Court Opinion

ID: 9957878
Source: CourtListenerOpinion
Date Created: 2024-04-05 16:00:59.824847+00
Date Added: 2024-06-11T08:15:57.874664
License: Public Domain

UNITED STATES OF AMERICA
                   MERIT SYSTEMS PROTECTION BOARD

CLIFTON E. BEAMAN, JR.,                         DOCKET NUMBER
              Appellant,                        DC-0752-21-0543-I-1

             v.

DEPARTMENT OF HOMELAND                          DATE: April 4, 2024
  SECURITY,
            Agency.

        THIS FINAL ORDER IS NONPRECEDENTIAL 1

      Cameron Bonney Evans , Esquire, and Neil Bonney , Esquire, Virginia
        Beach, Virginia, for the appellant.

      Lorna Jerome , Esquire, and Edith L. Moore McGee , Washington, D.C., for
        the agency.

      Russell E. Booker, III , Esquire, Norfolk, Virginia, for the agency.

                                      BEFORE

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

                                  FINAL ORDER

      The appellant has filed a petition for review of the initial decision, which
affirmed his removal.       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   A nonprecedential order is one that the Board has determined does not add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 Parties may cite nonprecedential orders,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, VACATE the initial decision, and REVERSE the
appellant’s removal.

                                 BACKGROUND
      The appellant was employed as a GS-8 Lead Firefighter with the U.S. Coast
Guard.     Beaman v. Department of Homeland Security, MSPB Docket
No. DC-0752-21-0543-I-1, Initial Appeal File (0543 IAF), Tab 5 at 40.            On
January 16, 2021, K.Q., another Firefighter, returned to work after testing
positive for COVID-19. 0543 IAF, Tab 7 at 33-35. The appellant and several
other firefighters were concerned that K.Q. was still contagious, because K.Q.
was still symptomatic, was not consistently wearing a mask, and allegedly stated
that he refused to take a COVID-19 test. 2 Id. at 34-35; Pierce v. Department of
Homeland Security, MSPB Docket No. DC-0752-21-0576-I-1, Hearing Recording
(0576 HR), dated Dec. 6, 2021 (testimony of the appellant).
      That same day, i.e., January 16, 2021, the appellant and two other
firefighters, Pierce and Simpson, spoke to their supervisor about their concerns
regarding K.Q.’s return.      0543 IAF, Tab 7 at 11, 18-19, 23; Beaman v.
Department of Homeland Security, MSPB Docket No. DC-0752-21-0543-I-1,
Hearing Recording (0543 HR), dated Nov. 29, 2021 (testimony of the supervisor).
According to the supervisor, the appellant, Pierce, and Simpson threatened to not
report to duty for their next shift, i.e., January 18 to January 19, 2021, if K.Q.
remained at the fire station. 0543 IAF, Tab 7 at 11; 0543 HR, dated Nov. 29,
2021 (testimony of the supervisor).      Specifically, the supervisor claimed that
Pierce and Simpson said that they were “tapping out” and that the appellant said
that the supervisor “[would not] be the only one not here,” referring to the
supervisor’s upcoming leave. 0543 IAF, Tab 7 at 11; 0543 HR, dated Nov. 29,
2021 (testimony of the supervisor). On January 17, 2021, the appellant and four

2
  K.Q. had been medically cleared to return to work. 0543 IAF, Tab 7 at 33-34; Beaman
v. Department of Homeland Security, MSPB Docket No. DC-0752-21-0543-I-1, Hearing
Recording (0543 HR), dated Nov. 29, 2021 (testimony of the Fire Chief).
                                                                                     3

