Luis Ruiz v. Department of Homeland Security

N OTE: This disposition is nonprecedential.
United States Court of Appeals
for the Federal Circuit
______________________
LUIS RUIZ,
Petitioner
v.
DEPARTMENT OF HOMELAND SECURITY,
Respondent
______________________
2025–1023
______________________
Petition for review of the Merit Systems Protection
Board in No. DA-0752-20-0059-I-1.
______________________
Decided: June 23, 2025
______________________
L UIS RUIZ, Brownsville, TX, pro se.
K ATY M. BARTELMA , Commercial Litigation Branch,
Civil Division, United States Department of Justice, Wash-
ington, DC, for respondent. Also represented by WILLIAM
J AMES G RIMALDI, P ATRICIA M. MCC ARTHY , BRETT
SHUMATE.
______________________
Before H UGHES , C UNNINGHAM , and STARK, Circuit Judges.
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RUIZ v. DHS 2
P ER CURIAM .
Luis Ruiz appeals the Merit Systems Protection
Board’s final order denying his petition for review and af-
firming the administrative judge’s initial decision uphold-
ing his removal from his position as a U.S. Customs and
Border Protection Officer based on charges of conduct un-
becoming and lack of candor. Because the Board’s decision
was in accordance with the law and supported by substan-
tial evidence, we affirm.
I
Mr. Ruiz was employed as a Customs Officer in
Brownsville, Texas. In this role, he performed a range of
inspection and law enforcement duties relating to the arri-
val and departure of persons, vehicles, and merchandise at
ports of entry. On August 1, 2017, Mr. Ruiz’s estranged
wife, Mrs. Ruiz, obtained a temporary restraining order
against Mr. Ruiz; she contacted the Brownsville Police De-
partment several times in August to report that Mr. Ruiz
had violated that order. S.A. 14–15.1 On August 31,
Mr. Ruiz and Mrs. Ruiz were involved in a domestic dis-
pute at her home that caused Mrs. Ruiz to call 911. S.A. 15.
According to the police report prepared by Officer Valerie
Rivas, the officer who arrived at the scene in response to
Mrs. Ruiz’s call, Mrs. Ruiz reported that, when Mr. Ruiz
came to her house to pick up their children for school,
Mrs. Ruiz was on the phone. Mr. Ruiz returned later that
morning and forced open the locked front door to confront
her about who she had been speaking with. See S.A. 15, 55,
62. She reported that Mr. Ruiz entered her bedroom and
refused to leave, punched a hole in the wall, and grabbed
her phone when she tried to call 911. See S.A. 15, 55. She
further recounted that Mr. Ruiz engaged her in a physical
1 “S.A.” refers to the Supplemental Appendix at-
tached to the Government’s Informal Response Brief.
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RUIZ v. DHS 3
struggle, during which he hit her about six times on her
face and body. S.A. 15, 55. The officer observed redness on
Mrs. Ruiz’s right cheek and forehead, as well as scratch
marks and redness on the back of her neck and arms, con-
sistent with this account. S.A. 16, 55. Mrs. Ruiz sprayed
Mr. Ruiz using a can of oleoresin capsicum2 that Customs
had issued to Mr. Ruiz; Mr. Ruiz wiped the residue off his
face and rubbed it on her. S.A. 16, 55.
In conjunction with her police report, S.A. 57–59,
Mrs. Ruiz completed an application for a Magistrate’s Or-
der of Emergency Protection, stating she was willing to file
criminal charges against Mr. Ruiz, S.A. 16. Mrs. Ruiz pro-
vided statements in her application summarizing her alter-
cation with Mr. Ruiz consistent with Officer Rivas’ report,
noting the location of redness, scratch marks, and pain on
her body. See S.A. 57, 61; see also S.A. 16–17. Mrs. Ruiz
and Officer Rivas each signed the statement. See S.A. 17,
61. Another responding officer, Officer Campos, took pho-
tographs of Mrs. Ruiz and the scene, S.A. 58, see
S.A. 62–71, and requested that Mrs. Ruiz be evaluated by
the Brownsville Fire and Rescue Department due to the
presence of pepper spray on her body, S.A. 54.
After the incident, Mr. Ruiz spoke with a Customs su-
pervisor, Roy Zepeda, about the incident. S.A. 17, 72.
Mr. Zepeda noted that Mr. Ruiz was “visibly distraught”
and “red in the face and eyes and appeared to have a runny
nose as if he may had [sic] been crying.” S.A. 17 (quoting
S.A. 72). Mr. Ruiz told the supervisor he had returned to
Mrs. Ruiz’s home because he had heard Mrs. Ruiz speak-
ing on the phone with someone with a male voice, and when
Mrs. Ruiz denied speaking to a man, he took her phone to
prove it. He claimed this angered Mrs. Ruiz and prompted
her to hit and pepper spray him. The supervisor advised
2 Oleoresin capsicum spray is also known as pepper
spray. See S.A. 4 n.1.
