BNUMBER:  B-256157
DATE:  December 21, 1995
TITLE:  United States Secret Service Uniformed
Division-Biweekly and Annual Pay Limitations

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Matter of:United States Secret Service Uniformed Division-Biweekly and 
          Annual Pay Limitations

File:     B-256157

Date:   December 21, 1995

DIGEST

1.  The compensation payable to members of the Uniformed Division of 
the United States Secret Service is subject to two independent 
limitations on the biweekly and aggregate annual compensation that 
each member is eligible to receive.  The first limitation is that 
compensation shall not exceed the rate of basic pay for level V of the 
Executive Schedule.  4 D.C. Code,  4-406 (1994).  This limitation 
applies to basic pay, as adjusted, plus longevity pay, but does not 
include premium pay.

2.  The compensation payable to members of the Uniformed Division of 
the United States Secret Service is subject to two independent 
limitations on the biweekly and aggregate annual compensation that 
each member is eligible to receive.  The second limitation is that the 
aggregate rate of compensation for any pay period shall not exceed the 
minimum scheduled rate of basic compensation of the District of 
Columbia Chief of Police and Fire Chief.  4 D.C. Code,  4-1104(h)(2) 
(1994).  This limitation applies to basic pay, as adjusted, plus 
premium pay (overtime pay, compensatory time off, Sunday pay, and 
night pay), but does not include longevity pay.  The ceiling to be 
applied is the unadjusted minimum scheduled basic pay rate of the 
Police Chief and Fire Chief in effect when the premium pay was earned.

DECISION

This decision responds to a request for an advisory opinion from the 
United States Secret Service, Department of the Treasury.[1]  The 
questions asked involve the maximum biweekly premium pay and aggregate 
annual compensation that may be paid to members of the United States 
Secret Service Uniformed Division and the types of compensation that 
are subject to the limitations.  We conclude that there are two 
independent limitations on the compensation which may be paid.  Basic 
pay, as adjusted, longevity pay, and assignment or position pay are 
subject to one limitation, and premium pay plus basic pay, as 
adjusted, are subject to the other limitation, as explained below.

BACKGROUND

Although members of the Uniformed Division, United States Secret 
Service, are federal employees, their basic compensation system was 
established by the District of Columbia Police and Firemen's Salary 
Act of 1958,[2] as amended, and is contained in sections 4-402 to 
4-420 of title 4, District of Columbia Code (D.C. Code).  The 1958 Act 
established the basic salary schedule structure for police and 
firefighters in the District of Columbia, including the United States 
Park Police and the then White House Police, comprising 10 different 
classes with 6 service steps, plus 3 longevity steps,[3] in each 
class.  The Chief of Police and the Fire Chief occupied class 10 of 
the salary schedule.  In 1970, those salary classes were increased 
from 10 to 11.  The Chief of Police and the Fire Chief occupied the 
newly created Class 11 and the Commanding Officer of the White House 
Police (redesignated the "Executive Protective Service" in 1970 for 
pay purposes,[4] and further redesignated as the "United States Secret 
Service Uniformed Division" in 1980 for pay purposes[5]), occupied 
Class 10 of the newly restructured salary schedule.[6]

In the meantime, in 1965 Congress limited premium pay for officers and 
members by adding the following provisions to then section 4-904 of 
Title 4, D.C. Code.[7]  Subsection (h)(1) thereof provided that any 
officer or member whose rate of basic compensation equals or exceeds 
the minimum scheduled rate of basic pay for service step 1 of the 
class designation for the Chief of Police and the Fire Chief for the 
District of Columbia, may not be paid premium pay or receive 
compensatory time off.  Subsection (h)(2) thereof provided that 
officers or members, whose rate of basic compensation is less than 
that minimum scheduled rate, may receive premium pay "only to the 
extent that such payment would not cause his aggregate rate of 
compensation to exceed such minimum scheduled rate with respect to any 
pay period."

The first major revision of the salary schedule structure for District 
of Columbia Police, Fire Department, Park Police, and Executive 
Protective Service (Uniformed Division), occurred in 1972 with 
enactment of Pub. L. No. 92-410.[8]  Among the changes made, section 
102 thereof amended section 101 of the 1958 salary act by inserting:

     "(b) Compensation may not be paid, by reason of any provision of 
     this Act, at a rate in excess of the rate of basic pay for level 
     V of the Executive Schedule contained in subchapter II of chapter 
     53 of title 5, United States Code."

