Court Opinion

ID: 9410606
Source: CourtListenerOpinion
Date Created: 2023-07-22 06:00:19.097048+00
Date Added: 2024-06-11T17:20:58.939846
License: Public Domain

UNITED STATES OF AMERICA
                        MERIT SYSTEMS PROTECTION BOARD

     AMY TERRELL PAYTON,                             DOCKET NUMBER
                  Appellant,                         AT-1221-16-0592-W-1

                  v.

     DEPARTMENT OF VETERANS                          DATE: July 21, 2023
       AFFAIRS,
                 Agency.

                  THIS ORDER IS NONPRECEDENTIAL 1

           Amy Terrell Payton, Gulfport, Mississippi, pro se.

           Alyssa W. Silberman, Esquire and Johnston B. Walker, Esquire, Jackson,
             Mississippi, for the agency.

                                           BEFORE

                               Cathy A. Harris, Vice Chairman
                                Raymond A. Limon, Member

                                     REMAND ORDER

¶1         The appellant has filed a petition for review of the initial decision, which
     dismissed her individual right of action (IRA) appeal on the basis that she failed
     to make a protected disclosure. For the reasons discussed below, we GRANT the

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        A nonprecedential order is one that the Board has determined does not add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 Parties may cite nonprecedential orders,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

     appellant’s petition for review. We MODIFY the initial decision to find that the
     appellant established jurisdiction over her claims of retaliation for her disclosure
     about sexual assault by the union president and for her prior Board appeal and
     that she did not establish jurisdiction over her alleged disclosure about a lock to
     the dementia unit. We VACATE the initial decision’s finding that the appellant
     failed to make a protected disclosure when she stated that the union president
     sexually assaulted her and that she failed to engage in protected activity when she
     filed a prior Board appeal and REMAND the case to the regional office for a
     determination of whether the agency proved by clear and convincing evidence
     that it would have reassigned the appellant and removed her absent her protected
     disclosure and activity.

                                      BACKGROUND
¶2         The appellant was employed as a Nursing Assistant. Payton v. Department
     of Veterans Affairs, MSPB Docket No. AT-0752-14-0055-I-1, Initial Appeal File
     (0055 IAF), Tab 4 at 9. On June 13, 2013, the agency proposed her removal on
     the basis of the following charges: (1) endangering the safety of a veteran when
     she failed to secure a padlock on the exit of an agency facility unit thus leading to
     the escape of a dementia patient; (2) leaving her work area through the gate; and
     (3) two specifications of lack of candor when she told the Charge Nurse that she
     had led the patient to the pier, despite the fact that he had escaped, and when she
     prepared a written statement about the incident indicating that the patient had not
     escaped.   Id. at 27-30.   After considering the appellant’s reply, the deciding
     official sustained the charges and imposed the removal, effective August 24,
     2013. Id. at 15-24.
¶3         On September 20, 2013, the appellant filed a Board appeal challenging the
     removal and requested a hearing. 0055 IAF, Tab 1. On August 28, 2014, after
     conducting the appellant’s requested hearing, the administrative judge issued an
     initial decision that sustained the removal. 0055 IAF, Tab 29, Initial Decision
                                                                                        3

