%PDF-1.6 % 1 0 obj <> endobj 2 0 obj <>stream 2021-07-02T15:22:09-04:00 2021-07-02T15:22:08-04:00 2021-07-02T15:22:09-04:00 Adobe Acrobat 17.0 application/pdf 04-00109.a1 uuid:786c824d-3d50-487d-ab6f-85b061980bdf uuid:3913852e-c09e-41fa-87d4-5ff7d4b5de98 Acrobat Web Capture 15.0 endstream endobj 5 0 obj <> endobj 6 0 obj <> endobj 3 0 obj <> endobj 7 0 obj <> endobj 8 0 obj <> endobj 18 0 obj <>>> endobj 19 0 obj <> endobj 20 0 obj <> endobj 22 0 obj [21 0 R 21 0 R] endobj 23 0 obj [21 0 R 21 0 R] endobj 24 0 obj [21 0 R 21 0 R] endobj 25 0 obj [21 0 R 21 0 R] endobj 26 0 obj [21 0 R 21 0 R] endobj 21 0 obj <><><><><><><><>]/P 19 0 R/Pg 13 0 R/S/Article>> endobj 13 0 obj <>/ProcSet[/PDF/Text]>>/StructParents 0/Type/Page>> endobj 27 0 obj <>stream BT /Artifact <>BDC /TT0 1 Tf 9 0 0 9 5 779 Tm (04-00109.a1)Tj EMC /Artifact <>BDC 0 -86 TD (file:///usr.osd.mil/)Tj 7.166 0 Td (...)Tj (yComputer/Desktop/DOHA%20transfer/DOHA-Kane/dodogc/doha/industrial/Archi\ ved%20-%20HTML/04-00109.a1.html)Tj 50.24 0 Td ([7/2/2021 3:22:08 PM])Tj EMC ET 1 g 10 36 591.75 729.75 re f 0.604 g q 1 0 0 1 16.0002 734.2497 cm 0 0 m 0.75 -0.75 l 579 -0.75 l 579.749 0 l h f Q 0.933 g q 1 0 0 1 16.7499 733.5 cm 0 0 m -0.75 -0.75 l 579 -0.75 l 578.25 0 l h f Q 0.604 g q 1 0 0 1 16.0002 732.7503 cm 0 0 m 0.75 0.75 l 0 1.499 l h f Q 0.933 g q 1 0 0 1 594.9999 733.5 cm 0 0 m 0.75 -0.75 l 0.75 0.75 l h f Q 0.604 g q 1 0 0 1 16.0002 618.75 cm 0 0 m 0.75 -0.75 l 579 -0.75 l 579.749 0 l h f Q 0.933 g q 1 0 0 1 16.7499 618.0003 cm 0 0 m -0.75 -0.751 l 579 -0.751 l 578.25 0 l h f Q 0.604 g q 1 0 0 1 16.0002 617.2497 cm 0 0 m 0.75 0.751 l 0 1.5 l h f Q 0.933 g q 1 0 0 1 594.9999 618.0003 cm 0 0 m 0.75 -0.751 l 0.75 0.75 l h f Q /Article <>BDC EMC /Article <>BDC BT 0 g 12 0 0 12 16 749.25 Tm (DATE: July 13, 2006)Tj 0 -3.25 TD (In Re:)Tj 0 -2.125 TD (--------------)Tj T* (SSN: -----------)Tj T* (Applicant for Security Clearance)Tj 0 -3.25 TD (ISCR Case No. 04-00109)Tj /TT1 1 Tf 17.628 -2.125 Td (APPEAL BOARD DECISION)Tj 2.806 -2.125 Td (APPEARANCES)Tj ET 0.75 w q 1 0 0 1 261.2061 543 cm 0 0 m 89.338 0 l h S Q BT 11.25 0 0 11.25 251.0312 519 Tm (FOR GOVERNMENT)Tj /TT0 1 Tf -2.596 -2.2 Td (Eric Borgstrom, Department Counsel)Tj /TT1 1 Tf 3.374 -2.2 Td (FOR APPLICANT)Tj /TT2 1 Tf 2.722 -2.2 Td (Pro Se)Tj /TT0 1 Tf 12 0 0 12 16 419.25 Tm (The Defense Office of Hearings and Appeals \(DOHA\) declined to grant Ap\ plicant a security clearance. )Tj 41.649 0 Td (On March 1,)Tj -41.649 -1.125 Td (2005, DOHA issued a statement of)Tj /Span<>> BDC ( )Tj EMC (reasons advising Applicant of the basis for that decision--security conc\ erns raised)Tj 0 -1.125 TD (under Guideline B \(Foreign Influence\), pursuant to Department of Defen\ se)Tj /Span<>> BDC ( )Tj EMC 30.24 0 Td (Directive 5220.6 \(Jan. 2, 1992, as amended\))Tj -30.24 -1.125 Td (\(Directive\). )Tj 4.886 0 Td (Applicant requested a hearing. )Tj 12.467 0 Td (On November 30, 2005, after the hearing, Administrative Judge)Tj /Span<>> BDC ( )Tj EMC 25.827 0 Td (Charles D.)Tj -43.18 -1.125 Td (Ablard granted Applicant's request for a security clearance. )Tj 23.975 0 Td (The Department Counsel timely appealed pursuant to the)Tj -23.975 -1.125 Td (Directive \266\266 E3.1.28 and)Tj /Span<>> BDC ( )Tj EMC 10.181 0 Td (E3.1.30.)Tj -10.181 -2.125 Td (Department Counsel raised the following issue on appeal: whether the Adm\ inistrative Judge's ultimate conclusion that)Tj T* (Applicant sufficiently mitigated the)Tj /Span<>> BDC ( )Tj EMC 14.496 0 Td (foreign influence security concerns is arbitrary and capricious, in ligh\ t of record)Tj -14.496 -1.125 Td (evidence that the Russian Federal Security Service is aware of and has)Tj /Span<>> BDC ( )Tj EMC 28.435 0 Td (investigated Applicant's relationship with his)Tj -28.435 -1.125 Td (Russian girlfriend. )Tj 7.693 0 Td (We reverse the Administrative Judge's decision to grant the clearance.)Tj /TT1 1 Tf 0.31 -2.125 Td (Whether the Record Supports the Administrative Judge's Factual Findings)Tj /TT0 1 Tf (.)Tj -8.003 -2.125 Td (A. Facts)Tj 0 -2.125 TD (The relevant findings as found by the Administrative Judge are:)Tj T* (Applicant is a 55-year-old employee of a defense contractor working as s\ ecurity specialist installing equipment in U.S.)Tj 0 -1.125 TD (embassies and consulates. )Tj 10.664 0 Td (He has held a)Tj /Span<>> BDC ( )Tj EMC (security clearance for 18 years. He has never had a security violation o\ r been)Tj -10.664 -1.125 Td (criticized for any security lapse. )Tj 13.05 0 Td (He is a widower with two grown sons. )Tj (He)Tj /Span<>> BDC ( )Tj EMC (served two years in the army including)Tj -13.05 -1.125 Td (service in Viet Nam. )Tj 8.525 0 Td (He was honorably discharged in 1970. )Tj 15.635 0 Td (Later he served in the National Guard with the rank of staff)Tj -24.16 -1.125 Td (sergeant working on classified matters and holding a security clearance.\ )Tj 29.017 0 Td (He has a high school GED equivalency but has)Tj -29.017 -1.125 Td (taken many courses in information)Tj /Span<>> BDC ( )Tj EMC 14.135 0 Td (technology to qualify for his present work.)Tj -14.135 -2.125 Td (While working in Russia for his employer in 2002 he met a 32-year-old Ru\ ssian woman who works as an accountant.)Tj T* (He reported the contact to the consulate )Tj 16.132 0 Td (and to his employer. He returned to conclude the project in May, 2003, s\ aw her)Tj -16.132 -1.125 Td (again, and they developed a romantic relationship. )Tj 20.41 0 Td (He went on to other)Tj /Span<>> BDC ( )Tj EMC 8.192 0 Td (assignments but corresponded with her and has)Tj -28.602 -1.125 Td (returned to visit twice on vacation, in November 2003, and in 2004, for \ periods of more than a month each time. )Tj 45.183 0 Td (He)Tj ET EMC endstream endobj 28 0 obj <> endobj 29 0 obj (|QUD4~5z) endobj 30 0 obj <> endobj 31 0 obj <> endobj 32 0 obj <> endobj 37 0 obj <> endobj 38 0 obj <>stream H\j0 ~ Cqb>Xpl%3,qC~]:OHvϝ5{p:֠eQ[3N~["Ν%6]p[`uFmAH^3ϲC)ov _gӸx0H;!Y F2_\Tèe`NUEpTD|n2#L.s^c@ǂ@tدfz endstream endobj 39 0 obj <>stream H|Xϙsgw evf` 1*%O1"*((, bAQPwEETeW캊]%K {}{9A7[k7?r ^Z}7NG'6-X'O)@OTфYުjjFƨp"UƩ*ZMP$5ͮ覺n[薺n~_6nvjڭjگ::nnNNy&wL</5R[N$^$>T8J8rI"&4J#Bȧ2R&Q2S*QVF)\PTL~>Q\$T S @ u{Aw=FtzJBE)Qq*A%2Sh SERq4iMI9M)z^zީdޫ>/`b%+fX4lsZN9gLpVf윃sr.y8/MSi]p>7֍\wD7 r!.EEb@`Ÿ8pKe[\Ksw]0.cDk: T rbDg&Fy"F#"B fd6-fffev=條lة撹lfoivagYvc<#</o|'9h戹in掹kc枹j?ϏqB?֏?O%R_W5Zo7-V?|t8G'nrЏ>?