GUIDE TO ARBITRATION UNDER THE 

FEDERAL SERVICE LABOR-MANAGEMENT

RELATIONS STATUTE

(Updated September 30, 2016)
Table of Contents

§ 1 GRIEVANCES AND ARBITRATION 1

1.1 Statutory Requirements 1

1.2 Coverage of the Negotiated Grievance Procedure 1

1.3 Types of Grievances and the Negotiated Grievance Procedure 4

(a) Unacceptable Performance and Serious Adverse Actions 5

(b) Discrimination Cases Under Title VII of the Civil Rights 

Act of 1964 6 

(c) “Mixed Cases” Under 5 U.S.C. § 7702 7

(d) Prohibited-Personnel-Practice Cases Under 5 U.S.C. § 2302 7

(e) Grieving Unfair Labor Practices 8

1.4 General Guidance for Parties During the Arbitration Hearing 9

§ 2 AUTHORITY REVIEW OF ARBITRATION AWARDS 11

2.1 Introduction 11

2.2 Filing Exceptions and Oppositions 11

(a) Who May File Exceptions 11

(b) Time Limits for Filing Exceptions 11

(c) Additional Requirements for Filing Exceptions 14

(d) Examples of How to Calculate the Due Date for Filing

Exceptions 14

(e) Content of Exceptions 19

(f) Oppositions 20

(g) Requests for Expedited, Abbreviated Decisions 21
(h) Alternative-Dispute-Resolution Assistance 21

(i) Methods of Clarifying the Record 21

2.3 Interlocutory Appeals 22

2.4 Grounds for Review 26

2.5 Contrary to Law or Regulation 27

(a) Grievance Precluded by Law 28

(b) Monetary Remedies – Sovereign Immunity and Other

Limitations 31

(c) The Back Pay Act 31

(d) Backpay with Interest 32

(e) Attorney Fees 34

(f) Management Rights 42

(g) Status of Regulations 47

2.6 Private-Sector Grounds 49

(a) Denial of a Fair Hearing 49

(b) Arbitrator Bias 50

(c) Incomplete, Ambiguous, or Contradictory Award 51

(d) Arbitrator Exceeded Authority 51

(e) Award Based on Nonfact (Challenges to Factual Findings) 53

(f) Award Fails to Draw Its Essence from Agreement

(Challenges to Contract Interpretation) 54

(g) Public Policy 55

2.7 Challenges to Arbitrability Findings 55
2.8 Awards Based on Separate and Independent Grounds 56

2.9 Authority Practice with Regard to Deficient Awards 57

§ 3 COMPLIANCE WITH AWARDS & JUDICIAL REVIEW 58

3.1 Compliance with Arbitration Award 58

3.2 Judicial Review 59
FOREWORD

The Federal Labor Relations Authority’s (FLRA’s) three-member, decisional 

component (the Authority) has prepared this Guide. The FLRA, an independent agency 

of the executive branch of the federal government, administers the labor-relations 

program under the Federal Service Labor-Management Relations Statute1 (the Statute)

for federal agencies, federal employees, and the unions that represent those employees.

A primary responsibility of the Authority under the Statute is to resolve 

exceptions to arbitration awards that arise out of grievances filed by an employee, 

union, or agency. This Guide is designed to assist parties and arbitrators to understand 

the arbitration process and their rights and responsibilities under the Statute. We

believe that an understanding of the statutory scheme will enhance arbitration as an 

effective and efficient means of dispute resolution.

2

This Guide is intended to provide parties and arbitrators with information 

concerning:

 the key provisions of the Statute that pertain to arbitration;

 the bases upon which arbitral awards may be found deficient;

 the roles of the arbitrator and the parties under the Statute and how those roles 

may differ from their roles in the private sector; and

 difficult issues that arise in arbitration cases.

We also intend for this Guide to assist parties in understanding the legal 

framework for arbitration and to assist arbitrators in rendering awards that are less 

likely to be found deficient by the Authority. This intention is consistent with 

Congress’s goal that arbitration be final and binding.

This Guide is not an official interpretation of the Statute and/or the Authority’s 

Regulations, or the Authority’s official policy. It should not be considered as legal 

advice or as a substitute for adequate preparation and research by the party 

representatives or arbitrators. The case law in this area is constantly evolving. It is 

crucial that parties and arbitrators research court, Authority, and other 

administrative-tribunal decisions that may apply to their particular cases. We 

encourage you to visit the Authority’s website, www.FLRA.gov, where you can read

the Statute and the Authority’s Regulations, download forms for filing exceptions and 

 

1 5 U.S.C. §§ 7101-7135.

2

Id. § 7101.
oppositions, file exceptions and oppositions using the Authority’s electronic-filing 

(eFiling) system, and research Authority decisions, which may be searched in a variety 

of ways, including by using search terms.
1

§ 1

GRIEVANCES AND ARBITRATION

1.1 Statutory Requirements

Employment in the federal government is subject to numerous statutory and 

regulatory requirements. As a result, in contrast to much private-sector arbitration, 

arbitration under the Statute is heavily governed by statutory and regulatory 

provisions.

Section 7121 of the Statute sets forth a number of statutory requirements that 

concern the negotiated grievance procedure (NGP):

 All federal-sector collective-bargaining agreements (CBAs) must provide 

procedures for the settlement of grievances, including questions of “arbitrability” 

– in other words, whether an arbitrator has the authority to resolve the grievance

– and the required procedures must provide for binding arbitration of any 

grievance not satisfactorily settled.3

 Only an agency or union representative may invoke arbitration. Although the 

Statute permits an employee to file a grievance and represent himself or herself 

through the steps of the NGP up to arbitration, the union is permitted to be 

present during grievance proceedings. And although an employee may 

personally file a grievance, an aggrieved employee may not be represented in the 

NGP by an attorney or a representative other than the union or a representative 

designated by the union.4

 The NGP must be fair and simple5 and provide for expeditious processing.6

1.2 Coverage of the NGP

Sections 7121 and 7103(a)(9) of the Statute establish the coverage and scope of an 

NGP. Section 7103(a)(9) broadly defines “grievance” as any complaint:

(A) by any employee concerning any matter relating to the 

employment of the employee;

(B) by any labor organization concerning any matter relating to the 

employment of any employee; or

 

3 5 U.S.C. § 7121(a)(1).

4

Id. § 7121(b)(1)(C)(ii)-(iii).

5

Id. § 7121(b)(1)(A).

6

Id. § 7121(b)(1)(B).
2

(C) by any employee, labor organization, or agency concerning—

(i) the effect or interpretation, or a claim of breach, of a [CBA]; 

or

(ii) any claimed violation, misinterpretation, or misapplication 

of any law, rule, or regulation affecting conditions of 

employment[.]

In contrast with private-sector grievance procedures, where parties must 

negotiate to include matters in an NGP, in the federal sector, the NGP covers matters 

unless the parties negotiate to exclude them. The law also prohibits federal-sector NGPs 

from covering certain matters; this Guide discusses some of those legal exclusions

below.

Federal-sector arbitration differs from private-sector arbitration in other 

significant respects:

 In the private sector, the NGP typically enforces terms and conditions of the 

parties’ CBA. In the federal sector, the NGP more frequently enforces – and 

arbitrators therefore often interpret – not only CBAs, but also laws, regulations, 

and agency policies.

 In the private sector, although mandatory subjects of bargaining continue in 

effect after a bargaining agreement has expired, arbitration clauses do not 

continue while the parties are negotiating a new agreement because “arbitration 

is a matter of consent” that will “not be imposed upon parties beyond the scope 

of their agreement.”7 In the federal sector, when a negotiated agreement expires, 

personnel policies, practices, and matters affecting working conditions continue 

to the maximum extent possible absent either an express agreement to the 

contrary or the modification of those conditions of employment in a manner 

consistent with the Statute. These continuing policies, practices, and matters 

encompass the negotiated grievance and arbitration procedures, including the 

selection of an arbitrator. Furthermore, such negotiated procedures survive and 

remain in full effect not only following contract expiration, but even following 

the decertification of one exclusive representative and the installation of a new 

one.8

 In the private sector, arbitration awards are subject to appeal to the federal courts 

on very narrow grounds. In the federal sector, arbitration awards are subject to 

 

7

Indep. Union of Pension Emps. for Democracy & Justice, 68 FLRA 999, 1004-05 (2015) (quoting Litton Fin. 

Printing Div., a Div. of Litton Bus. Sys., Inc. v. NLRB, 501 U.S. 190, 200-01 (1991)).

8

Id. at 1004-05.
3

appeal (exceptions) to the Authority.9 On exceptions, the Authority will consider 

whether the arbitrator properly considered and applied applicable law or 

regulation, and it will set aside or modify an award where the excepting party 

has demonstrated that the arbitrator failed to do so. Therefore, party 

representatives should advise arbitrators of applicable law, regulation, and 

policy, and they should provide accurate and complete reference materials to 

arbitrators. This Guide addresses other grounds for review below.

As a result of the differences between private- and federal-sector arbitrations, 

and to make it more likely that the Authority will uphold their awards if exceptions are 

filed, arbitrators should ensure that their awards:

 State the issue(s) clearly. If the parties are unable to stipulate to (or agree on) the 

submitted issue(s), then the arbitrator should ensure that the award identifies the 

issue(s) being addressed.

 If the arbitrator finds a violation of law or contract, then:

o The award should specify clearly which contractual provisions, laws, or 

regulations were violated. If the arbitrator finds a violation of a contract 

provision that looks similar to a legal provision – for example, a contract 

provision requiring bargaining – the arbitrator should state whether he or 

she interprets the contract provision as having the same meaning as, or a 

different meaning from, the legal provision.

o The violation found should be encompassed within or related to the stated 

issue(s). Although the Authority gives arbitrators substantial deference to 

determine what issues were submitted to arbitration, that deference is not 

unlimited. For example, the Authority has found that an arbitrator 

exceeded her authority in a situation where the arbitrator: resolved an 

issue that was not included among stipulated issues; made no finding 

(and there was no claim) that it was necessary to address the resolved 

issue in order to resolve the stipulated issue; did not find that the resolved 

issue necessarily arose from the stipulated issue; and did not interpret the 

stipulation to include the resolved issue.10

 The remedy should not exceed the scope of the grievance and/or issues before 

the arbitrator.

 

9 5 U.S.C. § 7122.

10 U.S. Dep’t of Transp., FAA, 64 FLRA 612, 613-14 (2010) (DOT).
4

o Example: If the issue addresses whether one employee should have been 

promoted, then the arbitrator must limit the remedy to that employee.11

o Example: If the arbitrator does not find a violation, then he or she may 

not award a remedy.12

 Although it is not necessary for the arbitrator to discuss every piece of evidence 

presented, it is helpful if the arbitrator includes in his or her award specific 

references to the record (testimony, transcript, exhibits, CBA provisions) as they 

relate to material matters and the arbitrator’s factual findings.

1.3 Types of Grievances and the NGP

As stated previously, § 7103(a)(9) of the Statute broadly defines the term 

“grievance.” Thus, as a general matter, in the federal sector, NGPs are broad in scope 

and permit grievances over violations of not only CBAs but also laws, rules, and 

regulations affecting conditions of employment. As discussed further below, this 

includes allegations of unfair labor practices (ULPs). However, parties may agree to 

exclude any matters, including grievances over ULPs, from the scope of their NGPs.

13 

In addition, as stated previously (and discussed in further detail below), the law 

excludes certain matters from coverage of the NGP.

In addressing a grievance, the arbitrator should determine whether either law or 

the CBA has excluded the grievance from coverage under the NGP. If the grievance is 

not excluded, cannot be raised as a ULP, or is not covered by a statutory 

“election-of-remedies” provision, such as § 7121(d), (e), or (g) of the Statute (discussed 

further below), then the NGP is the sole and exclusive administrative procedure that 

bargaining-unit employees may use to resolve the grievance.14

If parties are not able to successfully resolve a grievance during the defined steps 

of the NGP, then either the union or the agency may invoke arbitration. Employees 

may not invoke arbitration.15

Following are issues that warrant separate discussion in the context of the 

coverage of NGPs.

 

11 E.g., U.S. DOJ, Exec. Office for Immigration Review, Bd. of Appeals, 65 FLRA 657, 663-64 (2011) (EOIR)

(Member Beck concurring); U.S. EPA, 57 FLRA 648, 651-52 (2001).

12 E.g., U.S. EPA, Region 2, N.Y.C., N.Y., 63 FLRA 476, 479 (2009); NLRB, Tampa, Fla., 57 FLRA 880, 881 

(2002).

13 E.g., AFGE, Local 3911, 56 FLRA 480, 482 (2000).

14 5 U.S.C. § 7121(a)(1).

15 Id. § 7121(b)(1)(C)(iii).
5

(a) Unacceptable Performance and Serious Adverse Actions

These matters include unacceptable performance matters16 and serious adverse 

actions.17 Two broad categories of employees are relevant here.

