RECORD OF PROCEEDINGS
AIR FORCE BOARD FOR CORRECTION OF MILITARY RECORDS
IN THE MATTER OF: DOCKET NUMBER: BC-2005-01835
INDEX NUMBER: 100.00
XXXXXXX COUNSEL: None
XXXXXXX HEARING DESIRED: No
MANDATORY CASE COMPLETION DATE: 7 Dec 06
_________________________________________________________________
APPLICANT REQUESTS THAT:
His discharge from the Air Force on 28 Apr 05 for unsatisfactory
performance be declared void and removed from his record.
He be reinstated to active duty in the Air Force and permitted to
enter the retraining program previously approved for him.
In his rebuttal, the applicant requests that if the Board does not
grant the two requests above, in the alternative, they change his
reenlistment eligibility (RE) code to one that will allow him to
reenter military service.
_________________________________________________________________
APPLICANT CONTENDS THAT:
The administrative discharge package prepared on him contains
erroneous and unjust documentation.
His squadron commander was not aware that an unfavorable statement
submitted to him on the applicant by a senior NCO within the unit
contained faulty and unjust statements.
His squadron commander did not know about the favorable draft EPR
prepared on him by his original rater and that it was deliberately
kept away from him so others could pursue wrongful actions against
him. If his commander had been aware of these matters, he would have
been allowed to retrain and remain in the Air Force.
There has been no official documentation recorded concerning alleged
unruly behavior or actions by him during the period of the contested
EPR. He has never been counseled or allowed to correct any
deficiencies that have been identified in any correspondence.
He never received feedback on his performance before the contested EPR
was prepared because paperwork was backdated 256 days to assign him a
new supervisor to prepare the EPR.
In support of his appeal, the applicant provides copies of
documentation contained in the discharge action initiated against him,
a statement of unfavorable matters prepared by his father, a retired
Air Force senior NCO, a copy of a favorable draft EPR prepared by his
originally assigned supervisor, copies of documentation pertaining to
a Congressional complaint filed by his father, and copies of favorable
communications received during his time in the Air Force.
The applicant’s complete submission, with attachments, is at Exhibit
A.
_________________________________________________________________
STATEMENT OF FACTS:
The applicant entered active duty on 10 Sep 02 on a six year
enlistment. He served as a Systems Operations Technician. A resume
of the applicant’s EPR ratings follows:
Closeout Date Overall Rating
*15 Apr 04 4
**25 Mar 05 2
* Initial report: Applicant marked down to next to lowest block in
factor “How well does ratee comply with individual training
requirements?”
** Contested referral report. The report was referred to the
applicant because of the lowest ratings in performance factors 4,5,
and 6 in section III and the comments in section V. In his response
to the referral EPR, the applicant noted that he found out he had a
new supervisor only 21 days before the closeout date of the EPR. He
indicated that he received his initial feedback on the same day he
found out he had a new supervisor and was not told that his
performance was unsatisfactory. However, when the EPR was completed
21 days later, his supervisor wrote “unacceptable patterns of conduct
on/off duty,” “continued incidents of irresponsible/unprofessional
behavior,” and “compromised integrity on several occasions.” The
applicant indicated he had not been in any trouble off duty, but did
receive a letter of counseling (LOC) and letter of reprimand (LOR) for
his on-duty conduct. He acknowledged he was late on multiple
occasions, but had apologized for being late and had tried his best to
live up to the standards expected of him. The applicant stated that
while he had failed his CDC end-of-course test twice, he had always
maintained proficiency in his job. He noted that after failing his
CDC test twice, he was given the opportunity to retrain and attached
copies of letters of support he had received in his effort to retrain.
After considering the applicant’s letter, the additional rater
concurred with the rater. The additional rater indicated in his
comments that the applicant’s inability to complete his 5-level CDC
“initiated removal” from his Air Force Specialty Code (AFSC). He also
commented that the applicant “continuously makes irresponsible
choices; requires constant direct supervision—not currently promotion
ready.”
