Ruth A. Etzel v. Environmental Protection Agency

N OTE: This disposition is nonprecedential.
United States Court of Appeals
for the Federal Circuit
______________________
RUTH A. ETZEL,
Petitioner
v.
ENVIRONMENTAL PROTECTION AGENCY,
Respondent
-------------------------------------------------
RUTH A. ETZEL,
Petitioner
v.
MERIT SYSTEMS PROTECTION BOARD,
Respondent
______________________
2022-2050, 2022-2051
______________________
Petitions for review of the Merit Systems Protection
Board in Nos. DC-1221-19-0827-W-2, DC-3443-21-0391-I-
1.
______________________
Decided: May 16, 2024
______________________
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ETZEL v. EPA 2
P AULA N AOMI D INERSTEIN, Public Employees for Envi-
ronmental Responsibility, Silver Spring, MD, argued for
petitioner. Also represented by P ETER J ENKINS .
BRYAN MICHAEL BYRD, Commercial Litigation Branch,
Civil Division, United States Department of Justice, Wash-
ington, DC, argued for Environmental Protection Agency.
Also represented by BRIAN M. BOYNTON, ELIZABETH MARIE
HOSFORD, P ATRICIA M. MCCARTHY , E LIZABETH ANNE
SPECK; MERRICK COSEY , ALEXANDRA MEIGHAN, United
States Environmental Protection Agency, Washington, DC.
D EANNA SCHABACKER , Office of General Counsel,
United States Merit Systems Protection Board, for re-
spondent Merit Systems Protection Board. Also repre-
sented by ALLISON J ANE BOYLE, K ATHERINE MICHELLE
SMITH .
______________________
Before L OURIE, D YK, and STARK, Circuit Judges.
STARK, Circuit Judge.
Dr. Ruth A. Etzel petitions for review of two final deci-
sions of the United States Merit Systems Protection Board
(“Board”). In the first decision, the Board found Dr. Etzel
failed to show that she made a protected disclosure under
the Whistleblower Protection Act (“WPA”) contributing to
an adverse personnel action. Etzel v. EPA, No. DC-1221-
19-0827-W-2, 2022 WL 1204453 (M.S.P.B. Apr. 18, 2022).
In the second decision, the Board determined that she
failed to raise a nonfrivolous allegation of Board jurisdic-
tion with respect to her pay reduction. Etzel v. EPA, No.
DC-3443-21-0391-I-1, 2022 WL 1204454 (M.S.P.B. Apr. 18,
2022). We affirm.
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ETZEL v. EPA 3
I
A
Dr. Etzel, a pediatrician and environmental epidemiol-
ogist, was the Director of the Office of Children’s Health
Protection (“OCHP”) at the United States Environmental
Protection Agency (“EPA”) from January 2015 to May
2019, a position in the Senior Executive Service (“SES”).
While in that position, she participated in the development
of the Federal Lead Strategy (“Strategy”), a comprehensive
national plan designed to eliminate childhood exposure to
lead. In early 2018, Dr. Etzel learned that the EPA did not
want the Strategy to contain new enforcement measures
and instead intended for it to repackage what was already
being done. She considered this approach to be inadequate
to ensure children would be protected from lead exposure.
The Strategy was ultimately released as the “Federal Lead
Action Plan” in December 2018.
On September 25, 2018, shortly before the release of
the Strategy, Dr. Etzel was placed on a temporary admin-
istrative leave. On October 9, she received a formal notifi-
cation of investigation, which explained that “allegations of
inappropriate conduct” had been made against her and
that she would be on investigative leave “for up to 30 work
days.” J.A. 466-67. On October 18, Dr. Etzel notified the
EPA through her attorney that she believed her investiga-
tive leave was “improper under federal law.” J.A. 1454.
During that same month, Dr. Etzel appeared on two
television programs. First, on October 15, she was inter-
viewed on CBS This Morning, during which she stated that
“a national strategy to remove lead from children’s envi-
ronments . . . stalled;” she added that she had been told by
an EPA official that any new regulation “wouldn’t fly.” J.A.
1608. She also said that “the government has absolutely
no intention of taking any action toward seriously changing
lead in children’s environments.” Id. In response to being
asked “[w]hat does that mean for the kids?” she responded:
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ETZEL v. EPA 4
“[i]t basically means that our kids will continue to be poi-
soned.” Id.
The next day, Dr. Etzel appeared on CNN. She told the
CNN interviewer that the EPA had “got rid of” her because
it “didn’t take the protection of children’s health seriously.”