The first group comprises employees who are employed in the ordinary 

civil-service system. Employees in this group (with the exception of certain employees, 

such as non-probationary, competitive-service employees) have the right, when faced 

with an unacceptable performance or serious adverse action, to choose either: (1) an 

appeal to the Merit Systems Protection Board (MSPB), which is an independent, 

quasi-judicial agency established by the Civil Service Reform Act of 197818 to adjudicate 

appeals by employees of serious adverse actions and performance-based actions; or

(2) a grievance under the NGP.19 A grievance involving these types of matters differs 

from other grievances in several respects:

 The arbitrator must apply the standards that the MSPB would have applied if the 

matter had been appealed to the MSPB, specifically, the standards set forth in

5 U.S.C. § 7701(c).

20 Section 7701(c) provides:

(1) Subject to paragraph (2) of this subsection, the decision of the agency shall 

be sustained under subsection (b) only if the agency’s decision—

(A) in the case of an action based on unacceptable performance 

described in section 4303, is supported by substantial evidence; or

(B) in any other case, is supported by a preponderance of the evidence.

(2) Notwithstanding paragraph (1), the agency’s decision may not be 

sustained under subsection (b) of this section if the employee or applicant

for employment—

(A) shows harmful error in the application of the agency’s procedures 

in arriving at such decision;

 

16 Id. § 4303.

17 Id. § 7512 (suspensions that exceed 14 days, removals from the federal service, furloughs of 30 days or 

less, or reductions in grade or pay).

18 Pub. L. No. 95-454, 92 Stat. 1111 (1978).

19 5 U.S.C. § 7121(e), (f).

20 Id. § 7121(e)(2).
6

(B) shows that the decision was based on any prohibited personnel 

practice described in section 2302(b) of this title; or

(C) shows that the decision was not in accordance with law.

 Review of the arbitration award is available in the same manner and under the 

same conditions as if the matter had been decided by the MSPB. Specifically, the 

arbitration award is appealable to the U.S. Court of Appeals for the Federal 

Circuit (Federal Circuit) – not to the Authority.

The second group comprises federal employees who are not employed in the 

ordinary civil-service system. In this connection, some federal employees are employed 

in other personnel systems – for example, personnel systems that apply to the Federal 

Aviation Administration, the Securities and Exchange Commission, health-care 

professionals in the Department of Veterans Affairs covered by Title 38 of the 

U.S. Code, and overseas teachers of the Department of Defense Dependents Schools.21 

These systems provide for actions against covered employees similar to the actions 

provided for in §§ 4303 and 7512, and these employees have a similar option of either 

filing a grievance or raising the matter under any procedures available under those 

systems; arbitration awards involving those actions are also not appealable to the 

Authority.

(b) Discrimination Cases Under Title VII of the Civil Rights Act of 1964

In these cases, an employee alleges, for example, that he or she was not 

promoted, did not receive training, or received a poor performance appraisal as a result 

of discrimination on a prohibited basis (such as race or sex). In such cases, the 

employee has the option of either filing a complaint using his or her employing 

agency’s equal-employment-opportunity (EEO) process (possibly resulting in an appeal 

to the Equal Employment Opportunity Commission (EEOC)), or filing a grievance 

under the NGP.22

If the employee files a grievance under the NGP, then the grievance is processed 

in much the same manner as any other grievance, except that the employee is not 

precluded from requesting EEOC review of the arbitrator’s award.23 The employee also 

retains the right to file a civil action in an appropriate U.S. District Court.24

In a discrimination case, the employee’s choice of either the NGP or the EEO 

procedure is an election of remedies; the employee cannot pursue his or her claim 

 

21 See, e.g., U.S. Dep’t of Transp., FAA, 54 FLRA 235, 237-38 (1998).

22 5 U.S.C. § 7121(d).

23 Id.

24 29 C.F.R. § 1614.301.
7

under both procedures.25 The employee exercises this choice when he or she either 

timely initiates an action under the statutory EEO procedure or timely files a grievance 

in writing, whichever event occurs first.26 Arbitration awards that resolve Title VII

discrimination issues are appealable to the Authority unless they are outside the 

Authority’s jurisdiction for some other reason.

(c) “Mixed Cases” Under 5 U.S.C. § 7702

This type of case is one in which the agency takes an action against an employee 

that is appealable to the MSPB (suspensions that exceed 14 days, removals from the 

federal service, furloughs of 30 days or less, or reductions in grade or pay) and the 

employee claims that the action was based on discrimination of the type prohibited by 

any law that the EEOC administers. One example would be where an agency removes 

an employee, and the employee alleges that the removal is based on racial 

discrimination. As with §§ 4303 and 7512 matters and pure-discrimination cases, the 

employee has several options available. The scheme for processing these matters is 

very complex, and a detailed explanation is beyond the scope of this Guide. For more 

specific details, you should carefully consult the applicable statutory and regulatory 

provisions, primarily: 5 U.S.C. § 7702; 5 C.F.R. part 1201, subpart E; and 29 C.F.R. 

part 1614, subpart C. But please note that arbitration awards that resolve these matters 

are not appealable to the Authority.27

(d) Prohibited-Personnel-Practice Cases Under 5 U.S.C. § 2302

These are cases where an agency takes one of the personnel actions listed in 

5 U.S.C. § 2302(a)(2) against an employee, and the employee claims that the action was 

for one of the prohibited reasons set forth in § 2302(b)28 (other than prohibited 

employment discrimination listed in (b)(1)).29 One example would be where an agency 

disciplines an employee based on reprisal for the employee’s filing of a grievance, an 

appeal of an adverse action to the MSPB, or a complaint with the EEOC. Such a 

disciplinary action would be a prohibited personnel practice under 5 U.S.C. § 2302(b)(9), 

which prohibits retaliation for, among other things, the exercise of any appeal, 

complaint, or grievance right granted by any law, rule, or regulation.

 

25 5 U.S.C. § 7121(d).

26 Id.; e.g., U.S. Dep’t of the Navy, Naval Undersea Warfare Ctr. Div. Keyport, Keyport, Wash., 69 FLRA 292, 296 

(2016) (Keyport); AFGE, Local 2145, 61 FLRA 571, 573-74 (2006) (Local 2145) (portion of grievance barred by 

prior EEO filing); U.S. DOJ, U.S. Marshals Serv., 23 FLRA 414, 417-18 (1986) (timely filing of formal EEO 

complaint indicates election of EEO process). Cf. NTEU, Chapter 145, 65 FLRA 898, 899-900, recons. denied, 

65 FLRA 1015 (2011) (untimely EEO complaint did not bar grievance).

27 See, e.g., U.S. Dep’t of the Interior, Bureau of Indian Affairs, Wapato Irrigation Project, 65 FLRA 5, 6-7 (2010); 

U.S. Dep’t of Commerce, Patent & Trademark Office, Arlington, Va., 61 FLRA 476, 477-78 (2006).

28 5 U.S.C. § 2302(b)(2).

29 See, e.g., Local 2145, 61 FLRA at 574.
8

As with other categories of cases, if an employee believes that he or she has been 

subjected to a prohibited personnel practice, then he or she has several options 

available. He or she may: file an appeal with the MSPB; file a grievance if the matter 

has not been excluded from the NGP; or seek corrective action from the Office of Special 

Counsel by making an allegation under 5 U.S.C. § 1214(a)(1).

30 Once he or she chooses 

one of these procedures, he or she may not raise the matter under the other procedures. 

Section 7121(g)(4) of the Statute provides that the employee shall be considered to have 

exercised the option when he or she timely files a notice of appeal under the applicable 

appellate procedures, timely files a grievance in writing, or makes an allegation under

§ 1214(a)(1) – whichever occurs first. When the employee elects to file a grievance, 

§ 7121(b)(2)(A) authorizes an arbitrator: (1) to order a stay of the personnel action in a 

manner similar to the manner described in 5 U.S.C. § 1221(c); or (2) to direct the agency 

to take a disciplinary action identified under § 1215(a)(3), if such an action is otherwise 

within the agency’s authority to take. An arbitration award involving these matters is

appealable to the Authority, unless the personnel action at issue is the type of action 

discussed in the “unacceptable performance and serious adverse actions” section above.

(e) Grieving ULPs

As mentioned previously, an aggrieved party also may raise an alleged ULP 

under the NGP (unless the parties have agreed to exclude it from coverage of the NGP). 

However, under § 7116(d) of the Statute, the aggrieved party (which may be an 

employee, agency, or union) may not raise the issue under both the NGP and as a ULP 

charge filed with the FLRA’s Office of the General Counsel.

31 If the aggrieved party 

already has filed a ULP charge, then the party cannot later file a grievance over the 

same issue(s), and an arbitrator may not issue an award regarding such a grievance. 

For an earlier-filed ULP charge to preclude the grievance, all of the following conditions 

must be met: (1) the issue that is the subject matter of the grievance is the same as the 

issue that was the subject matter of the ULP charge; (2) that issue was raised earlier 

under the ULP procedures; and (3) the selection of the ULP procedures was in the 

discretion of the aggrieved party.32 An issue is “raised” within the meaning of § 7116(d)

when the grievance or the ULP charge is filed, even if the grievance or ULP charge is 

subsequently withdrawn and not adjudicated on the merits.33

 

30 5 U.S.C. § 7121(g).

31 Id. § 7116(d); see, e.g., AFGE, Local 919, 68 FLRA 573, 575-76 (2015) (Member Pizzella dissenting).

32 E.g., U.S. Dep’t of the Air Force, 62nd Airlift Wing, McChord Air Force Base, Wash., 63 FLRA 677, 679-80 

(2009) (aggrieved parties differed); U.S. Dep’t of Transp., FAA, 62 FLRA 54, 55 (2007).

33 E.g., U.S. Dep’t of the Navy, Naval Air Eng’g Station, Lakehurst, N.J., 64 FLRA 1110, 1112 (2010).
9

1.4 General Guidance for Parties During the Arbitration Hearing

Parties should consider the following general guidance when they bring a case to 

arbitration.

(a) Get everything on the record

It is extremely important that you, as a party, ensure that the record you create 

during the arbitration hearing is as complete as you can make it. As §§ 2425.4(c) and

2429.5 of the Authority’s Regulations make clear, the Authority generally will not 

consider anything that a party could have presented, but did not present, to the 

arbitrator.34 This includes factual assertions, exhibits, legal arguments, requests for a 

specific remedy, and arguments against remedies that another party requests.35

 Remember, if you could have argued it before the arbitrator, but did not, then 

generally you may not argue it to the Authority in support of your exceptions or 

in opposition to another party’s exceptions.

(b) Explain your positions thoroughly during the arbitration hearing

It is also very important that you explain your position on all the issues during 

the arbitration hearing.

Do not stipulate to an issue unless you are certain about it. Once you are on the 

record as stipulating, you and the arbitrator are bound by the stipulation. The 

Authority will not find that the arbitrator exceeded his or her authority by addressing 

any issue that is necessary to decide a stipulated issue or by addressing any issue that 

necessarily arises from issues specifically included in the stipulation.

36 However, also 

be aware that, in the absence of a stipulated issue, the Authority gives an arbitrator’s 

formulation of the issue(s) substantial deference.37

 

34 E.g., SSA, Region V, 67 FLRA 155, 156 (2013); U.S. Dep’t of the Air Force, 82nd Training Wing, Sheppard Air 

Force Base, Tex., 65 FLRA 137, 139 n.4 (2010) (Sheppard AFB); U.S. Dep’t of the Army, Army Tank-Auto. & 

Armaments Command, Warren, Mich., 61 FLRA 637, 639 (2006) (argument sufficiently raised in post-hearing 

brief).

35 5 C.F.R. § 2429.5; e.g., U.S. DOJ, Fed. BOP, Fed. Corr. Complex, Oakdale, La., 63 FLRA 178, 179-80 (2009) 

(failing to raise management-right argument before arbitrator); AFGE Council 236, 63 FLRA 213, 214 

(2009) (failing to raise ULP argument before arbitrator).

36 E.g., U.S. Dep’t of the Interior, Bureau of Reclamation, Great Plains Region, Colo./Wyo. Area Office, 68 FLRA 

992, 993-95 (2015) (Member Pizzella dissenting) (Interior); U.S. Dep’t of the Interior, Nat’l Park Serv.,

67 FLRA 489, 492 (2014); DOT, 64 FLRA at 613 (citation omitted).

37 E.g., USDA, Forest Serv., Monongahela Nat’l Forest, 64 FLRA 1126, 1129-30 (2010); U.S. Dep’t of the Army, 

Corps of Eng’rs, Memphis Dist., Memphis, Tenn., 52 FLRA 920, 924 (1997) (Eng’rs Memphis).
10

 Remember, if you stipulate to the issue, then the arbitrator is limited to that issue 

along with any issues that are necessary to decide, or that necessarily arise from, 

the stipulated issue.38

(c) Fully explain your position on any possible remedies

Similarly, make sure to articulate all potentially appropriate remedies to the 

arbitrator during the hearing. Be clear about what you want and what you disagree 

with. For example, if you believe that a proposed remedy exceeds the arbitrator’s 

authority or is contrary to law, then state this on the record. Explain your position 

clearly and thoroughly. Doing so clarifies your position for the arbitrator. 

Additionally, if the arbitrator grants a requested remedy, and you wish to challenge it 

on exceptions to the Authority, then you will have preserved your ability to do so by 

first raising your challenge before the arbitrator.39

 Remember, fully explain the remedies that you seek during the hearing and fully 

state your position on any remedies proposed by the other party.

