The TSA lawyers omitted this page from evidence Page 93 1

2

broken? A

It was a -- it was a line in the, it was a

3

section in the aviation and transportation security

4

account.

5

Do you got that file?

6

MR. NOONE:

7

BY MS. CALAGUAS:

8

9

Q

No.

As best you can recall it,

there was some

provision of ASAC that you believed was being broken?

10

A

No, I knew was being broken.

11

Q

You may not remember the specific language,

12

but canyall generally describe to me what about ASAC

13

that you thought was being broken?

14

A

Yes, long distance aircraft that flew

15

non-stop, just like the four air crafts that were

16

highjacked and flown into the ground on September 11th.

17

I believe it specifically said September 11th,

18

and it said -- I denlt remember,

19

haul or long distance flights that were non-stop.

20

believe that was some of the language in that law.

21

22

Q

it was either long

I

In discussing the cancellation of RON missions

with Mr. Scoffield, did you know whether or not you

The judges never saw this portion of the question, “Mr. Scoffield” was a TSA supervisor — not the REPORTER.

This was the ONLY page the TSA lawyers submitted into the record. This was used to cancel out MacLean’s “good faith” defense from the U.S. Court of Appeals for the Ninth Circuit’s 9/16/2008 decision: http://1.usa.gov/1x2ym4Q Page 94

1

were discussing sensitive security information?

2

8

The TSA and MSPB lawyers Why didn't it matter? Q would copy and Because the law was being broken and the paste this in all of A their briefs to public was being endangered, and it was an abuse of declare this was MacLean’s authority_ Public lives were at risk. conversation with the REPORTER, It did not matter to me whether it was not supervisor “Mr. Scoffield” confidential, law enforcement sensitivE, SS1, or

9

classified information.

3

4

5 6 7

10

A

It did not matter.

It was breaking the law and it

was endangering life.

11

Q

What else was discussed with Mr. Scoffield?

12

A

That's all I can remember.

13

Q

How long would you say this conversation

14

lasted?

15

A

Probably less than 15 minutes.

16

Q

And when you said that he agreed with your

17

statement that you believed that the cancellation of

18

RON missions was breaking the law, how did he show his

19

agreement?

20

A

He said,

21

Q

Those were his words?

22

A

No.

II

I agree with you,

full heartedly.

11

1 1 m -- he just was in agreement with me.

ROBERT J. MACLEAN v. DEPARTMENT OF HOMELAND SECURITY Docket # SF-0752-06-0611-I-2 Agency Pre-Hearing Submissions Summary Page Case Title : ROBERT J. MACLEAN v. DEPARTMENT OF HOMELAND SECURITY Docket Number : SF-0752-06-0611-I-2 Pleading Title : Agency Pre-Hearing Submissions Filer's Name : Eileen Dizon Calaguas, Esq. Filer's Pleading Role : Agency Representative Details about the supporting documentation N/A

Pleading Number : 2009013875

Submission date : 2009-09-01 20:19:49

Confirmation Number: 106281829

page 1 of 42

Table of Contents


   
  

 


    !" #$%&# '! ()&(*+ , $)-& *%&#.  /  &! 0  /  &! 1  /  &!   /  &!   /  &! 45#  /  &! 35#  /  &! 25#  /  &! 7

  0 0 02 13 16 1 4 6

) " "  

Pleading Number : 2009013875

Submission date : 2009-09-01 20:19:49

1

Confirmation Number: 106281829

page 2 of 42

ROBERT J. MACLEAN v. DEPARTMENT OF HOMELAND SECURITY Docket # SF-0752-06-0611-I-2 Agency Pre-Hearing Submissions Online Interview 1. Would you like to enter the text online or upload a file containing the pleading? See attached pleading text document