Another major revision occurred in 1980, whereby annual adjustments to 
the pay rates for members of the Uniformed Division were no longer to 
be governed by determinations of the Council for the District of 
Columbia.  Thereafter, all adjustments to scheduled pay for members of 
the Uniformed Division are made by the Secretary of the Treasury based 
on changes made pursuant to 5 U.S.C.  5305 for the rates of pay under 
the General Schedule.[9]

In late 1990, the Secret Service conducted a review of its pay 
regulations while preparing to implement the Federal Employees Pay 
Comparability Act (FEPCA).[10]  It discovered that, even though the 
pay for members of the Uniformed Division had been capped in 1972 at 
the salary rate for level V of the Executive Schedule, the premium pay 
limitation enacted in 1965 had not been changed.  The Secret Service 
points out that, during the period 1980 to 1990, the minimum scheduled 
salary rate for the Chief of Police and the Fire Chief exceeded the 
rate of basic pay for level V of the Executive Schedule and that, from 
October 1980 to January 1991, the agency used the Executive level V 
rate as the biweekly premium pay limitation as well as the annual 
aggregate compensation limit for the members of the Uniformed 
Division.

In January 1991, the rate of basic pay for level V of the Executive 
Schedule was raised to an amount which exceeded the minimum scheduled 
salary rate for the Chief of Police and the Fire Chief of the District 
of Columbia.  As a result, the minimum scheduled pay rate for the 
Chief of Police and the Fire Chief of the District of Columbia is 
currently being used as the biweekly premium pay ceiling for members 
of the Uniformed Division who are eligible to perform compensable 
overtime, and the rate of basic pay of level V of the Executive 
Schedule is being used as the annual aggregate compensation limit.

Since the biweekly premium pay limit was not changed in the 1980 Act, 
the Secret Service believes that the way it used the Executive level V 
limitation from 1980 to 1991 was incorrect and that the biweekly 
limitation should have been used for premium pay.  If so, the error 
may have resulted in compensation underpayments to some members of its 
Uniformed Division.  Because members of the Uniformed Division are 
eligible to receive a number of adjustments and additions to their 
scheduled rate of basic pay (longevity pay, special salary rates, 
locality-based adjustments for law enforcement officers, technician 
pay, premium pay for overtime, compensatory time off for overtime, 
Sunday pay, and night pay), the Secret Service requests our opinion as 
to how the two limitations apply to biweekly premium pay and annual 
pay.

OPINION

Based on the foregoing history, it is clear that both of the pay 
limitations continue to apply to the compensation of Uniformed 
Division members, but they apply to different kinds of additional pay 
beyond the members' scheduled rates of basic pay.

Executive Schedule Level V Limitation

The pay limitation in 4 D.C. Code  4-406 (compensation may not be 
paid in excess of the rate of basic pay for level V of the Executive 
Schedule) applies to compensation paid under any provision of the 1958 
Salary Act, as amended.  The legislative history of the 1972 amendment 
to that Act (adding the pay limit) shows that "compensation" as used 
therein means "the amount presented by the schedule plus any 
additional amount provided for total service longevity or particular 
assignments or positions."[11]  Moreover, since members of the 
Uniformed Division are federal employees whose basic pay is prescribed 
and adjusted based on adjustments to the General Schedule, the 
definition of the term "basic pay" used in 5 C.F.R.  550.103(j) 
(1995) is applicable.  That provision states that "rate of basic pay" 
means:

     "the rate of pay fixed by law or administrative action for the 
     position held by an employee, including any applicable interim 
     geographic adjustment or special pay adjustment for law 
     enforcement officers under section 302 or 404 of the Federal 
     Employees Pay Comparability Act of 1990 . . . before any 
     deductions and exclusive of additional pay of any other kind."

Since premium pay is by definition additional pay, it is not covered 
by this limitation on basic pay.

