Open Letter to Congress: Whistleblowers urge Congress to pass WPEA (Sep-2012)

In mid-2012, numerous Whistleblowers worked together and drafted this letter, seeking Congressional passage of the Whistleblower Protection Enhancement Act. WPEA did pass, and it became law later that year.
FAA (and aviation) has for years had a disproportionately high number of Whistleblowers. The Whistleblowers in red boxes below are all (or were) FAA employees; those highlighted in blue are/were in aviation.

An Open Letter to the U.S. Congress from Federal Whistleblowers: Strengthen Whistleblower and Taxpayer Protections by Improving the Whistleblower Protection Enhancement Act of 2012


Dear Honorable Members of Congress:

We, the undersigned, are federal whistleblowers with employment experiences in a broad array of agencies and can attest to the lack of meaningful protections for conscientious truth tellers in government. We’ve watched the efforts of the U.S. Congress to strengthen the Whistleblower Protection Act (WPA) for more than a decade. There have been six unanimous House and Senate votes in favor of restoring credibility for this hopelessly-gutted but much-needed open government reform that is a prerequisite for accountability to the taxpayers. Ironically, secret holds in the Senate repeatedly blocked final passage, killing both whistleblowers’ rights to justice and the voters’ right to learn how their money is being spent.

The necessity to pass this reform is beyond credible debate. All studies confirm that whistleblowers are the best resource against fraud, waste and abuse, exposing more than audits, compliance departments and law enforcement combined. But while Congress has provided credible rights for private sector whistleblowers, rights for government workers are a fraud.

Since Congress last “strengthened” the Whistleblower Protection Act in 1994, the track record is 3-220 against whistleblowers in final rulings on the merits. A Merit Systems Protection Board study found that whistleblowers are:

  • 9 times more likely to get fired,
  • 6 times more likely to get suspended,
  • 5 times more likely to receive a grade-level demotion,
  • 2 ½ times more likely to be reassigned to a different geographical region, and
  • Twice as likely to be denied a promotion.

Now that the Senate has unanimously passed S. 743, the Whistleblower Protection Enhancement Act of 2012 (WPEA or the Act), we call upon you to build on reforms with H.R. 3289 by addressing recent developments that could render these protections obsolete on the first day the Act takes effect.

First, the WPEA’s protections must extend retroactively. The Senate Committee for Homeland Security and Governmental Affairs noted in its committee report, No. 112-155, that it

[E]xpects and intends that the Act’s provisions shall be applied in U.S. Office of Special Counsel (OSC), Merit Systems Protection Board (MSPB), and judicial proceedings initiated by or on behalf of a whistleblower and pending on or after that effective date. Such application is expected and appropriate because the legislation generally corrects erroneous decisions by the MSPB and the courts; removes and compensates for burdens that were wrongfully imposed on individual whistleblowers exercising their rights in the public interest; and improves the rules of administrative and judicial procedure and jurisdiction applicable to the vindication of whistleblowers’ rights.

We could not agree more. The number of employees filing whistleblower disclosures and complaints for prohibited personnel practices is at an all-time high. Many brave current and former employees are waiting for Congress to improve whistleblower laws to have their day in court. These individuals have worked to educate the public and advocate for reforms. It would be a cruel kind of justice to provide long-sought changes but leave many without redress.

Unfortunately, the Senate bill was not able to cover these individuals by including key language in the bill itself. We call upon you to give effect to the WPEA’s salutary effects by explicitly extending the Act’s reach to pending cases or those initiated on or after the effective date, as required by Supreme Court precedent.

Second, real due process rights are badly needed. The hallmark of due process is the jury trial. An opportunity to have one’s day in court with a jury of one’s peers. All other whistleblower bills passed by Congress for the private sector in the last decade have included the right of the jury trial. Federal employees deserve the same, not second class legal status. The House should join the Senate in providing jury trial rights for federal employees.

On a related note, the Senate version makes an unacceptable tradeoff. While providing jury trials, it also severely lowers the burden of proof for agencies in court. No other corporate or contractor whistleblower law requires tougher, higher burdens of proof for jury trials.