other firefighters, i.e., Pierce, Simpson, Hunt, and McDilda, called out sick for
the January 18 to January 19, 2021 shift. 0543 IAF, Tab 7 at 24-25.
         The agency conducted an administrative investigation into the five
firefighters’ “alleged coordination of [a] work stoppage.” Id. at 5. Based on the
results of the administrative investigation, the agency removed all five
firefighters, i.e., Pierce, Simpson, McDilda, Hunt, and the appellant, effective
July 16, 2021, on charges of improper conduct and providing inaccurate
information.       0543 IAF, Tab 5 at 44-46, 104-06; Pierce v. Department of
Homeland Security, MSPB Docket No. DC-0752-21-0576-I-1, Initial Appeal File
(0576 IAF), Tab 5 at 21-23, 105-07; Hunt v. Department of Homeland Security,
MSPB Docket No. DC-0752-21-0551-I-1, Initial Appeal File (0551 IAF), Tab 5
at 28-29, 53-54; Simpson v. Department of Homeland Security, MSPB Docket No.
DC-0752-21-0570-I-1 (0570 IAF), Tab 5 at 29-32, 54-56; McDilda v. Department
of Homeland Security, MSPB Docket No. DC-0752-21-0582-I-1, Initial Appeal
File (0582 IAF), Tab 7 at 21-22, 107-08.
         The five firefighters, who were represented by the same attorney, filed
separate Board appeals challenging their removals. 3 0543 IAF, Tab 1; 0551 IAF,
Tab 1; 0570 IAF, Tab 1; 0576 IAF, Tab 1; 0582 IAF, Tab 1. Because the cases
involved very similar facts, the administrative judge adjudicated the cases
together. 4 Specifically, she scheduled the testimony of witnesses relevant to all
five cases, such as the supervisor, the proposing official, and deciding official, on
one single day, and scheduled the testimony for case-specific witnesses, such as
the appellants, their wives, and doctors, on five separate days. 5         0543 IAF,
3
  Because the documents and testimony in the record of the other four firefighter cases
can be independently found and verified, we take official notice of it. See 5 C.F.R.
§ 1201.64 (explaining that “[o]fficial notice is the Board’s or judge’s recognition of
certain facts without requiring evidence to be introduced establishing those facts”).
4
    The administrative judge did not consolidate the cases.
5
  It is unclear why the appellant testified on the same day as Pierce, and thus, his
testimony is located in the record for Pierce v. Department of Homeland Security,
MSPB Docket No. DC-0752-21-0576-I-1. 0576 HR, dated Dec. 6, 2021.
                                                                                   4

Tab 13.   Then, the administrative judge issued five separate initial decisions
sustaining the removals of all five firefighters.      0543 IAF, Tab 33, Initial
Decision (0543 ID); 0551 IAF, Tab 32; 0570 IAF, Tab 30; 0576 IAF, Tab 26;
0582 IAF, Tab 32.
      The appellant’s removal is the only removal before the Board because he is
the only firefighter that filed a petition for review—thus, we limit our review to
the facts pertinent to his case. As stated above, the appellant was removed based
on charges of improper conduct and providing false information.          0543 IAF,
Tab 5 at 42, 104-06. The first charge, improper conduct, is supported by three
specifications.   Id. at 104.   The first specification claims that on January 16,
2021, the appellant “coordinated an attempted work stoppage when [he]
influenced other members of the firefighter team [he led] to call in sick for the
[January 18-19, 2021] 48-hour shift. . . .” Id. The agency’s second and third
specifications of the improper conduct charge allege that the appellant
participated in an attempted work stoppage by not reporting to work on
January 18 and January 19, 2021, as “an expression of [his] discontent with
management[].” Id.
      The second charge, providing inaccurate information, is supported by five
specifications. Id. at 105. The first three specifications allege that the appellant
provided inaccurate information by calling in sick on January 18 and January 19,
2021 (specification 1), and recording sick leave in the agency’s time and
attendance system for January 18, 2021 (specification 2) and January 19, 2021
(specification 3), when he was “not sick or medically incapacitated.” Id. at 105.
The agency’s fourth specification alleges that the appellant provided inaccurate
information when he claimed during the administrative investigation that “[he]
did not remember saying to [his] supervisor or others that [he was] going to call
in sick.” Id. Finally, the agency’s fifth specification alleges that the appellant
provided inaccurate information when he stated during the administrative
                                                                                       5