2. Does your pleading assert facts that you know from your personal knowledge? No

Pleading Number : 2009013875

Submission date : 2009-09-01 20:19:49

Confirmation Number: 106281829

page 3 of 42

UNITED STATES OF AMERICA MERIT SYSTEMS PROTECTION BOARD WESTERN REGIONAL OFFICE __________________________________________ ) ROBERT J. MACLEAN, ) DOCKET NUMBER: Appellant, ) SF-0752-06-0611-I-1 ) v. ) ) ADMINISTRATIVE DEPARTMENT OF HOMELAND SECURITY, ) JUDGE: TRANSPORTATION SECURITY ) Franklin M. Kang ADMINISTRATION, ) Agency. ) ) September 1, 2009 AGENCY’S PRE-HEARING SUBMISSIONS 1 In light of the Ninth Circuit’s Decision in MacLean v. Dep’t of Homeland Security, 543 F.3d 1145 (Sept. 16, 2008) and the Opinion and Order of the Merit Systems Protection Board in this case, 2009 MSPB 114 (June 22, 2009) (hereinafter Board Opinion), the Agency respectfully submits that there remain only a few issues left to be adjudicated by the Administrative Judge. 1. STATEMENT OF FACTS AND ISSUES Issue 1: Whether the Agency established, by a preponderance of the evidence, that Appellant made an unauthorized disclosure of Sensitive Security Information. Appellant admitted that on or about July 29, 2003, he disclosed to a journalist that all RON [Remain Overnight] missions up to August 9, 2003 would be cancelled. AF, Tab 4(J) at 11. The deciding official, Frank Donzanti, determined that the information that Appellant disclosed constituted Sensitive Security Information (SSI) at the time of Appellant’s disclosure. AF, Tab 4(A). When it became clear that Appellant was challenging Donzanti’s determination that the disclosure was SSI, the Agency issued a 1

The Agency reserves the right to amend its Pre-hearing Submissions in the event that the Administrative Judge grants Appellant’s Motion to Compel and extends discovery.

Pleading Number : 2009013875

Submission date : 2009-09-01 20:19:49

Confirmation Number: 106281829

page 4 of 42

Final Order that confirmed that the disclosed information constituted SSI. Appellant appealed the Final Order to the Ninth Circuit, and the Ninth Circuit denied Appellant’s appeal by finding that the Final Order was valid. MacLean, 543 F.3d 1145 (2008). The full Board recently determined that the Final Order was not subject to review by the MSPB. Board Opinion at p. 11, ¶ 18 (“We find that the agency can meet its burden of proof on the charge [that the information that the appellant disclosed met the regulatory definition of SSI] because where, as here, a federal court has determined that information relevant to a Board appeal constituted SSI, that determination is binding in the Board proceeding.”). It is undisputed that Appellant did not obtain authorization from the Agency to make this disclosure of Sensitive Security Information. AF, Tabs 4(A), 4(G), 4(J). It is further undisputed that Appellant also did not have protection under the Whistleblower Protection Act to make this disclosure of Sensitive Security Information. Board Opinion at p. 19, ¶ 33. It is therefore undisputed that the Agency has established the charge that Appellant made an unauthorized disclosure of SSI. Issue 2: Whether the deciding official properly exercised managerial judgment by considering the relevant Douglas factors, such that the Agency’s penalty selection should be afforded deference? The Board will not disturb an Agency’s action if it is the maximum reasonable penalty that may be imposed after considering all the relevant factors. See Davis v. Dep’t of the Treasury, 8 M.S.P.R. 317 (1981). “It is well established that the selection of an appropriate penalty is a matter committed to the sound discretion of the Agency.” James v. U.S. Postal Serv., 35 M.S.P.R. 97 (1987). The Board’s function is not to displace management’s responsibility for discipline but to ensure that managerial judgment has