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RUIZ v. DHS 4
Mr. Ruiz to report the incident to the police; another super-
visor arranged for Mr. Ruiz to turn himself in to the
Brownsville Police at a local gas station. S.A. 17, 72–73.
Mr. Ruiz was arrested the same day for robbery and
burglary of a habitation with intent to commit an assault,
and a judge issued the Magistrate’s Order of Emergency
Protection requested by Mrs. Ruiz. S.A. 18, 74. A county
grand jury subsequently indicted Mr. Ruiz, leading the
agency to suspend him indefinitely. See S.A. 18. Following
the indictment, however, Mrs. Ruiz signed an Affidavit of
Non-Prosecution, stating that she did not wish to pursue
charges against Mr. Ruiz and requesting dismissal of all
charges. See S.A. 18, 75–76. The criminal action against
Mr. Ruiz was dismissed. See S.A. 18, 77. Customs returned
Mr. Ruiz to full-duty status but informed him of an admin-
istrative investigation by the Office of Professional Respon-
sibility. S.A. 18. When OPR interviewed him, Mr. Ruiz
denied assaulting or hitting his wife. S.A. 18, 79. Mr. Ruiz
acknowledged that he and Mrs. Ruiz had an argument in
which she sprayed him with pepper spray to get her phone
back, but he also claimed that his wife lied, had been
coached by her attorneys, and provided alternative expla-
nations for her physical injuries. See S.A. 19, 79–82. OPR
separately interviewed Mrs. Ruiz; during the interview,
she stated she had lied to the Brownsville Police about the
incident, and that she and Mr. Ruiz were working through
their problems. S.A. 19, 87–88.
In May 2019, Customs proposed Mr. Ruiz’s removal
based on charges of conduct unbecoming, lack of candor,
and failure to report the Order of Emergency Protection is-
sued again him. S.A. 19, 89–92. In its discussion of the lack
of candor charge, Customs noted that Mr. Ruiz’s denial to
OPR agents of striking Mrs. Ruiz “directly contradicts the
evidence in the Brownsville Police Department’s case, in-
cluding photos and police reports.” S.A. 89–90. Mr. Ruiz
submitted a written reply in response to the proposed re-
moval. See S.A. 19–20. The reply included a written
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RUIZ v. DHS 5
statement from Mrs. Ruiz, in which she recanted state-
ments in the police report and claimed she filed a false re-
port. S.A. 20, 94. She explained that she had assaulted
Mr. Ruiz and that the photos of her injuries she provided
to the police were from accidents unrelated to her alterca-
tion with Mr. Ruiz. S.A. 94; see also S.A. 20. In October
2019, Customs issued a decision letter that sustained the
conduct unbecoming and lack of candor charges after con-
sidering Mr. Ruiz’s response to the notice of proposed re-
moval. S.A. 20, 95. Customs further evaluated the
reasonableness of the penalty of removal using the relevant
factors set forth in Douglas v. Veterans Administration,
5 M.S.P.B. 313 (1981). See S.A. 95–96. Mr. Ruiz was re-
moved effective October 18, 2019. S.A. 96.
Mr. Ruiz timely appealed his removal to the Board.
Following a hearing where Mr. Ruiz, Mrs. Ruiz, and Of-
ficer Rivas all testified, the administrative judge issued an
initial decision upholding the removal. S.A. 13–37. The ad-
ministrative judge detailed the underlying facts in her de-
cision and determined that the agency had proved its
charges by preponderant evidence. The administrative
judge cited Officer Rivas’ testimony about her conclusion
that an assault had occurred and her finding of probable
cause to arrest Mr. Ruiz based on her observations of the
scene and Mrs. Ruiz’s physical injuries. See S.A. 22–25.
The administrative judge acknowledged Mr. Ruiz’s conten-
tions supporting his claim that he did not punch or hit
Mrs. Ruiz, but nonetheless found that, “[b]ased on the evi-
dence of record, . . . the facts set out in the August 2017 po-
lice report accurately reflect the events of that day, and
[found that Mr. Ruiz’s] version of the events and his wife’s
testimony concerning these events [were] not credible.”
S.A. 25. She noted that Mr. and Mrs. Ruiz “have related
several versions of the events of that day, but the evidence
of record contradicts their current versions.” S.A. 25. The
administrative judge then articulated her factual basis for
this conclusion based on the evidence on the record, stating
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RUIZ v. DHS 6
that she “[gave] great weight to the testimony of [Officer]
Rivas,” who “testified in a calm and neutral manner” and
whose account in her incident report “is the most plausible
in explaining the physical evidence.” S.A. 26.
The Board denied Mr. Ruiz’s petition for review and af-
firmed the administrative judge’s initial decision, which it
adopted as the Board’s final decision. S.A. 2. Mr. Ruiz
timely appealed. We have jurisdiction under 28 U.S.C.