investigation that “[he] did not recall coordinating an attempted work stoppage by
influencing [his] team members to call in sick.” 6 Id.
      In the initial decision in the appellant’s appeal, the administrative judge
sustained both charges, finding, among other things, that “the appellant planted
the seed” and “kicked things off” with regards to the sick-out. 7 0543 ID at 21-23.
Then, the administrative judge denied the appellant’s claim that the agency
violated his due process rights, finding, in part, that the agency was under no
obligation to provide documents to the appellant that were not considered by the
deciding official in his removal.       0543 ID at 31-32.       Next, she denied the
appellant’s harmful error claim, finding that there was no evidence the agency
used the appellant’s approved sick leave against him, violated its policies related
to sick leave or COVID-19, or that it failed to provide a safe working
environment.    0543 ID at 33-35.       Finally, after finding that the agency had
established nexus and that removal was within the bounds of reasonableness, the
administrative judge affirmed the appellant’s removal. 0543 ID at 35-41.
      The appellant has filed a petition for review, challenging, among other
things, the administrative judge’s findings on the merits of the charges, arguing
that he presented evidence of incapacitation on January 18 and January 19, 2021,
and asserting that he did not coordinate a sick-out, or influence any other
firefighter to participate in a sick-out. 8 Petition for Review (PFR) File, Tab 1
6
  On review, the appellant objects to the term “work stoppage,” arguing that because of
the way the fire station was set up, it was impossible to have a complete cessation of
operations, i.e., a work stoppage, and thus, the charges cannot stand. Petition for
Review (PFR) File, Tab 1 at 9-10. Because we find that the agency failed to prove its
charges on other grounds, we need not address the accuracy of the work stoppage term.
Nevertheless, in the interest of using precise language, we have chosen to use the phrase
“sick-out” in place of “work stoppage,” unless quoting the agency’s documents.
7
  Although the administrative judge sustained the charges, 0543 ID at 23, she did not
explain her findings as it related to the individual specifications, 0543 ID at 21-23.
8
  On review, the appellant also argues that the agency committed harmful error by
improperly replacing his supervisor as the proposing official with another manager in
order to impose a harsher penalty and that the agency violated his due process rights by
failing to provide him with the investigator’s notes during the reply period. PFR File,
                                                                                      6

at 6-11. The agency has responded in opposition to the appellant’s petition for
review, PFR File, Tab 3, and the appellant has replied to the agency’s response,
PFR File, Tab 4.

                 DISCUSSION OF ARGUMENTS ON REVIEW
      Generally, in an adverse action appeal, an agency must prove its charge by
a preponderance of the evidence, establish a nexus between the action and the
efficiency of the service, and establish that the penalty it imposed is within the
tolerable bounds of reasonableness.         Thomas v. Department of the Army,
2022 MSPB 35, ¶ 17. Therefore, an agency must prove all of the elements of the
substantive offense it charged against the appellant and a failure to do so will
cause the Board to not sustain the charge. King v. Nazelrod, 43 F.3d 663, 666
(Fed. Cir. 1994). Furthermore, the Board adjudicates an agency’s charge as it is
described in the agency’s proposal and decision notices.         Stuhlmacher v. U.S.
Postal Service, 89 M.S.P.R. 272, ¶ 14 (2001); Rackers v. Department of Justice,
79 M.S.P.R. 262, 276 (1998), aff’d, 194 F.3d 1336 (Fed. Cir. 1999) (Table).
      As set forth below, we find that the agency has failed to prove that the
appellant committed the misconduct as it alleged. First, we find that the agency
has failed to prove by preponderant evidence that the appellant coordinated the
sick-out, and thus, specification 1 of the first charge, improper conduct, cannot
stand. Then, we find that the agency failed to prove that the appellant was not

Tab 1 at 11-19. Regarding the appellant’s harmful error claim, the supervisor testified
that he requested to be recused as the proposing official because he felt too closely
intertwined with the facts of the cases. 0543 HR, dated Nov. 29, 2021 (testimony of the
supervisor). Thus, there is no evidence that the agency ousted the supervisor as
proposing official in order to install a proposing official who would impose a harsher
penalty, and therefore, we find no harmful error. Next, regarding the appellant’s due
process claim, we agree with the administrative judge that there is no evidence that the
deciding official considered the investigator’s notes in removing the appellant, and
thus, the agency was under no obligation to provide the appellant with these notes
during the reply period. 0543 ID at 31-32. Furthermore, the agency provided the
appellant with the notes during discovery, and thus, he had the opportunity to present
arguments pertaining to those notes in front of the administrative judge. 0543 IAF,
Tab 17 at 59-75.
                                                                                  7

medically incapacitated on January 18 and January 19, 2021, and therefore,
specifications 2 and 3 of the improper conduct charge also cannot stand. Then,
we find that, because the agency failed to prove that the appellant was not
medically incapacitated or that he was the coordinator of the sick-out,
specifications 1, 2, 3, and 5 of the agency’s second charge, the providing
inaccurate information charge, cannot stand. Finally, we find that the agency has
failed to prove that the appellant provided inaccurate information when he
claimed not to remember telling his supervisors or others that he was going to call
out sick, and thus, specification 4 also cannot stand. Accordingly, because the
agency failed to prove any of its specifications, neither of its charges can be
sustained, and thus, we order that the appellant’s removal be reversed.