2 Pleading Number : 2009013875

Submission date : 2009-09-01 20:19:49

Confirmation Number: 106281829

page 5 of 42

been properly exercised within tolerable limits of reasonableness. Id. (citing Douglas v. Veterans’ Admin., 5 M.S.P.R. 280, 302 (1981)). The Board must give due weight to the Agency’s primary discretion in maintaining employee discipline and efficiency, recognizing that the Board’s function is not to displace management’s responsibility but to ensure that managerial judgment has been properly exercised. Harris v. U.S. Postal Service, 2005 MSPB LEXIS 7490, **1314 (2005). The Board will modify a penalty only when it finds that the Agency failed to weigh the relevant factors or that it clearly exceeded the bounds of reasonableness in determining the penalty. Id. Here, the Agency’s penalty determination must be afforded deference because the Agency reached its decision only after considering the relevant Douglas factors, and because the removal is within the parameters of reasonableness for Appellant’s egregious misconduct. The deciding official found that Appellant’s prior performance and length of service did not warrant mitigating the penalty of removal. AF, Tab 4(A) at 2. Rather, as a law enforcement officer, Appellant was held to a higher standard of accountability and responsibility, and his unauthorized disclosure of SSI demonstrated that he did not satisfy that higher standard. Id. Donzanti did not believe that Appellant could be rehabilitated, and also, he lost confidence in Appellant. Id. Therefore, the Agency properly weighed the relevant Douglas factors and rendered a reasonable penalty under the specific circumstances of this case. Issue 3: Whether Appellant has demonstrated a harmful error in the Agency’s application of its procedures, that is likely to have caused the Agency to reach a conclusion different from the one that it would have reached in the absence or cure of that error.

3 Pleading Number : 2009013875

Submission date : 2009-09-01 20:19:49

Confirmation Number: 106281829

page 6 of 42

In an attempt to show harmful error, Appellant cited to the Agency’s Policies and Procedures for Safeguarding and Controlling Sensitive Security Information, which refers to the applicable regulations. IF at Tab 4(N). The Agency’s policy sets forth a dual responsibility, whereby a person who creates a record containing SSI must include a protective marking and limited distribution statement and likewise, a person who receives an unmarked record containing SSI must apply such a marking and inform the sender of its omission. Id. at p. 2. The Board defines harmful error as “error by the agency in the application of its procedures that is likely to have caused the Agency to reach a conclusion different from the one it would have reached in the absence or cure of the error.” 5 C.F.R. § 1201.56(c)(3) (emphasis added). The burden is upon Appellant to show, by preponderant evidence, that the error was harmful, i.e., that it caused substantial harm or prejudice to his rights. Id. In this case, Appellant cannot show that an SSI marking would have likely caused the Agency to reach a different conclusion about his misconduct. In his response to the Notice of Proposed Removal, Appellant explained to the deciding official that he made the disclosure because he believed that the safety of the flying public was compromised. IF, Tab 4(D) at p. 10. During his deposition, Appellant further explained that he would not have even cared if the text message was classified—he would have made the disclosure regardless: “It did not matter to me whether it was confidential, law enforcement sensitive, SSI or classified information. It was breaking the law and it was endangering life.” Transcripts, excerpts attached hereto as Agency Hearing Ex. 8. Therefore, the undisputed record establishes that whether the text message was marked as

4 Pleading Number : 2009013875

Submission date : 2009-09-01 20:19:49

Confirmation Number: 106281829

page 7 of 42

SSI would not have affected Appellant’s behavior or the Agency’s response to his misconduct. Issue 4: Whether Appellant has come forward with any evidence that his speech was a matter of public concern, which outweighed the governmental interest in protecting the non-disclosure of Sensitive Security Information. 2 Appellant urges that his disclosure of Sensitive Security Information was a matter of public concern, protected by the First Amendment. The Board has indicated that, on this issue, it is the likely conclusion that the Agency had a significant interest in protecting the information at issue in the charge, namely Sensitive Security Information. Order, dated December 23, 2008 at pp. 7-8. To evaluate this affirmative defense, the Board balances the individual and societal interests that are served when employees speak on matters of public concern with the needs of government employers to attempt to perform their important public functions. See Garcetti v. Ceballos, 547 U.S. 410, 420 (2006); Pickering v. Board of Educ., 391 U.S. 563 (1968); Smith v. Dep’t of Transp., 106 M.S.P.R. 59 at ¶ 46 (2007). The courts and the Board expressly have recognized, however, that employees’ free speech rights must be balanced against the need of government agencies to exercise “wide latitude in managing their offices, without intrusive oversight by the judiciary in the name of the First Amendment.” Mings v. Dep’t of Justice, 813 F.2d 384, 387 (Fed. Cir. 1987); Smith, 106 M.S.P.R. 59 at ¶ 46. Speech that is related to any matter of political, social, or other concern to the community may be considered a matter of public concern. Connick v. Meyers, 461 U.S. 2

Appellant seems poised to make a new argument, that his union membership and leadership role in the Federal Air Marshal chapter of the Federal Law Enforcement Officers Association (FLEOA) was the basis of his removal. In light of the charge which has been sustained, it is apparent that Appellant was removed for his action of disclosing SSI, rather than for his speech or association.