_7N*ÿ{{ ("kKd (3 jD bD;JlRb8#1M5c%Ǵ>*MI&ښѦ1jL=Mqn7 yo}'GcO ?9~^}b /6SK7etyEDwv]D4zfA!`JbӉj.b{t Q! 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HT at 43.)Tj ET EMC endstream endobj 16 0 obj <>/ProcSet[/PDF/Text]>>/StructParents 3/Type/Page>> endobj 43 0 obj [46 0 R] endobj 44 0 obj <>stream BT /Artifact <>BDC /TT0 1 Tf 9 0 0 9 5 779 Tm (04-00109.a1)Tj EMC /Artifact <>BDC 0 -86 TD (file:///usr.osd.mil/)Tj 7.166 0 Td (...)Tj (yComputer/Desktop/DOHA%20transfer/DOHA-Kane/dodogc/doha/industrial/Archi\ ved%20-%20HTML/04-00109.a1.html)Tj 50.24 0 Td ([7/2/2021 3:22:08 PM])Tj EMC ET 1 g 10 36 591.75 729.75 re f /Article <>BDC EMC /Article <>BDC q 10 36 592 730 re W n BT 0 g 12 0 0 12 16 755.25 Tm (The Administrative Judge's obligation to evaluate an applicant's securit\ y eligibility under the whole person concept)Tj ET Q BT 0 g 12 0 0 12 16 741.75 Tm (complements the obligation to apply)Tj /Span<>> BDC ( )Tj EMC 14.858 0 Td (pertinent provisions of the Adjudicative Guidelines. )Tj 21.023 0 Td (Neither obligation diminishes)Tj -35.882 -1.125 Td (the other. )Tj 4.026 0 Td (For example, the whole person analysis focuses on Applicant's)Tj /Span<>> BDC ( )Tj EMC 25.341 0 Td (conduct and situation, and even though)Tj -29.368 -1.125 Td (Foreign Influence Mitigating Condition 1 asked whether the girlfriend wa\ s in a position where she could be exploited,)Tj 0 -1.125 TD (the object of that question was whether she could be exploited by the fo\ reign power in such a way that could force)Tj T* (Applicant to choose between loyalty to her)Tj /Span<>> BDC ( )Tj EMC 17.412 0 Td (and the United States. )Tj 9.026 0 Td (The Judge had concluded that Mitigating Condition 1)Tj -26.437 -1.125 Td (could not apply because she could be exploited and that he could be forc\ ed to)Tj /Span<>> BDC ( )Tj EMC 31.24 0 Td (choose. )Tj (Having reasonably concluded that)Tj -31.24 -1.125 Td (the record evidence raised security concerns )Tj 17.936 0 Td (under Guideline B, the Judge failed to articulate a discernable, rationa\ l)Tj -17.936 -1.125 Td (basis for why he concluded the favorable facts he recited showed refutat\ ion, extenuation, or mitigation of those security)Tj T* (concerns. )Tj (Most of the favorable facts)Tj /Span<>> BDC ( )Tj EMC 15.078 0 Td (recited by the Judge either do not readily suggest refutation, extenuati\ on, or)Tj -15.078 -1.125 Td (mitigation or have low probative value in that regard. )Tj /TT1 1 Tf 21.604 0 Td (See, e.g.,)Tj /TT0 1 Tf ( ISCR Case No. 02-22461 at 12-13 )Tj (\(App. Bd. October)Tj -21.604 -1.125 Td (27, 2005\).)Tj 0 -2.125 TD (As Department Counsel points out, there is a particularly troubling secu\ rity concern involved in Applicant's situation)Tj 0 -1.125 TD (that is not specifically analyzed in the)Tj /Span<>> BDC ( )Tj EMC 15.356 0 Td (Administrative Judge's whole person evaluation. )Tj 19.676 0 Td (The FSB became aware of)Tj -35.032 -1.125 Td (Applicant and his girlfriend, and while the FSB apparently found no secu\ rity issue)Tj /Span<>> BDC ( )Tj EMC 33.216 0 Td (with the relationship \(to this point\),)Tj -33.216 -1.125 Td (they are clearly aware of Applicant and his relationship with one of the\ ir citizens. )Tj 