RECORD OF PROCEEDINGS
AIR FORCE BOARD FOR CORRECTION OF MILITARY RECORDS
IN THE MATTER OF: DOCKET NUMBER: 02-00089
INDEX CODE: 110.01
COUNSEL: NONE
HEARING DESIRED: NO
_________________________________________________________________
APPLICANT REQUESTS THAT:
The Board direct a special review board (SRB) or special selection
board (SSB) to reconsider him for a two-year continuation of his
mandatory separation date (MSD).
In his 18 Apr 02 response to the advisory opinion, applicant also
requested that his MSD be recomputed without counting his time as a
chief warrant officer.
_________________________________________________________________
APPLICANT CONTENDS THAT:
The Air Reserve Personnel Center (ARPC) erroneously computed his MSD.
He was treated unfairly in the computation of his MSD by counting some
of his warrant officer time, which is contrary to Title 10, U.S.C.,
Sec. 14706, resulting in him not receiving fair consideration by the
continuation board. The injustice was a result of his active duty US
Marine Corps (USMC) and Army National Guard (ARNG) officer
fitness/evaluation reports not being included in the records reviewed
by the Board.
On or about 9 Sep 01, he was informed by his unit personnel officer
that, in Jan 98, his mandatory separation date (MSD) was changed or
established by the Air National Guard Readiness Center (ANGRC/MPPSO)
to 1 Nov 01. She suggested that he go through the ANG Judge Advocate
(JA) to see if the change was correct, and if it was correct, were
there any provisions for a waiver.
He explained to ARPC/JA that his Army National Guard warrant officer
time was being counted as a part of his 28 years of commissioned
service. On 4 Oct 01, he received a copy of an email which explained
that his warrant officer time from Nov 77 thru Feb 82 was not included
in the calculation of his 28 years of service, but the time served
from Oct 86 thru Jan 92 was included.
The bottom-line question was whether he completed 28 years of
commissioned service, and must he be removed from the reserve active
status list (RASL). He explained that 10 USC 14706 entitled
“Computation of Total Years of Service,” specifically provides that a
reserve officer’s years of service includes all service as a
commissioned officer “(other than service as a warrant officer).”
Regardless of how his total federal commissioned service date (TFCSD)
is calculated, if his warrant officer time does not count, he only has
approximately 25 years of commissioned service, not 28.
While ARPC was reviewing the computation of his MSD, the Adjutant
General for New Mexico (TAG-NM) submitted a request for a two-year
extension to his MSD.
Upon further consultation with his chain of command, he contacted
ARPC. They informed him that he did not receive fair consideration by
the Board because he was missing some Marine Corps and ARNG fitness
and evaluation reports which had not been included in his records that
had been reviewed by the Board. Based on this information, he is
requesting that upon receipt of his fitness and evaluation reports he
be considered by a special review board (SRB) or a special selective
retention board (SSRB).
In support of the applicant’s appeal, he submitted a notarized
personal statement. His complete submission is at Exhibit A.
_________________________________________________________________
STATEMENT OF FACTS:
The available records reflect that the applicant is currently serving
as a lieutenant colonel in the New Mexico Air National Guard. He has
an established MSD of 1 Sep 01.
The applicant’s total federal commissioned service date (TFCSD) is 27
Aug 73, with a pay date of 9 May 69; his total years service date
(TYSD) is 24 Jan 78. As of 19 Apr 02, he had 29 years, 1 month and 10
days of satisfactory service towards retirement.
ARPC Form 0-178, Service Date Computation Worksheet (DOPMA), reflects
that the applicant was credited with 18 years, 4 months and 27 days of
total prior service at the time he entered the Air National Guard
(ANG) on 24 Jan 92. He served in the United States Marine Corps
(USMC)/USMC Reserve from 9 May 69 to 31 Oct 77, and was credited with
8 years, 5 months and 22 days of service. From 1 Nov 77 to 18 Feb 82,
he served as a non-commissioned chief warrant officer (CW2) in the
Army National Guard (ARNG); however, this period of service was not
creditable toward his TFSCD. During the period 19 Feb 82 to 30
Sep 86, he served as a commissioned officer (captain) in the ARNG and
was credited with 4 years, 7 months and 12 days of service. From
1 Oct 86 to 23 Jan 92, he served as a commissioned chief warrant
officer (CW2) in the ARNG and was credited with 5 years, 3 months and
23 days of service.