Third, both the House and Senate bills contain a provision that will undermine critical All Circuit Review; the ability for the Office of Personnel and Management to bring a case with “substantial impact” on the merit system back into the Federal Circuit. The Federal Circuit has a long and notorious reputation for being hostile to whistleblowers and bias in favor of agencies. It would be detrimental to WPEA reforms to allow OPM unfettered authority to appeal major cases to the court that is responsible for undermining Congress’ intent, in protecting federal whistleblowers for more than 30 years.

Fourth, Congress should overrule the precedent set by the MSPB in MacLean v. Department of Homeland Security, which allowed agencies to use Sensitive Security Information (SSI) and over 100 other non-classified, pseudo-secrecy categories under the new Controlled Unclassified Information (CUI) Executive Order to cancel WPA free speech rights. As civil service law is now written, this new Executive Order designed to shrink irresponsible government secrecy could become the largest gag order on whistleblowers in history. Congress was clear in 1978 – only statutes, their judicial interpretations, and Executive Order designate what is a disclosure prohibited by law. Congress should send a clear message by reining in federal agencies, which have incentives to retroactively designate disclosures SSI or CUI to get rid of whistleblowers.

Finally, MSPB should not be granted summary judgment powers. The reasons for this are many, but some of these include:

  • MSPB was designed by Congress to be a forum for quick and simple dispute resolution. Summary judgment is a complicated legal maneuver that will upset the balance struck by Congress in 1978 and 1989.It would require federal employees at all levels of government to act as their own lawyers to protect their interests, or hire ones on their own dime.
  • MSPB judges would likely abuse summary judgment powers. The MSPB has a poor track record of protecting whistleblowers and willfully thwarted the intent of Congress’ major whistleblower laws. Additionally, some MSPB judges virtually never grant jurisdiction in whistleblower reprisal cases, forcing the Board to remand cases back with jurisdictional instructions, prolonging litigation and increasing the cost to appellants.
  • Summary judgment prevents appellants from cross-examining witnesses who provide adverse written statements. The likeliest scenario is that federal managers and adverse witnesses would provide affidavits that are unfavorable to appellants. Without depositions, appellants would not be able to cross-examine the authors to expose any weaknesses in their written statements.
  • Acquiring witnesses for depositions is costly. Agencies must make employee-witnesses available free of cost to appellants at the hearing. However, if summary judgment is granted, there will be no hearing.
  • MSPB’s stated justification for summary judgment — to “speed case processing” — is not an appropriate reason. Burdening appellants with onerous legal requirements and then denying them the opportunity to make their case in a hearing is one way to speed case processing, but protecting due process is more important. The solution to backlogs and delays is not instituting a system that is more onerous; instead, MSPB judges must apply the law in good faith and without bias, thus decreasing the number of unnecessary remands.

The last congressional election was decided by voters who were fed up with fraud, waste and abuse by government bureaucracies. Fighting those breakdowns in accountability was the new majority’s campaign commitment. It is long past time for results by those who campaign on the principles we live. There is no reason for further delay providing federal employees with meaningful employment rights to protect dedicated, honorable federal service workers.


Gary Aguirre: Former Senior Counsel / Securities and Exchange Commission

Ray Adams: Air Traffic Controller, Federal Aviation Administration / Department of Transportation

Gerald Bini: Captain, Lead Firefighter / Department of Defense

William E. Binney: Former Senior Technical Director / National Security Agency

Evelynn Brown, J.D., LLM: Former Federal Program Officer, Administration for Children and Families / Department of Health and Human Services

Gabe Bruno: Retired Manager, Flight Standards Service, Federal Aviation Administration / Department of Transportation

Joseph P. Carson, PE: Nuclear Safety Engineer / Department of Energy

R. Charles Collica: Former Soldiers Medical Evaluation Board Counsel Judge Advocate General / Department of Army

Carol Czarkowski: Former Supervisory Contracting Officer, Department of Navy / Department of Defense

Newton Dickson: Former Airline Pilot, Federal Aviation Administration / Department of Transportation

Mary Rose Diefenderfer: Former Aviation Safety Inspector, Federal Aviation Administration / Department of Transportation

Thomas A. Drake: Former Senior Executive / National Security Agency

Bogdan Dzakovic: Former Red Team Leader, Federal Aviation Administration / Department of Transportation

