtab 4r at 16. At the hearing, the appellant 

testified that these amounts referred to the number of hours the respondent and 

her husband usually worked each week and that she obtained these numbers from 

the previous interview and entered them into this survey based on the 

respondent’s assertion that “nothing had changed.” RAF, Tab 14, Hearing 

Compact Disc (HCD) (testimony of the appellant). Thus, although it is clear that 

the appellant entered information into the survey for Case #1 that she did not 

obtain from the March 25, 2014 interview, the agency has not provided any 

evidence suggesting that this information was incorrect, as required to prove a 

charge of falsification. Boo, 122 M.S.P.R. 100, ¶ 10. To the contrary, it is likely 

this information is correct given the appellant’s unrebutted testimony that the 

respondent provided her this information during a previous interview and told her 

 

6 A trace file is a record of each keystroke made by an interviewer during the course of 

an interview, along with the date and time an interviewer spends on each screen. ID

at 4 n.4 (quoting RAF, Tab 14, HCD (testimony of a Field Supervisor)).
7

that “nothing had changed” during her phone conversation with the respondent on 

March 25, 2014. HCD (testimony of the appellant). Moreover, even if this 

information was incorrect, we find that the appellant had a reasonable good faith 

belief in the truth of the information, which precludes a finding that she acted 

with deceptive intent. See Leatherbury, 524 F.3d at 1300-01. Therefore, we find 

that the agency has not proven a charge of falsification.

¶11 Although the appellant’s handling of the Case #1 survey may have been 

contrary to established procedures or otherwise improper, the agency did not 

assert such a charge against her.

7

 Rather, as stated above, the agency charged her 

with providing false information in Case #1. IAF, Tab 6, Subtab 4l. The Board is 

required to review the agency’s decision on an adverse action solely on the 

grounds invoked by the agency and may not substitute what it considers to be a 

more adequate or proper basis. Gottlieb v. Veterans Administration, 39 M.S.P.R. 

606, 609 (1989). Therefore, we cannot sustain a charge of failure to follow

survey procedure against the appellant, and such failure cannot serve as a basis to 

sustain a charge of falsification. 

¶12 In light of the foregoing, we reverse the initial decision in part and do not 

sustain the appellant’s removal.8

 

7 As noted above, the background section of the proposal notice stated that the appellant 

“submitted an interview as complete even though [she] did not ask the respondent all 

the survey questions as worded as required” and “entered data into the instrument for 

CPS case [#1] that was not provided by the respondent.” IAF, Tab 6, Subtab 4l. These 

statements describe the conduct underlying the agency’s charge and do not state a 

separate charge against the appellant. Id.; see Atchley v. Department of the Army, 

46 M.S.P.R. 297, 302 n.5 (1990) (finding that a description of the factual basis for the 

charge was intended to support the charge and did not constitute a separate charge).

8 Because we do not sustain the charge, we need not address the appellant’s arguments 

on review regarding penalty and harmful procedural error. PFR File, Tab 1 at 4-7. We 

further do not address her arguments raised for the first time on review that the agency 

committed prohibited personnel practices when it did the following: failed to inform 

her of her rights and the processes, procedures, and remedies available to her; denied 

her a hearing and an opportunity to speak with counsel; and failed to respond to her 

voicemails, emails, and questions about health insurance. Id. at 6; see Banks v. 
8

The administrative judge properly found that the appellant failed to prove her 

disability discrimination claim.

¶13 To establish an affirmative defense of disability discrimination, an appellant 

first must prove that she is an individual with a disability as defined in the 

Americans with Disabilities Act (ADA), as amended by the ADA Amendments 

Act (ADAAA), and Equal Employment Opportunity Commission (EEOC) 

regulations. Thome v. Department of Homeland Security, 122 M.S.P.R. 315, ¶ 24

(2015). 9 She may establish she has a disability by showing one of the following:

(1) she has a physical or mental impairment that substantially limits one or more 

major life activities; (2) she has a record of such an impairment; or (3) she is 

regarded as having such an impairment. Id. An impairment is considered to be a 

disability if it substantially limits an individual’s ability to perform a major life 

activity as compared to most people in the general population. Id. 