_________________________________________________________________
AIR FORCE EVALUATION:
HQ ARPC/DPB reviewed the application and recommended denial. They
gave the following analysis of the case:
a. The applicant contends that HQ ARPC acted contrary to 10 USC
14706 (Computation of years of Service) in the computation of his
years of service. This section states, “…a reserve officer’s years of
service include all service, other than constructive service, of the
officer as a commissioned officer of any uniformed service (other than
service as a warrant officer).” The applicant believes that use of
the time as a warrant officer should not count when computing time for
establishing MSD.
b. 10 USC 101 [Definitions] (b) [Personnel generally] “(1) the
term ‘officer’ means a commissioned or warrant officer. (2) The term
‘commissioned officer’ includes a commissioned warrant officer. (3)
The term ‘warrant officer’ means a person who holds a commission or
warrant in a warrant officer grade.” Based on these definitions,
Section 14706 allows the use of commissioned warrant officer time, but
disallows the use of time spent as a warrant officer without
commission. The applicant was both a commissioned warrant officer and
a warrant officer without commission.
c. The applicant’s TFCSD was corrected by 1 month, 21 days, and
adjusted from 18 Oct 73 to 27 Aug 73. The original TFCSD established
by an ANG memorandum dated 26 Dec 91 did not account for this
commissioned time. His TYSD was capped at 14 years in accordance with
AFI 36-2005, Appointment in Commissioned Grades and Designation and
Assignment in Professional Categories – Reserve of the Air Force and
United States Air Force, Table 2.1, Rule 4, which is required to be
eligible for appointment in the grade of major and remained the same
date of 24 Jan 78.
d. The applicant’s original MSD of 1 Nov 01 was originally
computed as 28 years from his TFCSD of 18 Oct 73. His TFCSD was
verified as 27 Aug 73. Based on his new TFCSD, his MSD was recomputed
as 1 Sep 01, and updated in the master computer file (MILPDS).
e. In regard to the missing performance reports from his
officer Selection Record (OSR), they determined applicant became a
member of an Air Reserve Component (ANG and/or USAFR) in 1992. Due
diligence on his part should have disclosed the missing documentation
prior to the stated date of discovery (28 Dec 01), nearly 10 years
after appointment. Although there was information missing from his
selection record, he only took action to make corrections after non-
selection by a continuation board. His MSD was corrected based on his
recomputed TFCSD and is now 1 Sep 01.
A copy of the Air Force evaluation is at Exhibit C.
_________________________________________________________________
APPLICANT'S REVIEW OF AIR FORCE EVALUATION:
The applicant respectfully disagreed with the analysis from ARPC.
Based on the misreading of 10 USC 14706, last year ARPC concluded that
he had 28 years of commissioned service and that his MSD was 1 Nov 01.
After the filing of his BCMR, based upon the same misreading, ARPC
concluded that his MSD should be 1 Sep 01. However, in accordance
with the exception contained in 14706, he does not have 28 years of
commissioned service. Excluding his time as a chief warrant officer
(CW2) in the ARNG he has approximately 22 years of commissioned
service (5 years on active duty in the USMC, 3 years in the inactive
USMCR, 4 years as a captain in the ARNG and 10 years in the Air
National Guard (ANG).
He says that the advisory opinion correctly quotes from the
definitional section of 10 USC 101 and then jumps to the unsupported
conclusion that 14706 “allows” the use of commissioned warrant officer
time (in computing whether an officer has 28 years of commissioned
service), but “disallows” the use of time spent as a warrant officer
without commission. Without analysis, the advisory opinion reads the
“warrant officer” exception out of 14706, and fails to even mention
10 USC 12241 and the history of the distinction between the
appointment of warrant officer by warrant and by commission.