(d) Prepare for the arbitration hearing as thoroughly as you can

Be ready to: state your position to the arbitrator; provide evidence (oral and 

documentary), legal analysis, and supporting citations; stipulate when appropriate; 

make objections as necessary; and speak to the types of remedies that you want or do 

not want. Be familiar with the facts of your case and with what your witnesses will say. 

Anticipate what you think the opposing party will argue so you are prepared to address 

those issues. If you anticipate that legal issues will arise during the proceedings, then 

research those issues, including remedial issues, such as the requirements for backpay 

under the Back Pay Act. Get organized – have a checklist of exhibits that you want to 

enter into evidence and important points that you want to make. Determine ahead of 

time the remedies that you think are or are not appropriate, and be ready to present 

your best arguments in support of your position. Being thoroughly prepared helps you 

present your case in the most organized and convincing manner possible. This 

maximizes your opportunity to achieve a positive result.

 Remember, the more time that you spend preparing for the arbitration hearing 

beforehand, the better and more convincing a case you will be able to present.

 

38 E.g., U.S. DHS, U.S. CBP, 64 FLRA 916, 919-20 (2010).

39 E.g., U.S. Dep’t of VA, Bos. Healthcare Sys., Bos., Mass., 68 FLRA 116, 117 (2014) (VA Boston) (finding that 

mere submission of agency handbook and policy to arbitrator, without explanation, did not sufficiently 

raise argument to arbitrator); AFGE, Local 3937, 64 FLRA 1113, 1114, recons. denied, 65 FLRA 21 (2010).
11

§ 2

AUTHORITY REVIEW OF ARBITRATION AWARDS

2.1 Introduction

In the federal sector, review of arbitration awards, in most cases, is accomplished 

by filing exceptions to the award with the Authority under § 7122 of the Statute. This is 

unlike the private sector, where arbitration awards are subject to direct judicial review. 

This section of the Guide discusses the filing of exceptions and the scope of Authority 

review of arbitration awards once exceptions are filed.

2.2 Filing Exceptions and Oppositions

(a) Who May File Exceptions

Under § 7122(a) of the Statute and § 2425.2(a) of the Authority’s Regulations, 

either “party” to an arbitration may file with the Authority exceptions to an arbitration 

award. The Authority’s Regulations define “party” to include any person who 

participated as a party in a matter where an arbitration award was issued.40 This means 

that, generally, only the agency and the union are entitled to file exceptions because 

they are the only parties to the arbitration proceeding. Thus, a grievant cannot file 

exceptions to an arbitration award unless the union authorizes him or her to do so.41 In 

addition, as discussed earlier in this Guide, an award relating to a § 4303 or § 7512

matter is subject to review by the Federal Circuit as if the award were a decision of the 

MSPB, and similar awards under personnel systems other than the ordinary 

civil-service system are reviewable under whatever standards and procedures apply to 

those personnel systems.

(b) Time Limits for Filing Exceptions

Under § 7122(b) of the Statute and § 2425.2(b) of the Authority’s Regulations, 

parties have 30 days to file exceptions, beginning the day after service of the award. 

The 30-day filing period is significant; the Authority may not waive or extend it, and 

must dismiss untimely filed exceptions.

42 However, the Authority has determined that 

 

40 5 C.F.R. § 2421.11(b)(3)(ii).

41 Compare AFGE, Nat’l INS Council, 69 FLRA 549, 550-51 (2016) (Nat’l INS Council) (union authorized 

grievant), and AFGE, Local 3495, 60 FLRA 509, 509 n.1 (2004) (same), with U.S. Dep’t of the Treasury, 

U.S. Customs Serv., 40 FLRA 1254, 1255 (1991) (union did not authorize grievant).

42 5 U.S.C. § 7122(b); 5 C.F.R. § 2425.2(b); AFGE, Local 3961, 68 FLRA 443, 443-44 (2015) (Member DuBester 

dissenting). 
12

the 30-day filing period is not jurisdictional; therefore, the Authority may equitably toll 

the filing date for exceptions for some extraordinary circumstances.

43

To determine the date of “service” of the arbitration award for these purposes, it 

is first necessary to determine whether the parties have reached an agreement as to 

what is an appropriate method of service of the award.44 If the parties have reached 

such an agreement, then that agreement controls; if they have not reached such an 

agreement, then the arbitrator may use any commonly used method to serve the award, 

and the arbitrator’s selected method controls.45

Consider the following principles in determining the award’s date of service:

 If the arbitrator serves the award by regular U.S. mail, then the date of service is 

the postmark date or, if there is no legible postmark, then the date of the award.46

 If the arbitrator serves the award by commercial delivery – such as FedEx or 

UPS – then the date of service is the date on which the arbitrator deposited the

award with the commercial-delivery service, or, if that date is not indicated, the 

date of the award.47

 If the arbitrator serves the award by e-mail or fax, then the date of service is the 

date of transmission.

48

 If the arbitrator serves the award by personal delivery, then the date of service is 

the date of personal delivery.49

 If the arbitrator serves the award by more than one method, then – with an 

exception discussed below – the first method is controlling.50

Consider the following principles in determining the due date for your 

exceptions to the award. Once you have determined the date of service based on the 

principles stated above, then count 30 calendar days (including weekends and holidays)

 

43 U.S. Dep’t of VA Med. Ctr., Richmond, Va., 68 FLRA 231, 232-34 (2015) (Member Pizzella dissenting), 

overruling U.S. Dep’t of HUD, 27 FLRA 852, 853-54 (1987) and other Authority precedent to the contrary, 

e.g., U.S. Dep’t of Commerce, Patent & Trademark Office, Arlington, Va., 60 FLRA 869, 877 (2005) (PTO 

Arlington).

44 5 C.F.R. § 2425.2(c).

45 Id.

46 Id. § 2425.2(c)(1).

47 Id. § 2425.2(c)(2).

48 Id. § 2425.2(c)(3); see, e.g., NTEU, Chapter 164, 65 FLRA 901, 903 (2011) (Chapter 164).

49 5 C.F.R. § 2425.2(c)(4).

50 Id. § 2425.2(c)(5); see also id. § 2429.22(b).
13

beginning on the day after, not the day of, the date of service.51 For example, if the 

award is served on May 1, then May 2 is counted as day 1, and May 31 is day 30. If

day 30 is not a Saturday, Sunday, or federal legal holiday, then the exceptions are due at 

5 p.m. Eastern Time (E.T.) – or midnight E.T., for exceptions that are eFiled – on that 

day.52 (We note that the Authority cautions parties not to wait until the last minute to 

eFile documents, in case technical difficulties arise.) However, if day 30 is a Saturday, 

Sunday, or federal legal holiday, then the exceptions are not due until 5 p.m. E.T. – or 

midnight E.T., for exceptions that are eFiled (see cautionary note above) – on the next 

day that is not a Saturday, Sunday, or federal legal holiday.53 Please note that, if you 

eFile your exceptions, then you may – but are not required to – file them on the 

Saturday, Sunday, or federal legal holiday.54

Once you have calculated that date, you must consider the method by which the

arbitrator served the award on you. If the arbitrator appropriately (i.e., consistently

with any agreement of the parties) served the award on you by e-mail, fax, or personal 

delivery, then your exceptions must be filed by 5 p.m. E.T. – or midnight E.T., for 

exceptions that are eFiled – on the date that you have calculated above.

55 However, if 

the award was served on you by regular mail or commercial delivery, then add 5 days 

to the date that you have calculated above.

56 If the resulting date is not a Saturday, 

Sunday, or federal legal holiday, then that date is your due date for filing exceptions; by 

contrast, if the resulting date is a Saturday, Sunday, or federal legal holiday, then your 

exceptions are not due until 5 p.m. E.T. on the next day that is not a Saturday, Sunday, 

or federal legal holiday.57 Again, please note that if you eFile your exceptions, then you 

may – but are not required to – file them on the Saturday, Sunday, or federal legal 

holiday.58

Also, as noted above, there is a special rule that applies if the arbitrator served 

you with the award by more than one method on the same day.59 Specifically, if the

arbitrator served the award by mail or commercial delivery, and on the same day, he or 

she also served it by e-mail, fax, or personal delivery, then you will not receive an 

additional 5 days to file your exceptions – even if the arbitrator postmarked the award 

or deposited it with the commercial-delivery service before he or she transmitted the email or fax.60 However, where an arbitrator indicates that a particular service is not the 

 

51 Id. § 2425.2(b); see, e.g., Chapter 164, 65 FLRA at 903.

52 5 C.F.R. §§ 2429.21(a), 2429.24(a).

53 Id. §§ 2429.21(a), 2429.24(a); see, e.g., Chapter 164, 65 FLRA at 903.

54 5 C.F.R. § 2429.24(a).

55 See id. §§ 2425.2(c)(3)-(4), 2429.24(a).

56 Id. § 2429.22(a); see also id. § 2425.2(c)(1)-(2).

57 Id. §§ 2429.21(a), 2429.22(a), 2429.24(a).

58 See id. § 2429.24(a).

59 Id. § 2425.2(c)(5); see also id. § 2429.22(b).

60 See id. § 2425.2(c)(5).
14

“official service,” then the Authority will allow the arbitrator’s designation of the 

“official service” to control the calculation of the due date for timely exceptions.61

(c) Additional Requirements for Filing Exceptions

In addition, exceptions to an arbitration award must comply with, and parties 

should consult, the requirements set forth in:

 5 C.F.R. § 2429.24 (must submit filings to Authority’s Office of Case Intake and 

Publication by personal delivery, certified mail, first-class mail, commercial 

delivery, or eFiling; documents must be signed, unless eFiled);

 Id. § 2429.25 (must submit one original plus four copies of anything filed, with 

certain exceptions, such as eFiled documents);

 Id. § 2429.27 (must serve all counsel of record with anything filed and submit 

signed statement of service or, for eFiled documents, certify in the Authority’s 

eFiling system that you have completed such service); and

 Id. § 2429.29 (must submit table of contents if document exceeds 10 

double-spaced pages, with the exception of fillable forms in the eFiling system).

(d) Examples of How to Calculate the Due Date for Exceptions

The following worksheet and examples are intended to provide parties with 

guidance as to how the Authority determines whether exceptions have been timely 

filed:

Date of Service of Award: date + 30 Days (5 C.F.R. §§ 2425.2, 2429.21, 2429.22) = date 

(day of week). But if the 30th day falls on a weekend or federal holiday, then advance 

to next workday = date (day of week). (Id. § 2429.21(a)). If service by mail or commercial 

delivery, then + 5 days (Id. §§ 2425.2, 2429.22) = date (day of week). But, if weekend or federal 

holiday, then advance to next workday = date (day of week). (Id. §§ 2429.21(a), 2429.22(a)).

 

61 U.S. DHS, U.S. CBP, 68 FLRA 1015, 1017-18 (2015) (Member Pizzella dissenting).
15

Example #1

The Arbitrator serves his award on the parties by an e-mail transmitted to the parties on 

November 1. The Union files exceptions on December 2. As set forth below, the 

exceptions are due on December 1. Accordingly, the exceptions are untimely filed.

November December

Su Mo Tu We Th Fr Sa

1 2 3 4 5 6

7 8 9 10 11 12 13

14 15 16 17 18 19 20

21 22 23 24 25 26 27

28 29 30

Su Mo Tu We Th Fr Sa

1 2 3 4

5 6 7 8 9 10 11

12 13 14 15 16 17 18

19 20 21 22 23 24 25

26 27 28 29 30 31

11 = federal holiday

Date of Service of Award: November 1 + 30 Days (5 C.F.R. §§ 2425.2, 2429.21, 2429.22) = 

December 1 ( Wednesday ). But if the 30th day falls on a weekend or federal holiday, 

then ________________. (Id. § 2429.21(a)). If service by mail or commercial delivery, then + 5 

days (Id. §§ 2425.2, 2429.22) = ______________ ( ). But, if weekend or federal 

holiday, then ______________________. (Id. §§ 2429.21(a), 2429.22(a)). 
16

Example #2

The Arbitrator serves his award on the parties by U.S. mail on October 12. The Union 

files exceptions on November 16. As set forth below, the exceptions are due on 

November 17. Accordingly, the exceptions are timely filed.

October November

Su Mo Tu We Th Fr Sa

1 2

3 4 5 6 7 8 9

10 11 12 13 14 15 16

17 18 19 20 21 22 23

24 25 26 27 28 29 30

31

Su Mo Tu We Th Fr Sa

1 2 3 4 5 6

7 8 9 10 11 12 13

14 15 16 17 18 19 20

21 22 23 24 25 26 27

28 29 30

11 = federal holiday

Date of Service of Award: October 12 + 30 Days (5 C.F.R. §§ 2425.2, 2429.21, 2429.22) = 

November 11 ( Thursday/federal holiday – Veterans’ Day ). But if the 30th day falls on 

a weekend or federal holiday, then November 12. (Id. § 2429.21(a)). If service by mail or 

commercial delivery, then + 5 days (Id. §§ 2425.2, 2429.22) = November 17 ( Wednesday ). 

But, if weekend or federal holiday, then _______________. (Id. §§ 2429.21(a), 2429.22(a)).
17

Example #3

The Arbitrator serves his award by an e-mail transmitted to the parties on October 12. 

The union files exceptions on November 10. As set forth below, the exceptions are due 

on November 12. Accordingly, the exceptions are timely filed.