On 14 Mar 05, the applicant’s squadron commander documented in a
memorandum for record the progression of events surrounding decisions
made concerning the applicant’s two CDC failures, the processing of
his exception to policy for reclassification and retraining, and
finally, his continuous pattern of substandard behavior in the interim
of the waiver processing. The commander noted that shortly after
taking command of the unit, he was required to perform a commander’s
evaluation and assessment of the applicant since he failed his CDC end-
of-course exam for the second time. As part of the evaluation, he was
required to review the training records and commander’s evaluation
worksheet (performed four months earlier). The previous commander had
accomplished the evaluation worksheet. The previous commander
observed that the applicant was entered in a newly published set of
CDCs, that attention to detail by the applicant and his supervisors
was lacking, that appropriate supervisory involvement was missing, and
that the applicant experienced some personal challenges with his
family that may have contributed to his first failure. The previous
commander approved the applicant for his second test based on these
observations.
On or about 15 Jul 04, the unit was notified that he applicant failed
his second end-of-course exam. On 1 Sep 04, the commander reviewed
the applicant’s training record and his personal information file
(PIF). He noticed that the applicant had only minimal derogatory
information in his PIF. Also according to the applicant’s training
records, he had spent over 112 hours training for his second exam and
achieved a 92.5 percent average on his unit review exams.
According to the commander, “due to the technical nature” of their
profession, he considered but declined to request a CDC waiver for the
applicant based on two reasons:
a. He did not believe the Air Force could afford to have
someone operating and maintaining the multi-million dollar network who
could not attain the Air Force’s minimum standard.
b. He did not want anyone else in the unit to get the
impression that failing their CDCs is not a major negative issue.
When the commander engaged with squadron leadership concerning the
applicant’s situation he states he received mixed recommendations from
the applicant’s supervisor, flight superintendent, flight commander,
the squadron senior enlisted manager, and first sergeant. Some
stressed that the applicant might still have something to offer the
Air Force and could succeed in another Air Force Specialty Code
(AFSC). Several others argued he had had his opportunity and that he
had always been on the edge of trouble, but never bad enough to have
it documented. In addition, with the force shaping challenges facing
the Air Force, some recommended he be separated. When the commander
reviewed the applicant’s record, he noticed that he had been
transferred from various supervisors due to deployments and other
reasons. After interviewing the applicant, considering the strong
recommendation of his immediate supervisor, and the lack of derogatory
information in his PIF, he chose to pursue the exception to policy.
He tasked two senior NCOs with determining the process required for
the applicant to build a waiver package. On 22 Dec 04, HQ ACC
notified the unit that the exception to policy was approved. On 4 Jan
05, the applicant was officially presented his reclassification
package and instructions. His suspense for the package was 11 Jan 05.
He finally completed and returned it on 14 Feb 05.
In the interim period, the applicant had his AFSC removed and his
access to the network removed. The commander states it was also
believed the applicant had a tendency of “cutting corners,” and it
also appeared that the applicant was stalling his AFSC application.
When confronted by one of the designated senior NCOs, the applicant
presented conflicting reasons for the delay. The commander states he
asked his flight commander to insure the applicant was actively
employed and to not rule out utilizing him in other flights. During
the month of Feb, the commander states he received tidbits of negative
information that the applicant was not conducting himself as someone
who had been given a second chance and that he had serious integrity
problems. The commander discussed the applicant’s involvement in an
off-duty party where one airman died and the applicant himself was so
intoxicated an ambulance was called, although the applicant refused
transport and service. The commander also notes the applicant
received a letter of counseling for being repeatedly late to work.
The commander states that the applicant surfaced additional problems
by making false statements when he was caught changing his story. The
commander notes that on 9 Mar 05, the applicant’s former additional
rater delivered a document describing his reservations concerning the
applicant’s integrity and ability to adapt to the military way of
life. The commander indicates that after reading this document he
could not allow the applicant to be transferred to another unit and
realized he had made the wrong decision in pursuing a waiver to keep
the applicant in the Air Force.
