Court Opinion

ID: 9373687
Source: CourtListenerOpinion
Date Created: 2023-02-22 16:06:43.896223+00
Date Added: 2024-06-11T17:16:48.547114
License: Public Domain

UNITED STATES OF AMERICA
                        MERIT SYSTEMS PROTECTION BOARD

     PARRISH F. WEAVER,                              DOCKET NUMBER
                   Appellant,                        DC-315H-16-0392-I-1

                  v.

     DEPARTMENT OF LABOR,                            DATE: May 19, 2022
                 Agency.

             THIS FINAL ORDER IS NONPRECEDENTIAL 1

           Norman Jackman, Esquire, Lincoln, New Hampshire, for the appellant.

           Beth Heleman, Esquire and Christine Han, Esquire, Washington, D.C., for
             the agency.

                                           BEFORE

                               Raymond A. Limon, Vice Chair
                                 Tristan L. Leavitt, Member

                                       FINAL ORDER

¶1         The appellant has filed a petition for review of the initial decision, which
     dismissed his probationary termination appeal for lack of jurisdiction. Generally,
     we grant petitions such as this one only when:          the initial decision contains
     erroneous findings of material fact; the initial decision is based on an erroneous

     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        A nonprecedential order is one that the Board has determined does not add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 Parties may cite nonprecedential orders,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

     interpretation of statute or regulation 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. 5 C.F.R. § 1201.113(b).
¶2         On February 25, 2016, the appellant filed an appeal of his January 26, 2013
     termination from his Procurement Analyst position during his 1 -year probationary
     period for poor performance, excessive tardiness, and excessive absences. Initial
     Appeal File (IAF), Tab 1 at 4, Tab 9 at 2, Tab 11 at 13-15. The administrative
     judge dismissed the appeal for lack of jurisdiction, finding that the appellant did
     not allege that he is an employee who has a statutory right of appeal to the Board
     under 5 U.S.C. chapter 75 or that his termination was based upon either partisan
     political reasons or marital status, which would give rise to a regulatory right of
     appeal under 5 C.F.R § 315.806(b). 2 IAF, Tab 14, Initial Decision (ID) at 5.
     Additionally, the administrative judge found that the Board lacks jurisdiction
     pursuant to 5 C.F.R. § 315.806(c) because the appellant was terminated for
     postappointment reasons. ID at 4-5. Finally, the administrative judge found that,
     absent an otherwise appealable action, the Board lacks jurisdiction to consider the
     appellant’s allegations that the agency committed harmful error by failing to

     2
       The administrative judge did not address the timelines s of the appeal. IAF, Tab 14
     at 2 n.1. Because we agree with the administrative judge’s finding that the Board lacks
     jurisdiction, we similarly decline to address the timeliness issue. See, e.g., Rosell v.
     Department of Defense, 100 M.S.P.R. 594, ¶ 5 (2005), aff’d, 191 F. App’x 954 (Fed.
     Cir. 2006).
                                                                                          3

     comply with the notice provisions of its collective bargaining agr eement and it
     committed sexual harassment and falsified Government documents in terminating
     him. ID at 5. For the reasons set forth in the initial decision, we agree with the
     administrative judge that the Board lacks jurisdiction over the appeal.
¶3         On review, the appellant argues for the first time that his termination was
     based on his marital status and resulted because he was not part of his
     supervisor’s “singles clique.” Petition for Review (PFR) File, Tab 1 at 4-8. To
     support his argument, he submits numerous documents for the first time on
     review, including, among other things, three employee declarations, his 2012
     performance rating, a 2012 training certificate, and a January 10, 2013 cash
     award. Id. at 15-52. The Board will not consider evidence or 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.
     Banks v. Department of the Air Force, 4 M.S.P.R. 268, 271 (1980); Avansino v.
     U.S. Postal Service, 3 M.S.P.R. 211, 214 (1980); see 5 C.F.R. § 1201.115(d). To
     constitute new and material evidence, the information contained in the
     documents, not just the documents themselves, must have been un available
     despite the appellant’s due diligence when the record closed. 3           Grassell v.
     Department of Transportation, 40 M.S.P.R. 554, 564 (1989); see 5 C.F.R.
     § 1201.115(d).
¶4         Despite receiving notice of the Board’s jurisdictional requirements, IAF,
     Tab 9, the appellant did not argue below that his termination was based on his
     marital status. On review, the appellant asserts that he failed to raise such an
     argument because he suffers from severe health and mental problems , which
     cause an inability to focus and articulate thoughts. PFR File, Tab 4 at 4-6. We

     3
        The appellant also submits additional documents, such as a copy of a security
     clearance investigation, which he previously submitted below. PFR File, Tab 1
     at 17-19. Evidence that is already a part of the record is not new. Meier v. Department
     of the Interior, 3 M.S.P.R. 247, 256 (1980).
                                                                                             4

     find that the appellant has not established that his health problems impaired his
     ability to adequately pursue his appeal below. The appellant was represented by
     counsel below and submitted argument concerning the circumstances surrounding
     his termination and the Board’s jurisdiction. Moreover, he has not submitted any
     medical documentation regarding his medical condition or how it prevented him
     from raising certain arguments during the proceedings below. Accordingly, we
     decline to consider the appellant’s new argument and evidence for the first time
     on review.
¶5         On review, the appellant also asserts that there is no evidence to support the
     agency’s contention in his termination notice of his poor performance because he
     received a satisfactory performance rating and a cash award. PFR File, Tab 1 at
     9. He also contends that he was not absent from work as charged, but rather,
     attending three offsite training courses. Id. at 9-10. These arguments pertain to
     the merits of the termination decision, rather than the Board’s jurisdiction over
     the appeal, and do not provide a basis to disturb the initial decision.               See
     Schmittling v. Department of the Army, 219 F.3d 1332, 1337 (Fed. Cir. 2000)
     (finding that a decision on the merits would be a nullity in the absence of Board
     jurisdiction); Sapla v. Department of the Navy, 118 M.S.P.R. 551, ¶ 7 (2012)
     (finding that an appellant’s arguments on review regarding the merits of an
     agency action were not relevant to whether the Board has jurisdiction over an
     appeal).
¶6         Accordingly, for the reasons discussed above, we deny the appellant’s
     petition for review and affirm the initial decision dismissing his probationary
     termination appeal for lack of jurisdiction. 4

     4
      The appellant filed several motions for leave to file an additional pleading. PFR File,
     Tabs 6, 8, 12. In these motions, he seeks leave from the Board to submit evidence
     concerning a second background investigation following his termination, which he
     summarily contends “validates [his] nonfrivolous allegation as stated in his PFR.” PFR
     File, Tab 12 at 4. Although the evidence that the appellant seeks leave to submit
     appears to postdate the initial decision, he has failed to explain how it would warrant an
                                                                                      5

                         NOTICE OF APPEAL RIGHTS 5
      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.
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).

outcome different from the initial decision or would establish Board jurisdiction over
his appeal. Accordingly, the appellant’s motions for leave to submit additional
evidence and argument on review are denied.
5
  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.
                                                                                         6

      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. ____ , 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
                                                                                  7

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

      (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
                                                                                      8

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. 6 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.
      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

6
   The original statutory provision that provided for judicial review of certain
whistleblower claims by any court of appeals of competent jurisdi ction 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. C ourt 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.
                                                                             9

Board neither endorses the services provided by any atto rney 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:                                    /s/ for
                                          Jennifer Everling
                                          Acting Clerk of the Board
Washington, D.C.