32.849 0 Td (In the process of investigating, the)Tj -32.849 -1.125 Td (FSB)Tj /Span<>> BDC ( )Tj EMC (read the email exchanges between Applicant and his girlfriend. )Tj 27.52 0 Td (Applicant and his girlfriend, to whom he is bound)Tj -27.52 -1.125 Td (by bonds of affection and obligation)Tj /Span<>> BDC ( )Tj EMC 14.774 0 Td (\(including financial obligation\), continue to communicate by email. )Tj 27.326 0 Td (Applicant)Tj -42.1 -1.125 Td (traveled to Russia in a vacation status for extended weekly periods duri\ ng the)Tj /Span<>> BDC ( )Tj EMC 31.241 0 Td (two years preceding the hearing, and)Tj -31.241 -1.125 Td (considering the continuing nature of the relationship, it cannot be assu\ med that he will not return to Russia to visit his)Tj T* (girlfriend. )Tj 4.276 0 Td (In this regard, even if the FSB had acted \(and will continue to act\) p\ roperly in this case, Government Exhibit)Tj -4.276 -1.125 Td (4 \(Consular Information Sheet\))Tj /Span<>> BDC ( )Tj EMC 12.775 0 Td (highlights the problems of foreigners visiting Russia and becoming victi\ ms of)Tj -12.775 -1.375 Td (harassment, mistreatment and extortion by law enforcement and other offi\ cials.)Tj 0 0 0.933 rg 9.75 0 0 9.75 396.8711 447.75 Tm ( \(6\))Tj ET 0 0 0.933 RG 0.75 w q 1 0 0 1 396.8711 447 cm 0 0 m 13.806 0 l h S Q BT 0 g 12 0 0 12 410.6772 443.25 Tm ( )Tj (While no one questions the sincerity)Tj -32.89 -1.125 Td (of Applicant's promise that he would do the right thing if pressured, th\ e most probative evidence that the Judge)Tj T* (considered)Tj /Span<>> BDC ( )Tj EMC 4.582 0 Td (was the fact that Applicant reported the contact with the girlfriend and\ his vacation travel. )Tj 36.209 0 Td (However,)Tj -40.791 -1.125 Td (considering that and all other favorable evidence, the)Tj /Span<>> BDC ( )Tj EMC 21.463 0 Td (Judge did not articulate a rational basis for his conclusion that)Tj -21.463 -1.125 Td (Applicant overcame the significant security concerns described in this p\ aragraph especially)Tj /Span<>> BDC ( )Tj EMC 36.792 0 Td (considering the doubt must)Tj -36.792 -1.125 Td (be resolved in favor of national security.)Tj /TT2 1 Tf 22.823 -2.125 Td (Order)Tj /TT0 1 Tf -22.823 -2.125 Td (The Administrative Judge's formal finding with respect to SOR paragraph \ 1.b is affirmed, but for the reasons stated)Tj T* (above, the judgment of the Administrative)Tj /Span<>> BDC ( )Tj EMC 17.19 0 Td (Judge granting Applicant a clearance is REVERSED.)Tj -17.19 -2.125 Td (Signed: Jeffrey D. Billett)Tj ET 0 G q 1 0 0 1 16 285 cm 0 0 m 120.645 0 l h S Q BT 12 0 0 12 16 260.25 Tm (Jeffrey D. Billett)Tj 0 -2.125 TD (Member, Appeal Board )Tj 9.719 0 Td (Administrative Judge)Tj -9.719 -2.125 Td (Signed Michael D. Hipple)Tj ET q 1 0 0 1 16 208.5 cm 0 0 m 125.977 0 l h S Q BT 12 0 0 12 16 183.75 Tm (Michael D. Hipple)Tj T* (Administrative Judge)Tj T* (Member, Appeal Board)Tj T* (Signed: William S. Fields)Tj ET q 1 0 0 1 16 106.5 cm 0 0 m 124.002 0 l h S Q BT 12 0 0 12 16 81.75 Tm (William S. 