On 10 Mar 05, the commander had the applicant report to his office
along with his supervisor and other supervisory personnel. He
explained to the applicant he could no longer recommend him to another
unit commander, that he had lost confidence in his integrity and
ability to make good decisions when no one was standing over his
shoulder. He advised the applicant he was going to document all of
the events that had occurred since his second failure and take it all
to the legal office to review his options. The commander recounts his
discussion with the applicant and his frustration that the applicant,
by his actions, had forced him to reevaluate his original decision to
support his reclassification.
On 14 Apr 05, the applicant’s squadron commander notified him he was
recommending his discharge from the Air Force for unsatisfactory
performance, specifically, failure to progress in his Career
Development Course (CDC). The commander recommended the applicant’s
service be characterized as honorable. The reasons for the
commander’s actions were:
a. On or about 15 Jul 04, the applicant failed his 5-level
CDC end-of-course examination for the second time.
b. On or about 25 Mar 04, the applicant failed his 5-level
CDC end-of-course examination for the first time.
The applicant acknowledged receipt on 14 Apr 05. The applicant
consulted counsel and submitted statements for the commander to
consider. The applicant noted in his response to the commander his
background and how he came to be a member of the Air Force. He
discussed various recognitions he had received. The applicant
indicated that he took full responsibility for his CDC failures.
However, he indicated that he was never counseled by the unit
commander after his first CDC failure as required by AFI 36-2201.
After his second failure, his commander, who had changed, followed Air
Force policy. Applicant notes that while studying for his second
test, numerous complications arose. He did not feel prepared to
retest when his test was scheduled forty days after his first failure.
He requested and was granted an extension. On the rescheduled test
date, he was involved in an auto accident, his wife was having
complications with a pregnancy, and so he was not mentally prepared to
test. He was again rescheduled to test on or about 8 Jul 05.
However, on 4 Jul 05, his wife went into labor and delivered on 5
Jul. He again requested his test be rescheduled, but was told he was
out of time when he had until late Aug or early Sep. He retested and
felt he had passed, but failed by three questions. The applicant
discussed a statement written by his former additional rater, which
recommended suspension of his security clearance and access to
classified information. The applicant ended his statement by
requesting retention in the Air Force and to be allowed to retrain.
The applicant’s squadron commander recommended to the wing commander
the applicant be discharged for the reasons indicated above. On 21
Apr 05, the wing staff judge advocate (SJA) found the discharge action
initiated against the applicant legally sufficient and recommended the
wing commander discharge the applicant with service characterized as
honorable without an offer of probation and rehabilitation. On 27 Apr
05, the wing commander directed the applicant’s honorable discharge
without probation and rehabilitation. The applicant was discharged on
28 Apr 05 for unsatisfactory performance with a “2C” reenlistment
eligibility (RE) code, “Involuntarily separated with an honorable
discharge.”
_________________________________________________________________
AIR FORCE EVALUATION:
AFPC/DPPRS recommends denial of the applicant’s request for
reinstatement. Based on documentation on file in the master personnel
record, the discharge was consistent with the procedural and
substantive requirements of the discharge regulation. The discharge
was within the discretion of the discharge authority.
The complete evaluation is at Exhibit C.
AFPC/JA recommends denial of the applicant’s appeal. In support of
his argument of unfair treatment by his commander and certain members
of his supervisory chain, the applicant contends a “draft” EPR
allegedly prepared by his original supervisor was “deliberately kept
away” from his commander “for others to pursue wrongful actions.” He
also maintains that no “official documentation” exists concerning his
alleged unruly behavior during the period in question and that he had
not been afforded the opportunity to correct any noted deficiencies.