J.A. 3262. Further, according to Dr. Etzel, the EPA lead-
ership at the time did not “seem to adhere to the EPA mis-
sion, which has always been to protect both human health
and the environment.” Id.
In November 2018, Dr. Etzel received her fiscal year
2018 performance review, which rated her at “Level 1,” an
“Unsatisfactory” performance level. J.A. 1786. That over-
all rating resulted from a “Level 1” “Unsatisfactory” rating
she was given for the critical element of “Leading People.”
Id. Dr. Etzel’s intra-agency appeal of the rating decision
was denied in March 2019.
On March 21, 2019, Dr. Etzel was informed by the EPA
that the investigation into her alleged “inappropriate con-
duct” had concluded with a finding of lack of substantia-
tion, meaning her investigative leave would end on March
25. She was also told that she would be removed from the
SES and placed in a civil service GS-15 position effective
April 28. Dr. Etzel’s SES detail was later extended to May
25, during which time she remained part of the SES and
was paid a salary at an SES rate.
On May 3, 2019, EPA informed Dr. Etzel that her SES
pay would be reduced by 10% based on her “Unsatisfactory”
performance rating for fiscal year 2018. On May 17, she
received a written decision with more detailed explana-
tions for her pay reduction. That written decision also ad-
vised Dr. Etzel that she had seven days to request
reconsideration. On May 21, the EPA implemented the
10% pay reduction, decreasing her annual salary from
$188,919 to $170,028. On May 24, Dr. Etzel requested re-
consideration of the pay reduction, contending that the
agency violated its regulations by implementing the pay
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ETZEL v. EPA 5
reduction before she had the opportunity to request recon-
sideration. The reconsideration request was eventually de-
nied on November 20.
In the meantime, on May 26, 2019, Dr. Etzel’s SES de-
tail was terminated and she was appointed to a GS-15 po-
sition in the Office of Water.
B
Dr. Etzel filed a complaint with the Office of Special
Counsel (“OSC”), alleging she had been retaliated against
for making disclosures that were protected under the WPA.
The OSC’s investigation was terminated on July 8, 2019,
at which point Dr. Etzel received a “right to sue” letter, al-
lowing her to file an Individual Right of Action (“IRA”) with
the Board. Dr. Etzel did so on September 10, 2019 (the
“Whistleblower Appeal”). Administrative Judge (“AJ”)
Weiss, who was originally assigned to the Whistleblower
Appeal, determined that the Board had jurisdiction over it.
On August 3, 2020, in response to certain of Dr. Etzel’s
discovery requests, the EPA provided her with privilege
logs. On September 18, AJ Weiss issued an order schedul-
ing a prehearing conference for October 15. Two days later,
Dr. Etzel filed a motion to continue the prehearing confer-
ence, indicating that she intended to file a motion to compel
discovery, which prompted AJ Weiss to suspend the case
until October 31, to allow the parties “additional time to
resolve outstanding discovery issues.” J.A. 607. During a
status call on December 10, the EPA noted that Dr. Etzel
had filed no motion to compel and contended that any such
motion would now be untimely. AJ Weiss then entered an
order in which he “hereby granted” Dr. Etzel until Decem-
ber 18 to file a motion to compel.1 J.A. 610. On December
1 AJ Weiss’ order states that “the agency is hereby
granted until December 18, 2020 to file a motion to compel
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ETZEL v. EPA 6
18, Dr. Etzel filed such a motion. In its response, the EPA
argued it was untimely but also addressed Dr. Etzel’s dis-
covery arguments on the merits.
On February 22, 2021, the Whistleblower Appeal was
reassigned to AJ Alexander. On April 2, AJ Alexander en-
tered an order denying Dr. Etzel’s motion to compel as un-
timely, citing the Board’s rule requiring that any such
motion be filed within 10 days after the date of service of
the response or objections, a period that had expired on Au-
gust 13, 2020 (i.e., 10 days after Dr. Etzel received the
EPA’s privilege logs). AJ Alexander disagreed with Dr. Et-
zel’s assertion that AJ Weiss had already ruled on the time-
liness of her motion, explaining that AJ Weiss had “merely
set a deadline by which [Dr. Etzel] could file a motion to
compel; he made no ruling on whether it would be other-
wise timely with respect to the agency’s responses.” J.A.
1310.