Specification 1 of the improper conduct charge (Charge 1) cannot be sustained
because the agency did not prove by preponderant evidence that the appellant was
the coordinator of the sick-out.
      The agency’s first specification underlying the improper conduct charge
alleged that the appellant “coordinated an attempted work stoppage when [he]
influenced other members of the firefighter team [he led] to call in sick for the
[January 18 to January 19, 2021 shift] that [he was] scheduled to work as an
expression of [his] discontent with management’s decision [to allow K.Q. to
return to work].” 0543 IAF, Tab 5 at 104. Of the five firefighters removed, the
appellant is the only one charged with coordinating the sick-out; the others were
simply charged with participating in the sick-out. Compare id. at 104-05, with
0551 IAF, Tab 5 at 53-54; 0570 IAF, Tab 5 at 54-55; 0576 IAF, Tab 5 at 105-06;
0582 IAF, Tab 7 at 107-08. In other words, the agency charged the appellant as
the “ring leader” of the sick-out. 0543 IAF, Tab 5 at 104-05, Tab 7 at 9, 12.
Thus, the agency must meet a higher bar, and prove not just that the appellant
participated in discussions regarding a sick-out, but was the individual
responsible for coordinating the sick-out. Contrary to the administrative judge’s
findings, 0543 ID at 21-23, we do not find that the agency met this burden.
                                                                                       8

      The agency has presented no evidence, beyond speculation, that the
appellant was the individual responsible for organizing the sick-out. 0543 IAF,
Tab 7 at 9, 12; 0543 HR, dated Nov. 29, 2021 (testimony of the supervisor).
Indeed, it appears that several of the removed firefighters were equally as active
as the appellant in the discussions regarding a sick-out. For instance, during the
January 16, 2021 conversation, Pierce and Simpson both told their supervisor that
they were “tapping out” if K.Q. was allowed to remain at the fire station.
0543 IAF, Tab 7 at 11; 0543 HR, dated Nov. 29, 2021 (testimony of the
supervisor). There is no indication that Pierce or Simpson made this comment
under the influence, or at the instigation, of the appellant. Indeed, while their
supervisor stated that all three firefighters, i.e., Pierce, Simpson, and the
appellant, threatened not report to duty, there is nothing in his testimony about
the conversation that indicates that the appellant was the leader of the group. 9
0543 IAF, Tab 7 at 11; 0543 HR, dated Nov. 29, 2021 (testimony of the
supervisor).
      The agency also relies heavily on a series of text messages sent in a group
chat, which included the appellant, Pierce, Simpson, Hunt, and McDilda.
0543 IAF, Tab 5 at 94-100, 104-06. These text messages, most of which were
between the appellant, Pierce, and Hunt, refer to the group’s discontent with the
return of K.Q., and appear to discuss a sick-out. Id. at 94-100; 0543 HR, dated
Nov. 29, 2021 (testimony of the deciding official). However, these messages do
not prove that the appellant was the leader of this sick-out effort.
      As noted by the administrative judge, the messages appear to demonstrate
that it was Pierce, not the appellant, who was “the most active on the text string
and egged everyone on.” 0543 ID at 22. For instance, it was Pierce who first
9
  To the extent that the agency argues that the appellant’s position as the Lead
Firefighter influenced the others to participate in the sick-out, the position of Lead
Firefighter is not a supervisory role, and thus, the appellant had no supervisory control
or influence over his team members. Additionally, the agency has presented no
evidence that the appellant used his position as the team lead to improperly influence
the other firefighters to call out sick.
                                                                                   9

