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2. Whether mandatory Department of Defense regulations, including DoDI 5210.91—which (a) prohibit adverse administrative action based solely on an unresolved polygraph result and (b) require medical deferral or exemption for individuals who are psychologically or medically unsuited for testing—are judicially enforceable under the Rehabilitation Act, or instead may be disregarded under a theory of unreviewable “security discretion.” Mandatory Department of Defense (DoD) regulations in DoDI 5210.91 (Polygraph and Credibility Assessment Procedures) are generally judicially enforceable in the context of a Rehabilitation Act claim, and agencies may not disregard them under a broad theory of unreviewable "security discretion." Core Holding from Department of the Navy v. Egan (1988) The Supreme Court in Egan held that merits of security clearance decisions—including grants, denials, or revocations—are committed to executive discretion and generally not subject to judicial review. This protects predictive judgments about risks to national security. Courts have extended this to bar review of discrimination claims (including under Title VII or the Rehabilitation Act) when resolution requires second-guessing the substance of a clearance decision (e.g., recent cases like Lee v. DOJ (D.C. Cir. 2024), where revocation after failed polygraphs barred review of discrimination claims). However, Egan does not create absolute immunity for all security-related actions. Courts may review claims alleging that an agency violated its own mandatory procedures or statutory obligations, particularly where the challenge targets procedural compliance rather than the predictive security judgment. Application to DoDI 5210.91 Provisions DoDI 5210.91 establishes binding procedures for DoD polygraph programs, including: • Prohibition on adverse action based solely on unresolved polygraph results — Agencies must have additional supporting evidence or resolution before acting. • Requirement for medical deferral or exemption — Examiners must postpone or exempt individuals deemed psychologically or medically unsuitable (e.g., conditions affecting physiological responses), often involving evaluation by medical authorities. These are mandatory internal rules ("shall" language in the instruction), not discretionary guidelines. In a Rehabilitation Act context: • If an agency ignores these provisions—e.g., taking adverse action solely on an inconclusive polygraph or refusing a required medical deferral/exemption for a documented disability—an employee can argue this violates the duty to engage in the interactive process or provide reasonable accommodation (e.g., alternative assessment methods, waiver, or reassignment). • Such a claim challenges procedural noncompliance with DoD's own binding regulations, not the merits of whether the employee poses a security risk. • Courts and the EEOC routinely review whether agencies followed their own rules in discrimination cases, even in security-sensitive contexts, as long as the inquiry does not probe the substantive clearance judgment. Limits of "Unreviewable Security Discretion" Agencies cannot invoke "security discretion" to disregard mandatory regulations. While broad deference applies to ultimate clearance outcomes, procedural violations tied to anti-discrimination laws remain reviewable (e.g., via EEOC federal sector process or limited judicial review under the Administrative Procedure Act for arbitrary/capricious action). National security can justify "undue hardship" denials of accommodation, but it does not shield outright noncompliance with DoDI 5210.91. Practical Outcomes • No reported cases directly litigate these exact DoDI provisions under the Rehabilitation Act, but analogous challenges (e.g., failure to follow security regulations in discrimination claims) have proceeded past motions to dismiss where framed procedurally. • Employees can raise noncompliance in EEO complaints, arguing it evidences failure to accommodate or pretext. In summary, while security clearance merits are largely unreviewable, mandatory procedural protections in DoDI 5210.91 are enforceable in Rehabilitation Act claims challenging agency disregard of those rules. Outcomes turn on case specifics, such as how the polygraph interacts with the disability and job requirements.
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