Opinion ID: 212058
Heading Depth: 3
Heading Rank: 3

Heading: Relevant considerations in the position-oriented framework

Text: 40 In applying the position-oriented approach, we consider the relevant factors established by Bingaman and Watson in determining whether or not a position, not an employee, is entitled to LEO status. And, as in Watson, evidence of an individual employee's activities will be considered insofar as it substantially conflicts with our position determination. 41 As previously noted, our cases offer an array of factors to be considered in applying the position-oriented approach to our review of LEO determinations. Both Watson and Hall used different factor-based tests to aid their review of LEO determinations. Prior to Watson, the Hobbs-Bingaman factors were predominant in this court's review of LEO determinations. While Watson identified five factors that it held to be of primary importance, it did not do away with the Hobbs-Bingaman factors. It instead allowed those factors to be considered as necessary and appropriate in addition to its five enumerated factors. Watson, 262 F.3d at 1303. 42 In reviewing the rationale behind the Watson factors, the Hobbs-Bingaman factors and this court's opinions in Bingaman, Hannon II, Hall, Watson and Koenig, two factors predominate over all others. Indeed, it could be said that certain identified factors are really proxies for the two main considerations behind our LEO cases. 43 The most important consideration in our position-oriented approach of LEO determinations is the physical vigorousness required by the position in question. As we noted in Bingaman, the legislative history behind § 8331(20) emphasized that LEO positions should be composed, insofar as possible, of young men and women physically capable of meeting the vigorous demands of occupations which are far more taxing physically than most in the federal service. Bingaman, 127 F.3d at 1435 (quoting S.Rep. No. 93-948, at 2 (1974), reprinted in 1974 U.S.C.C.A.N. 3698, 3699). In Hannon II, Watson , and Hall, we likewise pointed out that physical vigorousness was a factor of utmost importance in determining LEO status. Hannon II, 234 F.3d at 677-78; Watson, 262 F.3d at 1302; Hall, 264 F.3d at 1058 (We agree with the Board's analysis in Hobbs that the relevance of hazard to a LEO analysis is that physical stamina and vigor are necessary to overcome such hazards.). 44 The preeminence of a position's physical vigorousness in determining whether or not a federal position qualifies for LEO status is further supported by the legislative history behind § 8331(20). See S.Rep. No. 93-948, at 2 (1974), reprinted in 1974 U.S.C.C.A.N. 3698, 3699; see also 5 U.S.C. § 8401(17)(A)(ii) (2000) (referring to the definition of law enforcement officer in the Federal Employees Retirement System as being an employee whose duties are sufficiently rigorous that employment opportunities should be limited to young and physically vigorous individuals); S.Rep. No. 99-166, at 41 (1985), reprinted in 1986 U.S.C.C.A.N. 1405, 1446 (asserting that, for the purposes of the Federal Employees Retirement System, a law enforcement officer was intended to be an employee with rigorous law enforcement duties that require young and vigorous individuals). Thus, as evidenced by the relevant legislative history and our precedents, physical vigorousness is the sine qua non of LEO status determinations. Absent a showing of a position's requirement of physical vigorousness, an employee cannot successfully show LEO status. 45 All of the factor-based tests have attempted to devise factors that could help in determining the physical vigorousness required by a position. For example, in the Hobbs-Bingaman framework, we considered whether or not an employee worked for long periods without a break, was on call twenty four hours a day and/or was required to maintain a level of physical fitness. Bingaman, 127 F.3d at 1436. Similarly, in Watson, we inquired as to whether a position had an early mandatory retirement age, a youthful maximum entry age, and physical demands so great as to require a youthful workforce. Watson, 262 F.3d at 1303. These factors, pulled from our precedents, are the exclusive factors that a court should consider in determining whether a position is sufficiently vigorous to qualify for LEO status. 46 But physical vigorousness is only the first of two inquiries. As a secondary consideration, this court has also examined the hazardousness of a position in LEO determinations. Hazard, while important, is secondary to physical vigorousness because the legislative history emphasizes physical vigor to a greater extent and also because Hall instructs us to use hazard as a secondary indication of physical vigorousness. See Hall, 264 F.3d at 1058. Language in Bingaman, Hannon II and Watson stresses hazardousness as a major factor independent of vigorousness. Given our precedent, it is clear to us that physical vigorousness and hazardousness are the major factors to be considered in determining a federal employee's LEO status. 47 In Bingaman, we inquired as to whether an employee was authorized to carry a firearm, had frequent contact with criminal suspects and/or interrogated witnesses and suspects (giving Miranda warnings where appropriate). Bingaman, 127 F.3d at 1436. In Watson, we asked whether a position exposed an employee to hazard or danger and whether a position required employees to guard life or property instead of more frequently pursuing or detaining criminals (with guarding life or property as not being LEO activity). Watson, 262 F.3d at 1303. These factors attempted to get to the essence of whether or not a position was hazardous enough to be considered a LEO position. (Indeed, the fifth Watson factor was explicit in identifying hazardousness as an important factor.) These factors, previously enumerated by this court, are the exclusive factors to be considered in determining a position's hazardousness. 48 Thus, we hold that there are two major factors that should be considered in determining whether a position should be conferred LEO status. First, and predominant, is the physical vigorousness required by the position. The relevant considerations in any vigorousness determination are whether or not the position brings with it (in order of importance): 1) strenuous physical fitness requirements; 2) age requirements (such as a mandatory retirement age or a maximum entry age); or 3) a requirement that an employee be on call twenty four hours a day. 8 These sub-factors should be evaluated by the Board or the Court of Federal Claims, who must apply the facts to the law to determine which sub-factors, if any, have been satisfied. 9 Once that is complete, the court will have the discretion to weigh the sub-factors in making a vigorousness determination. 10 If the court finds that the position in question did not require vigorousness as herein defined, the LEO inquiry is at its end and the position in question must be deemed to be outside of the scope of 5 U.S.C. § 8331(20). 11 If the position is found to be vigorous, then the second major factor necessary to establish LEO status — hazardousness — must be considered. 49 To determine hazardousness, a court should consider whether the position (in order of importance): requires frequent and consistent contact with criminal suspects on the part of the employee (including interrogation of suspects and pursuit or detention of criminals); or authorizes the employee to carry a firearm. 12 As in Watson, the hazardousness sub-factors are to be considered under the position-oriented approach. Again, this determination of hazardousness will be at the discretion of the court. 13 50 When a court determines that a position fails to qualify for LEO status, the court must afford the employee the opportunity to show that, notwithstanding the absence of a described LEO position, the employee in fact does qualify for LEO credit. This opportunity is necessary since it is possible that agencies will not always keep job descriptions current to match the actual activities of the individuals who occupy described positions. For example, an employee occupying a position that fails to satisfy the test for vigorousness or hazard may nonetheless by actual duties be required to satisfy both those tests. The possible conflict between a position based decision and a decision driven by the activities of a particular individual was foreseen by the Board in Watson: evidence of actual duties performed ... [must show] that — contrary to the official documentation of the position — `the basic reason for the existence of the position' was actually investigation, apprehension, or detention. Watson, 86 M.S.P.R. at 328. Therefore, the employee has the opportunity to disprove the conflict between the description of the position and the real-life facts of occupying the position. To establish LEO status in this fashion, the employee must, consistent with the regulation, show that fifty percent or more of his or her actual duties were LEO duties (i.e. duties that satisfy the vigorousness and hazardousness requirements for LEO status). A preponderance of the evidence must support the employee's claim.