Carlton Hooker v. Department of Veterans Affairs ( 2023 )

UNITED STATES OF AMERICA
MERIT SYSTEMS PROTECTION BOARD
CARLTON E. HOOKER, JR., DOCKET NUMBER
Appellant, AT-3330-17-0267-I-1
v.
DEPARTMENT OF VETERANS DATE: January 30, 2023
AFFAIRS,
Agency.
THIS FINAL ORDER IS NONPRECEDENTIAL 1
Carlton E. Hooker, Jr., St. Petersburg, Florida, pro se.
Luis E. Ortiz-Cruz, Esquire, Orlando, Florida, for the agency.
BEFORE
Cathy A. Harris, Vice Chairman
Raymond A. Limon, Member
Tristan L. Leavitt, Member
FINAL ORDER
¶1 The appellant has filed a petition for review of the initial decision, which
dismissed this Veterans Employment Opportunities Act of 1998 (VEOA) appeal
for lack of jurisdiction. Generally, we grant petitions such as this one only in the
following circumstances: the initial decision contains erroneous findings 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A nonprecedential order is one that the Board has determined does not add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 Parties may cite nonprecedential orders,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
material fact; the initial decision is based on an erroneous interpretation of statute
or regulation or the erroneous application of the law to the facts of the case; the
administrative judge’s rulings during 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. Except as expressly MODIFIED by
this Final Order to find that the appellant exhausted his administrative remedy
with the Department of Labor (DOL) but failed to make a nonfrivolous allegation
that the agency denied his right to compete, we AFFIRM the initial decision.
BACKGROUND
¶2 On December 9, 2016, the Bay Pines Veterans Affairs Healthcare System
(BPVAHCS) Assistant Secretary for Operations, Security, and Preparedness,
issued a letter informing the appellant that he was being placed in a “‘No
Engagement’ status” because of his disruptive behavior and intimidation of staff.
Initial Appeal File (IAF), Tab 1 at 26-29. The Assistant Secretary informed the
appellant that he was restricted from any engagement with BPVAHCS, his
“inquiries to or communications with the BPVAHCS [would] not be answered or
addressed,” and he was physically restricted from all BPVAHCS properties. Id.
at 26. The letter provided the appellant with an alternate location for medical
services and various points of contact, including one for “any further questions.”
Id. at 26-27.
¶3 The agency posted a vacancy announcement for a Transportation Assistant
position, which was open from January 6 through 13, 2017. IAF, Tab 7 at 21.
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Status candidates were eligible to apply under merit promotion procedures or as
VEOA eligibles. Id. The vacancy also was open to disabled veterans and certain
disabled individuals under a Schedule A hiring authority. Id. at 22; 5 C.F.R.
§ 231.3102(u). To apply as a disabled veteran or under Schedule A, the agency
directed applicants to contact its Selective Placement Coordinator at BPVAHCS.
IAF, Tab 7 at 22, 24.
¶4 On January 8, 2017, the appellant emailed the Assistant Secretary for
Operations, Security, and Preparedness, other agency officials, and third parties,
alleging that he was unable to apply for the Transportation Assistant position
because he was prohibited from contacting the Selective Placement Coordinator.
IAF, Tab 1 at 12. He did not request information regarding how to apply and did
not send his email to any of the individuals or points of contact listed on the
agency’s December 9, 2016 No Engagement letter. Id. He subsequently filed a
complaint with the Department of Labor (DOL) on January 9, 2017, asserting that
the agency had banned him for life from applying for all jobs at BPVAHCS. Id.
at 11, 22-24. DOL informed him that it could not investigate his complaint until
he applied for a position. Id. at 3, 11. According to the appellant, he spoke to a
DOL investigator who advised him to contact the agency for information about
how to apply. Id. at 3.
¶5 On the morning of January 12, 2017, the appellant emailed the BPVAHCS
Selective Placement Coordinator to obtain information on how to apply for the
vacant Transportation Assistant position pursuant to the Schedule A hiring
authority or as a disabled veteran. Id. at 3, 12. He alleged, and the agency has
not disputed, that he received no response before the vacancy closed the next day.
Id. at 3. He copied the DOL investigator in his email of January 12, 2017, which
was the same date the investigator issued a file closure letter and mailed it to the
appellant. IAF, Tab 7 at 19-20. In the file closure letter, DOL stated that the
appellant was required to apply for a position before it could inves tigate his case.
Id. at 19.
4
¶6 The appellant filed this appeal, arguing that DOL should have investigated
his VEOA complaint because the agency barred him from receiving information
from its Selective Placement Coordinator on how to apply for special employment
considerations based on his status as a disabled veteran or under Schedule A.
IAF, Tab 1 at 3. The administrative judge issued an order informing the appellant
of his burden of proving jurisdiction over a VEOA claim. IAF, Tab 3. The
appellant responded by submitting evidence and argument that he exha usted his
remedy before DOL and otherwise made nonfrivolous allegations that met his
burden of proving jurisdiction under VEOA. IAF, Tab 7. The administrative
judge issued an initial decision that dismissed the appeal for lack of jurisdiction
finding that the appellant did not prove that he exhausted with DOL. IAF, Tab 8,
Initial Decision (ID) at 4.
