Shaw v. United States

622 F.2d 520, 223 Ct. Cl. 532, 1980 U.S. Ct. Cl. LEXIS 155
CourtUnited States Court of Claims
DecidedApril 30, 1980
DocketNo. 15-78
StatusPublished
Cited by15 cases

This text of 622 F.2d 520 (Shaw v. United States) is published on Counsel Stack Legal Research, covering United States Court of Claims primary law. Counsel Stack provides free access to over 12 million legal documents including statutes, case law, regulations, and constitutions.

Bluebook
Shaw v. United States, 622 F.2d 520, 223 Ct. Cl. 532, 1980 U.S. Ct. Cl. LEXIS 155 (cc 1980).

Opinion

KUNZIG, Judge,

delivered the opinion of the court:

Plaintiff is a former employee, GS-14, of the Department of Housing and Urban Development (HUD). HUD took steps to terminate plaintiffs employment shortly before his one-year probation period expired. Plaintiff challenged the termination and was temporarily reinstated after a decision of the Civil Service Commission’s Board of Appeals and Review (Board). The Commissioners of the Civil Service Commission, however, reopened plaintiffs case and in a final decision upheld plaintiffs termination by HUD. Plaintiff then filed suit in this court requesting reinstatement, back pay and correction of his records. He contends the Commissioners lacked authority to reopen the Board’s decision, that his termination notice was not timely served, that he was wrongfully terminated while on sick leave and that other procedural standards were breached. For the reasons stated below we conclude the Commissioners’ decision upholding plaintiffs termination is correct and that his termination was otherwise procedurally and substantively proper.

On January 4, 1971, plaintiff was given a career-conditional appointment to the position of Director, Housing Services and Property Management Division, GS-14, in the Buffalo, New York, Area Office of HUD. The appointment was subject to a probationary period — one year in duration — beginning on the effective date of appointment.

On December 28, 1971, S. William Green, HUD New York Regional Administrator, prepared and mailed a memorandum addressed to plaintiff through the Buffalo Area Office Director notifying plaintiff that he would be terminated within his probationary period.

At approximately noon of December 29, 1971, (Wednesday) the Buffalo Area Office Director, Frank Cerabone, told plaintiff in person that he had recommended plaintiffs termination and that a written memorandum effecting his [536]*536dismissal had been signed and mailed from New York City by Green. The termination memorandum by Green, dated December 28,1971, stated in part:

Based on the recommendation of Mr. Cerabone, Buffalo Area Office Director, I regret to inform you that your services have not proved satisfactory. It is my understanding that you have been unresponsive to the team effort deemed necessary to the effective operations of the Divison and that you have been unable to get along with the Director of the Operations Division and his staff.

During that afternoon of December 29, 1971, plaintiff mentioned his termination to one or two co-workers and experienced a "sudden onslaught of illness.” He left the office early at 4:30 p.m. and drove to a hospital thirty miles away, the Tri-County Memorial Hospital in Gowanda, New York. He was admitted to the emergency room at 7:41 p.m. complaining of pains in his side. At the hospital plaintiff underwent a series of tests and was released January 6, 1972.

Meanwhile, on December 30, 1971, a Thursday, at 11:30 a.m., plaintiffs termination notice arrived at the Buffalo office from HUD’s New York Regional Office. An administrative employee of HUD’s Buffalo office, Mrs. Ann Fran-ceschini, changed the notice’s effective date from January 3, 1972 to January 2, 1972, a change approved by a higher authority within the agency. Plaintiff, of course, had not reported to work that day nor had he notified the agency of his hospitalization. Since plaintiffs whereabouts were unknown, preparations were made to attempt delivery of the notice of termination by mail and messenger to plaintiffs home address. Specifically, office personnel, on December 30:

1. Dispatched the original notice by special delivery, return receipt requested, registered mail, to plaintiffs home address.
2. Dispatched by regular mail a copy of the notice to plaintiffs home address.
3. Sent an employee to plaintiffs home to effect personal delivery of a copy of the notice of termination. The employee found no one at plaintiffs home and slipped a copy of the notice under plaintiffs front door.

[537]*537Mrs. Franceschini learned of plaintiffs hospitalization that afternoon from plaintiffs wife. Though the next day, December 31, was a federal holiday, Mrs. Franceschini went to HUD offices and dispatched to plaintiff at the hospital a Western Union telegram containing the specific language of the notice of termination. She asked Western Union to make personal delivery of the telegram, but on Monday, January 3,1972, Western Union notified the HUD office that, "Party refused to accept message.”1 Plaintiff finally received a letter on January 7, 1972, notifying him of his termination, after his release from the hospital.

Plaintiff first attempted to appeal his termination as a probationary employee on the grounds of religious discrimination (plaintiff stated his religion as Methodist).2 An investigation of the allegation of religious discrimination was initiated but by an affidavit of March 1, 1972, plaintiff withdrew the complaint. On April 26, 1972, the Director of the Civil Service Commission’s New York Region (Regional Director) denied plaintiffs appeal. The Regional Director found, inter alia:

By letter, dated December 28, 1971, signed by the Regional Administrator, you were notified that you would be terminated during probation effective January 2,1972, for unsatisfactory services. Accordingly, you were separated on January 2,1972.

The Regional Director also stated that under § 315.804 of the Civil Service Regulations [5 C.F.R. § 315.804 (1972)] a probationary employee could not appeal a termination based on inadequate performance or conduct on the job. Civil Service Commission review of probationary employee terminations, the Regional Director stated, was limited basically to charges of discrimination.

Plaintiff appealed the Regional Director’s decision to the Commission’s Board of Appeals and Review (Board). In a decision of July 18,1972, the Board determined that HUD’s efforts to serve plaintiff his termination notice before the end of his probationary period were inadequate. Thus, the [538]*538Board concluded plaintiff had completed his probationary period and was entitled to the procedural protections of regular employees. Plaintiffs restoration was recommended.

On July 28, 1972, the Commissioners of the Civil Service rescinded the Board’s decision and ordered reconsideration.3 In a second decision of October 10, 1972, the Board affirmed its first decision of July 1972 and again recommended that plaintiff be restored retroactively to his employment. As of October 30,1972, HUD restored plaintiff to employment but only on a temporary basis.

HUD asked the Commissioners to reopen the Board’s decision again on November 29, 1972. The Commissioners did so on January 10, 1973. By decision of March 27, 1973, the Commissioners reversed the second Board decision which had ordered plaintiffs restoration. The Commissioners specifically determined that HUD’s efforts to serve timely the notice of termination during plaintiffs probationary period constituted an "intelligent and diligent effort, in the circumstances,” under the Federal Personal Manual Supplement 752-1, § S4-8, "Delivery of Notice” provisions.

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Bluebook (online)
622 F.2d 520, 223 Ct. Cl. 532, 1980 U.S. Ct. Cl. LEXIS 155, Counsel Stack Legal Research, https://law.counselstack.com/opinion/shaw-v-united-states-cc-1980.