confirmed that he would not report to duty, texting “IM OUT BOTH DAYS.”
0543 IAF, Tab 5 at 95 (emphasis and spelling in original). It was also Pierce who
sent the first text on the day the five firefighters called out, asking “[s]o what’s
the word?” and then, receiving no response after more than an hour, stating “[s]o
two of us are out both days so far. I just called in.” Id. at 97. It was then Hunt
who responded “[d]ropped the bomb. Called out [sick leave],” to which Pierce
responded “[t]hree down so far.”       Id. at 97-98.    Then, after some discussion
between Pierce and the appellant regarding K.Q. working overtime to cover the
shifts, Pierce responded “[f]our of us so far.” Id. at 98-99. The appellant then
responded “5” and Pierce replied “[l]ol almost there.” Id. at 99. While these text
messages may establish that the appellant was involved in discussions regarding a
sick-out, they do not prove that the appellant coordinated and influenced others to
participate in the sick-out.
      Although we recognize that the appellant’s behavior may very well
constitute misconduct, participating in discussions regarding a sick-out was not
the basis of the agency’s charge.      Id. at 104-05.     The Board adjudicates an
agency’s charge as it is described in the agency’s proposal and decision notices.
Stuhlmacher, 89 M.S.P.R. 272, ¶ 14; Rackers, 79 M.S.P.R. at 276. The agency
charged the appellant with coordination of the sick-out, not mere participation in
discussions of a sick-out, and the agency is bound by the charge it brought, not
one it could have brought. See Stuhlmacher, 89 M.S.P.R. 272, ¶ 14 (explaining
that the Board will not sustain an agency action on the basis of charges that could
have been brought but were not). Therefore, because the agency failed to prove
that the appellant committed the misconduct it described in its proposal notice,
the first specification cannot be sustained.
                                                                                  10

Specifications 2 and 3 of the improper conduct charge (Charge 1) cannot be
sustained because the agency failed to prove by preponderant evidence that the
appellant’s failure to report to duty was not the result of medical incapacitation
on January 18 and January 19, 2021.
      The agency alleges in its second and third specification that the appellant
“participated in an attempted work stoppage when [he] failed to report for duty as
an expression of [his] discontent with management[]” on January 18 and
January 19, 2021, respectively. 0543 IAF, Tab 5 at 104. It is undisputed that the
agency approved the appellant’s request for sick leave on January 18 and
January 19, 2021.   0543 IAF, Tab 7 at 24-25; 0543 HR, dated Nov. 29, 2021
(testimony of the appellant’s supervisor).       Thus, in order to sustain both
specifications, the agency must prove that the appellant’s failure to report for
duty, while he was on approved sick leave, constituted misconduct. In order to
do so, the agency must show that the appellant was actually not entitled to the
approved sick leave, i.e., that he was not incapacitated due to an injury on
January 18 and January 19, 2021.           5 C.F.R. § 630.401(a) (setting forth
requirements for granting sick leave, including incapacitation due to illness or
injury).
      In the initial decision, the administrative judge sustained the specifications,
apparently finding that the appellant’s failure to report for duty constituted
misconduct because he was not medically incapacitated on January 18 and
January 19, 2021.    0543 ID at 20-23.      However, as the appellant argues on
review, he submitted significant evidence proving that he was incapacitated on
January 18 and January 19, 2021, and therefore, that it was proper for him to be
on approved sick leave those dates. PFR File, Tab 1 at 6-9. For instance, the
appellant presented objective medical evidence, supported by other corroborating
evidence, establishing that he was incapacitated for duty on January 18 and
January 19, 2021. First, his chiropractor testified that, on January 19, 2021, he
treated the appellant for a back injury that the appellant suffered on January 16,
                                                                                 11

