RECORD OF PROCEEDINGS
AIR FORCE BOARD FOR CORRECTION OF MILITARY RECORDS
IN THE MATTER OF: DOCKET NUMBER: BC-2005-01679
INDEX CODE: 100.00
XXXXXXX COUNSEL: EUGENE FIDELL
HEARING DESIRED: YES
MANDATORY CASE COMPLETION DATE: 1 APRIL 2007
________________________________________________________________
APPLICANT REQUESTS THAT:
1. The Field Grade Officer Performance Report (OPR) rendered for the
period from 27 May 1990 to 31 July 1990, and any related correspondence, be
removed from his records.
2. His 1991 separation from the Regular Air Force and honorary
retirement from the Air Force Reserve (AFRes) be set aside, and he be
retroactively reinstated into the Regular Air Force.
3. His corrected record be considered for promotion to the grade of
lieutenant colonel by Special Selection Boards (SSBs) for the first two
selection boards he would have been eligible to meet.
4. He be retroactively retired from the Regular Air Force upon
eligibility.
5. In the alternative to the above requested relief, he receive
retroactive constructive service credit in the Air National Guard (ANG) or
AFRes from 1991, he receive SSB consideration to the Reserve grade of
lieutenant colonel by the first two boards he would have been eligible to
meet, and be placed in a non-Judge Advocate General (JAG) Individual
Mobilization Augmentee (IMA), Category B position; or in the alternative,
he receive constructive service credit in the AFRes until retirement
eligibility, and retired accordingly.
6. He receive such other thorough and fitting relief as the Board
determines just and proper.
________________________________________________________________
APPLICANT CONTENDS THAT:
The contested OPR is erroneous/unjust and was used to unjustly manipulate
his separation.
The report was written solely because of misperceived integrity criticism
regarding his XXXXXXX application and was written without the benefit of an
official complete copy of his XXXXXXX application. As a result, relevant
clarifying and explanatory attachments to his application were never
reviewed by the author of the report which gave an unjust impression of his
application. These attachments included his OPRs which listed all of his
full and accurate job titles, position descriptions, and duties, in exact
military terminology. The negative comments contained in the report only
reference this one event. Further, the report is the only negative report
in his otherwise perfect military record and is inconsistent with a
lifetime of demonstrated character. Since the report is in error and
unjust it, along with any direct or indirect references made to it, should
be removed from his records and he be allowed to continue his military
career. He never misrepresented his credentials in his XXXXXXX application
as alleged, but rather attempted to bridge the language barrier between
mismatched civilian and military programs, processes, and standards. This
dissonance was not a reflection of his dishonestly, but rather
displacement. Although the XXXXXXX signed the report, it was actually
written by his deputy, who commonly engaged in a pattern of torturing out
of context the narrow language of a matter to an extreme, and then
vehemently disagreeing with his resulting extreme. This over-zealous
practice was obviously applied to his situation when this individual
obtained an unofficial incomplete copy of his confidential XXXXXXX
application, in violation of law. His application was a personal record in
a system of records, with access limited to those associated with the
XXXXXXX application to be used for the purpose of screening applicants
prior to interviews.
His separation was involuntary since he had no intent or desire to leave
his chosen profession, and but for the contested report and derivative
separation documents, would have continued his military career through
retirement. The OPR mandate for his separation was widely disseminated
throughout the Air Staff and prevented him from receiving accurate
separation, early retirement, or potential career entitlement counseling.
He was misled by the former top Air Force Legal Assistant Officer as to the
impact the report would have on his ability to continue his career through
retirement with the AFRes or Air National Guard (ANG). He relied on this
misinformation and did not contest the separation action. Had he been
properly briefed, it is inconceivable that he would have accepted
separation so close to initial retirement eligibility.