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They exchange)Tj /Span<>> BDC ( )Tj EMC 13.91 0 Td (e-mails almost daily. )Tj 8.609 0 Td (He considers marriage a possibility but has taken no steps to do)Tj -22.52 -1.125 Td (so recognizing the difficulties of doing so.)Tj 0 -2.125 TD (He plans to visit her again. )Tj 10.97 0 Td (She has never traveled from Russia to be with him.)Tj -10.97 -2.125 Td (Applicant has met his friend's sister and daughter but not her parents. \ )Tj 27.923 0 Td (He has no contact with her employer organization)Tj -27.923 -1.125 Td (which has nothing to do with defense)Tj /Span<>> BDC ( )Tj EMC 15.192 0 Td (work. )Tj (Someone in her employer organization who knew of and objected to her)Tj -15.192 -1.125 Td (friendship with Applicant reported that she was spying for the U.S. The \ matter)Tj /Span<>> BDC ( )Tj EMC 31.687 0 Td (was investigated by the Russian Federal)Tj -31.687 -1.125 Td (Security Service \(FSB\) and dismissed. )Tj 15.665 0 Td (The person who reported her contact with Applicant has now been enjoined\ )Tj /Span<>> BDC ( )Tj EMC 30.546 0 Td (from)Tj -46.211 -1.125 Td (further contact with her.)Tj T* (One allegation in the SOR )Tj 10.804 0 Td (\(Par. 1.b.\) concerns an alleged spouse-like relationship with a former\ landlady in the U.S.)Tj -10.804 -1.375 Td (with whom he had a romantic)Tj /Span<>> BDC ( )Tj EMC 12.164 0 Td (relationship. )Tj 5.221 0 Td (The government has stated that this matter is no longer of concern.)Tj 0 0 0.933 rg 9.75 0 0 9.75 545.1895 585.75 Tm ( \(1\))Tj ET 0 0 0.933 RG 0.75 w q 1 0 0 1 545.1895 585 cm 0 0 m 13.806 0 l h S Q BT 0 g 12 0 0 12 16 555.75 Tm (Applicant is highly regarded for his skills, dedication to his work, and\ good character. )Tj 34.63 0 Td (He travels extensively to)Tj -34.63 -1.125 Td (embassies and consulates to perform work for)Tj /Span<>> BDC ( )Tj EMC 18.634 0 Td (his employer. His supervisors and customers are very complimentary of)Tj -18.634 -1.125 Td (his abilities and work ethic. )Tj 11.275 0 Td (He takes great pride in his work, and contributions to)Tj /Span<>> BDC ( )Tj EMC 21.523 0 Td (national security, especially providing)Tj -32.798 -1.125 Td (security for our foreign service personnel working abroad.)Tj T* (The Government has established by official documents of which the Admini\ strative Judge has taken official notice that)Tj 0 -1.125 TD (Russia has engaged in espionage)Tj /Span<>> BDC ( )Tj EMC 13.358 0 Td (seeking economic and technical data. These are matters of serious concer\ n regarding)Tj -13.358 -1.125 Td (national security and they were considered in the context of this case. \ )Tj 28.018 0 Td (Changes in Russia are occurring and)Tj -28.018 -1.125 Td (improvements in our relations have been noted in recent U.S. Government \ policy statements noting new cooperative)Tj T* (arrangements between the Russian Federal Security Service \(FSB\) and th\ e U.S. Department of Homeland Security and)Tj T* (the Federal Bureau of Investigation.)Tj 0 -2.125 TD (In considering Applicant's situation under the "whole person" concept, t\ he Administrative Judge also found that)Tj 0 -1.125 TD (Applicant is a native-born U.S. citizen, )Tj 15.857 0 Td (and)Tj /Span<>> BDC ( )Tj EMC (has strong and deep ties to the U.S. over many years of service and work\ as)Tj -15.857 -1.125 Td (a member of the armed forces and as an employee of a defense contractor.