     (0055 ID). He sustained only charges 1 and 3 and found a nexus between the
     charged misconduct and the efficiency of the service. 0055 ID at 4-11. He also
     found that, under the standard set forth in Warren v. Department of the Army,
     804 F.2d 654, 656–58 (Fed. Cir. 1986), the appellant failed to prove her
     affirmative defenses of whistleblower 2 retaliation for reporting allegations of
     sexual assault to the equal employment opportunity (EEO) office and gender
     discrimination on the basis of her allegations about the union president . 0055 ID
     at 18-19. Additionally, he found that the agency did not commit a due process
     violation or harmful error by considering ex parte information not contained in
     the proposal. 0055 ID at 20. He found that the chosen penalty was reasonable
     and thus he sustained the removal. 0055 ID at 11-16, 20.
¶4        The Board considered the appellant’s petition for review and did not sustain
     the removal, finding that the agency violated her due process rights by
     considering aggravating factors that were not contained in the proposal. Payton
     v. Department of Veterans Affairs, MSPB Docket No. AT-0752-14-0055-I-1,
     Final Order (0055 Final Order), ¶¶ 4-10 (Jan. 29, 2015). However, the Board
     agreed with the administrative judge that the appellant failed to prove her
     affirmative defenses of retaliation for her accusations against the union president
     and gender discrimination. Id., ¶¶ 11-13.
¶5        On April 8, 2013, prior to the first proposed removal, the appellant had
     reported to an agency psychologist that the union president had sexually assaulted
     her. The psychologist referred her to the EEO office. Payton v. Department of
     Veterans Affairs, MSPB Docket No. AT-1221-16-0592-W-1, Initial Appeal File
     (0592 IAF), Tab 17 at 26, 37. On April 9, 2013, the EEO manager referred the
     appellant’s complaint to the agency’s police department, which interviewed her

     2
       The Warren standard is not applicable to whistleblower claims under 5 U.S.C.
     § 2302(b)(9). Thus, to the extent the administrative judge considered the appellant’s
     claim as such, it should have been analyzed under the standard set forth in 5 U.S.C.
     § 1221(e). See Alarid v. Department of the Army, 122 M.S.P.R. 600, ¶ 15 (2015).
                                                                                       4

     on April 11, 2013. Id. The police and the Office of Inspector General (OIG)
     continued the investigation. Id. at 29.
¶6        The appellant had an initial EEO interview regarding the sexual harassment
     and assault on May 14, 2013, and a mediation with the Associate Nurse
     Executive, who was the proposing official during the first removal action, on
     June 11, 2013.   Id. at 9-11, 36-38; 0592 IAF, Tab 15 at 4.       Shortly after the
     mediation, the agency proposed the removal on June 13, 2013, and imposed the
     removal, effective August 24, 2013. 0055 IAF, Tab 4 at 15-30.
¶7        On February 6, 2014, after the appellant had initiated her Board appeal on
     September 20, 2013, the Medical Center Director, who served as the deciding
     official in both removal actions, authorized an investigation into the appellant’s
     allegations of sexual harassment and assault by th e union president. 0592 IAF,
     Tab 17 at 22. The investigation was conducted from February 11-12, 2014. Id.
     On May 9, 2014, the agency’s Administrative Investigation Board (AIB) issued a
     report of investigation finding that the union president had committed the
     criminal offense of sexual assault and that the EEO manager and others should
     have pursued the issue as a criminal offense but failed to do so. Id. at 22-30. In
     rendering its decision, the AIB considered the appellant’s testimony and evidence
     of her report to the OIG. Id. In response, on July 18, 2014, the deciding official
     issued a letter to the union president stating that, after reviewing the AIB report,
     he found that the accusations against the union president were unsubstantiated but
     that he should treat all persons with respect, refrain from conduct that is
     undignified and discourteous, and not make remarks of a disparaging and
     demeaning nature. Id. at 32.
¶8        The administrative judge issued the first initial decision on August 28,
     2014, and the Board issued its Final Order on January 29, 2015, not sustaining the
     removal.   0055 ID; 0055 Final Order.       On May 6, 2015, the first proposing
     official issued the appellant a letter changing her work assignment to a position
     that did not involve patient care pending review of an incident that occurred on
                                                                                              5