On May 13, 2021, following a prehearing conference in
the Whistleblower Appeal, AJ Alexander docketed a sepa-
rate appeal (the “Pay Reduction Appeal”), to permit Dr. Et-
zel to challenge the legality of her pay reduction under non-
whistleblower statutes and regulations. In the Pay Reduc-
tion Appeal, AJ Alexander directed Dr. Etzel to present ev-
idence and argument showing a nonfrivolous allegation of
Board jurisdiction. Dr. Etzel responded by arguing that
her pay reduction is reviewable because it was not
“properly taken under SES regulations” and, therefore,
was “subject to the provisions of 5 U.S.C. § 7512(4) and
§ 7513(d) applicable to non-SES employees, including the
right to this MSPB appeal.” J.A. 4354-55.
discovery in this matter.” J.A. 610 (emphasis added). Read
in context, the reference to “agency” is clearly a typograph-
ical error and means “Dr. Etzel.”
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ETZEL v. EPA 7
On April 18, 2022, AJ Alexander issued initial deci-
sions in both the Whistleblower Appeal and the Pay Reduc-
tion Appeal. In regards to the Whistleblower Appeal, AJ
Alexander held that three of Dr. Etzel’s disclosures were
not protected: (1) her August 2018 expression of concern
about the EPA’s purported delay in responding to a con-
gressional inquiry regarding the Strategy, (2) her October
2018 comments during the television appearances, and (3)
her statement to the EPA that her placement on investiga-
tive leave was illegal. AJ Alexander found only one disclo-
sure was protected by the WPA: Dr. Etzel’s request for
reconsideration of her pay reduction on the ground that the
EPA violated 5 C.F.R. § 534.404(j)(3)(v) by implementing it
before she had an opportunity to request its reconsidera-
tion. AJ Alexander nonetheless denied Dr. Etzel’s request
for corrective action based on his finding that this protected
disclosure was not a contributing factor to any adverse per-
sonnel action.
With respect to the Pay Reduction Appeal, AJ Alexan-
der found the Board lacked jurisdiction, based on his find-
ing that Dr. Etzel had failed to raise a nonfrivolous
allegation that her pay reduction was appealable. He
found that Dr. Etzel was still a member of the SES on the
May 21, 2019 effective date of her pay reduction, rendering
that reduction (in SES pay) not appealable, pursuant to 5
C.F.R. § 534.404(j)(4). AJ Alexander added that any fail-
ure by the agency to follow regulations governing SES pay
reduction would not confer jurisdiction on the Board. Ac-
cordingly, he dismissed the Pay Reduction Appeal.
Neither party filed an administrative petition for re-
view. Thus, AJ Alexander’s initial decisions became the fi-
nal decisions of the Board. Dr. Etzel then timely filed
petitions for our review of the Board’s decisions. We have
jurisdiction under 5 U.S.C. § 7703(b)(1) and 28 U.S.C.
§ 1295(a)(9).
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ETZEL v. EPA 8
II
“Our review of Board decisions is limited by statute.”
Holmes v. U.S. Postal Serv., 987 F.3d 1042, 1046 (Fed. Cir.
2021). We “review the record and hold unlawful and set
aside any agency action, findings, or conclusions found to
be (1) arbitrary, capricious, an abuse of discretion, or oth-
erwise not in accordance with law; (2) obtained without
procedures required by law, rule, or regulation having been
followed; or (3) unsupported by substantial evidence.” 5
U.S.C. § 7703(c). Substantial evidence is “such relevant ev-
idence as a reasonable mind might accept as adequate to
support a conclusion.” McEntee v. Merit Sys. Prot. Bd., 404
F.3d 1320, 1325 (Fed. Cir. 2005) (internal quotation marks
omitted). “[T]he possibility of drawing two inconsistent
conclusions from the evidence does not prevent an admin-
istrative agency’s finding from being supported by substan-
tial evidence.” Consolo v. Fed. Mar. Comm’n, 383 U.S. 607,
620 (1966).
“The [B]oard’s jurisdiction is not plenary, but is limited
to those matters over which it has been granted jurisdiction
by law, rule or regulation.” Johnston v. Merit Sys. Prot.
Bd., 518 F.3d 905, 909 (Fed. Cir. 2008). Whether the Board
has jurisdiction over an appeal is a question of law that we
review de novo. See Bennett v. Merit Sys. Prot. Bd., 635
F.3d 1215, 1218 (Fed. Cir. 2011). Factual findings under-
lying the Board’s jurisdictional determination are reviewed
for substantial evidence. See Bolton v. Merit Sys. Prot. Bd.,
154 F.3d 1313, 1316 (Fed. Cir. 1998).
III
Dr. Etzel raises three issues in her petition for review.
First, she argues that the Board erred in finding she did
not make protected disclosures that were contributing fac-
tors to adverse personnel actions. Second, she contends
that AJ Alexander erred in denying her motion to compel
discovery as untimely. Third, she asserts that the Board
erred in finding that it did not have jurisdiction to review
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ETZEL v. EPA 9
EPA’s decision to reduce her pay. We address each issue
in turn.
