October 28, 2008
Ms. Elaine Kaplan, Esq.
Senior Deputy General Counsel in, NTEU
1750 H St, NW
Washington, DC 20006
Mr. Tim Hannapel
Office of General Counsel, NTEU
1750 H St, NW
Washington, DC 20006
Subject: Critique on your recent article
“Reinvigorating OSC: Suggestions for Next
Administration” and request for your active
assistance in advancing the objectives of OSC Watch
Dear Ms. Kaplan and Mr. Hannapel,
You are the former Special Counsel and Deputy
Special Counsel. You are licensed attorneys and
long-time employees of a government employee
union. I have closely read your recent 15 page
issue brief “Reinvigorating the US Office of
Special Counsel: Suggestions for the Next
Administration” which is issue brief of the
American Constitution Society for Law and
Policy. It is available on the internet at
< http://www.acslaw.org/files/Kaplan%20FINAL.pdf>.
I also read the recent article in “Government
Executive” that mentions the recent removal of
former Special Counsel Scott Bloch and summarizes
your suggestions for OSC. It is available on the internet at
< http://www.govexec.com/story_page.cfm?
articleid=41273&dcn=todaysnews >.
As you know, I contend OSC is, relatively
speaking, the most corrupt and corrupting agency
in our Country’s history. It was created, along
with Merit Systems Protection Board, by the Civil
Service Reform Act of 1978. I contend that its
now 30-year long lawbreaking failure to protect
federal employees from agency violations of the
merit system principles (i.e., “prohibited
personnel practices (PPP’s) and other agency
violations of law, rule or regulation under OSC’s
investigatory jurisdiction has resulted in many
dysfunctional and corrupt federal workplaces, a
battered federal civil service, and a much
diminished and more threatened America.
OSC’s lawbreaking has also created thousands of
direct victims – loyal, patriotic federal
employees who put professional duty to the public
welfare before their personal economies and who
were betrayed by OSC lawbreaking failure to
protect them from agency retribution.
OSC’s lawbreaking has not occurred in a vacuum,
it was enabled by 30-year long lawbreaking
failure of US Merit System Protection Board to do
the statutory required oversight of OSC’s
compliance with law in protecting the federal
employees who sought its protection.
Basically, OSC and MSPB nullified themselves, at
their creation in 1978, by
OSC’s (mis)interpretations of its key duties to
protect the federal employees who sought its
protection and MSPB (mis)interpretation of one of
its primary duties to conduct “special studies”
focused on OSC’s compliance with law and performance in protecting
them.
These fundamental misinterpretations include
(using the law’s current numbering, which was
changed by the Whistleblower Protection Act of 1989):
1. OSC’s claim that the reporting
requirements of 5 U.S.C. §1214(e) do not apply to
laws, rule, or regulation under OSC’s
investigatory jurisdiction, meaning OSC never has
an unqualified requirement to formally report its
determinations of violations of law, rule, or
regulation under its investigatory
jurisdiction. It also means OSC has yet to make
a report per §1214(e), not in over 20,000
investigations it has conducted since 1989.
2. OSC’s claim (one which is contrary to
Supreme Court precedent) that there is no such
thing as a “civil service rule.” As a result,
OSC does not investigate or even consider if
agency directives (i.e. “civil service rules”)
such as workforce discipline procedures,
grievance procedures, performance evaluation
procedures, etc were violated as part of a
PPP. By 5 U.S.C. §1216(a)(4), OSC has
jurisdiction over any agency “activities
prohibited by any civil service law, rule or regulation.”
3. OSC’s policy of not considering or
investigating, as part of its investigations of
PPP’s, whether any agency “activities prohibited
by any civil service law rule or regulation” also
occurred. When OSC is conducting an
investigation of an alleged PPP, it only
considers whether a violation of 5 U.S.C.
§2302(b) occurred, unless the PPP complaint
specifically alleges violations of laws, rules,
or regulations under OSC’s jurisdiction per
§1216(a)(4) occurred as part of the PPP or
separate complaint of “other prohibited activity” alleging them is
filed.
4. MSPB’s claim that the “special studies”
it conducts per 5 U.S.C.§1204(a)(3) need not
focus on “whether the public interest in a civil
service free of PPP’s is being adequately
protected.” MSPB claims to have no opinion as to
whether it is, despite its statutory requirement
to regularly report its determination on this
point to the President and Congress. Since OSC
is, by law, the primary bulwark to protect
federal employees from PPP’s, MSPB should have,
for the past 30 years been doing what it has yet
to do – conduct reviews of OSC’s compliance with
law and performance in protecting federal
employees from PPP’s. Had it done so, OSC
misinterpretations of law would have been exposed
and corrected almost 30 years ago – and the
federal civil service and America would be in a
much different and better place today.
Why Has This Gone On For 30 Years? Follow the Money!