     October 20, 2012, 3 for which she was suspended for 7 days. 4 0592 IAF, Tab 6
     at 22, 35-53. On May 15, 2015, the proposing official proposed to remove the
     appellant on the basis of charges 1 and 3 from the previously imposed removal. 5
     Payton v. Department of Veterans Affairs, MSPB Docket No. AT-0752-14-0055-
     C-1, Compliance File (CF), Tab 1 at 11-15. The agency rescinded its proposal on
     September 9, 2015, and, on that same date, a new proposing official, the
     Associate Director of Patient Care Services, proposed the appellant’s removal on
     the basis of the same charges. CF, Tab 12 at 11-14. On November 2, 2015, the
     deciding official imposed the removal again, effective November 13, 2015.
     0592 IAF, Tab 6 at 12-15.
¶9         The appellant had initially filed a complaint with the Office of Special
     Counsel (OSC) on October 9, 2015, prior to the issuance of the removal decision.
     0592 IAF, Tab 1 at 11, 39. On February 18, 2016, OSC made the preliminary
     determination to close out its investigation and, on March 31, 2016, after
     considering the appellant’s additional submissions, issued its closeout letter
     finding that the appellant failed to demonstrate whistleblower retaliation . 6

     3
       The reassignment letter states that the incident occurred on October 2, 2012, but the
     proposal to suspend the appellant states that the incident occurred on October 20, 2012.
     0592 IAF, Tab 6 at 26, 38-40.
     4
       The appellant was charged with failure to follow instructions and conduct unbecoming
     a Federal employee when she refused to assist residents with their meals and screamed
     at agency officials. 0592 IAF, Tab 6 at 35-39. The agency initially proposed a 14-day
     suspension but then mitigated the suspension to a 7-day suspension that was imposed
     from April 8-14, 2013. Id. at 35-39.
     5
       On May 26, 2015, the Daily Caller published an article about the agency’s actions
     regarding the union president entitled, “Federal Union Leader at VA Gets Official Hand
     Slap for Sexual Assault.” 0592 IAF, Tab 17 at 33-35. In particular, the article quoted
     the AIB findings, cited the deciding official’s letter to the union president, and quoted a
     hospital spokeswoman who declined to comment on the deciding official’s letter and
     stated that the AIB’s findings do not dictate the agency’s discipline. Id.
     6
      OSC also stated that it did not have the authority to consider the appellant’s claims of
     “double jeopardy” or that her removal was contrary to law. 0592 IAF, Tab 17 at 40, 48 .
                                                                                            6

      0592 IAF, Tab 17 at 39-48. OSC considered the appellant’s assertion that she
      was removed in 2013 and 2015 in retaliation for filing an EEO complaint
      regarding the union president’s sexual assault but stated that it would defer such
      allegations to the EEO process.       Id. at 39-40, 45.     OSC also considered the
      appellant’s allegations that the agency reassigned her duties and removed her in
      retaliation for disclosing issues with the gate lock and for filing a prior Board
      appeal regarding her previous removal. Id. at 45-47. OSC found that, although
      these constituted a protected disclosure and protected activity of which agency
      officials were aware, there was no evidence that the agency’s actions were pretext
      for reprisal. 7
¶10         The appellant then filed the instant IRA appeal. 0592 IAF, Tab 1. After
      holding the appellant’s requested hearing, the administrative judge denied her
      request for corrective action, finding that she failed to demonstrate that she
      disclosed the issues with the lock on the gate to an agency official and that she
      did not engage in protected activity because the Board does not have jurisdiction
      over EEO matters in an IRA appeal and her prior Board appeal did not concern
      whistleblower retaliation. 0592 IAF, Tab 31, Initial Decision (0592 ID) at 3-8.
¶11         The appellant has filed a petition for review and the agency has responded
      in opposition to her petition. Petition for Review (PFR) File, Tabs 1, 3.