A
We begin with the protected disclosure issue. A disclo-
sure of information is protected under the WPA if the
speaker “reasonably believes [it] evidences (i) any violation
of any law, rule, or regulation, or (ii) gross mismanage-
ment, a gross waste of funds, an abuse of authority, or a
substantial and specific danger to public health or safety.”
5 U.S.C. § 2302(b)(8)(A). To determine whether a belief is
reasonable, we apply “an objective test: whether a disinter-
ested observer with knowledge of the essential facts known
to and readily ascertainable by the employee would reason-
ably conclude that the actions of the government evidence
wrongdoing as defined by the [WPA].” Young v. Merit Sys.
Prot. Bd., 961 F.3d 1323, 1328 (Fed. Cir. 2020). “The bur-
den lies with the employee to show by a preponderance of
the evidence that he or she made a protected disclosure . . .
that was a contributing factor” to an adverse personnel ac-
tion. Miller v. Dep’t of Just., 842 F.3d 1252, 1257 (Fed. Cir.
2016) (internal quotation marks omitted).
Dr. Etzel’s petition for review focuses on three disclo-
sures: (1) the comments she made during her October 2018
television appearances; (2) her statement to EPA regarding
her placement on investigative leave; and (3) her request
for reconsideration of her pay reduction. The Board deter-
mined that the first two of these disclosures were not pro-
tected under the WPA; it found that the third disclosure
was protected disclosure but did not contribute to an ad-
verse personnel action.2 We find no basis to set aside any
of these Board determinations.
2 Dr. Etzel does not ask us to review the Board’s find-
ing that her expression of concerns about the EPA’s delay
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ETZEL v. EPA 10
1
Dr. Etzel contends that the Board erred in finding the
disclosures she made during her October 2018 appearances
on CBS and CNN, about EPA’s purported lack of intent to
effectively address lead poisoning in children’s environ-
ments, did not evidence a substantial and specific danger
to public health and safety. We are not persuaded.
“[T]he inquiry into whether a disclosed danger is suffi-
ciently substantial and specific to warrant protection under
the WPA is guided by several factors, among these: (1) the
likelihood of harm resulting from the danger; (2) when the
alleged harm may occur; and (3) the nature of the harm,
i.e, the potential consequences.” Chambers v. Dep’t of Inte-
rior, 602 F.3d 1370, 1376 (Fed. Cir. 2010) (internal quota-
tion marks omitted) (“Chambers II”). We have explained
that the first two factors “affect the specificity of the alleged
danger, while the nature of the harm – the potential conse-
quences – affects the substantiality of the danger.” Cham-
bers v. Dep’t of Interior, 515 F.3d 1362, 1369 (Fed. Cir.
2008) (“Chambers I”). Applying these factors, we have
found a danger to be sufficiently “substantial and specific,”
such that a disclosure about it warrants protection under
the WPA, when the disclosure “concerned specific allega-
tions or evidence either of actual past harm or of detailed
circumstances giving rise to a likelihood of impending
harm.” Chambers II, 602 F.3d at 1376.
For example, in Chambers II, 602 F.3d at 1379, we held
that the petitioner’s disclosure that traffic accidents in-
creased on the Baltimore-Washington Parkway, which of-
ten had two officers on patrol instead of the recommended
four, evidenced a substantial and specific danger to public
in responding to a congressional inquiry concerning the
Strategy also did not constitute a protected disclosure un-
der the WPA.
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ETZEL v. EPA 11
health or safety. We found that this disclosure “detail[ed]
the specific consequence that ha[d] already resulted . . .
[and] contain[ed] the specific details as to the cause of the
increased danger;” thus, the alleged danger “was not vague
or speculative.” Id.; see also Hessami v. Merit Sys. Prot.
Bd., 979 F.3d 1362, 1369-71 (Fed. Cir. 2020) (finding peti-
tioner made protected disclosure that particular named
government physician prescribed HCV regimen for longer
than recommended, without clinical justification); John-
ston, 518 F.3d at 909-10 (finding petitioner made protected
statement when she asserted that using inadequately
trained personnel to review agency training exercises
would increase danger of serious injury).
In contrast, statements revealing nothing more than a
“negligible, remote, or ill-defined peril that does not involve
any particular person, place, or thing” are not sufficiently
specific to constitute protected disclosures. Chambers II,
602 F.3d at 1376 n.3; see also Standley v. Merit Sys. Prot.
Bd., 715 F. App’x 998, 1002-03 (Fed. Cir. 2017) (finding no
protected disclosure when petitioner failed to show that
harm to public safety from degradation in capability to de-
tect nuclear blasts in space was “more than a possibility
occurring at an undefined point in the future”); Herman v.