Although it would fail to fully erase and compensate the injustices of his
active duty separation, his retroactive reinstatement in the AFRes would
permit him to earn his military retirement. Since he would have been able
to immediately obtain a Reserve position in either the active or ready
reserves, but for the contested report, constructive service credit is
appropriate, in additional to promotion opportunities by SSBs until his
retirement. The Board would be granting “half-a-loaf” relief if it were to
merely allow him to earn points for retirement.
In view of the institutional embarrassment and exposure of administrative
errors by the XXXXXXX staff and their prolonged refusal to provide him
access to any appropriate corroborating support, his failure to timely file
should be waived in the greater interest of fairness and justice.
Furthermore, in 2005, he was denied entry into the Ready Reserves to
complete his final years for retirement and was told the principle reason
was the contested report. In addition, only a few weeks prior to
submitting his application, he was finally able to obtain consent to
disclose the former Secretary’s identify and principal directing role in
his XXXXXXX application.
In support of the appeal, the applicant submits the following:
a. A statement from a former Secretary of the Air Force, stating
that it was highly inappropriate for the confidential application to be
unlawfully released to Air Force personnel not associated with the XXXXXXX.
b. A statement from a former XXXXXXX commissioner, who states that
due to a tendency of XXXXXXX applications from military officers to include
confusing and lengthy military terminologies or acronyms thereby weakening
the impact of their applications, he advised the applicant and another
officer to use more concise, understandable, and impactful descriptions of
their military positions, roles, and responsibilities, in their
applications to avoid confusing the many civilian reviewers.
c. A statement from another former XXXXXXX commissioner, who states
that when considering the totality of the applicant’s full XXXXXXX
application it was quite clear that his entries were valid, and that his
application was a good faith representation of his extraordinary life and
career. He further states the Air Force officer criticizing the
application was in possession of an incomplete, unofficial application,
which included all of the applicant’s OPRs. He notes this is an important
point not only to comply with the principles of complete and accurate
federal records, but also because the applicant had voluntarily attached
his OPRs, which allowed him to enter more brief and less confusing titles
and position information in his application, as advised by another seasoned
XXXXXXX commissioner.
Applicant’s complete submissions, with attachments, are at Exhibit A.
________________________________________________________________
STATEMENT OF FACTS:
Upon graduation from the United States Air Force Academy (USAFA), on 2 June
1976, he was commissioned a second lieutenant in the Regular Air Force
(RegAF) and entered active duty. He was progressively promoted to the
grade of major, effective and with a Date of Rank (DOR) of 1 November 1986.
In December 1989, he applied for a XXXXXXX and was selected.
He was considered Below-the-Promotion Zone (BPZ) and not selected for
promotion to the grade of lieutenant colonel by the Calendar Year 1990A (CY
90A) BPZ Central Selection Board, that convened on 16 January 1990.
On 20 September 1990, he received a referral OPR, rendered for the period
28 May 1990 through 31 July 1990, with an attached referral Letter of
Evaluation (LOE), AF Form 77, Supplemental Evaluation Sheet, dated 14
September 1990. On 27 September 1990, he submitted rebuttal comments to
the report, with attachments. After considering the matters submitted by
applicant, on 24 October 1990, the additional rater signed the report and
it became a matter of record.
On 31 October 1990, he voluntarily tendered his resignation from the
Regular Air Force, which was accepted by the Secretary of the Air Force on
15 November 1990.
He was separated from the Regular Air Force on 12 July 1991, under the
provisions of AFR 39-12, Voluntary Resignation: Completion of Active Duty
Service Commitment, and issued an Honorable Discharge Certificate. He
completed 15 years, 1 month, and 11 days of active duty.
On 18 February 2005, he was notified that his application for assignment to
The Judge Advocate General’s Corps Reserve (JAGCR) was reviewed by The
Judge Advocate General (TJAG) and he was not offered an assignment as a
Category B IMA.