Lastly, the applicant claims he was never provided mandatory feedback
sessions because his supervision was backdated approximately 256 days
to allow another NCO to prepare his EPR. The applicant believes if
his commander had been aware of these matters, his retraining and
retention would have been permitted. AFPC/JA provides the following
response to the applicant’s major assertions:
a. EPRs: The unsigned draft EPR provided by the applicant
rates him an overall “4” and states he is worthy of retention and
retraining. According to the applicant his supervisor at the time
prepared this EPR prior to deploying for 120 days. The Air Force
instruction governing the preparation of EPRs prohibits providing
these types of documents to airmen to avoid issues exactly of this
nature. This draft EPR is clearly a work in progress and is not a
final official document. AFPC/JA opines that the final EPR received
by the applicant most accurately reflects his work and behavioral
qualities during that rating period.
b. Misbehavior Documentation. Not withstanding the
applicant’s claim to the contrary, several acts of misconduct on his
part were formally addressed and he was provided the opportunity to
respond to them. He received a letter of counseling (LOC) on 14 Feb
05 for being late to work and a letter of reprimand (LOR) on 3 Mar 05
for a variety of offenses, including late to work, making a false
statement, and failure to follow squadron policies. Additionally, the
applicant received a memorandum from his supervisor on 10 Sep 03
regarding sexual harassment guidelines after he made inappropriate
remarks about his personal sexual habits to two women. While true the
memorandum given to the commander by the applicant’s previous
additional rater references assertions:
a.
specific acts of misbehavior on the applicant’s part that were not
addressed in any administrative or nonjudicial actions, for the
applicant to claim there is no official documentation of his
misconduct and that he had not been given the chance to correct his
deficiencies borders on being disingenuous.
c. Administrative Feedback. AFPC/JA discusses the
circumstances that may have caused the applicant to receive feedback
so close to the closeout date of the EPR. However, they note that
the governing AFI clearly states that failure to receive feedback does
not invalidate the performance report for that period.
AFPC/JA notes there are no procedural irregularities that affected the
applicant’s due process rights and he has not provided any evidence to
show that denial of his reclassification and subsequent discharge was
unjust. The applicant and his family members offer a series of
largely self-serving and unsubstantiated letters suggesting that
certain NCOs in his unit inappropriately orchestrated his
administrative separation. However, the applicant does not contest
that his two CDC failures properly subjected him to an administrative
discharge action for unsatisfactory performance. It is clear from the
record that the applicant’s commander gave significant consideration
to all the evidence available before, understandably, changing his
mind that it was in the best interest of the Air Force to separate the
applicant.
The complete evaluation is at Exhibit D.
_________________________________________________________________
APPLICANT'S REVIEW OF AIR FORCE EVALUATION:
In his response to the Air Force evaluations, the applicant indicates
that he does not disagree with the provisions of AFI 36-3208 and
accepts full responsibility for his CDC failures. However, he asserts
that the Air Force evaluation did not discuss the unusual
circumstances surrounding his scheduled testing. He emphasizes that
his objection is not being afforded the opportunity to retrain into
another career field after it was approved by the Major Command.
The applicant states that the Air Force evaluation does not address
the unjust and unfair treatment he believes he received by Air Force
officials who accomplished the cancellation of his retraining to
coincide with the discharge action. The applicant questions what is
meant by the phrase “cutting corners” that is referenced in the
evaluation and was used by another Air Force official in his case.
The applicant asserts that this perceived problem was never addressed
to him at any time by his superiors. He asks several rhetorical
questions, e.g., “Am I at fault for trying to find innovative ideas to
do business, while staying within the boundaries of Air Force
directives?” The applicant asserts if he knew he was doing wrong, he
would have corrected his actions.
The applicant addresses the comment in the advisory that it appeared
he was stalling his AFSC application and that he presented conflicting
stories when confronted. He states this is a misleading comment and
that he never intended to stall or to make excuses about being unable
to meet the required suspense of 11 Jan 05. He states it was because
of the extreme frustration he had in trying to get appointments with
all the various sections to conduct the required interviews. He
states he tried to properly report the problems he was having to his
supervisors, but indicates they saw them as excuses and didn’t seem to
care. He felt that the individuals who wanted him discharged were
responsible for not helping him to achieve the required deadline.
The applicant provides a statement to address the comments provided by
AFPC/JA in the following areas:
a. Discussion. The applicant states that the draft EPR is
not an “allegedly” reported item. It did exist and he references an
attached memorandum provided by the individual that wrote it to
substantiate its existence. He notes that his previous rater states
that the rater that wrote the official report “had little to no actual
experience or supervisory time” with the applicant and that the
rater’s only concern was to get the applicant out of the Air Force.