\ )Tj 29.958 0 Td (Applicant is an impressive person of skills)Tj -29.958 -1.125 Td (and dedication to his work who has dealt effectively with security issue\ s for over a quarter of a century.)Tj 0 -2.125 TD (B. Discussion)Tj T* (The Appeal Board's review of the Administrative Judge's finding of facts\ is limited to determining if they are supported)Tj 0 -1.125 TD (by substantial evidence--such relevant)Tj /Span<>> BDC ( )Tj EMC 15.55 0 Td (evidence as a reasonable mind might accept as adequate to support such a\ )Tj -15.55 -1.125 Td (conclusion in light of all the contrary evidence in the record." Directi\ ve \266 E3.1.32.1.)Tj /Span<>> BDC ( )Tj EMC 33.878 0 Td ("This is something less than the)Tj -33.878 -1.125 Td (weight of the evidence, and the possibility of drawing two inconsistent \ conclusions from the evidence does not prevent)Tj T* (an)Tj /Span<>> BDC ( )Tj EMC (administrative agency's finding from being supported by substantial evid\ ence . . ." )Tj /TT1 1 Tf 34.302 0 Td (Consolo v. Federal Maritime)Tj -34.302 -1.125 Td (Comm'n)Tj /TT0 1 Tf (, 383 U.S. 607, 620-21, 86 S. Ct.)Tj /Span<>> BDC ( )Tj EMC (1018, 16 L. Ed. 2d 131 \(1966\)\). )Tj (In evaluating the Administrative Judge's)Tj T* (finding, we are required to give deference to the Administrative Judge's\ credibility)Tj /Span<>> BDC ( )Tj EMC 33.252 0 Td (determinations. )Tj 6.443 0 Td (Directive \266)Tj -39.695 -1.125 Td (E3.1.32.1.)Tj 0 -2.125 TD (On appeal, Department Counsel does not challenge these findings of fact.\ )Tj 29.686 0 Td (The issue presented on appeal involves the)Tj -29.686 -1.125 Td (ultimate issue of whether it is clearly)Tj /Span<>> BDC ( )Tj EMC 15.023 0 Td (consistent with the national interest to grant or continue a security cl\ earance for)Tj -15.023 -1.125 Td (Applicant. )Tj 4.443 0 Td (Additional evidence will be cited in that discussion.)Tj /TT2 1 Tf 2.588 -2.125 Td (Whether the Record Supports the Administrative Judge's Ultimate Conclusi\ ons.)Tj /TT0 1 Tf -7.031 -2.125 Td (An Administrative Judge is required to "examine the relevant data and ar\ ticulate a satisfactory explanation for" the)Tj 0 -1.125 TD (decision, "including a 'rational connection)Tj /Span<>> BDC ( )Tj EMC 17.083 0 Td (between the facts found and the choice made.'" )Tj /TT1 1 Tf 19.053 0 Td (Motor Vehicle Mfrs. Ass'n of)Tj -36.136 -1.125 Td (the United States v. State Farm Mut. Auto. Ins. Co.,)Tj /TT0 1 Tf 20.636 0 Td ( 463 U.S. 29, 43 \(1983\))Tj /Span<>> BDC ( )Tj EMC (\(quoting )Tj /TT1 1 Tf (Burlington Truck Lines, Inc. v.)Tj -20.636 -1.125 Td (United States)Tj /TT0 1 Tf 5.36 0 Td (, 371 U.S. 156, 168 \(1962\)\). )Tj (The Appeal Board may reverse the Administrative Judge's decision to gran\ t,)Tj -5.36 -1.125 Td (deny, or revoke a security clearance if it is arbitrary, capricious, or \ contrary to law. )Tj 33.402 0 Td (Directive \266 E3.1.32.3. )Tj 9.034 0 Td (Our scope of)Tj ET q 10 36 592 730 re W n BT 12 0 0 12 16 39.75 Tm (review under this standard is narrow)Tj /Span<>> BDC ( )Tj EMC 14.829 0 Td (and we may not substitute our judgment for that of the Administrative Ju\ dge. 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