Prior to 1985, 10 USC 571 thru 583 and 597 thru 598 (now 10 USC 12241)
provided that reserve warrant officers and chief warrant officers of
the Army were to be appointed by warrant. In 1985, the statute was
amended to provide that appointments in the reserve grade of CWO (pay
grades CW2 thru CW5) are to be made by commission, but that
appointments as a reserve warrant officer (pay grade W1) are still to
be made by warrant. Consistent with that reading of the Statute, none
of his time as a chief warrant officer in the ARNG should be counted
for purposes of computation of whether he has 28 years of service as a
commissioned officer.
In respect to the unfair allegation that he has somehow been dilatory
in obtaining documentation missing from his records, when he was
transferred to the Air National Guard, he obtained federal recognition
as a Major in the ANG and designation as a judge advocate.
Subsequently, his records appeared before a promotion board at ARPC
and in Mar 98, he was promoted to the rank of lieutenant colonel. He
learned that his extension of his MSD was denied, and that is when he
started looking into the matter, and found out that his OSR was
missing performance evaluation reports when reviewed by the Board. At
no time was he ever told by ARPC that his military records were
incomplete.
The Adjutant General for the New Mexico ANG submitted a letter on the
applicant’s behalf.
Applicant’s complete response to the Air Force evaluation is at
Exhibit E.
_________________________________________________________________
ADDITIONAL AIR FORCE EVALUATION:
HQ ARPC provided an additional evaluation noting that there initial
advisory contained an inappropriate cite in 10 USC. They provided the
following analysis:
a. The applicant was appointed a Major, ANGUS effective 24 Jan
92. At that time, he was credited with 18 years, 4 months, and 27
days of prior commissioned time.
b. His TFCSD of 27 Aug 73 was established by applying service
credit to the date of ANGUS appointment. At the time of his
appointment, all officers in the grade of lieutenant colonel and below
were allowed 28 years and 30 days of commissioned service in an active
status. For the applicant that date was computed as 1 Oct 01.
c. The applicant was promoted to Lieutenant Colonel effective
14 Jan 98 under the Reserve Officer Personnel Management Act (ROPMA).
His promotion eligibility was based on service credit and time spent
as a major. Once promoted under ROPMA, his MSD was recomputed, which
requires removal from the reserve active status list (RASL) on the
first day of the month after attaining 28 years of commissioned
service.
When computing total year service, 10 USC 14706 states “…a reserve
officer’s years of service include all service, other than
constructive service, of the officer as a commissioned officer of any
uniformed service (other than service as a warrant officer).”
The applicant was eligible for and met the ANGUS Lt Colonel
Continuation Board, held 22 Oct 01. A Lt Colonel with 28 years of
service can be continued up to 30 years if selected by a continuation
board. The applicant was considered by this board, but non-selected,
which required him to leave the RASL 1 Sep 01.
An option for the applicant to achieve retention on the RASL would be
for HQ ARPC to recompute his creditable service without using any of
the warrant officer time. By removing all credit for warrant officer
time, he would have 13 years, 1 month and 2 days of service credit and
appointment as a captain [more that 7 years but less than 14 years
service credit (10 USC 8359, AFR 35-3)]. His TFCSD would be
22 Dec 79, established by applying service credit to date of ANGUS
appointment. His promotion service date would be 24 Jan 86 and his
TYSD would be 24 Jan 85.
They recommend two options: (a) allow the applicant to continue to
receive the constructive credit as a commissioned warrant officer and
a commissioned officer and have that applied to his commissioned
service date. This would leave his original commission intact and his
MSD of 1 Sep 01; or (b) remove his
commissioned warrant officer time from his service credit computation.
This would cause reappointment in the grade of captain, correction of
DOR to major, and removal of the MSD.
The complete additional Air Force evaluation, with attachment, is at
Exhibit F.