The applicant opines that the advisory opinion might have been
different if they would have had this statement.
b. EPR. The applicant states that his previous supervisor
actually wrote the draft EPR in question, was his official reporting
official, observed his performance for the entire reporting period,
and submitted it as a final, “favorable” EPR while TDY. Upon learning
that his reporting official was being changed by backdating by 256
days his assigned supervisor, the applicant contacted his previous
supervisor to determine “what was happening.” The previous rater
provided him the unsigned copy to show that he had written a favorable
EPR and submitted it as a final. He wanted to include this with his
rebuttal statement submitted after consulting the Area Defense Counsel
(ADC). He notes that his rebuttal statement was never mentioned by
the advisory opinion writer.
The applicant notes that the Air Force evaluation states that the AFI
regarding preparation of EPRs prohibits writing “working reports.” He
further notes that the referral report prepared on him was backdated
some 256 days and was written by another NCO not in his chain of
command who did not observe his performance during the period. He
states he believes the AFI prohibits these practices as well.
The applicant states that the Air Force advisory opinion states that
the final EPR he received “most accurately” reflected his work and
behavioral qualities during that reporting period. He asserts that
the advisory opinion failed to address the favorable issues in his
record. He recounts the many favorable letters he received and notes
they are dated within the period of the contested EPR. He concludes
that the conflicting evidence substantiates his belief that the
contested report was written to accomplish the cancellation of his
approved retraining package and to coincide with his separation from
the Air Force.
c. Misbehavior Documentation. The applicant acknowledges
that he received a LOC and LOR for being late for duty. However, he
states that the advisory opinion fails to address his rebuttal
statements, indicating he had permission from his NCOIC to return late
after attending an office function. These documents did not reflect a
degradation of his work being performed.
d. Administrative Feedback. The applicant indicates he does
not believe he has failed in his burden to establish an error or
injustice warranting granting of the relief he has requested. The
applicant opines that the preponderance of evidence exists to show
that the actions taken were done to accomplish his separation from the
Air Force based on fabricated and undocumented information. He states
the following documents in his case file support his case:
a. The favorable EPR written by his original supervisor was
not utilized.
b. The referral EPR he received was backdated 256 days and
written by an NCO who was not involved with his work structure chain
and had no observation of his duty performance.
c. His rebuttals to the LOC, LOR, and proposed discharge
action.
d. Thirteen favorable letters on his character and job
performance.
The applicant opines that the AFPC/JA advisory opinion fails to
address the lack of documentation to support the issues and concerns
reported by his commander and his previous additional rater. He poses
the question to the Board that if his performance was so bad, why was
he never informed or counseled and allowed to correct the
deficiencies. He notes that the performance feedback was only two
weeks before the closeout and did not provide him the opportunity to
correct the noted deficiencies. He disagrees with the advisory
opinion conclusion that he did not suffer prejudice as a result of the
possible anomaly regarding the required feedback session.
The applicant asks that if the Board determines that reinstatement is
not warranted, his reenlistment eligibility (RE) code be changed to
one that will allow him to reenter military service.
The applicant’s complete submission, with attachments, is at Exhibit
F.
The applicant submitted an additional letter to correct two errors in
his initial rebuttal:
a. In the EPR section of his rebuttal, he states that where
he indicated his EPR was written by another NCO “who was not” in his
chain of command it should read that the EPR was written by another
NCO “in” his chain of command, but he did not observe his performance
during the rating period.
b. In the Administrative feedback section where he listed
supporting documents, the second item should read that the referral
EPR he received was “written by an NCO who was within my work
structure chain,” rather than “written by an NCO who was not involved
with my work structure chain.”
The applicant’s complete additional submission is at Exhibit G.
_________________________________________________________________
THE BOARD CONCLUDES THAT:
1. The applicant has exhausted all remedies provided by existing law
or regulations.
