Randy Holloway v. United States Postal Service

993 F.2d 219, 1993 U.S. App. LEXIS 10496, 1993 WL 144539
CourtCourt of Appeals for the Federal Circuit
DecidedMay 7, 1993
Docket92-3647
StatusPublished
Cited by11 cases

This text of 993 F.2d 219 (Randy Holloway v. United States Postal Service) is published on Counsel Stack Legal Research, covering Court of Appeals for the Federal Circuit primary law. Counsel Stack provides free access to over 12 million legal documents including statutes, case law, regulations, and constitutions.

Bluebook
Randy Holloway v. United States Postal Service, 993 F.2d 219, 1993 U.S. App. LEXIS 10496, 1993 WL 144539 (Fed. Cir. 1993).

Opinion

PLAGER, Circuit Judge.

Randy Holloway petitioned for review of the final decision of the Merit Systems Protection Board (MSPB or Board) when the Board denied Mr. Holloway’s petition seeking review of the Administrative Judge’s (AJ) initial decision. 54 M.S.P.R. 425. 1 The AJ dismissed, for lack of jurisdiction, Mr. Holloway’s petition seeking review of the action of the United States Postal Service (USPS or agency) placing Mr. Holloway in a nonduty, nonpay status from the position of Mail Handler, effective July 3, 1991. Because Mr. Holloway has shown no error in the decision, we affirm.

BACKGROUND

Mr. Holloway was employed as a Mail Handler at the Nashville, Tennessee, facility of the agency. On July 3, 1991, he was ordered by his supervisor to “clock out,” allegedly for failure to perform his assigned duties. After he was escorted from the premises, he was placed on nonduty, nonpay status effective July 3, 1991. Mr. Holloway has apparently not returned for work since that time.

On February 26, 1992, Mr. Holloway petitioned the Board for review of the agency action placing him on nonduty, nonpay status. On May 14, 1992, as stated, the AJ dismissed the petition for lack of jurisdiction. That decision became final when, on August 25, 1992, the full Board dismissed Mr. Holloway’s petition seeking review of the AJ’s decision. This appeal followed.

DISCUSSION

Mr. Holloway first argues that the agency placed him on nonduty, nonpay status without giving him advance notice as required by 5 U.S.C. § 7513(b) (1988). However, Mr. Holloway has not shown that he brought this issue before the AJ, or that the AJ ruled on this issue. Further, our examination of the AJ’s written decision provides no indication that the AJ ever considered this issue. Thus, it is not properly before this court on appeal.

Mr. Holloway next argues that the Board erred in dismissing his petition for lack of jurisdiction. According to Mr. Holloway, the agency constructively suspended him for more than 14 days. This was because the agency failed to provide him with a limited (or light duty) work assignment (to take account of a medical condition known as carpal tunnel syndrome he alleged he was suffering from) in the face of his willingness to perform such work and medical evidence showing that he was deserving of such limited assignment. 2 Thus, Mr. Holloway argues, the Board has appellate jurisdiction over these actions pursuant to 5 U.S.C. § 7513(a) (1988) and section 16.5 of the 1990 Mailhan-dlers National Agreement, the collective bargaining agreement between the agency and the National Postal Mailhandlers Union.

As a preliminary matter, we note that 5 U.S.C. § 7513(a) does not purport to provide a basis for the Board’s jurisdiction, and that section 16.5 of the 1990 Mailhandlers National Agreement, being a contract between one party and the other party’s representative, standing alone, cannot confer jurisdiction upon the Board. Our independent review of the relevant statutes, however, leads us to believe that 5 U.S.C. §§ 7513(d), 7512(2), 7511(a)(2), and 7701 (1988) are the statutory sections that Mr. Holloway intended to rely on for his jurisdictional assertion. Therefore, we consider whether these sections provide a proper basis for the Board’s exercise of jurisdiction.

According to these sections, a federal employee is given the right to petition to the Board for a “suspension of more than 14 days.” The term “suspension” is defined by 5 U.S.C. § 7511(a)(2) (which incorporates 5 U.S.C. § 7501(2)) as “the placing of an em *221 ployee, for disciplinary reasons, in a temporary status without duties and pay.” As this court has held, the dispositive inquiry in determining whether there has been a “suspension” for purposes of this section is whether the employee’s absence from the agency was voluntary or involuntary. Perez v. Merit Sys. Protection Bd., 931 F.2d 853, 855 (Fed.Cir.1991); Pittman v. Merit Sys. Protection Bd., 832 F.2d 598, 600 (Fed.Cir.1987).

In Pittman, the question was whether an agency’s decision to place on “enforced leave” — suspension of more than 14 days without pay and duties — an employee with an acknowledged physical incapacity was within the jurisdiction of the MSPB to review. The agency’s action was premised on the employee’s inability to perform any of the then available work assignments. The argument was that the suspension was not “disciplinary” in the same way an ágency response to psychological difficulty would be, and therefore was not within the terms of the statute providing for review of suspensions “for disciplinary reasons.” 5 U.S.C. § 7501(2). This court rejected the distinction and held the suspension reviewable.

In Perez, the employee took sick leave and requested an indefinite extension of his sick leave due to physical problems. The agency requested further justification for the request, and, after not receiving it, instructed the employee to return to work or he would be placed on absent without leave (AWOL) status. After no response was received by the date indicated, the agency placed the employee on AWOL status. When the employee later challenged this action before the MSPB, the Board held it was without jurisdiction over the claim. We affirmed: “where an employee has voluntarily absented himself from work, placement in a non-pay or AWOL status, even for longer than 14 days, is not a constructive suspension or other agency action appealable to the MSPB.” Perez, 931 F.2d at 855. 3

Mr. Holloway appears to argue that he did not voluntarily absent himself because the agency did not give him a work assignment consistent with his physical needs, needs he showed to exist by medical opinion. Presumably this brings him within the scope of Pittman, rather than Perez. We think not. The agency considered Mr. Holloway’s medical opinion, and concluded it was insufficient to establish his 1 claimed need. The MSPB found no error in the agency’s action.

The AJ specifically found that Mr.

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Bluebook (online)
993 F.2d 219, 1993 U.S. App. LEXIS 10496, 1993 WL 144539, Counsel Stack Legal Research, https://law.counselstack.com/opinion/randy-holloway-v-united-states-postal-service-cafc-1993.