Dep’t of Just., 193 F.3d 1375, 1378-80 (Fed. Cir. 1999) (find-
ing no protected disclosure in petitioner’s statements about
absence of suicide watch room because he “failed to identify
. . . there is a specific and substantial likelihood that there
will be individuals in the future needing access to the sui-
cide watch room”).
The legislative history of the WPA also provides addi-
tional guidance. A Senate Report from the Committee on
Governmental Affairs provided examples of disclosures
that are and are not protected:
Thus, for example, general criticism by an em-
ployee of the Environmental Protection
Agency that the Agency is not doing enough
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ETZEL v. EPA 12
to protect the environment would not be pro-
tected under this subsection. However, an al-
legation by a Nuclear Regulatory Commission
engineer that the cooling system of a nuclear
reactor is inadequate would fall within the
whistle blower protections.
S. Rep. No. 95-969, at 21 (1978). From this Report (as well
as from our cases), it is clear that mere policy disagree-
ments and generalized critiques of agency priorities are not
protected or actionable under the WPA.
With these guideposts in mind, we agree with the
Board that Dr. Etzel failed to show “her expressions of
skepticism regarding EPA’s commitment and strategy to
address [the] perils [of lead poisoning in children] evi-
denced a disclosure of a substantial and specific danger to
public health and safety.”3 J.A. 29-30. While there is no
3 The appropriate standard of our review of the
Board’s determination that Dr. Etzel’s disclosures do not
satisfy the “substantial and specific” requirement is un-
clear. In previous nonprecedential opinions, we have ap-
plied substantial evidence review to this inquiry. See
Finizie v. Dep’t of Veterans Affs., No. 2021-1493, 2021 WL
5099988, at *2 (Fed. Cir. Nov. 3, 2021) (“[S]ubstantial evi-
dence supports the Board’s conclusion that none of the
three disclosures asserted by Petitioners were protected
disclosures.”); Groseclose v. Dep’t of Navy, 459 F. App’x 918,
922 (Fed. Cir. 2012) (finding Board’s conclusion that emails
alleging disclosure of danger to public health and safety
were not protected disclosures was supported by substan-
tial evidence). EPA asks that we do the same here. See
Appellee Br. at 35. Dr. Etzel, in her briefs, suggests we
must apply de novo review to what she characterizes as a
question of law, see Petitioner’s Br. at 18-19, although at
oral argument she told us we are reviewing “a mixed
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ETZEL v. EPA 13
dispute as to the substantiality of the harm to children’s
health in general from lead poisoning, we agree with the
Board that Dr. Etzel’s concern about the EPA’s policy pri-
orities represents general criticism of agency policy and
does not meet the specificity requirement to become a pro-
tected disclosure under the WPA.
Dr. Etzel disclosed that “the government has abso-
lutely no intention of taking any action toward seriously
changing lead in children’s environments.” J.A. 1608. She
also stated that “a national strategy to remove lead from
children’s environments . . . stalled.” Id. While who is be-
ing harmed (children) and by what (the government’s fail-
ure to reduce lead in the environment) is specified, the
record is devoid of any indication that Dr. Etzel made a
statement about a specific action that should be taken to
deal with the danger of children being exposed to lead that
either was or could have been included in the Strategy or
in new regulations.
While “protect children from the known harms of lead
poisoning” is more specific than “protect the environment,”
which is mentioned in the legislative history as not pro-
tected, it is more general than the identification of a par-
ticular nuclear reactor plagued by a deficient cooling
system, a disclosure exemplified in the legislative history
as protected. Even without delineating with precision the
full contours of the border between “too general” and “suf-
ficiently specific,” we conclude that Dr. Etzel’s broad,
question of fact and law as to whether her disclosures were
substantial and specific.” Oral Arg. at 12:54-13:05,
https://oralarguments.cafc.uscourts.gov/default.aspx?fl=22
-2050_02072024.mp3. Because we would affirm under any
standard of review, including the non-deferential standard
of de novo review, we need not resolve the parties’ dispute
as to which standard is correct.
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ETZEL v. EPA 14
undifferentiated disclosure falls on the overly-general side
of that line.
