Court Opinion

ID: 9408263
Source: CourtListenerOpinion
Date Created: 2023-07-12 06:00:12.757526+00
Date Added: 2024-06-11T17:20:43.051960
License: Public Domain

UNITED STATES OF AMERICA
                        MERIT SYSTEMS PROTECTION BOARD

     SHARON M. PRYSTALSKI,                           DOCKET NUMBER
                  Appellant,                         SF-0752-16-0577-I-1

                  v.

     DEPARTMENT OF DEFENSE,                          DATE: July 11, 2023
                 Agency.

             THIS FINAL ORDER IS NONPRECEDENTIAL 1

           Bradley R. Marshall, Charleston, South Carolina, for the appellant.

           Douglas W. Frison, Esquire, APO/AP, 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
     sustained her removal for failure to follow instructions.        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 or the erroneous application of

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        A nonprecedential order is one that the Board has determined does not add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 Parties may cite nonprecedential orders,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

     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).

                                      BACKGROUND
¶2         Effective June 17, 2016, the agency removed the appellant from her School
     Psychologist position with the Daegu American School, Department of Defense
     Education Activity (DODEA), based on a charge of failure to follow instructions
     (2 specifications). Initial Appeal File (IAF), Tab 5 at 12, 24. In support of the
     charge, the agency alleged that the appellant twice failed to comply with the
     Assistant Principal’s instructions to provide him the following information: an
     updated list of the students for whom she was providing services at the school;
     the reason each child was referred for services; the start date of services for each
     child; and the total number of sessions she provided for each child. IAF, Tab 6
     at 12, 15-16, 21.
¶3         The appellant filed a Board appeal challenging her removal , and she
     requested a hearing. IAF, Tab 1. She raised several affirmative defenses but
     withdrew them during the hearing.       IAF, Tab 1 at 5; Tabs 21, 25; Hearing
     Transcript (HT), December 5, 2016, at 5.
¶4         Following a hearing, the administrative judge issued an initial decision that
     affirmed the appellant’s removal. IAF, Tab 32, Initial Decision (ID) at 1, 14.
                                                                                             3

     The administrative judge found that the agency proved the charge and both
     specifications. ID at 12. The administrative judge also found that the agency
     proved nexus and that the penalty of removal is reasonable. ID at 13-14.
¶5         The appellant has filed a petition for review, Petition for Review (PFR)
     File, Tab 3, 2 to which the agency has responded in opposition, PFR File, Tab 4.
     The appellant has filed a reply to the agency’s response. PFR File, Tab 6.

                       DISCUSSION OF ARGUMENTS ON REVIEW
     The administrative judge correctly found that the agency proved the charge by
     preponderant evidence.
¶6         To prove a charge of failure to follow instructions, an agency must establish
     that the employee was given proper instructions and she failed to follow the
     instructions,    without   regard   to   whether   the   failure   was   intentional   or
     unintentional.    Archerda v. Department of Defense, 121 M.S.P.R. 314, ¶ 16
     (2014). Even when the employee may have substantial reason to question the
     instructions, absent unusual circumstances, such as when obedience would cause
     her irreparable harm or place her in a clearly dangerous situation or when the
     instructions are clearly unlawful, she must first comply with the instructions and
     then, if she disagrees with them, register her complaint or grievance later.
     Pedeleose v. Department of Defense, 110 M.S.P.R. 508, ¶¶ 16, 18, aff’d,
     343 F. App’x 605 (Fed. Cir. 2009); Larson v. Department of the Army,
     91 M.S.P.R. 511, ¶ 21 (2002).
¶7         Applying these standards, the administrative judge found that the Assistant
     Principal gave the appellant proper instructions and that she failed to fully
     comply with them.      ID at 7.     The administrative judge further found that the
     appellant did not show that providing the requested information was clearly

     2
       With her petition for review, the appellant submits the hearing transcript in this
     appeal. PFR File, Tab 3 at 28-244. Because the transcript is already part of the record,
     IAF, HT, it does not constitute new evidence. See Meier v. Department of the Interior,
     3 M.S.P.R. 247, 256 (1980).
                                                                                      4

     unlawful so as to excuse her noncompliance with the instructions. ID at 9. The
     administrative judge therefore sustained the charge. ID at 12.
¶8        On review, the appellant argues that the Assistant Principal’s instructions
     violated various laws, agency policies, and professional ethics standards that
     prohibit psychologists from disclosing confidential information. PFR File, Tab 3
     at 10-23. The administrative judge thoroughly addressed this argument in the
     initial decision and found that the appellant was not precluded by law or
     professional ethics from providing the Assistant Principal with the requested
     information.     ID at 8-12.   In making this finding, the administrative judge
     considered each item of information that the Assistant Principal asked the
     appellant to provide and found that none of the requested information is
     confidential. ID at 9-10. For example, the administrative judge found that the
     reason for counseling is not confidential to the school psychologist inasmuch as
     DODEA Manual 2946.4 contains a form for requesting services from the school
     psychologist which directs the individual completing the form to identify the
     reason for the request. ID at 9. The administrative judge further found that for
     school personnel to work collaboratively and manage resources, the information
     at issue must be shared with administrators when requested. ID at 10.
¶9        Although the appellant clearly disagrees with the administrative judge’s
     finding that disclosing the information would not be clearly unlawful, she has
     failed to show any legal error in the administrative judge’s analysis. See 5 C.F.R.
     § 1201.115(b).    Therefore, she has failed to provide a reason to disturb the
     administrative judge’s finding that the agency proved the charge. See Crosby v.
     U.S. Postal Service, 74 M.S.P.R. 98, 105-06 (1997) (finding no reason to disturb
     the administrative judge’s findings when she considered the evidence as a whole,
     drew appropriate references, and made reasoned            conclusions); see also
                                                                                              5