      7
        OSC found that the appellant was prohibited from challenging the first removal
      because she had previously filed a Board appeal regarding the same action. 0592 IAF,
      Tab 17 at 47. We agree. 5 U.S.C. § 7121(g) (stating that an employee may elect no
      more than one of the following remedies: a direct appeal to the Board; a negotiated
      grievance procedure pursuant to 5 U.S.C. § 7121; or a request for corrective action with
      OSC, potentially to be followed by an IRA appeal to the Board); see Sherman v.
      Department of Homeland Security, 122 M.S.P.R. 644, ¶ 13 (2015) (finding that the
      appellant’s election to grieve his fiscal year performance evaluation foreclosed the
      Board’s jurisdiction over his IRA appeal regarding the evaluation).
                                                                                              7

                       DISCUSSION OF ARGUMENTS ON REVIEW
      The appellant has established jurisdiction over her claims of whistleblower
      retaliation for her disclosure about the union president and for filing her prior
      Board appeal but not her alleged disclosure about the gate lock.
¶12         The appellant may establish jurisdiction over this IRA appeal if she
      demonstrates that she exhausted her administrative remedy before OSC 8 and
      makes nonfrivolous allegations of the following:            (1) she made a protected
      disclosure under 5 U.S.C. § 2302(b)(8) or engaged in protected activity under
      5 U.S.C. §2302(b)(9)(A)(i), (B), (C), or (D); and (2) the disclosure or activity was
      a contributing factor in the agency’s decision to take or fail to take a personnel
      action. 9 5 U.S.C. §§ 1214(a)(3), 1221(e)(1); Yunus v. Department of Veterans
      Affairs, 242 F.3d 1367, 1371 (Fed. Cir. 2001); Salerno v. Department of the
      Interior, 123 M.S.P.R. 230, ¶ 5 (2016).
¶13         If an appellant establishes jurisdiction over her IRA appeal, she is entitled
      to a hearing on the merits of her claim, which she must prove by preponderant
      evidence. 10 Salerno, 123 M.S.P.R. 230, ¶ 5.         If she proves that her protected
      disclosure or activity was a contributing factor in a personnel action taken against
      her, the agency is given an opportunity to prove, by clear and convincing

      8
        It is undisputed that the appellant exhausted her administrative remedy before OSC, as
      she filed an OSC complaint and OSC issued its closeout letter on March 31, 2016. 0592
      IAF, Tab 17 at 39-48. OSC’s correspondence reflects that the appellant exhausted her
      claims that the agency retaliated against her for reports about the union president’s
      sexual assault, her disclosure about the gate lock, and her prior Board appeal in which
      she had asserted an affirmative defense of whistleblower retaliation. Id.
      9
        A nonfrivolous allegation is an assertion that, if proven, could establish the matter at
      issue. Lewis v. Department of Defense, 123 M.S.P.R. 255, ¶ 7 (2016); 5 C.F.R.
      § 1201.4(s). An allegation generally will be considered nonfrivolous when, if an
      individual makes such an allegation under oath or penalty of perjury, it is more than
      conclusory, plausible on its face, and material to the legal issues in the appeal. Lewis,
      123 M.S.P.R. 255, ¶ 7; 5 C.F.R. § 1201.4(s).
      10
        A preponderance of the evidence is that degree of relevant evidence that a reasonable
      person, considering the record as a whole, would accept as sufficient to find that a
      contested fact is more likely to be true than untrue. 5 C.F.R. § 1201.4(q).
                                                                                         8

      evidence, that it would have taken the same personnel action in the absence of the
      protected disclosure or activity.    5 U.S.C. § 1221(e)(1)-(2); Carr v. Social
      Security Administration, 185 F.3d 1318, 1322–23 (Fed. Cir. 1999); see Salerno,
      123 M.S.P.R. 230, ¶ 5. 11
¶14        Before addressing the merits of an IRA appeal, the Board is required to
      determine first whether all jurisdictional requirements have been met . McCarty v.
      Environmental Protection Agency, 105 M.S.P.R. 74, ¶ 7 (2007); see El v.
      Department of Commerce, 123 M.S.P.R. 76, ¶ 13 (2015), aff’d, 663 F. App’x 921
      (Fed. Cir. 2016). However, by holding a hearing, an administrative judge makes
      an implicit finding that an employee made at least one nonfrivolous allegation
      that she made a protected disclosure that was a contributing factor in the agency’s
      decision to take or fail to take at least one personnel action. See Mastrullo v.
      Department of Labor, 123 M.S.P.R. 110, ¶ 15 (2015).
¶15        Although the administrative judge held a hearing, he did not make specific
      findings as to each disclosure and activity and thus we do so here. We modify the
      initial decision to first find that the appellant did not nonfrivolously allege that
      she disclosed a substantial and specific danger of public health and safety about
      problems with the gate lock in the dementia unit, but did nonfrivolously allege
      that she disclosed a violation of a law, rule, or regulation when she disclosed that
      the union president assaulted her. We also modify the initial decision to find
      jurisdiction over her claim that she engaged in protected activity when she filed
      her prior Board appeal.