The Board’s analysis of Dr. Etzel’s statements is con-
sistent with the Chambers II factors and our other prior
decisions. With respect to the first factor – “the likelihood
of harm resulting from the danger” – Dr. Etzel asserts that
“the EPA’s inactions exacerbated the ongoing peril” of lead
poisoning in children. Petitioner’s Br. at 25. However, the
Board reasonably found that Dr. Etzel’s televised com-
ments “made no specific allegations . . . about EPA’s poli-
cies or actions, nor did her disclosures reveal a specific,
impending harm resulting because of any delay” in the is-
suance of the Strategy. J.A. 30. Her general disclosures
that the Strategy “stalled” and new regulations “wouldn’t
fly” do not speak to any particularized threats to children’s
health stemming from the failure to expeditiously imple-
ment her preferred actions. See Auston v. Merit Sys. Prot.
Bd., 371 F. App’x 96, 101-02 (Fed. Cir. 2010) (finding no
protected disclosure when petitioner’s complaint about un-
derstaffing was “vague and speculative,” lacking “specific
allegations that the alleged understaffing . . . was resulting
in unhygienic equipment”).
Turning to the second factor – “when the alleged harm
may occur” – Dr. Etzel asserts that the harm “is ongoing
now.” Petitioner’s Br. at 25. But the existence of an al-
ready-underway and continuing danger of children’s expo-
sure to lead does not necessarily indicate any consequence
(e.g., exacerbation or failure of mitigation) will flow from
EPA’s alleged inaction, which is the subject of Dr. Etzel’s
disclosures. See Chambers II, 602 F.3d at 1379 (finding
“increased traffic accidents” caused by reduction of police
officers “had already occurred”) (emphasis added); Hes-
sami, 979 F.3d at 1369 (discussing “increased exposure to
adverse drug reactions and side effects” due to overpre-
scribing) (emphasis added); Johnston, 518 F.3d at 910 (ex-
plaining that “inadequately trained personnel to review
agency training exercises would increase the danger of
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ETZEL v. EPA 15
serious injury”) (emphasis added). Here, because Dr. Etzel
raised only vague concerns, without disclosing any meas-
ure she had proposed be included in the Strategy or any
other specific flaw in it, she has not shown anything “more
than a possibility” of a particular harm “occurring at an
undefined point in the future.” J.A. 30.
The third factor – “the nature of the harm” – only goes
to the substantiality of the danger, not the specificity of a
disclosure. See Chambers I, 515 F.3d at 1369. There is no
dispute that harm to children from exposure to lead is sub-
stantial. The unquestioned substantiality of the harm,
however, does nothing to make Dr. Etzel’s generalized dis-
closures any more specific. See Standley, 715 F. App’x at
1003 (finding petitioner’s disclosures about degraded capa-
bilities of detecting nuclear blasts in space, an undisput-
edly crucial matter, nonetheless related to mere
“possibility” of harm “at an undefined point in the future”).
To be sure, as Dr. Etzel points out, “‘[t]he fact that a
particular health or safety statement involves a policy de-
cision or disagreement does not deprive it of protection un-
der the WPA.’” Petitioner’s Br. at 24 (quoting Chambers II,
602 F.3d at 1376). To be protected, however, her policy-
related statements must be about a substantial and spe-
cific danger to public health or safety rather than general-
ized concerns of agency inaction. For the reasons we have
explained, Dr. Etzel’s broad allegations about EPA’s lack of
commitment to addressing children’s lead exposure are too
general to meet this standard.
Dr. Etzel further argues that the Board, in assessing
the reasonableness of the beliefs she expressed in the tele-
vised interviews, failed to account for her expertise. Even
assuming Dr. Etzel’s beliefs about EPA’s purported mis-
conduct were, given her expertise, reasonable, her state-
ments still lacked the requisite specificity to warrant
protection under the WPA.
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ETZEL v. EPA 16
In sum, Dr. Etzel’s disclosures identified a broad, gen-
eralized, known danger to children (lead exposure) but
failed to identify a specific policy failure or a specific danger
likely to have an immediate impact. Thus, we agree with
the Board that Dr. Etzel’s statements during her October
2018 television appearances “constituted general criticism”
of the EPA’s “priorities and commitment to lead abatement
rather than a protected disclosure of a substantial and spe-
cific danger to public health.” J.A. 30.
2
Dr. Etzel next contends that her October 2018 state-
ment to the EPA that her investigative leave was illegal
(“October Disclosure”) is a protected disclosure under the
WPA. Dr. Etzel’s primary argument is that the Board was
wrong to conclude she could not, on October 18, 2018, have
had a reasonable belief that a law had been violated be-
cause, as of that date, she had not yet been on investigative
leave for more than 30 work days – and administrative
leave of up to 30 work days is expressly permitted under
the Administrative Leave Act, 5 U.S.C. § 6329b (2016). Ac-
cording to Dr. Etzel, she “did make disclosures about the
illegality of her investigative leave well after 30 days,” in-
cluding in her November 28, 2018 complaint to the OSC
(“November Disclosure”), and on December 19 and 21, 2018
(“December Disclosure”). Petitioner’s Br. at 31-32.