Thus, the pay limitation in section 4-406 of title 4, D.C. Code, 
applies to basic pay, as adjusted (scheduled rate of pay for a 
member's position or assignment including technician pay, special 
salary rates, locality-based special pay adjustments for law 
enforcement officers) and longevity pay, but does not include premium 
pay.  For that reason, we agree with the Secret Service that use of 
the Executive V limitation for premium pay from 1980 to 1991 was 
incorrect.

Premium Pay Limitation

The biweekly premium pay limitation in 4 D.C. Code  4-1104(h)(1) and 
(2) (1994 Replacement Volume) as amended in 1972, was intended to 
continue the congressional mandate that the maximum aggregate 
compensation that may be paid to law enforcement officers and 
firefighters under the D.C. Code on a biweekly basis may not exceed 
the minimum scheduled basic pay rate for the Chief of Police and the 
Fire Chief.[12]

In that context, the term "rate of basic compensation," is defined in 
section 4-1104(a)(7) of title 4, D.C. Code, to mean "the rate of 
compensation fixed by law for the position held by an officer or 
member exclusive of any deductions or additional compensation of any 
kind."[13]  Premium pay, in turn, is defined in section 4-1104(a)(8) 
as "compensation not considered as salary for the purpose of computing 
deductions for life insurance or for computing annuity payments under  
4-607 to 4-630"[14] and would include overtime work.[15]  Premium pay 
is also defined in section 550.103(i) of title 5, Code of Federal 
Regulations (1995), to mean:

     "additional pay authorized by subchapter V of chapter 55 of title 
     5, United States Code, and this subpart for overtime, night, 
     holiday, or Sunday work, and for standby duty, administratively 
     uncontrollable overtime work, or availability duty."

Therefore, the premium pay limitation stated in section 4-1104(h)(2), 
D.C. Code, clearly applies to basic pay, as adjusted (scheduled rate 
of pay including technician pay, special salary rates, and 
locality-based special pay adjustments for law enforcement officers), 
plus premium pay (pay for overtime work, compensatory time off for 
overtime work, Sunday pay and night pay).  The remaining question is 
whether longevity pay is included in the aggregate rate of 
compensation which may not exceed the minimum scheduled rate of basic 
compensation for the Chief of Police and the Fire Chief of the 
District of Columbia on a biweekly basis.

Although longevity pay is specifically mentioned in the Senate and 
House reports on the Executive level V limitation, it is not mentioned 
in either the statutory language or the legislative history pertaining 
to the biweekly premium pay limitation.  Moreover, in U.S. Secret 
Service Uniformed Division, B-251235, May 28, 1993, we held that 
longevity pay authorized for members of the Uniformed Division under 
section 4-415 of title 4, D.C. Code is not a part of a member's rate 
of basic compensation for the purpose of computing overtime pay, 
holiday pay, night work, Sunday work, or Fair Labor Standard Act 
overtime.

Thus, longevity pay is not part of basic pay and is not used in 
computing overtime pay or other premium pay.  Since the focus of this 
limitation is to limit premium pay plus basic pay so as not to exceed 
the minimum basic pay rate of the D.C. Police or Fire Chief, and in 
the absence of any contrary expression of intent, we conclude that 
Congress did not intend to include longevity pay in aggregate 
compensation for the purpose of the biweekly premium pay limitation in 
section 4-1104(h)(2) of title 4, D.C. Code.

Finally, since we have held that the Executive level V rate does not 
limit biweekly premium pay, the Secret Service asks whether biweekly 
premium pay is limited by the current rate for the Police Chief and 
Fire Chief, or by a rate that is adjusted either by the percentage 
increases in the Uniformed Division salary chart or by the annual 
comparability increases, special salary rates, and special pay 
adjustments for law enforcement officers.

Since the Congress in 1972 made it clear that its intent was to limit 
premium pay so that aggregate compensation (basic pay plus premium pay 
as explained above) would not exceed the basic pay of step 1 at the 
salary class applicable to the Chief of Police and the Fire Chief, we 
see no basis to factor in any adjustments to that minimum basic pay 
rate.  Thus, in our opinion, the biweekly aggregate of basic pay plus 
premium pay is limited to the unadjusted minimum scheduled rate of 
basic compensation for the Chief of Police and the Fire Chief of the 
District of Columbia in effect at the time the premium pay was earned.

