Opinion ID: 353769
Heading Depth: 1
Heading Rank: 2

Heading: VanderMOLEN'S DISCHARGE

Text: 22 Appellant VanderMolen masses a battery of arguments attacking his discharge as in violation of his constitutional rights and in violation of the Air Force's own regulations. Because we find that his discharge in fact was based upon information obtained in violation of the procedures required by AFR 53-15 (including ATC Supp. 1, 15 January 1970), we do not reach the serious constitutional questions raised by VanderMolen's complaint. 27 See Harmon v. Brucker, 355 U.S. 579, 581, 78 S.Ct. 433, 2 L.Ed.2d 503 (1958). 23 It is, of course, a fundamental tenet of our legal system that the Government must follow its own regulations. Actions by an agency of the executive branch in violation of its own regulations are illegal and void. Vitarelli v. Seaton, 359 U.S. 535, 79 S.Ct. 968, 3 L.Ed.2d 1012 (1959); Service v. Dulles, 354 U.S. 363, 77 S.Ct. 1152, 1 L.Ed.2d 1403 (1957); Accardi v. Shaughnessy, 347 U.S. 260, 74 S.Ct. 499, 98 L.Ed. 681 (1954). This principle is fully applicable to the Air Force. Mogavero v. McLucas,543 F.2d 1081, 1085 (4th Cir. 1975); Geiger v. Brown, 136 U.S.App.D.C. 132, 135, 419 F.2d 714, 717-19 (1969); Powell v. Zuckert, 125 U.S.App.D.C. 55, 61, 366 F.2d 634, 640-41 (1966). 28 24 VanderMolen contends that the Faculty Board Proceedings at Chanute are tainted and illegitimate because they denied him important procedural rights guaranteed by Air Force Regulations. The Faculty Board was convened pursuant to AFR 53-15 (including ATC Supp. 1, 15 January 1970). Paragraph 4(c)(5) of AFR 53-15 states that: 25 (P)roceedings of faculty boards which inquire into the conduct, efficiency (not to be confused with flying ability), fitness, or pecuniary liability of the student as a member of the Air Force, must follow all requirements of AFR 11-1 except when a student is enrolled in a precommissioning school. 26 Similarly, Paragraph 3c(2)(a)-1 of ATC Supp. 1 states: 27 When it is anticipated that the board action could jeopardize a student's commission, rating, grade or status, or possibly cause his separation or demotion . . . all requirements of AFR 11-1 must be met. 29 28 Finally, paragraph 4 of ATC Supp. 1 strongly implies that faculty board proceedings cannot be used as the basis for administrative discharges under AFR 36-3 unless the requirements of AFR 11-1 have been met: 29 A faculty board is a fact-finding agency appointed to consider all circumstances relative to a student's training and to arrive at specific recommendations regarding retention in training or disenrollment from training. Board proceedings are used primarily as the basis for student personnel actions relative to training status. When conducted under AFR 11-1 and declared legally sufficient, board proceedings may be used as the basis for further administrative action such as that authorized in AFR 36- 2/3 . . . . 30 Even if the Faculty Board Proceedings at Chanute cannot be said to have inquired into VanderMolen's conduct, efficiency, or fitness as a member of the Air Force, it is manifest, as VanderMolen's subsequent history demonstrates, that there was the strong possibility that the findings of the Board could jeopardize his commission, rating, grade or status, or possibly cause his separation. The evident good intentions of the instructors at Chanute cannot change this fact. The procedural protections of AFR 11-1 should therefore have attached. Any other conclusion would render meaningless the protections of ATC Supp. 1, para. 3c(2)(a)-1. 31 AFR 11-1 guarantees, among other rights, the right to counsel, 30 the right to a verbatim transcript, 31 the right to notification of specific allegations, 32 the right to call and cross-examine witnesses, 33 the right to challenge Board members for cause, 34 and the right to legal review by the staff judge advocate. 35 32 It is undisputed, however, that VanderMolen was neither granted these rights, nor even notified of their existence. He called no witnesses, did not contest the admissibility of any evidence, and was not even represented by counsel. No verbatim transcript of the proceedings was prepared. Such a massive violation of procedural rights would, standing alone, be sufficient to render void the Faculty Board proceedings. See Henderson v. United States, 175 Ct.Cl. 690, 701 (1966). This conclusion is that much stronger when, as here, there is a strong likelihood that these violations have actually been prejudicial. There is a disagreement in the record, for example, about the exact nature of the doubt expressed by VanderMolen. Appellant claims in his affidavit before the district court that he objected only to the use of nuclear weapons on civilians, whereas the Summary of the Faculty Board Proceedings records a broader objection to the release of nuclear weapons or CB agents. There is some support for VanderMolen's affidavit in the form of a letter written on June 16, 1970, by Colonel Walker with reference to the AFR 36-3 action then initiated against VanderMolen: 33 When Lt Vandermolen first began counseling, it appeared he was confused and had given only superficial thought to the extent of his moral objection. Although he made his objection to the use of nuclear weapons quite apparent, he was not able to articulate his specific reservations. His initial objections were vague and difficult to pinpoint. However, as counseling continued by various members of the instructor staff, Lt Vandermolen became more capable of communicating explicitly his specific moral objection to the use of nuclear weapons against civilian population centers. This objection later was expressed quite directly to the faculty board. 36 34 Without a verbatim transcript of the Faculty Board Proceedings it is of course impossible to review its findings. If in fact the Summary of the Faculty Board's findings mischaracterized VanderMolen's position, serious prejudice might have resulted. See Cruz-Casado v. United States, 553 F.2d 672, 675 (Ct.Cl.1977). 35 It follows that the findings of the Faculty Board cannot legitimately have been used as the basis for any subsequent punitive action against VanderMolen. Paragraph 4 of ATC Supp. 1 reinforces this conclusion. Yet these findings were the primary evidence against VanderMolen before the Board of Inquiry that recommended his discharge under AFR 36-3. 37 An action resting significantly on such improper materials . . . cannot be permitted to stand. It is, of course, a general principle that an administrative decision, even a discretionary one, grounded in considerations which the tribunal should not take into account, or evidence or materials it should not weigh, is vulnerable as arbitrary and unfounded. Hankins v. United States, 183 Ct.Cl. 32, 38 (1968). 36 In Hankins the presence in the record of two invalid OER's was deemed sufficient to overturn a decision of the Secretary of the Air Force to reject a withdrawal of a resignation. In this case, the findings of the Board of Inquiry must similarly be overturned. Therefore appellant was not legally discharged in 1971. He is entitled to reinstatement in the Air Force reserve and reinstatement on active duty in the Air Force. See Cruz-Casado v. United States, 553 F.2d 672, 676 (Ct.Cl.1977). In addition, all reference in his Air Force records to the SDN Code Number, and any and all other reference to AFR 36-3, must be removed, as well as any references to the findings of the Faculty Board at Chanute. Appellant should receive as damages the back pay to which he is entitled from the date of his separation from the Air Force, less appropriate offsets, see Cunningham v. United States, 549 F.2d 753, 758 (Ct.Cl.1977); Yee v. United States, 512 F.2d 1383, 1389 (Ct.Cl.1975), the total not to exceed $9,999.99. 37