UNITED STATES OF AMERICA

MERIT SYSTEMS PROTECTION BOARD

VELETTA C. COLEMAN,

Appellant,

v.

OFFICE OF PERSONNEL 

MANAGEMENT,

Agency.

DOCKET NUMBER

DA-0841-23-0038-I-1

DATE: March 6, 2024

THIS FINAL ORDER IS NONPRECEDENTIAL1

Veletta C. Coleman, Dallas, Texas, pro se.

Jane Bancroft, Washington, D.C., for the agency.

BEFORE

Cathy A. Harris, Vice Chairman

Raymond A. Limon, Member

FINAL ORDER

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

dismissed her Federal Employees’ Retirement System benefits appeal for lack of

jurisdiction after the Office of Personnel Management (OPM) rescinded its final

decision. Generally, we grant petitions such as this one only in the following

circumstances: the initial decision contains erroneous findings of material fact;

the initial decision is based on an erroneous interpretation of statute or regulation

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 A nonprecedential order is one that the Board has determined does not add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 Parties may cite nonprecedential orders,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).
or the erroneous application of the law to the facts of the case; the administrative

judge’s rulings during either the course of the appeal or the initial decision

were not consistent with required procedures or involved an abuse of discretion,

and the resulting error affected the outcome of the case; or new and material

evidence or legal argument is available that, despite the petitioner’s due

diligence, was not available when the record closed. Title 5 of the Code of

Federal Regulations, section 1201.115 (5 C.F.R. § 1201.115). After fully

considering the filings in this appeal, we conclude that the petitioner has not

established any basis under section 1201.115 for granting the petition for review.

Therefore, we DENY the petition for review and AFFIRM the initial decision,

which is now the Board’s final decision. 2 5 C.F.R. § 1201.113(b).

¶2 The appellant asserts that the administrative judge erred in his adjudication

of the matter by, among other things, denying her discovery and a hearing.

Petition for Review (PFR) File, Tab 1 at 8, Tab 6 at 4. However, we find no

abuse of discretion by the administrative judge because none of these procedures

could result in a finding of jurisdiction where OPM has rescinded its final

decision. Initial Appeal File (IAF), Tab 23, Initial Decision at 3; see Moore v.

Office of Personnel Management, 114 M.S.P.R. 549, ¶ 4 (2010) (explaining that,

if OPM completely rescinds a final decision, the recission divests the Board of

jurisdiction over the appeal in which that decision is at issue, and the appeal must

be dismissed). To the extent the appellant asserts that the administrative judge

was biased against her, PFR File, Tab 1 at 8, we find her assertion

unsubstantiated, see Vaughn v. Department of the Treasury, 119 M.S.P.R. 605,

¶ 19 (2013) (finding that broad and general allegations of bias are insufficient to

overcome the presumption of the administrative judge’s honesty and integrity).

¶3 The appellant contends that OPM failed to designate a representative and

failed to submit its response file to the administrative judge. PFR File, Tab 1

2

 The appellant has filed a motion for leave to file an additional pleading. Petition for

Review File, Tab 8 at 1-3. The appellant’s motion does not describe any documents

that are material to the jurisdictional issue; accordingly, we deny the motion. 

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at 4. We appreciate the appellant’s frustration, but we find that nothing about

OPM’s participation in this appeal prejudiced her substantive rights. See

Brown v. Office of Personnel Management, 43 M.S.P.R. 352, 359 n.9 (1990),

reconsideration denied, 50 M.S.P.R. 383 (1991) (Table). The appellant also

contends that OPM engaged in prohibited personnel practices, to include

discrimination. E.g., PFR File, Tab 1 at 7-8, Tab 2 at 9. However, in the absence

of an appealable matter, the Board lacks jurisdiction to consider these claims. See

Wren v. Department of the Army, 2 M.S.P.R. 1, 2 (1980) (explaining that

prohibited personnel practices under 5 U.S.C. § 2302(b) are not an independent

source of Board jurisdiction), aff’d, 681 F.2d 867, 871-73 (D.C. Cir. 1982). Thus,

the appellant’s contentions do not provide a basis to disturb the initial decision. 

¶4 Lastly, the appellant argues that OPM’s decision was unduly delayed, and

she requests damages for the impact of the delay. PFR File, Tab 1 at 3, 6, Tab 2

at 9; IAF, Tab 1 at 9-11. The Board may take jurisdiction over a retirement

appeal if the appellant has made repeated requests for a reconsideration decision

and the evidence shows that OPM does not intend to issue a final decision. See,

e.g., Fletcher v. Office of Personnel Management, 118 M.S.P.R. 632, ¶ 5 (2012).

The Board has also previously found that it may assume jurisdiction when OPM

has indicated that it does not intend to issue an initial decision. See, e.g.,

Easter v. Office of Personnel Management, 102 M.S.P.R. 568, ¶ 8 (2006).

However, we find no authority for the proposition that, once OPM has issued a

decision, its delay in issuing the decision constitutes “an administrative action or

order” affecting the appellant’s rights or interests under FERS. See 5 U.S.C.

§ 8461(e). 

¶5 Accordingly, we affirm the initial decision, which dismissed the appeal for

lack of jurisdiction. OPM has represented that it intends to issue new decisions

concerning these matters. We understand the appellant has already experienced

significant delays in achieving a final resolution to her case. Therefore, the

Board encourages OPM to act expeditiously to issue a final decision. Whether

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OPM does this by first issuing an initial decision with reconsideration rights or by

issuing a final decision with Board appeal rights is a matter within OPM’s

discretion. See 5 C.F.R. §§ 841.305-.307. However, in either case, if the

appellant is dissatisfied with OPM’s final decision or if OPM fails to issue an

appealable final decision within 90 days of the date of this order, the appellant

may file a new Board appeal with the appropriate regional office. Any future

appeal must be filed within the time limits set forth in the Board’s regulations.

See 5 C.F.R. § 1201.22. 

NOTICE OF APPEAL RIGHTS3

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

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.

3

 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.

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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 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. 

(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. 420 (2017). If you have a representative in this case,

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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: 

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 

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(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.4 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). 

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. 

4

 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. 

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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: ______________________________

Gina K. Grippando

Clerk of the Board

Washington, D.C.

8