October November

Su Mo Tu We Th Fr Sa

1 2

3 4 5 6 7 8 9

10 11 12 13 14 15 16

17 18 19 20 21 22 23

24 25 26 27 28 29 30

31

Su Mo Tu We Th Fr Sa

1 2 3 4 5 6

7 8 9 10 11 12 13

14 15 16 17 18 19 20

21 22 23 24 25 26 27

28 29 30

11 = federal holiday

Date of Service of Award: October 12 + 30 Days (5 C.F.R. §§ 2425.2, 2429.21, 2429.22) = 

November 11 (Thursday/federal holiday – Veterans’ Day). But if the 30th day falls on a 

weekend or federal holiday, then November 12. (Id. § 2429.21(a)). If service by mail or 

commercial delivery, then + 5 days (Id. §§ 2425.2, 2429.22) = ( ). But if weekend or 

federal holiday, then _______________. (Id. §§ 2429.21(a), 2429.22(a)). 
18

Example #4

The Arbitrator serves his award on the parties by U.S. mail on November 19. The 

Union files exceptions on December 28. As set forth below, the exceptions are due on 

December 27. Accordingly, the exceptions are untimely filed.

November December

Su Mo Tu We Th Fr Sa

1 2 3 4 5 6

7 8 9 10 11 12 13

14 15 16 17 18 19 20

21 22 23 24 25 26 27

28 29 30

Su Mo Tu We Th Fr Sa

1 2 3 4

5 6 7 8 9 10 11

12 13 14 15 16 17 18

19 20 21 22 23 24 25

26 27 28 29 30 31

11 = federal holidays

Date of Service of Award: November 19 + 30 Days (5 C.F.R. §§ 2425.2, 2429.21, 2429.22) =

December 19 (Sunday). But if 30th day falls on a weekend or federal holiday, then 

December 20. (Id. § 2429.21(a)). If service by mail or commercial delivery, then + 5 days (Id.

§§ 2425.2, 2429.22) = December 25 (Saturday/federal holiday - Christmas). But if weekend 

or federal holiday, then the next business day, December 27. (Id. §§ 2429.21(a), 2429.22(a)). 
19

(e) Content of Exceptions

The Authority provides optional forms for filing exceptions, which can be found 

at www.FLRA.gov. Also, parties may file exceptions using the Authority’s eFiling

system.62 In addition to the previously discussed procedural requirements that an 

excepting party must meet, exceptions must contain certain information and 

documents.63 Specifically, exceptions must be dated (unless eFiled), self-contained 

documents that set forth in full:

 A statement of the grounds on which review is requested (the grounds are 

discussed later in this Guide);

 Arguments in support of the stated grounds, including specific references to the 

record, citations of authorities, and any other relevant documentation;

 Legible copies of any documents referenced in the arguments, with the exception 

of documents that are readily accessible to the Authority (such as Authority 

decisions, decisions of federal courts, and current provisions of the U.S. Code 

and the Code of Federal Regulations);

 A statement regarding whether you are requesting an expedited, abbreviated 

decision under § 2425.7 (which is described further below), and, if so, arguments 

in support of such request;

 A legible copy of the arbitrator’s award; and

 The arbitrator’s name, mailing address, and, if available and authorized for use 

by the arbitrator, the arbitrator’s e-mail address or facsimile number.

An excepting party generally may not raise issues before the Authority if the 

party could have raised those issues before the arbitrator but failed to do so.64 This 

includes any evidence, factual assertions, arguments (including affirmative defenses), 

requested remedies, or challenges to an awarded remedy if the party reasonably should 

have known to raise these matters before the arbitrator.65 Moreover, merely submitting 

evidence as part of the record at arbitration, without any explanation, is insufficient to 

 

62 5 C.F.R. § 2429.24(f)(10).

63 See id. § 2425.4.

64 E.g., Sheppard AFB, 65 FLRA at 139 n.4.

65 5 C.F.R. §§ 2425.4(c), 2429.5.
20

raise an argument before the arbitrator.66 In addition, an excepting party may not make 

an argument that is inconsistent with that party’s arguments before the arbitrator.67

Further, an excepting party’s failure to state a recognized ground for finding an 

arbitration award deficient, or to provide support for a claim that an additional ground 

should be recognized, may result in dismissal or denial of the exception.68 (As noted 

above, the recognized grounds for review are discussed later in this Guide.)

(f) Oppositions

Any party to arbitration may file an opposition to exceptions within 30 days after 

the date on which the excepting party serves its exceptions on the opposing party. For

additional rules regarding the filing date, see:

 5 C.F.R. § 2429.21 (if last day of filing period is a Saturday, Sunday, or federal 

legal holiday, then due date is the next day that is not a Saturday, Sunday, or 

federal legal holiday);

 Id. § 2429.22 (five additional days to file if exceptions served by mail or 

commercial delivery); and

 Id. § 2425.8 (time limit tolled if parties have agreed to use the Authority’s 

Collaboration and Alternative Dispute Resolution Program and time limit for 

filing opposition has not expired).

In addition to the optional forms for filing exceptions, the Authority provides 

optional forms for filing oppositions, which also can be found at www.FLRA.gov. Also, 

parties may file oppositions using the Authority’s eFiling system.69 An opposition 

should address any arguments in the exceptions that the opposing party is disputing. If 

an excepting party has raised a matter that it could have raised, but did not raise, before 

the arbitrator, then the opposing party should inform the Authority of that. In addition, 

an opposing party should provide copies of any documents on which the opposing 

party relies, unless those documents were already provided with the exceptions or are 

documents that are readily accessible to the Authority (such as Authority decisions, 

decisions of federal courts, and current provisions of the U.S. Code and the Code of 

Federal Regulations). Further, if the excepting party has requested an expedited, 

abbreviated decision under § 2425.7 (which is described further below), then the 

 

66 VA Boston, 68 FLRA at 117.

67 See 5 C.F.R. §§ 2425.4(c), 2429.5; see also VA Boston, 68 FLRA at 118; NTEU, Chapter 26, 66 FLRA 650, 652 

(2012).

68 5 C.F.R. § 2425.6(e); see, e.g., U.S. Dep’t of VA, Cent. Tex. Veterans Health Care Sys., Temple, Tex., 66 FLRA

71, 73 (2011).

69 5 C.F.R. § 2429.24(f)(11).
21

opposing party should state whether it supports or opposes such a decision and 

provide supporting arguments.70

(g) Requests for Expedited, Abbreviated Decisions

In arbitration cases that do not involve ULPs, the excepting party may request 

that the Authority provide an expedited, abbreviated decision.71 The Authority will 

consider various factors to determine whether to exercise its discretion to grant such a 

request, including, but not limited to: whether the opposing party objects to the request 

and the reasons for its objections; the complexity of the case; the potential for 

precedential value; and the similarity to other, fully detailed decisions involving the 

same or similar issue.72 Even absent a request by the excepting party, the Authority 

may issue expedited, abbreviated decisions in appropriate cases. For an example of an 

expedited, abbreviated decision see AFGE, Local 3781.

73

(h) Alternative-Dispute-Resolution Assistance

The Authority encourages the parties to consider informal resolution of their 

disputes, and parties may request assistance from the Authority’s Collaboration and 

Alternative Dispute Resolution Office (CADRO) to voluntarily attempt to resolve 

exceptions before or after an opposition is filed.74 CADRO offers no-cost intervention 

and dispute-resolution services to quickly, informally, and confidentially help parties 

assess the strengths and weaknesses of their case, explore possible solutions, and 

usually resolve the case in ways that minimize risk and increase opportunities for 

mutual success. If the time for filing an opposition has not expired at the time the 

parties agree to use CADRO services, the Authority will toll the time limit for filing an 

opposition until the CADRO process is completed. Parties may email the CADRO staff 

at CADRO@flra.gov or call (202) 218-7933 to request assistance or information.

(i) Methods of Clarifying the Record

In appropriate cases, the Authority may take various measures to clarify a record 

or a dispute, including directing the parties to provide specific documentary evidence 

(such as the record of the arbitration proceedings); directing the parties to respond to 

requests for further information; meeting with the parties, either in person or via 

telephone or other electronic communications systems; or directing the parties to 

provide oral argument.75

 

70 See id. § 2425.5.

71 Id. § 2425.7.

72 See, e.g., Nat’l INS Council, 69 FLRA at 550 (denying request for an expedited, abbreviated decision).

73 69 FLRA 518 (2016).

74 See 5 C.F.R. § 2425.8.

75 See id. § 2425.9.
22

2.3 Interlocutory Appeals

One area that generates a great deal of confusion among parties is determining 

whether an award is final, and when exceptions to an award are improperly before the 

Authority because they are “interlocutory.” In this connection, § 2429.11 of the 

Authority’s Regulations states, in pertinent part, that the Authority “ordinarily will not

consider interlocutory appeals,” which reflects the judicial policy of discouraging 

fragmentary appeals of the same case.76 Consistent with this policy, the Authority 

generally will not grant interlocutory review of arbitration awards.

77 Instead, with an 

exception discussed further below, the Authority generally will dismiss an interlocutory 

appeal (without prejudice to the parties’ ability to later file timely exceptions once the 

award becomes final).78

An exception is considered an interlocutory appeal when it is filed before the

arbitrator has issued a final award.79 An award is final, for purposes of filing 

exceptions, when it completely resolves all of the issues submitted to arbitration.80

Please note that a final award, for purposes of filing exceptions, should not be confused 

with an award that is final and binding on the parties. As discussed further below, an 

award becomes final and binding – and thus compliance is required – when: (1) the 

period for filing exceptions expires; (2) the Authority issues a decision resolving 

exceptions; or (3) exceptions are withdrawn.81

The mistaken belief that a final award is not yet final will not excuse a party’s 

failure to file timely exceptions.82 Additionally, an arbitrator’s characterization of an 

award does not, by itself, demonstrate whether or not the award is final.83

 

76 AFGE, Local 12, 61 FLRA 355, 357 (2005) (Local 12).

77 E.g., U.S. Dep’t of VA, W. N.Y. Healthcare Sys., Buffalo, N.Y., 61 FLRA 173, 175 (2005).

78 See, e.g., U.S. Dep’t of the Army, Letterkenny Army Depot, Chambersburg, Pa., 68 FLRA 640, 641 (2015) 

(Letterkenny).

79 E.g., id.

80 E.g., U.S. DOJ, Exec. Office for Immigration Review, 67 FLRA 131, 131 (2013) (Immigration Review);

U.S. Dep’t of the Treasury, IRS, Nat’l Distrib. Ctr., Bloomington, Ill., 64 FLRA 586, 589 (2010) (IRS).

81 E.g., U.S. Dep’t of the Treasury, U.S. Customs Serv., Nogales, Ariz., 48 FLRA 938, 940 (1993) (Customs).

82 See, e.g., AFGE, Council 243, 67 FLRA 96, 97 (2012) (where arbitrator rejected attorney-fee request in 

award and later clarified in email that he had done so, exceptions filed in response to email were 

untimely because period for filing exceptions to award had expired); AFGE, Local 12, 61 FLRA 628, 630 

(2006) (where award resolved all issues submitted to arbitration, and arbitrator later issued letter that 

denied reconsideration and did not modify award, time period for filing exceptions began with service of 

award, not letter); U.S. Dep’t of Commerce, Patent & Trademark Office, 24 FLRA 835, 835-36 (1986) (when 

arbitrator issued final award, and later modified award in a way that did not give rise to the deficiencies 

alleged in the exceptions, exceptions were untimely because they were not filed within the requisite time 

period after service of the first award).

83 See, e.g., Local 12, 61 FLRA at 357 (arbitrator’s statements indicating his intention to issue a “final” 

award regarding certain issues did not indicate that he intended the award to be a complete resolution of 

all issues presented); AFGE, Local 1760, 37 FLRA 1193, 1200 (1990) (although arbitrator characterized his 

award as an “[i]nterim [a]ward,” Authority found “it was clearly final”).
23

Where an arbitrator or the parties identify multiple issues, an arbitrator may 

bifurcate their resolution.84 The parties’ agreement to conduct a separate hearing on a 

threshold issue does not convert an arbitrator’s ruling on that threshold issue into a 

final award to which exceptions can be filed, unless that threshold issue is the only issue 

before the arbitrator.85 Thus, the Authority considers exceptions to an interim award to 

be interlocutory – even where an arbitrator has completely resolved a discrete legal 

question – if the award does not completely resolve all of the issues submitted to 

arbitration.86

An award that disposes of all submitted issues is final even if the arbitrator did 

not reach the merits of each issue.87 Thus, an arbitrator’s finding that a grievance is not 

arbitrable may be a final award for purposes of filing exceptions.88 Similarly, where the 

only issue submitted to arbitration is the question of arbitrability, exceptions to such an 

award are not interlocutory,

89 even if the parties contemplate further proceedings on the 

merits of the grievance before a different arbitrator.

90 However, an arbitrability ruling 

is not a final award, for purposes of filing exceptions, when issues regarding the merits

are still pending before the same arbitrator.

