Court Opinion

ID: 9373340
Source: CourtListenerOpinion
Date Created: 2023-02-22 16:04:18.239237+00
Date Added: 2024-06-11T17:16:41.632015
License: Public Domain

UNITED STATES OF AMERICA
                        MERIT SYSTEMS PROTECTION BOARD

     KENNETH ROYAL,                                  DOCKET NUMBER
                 Appellant,                          AT-0752-14-0853-I-1

                  v.

     UNITED STATES POSTAL SERVICE,                   DATE: October 7, 2022
                   Agency.

             THIS FINAL ORDER IS NONPRECEDENTIAL 1

           Lorenzo Cobb, Esquire, Sugarhill, Georgia, for the appellant.

           Erika F. Campbell-Harris, Esquire, Atlanta, Georgia, 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
     dismissed for lack of jurisdiction his appeal of an alleged involuntary disability
     retirement. Generally, we grant petitions such as this one only when: the initi al
     decision contains erroneous findings of material fact; the initial decision is based

     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        A nonprecedential order is one that the Board has determined does not add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 Parties may cite nonprecedential orders,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).
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     on an erroneous interpretation of statute or regulation or the erroneous application
     of the law to the facts of the case; the administrative judge’s rulings during eith er
     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).

                                      BACKGROUND
¶2         The appellant held the position of Mail Processing Clerk at the agency’s
     North Metro Processing and Distribution Center in Duluth, Georgia.             Initial
     Appeal File (IAF), Tab 5 at 118, Tab 11 at 134. His position required that he be
     able to perform prolonged standing, walking, bending, and reaching . IAF, Tab 5
     at 116.
¶3         In September 2013, the appellant made multiple requests for a change in his
     work schedule and attached a letter from his psychiatrist supporting the requested
     schedule change based on the appellant’s mental health issue and obstructive
     sleep apnea.     Id. at 72-73, 77-80.   The agency denied his requests based on
     insufficient documentation. Id. at 72, 77, 79. The agency referred his request to
     the agency’s District Reasonable Accommodation Committee (DRAC), which
     considered it a request for a reasonable accommodation. Id. at 71-72. After the
     appellant’s meeting with the DRAC in October 2013, the DRAC chairperson sent
     him a list of current, vacant, and funded positions in the Atlanta district for which
     he could apply. Id. at 61-70. The appellant declined the job offers and stated, “I
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     am not able to fully respond to the recommendation because I have not been
     provided all the pertinent information related to the available job openings.” Id.
     at 59-60. In response, the DRAC chairperson informed the appellant that, based
     on his decision to decline the job offers, his reasonable accommodation case was
     considered closed. Id. at 37. The appellant then made another request for the
     schedule change to an agency Human Resources Manager. Id. at 44. The Human
     Resources Manager denied his request because he had been given the opportunity
     to select from positions that would have provided                him the requested
     accommodation. Id. at 27. The appellant replied. Id. at 21-25.
¶4         In December 2013, the appellant applied for Social Security Disability
     Insurance (SSDI) benefits and listed that he had a mental health issue in addition
     to various physical conditions concerning his feet, ankles, toes, knees, and
     elbows. Id. at 100-04. He also stated that his “duties and responsibilities have
     become a daily challenge” due to “constant pain” and that “standing for 8 hours is
     very painful and discomforting.” Id. at 110. The Social Security Administration
     (SSA) granted the appellant’s application for SSDI benefits.            IAF, Tab 10,
     Subtab E at 1.
¶5         On January 7, 2014, the appellant had surgery on his left foot that rendered
     him unable to stand continuously for 8 hours for approximately 3 months. IAF,
     Tab 5 at 140-41. He applied for disability retirement to the Office of Personnel
     Management (OPM) and stated that he became disabled on January 7, 2014, due
     to foot surgery. Id. at 112. In addition to listing a mental health issue with sleep
     apnea as one of his injuries or diseases, he listed injuries to his back, ankles, feet,
     toes, left elbow (tendonitis), and knees.      Id.   The appellant alleged that the
     injuries to his feet, ankles, toes, and knees affected his basic job duties and
     responsibilities of standing, walking, and pulling and pushing equipment. Id. He
     also claimed that he could not work at the required pace or bend down properly.
     Id. OPM approved his application for disability retirement, which was e ffective
     August 18, 2014. IAF, Tab 11 at 132-34. OPM found that the appellant was
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     disabled for his position “due to Back Injury, Ankles L/F, Foot (Right and Left).”
     IAF, Tab 10, Subtab F at 2.
¶6        The appellant filed a Board appeal of his alleged involuntary disability
     retirement and requested a hearing. IAF, Tab 1. After holding a jurisdictional
     hearing, the administrative judge issued an initial decision dism issing the appeal
     for lack of jurisdiction. IAF, Tab 18, Initial Decision (ID) at 1, 10. Specifically,
     she found that the appellant failed to prove that his disability retirement was
     involuntary because he did not make a request for an accommodation for his
     disabling medical conditions that would have allowed him to continue working.
     ID at 9-10.
¶7        The appellant has filed a petition for review. Petition for Review (PFR)
     File, Tab 1. The agency has filed a response. PFR File, Tab 4.