2021, 10 after purportedly falling from a ladder while working on his boat at his
house. 0543 HR, dated Nov. 30, 2021 (testimony of the appellant’s chiropractor).
The chiropractor testified that he performed an examination, which included a
series of motion orthopedic tests, and confirmed that the appellant had suffered an
injury consistent with a fall. Id. He also found no evidence that the appellant
was exaggerating or misrepresenting his condition. Id. Therefore, based on his
medical findings, the chiropractor testified that the appellant was incapacitated
for duty on January 18 and January 19, 2021. Id.
      The chiropractor’s testimony is consistent with the medical documentation
in the record, which includes the chiropractor’s report detailing his medical
findings, a copy of the appellant’s x-rays, and a medical note from the
chiropractor excusing the appellant from work until January 25, 2021, to recover
from the accident. 0543 IAF, Tab 5 at 82-91, Tab 24. The appellant’s medical
evidence is also consistent with other evidence in the record, including a letter
from the county’s emergency services department, stating that the appellant was
also absent from his part-time emergency medical technician position during the
same timeframe due to medical reasons. 0543 IAF, Tab 19 at 98. Furthermore,
the appellant was on sick leave from his position with the agency until
January 27, 2021, using a total of 96 hours of sick leave. 0543 IAF, Tab 7 at 6,
37. However, the agency does not appear to question his use of sick leave after
January 19, 2021. 0543 IAF, Tab 5 at 104-06, Tab 7 at 6.
      While the appellant has presented significant evidence to support his claims
of incapacitation, the agency has presented no evidence that undermines or
contradicts the appellant’s evidence.    While we acknowledge that the agency
presented evidence that the appellant was in discussions with the other
firefighters regarding a sick-out, such evidence does not prove that the appellant
was not also medically incapacitated on January 18 and January 19, 2021.
10
  The appellant suffered his injury on January 16, 2021, which was a Saturday, and
because January 18, 2021 was a Federal holiday, the appellant did not seek treatment
until January 19, 2021. 0576 HR (testimony of the appellant).
                                                                                 12

0543 IAF, Tab 5 at 94-100. Although the agency was understandably suspicious
of the appellant’s claims of injury, such suspicions, without more, do not
overcome the appellant’s evidence of incapacitation. Therefore, the agency did
not prove that the appellant’s failure to report to duty, when he was on approved
sick leave, constituted misconduct, and thus, the second and third specifications
of the first charge, improper conduct, cannot be sustained.      0543 IAF, Tab 5
at 104.
      In conclusion, the agency has failed to prove the misconduct alleged in any
of the specifications underlying its first charge. Accordingly, the first charge of
improper conduct cannot be sustained.

Specifications 1, 2, and 3 of the providing inaccurate information charge
(Charge 2) cannot be sustained because the agency failed to prove that the
appellant was not incapacitated by injury.
      The agency alleges in the first three specifications of the second charge that
the appellant provided inaccurate information by calling out sick (specification 1)
and recording sick leave in the agency’s time and attendance system
(specifications 2 and 3) for January 18 and January 19, 2021, when the appellant
was “not sick or medically incapacitated.” Id. at 105. Thus, to prove all three of
these specifications, the agency must establish that the appellant was “not sick or
medically incapacitated” on January 18 and January 19, 2021. Id. As we have
discussed in length above, the agency failed to prove that the appellant was not
medically incapacitated on January 18 and January 19, 2021, and thus,
specifications 1, 2, and 3 cannot be sustained.

Specification 5 of the providing inaccurate information charge (Charge 2) cannot
be sustained because the agency failed to prove the appellant coordinated the
sick-out.
      We address the fifth specification of the second charge, before the fourth
specification, because our previous finding that the agency did not prove that the
appellant coordinated the sick-out directly influences our finding here.
Specifically, the agency’s fifth specification alleges that the appellant provided
                                                                                       13

inaccurate information when he stated, during the administrative investigation,
that he “did not recall coordinating an attempted work stoppage by influencing
[his] team members to call in sick.” Id. In order to prove this specification, the
agency must prove that the appellant coordinated the sick-out. As discussed in
detail above, the agency failed prove that the appellant coordinated and
influenced others to participate in a sick-out. Therefore, specification 5 cannot be
sustained.

Specification 4 of the providing inaccurate information charge (Charge 2) cannot
be sustained because the agency failed to prove that the appellant provided
inaccurate information.
      In the fourth specification, the agency alleges that the appellant provided
inaccurate information when he claimed during the administrative investigation,
that “[he] did not remember saying to [his] supervisor or others that [he was]
going to call in sick.” 11 Id. As we have stated, the Board adjudicates the charge
as it is described in the agency’s proposal and decision notices.               Rackers,
79 M.S.P.R. at 276. Because of the manner in which the agency chose to draft
this specification, it is not sufficient to prove that the appellant told his supervisor
and others that he was going to call in sick. Instead, the agency must prove that
the appellant’s statement that he “did not remember” doing so was inaccurate.
0543 IAF, Tab 5 at 105. Thus, because of its language choices, the agency is
required to prove the mental state of the appellant, specifically, whether he was
being truthful when he stated that he did not remember a statement he made
several months earlier. The agency failed to introduce any evidence regarding the
appellant’s mental state during the interview, or any evidence that demonstrates
that the appellant did, in fact, remember telling his supervisor and others that he
was going to call in sick. Therefore, specification 4 cannot be sustained.
11
   The appellant claims that, during his interview in the administrative investigation, he
denied that he told his supervisors or others that he was going to call out sick.
PFR File, Tab 1 at 15. Even assuming arguendo that the appellant denied making this
statement in the interview, the specification would still not stand, as the agency would
not have proven the charged misconduct.
                                                                                    14