91

An award that postpones the determination of a submitted issue is not a final 

award.92 So where an arbitrator possesses remedial authority but has not made a final 

disposition as to a remedy, an award is not final, and exceptions to such an award are 

interlocutory.93 Further, where an arbitrator who has remedial authority declines to 

order a remedy, directing instead that the parties attempt to develop an appropriate 

remedy, the award is not a final award to which exceptions may be filed.94

For example, where an arbitrator did not make a final disposition as to a 

monetary remedy, but directed the parties to determine whether a monetary remedy 

 

84 See, e.g., U.S. DOJ, Fed. BOP, Fed. Med. Ctr., Carswell, Tex., 64 FLRA 566, 567 (2010) (Carswell); U.S. Dep’t 

of the Interior, Bureau of Reclamation, 59 FLRA 686, 687 (2004) (Reclamation).

85 E.g., Local 12, 61 FLRA at 357; U.S. Dep’t of HHS, Ctrs. for Medicare & Medicaid Servs., 57 FLRA 924, 926 

(2002) (HHS); Dep’t of the Army, Oakland Army Base, 16 FLRA 829, 830 (1984) (Army).

86 E.g., Carswell, 64 FLRA at 568; Local 12, 61 FLRA at 357; HHS, 57 FLRA at 926.

87 AFGE, Local 1242, Council of Prison Locals 33, 62 FLRA 477, 479 (2008).

88 Id.

89 E.g., U.S. Dep’t of the Navy, Norfolk Naval Shipyard, 63 FLRA 144, 144 n.* (2009); U.S. DOD, Def. Logistics 

Agency, Def. Distrib. Region W., Tinker Air Force Base, Okla., 53 FLRA 460, 462 n.1 (1997).

90 U.S. Dep’t of the Army, White Sands Missile Range, White Sands Missile Range N.M., 67 FLRA 619, 620 

(2014) (White Sands) (citing U.S. EPA, Region 2, 59 FLRA 520, 524 (2003)).

91 E.g., U.S. Dep’t of Transp., FAA, 62 FLRA 344, 347 (2008); Army, 16 FLRA at 830.

92 E.g., Immigration Review, 67 FLRA at 131 (citing AFGE, Local 12, 38 FLRA 1240, 1246 (1990); U.S. Dep’t of 

HHS, Navajo Area Indian Health Serv., 58 FLRA 356, 357 (2003) (Navajo Area)); U.S. DOL, Bureau of Labor 

Statistics, 65 FLRA 651, 653-54 (2011).

93 E.g., Letterkenny, 68 FLRA at 641; IRS, 64 FLRA at 589.

94 E.g., Navajo Area, 58 FLRA at 357; U.S. Dep’t of the Interior, Bureau of Indian Affairs, Wapato Irrigation 

Project, Wapato, Wash., 55 FLRA 1230, 1231-32 (2000) (Wapato); U.S. GPO, Wash., D.C., 53 FLRA 17, 18 

(1997); Navy Pub. Works Ctr., San Diego, Cal., 27 FLRA 407, 408 (1987); SSA, 21 FLRA 22, 23 (1986).
24

would be appropriate, the award was not final.95 In addition, where an arbitrator found 

that an agency violated a CBA and, without determining whether any employees were 

entitled to overtime, directed the parties to review the affected employees’ work 

schedules to make that determination, the award was not final.96 Similarly, an award 

was not final where the arbitrator found the record inadequate or insufficient to 

determine and effect an appropriate remedy.97 By contrast, an award was final where 

an arbitrator outlined a procedure by which he would hear testimony by representative 

employees regarding loss of pay, even though he had not yet ordered further 

proceedings to determine the amounts.98

Arbitrators often retain jurisdiction for a period of time to resolve questions or 

problems that might arise concerning their awards; this does not render their awards 

interlocutory or extend the time limit for filing exceptions.

99 Similarly, if an arbitrator 

orders a remedy and retains jurisdiction simply to assist the parties with the details of 

its implementation, then the award or exceptions are not interlocutory.100 Such an 

award is final for purposes of filing exceptions because, while the award may leave 

room for further disputes about compliance, it does not indicate that the arbitrator or 

parties contemplate the introduction of some new measure of damages.101 And an 

arbitrator’s retention of jurisdiction in order to resolve questions regarding attorney fees 

does not preclude a party from filing exceptions to an underlying award.102

Where a party asks an arbitrator to clarify his or her award, and the arbitrator 

responds by modifying the original award, the time limit for filing exceptions to the 

modified award begins upon service of that modified award on the excepting party.103 

However, the post-modification time limit for filing exceptions applies only to 

modifications of the award that give rise to the deficiencies alleged in the exceptions.104

 

95 E.g., U.S. Dep’t of the Treasury, Customs Serv., Tucson, Ariz., 58 FLRA 358, 359 (2002).

96 E.g., Phila. Naval Shipyard, 33 FLRA 868, 868-69 (1989).

97 E.g., IRS, 64 FLRA at 589-90; U.S. DOD, Army & Air Force Exch. Serv., 38 FLRA 587, 587-88 (1990).

98 U.S. DHS, U.S. Citizenship & Immigration Servs., 68 FLRA 1074, 1075, 1076 (2015) (Immigration Servs.).

99 Portsmouth Naval Shipyard, 15 FLRA 181, 182 (1984).

100 E.g., NTEU, Chapter 164, 67 FLRA 336, 337 (2014) (NTEU 164) (citing U.S. DHS, ICE, 66 FLRA 880, 883 

(2012)); Cong. Research Emps. Ass’n, IFPTE, Local 75, 64 FLRA 486, 489-90 (2010) (CREA); U.S. Dep’t of the 

Air Force, Kirtland Air Force Base, Air Force Materiel Command, Albuquerque, N.M., 62 FLRA 121, 123 (2007) 

(Kirtland) (award is final where arbitrator retained jurisdiction only to assist parties in computing amount 

of backpay or fringe benefits); OPM, 61 FLRA 358, 361 (2005) (award is final when it awards fees or 

damages, but leaves the amount of those damages to be determined); SSA, Balt., Md., 60 FLRA 32, 33 

(2004) (SSA) (award is final where arbitrator retains jurisdiction solely to assist parties in determining 

costs owed to the union); U.S. Dep’t of the Interior, Bureau of Indian Affairs, Wapato Irrigation Project, 

55 FLRA 152, 158 (1999) (award is final where arbitrator retains jurisdiction to assist parties in 

determining backpay and interest).

101 E.g., NTEU 164, 67 FLRA at 337; Local 75, 64 FLRA at 489-90; Kirtland, 62 FLRA at 123.

102 E.g., USDA, Rural Dev., Wash., D.C., 60 FLRA 527, 528 n.2 (2004).

103 E.g., U.S. DOL, Wash., D.C., 59 FLRA 131, 132 (2003).

104 E.g., U.S. Customs Serv., Region I, Boston, Mass., 15 FLRA 816, 817 (1984).
25

The Authority has recognized an exception to the policy against interlocutory 

appeals. Specifically, the Authority has found that extraordinary circumstances 

warrant consideration of an interlocutory appeal where the appeal presents a plausible 

jurisdictional defect, the resolution of which will advance the ultimate disposition of a 

case.105

A plausible jurisdictional defect means that, “as a matter of law,” the arbitrator 

did not have the power to issue the award.106 In this connection, generally, the 

jurisdictional issues considered on interlocutory appeal are those that arise pursuant to 

statute.107 For example, in U.S. DOL,

108 the Authority modified an award after 

considering an interlocutory appeal that claimed that the arbitrator lacked jurisdiction 

to resolve a classification matter, under 5 U.S.C. § 7121(c)(5). By contrast, in U.S.

Department of the Treasury, BEP, Western Currency Facility, Fort Worth, Texas,

109 the 

Authority dismissed an interlocutory appeal because the claimed jurisdictional defect 

arose solely from the parties’ agreement. Further, a claim that an arbitrator had a 

financial interest in presiding over a protracted merits hearing was not sufficient to 

raise a plausible jurisdictional defect.110

A claimed jurisdictional defect must be plausible; the “mere assertion” of a 

controlling jurisdictional issue by a party is not enough to demonstrate that 

consideration of an interlocutory appeal is warranted.111 Specifically, the exceptions 

must present a “credible claim” that the arbitrator lacked jurisdiction as a matter of 

law.112

Moreover, resolving the exceptions must “advance the ultimate disposition” of 

the case, which means that granting interlocutory review “would end the litigation.”113 

Where the favorable resolution of an excepting party’s interlocutory appeal would not 

resolve the parties’ dispute, interlocutory exceptions have been dismissed without 

consideration of the merits of those exceptions.

114

 

105 E.g., Carswell, 64 FLRA at 567.

106 Keyport, 69 FLRA at 293 (quoting U.S. Dep’t of the Air Force, Pope Air Force Base, N.C., 66 FLRA 848, 851 

(2012) (Pope AFB)); Immigration Review, 67 FLRA at 132 (citing Pope AFB, 66 FLRA at 851).

107 E.g., Keyport, 69 FLRA at 293 (§ 7121(d) bar to grievance).

108 63 FLRA 216, 217-18 (2009).

109 58 FLRA 745, 746 (2003).

110 Letterkenny, 68 FLRA at 641.

111 Wapato, 55 FLRA at 1232.

112 Immigration Review, 67 FLRA at 132 (citing Pope AFB, 66 FLRA at 851).

113 Keyport, 69 FLRA at 293 (citing U.S. DHS, U.S. Citizenship & Immigration Servs., 65 FLRA 723, 725 

(2011)).

114 E.g., Reclamation, 59 FLRA at 688.
26

Please note that, although parties may file interlocutory exceptions if these 

requirements are met, they are not required to do so.

115 Instead, they may wait until the 

arbitrator issues a final award before they file their exceptions.116

2.4 Grounds for Review

Section 7122(a) of the Statute provides, in pertinent part:

If upon review [of exceptions to an arbitration award] the Authority finds that 

the award is deficient –

(1) because it is contrary to any law, rule, or regulation; or

(2) on other grounds similar to those applied by [f]ederal courts in 

private[-]sector labor-management relations;

the Authority may take such action and make such recommendations concerning 

the award as it considers necessary, consistent with applicable laws, rules, or 

regulations.

In other words, the Authority will review awards to determine whether they are 

contrary to law, rule, or regulation, or whether they are deficient on other grounds 

similar to the grounds applied by federal courts in private-sector labor cases.

In addressing the grounds on which an arbitration award can be found deficient, 

it is important to recognize the context of the Authority’s review. Although Congress 

specifically provided for Authority review of arbitration awards, Congress also made 

clear that the scope of that review is very limited.117 Thus, the Authority gives 

arbitrators substantial deference and will set aside or modify their awards only when

excepting parties establish that the awards are deficient on one of the specific grounds 

set forth in § 7122(a) of the Statute. These grounds, which are also listed in 5 C.F.R. 

§ 2425.6, are discussed below.

Under § 2425.6, an exception is “subject to dismissal or denial if: . . . [t]he 

excepting party fails to raise and support” the grounds listed in § 2425.6(a)-(c), “or 

otherwise fails to demonstrate a legally recognized basis for setting aside the award.”118 

 

115 E.g., NTEU, Chapter 103, 66 FLRA 416, 417 (2011).

116 E.g., id.

117 See H.R. Rep. No. 95-1717, at 153 (1978) (conf. rep.), reprinted in 1978 U.S.C.C.A.N. 2860, 2887 

(Authority is authorized to review awards only “on very narrow grounds”).

118 5 C.F.R. § 2425.6(e)(1).
27

In accordance with § 2425.6, the Authority will not construe parties’ exceptions as 

raising grounds that the exceptions do not raise.119

The recognized grounds for review are discussed below.

2.5 Contrary to Law or Regulation

Under § 7122(a)(1) of the Statute, the Authority will find an award deficient if the 

excepting party demonstrates that the award is contrary to law or regulation.120 In 

reviewing questions of law raised by an excepting party, the Authority reviews the 

legal issue presented “de novo” – without deference to the arbitrator’s findings 

regarding the law – but with deference to the arbitrator’s underlying factual findings 

(unless those findings are shown to be “nonfacts,” as discussed further below).

121 As 

discussed earlier, an arbitrator in the federal sector generally may not ignore the 

application of law and regulation. In order to avoid having their awards found 

deficient, federal-sector arbitrators frequently must consider provisions of law and 

regulation that govern the matter in dispute and ensure that their awards are consistent 

with those provisions.122

Please note that when an arbitrator has interpreted a CBA, rather than a law, he 

or she is not required to apply standards that apply to the interpretation of the law.123 

In that situation, the Authority will deny exceptions arguing that the arbitrator 

misapplied such standards.124 However, there is an exception to this principle where 

the CBA provisions at issue “mirror,” or are intended to be interpreted in the same 

manner as, the Statute.

125 In that circumstance, when the Authority reviews exceptions 

to the arbitrator’s award, the Authority applies the standards that apply to the 

interpretation of the Statute.126 And if the excepting party demonstrates that the award 

is contrary to those standards, then the Authority sets aside the award.127

 

119 E.g., AFGE, Local 3955, Council of Prison Locals 33, 65 FLRA 887, 889 (2011) (Member Beck dissenting in 

part).

120 E.g., U.S. Dep’t of the Air Force, Air Force Materiel Command, Eglin Air Force Base, Fla., 65 FLRA 908, 

909-10 (2011) (Eglin AFB).