¶14 Here, the appellant alleged that the agency discriminated against her on the 

basis of her disability (deep vein thrombosis and post-thrombosis) when it

removed her. RAF, Tab 10 at 4-5, 12-13, Tab 12 at 4. In her EEO declaration, 

she stated that her doctor prescribed her pain medication to take as needed for this 

condition, that she had a “little bit of difficulty with stairs and walking long 

distances,” and that “[her condition] doesn’t really affect [her] walking but it 

slows [her] down.” IAF, Tab 6, Subtab 4d. She alleged below that she has 

trouble standing for long periods, walking long distances, and climbing stairs, but 

 

Department of the Air Force, 4 M.S.P.R. 268, 271 (1980) (explaining that the Board 

generally will not consider an argument raised for the first time in a petition for review 

absent a showing that it is based on new and material evidence not previously available 

despite the party’s due diligence). Even if we were to consider these arguments, we 

would find that these alleged agency actions are not prohibited personnel practices. See 

5 U.S.C. § 2302(b). 

9 As a Federal employee, the appellant’s disability discrimination claim arises under the 

Rehabilitation Act of 1973. Thome, 122 M.S.P.R. 315, ¶ 23. The EEOC regulations 

implementing the ADA and ADAAA have been incorporated by reference into the 

Rehabilitation Act, and the Board applies them to determine whether there has been a 

Rehabilitation Act violation. Id.; 29 C.F.R. § 1614.203(b).
9

that “[s]he did not let her disability limit her ability to do her job. ” RAF, Tab 10 

at 12. In the initial decision, the administrative judge found that the appellant did 

not submit any medical records containing a diagnosis of deep vein thrombosis 

and, therefore, concluded that she did not establish that she was an individual 

with a disability or a record of a disability. ID at 17. He further found that she 

was not regarded as having a disability based on the hearing testimonies of 

multiple agency management officials, who all testified that they had no 

knowledge of the appellant’s disability prior to her removal. Id.

¶15 The appellant generally challenges these finding on review and submits, for 

the first time, the following two documents in support of her claim that she has a 

disability and that the agency was aware of it: (1) a September 14, 1999 notice 

from the Social Security Administration finding that she was not entitled to 

disability benefits; and (2) a roster of Field Supervisors showing, among other 

things, that the appellant claimed a disability of nonparalytic orthopedic 

impairments. PFR File, Tab 1 at 3, 9-13. Based on the markings on these 

documents and references in OCR’s final agency decision, it appears that these 

documents are part of the report of investigation generated in connection with the 

appellant’s EEO complaint. Id. at 9-13; IAF, Tab 6, Subtab 4, parts 1-2. Because 

the appellant has not shown that she could not have submitted these documents 

before the record closed below, we do not consider them for the first time on 

review. See Avansino v. U.S. Postal Service, 3 M.S.P.R. 211, 214 (1980) (stating 

that, under 5 C.F.R. § 1201.115, the Board generally will not consider evidence 

submitted for the first time with the petition for review absent a showing that it 

was unavailable before the record was closed despite the party’s due diligence). 

¶16 Having considered the record and the appellant’s arguments on review, we

find no basis to disturb the administrative judge’s determination that the appellant 

failed to establish her disability discrimination affirmative defense.
10

ORDER

¶17 We ORDER the agency to cancel the appellant’s removal and to reinstate 

her effective September 5, 2014. See Kerr v. National Endowment for the Arts, 

726 F.2d 730 (Fed. Cir. 1984). The agency must complete this action no later 

than 20 days after the date of this decision.

¶18 We also ORDER the agency to pay the appellant the correct amount of back 

pay, interest on back pay, and other benefits under the Office of Personnel 

Management’s regulations, no later than 60 calendar days after the date of this 

decision. We ORDER the appellant to cooperate in good faith in the agency’s 

efforts to calculate the amount of back pay, interest, and benefits due, and to 

provide all necessary information the agency requests to help it carry out the 

Board’s Order. If there is a dispute about the amount of back pay, interest due, 

and/or other benefits, we ORDER the agency to pay the appellant the undisputed 

amount no later than 60 calendar days after the date of this decision. 

¶19 We further ORDER the agency to tell the appellant promptly in writing 

when it believes it has fully carried out the Board’s Order and of the actions it has 

taken to carry out the Board’s Order. The appellant, if not notified, should ask 

the agency about its progress. See 5 C.F.R. § 1201.181(b). 

¶20 No later than 30 days after the agency tells the appellant that it has fully 

carried out the Board’s Order, the appellant may file a petition for enforcement 

with the office that issued the initial decision on this appeal if the appellant 

believes that the agency did not fully carry out the Board’s Order. The petition 

should contain specific reasons why the appellant believes that the agency has not 

fully carried out the Board’s Order, and should include the dates and results of 

any communications with the agency. 5 C.F.R. § 1201.182(a).