      The agency has failed to prove the underlying specifications of either
charge, and thus, its charges of misconduct against the appellant cannot be
sustained. Accordingly, the appellant’s removal is reversed.

                                      ORDER
      We ORDER the agency to cancel the removal action and to restore the
appellant to his GS-8 Lead Firefighter (Hazmat Technician/Basic Life Support)
position effective July 16, 2021. See Kerr v. National Endowment for the Arts,
726 F.2d 730 (Fed. Cir. 1984). The agency must complete this action no later
than 20 days after the date of this decision.
      We also ORDER the agency to pay the appellant the correct amount of
back pay, interest on back pay, and other benefits under the Back Pay Act and/or
Postal Service regulations, as appropriate, no later than 60 calendar days after the
date of this decision. We ORDER the appellant to cooperate in good faith in the
agency’s efforts to calculate the amount of back pay, interest, and benefits due,
and to provide all necessary information the agency requests to help it carry out
the Board’s Order. If there is a dispute about the amount of back pay, interest
due, and/or other benefits, we ORDER the agency to pay the appellant the
undisputed amount no later than 60 calendar days after the date of this decision.
      We further ORDER the agency to tell the appellant promptly in writing
when it believes it has fully carried out the Board’s Order and of the actions it has
taken to carry out the Board’s Order. The appellant, if not notified, should ask
the agency about its progress. See 5 C.F.R. § 1201.181(b).
      No later than 30 days after the agency tells the appellant that it has fully
carried out the Board’s Order, the appellant may file a petition for enforcement
with the office that issued the initial decision on this appeal if the appellant
believes that the agency did not fully carry out the Board’s Order. The petition
should contain specific reasons why the appellant believes that the agency has not
                                                                                     15

fully carried out the Board’s Order, and should include the dates and results of
any communications with the agency. 5 C.F.R. § 1201.182(a).
      For agencies whose payroll is administered by either the National Finance
Center of the Department of Agriculture (NFC) or the Defense Finance and
Accounting Service (DFAS), two lists of the information and documentation
necessary to process payments and adjustments resulting from a Board decision
are attached. The agency is ORDERED to timely provide DFAS or NFC with all
documentation necessary to process payments and adjustments resulting from the
Board’s decision in accordance with the attached lists so that payment can be
made within the 60-day period set forth above.

                 NOTICE TO THE APPELLANT REGARDING
                       YOUR RIGHT TO REQUEST
                      ATTORNEY FEES AND COSTS
      You may be entitled to be paid by the agency for your reasonable attorney
fees and costs. To be paid, you must meet the requirements set forth at Title 5 of
the United States Code (5 U.S.C.), sections 7701(g), 1221(g), or 1214(g). The
regulations may be found at 5 C.F.R. §§ 1201.201, 1201.202, and 1201.203. If
you believe you meet these requirements, you must file a motion for attorney fees
and costs WITHIN 60 CALENDAR DAYS OF THE DATE OF THIS DECISION.
You must file your motion for attorney fees and costs with the office that issued
the initial decision on your appeal.

                         NOTICE OF APPEAL RIGHTS 12
      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

12
  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.
                                                                                      16

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).
      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
                                                                                   17

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
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,
                                                                                     18

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
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. 13   The court of appeals must receive your petition for

13
   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,
                                                                                19

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.