      11
         The Federal Circuit decided Carr prior to the enactment of the Whistleblower
      Protection Enhancement Act of 2012, Pub. L. No. 112-199, 126 Stat. 1465. However,
      subsequent changes in the law do not affect the relevant holding.
                                                                                             9

      The appellant failed to establish jurisdiction over her alleged disclosure about the
      gate to the dementia unit.
¶16         We find that the appellant failed to nonfrivolously allege that she made a
      protected disclosure of a substantial and specific danger to public health and
      safety. A protected disclosure is a disclosure of information that the appellan t
      reasonably believes evidences any violation of any law, rule, or regulation, gross
      mismanagement, a gross waste of funds, an abuse of authority, or a substantial
      and specific danger to public health or safety. 5 U.S.C. § 2302(b)(8); Bradley v.
      Department of Homeland Security, 123 M.S.P.R. 547, ¶ 7 (2016). The proper test
      for determining whether an employee had a reasonable belief that her disclosures
      were protected is whether a disinterested observer with knowledge of the
      essential facts known to and readily ascertainable by the employee could
      reasonably conclude that the disclosure evidenced one of the circumstances
      described in 5 U.S.C. § 2302(b)(8). Bradley, 123 M.S.P.R. 547, ¶ 7.
¶17         Before OSC, the appellant asserted that she disclosed concerns to her
      supervisors about the lock on the gate of the dementia unit, which could
      constitute a disclosure of a substantial and specific danger to public health and
      safety.   0592 IAF, Tab 1, Tab 17 at 45; see Chambers v. Department of the
      Interior, 602 F.3d 1370, 1376 (Fed. Cir. 2010) (explaining that to determine
      whether the appellant has made a disclosure that is sufficiently substantial and
      specific, the Board will consider the likelihood of the harm, when the alleged
      harm will occur, and the nature of the harm, i.e., its potential consequences); see
      also Aquino v. Department of Homeland Security, 121 M.S.P.R. 35, ¶ 13 (2014).
      However, we agree with the administrative judge that the appellant failed to
      present any evidence that she in fact made the disclosure.           0592 ID at 4-6. 12
      Accordingly, we find that the appellant has failed to establish jurisdiction over

      12
         In addition, as the administrative judge notes, the appellant testified at the hearing
      that she did not believe the gate was a factor in her removal. 0592 ID at 6 (citing
      Hearing Recording at 2:13:10-33 and 2:14:55-59 (testimony of the appellant)).
                                                                                            10

      this alleged disclosure.      See El, 123 M.S.P.R. 76, ¶ 6 (stating that vague,
      conclusory, unsupported, and pro forma allegations of alleg ed wrongdoing do not
      meet the nonfrivolous pleading standard); 5 C.F.R. § 1201.4(s).