121 E.g., AFGE, Local 1164, 66 FLRA 74, 77-78 (2011).

122 See, e.g., U.S. Dep’t of the Treasury, IRS, 65 FLRA 369, 371-72 (2010) (Treasury, IRS) (award contrary to 

grade- and pay-retention regulations); see also U.S. Dep’t of the Air Force, Air Force Materiel Command, 

Wright-Patterson Air Force Base, Ohio, 67 FLRA 382, 382-83 (2014) (award contrary to Federal Travel 

Regulation).

123 E.g., AFGE, Local 3448, 67 FLRA 73, 75 (2012).

124 See, e.g., Eglin AFB, 65 FLRA at 909-10.

125 E.g., U.S. DOJ, Fed. BOP, Fed. Corr. Complex, Lompoc, Cal., 66 FLRA 978, 980 (2012) (FCC Lompoc). 

Cf. AFGE, Local 2152, 69 FLRA 149, 151 (2015) (Local 2152) (while arbitrators are required to apply 

statutory standards when resolving an alleged ULP, they need not do so if they are interpreting a CBA 

provision that does not “mirror” the Statute).

126 FCC Lompoc, 66 FLRA at 981.

127 E.g., id. Cf. AFGE, Local 3974, 67 FLRA 306, 308-10 (2014) (remanding award where it was unclear, 

among other things, whether arbitrator resolved contractual or statutory bargaining issues).
28

(a) Grievance Precluded by Law

As discussed earlier, all matters covered by the broad statutory definition of 

“grievance” are within the coverage of a NGP, except for matters that are excluded by

the parties’ CBA or by law. Four different categories of legal exclusions from the NGP

are discussed here.

 Category 1 – Matters Excluded Under § 7121(c) of the Statute

Section 7121(c) of the Statute lists several types of matters that may not be raised 

under NGPs.

First, § 7121(c)(1) provides that NGPs may not cover grievances concerning 

claimed violations of 5 U.S.C. §§ 7321-7326 – commonly referred to as the “Hatch Act.”

Second, § 7121(c)(2) provides that NGPs may not cover grievances concerning 

retirement, life insurance, or health insurance.128 For example, the Authority has found

that NGPs may not cover grievances involving sick-leave “buy back” available to 

employees only upon retirement129 and involving creditable hours and retirement

eligibility.

130 However, the Authority has found that NGPs may cover grievances

involving voluntary-separation-incentive pay131 and involving an employee’s status as 

an intermittent, rather than a part-time, employee.132

Third, § 7121(c)(3) provides that NGPs may not cover grievances concerning 

suspensions or removals relating to national-security matters under 5 U.S.C. § 7532.

133

Fourth, § 7121(c)(4) provides that NGPs may not cover grievances concerning 

any examination, certification, or appointment. The Authority has defined: 

(1) “examination” as the process by which an applicant’s qualification for employment 

is determined before the applicant is considered as a candidate for appointment;

134

(2) “certification” as the process by which the Office of Personnel Management submits 

certificates of a list of eligibles from a register to appointing officials so that the eligibles 

may be considered for appointment;

135 and (3) “appointment” as referring to the action 

that takes place at the time an individual is initially hired into federal service.136 Thus, 

these three terms apply to matters regarding an individual’s initial entry into federal 

 

128 E.g., MSPB Prof’l Ass’n, 61 FLRA 650, 652 (2006) (MSPBPA).

129 U.S. Dep’t of Transp., FAA, 59 FLRA 579, 581 (2004) (then-Member Pope dissenting).

130 NATCA, MEBA, AFL-CIO, 51 FLRA 204, 208 (1995).

131 E.g., MSPBPA, 61 FLRA at 652.

132 E.g., Prof’l Airways Sys. Specialists, 57 FLRA 415, 416-17 (2001).

133 E.g., AFGE, Local 1013, 60 FLRA 712, 714 n.3 (2005). 

134 E.g., NFFE, Local 1636, 48 FLRA 511, 514 (1993).

135 E.g., id.

136 E.g., NFFE, Local 2010, 55 FLRA 533, 534 (1999).
29

service – not matters regarding an agency’s hiring (or not hiring) of an individual who 

already is a federal employee.

137

Finally, § 7121(c)(5) provides that NGPs may not cover grievances concerning the 

classification of any position that does not result in the reduction in grade or pay of an 

employee. The Authority has held that where the essential nature of a grievance 

concerns the grade level of the duties assigned to and performed by a grievant in his or 

her permanent position, the grievance concerns the classification of a position within 

the meaning of § 7121(c)(5).

138 In addition, a grievance concerns classification if it 

contends that the grievant’s permanent position warrants a change in its journeyman 

level or promotion potential.139

In contrast, the Authority has found that grievances or arbitration awards did not

involve classification under § 7121(c)(5) where they concerned, for example: allegations 

of a right to be placed in a previously classified position;

140 allegations that an agency 

failed to promote a grievant under a competitive procedure;

141 arbitrators’ 

determinations that grievants were entitled to career-ladder, temporary, or other 

noncompetitive promotions based on previously classified duties;

142 challenges to 

delays in receiving career-ladder promotions;

143 challenges to how employees advance 

within established career ladders;

144 the duty to bargain over the impact and 

implementation of the reclassification of positions;

145 the accuracy of a job 

description;

146 and arguments regarding the pay step that an employee should have 

received upon promotion.

147

Please note, however, that even if a grievance does not involve classification, an 

award will be found contrary to § 7121(c)(5) if an arbitrator awards reclassification as a 

remedy.148

 

137 E.g., U.S. Dep’t of VA, James N. Quillen VA Med. Ctr., Mountain Home, Tenn., 69 FLRA 144, 145 (2015).

138 E.g., U.S. Dep’t of the Navy, Marine Corps Combat Dev. Command, Marine Corps Base, Quantico, Va.,

67 FLRA 542, 544 (2014) (Marine Corps).

139 E.g., U.S. Dep’t of the Army, Womack Army Med. Ctr., Fort Bragg, N.C., 65 FLRA 1017, 1020 (2011) 

(Womack).

140 E.g., id.

141 E.g., id.

142 E.g., id.; see also U.S. Dep’t of VA, Med. Ctr., Richmond, Va., 69 FLRA 427, 428-29 (2016) (award involving 

temporary promotion). 

143 E.g., Womack, 65 FLRA at 1020.

144 E.g., U.S. DOJ, U.S. Marshals Serv., 66 FLRA 531, 535 (2012).

145 Marine Corps, 67 FLRA at 544.

146 AFGE, Local 953, 68 FLRA 644, 647 (2015) (Local 953).

147 E.g., U.S. Dep’t of VA, Reg’l Office, Winston-Salem, N.C., 66 FLRA 34, 39 (2011) (VA Winston-Salem).

148 E.g., U.S. Dep’t of HUD, 65 FLRA 433, 435-36 (2011).
30

 Category 2 – Certain Negotiability Issues

A negotiability issue under § 7117 of the Statute raises the question of whether a 

matter is nonnegotiable because it conflicts with any federal law, government-wide 

regulation, or agency regulation for which there is a compelling need. Parties may not 

use NGPs to resolve negotiability issues that the Authority has not previously ruled on; 

§ 7105(a)(2)(E) of the Statute provides that only the Authority may resolve those issues. 

Thus, unless the Authority already has resolved the negotiability issue that is raised 

before the arbitrator, the arbitrator may not resolve it, either in the guise of a grievance 

or in the resolution of a bargaining impasse.149 However, where a grievance involves a 

ULP, and resolving that ULP requires a negotiability determination, the arbitrator may 

make that determination.150

For more information regarding negotiability, please see the Authority’s Guide to 

Negotiability Under the Statute.

 Category 3 – Questions Regarding Bargaining-Unit Status

Arbitrators may not resolve questions concerning whether employees are 

included in a bargaining unit.151 As a consequence, whenever a question has been 

raised regarding a grievant’s bargaining-unit status, an arbitrator may not address the 

merits of the grievance. In that situation, parties can place the grievance in abeyance 

pending the resolution of the employee’s unit status.152 However, the Authority has 

advised that there is no unit-status question when the Authority has already 

determined that the grievant or the grievant’s position is in the unit and when, in 

making that determination, the Authority rejected the basis on which the agency 

contests the grievability of the grievance.153 In these circumstances, an arbitrator may 

not resolve the grievance.

 Category 4 - Legal Authorities Outside the Statute

Legal authorities outside the Statute sometimes preclude NGPs from covering 

certain grievances.154 Moreover, based on the U.S. Supreme Court’s (Supreme Court’s) 

 

149 E.g., AFGE, AFL-CIO, Dep’t of Educ. Council of AFGE Locals, 42 FLRA 1351, 1353-55 (1991).

150 E.g., NTEU, 61 FLRA 729, 732-33 (2006).

151 E.g., U.S. Small Bus. Admin., 32 FLRA 847, 852 (1988) (SBA), recons. granted as to other matters, 36 FLRA 

155, 161 (1990); U.S. Dep’t of VA, Med. Ctr., Coatesville, Pa., 56 FLRA 966, 969 (2000) (VA Coatesville).

152 E.g., VA Coatesville, 56 FLRA at 969.

153 E.g., SBA, 32 FLRA at 854.

154 See, e.g., AFGE, Local 1513, 52 FLRA 717, 721 (1996) (CBAs may not contain provisions that would 

subject disputes over compliance with Office of Management and Budget Circular A-76 to the NGP); 

AFGE, Local 2250, 51 FLRA 52, 54 (1995) (under 5 U.S.C. § 5366, termination of employee’s grade- and 

pay-retention benefits is not grievable under NGP).
31

decision in Department of the Navy v. Egan (Egan),155 arbitrators may not review the 

merits of agencies’ security-clearance determinations. However, the Authority has held 

that Egan does not prohibit grievances that raise issues that do require a review of the 

security-clearance determinations.

156

In addition to cases involving whether a grievance is precluded by law, the 

Authority resolves exceptions alleging that an arbitrator’s resolution of a grievance on 

the merits is contrary to law. Some examples of the legal issues that the Authority 

addresses are discussed below.

(b) Monetary Remedies – Sovereign Immunity and Other Limitations

Arbitrators in the federal sector are more constrained than arbitrators in the 

private sector with regard to their ability to award monetary remedies. In this 

connection, under the doctrine of “sovereign immunity,” there is no right to 

non-equitable monetary remedies against a U.S. government agency unless Congress 

has waived sovereign immunity in a statute.157 Further, the federal government may 

not pay non-equitable monetary remedies that exceed statutory and regulatory 

entitlements, even if they agree to do so in a CBA.158 And any federal agency’s 

disbursement of appropriated funds must be authorized by statute.159

The Statute is not a waiver of sovereign immunity for monetary remedies.

160 

Thus, in order for an arbitrator to award non-equitable monetary remedies, he or she 

must have some basis in law for doing so.161 A frequently used basis is the Back Pay 

Act.

162 Please note that the U.S. Court of Appeals for the District of Columbia Circuit

(D.C. Circuit) has held, however, that routine statutory and regulatory questions 

regarding the Back Pay Act’s application do not raise sovereign-immunity issues.163

(c) The Back Pay Act

The Back Pay Act (BPA)164 provides for the recovery of backpay (with interest)

and attorney fees. These types of remedies are discussed separately below.

 

155 484 U.S. 518, 526-34 (1988).

156 E.g., U.S. Nuclear Regulatory Comm’n, 65 FLRA 79, 83 (2010).

157 E.g., U.S. Dep’t of Transp., FAA, Detroit, Mich., 64 FLRA 325, 328 (2009) (FAA Detroit).

158 E.g., U.S. DHS, CBP, 67 FLRA 107, 109-110 (2013) (DHS CBP).

159 E.g., U.S. Dep’t of HHS, Wash., D.C., 68 FLRA 239, 241 (2015).

160 E.g., FAA Detroit, 64 FLRA at 329.

161 E.g., U.S. DOJ, Fed. BOP, Metro. Det. Ctr., Guaynabo, P.R., 68 FLRA 960, 963 (2015) (citing U.S. Dep’t of 

the Air Force, Minot Air Force Base, N.D., 61 FLRA 366, 370 (2005)); DHS CBP, 67 FLRA at 110.

162 See 5 U.S.C. § 7122(b) (citing 5 U.S.C. § 5596).

163 U.S. DHS, U.S. CBP, Scobey, Mont. v. FLRA, 784 F.3d 821, 823 (D.C. Cir. 2015) (Scobey); see also U.S. DHS, 

U.S. CBP, 68 FLRA 807, 809 (2015).