§ 1295(a)(9).
II
Our scope of review in an appeal of a Board decision is
limited by statute. We must affirm the Board’s decision un-
less it is “(1) arbitrary, capricious, an abuse of discretion,
or otherwise not in accordance with law; (2) obtained with-
out procedures required by law, rule, or regulation having
been followed; or (3) unsupported by substantial evidence.”
5 U.S.C. § 7703(c); see also Perlick v. Dep’t of Veterans Affs.,
104 F.4th 1326, 1329 (Fed. Cir. 2024). A Board’s decision
withstands substantial evidence review when it is “sup-
ported by ‘such relevant evidence as a reasonable mind
might accept as adequate to support a conclusion.’” Haebe
v. Dep’t of Just., 288 F.3d 1288, 1298 (Fed. Cir. 2002) (quot-
ing Brewer v. U.S. Postal Serv., 647 F.2d 1093, 1096 (Ct.
Cl. 1981)). The Board’s credibility determinations are “vir-
tually unreviewable.” Gibson v. Dep’t of Veterans Affs.,
160 F.3d 722, 725 (Fed. Cir. 1998) (quoting Hambsch v.
Dep’t of the Treasury, 796 F.2d 430, 436 (Fed. Cir. 1986)).
III
Mr. Ruiz mainly challenges the Board’s conclusion that
Customs had proven the charges against him by
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RUIZ v. DHS 7
preponderant evidence. Pet. Inf. Br. at 6.3 He argues that
the record evidence is insufficient for a reasonable person
to infer that he struck Mrs. Ruiz or that he lacked candor
when he denied assaulting Mrs. Ruiz. He argues the evi-
dence on record regarding Mrs. Ruiz’s injuries is “unclear,”
Pet. Inf. Br. at 2, noting the Board “failed to take into ac-
count the normal side effects of [pepper] [s]pray on human
skin” and that “[n]either Brownsville PD officer who en-
countered Mrs. Ruiz on the day of the incident noted any
injuries which appeared to be from assault,” Pet. Inf. Br.
at 6. We disagree.
The administrative judge’s initial decision and the
Board’s order affirming that decision reflect thorough con-
sideration of all relevant facts and reach conclusions that
are supported by substantial evidence. The administrative
judge’s finding that Mr. Ruiz assaulted Mrs. Ruiz was
based on substantial evidence on the record: police photo-
graphs, the police report describing the events of the inci-
dent, and Officer Rivas’ testimony. See S.A. 22–28; see also
S.A. 2–3. The administrative judge also considered the con-
flicting evidence offered in support of Mr. Ruiz’s contrary
version of events, but found that they “were not substanti-
ated, consistent with one another, or particularly convinc-
ing” and went on to identify multiple examples of
inconsistencies and implausible statements. S.A. 26; see
S.A. 22–28. In concluding that the account contemporane-
ously documented by Officer Rivas and Mrs. Ruiz on the
day of the incident most accurately reflected the events and
most plausibly explained all the physical evidence, the ad-
ministrative judge specifically found Officer Rivas’ testi-
mony to be entitled to “great weight,” observing that she
3 Mr. Ruiz made two submissions, ECF 10 and 12,
which were together accepted as his opening brief. ECF 14.
Citations to Mr. Ruiz’s informal brief in this opinion cite to
ECF 15, which consolidates Mr. Ruiz’s accepted filings.
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RUIZ v. DHS 8
testified in a “calm and neutral manner” and with “no indi-
cation she had any motivation to exaggerate the facts pre-
sented to her by [Mrs. Ruiz] at the time of the incident or
her own observations.” S.A. 26. The administrative judge
explained that, in contrast, Mrs. Ruiz had given varying
inconsistent accounts of the incident that cast doubt on the
truthfulness of her post-incident statements, noting that
Mrs. Ruiz “was crying throughout her testimony.” S.A. 28;
see S.A. 26–28.
The full Board confirmed that the administrative judge
considered, and appropriately weighed, the relevant testi-
mony and corresponding record evidence to reach “well-
reasoned findings.” S.A. 3–4. The Board concluded that
Mr. Ruiz’s mere disagreement with those findings did not
establish any error. S.A. 3–4. And insofar as the findings
that Mr. Ruiz challenges rely in substantial part on the ad-
ministrative judge’s credibility determinations, we have
held that such determinations are “virtually unreviewable
on appeal.” Gibson, 160 F.3d at 725 (quoting Hambsch,
796 F.2d at 436). All the determinations made by the Board
in reaching its decision are supported by substantial evi-
dence.
IV
We have considered the remainder of Mr. Ruiz’s argu-
ments and find them unpersuasive. Because the Board’s
decision was in accordance with the law and supported by
substantial evidence, we affirm.
AFFIRMED
COSTS
No costs.
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