¶21 For agencies whose payroll is administered by either the National Finan ce 

Center of the Department of Agriculture (NFC) or the Defense Finance and 

Accounting Service (DFAS), two lists of the information and documentation 

necessary to process payments and adjustments resulting from a Board decision 
11

are attached. The agency is ORDERED to timely provide DFAS or NFC with all 

documentation necessary to process payments and adjustments resulting from the 

Board’s decision in accordance with the attached lists so that payment can be 

made within the 60-day period set forth above.

NOTICE TO THE APPELLANT REGARDING

YOUR RIGHT TO REQUEST

ATTORNEY FEES AND COSTS

You may be entitled to be paid by the agency for your reasonable attorney 

fees and costs. To be paid, you must meet the requirements set forth at Title 5 of 

the United States Code (5 U.S.C.), sections 7701(g), 1221(g), or 1214(g). The 

regulations may be found at 5 C.F.R. §§ 1201.201, 1201.202, and 1201.203. If 

you believe you meet these requirements, you must file a motion for attorney fees 

and costs WITHIN 60 CALENDAR DAYS OF THE DATE OF THIS DECISION. 

You must file your motion for attorney fees and costs with the office that issued 

the initial decision on your appeal.

NOTICE OF APPEAL RIGHTS10

You may obtain review of this final decision. 5 U.S.C. § 7703(a)(1). By 

statute, the nature of your claims determines the time limit for seeking such 

review and the appropriate forum with which to file. 5 U.S.C. § 7703(b). 

Although we offer the following summary of available appeal rights, the Merit 

Systems Protection Board does not provide legal advice on which option is most 

appropriate for your situation and the rights described below do not represent a 

statement of how courts will rule regarding which cases fall within their 

jurisdiction. If you wish to seek review of this final decision, you should 

immediately review the law applicable to your claims and carefully follow all 

 

10 Since the issuance of the initial decision in this matter, the Board may have updated 

the notice of review rights included in final decisions. As indicated in the notice, the 

Board cannot advise which option is most appropriate in any matter.
12

filing time limits and requirements. Failure to file within the applicable time 

limit may result in the dismissal of your case by your chosen forum. 

Please read carefully each of the three main possible choices of review 

below to decide which one applies to your particular case. If you have questions 

about whether a particular forum is the appropriate one to review your case, you 

should contact that forum for more information. 

(1) Judicial review in general. As a general rule, an appellant seeking 

judicial review of a final Board order must file a petition for review with the U.S. 

Court of Appeals for the Federal Circuit, which must be received by the court 

within 60 calendar days of the date of issuance of this decision. 5 U.S.C. 

§ 7703(b)(1)(A). 

If you submit a petition for review to the U.S. Court of Appeals for the 

Federal Circuit, you must submit your petition to the court at the 

following address: 

U.S. Court of Appeals 

for the Federal Circuit 

717 Madison Place, N.W. 

Washington, D.C. 20439 

Additional information about the U.S. Court of Appeals for the Federal 

Circuit is available at the court’s website, www.cafc.uscourts.gov. Of partic ular 

relevance is the court’s “Guide for Pro Se Petitioners and Appellants,” which is 

contained within the court’s Rules of Practice, and Forms 5, 6, 10, and 11. 

If you are interested in securing pro bono representation for an appeal to 

the U.S. Court of Appeals for the Federal Circuit, you may visit our website at 

http://www.mspb.gov/probono for information regarding pro bono representation 

for Merit Systems Protection Board appellants before the Federal Circuit. The 

Board neither endorses the services provided by any attorney nor warrants that 

any attorney will accept representation in a given case. 
13

(2) Judicial or EEOC review of cases involving a claim of 

discrimination. This option applies to you only if you have claimed that you 

were affected by an action that is appealable to the Board and that such action 

was based, in whole or in part, on unlawful discrimination. If so, you may obtain 

judicial review of this decision—including a disposition of your discrimination 

claims—by filing a civil action with an appropriate U.S. district court (not the 

U.S. Court of Appeals for the Federal Circuit), within 30 calendar days after you 

receive this decision. 5 U.S.C. § 7703(b)(2); see Perry v. Merit Systems 

Protection Board, 582 U.S. ____ , 137 S. Ct. 1975 (2017). If you have a 

representative in this case, and your representative receives this decision before 

you do, then you must file with the district court no later than 30 calendar days

after your representative receives this decision. If the action involves a claim of 

discrimination based on race, color, religion, sex, national origin, or a disabling 

condition, you may be entitled to representation by a court-appointed lawyer and 

to waiver of any requirement of prepayment of fees, costs, or other security. See

42 U.S.C. § 2000e-5(f) and 29 U.S.C. § 794a. 

Contact information for U.S. district courts can be found at their respective 

websites, which can be accessed through the link below: 

http://www.uscourts.gov/Court_Locator/CourtWebsites.aspx. 