Applicant applied to the Evaluation Reports Appeal Board (ERAB) requesting
the contested report be removed from his records. By letter of 29 August
2005, the ERAB officially notified him the contested report should never
have been written and directed its removal from his records. However, it
was later determined they lacked the authority to do so since the applicant
was no longer on active duty and the contested report is filed in the
applicant’s Master Personnel Record (MPR).
Applicant’s performance profile since 1984 follows:
PERIOD ENDING EVALUATION OF POTENTIAL
28 Mar 84 1-1-1
14 Nov 84, w/LOE 1-1-1
19 Mar 85 1-1-1
19 Sep 85 1-1-1
17 Jan 86 1-1-1
Applicant’s performance profile continued:
PERIOD ENDING EVALUATION OF POTENTIAL
19 Aug 86 1-1-1
19 Aug 88 Meets Standards (MS)
*27 May 89 MS
27 May 90 MS
**31 Jul 90 MS on all standards except
Leadership Skills,
Professional Qualities, and
Judgment and Decisions
* Top report reviewed by the CY90B Selection Board
** Contested referral report
________________________________________________________________
AIR FORCE EVALUATIONS:
AF/JAA recommends the application be denied, noting that it was untimely
filed and lacks merit. AF/JAA notes the following:
a. The application should be denied as untimely since it was filed
more than 15 years after the report was a matter of record. In the
alternative, it should be denied due to a lack of merit. While the
applicant attempts to explain the delay through a bizarre tale of
bureaucratic intrigue, the issue is not the viability of the XXXXXXX
Program or the career aspirations of certain political appointees, but
whether the referral report was properly accomplished.
b. AFPC/DPPEP’s opinion that the contested report should not have
been written is based on the erroneous application of the governing
regulation. The LOE was a referral report and covered a period of 65 days.
Further, there was a Change in Reporting Official (CRO) and the applicant
had not applied for separation until after receiving the report.
c. Although the applicant characterizes his actions differently
than his supervisor would, it is the prerogative of a supervisor to rate
the subordinate. He does not allege bad faith, reprisal, or other ill
motives to the rater, and acknowledges the merits of the rater’s
perspective.
d. While he contends he was following the ranking XXXXXXX
Commissioner’s directions, given the large percentage of military officers
obtaining XXXXXXX (1/3), the XXXXXXX board members undoubtedly were
familiar with military terms and concepts. Further, there is no evidence
the other military members misrepresented, or were advised to misrepresent,
their credentials. He is responsible and accountable for the application
he signed and submitted regardless of whatever advice he received.
e. He was interviewed by his rater and had the opportunity to
provide all relevant and important details. He also had an opportunity to
do so in his response to the referral report. Since he had the opportunity
to correct any misperceptions of an incomplete application at the time of
the referral report, it is untimely at this point.
f. As an Air Force officer applying to an official Air Force
sponsored program, his application and its contents are not confidential
but are of interest to the Air Force. He was on duty 24 hours a day and
seven days a week, and as such, his action both on and off duty are subject
to court-martial or administrative sanction. Without question any
misrepresentations on his application can form the basis for official
action.
g. Although he may feel the report is inconsistent with a lifetime
of character, the report documented his performance during the period of
the report.
h. The fact he voluntarily chose to separate and did not choose to
appeal the report, indicates he did not intend to remain in the military.
Given his completion of the highly competitive XXXXXXX Program, it is
reasonable to conclude that he made a conscious and voluntary choice to
pursue career options outside the military, notwithstanding the contested
report. Further, as a judge advocate, he should have been aware that legal
assistance attorneys do not provide career counseling.
i. He did not pursue entry into the participating reserves for
over 14 years after his separation. It is entirely likely that a 14-year
gap in service made him less competitive for a position in the reserves.
j. Absent judge advocate certification and designation, he will be
unable to perform duties as a judge advocate.
The AF/JAA evaluation, with attachments, is at Exhibit D.