132 Stat. 1510.
                                                                       20

      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:                       ______________________________
                                     Gina K. Grippando
                                     Clerk of the Board
Washington, D.C.
                                 DEFENSE FINANCE AND ACCOUNTING SERVICE
                                           Civilian Pay Operations

                          DFAS BACK PAY CHECKLIST
The following documentation is required by DFAS Civilian Pay to compute and pay back pay
pursuant to 5 CFR § 550.805. Human resources/local payroll offices should use the following
checklist to ensure a request for payment of back pay is complete. Missing documentation may
substantially delay the processing of a back pay award. More information may be found at:
https://wss.apan.org/public/DFASPayroll/Back%20Pay%20Process/Forms/AllItems.aspx.

NOTE: Attorneys’ fees or other non-wage payments (such as damages) are paid by
vendor pay, not DFAS Civilian Pay.

☐ 1) Submit a “SETTLEMENT INQUIRY - Submission” Remedy Ticket. Please identify the
       specific dates of the back pay period within the ticket comments.

Attach the following documentation to the Remedy Ticket, or provide a statement in the ticket
comments as to why the documentation is not applicable:

☐ 2) Settlement agreement, administrative determination, arbitrator award, or order.

☐ 3) Signed and completed “Employee Statement Relative to Back Pay”.

☐ 4) All required SF50s (new, corrected, or canceled). ***Do not process online SF50s
       until notified to do so by DFAS Civilian Pay.***

☐ 5) Certified timecards/corrected timecards. ***Do not process online timecards until
       notified to do so by DFAS Civilian Pay.***

☐ 6) All relevant benefit election forms (e.g. TSP, FEHB, etc.).

☐ 7) Outside earnings documentation. Include record of all amounts earned by the employee
       in a job undertaken during the back pay period to replace federal employment.
       Documentation includes W-2 or 1099 statements, payroll documents/records, etc. Also,
       include record of any unemployment earning statements, workers’ compensation,
       CSRS/FERS retirement annuity payments, refunds of CSRS/FERS employee premiums,
       or severance pay received by the employee upon separation.

Lump Sum Leave Payment Debts: When a separation is later reversed, there is no authority
under 5 U.S.C. § 5551 for the reinstated employee to keep the lump sum annual leave payment
they may have received. The payroll office must collect the debt from the back pay award. The
annual leave will be restored to the employee. Annual leave that exceeds the annual leave
ceiling will be restored to a separate leave account pursuant to 5 CFR § 550.805(g).
NATIONAL FINANCE CENTER CHECKLIST FOR BACK PAY CASES
Below is the information/documentation required by National Finance Center to process
payments/adjustments agreed on in Back Pay Cases (settlements, restorations) or as ordered by
the Merit Systems Protection Board, EEOC, and courts.
1. Initiate and submit AD-343 (Payroll/Action Request) with clear and concise information
   describing what to do in accordance with decision.
2. The following information must be included on AD-343 for Restoration:
       a.   Employee name and social security number.
       b.   Detailed explanation of request.
       c.   Valid agency accounting.
       d.   Authorized signature (Table 63).
       e.   If interest is to be included.
       f.   Check mailing address.
       g.   Indicate if case is prior to conversion. Computations must be attached.
       h.   Indicate the amount of Severance and Lump Sum Annual Leave Payment to be
            collected (if applicable).
Attachments to AD-343
1. Provide pay entitlement to include Overtime, Night Differential, Shift Premium, Sunday
   Premium, etc. with number of hours and dates for each entitlement (if applicable).
2. Copies of SF-50s (Personnel Actions) or list of salary adjustments/changes and amounts.
3. Outside earnings documentation statement from agency.
4. If employee received retirement annuity or unemployment, provide amount and address to
   return monies.
5. Provide forms for FEGLI, FEHBA, or TSP deductions. (if applicable)
6. If employee was unable to work during any or part of the period involved, certification of the
   type of leave to be charged and number of hours.
7. If employee retires at end of Restoration Period, provide hours of Lump Sum Annual Leave
   to be paid.
NOTE: If prior to conversion, agency must attach Computation Worksheet by Pay Period and
required data in 1-7 above.
The following information must be included on AD-343 for Settlement Cases: (Lump Sum
Payment, Correction to Promotion, Wage Grade Increase, FLSA, etc.)
       a. Must provide same data as in 2, a-g above.
       b. Prior to conversion computation must be provided.
       c. Lump Sum amount of Settlement, and if taxable or non-taxable.
If you have any questions or require clarification on the above, please contact NFC’s
Payroll/Personnel Operations at 504-255-4630.