Alternatively, you may request review by the Equal Employment 

Opportunity Commission (EEOC) of your discrimination claims only, excluding 

all other issues. 5 U.S.C. § 7702(b)(1). You must file any such request with the 

EEOC’s Office of Federal Operations within 30 calendar days after you receive

this decision. 5 U.S.C. § 7702(b)(1). If you have a representative in this case, 

and your representative receives this decision before you do, then you must file 

with the EEOC no later than 30 calendar days after your representative receives

this decision. 

If you submit a request for review to the EEOC by regular U.S. mail, the 

address of the EEOC is: 
14

Office of Federal Operations 

Equal Employment Opportunity Commission 

P.O. Box 77960 

Washington, D.C. 20013 

If you submit a request for review to the EEOC via commercial delivery or 

by a method requiring a signature, it must be addressed to: 

Office of Federal Operations 

Equal Employment Opportunity Commission 

131 M Street, N.E. 

Suite 5SW12G 

Washington, D.C. 20507 

(3) Judicial review pursuant to the Whistleblower Protection 

Enhancement Act of 2012. This option applies to you only if you have raised 

claims of reprisal for whistleblowing disclosures under 5 U.S.C. § 2302(b)(8) or 

other protected activities listed in 5 U.S.C. § 2302(b)(9)(A)(i), (B), (C), or (D). 

If so, and your judicial petition for review “raises no challenge to the Board’s 

disposition of allegations of a prohibited personnel practice described in 

section 2302(b) other than practices described in section 2302(b)(8), or 

2302(b)(9)(A)(i), (B), (C), or (D),” then you may file a petition for judicial 

review either with the U.S. Court of Appeals for the Federal Circuit or any court 

of appeals of competent jurisdiction. 11 The court of appeals must receive your 

petition for review within 60 days of the date of issuance of this decision. 

5 U.S.C. § 7703(b)(1)(B). 

 

11 The original statutory provision that provided for judicial review of certain 

whistleblower claims by any court of appeals of competent jurisdiction expired on 

December 27, 2017. The All Circuit Review Act, signed into law by the President on 

July 7, 2018, permanently allows appellants to file petitions for judicial review of 

MSPB decisions in certain whistleblower reprisal cases with the U.S. Court of Appeals 

for the Federal Circuit or any other circuit court of appeals of competent jurisdiction. 

The All Circuit Review Act is retroactive to November 26, 2017. Pub. L. No. 115-195, 

132 Stat. 1510. 
15

If you submit a petition for judicial review to the U.S. Court of Appeals for 

the Federal Circuit, you must submit your petition to the court at the 

following address: 

U.S. Court of Appeals 

for the Federal Circuit 

717 Madison Place, N.W.

Washington, D.C. 20439 

Additional information about the U.S. Court of Appeals for the Federal 

Circuit is available at the court’s website, www.cafc.uscourts.gov. Of particular 

relevance is the court’s “Guide for Pro Se Petitioners and Appellants,” which is 

contained within the court’s Rules of Practice, and Forms 5, 6, 10, and 11. 

If you are interested in securing pro bono representation for an appeal to 

the U.S. Court of Appeals for the Federal Circuit, you may visit our website at 

http://www.mspb.gov/probono for information regarding pro bono representation 

for Merit Systems Protection Board appellants before the Federal Circuit. The 

Board neither endorses the services provided by any attorney nor warrants that 

any attorney will accept representation in a given case.

Contact information for the courts of appeals can be found at their 

respective websites, which can be accessed through the link below: 

http://www.uscourts.gov/Court_Locator/CourtWebsites.aspx.

FOR THE BOARD:

Washington, D.C.