164 5 U.S.C. § 5596
32

(d) Backpay with Interest

Under the BPA, an arbitrator may award backpay when he or she finds: (1) an 

unjustified or unwarranted personnel action; and (2) that action directly resulted in the 

withdrawal of “pay, allowances, or differentials.”165

A violation of an applicable law, rule, regulation, or CBA provision is an 

unjustified or unwarranted personnel action.166 This includes “governing” agency 

regulations.167 As discussed further below, agency regulations “govern” only when 

they do not conflict with provisions of an applicable CBA.168

As for whether the unjustified or unwarranted personnel action directly resulted 

in the withdrawal of “pay, allowances, or differentials,”169 the quoted term is defined as 

“pay, leave, and other monetary employment benefits to which an employee is entitled 

by statute or regulation.”170 Any loss that does not meet this definition may not provide 

the basis for an award of backpay.171 In this regard, where there is no statute or 

regulation permitting the backpay remedy, the Authority has set aside the remedy.172 

And where there was no finding that an employee’s compensation actually decreased, 

the Authority has found that backpay was not permitted.173

In addition, the arbitrator must find that the unjustified or unwarranted 

personnel action “directly resulted” in the reduction or withdrawal of those pay, 

allowances, or differentials – in other words, that but for the unjustified or unwarranted 

personnel action, the affected employee would not have suffered a reduction or 

withdrawal of pay, allowances, or differentials.174

 

165 E.g., FAA Detroit, 64 FLRA at 329.

166 E.g., AFGE, Local 1592, 64 FLRA 861, 861-62 (2010).

167 E.g., U.S. Dep’t of Transp., FAA, 64 FLRA 513, 515 (2010) (FAA); see also U.S. DHS, U.S. CBP, 69 FLRA 19, 

21 (2015) (setting aside award of backpay where there was no finding of an unjustified or unwarranted 

personnel action); U.S. DOJ, Fed. BOP, Fed. Corr. Complex, Pollock, La., 68 FLRA 151, 152 (2014) 

(Member DuBester dissenting), recons. denied 68 FLRA 716 (2015) (FCC Pollock) (same); U.S. Dep’t of the Air 

Force, Grissom Air Reserve Base, Miami, Ind., 67 FLRA 342, 343 (2014) (Member Pizzella concurring) (same).

168 E.g., EOIR, 65 FLRA at 660 (Member Beck concurring).

169 5 U.S.C. § 5596.

170 5 C.F.R. § 550.803; see also AFGE, Local 342, 69 FLRA 278, 279 (2016) (Member DuBester concurring);

U.S. DHS, CBP, 67 FLRA at 110.

171 E.g., FAA Detroit, 64 FLRA at 329.

172 DHS CBP, 67 FLRA at 110 (citing U.S. Dep’t of HHS, Gallup Indian Med. Ctr., Navajo Area Indian Health 

Serv., 60 FLRA 202, 212 (2004); FAA Detroit, 64 FLRA at 329; U.S. Dep’t of Transp., FAA, Salt Lake City, Utah, 

63 FLRA 673, 676 (2009)).

173 E.g., Immigration Servs., 68 FLRA at 1077.

174 E.g., AFGE, Council of Prison Locals, Local 4052, 68 FLRA 38, 43-44 (2014) (Local 4052); U.S. Dep’t of 

Transp., FAA, 64 FLRA 922, 923 (2010).
33

When an arbitrator finds that these requirements are met, the arbitrator must 

award backpay; a failure to do so is contrary to the BPA.175

One common example of a backpay remedy is a monetary remedy for a missed 

overtime opportunity. In this regard, if an agency improperly (for example, in violation 

of a CBA) denies an employee the opportunity to work overtime, the employee may 

recover backpay – despite the fact that he or she did not actually work the overtime.176

Further, the Authority has addressed the meaning of § 5596(b)(4) of the BPA, 

which provides:

The pay, allowances, or differentials granted under this section for the 

period for which an unjustified or unwarranted personnel action was in 

effect shall not exceed that authorized by the applicable law, rule, 

regulations, or [CBA] under which the unjustified or unwarranted 

personnel action is found, except that in no case may pay, allowances, or 

differentials be granted under this section for a period beginning more 

than 6 years before the date of the filing of a timely appeal or, absent such 

filing, the date of the administrative determination.177

The Authority has held that the purpose of § 5596(b)(4) is to place an outermost 

time limit on backpay awards, while allowing for a shorter limitations period when 

authorized by the applicable law, rule, regulation, or agreement under which the 

unjustified or unwarranted personnel action is found.178 In other words, § 5596(b)(4) 

establishes the earliest date from which an award of backpay may accrue.179

Finally, under the BPA, “interest must be paid” on backpay awards.180 

Therefore, if an arbitrator awards backpay but fails to award interest, and a party 

excepts to that failure, the Authority will modify the arbitrator’s award to provide for 

interest.181

 

175 E.g., NTEU 164, 67 FLRA at 338 (citing NTEU, Chapter 231, 66 FLRA 1024, 1026-27 (2012); U.S. Dep’t of 

the Navy, Puget Sound Naval Shipyard & Intermediate Maint. Facility, Bremerton, Wash., 62 FLRA 4, 7-8

(2007)).

176 E.g., AFGE, Local 1034, 68 FLRA 718, 720 (2015) (citing U.S. Dep’t of the Treasury, IRS, St. Louis, Mo., 

67 FLRA 101, 105 (2012)).

177 5 U.S.C. § 5596(b)(4).

178 NTEU 164, 67 FLRA at 338 (citing NTEU, Chapter 231, 67 FLRA 247, 250 (2014)); see also U.S. DHS, 

U.S. CBP, Savannah, Ga., 68 FLRA 324, 327 (2015) (DHS Savannah); U.S. DHS, U.S. CBP, Brownsville, Tex., 

67 FLRA 688, 692 (2014).

179 E.g., NFFE, Local 1968, 67 FLRA 384, 385 (2014) (citing U.S. DHS, U.S. CBP, 65 FLRA 978, 985 (2011)).

180 AFGE, Council of Prison Locals, Local 405, 67 FLRA 395, 398 (2015) (Local 405) (citing NATCA, 64 FLRA 

906, 907 (2010)); see also 5 U.S.C. § 5596(b)(2)(A).

181 Local 405, 67 FLRA at 398.
34

(e) Attorney Fees

Parties to federal-sector arbitration proceedings often rely on the BPA to request 

attorney fees, although various statutes – such as the Fair Labor Standards Act

(FLSA),

182 and the Privacy Act,183 – also allow arbitrators to award fees. As discussed 

below, the BPA independently authorizes arbitrators to award such fees under certain 

conditions. Consequently, the parties’ CBA need not independently authorize an 

arbitrator to award fees, and the Authority has set aside awards requiring such CBA 

authorization.184

An arbitrator may award attorney fees after he or she issues an award on the 

merits.185 In this regard, parties may negotiate time limits to govern the filing of fee 

requests.186 Absent such an agreement, a fee request may be filed either during the 

arbitration hearing or within a “reasonable time” after the backpay award becomes final 

and binding.187

But an arbitrator alternatively may choose to award attorney fees in the merits 

award, so long as: (1) the grievant or the grievant’s representative has requested fees 

from the arbitrator; and (2) the employing agency has had an opportunity to respond to 

that request.188 In this connection, 5 C.F.R. § 550.807 sets forth procedures that parties 

and arbitrators must follow before fees may be granted189 – specifically, that a grieving 

party must present a fee request to the arbitrator, and the employing agency must have 

an opportunity to respond.190 Failure to follow these procedures will render the fee 

award deficient.

191 For example, if an arbitrator denies fees in the absence of a fee 

request, and a party files an appropriate exception, the Authority will modify the 

arbitrator’s award to strike the denial of fees, without prejudice to the union’s right to 

file a fee request.

192

 

182 29 U.S.C. § 216(b).

183 5 U.S.C. § 552a(g)(4).

184 E.g., AFGE, Local 2145, 67 FLRA 438, 439 (2014) (citing U.S. Dep’t of the Army, Red River Army Depot, 

Texarkana, Tex., 39 FLRA 1215, 1223 (1991) (Texarkana)); NAGE, Local R14-52, 45 FLRA 830, 833 (1992).

185 E.g., Womack, 65 FLRA at 1021.

186 E.g., NTEU, Chapter 67, 67 FLRA 630, 631 (2014) (citing AFGE, Local 1148, 65 FLRA 402, 403 (2010) 

(Local 1148)).

187 E.g., AFGE, Local 44, Nat’l Joint Council of Food Inspection Locals, 67 FLRA 721, 722 (2014) (Local 44) 

(citing Phila. Naval Shipyard, 32 FLRA 417, 421 (1988); U.S. DOJ, Fed. BOP, Wash., D.C., 64 FLRA 1148, 

1152) (2010)).

188 See, e.g., Fraternal Order of Police, Pentagon Police Labor Comm., 65 FLRA 781, 784 (2011) (Pentagon).

189 5 C.F.R. § 550.807.

190 E.g., Local 405, 67 FLRA at 399.

191 E.g., AFGE, Local 2002, 69 FLRA 425, 426 (2016).

192 E.g., id.; AFGE, Local 2145, 67 FLRA at 439; Local 405, 67 FLRA at 399.
35

In order to award attorney fees, the arbitrator must award backpay under the 

BPA requirements discussed above.

193 Also, the fee award must be reasonable and 

related to the personnel action. The Authority has found that fees are “related to” the 

personnel action even where the attorney’s time has been spent litigating entitlement to 

non-monetary remedies, as long as those non-monetary remedies are linked to an 

award of backpay that corrects an unjustified or unwarranted personnel action.194

Further, the arbitrator must resolve the request for fees in accordance with the 

standards established under 5 U.S.C. § 7701(g), which pertains to MSPB awards of 

attorney fees. In resolving whether an award is consistent with those standards, the 

Authority considers decisions of the MSPB and the federal courts, particularly the 

Federal Circuit.

195

In resolving a request for fees, arbitrators must set forth specific findings 

supporting their determination on each pertinent statutory requirement.196 When a 

party files exceptions with the Authority, and the arbitrator has not sufficiently 

explained the determinations – whether the arbitrator has granted or denied fees – the

Authority will examine the record to determine whether it permits the Authority to 

resolve whether the award is deficient.197 If so, then the Authority will modify the 

award or deny the exception, as appropriate.198 If not, then the Authority will remand 

the award for further proceedings.199

Section 7701(g) provides that, for an employee to be eligible for an award of 

attorney fees, the employee must be the “prevailing party,” which means, generally,

that the grievant must have obtained an enforceable judgment that benefited him or her 

at the time of the judgment.200 For example, an employee who has received a mitigated 

penalty is considered to be a prevailing party.201 But where an agency has revoked an 

employee’s suspension before an arbitration hearing, the Authority has held that the 

employee was not a prevailing party at arbitration.202 Nevertheless, a prevailing-party

 

193 See, e.g., AFGE, Local 1156, 68 FLRA 531, 533 (2015) (because arbitrator had not awarded backpay, 

Authority denied union exception to arbitrator’s failure to award fees).

194 E.g., U.S. DHS, U.S. CBP, 66 FLRA 556, 558 (2012).

195 E.g., U.S. Dep’t of VA, Med. Ctr., Detroit, Mich., 64 FLRA 794, 796 (2010).

196 E.g., U.S. Dep’t of the Navy, Commander, Navy Region Haw., Fed. Fire Dep’t, Naval Station Pearl Harbor, 

Honolulu, Haw., 64 FLRA 925, 928 (2010) (Navy Region Haw.).

197 E.g., U.S. DHS, U.S. CBP, 69 FLRA 412, 415 (2016); AFGE, Local 3690, 69 FLRA 154, 155 (2015); Int’l Bhd. 

of Elec. Workers, Local 2219, 68 FLRA 448, 451 (2015) (Local 2219); Local 44, 67 FLRA at 722; Navy Region 

Haw., 64 FLRA at 928.

198 E.g., Navy Region Haw., 64 FLRA at 928.

199 E.g., id.

200 E.g., AFGE, Local 2145, 68 FLRA 120, 122 (2014) (citing AFGE, Local 987, 64 FLRA 884, 887 (2010) 

(Local 987)); NFFE, Local 405, 67 FLRA 352, 353 (2014); AFGE, Local 1592, 65 FLRA 921, 922 (2011).

201 E.g., NFFE, Local 405, 67 FLRA at 353 (citing NAGE, Local R5-66, 65 FLRA 452, 454 (2011)).

202 E.g., AFGE, Local 2145, 68 FLRA at 122 (citing U.S. Dep’t of State, 59 FLRA 129, 130 (2003)).
36

determination does not entail assessing the degree of the grievant’s success in 

arbitration.203

Section 7701(g)(2) governs the award of attorney fees in 

employment-discrimination cases and provides for the award of fees in accordance with

42 U.S.C. § 2000e-5(k). Section 7701(g)(2) applies to cases of discrimination on the basis 

of race, color, religion, sex, national origin, age, or handicapping condition, as well as in 

cases of reprisal for the exercise of rights under Title VII of the Civil Rights Act of 

1964.

204 Where a grievant prevails in a grievance involving one of these grounds, the

grievant is normally entitled to an award of attorney fees; thus, an arbitrator merely 

needs to find a violation on one of these grounds, and further discussion of fees is 

necessary only when the arbitrator determines that “special circumstances” within the 

meaning of § 2000e-5(k) would render an award of fees unjust.205

In non-employment-discrimination cases, § 7701(g)(1) governs requests for fees. 

Section 7701(g)(1) requires that: (1) the employee incurred the fees; (2) an award of fees 

is warranted in the interest of justice; and (3) the amount of fees awarded is reasonable. 

These requirements are discussed separately below.