Kim A. Farrington: Former Aviation Safety Inspector, Federal Aviation Administration / Department of Transportation

Larry Fisher: Retired Federal Accountant Whistleblower / Environmental Protection Agency

Rand L. Foster: Aviation Safety Inspector, Federal Aviation Administration / Department of Transportation

Franz Gayl: Science and Technology Advisor, Headquarters Marine Corps, Pentagon

Cathy Harris: Customs and Border Protection / Department of Homeland Security

John Jay: Retired Navy Engineer / Department of Navy

Edward Jeszka: Retired Aviation Safety Inspector, Federal Aviation Administration / Department of Transportation

Douglas Kinan: Former Equal Employment Opportunity Specialist, Defense Contract Management Agency / Department of Defense

Jeff Lewis: Former Air Traffic Controller, Federal Aviation Administration / Department of Transportation

Linda Lewis: Retired Emergency Programs Specialist / Department of Agriculture

Scott A. MacDonald: CPA Former Supervisor, Management and Program Analyst, Federal Bureau of Investigation / Department of Justice

Robert J. MacLean: Former Federal Air Marshal, Transportation Security Administration / Department of Homeland Security

Michael McCray :Former Community Development Specialist / U.S. Department of Agriculture Federal Empowerment Zone Initiative

Dr. James Murtagh: Former Staff Medical Doctor, National Institutes of Health / Department of Health and Human Services

Sandy G. Nunn: MBA Former Special Agent, U.S. Customs Service Office of Investigations / Department of Treasury

David Pardo: Former Attorney/Advisor, Federal Aviation Administration / Department of Transportation

Dr. Janet Parker, DVM: Former Veterinary Medical Officer/ US Department of Agriculture/ APHIS

Spencer A. Pickard: Federal Air Marshal, Transportation Security Administration / Department of Homeland Security

Jesselyn Radack: Former Attorney / Department of Justice

Diane S. Roark: Former Professional Staff Member, House Permanent Select Committee on Intelligence / U.S. House of Representatives

Coleen Rowley: Retired FBI agent and former FBI Legal Counsel / Department of Justice

George G. Sarris: Former Aircraft Mechanic / Department of Air Force

Dr. Don Soeken: Retired Captain, U.S. Public Health Service / Department of Health and Human Services

Jane Turner: Former Special Agent, Federal Bureau of Investigation / Department of Justice

Glenn A. Walp: Ph.D. Former Office Leader of the Office of Security Inquiries, Los Alamos National Laboratory / Department of Energy

Anne R. Whiteman: Retired Supervisor, Air Traffic Control, Federal Aviation Administration / Department of Transportation

Yolanda Whyte M.D.: Former Pediatric Resident, Morehouse School of Medicine, Centers for Medicare & Medicaid Services / Department of Health and Human Services

J. Kirk Wiebe: Former Senior Intelligence Analyst / National Security Agency

Richard Wyeroski: Former Aviation Safety Inspector, Federal Aviation Administration / Department of Transportation


Evelynn Brown, J.D., LL.M: Chief Executive Officer

Gabe Bruno: Executive Director, FAA Whistleblowers Alliance

Patrick Carmody: Partner Carrig Counsel

Betsy Combier: President The E-Accountability Foundation / Editor, International Whistleblower

Capt. Kenny: Edwards Former Regional Airline Pilot

Larry Fisher: Retired Federal Accountant Whistleblower Founder, National Accountant Whistleblower Coalition

Zena D. Crenshaw-Logal: Co-Administrator Drum Majors for Truth

Dr. Andrew D. Jackson: Co-Administrator National Forum On Judicial Accountability

Stephen M. Kohn: Executive Director National Whistleblowers Center

Rodney A. Logal: Co-founder and Exec. Board Member National Judicial Conduct and Disability Law Project, Inc.

Brian Mahany: Partner Mahany & Ertl,

David Pardo: Owner MSPB Watch

Dr. Janet Parker, M.S., DVM: Executive Director, Medical Whistleblower, Medical Whistleblower Advocacy Network – Human Rights Defenders

George Stokes, Sr.: National Program Chairman POPULAR (Power Over Poverty Under Laws of America Restored)

Timm Wheeler: Co-Administrator OAK (Organizations Associating for the Kind of Change America Really Needs)