                     DISCUSSION OF ARGUMENTS ON REVIEW
¶8        The Board’s jurisdiction is limited to those matters over which it has been
     given jurisdiction by law, rule, or regulation.        Maddox v. Merit Systems
     Protection Board, 759 F.2d 9, 10 (Fed. Cir. 1985). An employee-initiated action,
     such as a retirement, is presumed to be voluntary and therefore outside the
     Board’s jurisdiction. Vitale v. Department of Veterans Affairs, 107 M.S.P.R. 501,
     ¶ 17 (2007). An involuntary retirement is tantamount to a removal, however, and
     is therefore subject to the Board’s jurisdiction.    Id.   The appellant bears the
     burden of proving jurisdiction by a preponderance of the evidence.         5 C.F.R.
     § 1201.56(b)(2)(i)(A).
¶9        To establish the Board’s jurisdiction over an involuntary disability
     retirement appeal, the appellant must show that: (1) he indicated to the agency
     that he wished to continue working but that his medical limitation s required a
     modification of his work conditions or duties, i.e., accommodation; (2) there was
     a reasonable accommodation available during the period between the date on
     which he indicated to the agency that he had medical limitations, but desired to
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      continue working, and the date that he was separated that would have allowed
      him to continue working; and (3) the agency unjustifiably failed to offer that
      accommodation. Mims v. Social Security Administration, 120 M.S.P.R. 213, ¶ 17
      (2013).
¶10        Here, the administrative judge properly found that the appellant failed to
      satisfy the first prong of the Mims test because he did not request an
      accommodation for his disabling medical conditions. ID at 9. Specifically, she
      found that the appellant had disabling medical conditions concerning his feet,
      ankles, and back. Id.; IAF, Tab 5 at 110, 112, Tab 10, Subtab F at 2. She further
      found it undisputed that the appellant did not seek an accommodation for these
      conditions when he earlier requested a schedule change based on his sleep apnea .
      ID at 7; IAF, Tab 5 at 72-73, 77-80. Based on our review of the record, we agree
      with these findings.
¶11        In his petition for review, the appellant disputes the administrative judge’s
      finding that he failed to request an accommodation for disabling medical
      conditions. PFR File, Tab 1 at 9. Specifically, he alleges that he only needed an
      accommodation for a mental health condition and for obstructive sleep apnea and
      not for his foot injury. Id. He asserts that, had the agency granted the requested
      schedule change, he could have continued working despite his foot injury. Id.
      at 8. He further claims that the only reason he applied for SSDI and disability
      retirement was because the agency previously failed to accommodate his mental
      health condition and obstructive sleep apnea. Id.
¶12        The administrative judge considered these arguments and the appellant’s
      supporting testimony below.      However, she found that his testimony was
      inconsistent with the record.   ID at 7-9; IAF, Tab 16, Hearing Compact Disc
      (testimony of the appellant). For the reasons described in the initial decision, we
      agree with the administrative judge’s finding that the appellant’s testimony was
      inconsistent with the medical evidence and his certifications to SSA and OPM.
      ID at 8-9.    For example, the administrative judge noted that the appellant
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      represented to SSA that “[f]or the last year and a half, [his] feet have become
      more problematic” and that he has “not been able to find” shoes that do not
      “cause [him] severe pain.” ID at 8; IAF, Tab 10, Subtab E at 5. She also noted
      that the appellant certified to OPM that his “[f]eet, ankles, toes and knees affect
      basic job duties/responsibilities of standing, walk ing, pushing and pulling of
      equipment” and that his “[b]ack and [left elbow] affect [his] ability to bend and
      lift trays over shoulder height.” ID at 8; IAF, Tab 5 at 112. Moreover, we find
      that the appellant has not provided a reason on review to disturb the
      administrative judge’s determination that his testimony was belied by the
      documentary evidence. See Crosby v. U.S. Postal Service, 74 M.S.P.R. 98, 106
      (1997) (finding no reason to disturb the administrative judge’s findings when she
      considered the evidence as a whole, drew appropriate inferences, and made
      reasoned conclusions); Broughton v. Department of Health & Human Services,
      33 M.S.P.R. 357, 359 (1987) (same).
¶13         Lastly, we find that the appellant’s remaining arguments on review provide
      no reason to disturb the initial decision. For the reasons discussed above, we find
      that the administrative judge did not, as the appellant argues, abuse her discretion
      in finding that he failed to request an accommodation for his disabling medical
      conditions regarding his feet, ankles, and back. PFR File, Tab 1 at 1, 7, 9; ID
      at 9. We further find that the appellant’s claims that the agency deprived him of
      information necessary to evaluate the DRAC’s job offers, and that the agency
      could have granted the requested schedule change without undue hardship, are
      immaterial to the relevant issue of whether the appellant satisfied the first prong
      of the Mims test. PFR File, Tab 1 at 5.
¶14         Accordingly, we find that the administrative judge properly dismissed the
      appeal for lack of jurisdiction.
                                                                                          7

                           NOTICE OF APPEAL RIGHTS 2
      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 mu st 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:

2
  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.
                                                                                    8

                             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
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
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to waiver of any requirement of prepayment of fees, costs, or other securi ty. 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
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
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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. 3   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
Board neither endorses the services provided by any attorney nor warrants that
any attorney will accept representation in a given case.

3
   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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      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.