AFPC/DPPPEP recommends denial of the applicant’s request to remove the
contested report from his records. The report was required due to a CRO
and since there was less than 120 days of supervision, the rater had a
choice to render an optional LOE, which he chose to do. Because it would
have contained referral remarks, an OPR would have been required as long as
there were 60 days of supervision. In his case, there were 65 days of
supervision. Although they previously determined the report should be
removed, they subsequently found they lacked the authority to do so since
the applicant was no longer on active duty. Furthermore, their prior
recommendation was made based on the absence of evidence indicating a CRO
took place. However, they have since discovered evidence that a CRO did
occur and conclude the report was valid.
The AFPC/DPPPEP evaluation, with attachments, is at Exhibit F.
AFPC/DPPPO recommends denial of the applicant’s request for SSB
consideration since he has not shown the contested report was in error or
unjust.
The AFPC/DPPPO evaluation, with attachments, is at Exhibit G.
On 16 August 2006, SAF/GC was requested to provide an advisory opinion and
the applicant’s counsel was advised accordingly; however, on 26 February
2007, SAF/GC was advised that an advisory opinion would not be required.
________________________________________________________________
APPLICANT'S REVIEW OF AIR FORCE EVALUATIONS:
Applicant’s counsel reviewed the evaluations and states, in part, the
following:
a. The failure to timely file should be waived since the applicant
was rejected for ANG and AFRes positions within three years of his AFBCMR
petition, i.e., 2004 and 2005, respectively. Further, it is uncontested by
the evaluations that applicant was unable to locate necessary witnesses.
Further, after repeated attempts to affiliate with the ANG and AFRes he was
advised the referral report was an insuperable obstacle and that he should
allow some time to pass so the damage from the report would abate.
b. The favorable decision of the ERAB has been executed and must
be given effect. In accordance with the governing Air Force Instruction
(AFI), the ERAB has the power to direct corrections to reports and the
final decisional authority is the ERAB President. It does not provide for
appeals by other Air Force offices, such as the Administrative Law
Division, of favorable ERAB decisions. The ERAB’s decision is final and
not subject to review. A contrary ruling would violate the rule that an
officer cannot be made worse off than before as a result of action by a
correction board. The ERAB officially notified the applicant of their
favorable decision and even memorialized the fact that no AF Form 77 would
be prepared because no report should ever have been generated. As evidence
the ERAB’s decision was implemented, the applicant obtained a hard copy of
his entire Master Personnel Record (MPR) in 2005 and the report was not in
his record. Furthermore, it would be profoundly unjust to roll back the
ERAB’s decision, since the applicant has advised potential employers the
report had been removed from his military record.
c. The report is unfair because it concerns extraneous matters
other than the applicant’s performance and the superficial litany of sins
contained therein, are at worst in the category of “puffing.” The XXXXXXX
application is an advocacy document to use in the selection of XXXXXXX
candidates by civilians and is not intended to be the equivalent of an
officer’s official personnel file, to be read by experienced eyes of
uniformed selection board members. Moreover, since the applicant
voluntarily provided supporting documents to ensure full and accurate
disclosure, which included his OPRs, he never intended to deceive.
d. The manner in which the report was prepared speaks volumes and
bears directly on its trustworthiness. In this regard, counsel notes that
in the 1990-1991 XXXXXXX cycle, the applicant was one of three Air Force
JAG officers who were XXXXXXX finalists. The applicant was one of two
selected. However, the third, a popular and equally highly qualified JAG
was not selected. This individual’s mentor had previously headed the AF/JA
Management Division and prevailed upon the Chief of the General Litigation
Division and Management Division officials to illegally obtain a partial
copy of the applicant’s XXXXXXX application from the political appointee
responsible for administration of the XXXXXXX Program, without his consent.
The release of XXXXXXX applications is limited to a congressional office
from the record of an individual in response to an inquiry from the
congressional office made at the request of the individual, the release of
his XXXXXXX. In view of this and since the applicant never provided his
consent, the release of the protected XXXXXXX application was unlawful and
all resultant actions should be set aside.