      We modify the initial decision to find that the appellant participated in protected
      activity when she filed her prior Board appeal.
¶18         Pursuant to 5 U.S.C. § 2302(b)(9)(A)(i), an appellant engages in protected
      activity when she “exercise[s] . . . any appeal, complaint, or grievance right
      granted by any law, rule, or regulation with regard to remedying a violation of
      [5 U.S.C. 2302(b)(8)].” Graves v. Department of Veterans Affairs, 123 M.S.P.R.
      434, ¶ 18 (2016). The administrative judge found that the appellant’s prior Board
      appeal did not involve a claim of whistleblower retaliation and thus did not
      constitute protected activity. 0592 ID at 8. However, in that prior decision, the
      administrative judge stated that the appellant had asserted an affirmative defense
      of whistleblower retaliation when she alleged that the agency removed her in
      retaliation for reporting sexual assault by the union president to the EEO office. 13
      0055 ID at 16-18. We find that, even if her claim was not successful, she had
      asserted an affirmative defense of whistleblower retaliation, and thus her Board
      appeal constituted     protected activity under        5 U.S.C.     § 2302(b)(9)(A)(i).
      Accordingly, we find that the appellant’s prior Board appeal constituted protected
      activity. See Elder v. Department of the Air Force, 124 M.S.P.R. 12, ¶ 40 (2016)
      (stating that the appellant’s claim that the agency’s removal action was taken in
      retaliation for his prior Board appeal, in which he had raised an affirmative
      defense under 5 U.S.C. § 2302(b)(8), and two separate petitions for enforcement
      should be analyzed under 5 U.S.C. § 2302(b)(9)(A)(i)).

      13
         The decision considered the appellant’s allegation under the standard set forth in
      Warren, 804 F.2d at 656-58, and found that, even if the appellant made a protected
      disclosure and the deciding official was aware of the disclosure, the deciding official’s
      decision failed to raise even the inference of retaliation and there was no nexus between
      any alleged retaliation and the adverse action. 0055 ID at 16 -18.
                                                                                            11

      The appellant made a protected disclosure of a violation of law, rule, or
      regulation when she disclosed that the union president sexually assaulted her.
¶19         The administrative judge found that the appellant’s activity regarding the
      union president within the EEO process was not protected because filing an EEO
      complaint is not protected activity.      0592 ID at 6-7; see Applewhite v. Equal
      Employment Opportunity Commission, 94 M.S.P.R. 300, ¶ 13 (2003) (stating that
      disclosures that are limited to EEO matters are not protected) .           However, in
      analyzing her activity, the administrative judge did not address the appellant’s
      statements regarding the union president’s criminal activity or the other
      information from the AIB. We find that the appellant’s statements relating to
      criminal misconduct concern disclosures of a violation of criminal law and that
      the appellant made protected disclosures about the sexual assault, as detailed in
      the AIB report. 14
¶20         The appellant reported that the union president sexually assaulted her in an
      interview by agency police in conjunction with an OIG and a police investigation,
      an affidavit to the AIB, and testimony before the AIB.             0592 IAF, Tab 17
      at 22-30. The AIB determined that the union president committed the criminal
      offense of sexual assault. Id. at 29-30. Accordingly, we find that she made a
      disclosure of the union president’s violation of a law and that her disclosure was
      protected. 15 See Mastrullo, 123 M.S.P.R. 110, ¶ 22 (finding that the appellant

      14
         On April 8, 2015, prior to the issuance of the AIB report, the agency issued its final
      agency decision (FAD), finding that the appellant failed to prove her discrimination
      complaint. 0592 IAF, Tab 1, Tab 17 at 31. The appellant appealed to the Equal
      Employment Opportunity Commission (EEOC) on May 11, 2015. 0592 IAF, Tab 17
      at 31. Although we have not considered the contents therein, we note that, while this
      petition for review was pending, the EEOC issued its November 29, 2017 decision
      finding no discrimination. Darlena H. v. Department of Veterans Affairs, EEOC
      Appeal No. 0120151838, 2017 WL 6422312 (Nov. 29, 2017).
      15
         The Board has held that participating in an AIB investigation does not constitute
      protected activity under 5 U.S.C. § 2302(b)(9)(A)(i), in that it was not the exercise of
      any appeal, complaint, or grievance right granted by any law, rule, or regulation , and
      thus the appellant’s testimony before the AIB was not protected as testimony or other
                                                                                              12

      made a protected disclosure that his coworker violated a law, rule, or regulation
      by criminally harassing him).