5 Pleading Number : 2009013875

Submission date : 2009-09-01 20:19:49

Confirmation Number: 106281829

page 8 of 42

138, 146 (1983). In this case, however, the Agency submits that while FAM coverage for Remain Overnight missions may be a matter of public concern – generally speaking – the exact nature of any particular deployment or mission is not. As fully recognized by the Board, such is Sensitive Security Information by regulatory definition and can only be learned by those with a regulatory need to know. Board Opinion at p. 8, ¶ 13. Moreover, the state interest in protecting against SSI disclosures is evident from the face of the statute authorizing the Agency’s administrator to prescribe regulations prohibiting the disclosure SSI. Board Opinion at p. 6, ¶ 10. The specific state interest in this case, maintaining the confidentiality of FAMS deployment was harmed as soon as Appellant made his disclosure to a journalist. Should the Agency or any other governmental employer be prohibited from imposing discipline for unauthorized SSI disclosures, there would be no deterrence whatsoever. By analogy, the Agency cites to cases where it has been recognized that, “there is no First Amendment right to have confidential, sealed or classified information leaked to the public.” United States v. Koubriti, 307 F. Supp. 2d. 891, 900 (E.D. Mich. 2004); also see Snepp v. United States, 444 U.S. 507, 508-09 & n.3 (1980) (sustaining restrictions on the publication of confidential information by former CIA employee, regardless of whether the materials were actually classified); United States v. Aguilar, 515 U.S. 593, 606 (1993) (“As to one who voluntarily assumed a duty of confidentiality, governmental restrictions on disclosure are not subject to the same stringent standards that would apply to efforts to impose restrictions on unwilling members of the public.”); Am. Library Ass’n v. Faurer, 631 F. Supp. 416 (D.C. 1986) (no First Amendment right exists where disclosure of

6 Pleading Number : 2009013875

Submission date : 2009-09-01 20:19:49

Confirmation Number: 106281829

page 9 of 42

classified information would possibly endanger the national security, even though the information had been previously in the public domain). When Appellant spoke to that news reporter and disclosed SSI, he singlehandedly exposed the nation to another terrorist attack—by broadcasting exactly which flights would be unprotected by an on-board Federal air marshal. As a result of Appellant’s action, the Under Secretary effectively lost the discretion to determine when and where to deploy Federal Air Marshals. Therefore, applying the balancing test, the governmental interests overwhelmingly outweigh any free speech interest that Appellant may enjoy. 2. LIST OF ALL AGREED UPON MATERIAL FACTS The Agency proposes that the following fact may be stipulated to between the parties: A. That for the July 29, 2003 article, Appellant informed reporter Brock Meeks that all Las Vegas Federal Air Marshals were sent a text message to their government-issued mobile phones that all RON [Remain Overnight] missions up to August 9 would be canceled. 3 The parties, however, have only agreed upon the following fact: B. That the subject text message did not include any SSI marking or limited distribution statement. 3. LIST OF WITNESSES AND EXPECTED TESTIMONY A. Frank Donzanti: As the acting Special Agent in Charge of the Los Angeles Field Office, Donzanti was the deciding official in this matter. He will testify as to the disciplinary decision of removal, and that Appellant knew or should have known that the information disclosed met the regulatory definition of Sensitive Security Information. B. Complainant: The Agency will call Appellant as part of its case-in-chief, to testify that he engaged in the misconduct and that he would have engaged in 3

See Apellant’s sworn affidavit at Tab 4(J) at 11. Also, MacLean, 543 F.3d at 1148.