      Broughton v. Department of Health and Human Services, 33 M.S.P.R. 357, 359
      (1987) (same). 3

      The administrative judge correctly found that the pena lty of removal is
      reasonable.
¶10         The appellant also argues on review that the agency improperly applied the
      Douglas factors 4 in deciding to remove her and that the penalty of removal is too
      severe. 5   PFR File, Tab 3 at 23-25.        When, as here, the agency’s charge is
      sustained, the Board will review the agency-imposed penalty only to determine if
      the agency considered all the relevant factors and exercised management
      discretion within tolerable limits of reasonableness. Wiley v. U.S. Postal Service,
      102 M.S.P.R. 535, ¶ 14 (2006), aff’d, 218 F. App’x 1001 (Fed. Cir. 2007). In
      reviewing such a penalty, the Board must give due weight to the agency’s primary
      discretion in maintaining employee discipline and efficiency, recognizing that the
      Board’s function is not to displace management’s responsibility, but to ensure
      that managerial judgment has been properly exercised. Miles v. Department of
      the Navy, 102 M.S.P.R. 316, ¶ 12 (2006). The Board will modify a penalty only
      when it finds that the agency failed to weigh the relevant factors or that it clearly

      3
        To the extent the appellant may be arguing that her decision to not follow the
      Assistant Principal’s instructions was covered by the Follow the Rules Act, Pub. L.
      No. 115-40, 131 Stat. 861 (2017), which states that Federal workers are now protected
      under whistleblower laws from retaliation for refusing to obey orders that violate rules
      and regulations and not just statutes, the Board, in Fisher v. Department of the Interior,
      2023 MSPB 11, ¶ 19, determined that this Act—which was signed into law on June 14,
      2017—would not be applied retroactively. See 5 U.S.C. § 2302(b)(9)(D). For that
      reason, we have not applied this law to this case.
      4
        In Douglas v. Veterans Administration, 5 M.S.P.R. 280, 305-06 (1981), the Board
      articulated a nonexhaustive list of 12 factors that are relevant in assessing the
      appropriate penalty for an act of misconduct. These so -called Douglas factors include
      the nature and seriousness of the offense, the appellant’s past disciplinary record, her
      past work record, her potential for rehabilitation, and mitigating circumstances
      surrounding the offense. Id.
      5
        The appellant does not challenge the administrative judge’s finding that the agency
      proved nexus. ID at 13. We discern no reason to disturb this finding.
                                                                                            6

      exceeded the bounds of reasonableness in determining the penalty. Adam v. U.S.
      Postal Service, 96 M.S.P.R. 492, ¶ 5 (2004).
¶11         The decision letter and the deciding official’s written analysis of the
      Douglas factors demonstrate that she properly weighed these factors in deciding
      to remove the appellant. IAF, Tab 5 at 24-33. The deciding official found that
      the appellant’s misconduct was “very serious” as it relates to the appellant’s
      duties and responsibilities. Id. at 24. The deciding official also considered that
      the appellant had two recent instances of prior discipline (a letter of repr imand
      and a 5-day suspension) for similar misconduct and that removal is within the
      range of penalties set forth in the DODEA Schedule of Offenses and
      Recommended Penalties. Id. at 24-25, 28-29, 146; IAF, Tab 6 at 24-25, 31-32.
¶12         The deciding official also found that, although the appellant had over
      13 years of Federal service, she is not dependable or reliable. IAF, Tab 5 at 28.
      In addition, the deciding official concluded that the appellant’s misconduct
      caused management to lose all trust and confidence in her ability to perform her
      assigned duties and that her potential for rehabilitation was doubtful, given her
      disciplinary record and her repeated failure to follow instructions. Id. at 25, 29.
¶13         In assessing the reasonableness of the agency’s penalty, the administrative
      judge noted the factors that the deciding official considered in making her penalty
      determination and found that the agency showed that removal was within the
      bounds of reasonableness. ID at 14. Recognizing that the Board must accord
      proper deference to the agency’s primary discretion in managing its workforce,
      we see no reason to disturb this finding. See Douglas, 5 M.S.P.R. at 306.
¶14         Accordingly, we affirm the initial decision.
                                                                                         7

                           NOTICE OF APPEAL RIGHTS 6
      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 rev iew
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).
      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:

6
  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. 420 (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 to waiver of any
                                                                                 9

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
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
                                                                                      10

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. 7    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.

7
   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 Presiden t 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 juris diction.
The All Circuit Review Act is retroactive to November 26, 2017. Pub. L. No. 115 -195,
132 Stat. 1510.
                                                                       11

      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.