¶7 The appellant has filed a petition for review of the initial decision. Petition
for Review (PFR) File, Tab 1. The agency has filed a response in oppositi on to
his petition. PFR File, Tab 3.
DISCUSSION OF ARGUMENTS ON REVIEW
¶8 Here, the administrative judge found that the appellant did not satisfy the
exhaustion requirement because he failed to inform DOL that, prior to DOL
issuing its closure letter, he applied or attempted to apply for the Transportation
Assistant position. ID at 4. The administrative judge did not consider whether
the appellant otherwise established Board jurisdiction over his VEOA claim. ID .
For the reasons discussed below, we disagree with the administrative judge’s
finding that the appellant failed to exhaust with DOL but find that the Board has
no jurisdiction over this appeal because the appellant did not make a nonfrivolous
allegation that the agency denied him a right to compete for the Transportation
Assistant position.
5
The Board has no jurisdiction over the appellant’s claim that the agency denied
his right to compete under 5 U.S.C. § 3304(f)(1).
¶9 The appellant argues that the agency denied him his right to compete for the
Transportation Assistant vacancy because the agency was prohibited by its No
Engagement order from responding to his inquiries regarding how to apply. PFR
File, Tab 1 at 5, 7-8; IAF, Tab 1 at 26-29. VEOA provides that:
Preference eligibles or veterans who have been separated from the
armed forces under honorable conditions after 3 years or more of
active service may not be denied the opportunity to compete for
vacant positions for which the agency making the announcement will
accept applications from individuals outside its own workforce under
merit promotion procedures.
5 U.S.C. § 3304(f)(1); Montgomery v. Department of Health & Human Services,
123 M.S.P.R. 216, ¶ 4 (2016). Affected individuals may seek administrative
redress for a violation of their rights under 5 U.S.C. § 3304(f)(1) by filing a
complaint with the Secretary of Labor and, after exhaustion of that process, filing
a timely appeal with the Board. Montgomery, 123 M.S.P.R. 216, ¶ 4.
¶10 To meet VEOA’s requirement that he exhaust his remedy with DOL, the
appellant must establish that: (1) he filed a complaint with the Secretary of
Labor; and (2) the Secretary of Labor was unable to resolve the complaint within
60 days or has issued a written notification that the Secretary’s efforts have not
resulted in resolution of the complaint. Alegre v. Department of the Navy,
118 M.S.P.R. 424, ¶ 12 (2012). We find that the record reflects that the appellant
has exhausted his remedy before DOL regarding his claim. The appellant filed a
complaint with DOL on January 9, 2017. IAF, Tab 1 at 21-23; Tab 7 at 19. On
the morning of January 12, 2017, the appellant emailed the agency and the
investigator assigned to his DOL complaint stating that he wanted to apply for a
Transportation Assistant vacancy under Schedule A or as a veteran with a
30% service-connected disability. IAF, Tab 7 at 20. On the same day that the
appellant sent that email, the DOL investigator issued a letter notifying the
appellant that DOL had closed his case, effective January 12, 2017, without
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resolution. Id. at 19. We find this is sufficient proof that the appellant exhausted
his remedy with DOL concerning his claims on appeal.
¶11 To establish Board jurisdiction over a “right to compete” appeal under
5 U.S.C. § 3330a(a)(1)(B), in addition to showing that he exhausted his remedy
with DOL, the appellant must make nonfrivolous allegations that: (1) he is a
veteran within the meaning of 5 U.S.C. § 3304(f)(1); (2) the action at issue took
place on or after the enactment date of the Veterans’ Benefits Improvement Act
of 2004; and (3) the agency, in violation of 5 U.S.C. § 3304(f)(1), denied him the
opportunity to compete under merit promotion procedures for a vacant position
for which the agency accepted applications from individuals out side its own
workforce. Becker v. Department of Veterans Affairs, 115 M.S.P.R. 409, ¶ 5
(2010). A nonfrivolous allegation is an assertion that, if proven, could establish
the matter at issue. 5 C.F.R. § 1201.4(s).
¶12 We find that the appellant made a nonfrivolous allegation that he met the
requirements for applying for the position (1) as a VEOA eligible candidate, (2) a
disabled veteran, and (3) under Schedule A. 5 U.S.C. § 3304(f)(1); IAF, Tab 1
at 2, Tab 7 at 4, 21-22. Moreover, the record reflects that the vacancy
announcement for the Transportation Assistant position at issue here was issued
in 2017, after the enactment of the Veterans Benefits Improvement Act of 2004.
IAF, Tab 7 at 21. Further, although neither party has addressed whether the
position was open to external candidates, we find sufficient evidence to satisfy
this requirement for purposes of the appellant’s jurisdictional burden. See
Department of Veterans Affairs, Status Candidates and Other Candidate
Definitions for Permanent Positions,
https://www.va.gov/OHRM/JobListings/Status-Candidate-and-Other-Candidate-
Definitions.pdf (last visited Jan. 30, 2023) (explaining the agency’s various hiring
authorities); 5 C.F.R. § 1201.64 (permitting the Board to take official notice of
matters that can be verified). For the reasons discussed below, however, we find
7
that the appellant has not made a nonfrivolous allegation that the agency denied
him the opportunity to compete.