_________________________________________________________________
APPLICANT'S REVIEW OF ADDITIONAL AIR FORCE EVALUATION:
The applicant states that he is not at all comfortable with the
potential unforeseen and unintended consequences of retroactively
revoking his promotion to Lieutenant Colonel. He further disagrees
with the legal analysis provided by ARPC.
First, there are two separate statutes, one concerning his appointment
as a Major in 1992, and the other concerning computation of his total
years of service as a commissioned officer for purposes of his MSD.
Second, the statute authorizing his appointment as a Major was
repealed approximately three years after his appointment to Major, on
the same day as the enactment of the statute stating that his service
as a warrant officer should not be counted when computing his years of
service for the purpose of Chapters 1407 and 1409 of 10 USC 14706.
Third, the warrant officer exception in 14706 only applies for the
purposes of chapters 1407 and 1409. It does not apply to chapter
1205, which contains 10 USC 12207, more or less the successor statute
to 10 USC 8359.
He indicates that ARPC was correct when they counted his commissioned
warrant officer time for purposes of his appointment as a Major.
However, given the substantive change in the relevant statutes in
1994, and given the clear language contained in 10 USC 101(b) and 10
USC 14706, ARPC is not correct in counting his commissioned warrant
officer time for purposes of computing his MSD. HQ ARPC’s reading of
the relevant statutes makes exception in 14706 unnecessary, and does
not make sense.
He concluded his response that the Board should direct HQ ARPC to
recompute his MSD without counting his time as a commissioned warrant
officer. At the same time they should be directed not to recompute
his prior commissioned service for purposes of his appointment as a
Major in the ANG in 1992, and they should be directed not to revoke
his promotion to Lieutenant Colonel and upon receipt of his USMC and
ARNG officer fitness and evaluation reports should convene an SRB or
SSRB to reconsider him for a two-year continuation of his MSD.
Applicant’s complete response to the additional Air Force evaluation
is at Exhibit H.
_________________________________________________________________
ADDITIONAL AIR FORCE EVALUATION:
HQ USAF/JAG reviewed the application with respect to how many years of
total commissioned service the applicant has served, as computed under
10 USC 14706. Section 14706(a)(1), Computation of total years of
service, provides, “(a) For the purpose of this chapter and chapter
1407 of this title, a Reserve officer’s years of service include all
service of the officer as a commissioned officer of a uniformed
service other than the following: (1) Service as a warrant officer.”
The issue is whether applicant’s service as a commissioned warrant
officer should be counted in computing the applicant’s MSD. If it is,
then applicant passed his MSD on 1 Oct 01 and he was properly
separated for years of service. If such service is not included, then
the applicant’s MSD should be 1 May 07 and he should not have been
separated for years of service.
Prior to 1986, 10 USC 555 provided that warrant officers of the Naval
services were commissioned; however, warrant officers of the Army and
Air Force were appointed by warrant. Public Law 99-145 equalized the
treatment of warrant officers of all of the services by offering
commissions to all warrant officers, which was the intent of Congress.
HQ ARPC/DPB’s interpretation of Section 14706 is based upon 1991 and
1993 policy letters. These policy letters were based in part on
provisions of the 1986 changes to law, which have since been repealed
by ROPMA. The policy guidance followed by HQ ARPC/DPB distinguishes
between commissioned and noncommissioned warrant officer service, and
includes commissioned warrant officer service in computing total years
of commissioned service, but excludes non-commissioned warrant officer
service. Consequently, applicant’s 5 years and 4 months as a
commissioned warrant officer were included in his MSD, whereas his 4
years and 4 months as a non-commissioned warrant officer were not.
While the policy guidance in the letters was a reasonable
interpretation of the law, as it then existed, the statutory changes
imposed by ROPMA in this area are explicit and leave no room for
interpretation. Section 14706 now clearly excludes all warrant
officer service. Title 10 defines the term “warrant officer” in
section 101 as “…a person who holds a commission or warrant in a
warrant officer grade.” Thus, all service as a warrant officer,
whether commissioned or not, is excluded when computing total years of
commissioned service for purposes of establishing a Reserve officer’s
MSD.