2. The application was timely filed.
3. Insufficient relevant evidence has been presented to demonstrate
the existence of error or injustice warranting reinstatement of the
applicant to active duty. The applicant contends that the commander
made his decision to revoke his approved retraining and to separate
him from active duty because he was unaware that a senior NCO who
previously served as the applicant’s additional rater made “faulty and
unjust” statements in a letter written regarding the applicant. The
applicant further contends the commander was unduly influenced by
individuals in the unit that wanted the applicant discharged. In
support of these claims, the applicant provides a favorable draft EPR
prepared by the individual he claims actually supervised him during
the period of the referral EPR he received. The applicant opines that
if the commander “had been aware about the existence of these matters,
then my approved retraining and retention in the Air Force would still
exist.” However, we note that the commander was aware of these
matters before he finalized his decision to separate the applicant.
The commander indicates his concurrence with the referral EPR. The
commander’s review is the final action and would have included a
review of the comments of the rater, additional rater, and the
response provided by the applicant. Included in the applicant’s
response to the referral EPR were comments regarding the change of his
rater and the draft EPR written by the individual he claims was
assigned as his rater for most of the rating period. However, we note
the applicant has not provided official documentation to show that
anyone other than the rater of record on the referral EPR was assigned
as his rater during this period or to support his claim that the
assignment of his rater was backdated by 256 days. Regarding the
issue of the unfavorable letter written by the applicant’s previous
additional rater, the applicant commented on this letter in his
response to the proposed discharge action. When considering these
facts along with the detailed memorandum written by the commander
concerning actions taken in the applicant’s case, it does not appear
that the commander’s actions were either arbitrary or capricious and
were completely within his discretionary authority. Therefore, in the
absence of evidence to the contrary, we find no compelling basis to
recommend granting the relief sought in this application.
4. Notwithstanding our determination above regarding reinstating the
applicant to active duty, we note that the evidence of record indicates
that the applicant was capable of satisfactory duty performance at
times. It also appears there may have been extenuating circumstances
that contributed to some of the problems the applicant experienced. We
note the commander’s comments regarding his initial decision to request
a waiver to allow the applicant to retrain. While insufficient
evidence has been presented to overturn the commander’s decision, we
believe the applicant should be provided the opportunity to apply for
reentry into military service. As such, we recommend his reenlistment
eligibility code be changed to a waiverable code thereby allowing the
military services to determine if they want to accept him for further
service. Therefore, we recommend his records be corrected as indicated
below.
_______________________________________________________________
THE BOARD RECOMMENDS THAT:
The pertinent military records of the Department of the Air Force
relating to APPLICANT be corrected to show that at the time of his
honorable discharge on 28 April 2005, he was issued a Reenlistment
Eligibility Code of “3K.”
_______________________________________________________________
The following members of the Board considered Docket Number BC-2005-
01835 in Executive Session on 21 September 2005, under the provisions
of AFI 36-2603:
Mr. Joseph G. Diamond, Panel Chair
Mr. Charlie E. Williams, Jr., Member
Mr. Jay H. Jordan, Member
All members voted to correct the records, as recommended. The
following documentary evidence was considered:
Exhibit A. DD Form 149, dated 31 May 05, w/atchs.
Exhibit B. Applicant's Master Personnel Records.
Exhibit C. Memorandum, AFPC/DPPRS, dated 8 Jul 05.
Exhibit D. Memorandum, AFPC/JA, dated 9 Aug 05.
Exhibit E. Letter, SAF/MRBR, dated 12 Aug 05.
Exhibit F. Letter, Applicant, dated 22 Aug 05, w/atchs.
Exhibit G. Letter, Applicant, dated 24 Aug 05.
JOSEPH G. DIAMOND
Panel Chair
AFBCMR BC-2005-01835
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 XXXXXXX, XXXXXXX, be corrected to show that at
the time of his honorable discharge on 28 April 2005, he was issued
a Reenlistment Eligibility Code of “3K.”
JOE G. LINEBERGER
Director
Air Force Review Boards Agency
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