Dr. Etzel’s contentions are unavailing. The inquiry as
to the reasonableness of her beliefs turns on the date she
made the disclosure, not the date she filed her complaint
with OSC or at some still later date. See Edenfield v. Dep’t
of Veterans Affs., 54 F.4th 1357, 1361 (Fed. Cir. 2022) (as-
sessing reasonableness of speakers’ beliefs “at the time they
made the disclosure”). Dr. Etzel made the disclosure for
which she seeks protection on October 18, 2018, which was
less than 30 work days after she had been placed on inves-
tigative leave, and therefore at a time when she could not
have reasonably believed the agency acted unlawfully in
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ETZEL v. EPA 17
that respect. Her subsequent November Disclosure and
December Disclosure are not merely “additional infor-
mation” or “a more detailed account of” Dr. Etzel’s October
Disclosure. See Briley v. Nat’l Archives & Recs. Admin.,
236 F.3d 1373, 1378 (Fed. Cir. 2001). Instead, those latter
statements would be the basis for (if anything) a distinct
claim. However, because Dr. Etzel did not exhaust her ad-
ministrative remedies with respect to the November and
December Disclosures, these disclosures cannot provide a
basis on which we could find a reversible error in the
Board’s decision. See McCarthy v. Merit Sys. Prot. Bd., 809
F.3d 1365, 1374 (Fed. Cir. 2016) (finding that distinct dis-
closures require exhaustion as to each).
3
Dr. Etzel next contends that the record lacks substan-
tial evidence for the Board’s determination that her re-
quest for reconsideration of her pay reduction was not a
contributing factor to any adverse personnel action she al-
legedly suffered. We disagree.
Substantial evidence supports the Board’s finding that
Dr. Etzel’s purported lack of substantive work assignments
at the Office of Water was not an adverse personnel action.
In reaching this conclusion, AJ Alexander witnessed and
evaluated the testimony of Ms. Deborah Nagle, Dr. Etzel’s
supervisor at the Office of Water, who explained that she
assigned Dr. Etzel “meaningful and plentiful work.” J.A.
35. He also considered documentary evidence of Dr. Etzel’s
duties, work assignments, and work product. Based on the
evidence, AJ Alexander found that Ms. Nagle “testified in
a direct and straightforward manner, and her testimony
was specific, detailed, and consistent with other record ev-
idence.” Id. Even assuming substantial evidence could
have supported a contrary conclusion, AJ Alexander’s deci-
sion to credit Ms. Nagle’s testimony over Dr. Etzel’s and his
evaluation of the documentary record make his determina-
tion a reasonable one. See Chambers I, 515 F.3d at 1370
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ETZEL v. EPA 18
(finding that Board’s “credibility determinations are virtu-
ally unreviewable at this level”) (internal quotation marks
omitted).
Because Dr. Etzel failed to prove she suffered from an
adverse personnel action, it necessarily follows that she
failed to prove that any protected disclosure she may have
made (if any) was a contributing factor to an adverse per-
sonnel action.
B
We turn next to Dr. Etzel’s contention that AJ Alexan-
der abused his discretion by denying her motion to compel
discovery as untimely. See generally Chambers I, 515 F.3d
at 1371 (“We leave discovery and evidentiary issues to the
sound discretion of the board and its officials, and will not
overturn the board on such matters unless an abuse of dis-
cretion is clear and is harmful.”) (internal quotation marks
omitted). Pursuant to Board regulations, “[a]ny motion for
an order to compel or issue a subpoena must be filed with
the judge within 10 days of the date of service of objec-
tions.” 5 C.F.R. § 1201.73(d)(3). Dr. Etzel acknowledges
that her December 18, 2020 motion was filed far more than
10 days after she received the privilege logs from EPA on
August 3, 2020. She insists, however, that AJ Weiss ex-
tended her filing deadline in his December 10, 2020 order,
“grant[ing] [Dr. Etzel] until December 18, 2020 to file a mo-
tion to compel discovery in this matter.” J.A. 610.