In further support of the appeal, the applicant’s counsel submits a
statement from the former Air Force Legal Assistant Officer that provided
him legal counsel concerning the referral report, the former Staff Judge
Advocate (SJA) for the Maryland ANG and copies of electronic mail
concerning the applicant’s attempts to obtain a JAG position in the ANG,
and a Notice of System of Records for XXXXXXX. The former Air Force Legal
Assistant Officer states, in part, that after conferring with the Executive
Officer to TJAG, he suggested the applicant leave active duty and if he
desired to continue his military career, he do so in the ANG since state
JAG appointments were not controlled by the TJAG, unlike AFRes JAG
appointments.
Counsel’s complete response, with attachments, is at Exhibit I.
________________________________________________________________
THE BOARD CONCLUDES THAT:
1. The applicant has exhausted all remedies provided by existing law or
regulations.
2. The application was not timely filed; however, it is in the interest of
justice to excuse the failure to timely file.
3. Sufficient relevant evidence has been presented to demonstrate the
existence of error or injustice to warrant removing the contested OPR from
the applicant’s records. The contested report was referred to the
applicant based on comments that he misrepresented his credentials in his
application to the XXXXXXX commission and three performance factors not
meeting standards, i.e., Leadership Skills, Professional Qualities, and
Judgment and Decisions. We note that during the XXXXXXX selection process
applicants undergo a complete full field-investigation by OPM validating
the details of their applications and the commissioners conduct a series of
intense interviews of all the finalists. The applicant underwent this
process and was selected for a XXXXXXX. Subsequent to his selection
allegations were brought to his rating chain’s attention that he may have
misrepresented his credentials. While the manner in which an incomplete,
unofficial copy of his XXXXXXX application was obtained by the Air Force is
somewhat troubling, as a member of the armed forces, his actions on and off
duty can serve as the basis for official action. As such, we do not find
it unusual that his application would be of interest to the Air Force.
However, we find it unjust that his rating chain would determine that he
had misrepresented his credentials based on an incomplete application
before them, which did not contain many of the relevant clarifying and
explanatory attachments. We find this especially disturbing when
considering the XXXXXXX office, which had access to his complete
application, ultimately cleared him of the allegations and he completed his
full XXXXXXX year with honor and distinction. Several former XXXXXXX
commissioners have provided supporting statements on the applicant’s
behalf, to include a former acting Secretary of the Air Force, a former
cabinet member, and a former executive assistant to the General Counsel,
Department of Transportation. These statements indicate that when
considering the totality of the full application, it was clear his entries
were valid, a good faith representation of his life/career, and were made
based on the advise he had received from a former XXXXXXX commissioner. In
this respect, the former XXXXXXX commissioner that counseled the applicant
in this regard states that due to a tendency of XXXXXXX applications from
military officers to include confusing and lengthy military
terminologies/acronyms thereby weakening the impact of their applications,
he told the applicant and another officer, that they should use more
concise, understandable, and “impactful” descriptions of their military
positions, roles, and responsibilities, in their applications to avoid
confusing the many civilian reviewers. In view of this, and since he
provided relevant clarifying/explanatory attachments with his XXXXXXX
application, to include copies of his OPRs, we fail to see any deception on
his part or any attempt to misrepresent his credentials. To the contrary,
based on the evidence before us, it appears his actions were a good faith
effort to follow the advice of a former XXXXXXX commissioner in preparing
his application. Given the totality of the evidence before us, noting the
applicant’s otherwise stellar record of performance, and in great deference
to the supporting statements from the former XXXXXXX commissioners, we
believe the applicant has met his burden of establishing that sufficient
doubt exists as to the accuracy of the contested report. Therefore, we
recommend the contested report be removed from the applicant’s records.
However, since it was never a matter of record during any promotion
consideration, there exists no basis upon which to recommend SSB
consideration.