The Committee Report on ROPMA made it even clearer. In their report,
they explained, “Section 14706 of title 10, United States Code, as
would be added by the bill, would provide a uniform method for the
computation of the total years of service. For the purpose of
chapters 1407 and 1409 of title 10, a reserve officer’s years of
commissioned service would include all commissioned service, other
than constructive service or service as a commissioned warrant office
[sic], performed by an officer in any of the seven uniformed
services.” ROPMA, Report of the Committee on Armed Services House of
Representatives on H.R. 4481, September 23, 1992.
They also noted that the Air Force practice of including commissioned
warrant officer service in computing entry grade credit upon an
original appointment as a reserve officer appears to be in error. 10
USC 12207(a)(1) provides, “For the purpose of determining the grade
and the rank within grade of a person receiving an original
appointment as a Reserve commissioned officer (other than a
commissioned warrant officer) in the Army, Navy, Air Force, or Marine
Corps, the person shall be credited at the time of the appointment
with any commissioned service (other than service as a commissioned
warrant officer) performed before such appointment….” This is also
reflected in DODD 1312.3, Service Credit for Commissioned Officers and
DODD 1310.1, Rank and Seniority of Commissioned Officers.
Since this provision of law did not change with ROPMA, it appears that
the applicant was erroneously given entry grade credit for his
commissioned warrant officer service upon his appointment as a Reserve
officer. If so, then applicant was appointed in the grade of major,
when in fact he should have been appointed in the grade of captain.
As pointed out by HQ ARPC/DPB, this enabled the applicant to be
considered for promotion to lieutenant colonel much earlier than he
otherwise would have been.
The clarification contained in the ROPMA provisions provided no
grandfather clause; therefore, even if you assume our original
computation of applicant’s MSD under ROPMA was correct, his MSD must
now be recomputed in accordance with section 14706. Thus, applicant,
as well as all Air Force members with prior commissioned warrant
officer service, who may have had such service incorrectly included in
their MSD, should have their MSDs recomputed without the commissioned
warrant officer service.
The complete Air Force evaluation is at Exhibit I.
_________________________________________________________________
APPLICANT'S REVIEW OF ADDITIONAL AIR FORCE EVALUATION:
The applicant reviewed the HQ USAF/JAG opinion and agreed with almost
everything. He particularly agreed that all service as a warrant
officer, whether commissioned or not, should be excluded when
computing total years of commissioned service for purposes of
establishing a Reserve officer’s MSD. However, he respectfully
disagreed with the conclusion that he was erroneously appointed in the
grade of Major.
In looking at the three years he spent in law school (but excluding
the years spent as a warrant officer in the ARNG) he was entitled to
approximately 16 years of commissioned serviced credit when he was
appointed as a Major in the ANG in 1992, therefore, his appointment
was not erroneous.
He states in good faith he relied on the Air Force’s computation of
his commissioned service credit in 1992 and accepted his appointment
as a Major and subsequent promotion to lieutenant colonel. He has
served his country faithfully and honorably during two wars.
He concludes that the Board should direct ARPC to recompute his MSD
without counting any of his warrant officer time, and without counting
any of his service credit for the time that he spent in law school.
On the other hand, while he does not ask to have his commissioned
service credit recomputed for the purposes of his appointment as a
Major in 1992, if they choose to recompute his commissioned service
credit, they should be directed to give him three years of credit for
the time spent in law school and not attempt to revoke or rescind his
promotion to lieutenant colonel.
Applicant’s complete response to the additional Air Force evaluation
is at Exhibit K.
_________________________________________________________________
THE BOARD CONCLUDES THAT:
1. The applicant has exhausted all remedies provided by existing law
or regulations.
2. The application was timely filed.
3. Sufficient relevant evidence has been presented to demonstrate the
existence of an error or injustice. After reviewing the opinion
obtained from the Chief, General Law Division, it is apparent that the
applicant was erroneously given entry grade credit for his
commissioned warrant officer service in 1992. Based on this erroneous
credit, applicant’s grade at the time of his appointment in the Air
National Guard was in error and he would not have been eligible for
promotion to lieutenant colonel in 1998. However, correcting
applicant’s records by removing the erroneous entry grade credit would
be detrimental, as he would be in debt for pay he received from 1992
to 2001 and his promotion to lieutenant colonel would be nullified.