Dr. Etzel’s reading of AJ Weiss’ order is not unreason-
able, but neither is AJ Alexander’s alternative reading. AJ
Alexander read the order as “merely set[ting] a deadline by
which [Dr. Etzel] could file a motion to compel” and as mak-
ing “no ruling on whether it would be otherwise timely with
respect to the agency’s responses,” a determination AJ
Weiss would have presumably made when, and only when,
he received such a motion. J.A. 1310. The record reveals
no express request by Dr. Etzel for an extension of the
§ 1201.73 deadline, nor any explicit grant of any extension.
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ETZEL v. EPA 19
There is, in short, no clear error in AJ Alexander’s inter-
pretation of AJ Weiss’ prior order and no abuse of discre-
tion in denying the motion to compel.
C
Finally, we address Dr. Etzel’s petition for review of the
Board’s decision in the Pay Reduction Appeal. In this re-
gard, the Board concluded that Dr. Etzel did not raise a
nonfrivolous allegation of Board jurisdiction, reasoning (i)
Dr. Etzel was a member of the SES when her pay was re-
duced and (ii) pay reductions for SES members are not re-
viewable by the Board. See 5 C.F.R. §§ 534.404(j)(1), (4).
Dr. Etzel’s challenges to this analysis lack merit.
Dr. Etzel first contends that the extension of her SES
detail for the purpose of reducing her pay was “a sham,”
and because the EPA “could not legally act to reduce her
pay under SES regulations under the circumstances,”4 the
pay reduction is reviewable under 5 U.S.C. §§ 7512(4) and
7513(d). Petitioner’s Br. at 42-43. We disagree. As Dr.
Etzel recognizes, members of the SES do not come within
the definition of “employee” as set forth in 5 U.S.C.
§ 7511(a)(1), which renders such individuals ineligible to
appeal pay reductions under 5 U.S.C. §§ 7512(4) and
7513(d). Pay reductions for SES members are also made
unreviewable by 5 C.F.R. § 534.404(j)(4), which provides
that “[r]eductions in pay under paragraph (j) of this section
are not appealable under 5 U.S.C. 7543.” It follows that
because Dr. Etzel remained a member of the SES when her
pay reduction was implemented on May 21, 2019, the
4 Under 5 C.F.R. § 359.705(a)(3), “[a]n appointee
placed . . . in a position outside the SES (in the same or dif-
ferent agency) is entitled to receive basic pay at the highest
of . . . [t]he rate of basic pay in effect for the appointee im-
mediately before removal from the SES.”
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ETZEL v. EPA 20
Board cannot exercise jurisdiction over her appeal under 5
U.S.C. §§ 7512(4), 7513(d), or 7543(d).
Dr. Etzel cites no authority for her contention that she
can meet her burden to establish Board jurisdiction by al-
leging (or even by proving) that an agency’s action to ex-
tend an SES detail was a “sham,” undertaken solely (and
improperly) to reduce her pay without review. Dr. Etzel
suggests that the EPA could have either reduced her pay
or demoted her out of SES but could not do both. Yet,
again, she cites no authority for this proposition, so we fail
to see how it helps her show the Board had jurisdiction over
her Pay Reduction Appeal.
Dr. Etzel next argues that the Board had jurisdiction
under 5 U.S.C. §§ 7512(4) and 7513(d) because she had
been removed from the SES by the time her pay reduction
was, in her words, “finally decided,” when her request for
reconsideration under 5 C.F.R. § 534.404(j)(3)(v) was de-
nied in November 2019. Petitioner’s Br. at 45-46. But the
pay reduction actually occurred back on May 21, 2019, a
fact Dr. Etzel herself acknowledged. See, e.g., Petitioner’s
Br. at 45-46 (“EPA improperly put the pay reduction into
effect on May 21, 2019.”); id. at 46 (“EPA effectuated the
pay reduction on May 21, 2019.”). Dr. Etzel cites no au-
thority that the pertinent date is anything other than when
the pay reduction is effectuated.
Dr. Etzel further contends that EPA violated 5 C.F.R.
§ 534.404(j)(3)(v) by implementing her pay reduction be-
fore the deadline for her to request reconsideration had
passed. Dr. Etzel points to no authority for the proposition
that the Board’s jurisdiction is expanded where an agency
acts too quickly in implementing an unreviewable pay re-
duction. We agree with the Board that this alleged viola-
tion does not create Board jurisdiction over the Pay
Reduction Appeal.
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ETZEL v. EPA 21
For all these reasons, the Board did not err in conclud-
ing that it lacked jurisdiction to review Dr. Etzel’s Pay Re-
duction Appeal.
IV
We have considered Dr. Etzel’s remaining arguments
and find them unpersuasive. Thus, we affirm the Board.
AFFIRMED
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