4. Notwithstanding the above, insufficient relevant evidence has been
presented to demonstrate the existence of error or injustice warranting
further relief. After thoroughly reviewing the evidence of record and
noting the applicant’s contentions, we are not persuaded that his
separation was involuntary or that he would have continued his military
career through retirement but for the contested report. While clearly the
contested referral OPR had a negative impact, it was not the cause for his
separation, or his voluntary resignation of his commission. He contends he
was officially advised of several additional career penalties if he
remained on active duty and was coerced into separating; however, he
provides no evidence in support of this contention. The fact remains, he
voluntarily chose to separate, rather than remain on active duty and appeal
the report. He could have remained on active duty, faced the accusations
against him, and availed himself of all rights to which he was entitled.
After considering all of his options, it appears he determined his
separation was in his best interest. Although he now contends, some 14
years later, the XXXXXXX office staff’s prolonged refusal to provide him
access to any appropriate corroborating support left him without immediate
recourse, we do not believe this, in and of its self, precluded him from
appealing the report prior to his 12 July 1991 separation. We recognize
the contested OPR may have been a contributing factor in his inability to
gain entry into a participating Reserve position in 2004/2005; however, so
too may have been his decision to wait 14 years prior to seeking a reserve
position. Although he contends his multi-faceted efforts in finding any
reserve or guard positions were refused by recruiters from each category
due to the contested report, there is no documentary evidence to support
that he pursued a reserve/guard position until 2004/2005. Furthermore, we
find no evidence that he has ever requested a non-JAG IMA assignment.
Therefore, in the absence of evidence to the contrary, we find no
compelling basis to recommend favorable consideration of the remainder of
his requests.
5. The applicant's case is adequately documented and it has not been shown
that a personal appearance with or without counsel will materially add to
our understanding of the issues involved. Therefore, the request for a
hearing is not favorably considered.
________________________________________________________________
THE BOARD RECOMMENDS THAT:
The pertinent military records of the Department of the Air Force relating
to APPLICANT, be corrected to show that the Field Grade Officer Performance
Report, AF Form 707A, rendered for the period 27 May 1990 through 31 July
1990, be declared void and removed from his records.
________________________________________________________________
The following members of the Board considered AFBCMR Docket Number BC-2005-
01679 in Executive Session on 27 February 2007, under the provisions of AFI
36-2603:
Mr. John B. Hennessey, Panel Chair
Ms. Patricia R. Collins, Member
Ms. Teri G. Spoutz, Member
All members voted to correct the records, as recommended. The following
documentary evidence was considered:
Exhibit A. DD Form 149, dated 17 May 2005, w/atchs &
Letter, dated 27 Sep 05, w/atchs.
Exhibit B. Applicant's Master Personnel Records.
Exhibit C. Memo, AFPC/DPF, dated 9 Nov 05, w/atchs.
Exhibit D. Memo, AF/JAA, dated 29 Nov 05, w/atchs.
Exhibit E. Memo, AFPC/DPPPR, dated 12 Jan 06.
Exhibit F. Memo, AFPC/DPPPEP, dated 28 Mar 06, w/atchs.
Exhibit G. Memo, AFPC/DPPPO, dated 29 Mar 06, w/atchs.
Exhibit H. Letter, SAF/MRBR, dated 7 Apr 06.
Exhibit I. Letter, Counsel, dated 5 May 06.
Exhibit J. Letter, Counsel, dated 15 Jun 06, w/atchs.
Exhibit K. Letter, Counsel, dated 16 Aug 06.
JOHN B. HENNESSEY
Panel Chair
AFBCMR BC-2005-01679
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 the Field Grade
Officer Performance Report, AF Form 707A, rendered for the period 27 May
1990 through 31 July 1990, be, and hereby is, declared void and removed
from his records.
JOE G. LINEBERGER
Director
Air Force Review Boards Agency
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