Based on the circumstances surrounding this case and noting that the
error made by the Air Force was of no fault of the applicant, we
recommend that the applicant’s record be corrected to allow him to
maintain his pay, promotion and that his mandatory separation date be
adjusted in accordance with applicable laws and statutes.
_________________________________________________________________
THE BOARD RECOMMENDS THAT:
The pertinent military records of the Department of the Air Force
relating to APPLICANT, be corrected to show that:
a. At the time of his appointment in the Air National Guard and
as a Reserve of the Air Force on 24 January 1992, his Total Active
Federal Commissioned Service Date (TAFCSD) was 22 December 1979 rather
than 27 August 1973; his Promotion Service Date (PSD) to the grade of
Captain was 24 January 1986, and IAW Title 10, United States Code,
Section 14706, his Mandatory Separation Date (MSD) was established as
1 May 2007 (maximum date based on age 60) rather than 1 October 2001.
b. He was promoted to the Reserve grade of major with a
Promotion Service Date and Promotion Effective Date of
25 January 1992.
c. He was not discharged from the Air National Guard and
transferred to the Air Force Reserve on 1 October 2001, but was
continued in his Air National Guard assignment.
_________________________________________________________________
The following members of the Board considered AFBCMR Docket Number 02-
00089 in Executive Session on 6 February 2003, under the provisions of
AFI 36-2603:
Mr. Thomas S. Markiewicz, Vice Chair
Ms. Rita S. Looney, Member
Mr. Mike Novel, Member
All members voted to correct the records, as recommended. The
following documentary evidence was considered:
Exhibit A. DD Form 149, dated 9 Jan 02, w/atchs.
Exhibit B. Applicant's Master Personnel Records.
Exhibit C. Letter, HQ ARPC/DPB, dated 20 Mar 02, w/atchs.
Exhibit D. Letter, SAF/MRBR, dated 5 Apr 02.
Exhibit E. Letter, Applicant, dated 18 Apr 02, w/atchs.
Exhibit F. Letter, HQ ARPC/DPB, dated 4 Jun 02, w/atchs.
Exhibit G. Letter, SAF/MRBR, dated 7 Jun 02.
Exhibit H. Letter, Applicant, dated 2 Jul 02.
Exhibit I. Letter, HQ USAF/JAG, dated 23 Jul 02.
Exhibit J. Letter, AFBCMR, dated 6 Aug 02, w/atchs.
Exhibit K. Letter, Applicant, dated 9 Aug 02.
THOMAS S. MARKIEWICZ
Vice Chair
AFBCMR 02-00089
MEMORANDUM FOR THE CHIEF OF STAFF
Having received and considered the recommendation of the Air
Force Board for Correction of Military Records and under the
authority of Section 1552, Title 10, United States Code (70A Stat
116), it is directed that:
The pertinent military records of the Department of the Air
Force relating to APPLICANT be corrected to show that:
a. At the time of his appointment in the Air National
Guard and as a Reserve of the Air Force on 24 January 1992, his
Total Active Federal Commissioned Service Date (TAFCSD) was
22 December 1979 rather than 27 August 1973; his Promotion Service
Date (PSD) to the grade of Captain was 24 January 1986, and IAW
Title 10, United States Code, Section 14706, his Mandatory
Separation Date (MSD) was established as 1 May 2007 (maximum date
based on age 60) rather than 1 October 2001.
b. He was promoted to the Reserve grade of major with
a Promotion Service Date and Promotion Effective Date of
25 January 1992.
c. He was not discharged from the Air National Guard
and transferred to the Air Force Reserve on 1 October 2001, but was
continued in his Air National Guard assignment.
JOE G. LINEBERGER
Director
Air Force Review Boards Agency
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