      The appellant’s prior Board appeal and disclosure about the union president were
      contributing factors to her reassignment and removal.
¶21         To prove that a disclosure was a contributing factor in a personnel action,
      the appellant only need demonstrate that the fact of, or the content of, the
      protected disclosure was one of the factors that tended to affect a personnel action
      in any way. See Mastrullo, 123 M.S.P.R. 110, ¶ 18. The knowledge/timing test
      allows an employee to demonstrate that the disclosure was a contributing factor in
      a personnel action through circumstantial evidence, such as evidence that the
      official taking the personnel action knew of the disclosure, and that the personnel
      action occurred within a period of time such that a reas onable person could
      conclude that the disclosure was a contributing factor in the personnel action.
      Id.; see 5 U.S.C. § 1221(e)(1). Once the knowledge/timing test has been met, the
      appellant has shown that her whistleblowing was a contributing factor in the

      lawful assistance under 5 U.S.C. § 2302(b)(9)(B). Graves, 123 M.S.P.R. 434, ¶¶ 18-20.
      Thus, the appellant’s testimony before the AIB did not constitute protected activity
      under 5 U.S.C. § 2302(b)(9)(A)(i). After the initial decision was issued, Congress
      passed section 1097(c)(1) of the National Defense Authorization Act for Fiscal Year
      2018, Pub. L. No. 115-91, 131 Stat. 1283 (2017), which amended 5 U.S.C.
      § 2302(b)(9)(C) to provide protections for individuals who cooperate or disclose
      information to “any other component responsible for internal investigation or review.”
      However, as we found in Edwards v. Department of Labor, 2022 MSPB 9, ¶¶ 28-32,
      this statute is not retroactive. Accordingly, we find that the appellant’s participation in
      the AIB investigation did not constitute protected activity.
      To the extent that the appellant is asserting retaliation for participation in an OIG
      investigation prior to the AIB investigation or that she was otherwise a perceived
      whistleblower, we decline to address these arguments because she is raising them for
      the first time on petition for review without showing that they are based on evidence
      previously unavailable despite her due diligence. PFR File, Tab 1 at 5-6; see Clay v.
      Department of the Army, 123 M.S.P.R. 245, ¶ 6 (2016). Moreover, there is no evidence
      that the appellant ever raised these issues with OSC. See D’Elia v. Department of the
      Treasury, 60 M.S.P.R. 226, 231 (1993), overruled on other grounds by Thomas v.
      Department of the Treasury, 77 M.S.P.R. 224 (1998), overruled in part on other
      grounds by Ganski v. Department of the Treasury, 86 M.S.P.R. 32 (2000).
                                                                                        13

      personnel action at issue, even if, after a complete analysis of all of the evidence,
      a reasonable factfinder could not conclude that her whistleblowing was a
      contributing factor in the personnel action. Mastrullo, 123 M.S.P.R. 110, ¶ 18.
¶22         It is undisputed that a decision to reassign or remove the appellant
      constitutes a personnel action.    5 U.S.C. § 2302(a)(2)(A)(iii), (iv).   Thus, the
      agency took two personnel actions against the appellant when it reassigned her
      and imposed her removal.
¶23         Further, we find that the deciding official and first proposing official knew
      about the appellant’s prior Board appeal and disclosure about the union president
      before reassigning her and removing her. Both the deciding official and the first
      proposing official, who drafted the letter reassigning the appellant’s duties, knew
      about the appellant’s prior Board appeal because they both testified at the hearing
      in that appeal. 0055 ID. The deciding official also knew about the appellant’s
      disclosures regarding the sexual assault, as he originally authorized the
      investigation of the incident and reviewed the AIB report, which described the
      disclosures, when he sent the letter to the union president. 0592 IAF, Tab 17
      at 22, 32. We also find that the first proposing official knew about at least some
      of the appellant’s disclosures that were used by the AIB as she engaged in
      mediation with the appellant about the sexual assault after she had been
      interviewed by the police about the incident. 16 0592 IAF, Tab 15 at 4, Tab 17
      at 9-11, 26.
¶24         The Board has held that personnel actions taken within 1 to 2 years of the
      protected disclosure satisfy the timing prong of the knowledge/timing test. See,
      e.g., Mastrullo, 123 M.S.P.R. 110, ¶ 21. Even if the personnel actions have not
      occurred within this time period, the Board also may consider whether the