CONCLUSION

In summary, effective the first day of the first pay period beginning 
on or after May 1, 1972,[16] two independent pay limitations have been 
applicable to compensation which could be received by officers and 
members of the Uniformed Division.  For the purposes of both 
limitations, the basic pay for members of the Uniformed Division 
consists of the scheduled rate of pay for their position or 
assignment, including technician pay, special salary rates, and 
locality-based special pay adjustments for law enforcement officers, 
if applicable.  Therefore, for the purpose of the "level V of the 
Executive Schedule" limitation, a member of the Uniformed Division who 
is qualified for longevity pay, may receive that pay, in addition to 
his/her basic pay, as adjusted (not including premium pay), but only 
to the extent that longevity pay does not cause that compensation 
package to exceed the basic pay of level V of the Executive Schedule.  
For the purpose of the biweekly aggregate pay limitation, a member is 
entitled to receive premium pay or compensatory time off, but only to 
the extent that such premium pay, when added to his basic pay, as 
adjusted (not including longevity pay) does not cause the member's 
aggregate rate of compensation to exceed the unadjusted minimum 
scheduled rate of pay for the Chief of Police and the Fire Chief of 
the District of Columbia in effect when the premium pay was earned 
with respect to any biweekly pay period.

As the foregoing relates to Uniformed Division members who have been 
underpaid because of the error, clearly they should be compensated to 
the maximum extent permitted under the provisions of the barring act, 
31 U.S.C.  3702(b)(1) (1994), even though there is nothing in the 
file to suggest that any of them have filed a claim for such 
underpayment.  Therefore, for the purpose of the barring act, we will 
consider the date of the earliest correspondence from the Secret 
Service to this Office concerning the matter (December 23, 1993), as 
the date of filing on behalf of all affected Uniformed Division 
members.  Accordingly, all required adjustments to their pay which do 
not antedate December 23, 1987, may be paid, if otherwise correct.

/s/Lowell Dodge
for Robert P. Murphy
General Counsel

1. Mr. David C. Lee, Assistant Director, Office of Administration.

2. Pub. L. No. 85-584, Aug. 1, 1958, 72 Stat. 480.

3. These longevity steps were replaced by salary steps 7, 8, and 9 by 
section 103 of Pub. L. No. 92-410, Aug. 29, 1972, 86 Stat. 634.

4. Section 202 of Pub. L. No. 91-297, June 30, 1970, 84 Stat. 354, 
358.  See also Pub. L. No. 91-217, Mar. 19, 1970, 84 Stat. 74, for 
official name change in the United States Code.

5. Pub. L. No. 96-396, Oct. 7, 1980, 94 Stat. 1562.  See also Pub. L. 
No. 95-179, Nov. 15, 1977, 91 Stat. 1371, for the official name change 
in the United States Code.

6. Pub. L. No. 91-297, footnote 4 supra.

7. Pub. L. No. 89-282, Oct. 21, 1965, 79 Stat. 1013, 1015.  Currently 
section 4-1104 of title 4, D.C. Code (1994 Replacement Volume).

8. Footnote 3, supra.

9. Pub. L. No. 96-396, Oct. 7, 1980, 94 Stat. 1562.  See also section 
4-416(b)(1) of title 4, D.C. Code.

10. Pub. L. No. 101-509, Nov. 5, 1990, 104 Stat. 1429.

11. H.R. Rep. No. 92-1180, 92d Cong., 2d Sess., at 3 (1972), and S. 
Rep. No. 92-994, 92d Cong., 2d Sess., at 7 (1972).

12. H.R. Rep. No. 92-1180, 92d Cong., 2d Sess., at 5 (1972).

13. Section 4-1104(a)(7) of title 4, D.C. Code (1994 Replacement 
Volume).

14. Sections 4-1104(a)(8) of title 4, D.C. Code (1994 Replacement 
Volume).  For purposes of  4-607 to 4-630, "basic salary" is defined 
to exclude overtime, holiday, or military pay.

15. Sections 4-1104(c)-(g) of title 4, D.C. Code (1994 Replacement 
Volume).

16. Section 118 of Public Law 92-410, Aug. 29, 1972, 86 Stat. 634, 
641.