 /s/ for 

Jennifer Everling

Acting Clerk of the Board
DEFENSE FINANCE AND ACCOUNTING SERVICE

Civilian Pay Operations

DFAS BACK PAY CHECKLIST

The following documentation is required by DFAS Civilian Pay to compute and pay back pay 

pursuant to 5 CFR § 550.805. Human resources/local payroll offices should use the following 

checklist to ensure a request for payment of back pay is complete. Missing documentation may 

substantially delay the processing of a back pay award. More information may be found at: 

https://wss.apan.org/public/DFASPayroll/Back%20Pay%20Process/Forms/AllItems.aspx. 

NOTE: Attorneys’ fees or other non-wage payments (such as damages) are paid by 

vendor pay, not DFAS Civilian Pay. 

☐ 1) Submit a “SETTLEMENT INQUIRY - Submission” Remedy Ticket. Please identify the 

specific dates of the back pay period within the ticket comments. 

Attach the following documentation to the Remedy Ticket, or provide a statement in the ticket 

comments as to why the documentation is not applicable: 

☐ 2) Settlement agreement, administrative determination, arbitrator award, or order. 

☐ 3) Signed and completed “Employee Statement Relative to Back Pay”. 

☐ 4) All required SF50s (new, corrected, or canceled). ***Do not process online SF50s 

until notified to do so by DFAS Civilian Pay.*** 

☐ 5) Certified timecards/corrected timecards. ***Do not process online timecards until 

notified to do so by DFAS Civilian Pay.*** 

☐ 6) All relevant benefit election forms (e.g. TSP, FEHB, etc.). 

☐ 7) Outside earnings documentation. Include record of all amounts earned by the employee 

in a job undertaken during the back pay period to replace federal employment. 

Documentation includes W-2 or 1099 statements, payroll documents/records, etc. Also, 

include record of any unemployment earning statements, workers’ compensation, 

CSRS/FERS retirement annuity payments, refunds of CSRS/FERS employee premiums, 

or severance pay received by the employee upon separation. 

Lump Sum Leave Payment Debts: When a separation is later reversed, there is no authority 

under 5 U.S.C. § 5551 for the reinstated employee to keep the lump sum annual leave payment 

they may have received. The payroll office must collect the debt from the back pay award. The 

annual leave will be restored to the employee. Annual leave that exceeds the annual leave 

ceiling will be restored to a separate leave account pursuant to 5 CFR § 550.805(g).
NATIONAL FINANCE CENTER CHECKLIST FOR BACK PAY CASES

Below is the information/documentation required by National Finance Center to process 

payments/adjustments agreed on in Back Pay Cases (settlements, restorations) or as ordered by the Merit 

Systems Protection Board, EEOC, and courts. 

1. Initiate and submit AD-343 (Payroll/Action Request) with clear and concise information 

describing what to do in accordance with decision. 

2. The following information must be included on AD-343 for Restoration: 

a. Employee name and social security number. 

b. Detailed explanation of request. 

c. Valid agency accounting. 

d. Authorized signature (Table 63). 

e. If interest is to be included. 

f. Check mailing address. 

g. Indicate if case is prior to conversion. Computations must be attached. 

h. Indicate the amount of Severance and Lump Sum Annual Leave Payment to be collected 

(if applicable). 

Attachments to AD-343 

1. Provide pay entitlement to include Overtime, Night Differential, Shift Premium, Sunday 

Premium, etc. with number of hours and dates for each entitlement (if applicable). 

2. Copies of SF-50s (Personnel Actions) or list of salary adjustments/changes and amounts. 

3. Outside earnings documentation statement from agency. 

4. If employee received retirement annuity or unemployment, provide amount and address to 

return monies. 

5. Provide forms for FEGLI, FEHBA, or TSP deductions. (if applicable)

6. If employee was unable to work during any or part of the period involved, certification of the type 

of leave to be charged and number of hours. 

7. If employee retires at end of Restoration Period, provide hours of Lump Sum Annual Leave to 

be paid. 

NOTE: If prior to conversion, agency must attach Computation Worksheet by Pay Period and required 

data in 1-7 above. 

The following information must be included on AD-343 for Settlement Cases: (Lump Sum Payment, 

Correction to Promotion, Wage Grade Increase, FLSA, etc.) 

a. Must provide same data as in 2, a-g above. 

b. Prior to conversion computation must be provided. 

c. Lump Sum amount of Settlement, and if taxable or non-taxable. 

If you have any questions or require clarification on the above, please contact NFC’s Payroll/Personnel 

Operations at 504-255-4630.