Many people and organizations benefit, directly
or indirectly, from a broken, lawbreaking OSC and
an MSPB that enables it. This includes:
1) Government employee unions benefit -
their major selling point to their dues-paying
members (who are frequently only 10-15% of the
members of the bargaining unit) is dues-paying
members get more support in a negotiated
grievance procedure. Since by “election of
remedies” of 5 U.S.C. 7121 (added to the law in
1994), a federal employee must choose between an
OSC complaint, an MSPB appeal, or a negotiated
grievance, if OSC is not credible, the relative
attractiveness of the union negotiated grievance
process (and voluntarily paying union dues) increases.
2) Private sector attorneys who specialize
in federal employment law benefit. A broken,
lawbreaking OSC emboldens abusive federal
managers and results in more federal employees
seeking them out, cash in hand, to pursue remedies at EEO, MSPB, or
elsewhere.
3) “Good government groups” benefit as
concerned federal employees go to them with their
concerns about agency wrongdoing, because they
know they will not be protected from agency
retribution if they use established
channels. “Information is power” to these groups
and they trade their insider information with
Congress and media for access and influence,
which they need to secure you are age a person
funding from the relatively few foundations that provide much of
their funding.
4) Mainstream media benefits for the same
reasons the good government groups do – concerned
federal employee go to them with their concerns,
because they cannot trust OSC to protect them if
they use established channels.
I created OSC Watch < http://www.oscwatch.org> <
http://whsknox.blogs.com/osc>, with some others
who largely perceive things as I do, with three
limited objectives: 1) expose OSC’s lawbreaking
and MSPB’s enabling lawbreaking; 2) stop it; and
3) obtain some measure of justice for the
thousands of feds directly harmed by it – feds
who did not receive the nondiscretionary protection OSC owed them.
To return to your article – while I agree with
much of it, your analysis of OSC goes seriously
awry on page 9. Frazier v. MSPB, 672 F.2d (D.C.
Cir. 1982) was, in large part, legislatively
overturned by the Whistleblower Protection Act of
1989. OSC is no longer an “ombudsman” or
advocate for the merit system principles – it is
now specifically charged to “act in the
interests” of the employees who seek its
protection. It has a specific mandate to “that
employees should not suffer adverse consequences
as a result of PPP’s.” The law directs OSC
that “the protection of individuals who are the
subject to PPP’s remains the paramount
consideration.” See 5 U.S.C. §1201 “note,”
quoting from the “findings and purpose” section of the WPA.
While I agree that OSC does not have an
attorney-client relationship with complainants
and that OSC has discretion as a prosecutor in
seeking corrective action and/or disciplinary
action, I contend that OSC does not have
discretion as an investigator – it must
determine, for all the complaints it receives,
“whether there are reasonable grounds to believe”
the violation occurred and, if so, formally
report them to the involved agency, via a
permanent, public record, per §1214(e). It must
do this, unless OSC additionally makes the
discretionary determination that the violation is
one “which requires corrective action” and
formally reports both determinations per
§1214(b)(2)(B), thereby satisfying the §1214(e) reporting requirement.
So What?
While I do not consider you blameless in the
federal workplace disaster at OSC, you did
inherit OSC’s now 30 year-long misinterpretations
of its key duties, which was enabled by MSPB’s
misinterpretation of one of its key
duties. Regardless, there should be no
reasonable question about OSC proper
interpretation and full compliance with its
nondiscretionary duties to those who seek its
protection. There is now plenty of question and
the questions go back to OSC’s creation.
You can help get these questions answered and, if
OSC has been, as I contend, fundamentally remiss
in its nondiscretionary duties to the 20,000 or
more federal employees who sought its protection
since 1978, you can help obtain some measure of
justice for those directly harmed. Or you can
ignore these claims and concerns and continue, in
the eyes of many, to defend the undefendable at
OSC, including your records there.
You have positive professional duties as
attorneys. As I understand the position of OSC
attorneys, because they consider OSC to be their
client, they are prohibited from “blowing
whistles” on their and OSC’s lawbreaking by legal
ethics. On the other hand, I contend that they
are betraying both their oaths as attorneys and
their oaths as government employees by not
implementing the laws they are responsible to
implement, to protect federal employees who try
to do their duty, ethically and competently,
without fear or favor. I suggest you consult
with ethical experts in your profession in
deciding how to proceed in this matter.
I was raised Catholic and while I did not
personally experience abusive priests, I was
lucky because I was around some as a youth. The
scandal at OSC has some similarities to the
Catholic priest scandal – vulnerable people are
betrayed by those charged to protect them and the
system tries to stonewall. But the outrage of
those betrayed would not be deterred and the
stonewalling failed. I suggest the sense of
betrayal many feel to you and OSC should not be minimized.
Respectfully,
Joe Carson, PE
Chair, OSC Watch Steering Committee
10953 Twin Harbour Drive
Knoxville, TN 37934; 865-300-5831; jpcarson@…