¶13 In response to the show cause order on jurisdiction, the appellant alleged
that the agency denied him his right to compete because he emailed the Selective
Placement Coordinator “on January 12, 201[7] @ 9:43 AM,” asking her how to
apply for the Transportation Assistant position, but she did not reply. IAF, Tab 7
at 5, 20. He attributes her failure to respond to his request to the December 9,
2016 letter he received from the agency placing him in a “No Engagement” status
and informing him that his “inquiries or communications with BPVAHCS [would]
not be answered or addressed.” PFR File, Tab 1 at 5-6; IAF, Tab 7 at 5, 17.
¶14 We find that the appellant’s assertions, if proven, could not establish that
the agency denied him his right to compete for the following reasons. First, the
vacancy announcement did not require that candidates contact the Selective
Placement Coordinator if they were seeking consideration as a VEOA eligible.
IAF, Tab 7 at 21-22. The appellant has identified himself as preference-eligible
veteran with a 60% service-connected disability, which would have qualified him
to apply under this category. IAF File, Tab 1 at 2-3; 5 U.S.C. § 2108; see
https://www.va.gov/OHRM/JobListings/Status-Candidate-and-Other-Candidate-
Definitions.pdf (explaining that VEOA candidates are preference-eligible
veterans who separated from the armed forces under honorable conditions after
approximately 3 years of active service). The appellant has not explained why he
did not apply for the position on this basis.
¶15 As to the appellant’s possible qualification as a disabled veteran or under
Schedule A, he sent his January 12, 2017 email to the Selective Placement
Coordinator the day before the vacancy announcement closed. 2 We decline to
find that any failure to respond to the appellant only one day before the
2
The appellant’s January 8, 2017 email did not seek any guidance regarding how to
apply for the position. IAF, Tab 7 at 20. Therefore, any failure by the agency to
respond did not deny the appellant a right to compete for the position.
8
announcement closed denied him his right to compete. Further, the appellant had
other ways to contact the agency for instructions on how to apply for the position,
without violating the terms of the agency’s December 9, 2016 letter and his “No
Engagement” status. In the letter, the agency directed the appellant to use a
specific email address and telephone number to contact the agency if he had any
questions. IAF, Tab 7 at 18. The appellant does not allege that he attempted to
contact this resource to determine how to apply for the position at issue.
¶16 Under these circumstances, we find that the appellant has not made a
nonfrivolous allegation of facts that, if proven, would establish that the agency
denied him his right to compete. 3 Accordingly, we deny the petition for review
and affirm the initial decision, as modified.
NOTICE OF APPEAL RIGHTS 4
The initial decision, as supplemented by this Final Order, constitutes the
Board’s final decision in this matter. 5 C.F.R. § 1201.113. 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
3
On review, the appellant submitted documents pertaining to the agency’s
determination that he should be in a “No Engagement” status and relating to an equal
employment opportunity complaint he filed against the age ncy. PFR File, Tab 1
at 9-21. We decline to consider this information because it is not material to the
dispositive jurisdictional question. See Russo v. Veterans Administration, 3 M.S.P.R.
345, 349 (1980) (finding that the Board will not grant a petition for review based on
new evidence absent a showing that it is of sufficient weight to warrant an outcome
different from that of the initial decision).
4
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.
9
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
http://www.mspb.gov/probono for information regarding pro bono representation
for Merit Systems Protection Board appellants before the Federal Circuit. The
10
Board neither endorses the services provided by any att orney nor warrants that
any attorney will accept representation in a given case.
(2) Judicial or EEOC review of cases involving a claim of
discrimination. This option applies to you only if you have claimed that you
were affected by an action that is appealable to the Board and that such action
was based, in whole or in part, on unlawful discrimination. If so, you may obtain
judicial review of this decision—including a disposition of your discrimination
claims—by filing a civil action with an appropriate U.S. district court (not the
U.S. Court of Appeals for the Federal Circuit), within 30 calendar days after you
receive this decision. 5 U.S.C. § 7703(b)(2); see Perry v. Merit Systems
Protection Board, 582 U.S. ____ , 137 S. Ct. 1975 (2017). If you have a
representative in this case, and your representative receives this decisio n 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,
and your representative receives this decision before you do, then you must file
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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. ma il, 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. 5 The court of appeals must receive your petition for
5
The original statutory provision that provided for judicial review of certain
whistleblower claims by any court of appeals of competent jurisdiction expired on
December 27, 2017. The All Circuit Review Act, signed into law by the President on
July 7, 2018, permanently allows appellants to file petitions for judicial review of
MSPB decisions in certain whistleblower reprisal cases with the U.S. Court of Appeals
for the Federal Circuit or any other circuit court of appeals of competent jurisdiction.
The All Circuit Review Act is retroactive to November 26, 2017. Pub. L. No. 115 -195,
132 Stat. 1510.
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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 App eals 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.
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.