      16
         We cannot determine conclusively whether the second proposing official knew about
      or had constructive knowledge of the disclosures and activity.
                                                                                      14

      personnel actions flow from one another. See Agoranos v. Department of Justice,
      119 M.S.P.R. 498, ¶ 22 (2013).
¶25        The appellant filed the prior Board appeal in September 2013, the
      administrative judge issued the initial decision in August 2014, and the Board
      issued its Final Order in January 2015. 0055 Final Order; 0055 ID; 0055 IAF,
      Tab 1. Her disclosures regarding the assault began in April 2013 and culminated
      in the AIB’s report in May 2014. 0592 IAF, Tab 17 at 22-30. The appellant’s
      reassignment occurred in May 2015 and she was removed in November 2015.
      0592 IAF, Tab 6 at 12-15, 22. Further, the appellant’s reassignment and removal
      followed a previous removal that had been overturned on due process grounds.
      0055 Final Order. We note that the appellant’s disclosures to the AIB, beginning
      in April 2013, and her Board appeal in September 2013, began slightly more than
      2 years before the personnel actions at issue. However, the disclosures continued
      through the AIB and Board appeal process and the disciplinary action s arose
      initially from the appellant’s previous removal and the Board’s order not
      sustaining the removal. Accordingly, we find that, based on the time frame and
      the continuity of the disclosures and personnel actions, the appellant has
      demonstrated that her disclosures to the AIB and her previous Board appeal were
      a contributing factor to her removal.

      We remand the appeal for an analysis of whether the agency proved by clear and
      convincing evidence that it would have removed the appellant absent her
      protected disclosure and activity.
¶26        To determine whether the agency proved by clear and convincing evidence
      that it would have removed the appellant absent her protected disclosure and
      activity, all evidence that supports the agency’s case and detracts from it must be
      weighed together. Whitmore v. Department of Labor, 680 F.3d 1353, 1368 (Fed.
      Cir. 2012). Because the administrative judge did not find that the appellant made
      a protected disclosure or engaged in protected activity that was a contributing
      factor to her removal, he did not reach the issue of whether the age ncy met its
                                                                                       15

      burden. 0592 ID at 8-9. However, as discussed above, we find that she made a
      protected disclosure about the union president and engaged in protected activity
      by filing a prior Board appeal and that these were contributing factors in her
      removal. Therefore, the issue of the agency’s burden must be adjudicated. We
      find that the administrative judge is in the best position to do so because he heard
      the live testimony in this case.     See Shibuya v. Department of Agriculture,
      119 M.S.P.R. 537, ¶ 37 (2013). Accordingly, it is necessary to remand the appeal
      for the administrative judge to evaluate whether the agency proved by clear and
      convincing evidence that it would have removed the appellant absent her
      protected disclosure and activity.      See Mastrullo, 123 M.S.P.R. 110, ¶ 22
      (remanding the appeal for adjudication of whether the agency met its burden of
      proving by clear and convincing evidence that it would have failed to give the
      appellant a time-off award absent his disclosures, as he had proven on review that
      his disclosures about his coworker’s harassment were a contributing factor in the
      agency’s decision).

                                           ORDER
¶27        For the reasons discussed above, we remand this case to the regional office
      for further adjudication in accordance with this Remand Order.

      FOR THE BOARD:                                    /s/ for
                                                Jennifer Everling
                                                Acting Clerk of the Board
      Washington, D.C.