7 Pleading Number : 2009013875

Submission date : 2009-09-01 20:19:49

Confirmation Number: 106281829

page 10 of 42

that same misconduct regardless of the SSI nature of the information disclosed. 4. LIST OF EXHIBITS Number 1

Description Delegation Order

2

Except of Standard Operating Procedures

3

Federal Air Marshal Service Directive re Employee Responsibilities and Conduct

4

Vacancy Announcement Number

5

Employee Performance Agreement for performance period November 17, 2002 to November 16, 2003

6

Performance Agreement for Other Employees for performance period May 19, 2003 to September 30, 2003

7

Employee Performance Agreement for performance period May 18, 2003 to September 30, 2003

8

Excerpts of Appellant’s Deposition

Respectfully Submitted, September 1, 2009

By:

____/s/_________________________ Eileen Dizon Calaguas Agency Representative

8 Pleading Number : 2009013875

Submission date : 2009-09-01 20:19:49

Confirmation Number: 106281829

page 11 of 42

CERTIFICATE OF SERVICE I certify that the attached Pre-Hearing Submissions and accompanying Exhibits were sent as indicated this 1st day of September 2009 to each of the following: Via E-file Via E-file

Via E-file

Appellant Robert J. MacLean Appellant’s Representative Peter H. Noone, Esq. Patrick Tinsley Avery, Dooley, Post & Avery, LLP Board Hon. Franklin Kang Administrative Judge Western Regional Office

____________/s/______________________ Eileen Dizon Calaguas Attorney-Advisor, Office of Chief Counsel Transportation Security Administration San Francisco Mission Support Center 450 Golden Gate Avenue, Suite 1-5246 P.O. Box 36018 San Francisco, CA 94066 (415) 503-4602 (office) (415) 554-9501 (facsimile) [email protected]

9 Pleading Number : 2009013875

Submission date : 2009-09-01 20:19:49

Confirmation Number: 106281829

page 12 of 42

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Pleading Number : 2009013875

Submission date : 2009-09-01 20:19:49

Agency Hearing Ex. 2 page DHS, pg.152of 42

Confirmation Number: 106281829v. MacLean

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Pleading Number : 2009013875

Submission date : 2009-09-01 20:19:49

Agency Hearing Ex. 2 page DHS, pg.163of 42

Confirmation Number: 106281829v. MacLean


 










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Pleading Number : 2009013875

Submission date : 2009-09-01 20:19:49

Agency Hearing Ex. 3 page DHS, pg.171of 42

Confirmation Number: 106281829v. MacLean



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Pleading Number : 2009013875

Submission date : 2009-09-01 20:19:49

Agency Hearing Ex. 3 page DHS, pg.182of 42

Confirmation Number: 106281829v. MacLean

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Pleading Number : 2009013875

Submission date : 2009-09-01 20:19:49

Agency Hearing Ex. 3 page DHS, pg.193of 42

Confirmation Number: 106281829v. MacLean


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Pleading Number : 2009013875

Submission date : 2009-09-01 20:19:49

Agency Hearing Ex. 3 page DHS, pg.204of 42

Confirmation Number: 106281829v. MacLean

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Pleading Number : 2009013875

Submission date : 2009-09-01 20:19:49

Agency Hearing Ex. 3 page DHS, pg.215of 42

Confirmation Number: 106281829v. MacLean

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Pleading Number : 2009013875

Submission date : 2009-09-01 20:19:49

Agency Hearing Ex. 3 page DHS, pg.226of 42

Confirmation Number: 106281829v. MacLean

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Pleading Number : 2009013875

Submission date : 2009-09-01 20:19:49

Agency Hearing Ex. 3 page DHS, pg.237of 42

Confirmation Number: 106281829v. MacLean

      
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Pleading Number : 2009013875

Submission date : 2009-09-01 20:19:49

Agency Hearing Ex. 3 page DHS, pg.248of 42

Confirmation Number: 106281829v. MacLean


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Pleading Number : 2009013875

Submission date : 2009-09-01 20:19:49

Agency Hearing Ex. 3 page DHS, pg.259of 42

Confirmation Number: 106281829v. MacLean

  



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Submission date : 2009-09-01 20:19:49

Confirmation Number: 106281829 page 261of 42 MacLean v. DHS, page

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Submission date : 2009-09-01 20:19:49

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