 Fees Incurred

Attorney fees are incurred when an attorney-client relationship exists and the 

attorney has rendered legal services on behalf of the grievant.206 In many arbitration 

proceedings, the union provides the attorney who represents the grievant. Such an 

arrangement satisfies the necessary attorney-client relationship and the requirement 

that the grievant incur the fees, even though the union actually incurs the fees and the 

attorney represents the grievant on behalf of the union.207

 Fees in the Interest of Justice

In addressing the requirement that fees be warranted in the interest of justice, 

parties and arbitrators should consider the MSPB’s decision in Allen v. U.S. Postal Service

(Allen),208 and decisions applying the criteria set forth in Allen, which are discussed 

 

203 See, e.g., Local 987, 64 FLRA at 887 (“[A]n employee who receives a mitigated penalty is considered to 

have received significant relief and is, therefore, a prevailing party.”).

204 E.g., FDIC, Chi. Region, 45 FLRA 437, 453-55 (1992).

205 E.g., id. at 455-56.

206 E.g., Ala. Ass’n of Civilian Technicians, 56 FLRA 231, 233 (2000) (Chairman Wasserman dissenting as to 

other matters).

207 E.g., id.

208 2 M.S.P.R. 420 (1980).
37

further below.209 In addition to the five Allen criteria, the Authority – citing MSPB 

precedent – has stated that an award of attorney fees is warranted in the interest of 

justice when there is either a service rendered to the federal workforce or there is a 

benefit to the public derived from maintaining the action.210

Most requests for attorney fees in arbitration involve the Allen factors. In Allen, 

the MSPB identified five broad categories of cases in which an award of fees would be 

in the interest of justice. These categories are not exhaustive, but merely illustrative.211

Allen category 1 pertains to cases where the agency engaged in a prohibited 

personnel practice under 5 U.S.C. § 2302.

212 As discussed previously, such prohibited 

practices include, for example, disciplinary action based on retaliation for an 

employee’s previous filing of a grievance, an appeal of an adverse action to the MSPB, 

or a complaint with the EEOC.213 The existence of a prohibited personnel action is 

distinct from, and in addition to, the requirement that a fee request occur in response to 

an unjustified or unwarranted personnel action, as discussed above. In other words, the 

existence of an unjustified or unwarranted personnel action, by itself, does not 

necessarily show that a prohibited personnel practice occurred.

214

Allen category 2 pertains to cases where the agency engaged in action that was 

clearly without merit or was wholly unfounded, or the employee was substantially 

innocent of the charges brought by the agency.215 This category actually involves two 

distinct issues that are assessed independently: (1) whether the agency’s action was 

clearly without merit or wholly unfounded; and (2) whether the employee is 

substantially innocent of the charges brought by the agency.216

The inquiry into whether the agency’s action is clearly without merit or wholly 

unfounded under Allen category 2 involves an assessment of competing interests, 

specifically the degree of fault on the employee’s part and the existence of any 

reasonable basis for the agency’s actions.217 Thus, an arbitrator must evaluate the extent 

to which he or she found, in the merits award, that: (1) the employee prevailed; or 

(2) the agency’s action was without merit. The Authority has found this factor satisfied 

when an agency presents little or no evidence to support its actions, or where the 

 

209 But see NAIL, Local 5, 69 FLRA 573, 577 (2016) (stating that the Authority may, in an appropriate case, 

reconsider its nearly exclusive reliance on the Allen factors and “fashion interest-of-justice guidelines that 

are better adapted to the collective-bargaining context”).

210 Naval Air Dev. Ctr., Dep’t of the Navy, 21 FLRA 131, 139 (1986) (citing Wells v. Harris, 2 M.S.P.R. 420, 

434-35 (1980)); see also Local 1148, 65 FLRA at 404 n.* (citing Texarkana, 39 FLRA at 1223).

211 Allen, 2 M.S.P.R. at 435.

212 Id.

213 See 5 U.S.C. § 2302(b)(9).

214 E.g., U.S. DHS, U.S. CBP, 69 FLRA at 415.

215 Allen, 2 M.S.P.R. at 434. 

216 E.g., Navy Region Haw., 64 FLRA at 929.

217 E.g., NTEU, Chapter 32, 68 FLRA 690, 691 (2015) (citing Navy Region Haw., 64 FLRA at 929).
38

agency charge is based on incredible or unspecific evidence that the grievant/appellant 

fully countered.218

The “substantial-innocence” standard under Allen category 2 is met when the 

employee is without fault and was needlessly subjected to attorney fees to vindicate 

himself or herself.219 Even where the employee is not fully exonerated, the employee is 

“substantially innocent” when the arbitrator concludes that the employee is innocent of 

the primary or major charges or of the more important and greater part of the 

charges.220 In this regard, the arbitrator must objectively assess the success of the 

employee’s challenge to the agency’s disciplinary action.221 When the employee 

prevails on substantive rather than technical grounds on the major charges, he or she is 

substantially innocent as a matter of law unless the employee deliberately withheld 

exculpating information during the investigation.222

Allen category 3 pertains to cases where the agency initiated the action against 

the employee in bad faith (including situations where the agency brought the action to 

harass the employee or to exert improper pressure on the employee to act in certain 

ways).

223

Allen category 4 pertains to cases where the agency committed a gross 

procedural error that prolonged the proceeding or severely prejudiced the employee.224 

The Authority has noted that the MSPB has found a gross procedural error when an 

agency, while conducting a reduction in force (RIF): failed to give an employee the 

required specific RIF notice; did not establish required competitive areas, competitive 

levels, and retention lists; did not consider or honor the employee’s “bump-and-retreat”

rights; and did not accord him priority placement required for preference-eligible 

employees.225

Allen category 5 pertains to cases where the agency knew or should have known 

that it would not prevail on the merits when it brought the action.226 Making this

determination requires the arbitrator to evaluate the reasonableness of the agency’s 

actions and positions in light of the information available to the agency at the time of 

the disputed action.227 An arbitrator’s assessment of whether the agency knew or 

 

218 E.g., id. (citing Navy Region Haw., 64 FLRA at 929).

219 E.g., AFGE, Local 1061, 63 FLRA 317, 319 (2009) (Local 1061).

220 E.g., id.

221 E.g., id.

222 E.g., AFGE, Local 3105, 63 FLRA 128, 130-31 (2009).

223 E.g., Pentagon, 65 FLRA at 781.

224 Allen, 2 M.S.P.R. at 435.

225 E.g., AFGE, Council 220, 61 FLRA 582, 586 (2006) (citing Thomas v. U.S. Postal Serv., 77 M.S.P.R. 502

(1998)).

226 E.g., U.S. Dep’t of the Army, Med. Activity (MEDDAC), Fort Drum, N.Y., 65 FLRA 575, 578 (2011).

227 E.g., id.
39

should have known that it would not prevail is primarily factual.228 When an 

arbitrator’s factual findings support the arbitrator’s legal conclusion, the Authority 

denies exceptions to the arbitrator’s determination.229

In disciplinary actions, the penalty imposed by the agency is an aspect of the 

merits of an agency’s case, and fees are warranted in the interest of justice if the agency 

knew or should have known that it would not prevail on the merits when it disciplined 

the employee.230 When the penalty is mitigated based on evidence that was before, or 

readily available to, the agency at the time of the discipline, and no new information 

was presented at the merits hearing that was not available to the agency at the time of 

the discipline, such mitigation establishes that the agency knew or should have known 

that its choice of penalty would not be sustained.231 In that situation, Allen criterion 5 is 

met as a matter of law.232

 Amount of Fees is Reasonable

Both § 7701(g)(1) and the BPA require that the amount of attorney fees awarded 

be reasonable.233 The computation of a reasonable attorney-fee award begins with an 

analysis of the attorney’s customary billing rate and the number of hours reasonably 

devoted to the case.234 For attorneys in private practice, there is a presumption that an 

agreed-upon fee between client and counsel is the maximum reasonable fee that may be 

awarded.235 However, the presumption may be rebutted by convincing evidence that 

the counsel’s customary rate for similar work is higher and that the agreed-upon rate

either was not based on marketplace considerations or was provided only because of 

the client’s inability to pay.236 In addition, the Authority has upheld the application of 

fee agreements that set forth a higher rate for favorable decisions, where the higher rate 

is consistent with prevailing market rates.237

The standard of review as to the reasonableness of the number of hours awarded

is deferential.238 The Authority has stated that the arbitrator is in the best position to 

determine whether the number of hours expended was reasonable.239 Thus, the 

 

228 E.g., id.

229 E.g., id.

230 E.g., AFGE, Local 1923, 66 FLRA 22, 24 (2011) (Member Beck dissenting).

231 E.g., id.

232 E.g., id.

233 E.g., U.S. DHS, ICE, 64 FLRA 1003, 1006 (2010).

234 E.g., id. at 1007.

235 E.g., id.

236 E.g., id.

237 E.g., U.S. Dep’t of the Army, U.S. Army Dental Activity, Fort Bragg, N.C., 65 FLRA 54, 57-58 (2010) 

(Fort Bragg).

238 E.g., U.S. DHS, U.S. CBP, 65 FLRA 603, 606 (2011).

239 E.g., id.
40

Authority will not second-guess the arbitrator’s evaluation absent a specific showing 

that his or her evaluation was incorrect.240

In the fee request, the attorney should provide any fee agreement and evidence 

that the charged or requested rate is the customary rate that the attorney charges for 

performing similar work. In addition, the attorney should show, and the arbitrator 

should confirm, that this rate falls within the range of rates charged by other attorneys 

of similar experience for similar work in the same community.

In the case of union-employed attorneys who do not have a customary billing 

rate, those attorneys must submit evidence that the requested hourly rate is comparable 

to the prevailing billing rate in the community for similar services by private attorneys 

of reasonably comparable skill, experience, and reputation.241 The relevant community 

is the community in which the attorney ordinarily practices, not the community in 

which the arbitration was held.242 For attorneys based in the Washington, D.C. area, the 

Authority has applied the Laffey matrix, which sets forth the method for determining 

the rate based on qualifications and years of experience.243 In addition, the Authority 

has approved arbitrators’ applications of an “adjusted” Laffey matrix.

244 The normal 

Laffey matrix calculates the matrix rate for each year by adding the change in the overall 

cost of living as reflected in the United States consumer price index (CPI) for the 

Washington, D.C. area for the prior year and rounding that rate to the nearest multiple 

of $5; the adjusted Laffey matrix calculates the matrix rates for each year using the 

legal-services component of the CPI, rather than the general CPI.245

In determining the reasonableness of fees under § 7701(g)(1), the Authority has 

held that it is reasonable to reduce requested attorney fees based on the degree of 

success achieved at arbitration.246 In so holding, the Authority relied on Supreme Court 

decisions concluding that, when awarding attorney fees, the extent to which a plaintiff 

prevailed in the underlying litigation is the most critical factor to consider in 

determining the reasonableness of the amount.247 And, like the Court, the Authority 

has held that a reduction in a fee award is appropriate when the relief, however 

significant, is limited in comparison to the scope of the litigation as a whole.248 

Consistent with these principles, when there is more than one claim for relief, and those 

claims involve a common core of facts or are based on related legal theories, the 

 

240 E.g., id.

241 E.g., U.S. DOD, Def. Distrib. Region E., New Cumberland, Pa., 51 FLRA 155, 162-63 (1995).

242 E.g., U.S. Dep’t of the Navy, U.S. Naval Acad., Nonappropriated Fund Program Div., 63 FLRA 100, 103 

(2009).

243 E.g., id. at 101 n.3 & 103.

244 E.g., Fort Bragg, 65 FLRA at 58.

245 E.g., id. at 55 n.4.

246 E.g., AFGE, Local 3354, 66 FLRA 305, 306 (2011) (Local 3354).

247 E.g., id. (citing Farrar v. Hobby, 506 U.S. 103, 114 (1992)).

248 E.g., id. (citing Hensley v. Eckerhart, 461 U.S. 424, 440 (1983) (Hensley)).
41

determination of a reasonable amount should reflect the significance of the overall relief 

obtained in relation to the number of hours reasonably expended.249 Further, like the 

Court, the Authority has held that there is no precise rule or formula for reducing fees,

and that fees should be reduced to account for limited success consistent with the other 

principles that the Court has identified in its attorney-fee cases.250

In addition, an award of attorney fees may include reimbursement of incidental 

and necessary expenses incurred in furnishing effective and competent 

representation.251 Reimbursement is appropriate for reasonable and necessary 

out-of-pocket expenses that are routinely paid by counsel and billed to the client for 

services rendered, and that are not: (1) covered by the hourly rate; (2) taxable costs; 

(3) prohibited by statute or authorized regulation; or (4) incurred for the mere 

convenience of counsel.252 Examples of reimbursable items are: travel expenses, 

postage, and telephone tolls.253 Examples of non-reimbursable items are: stenographic 

fees for depositions and witness fees.254

Arbitrators and practitioners should be aware that, in 

employment-discrimination cases where the broader standards of § 7701(g)(2) govern 

(as discussed above), different standards apply to the award of costs. In this 

connection, arbitrators and practitioners should consult precedent interpreting

§ 7701(g)(2) and § 706(k) of the Civil Rights Act of 1964 (42 U.S.C. § 2000e-5(k)).

With regard to the timing of attorney-fee requests before arbitrators, it is 

important to note that the BPA confers statutory jurisdiction on an arbitrator to resolve 

a request for attorney fees after the issuance of a decision awarding backpay.255 Thus, 

the doctrine of “functus officio” – which, as discussed further below, generally provides 

that an arbitrator has no authority to proceed further in a case after he or she completes 

and delivers an award – does not apply to attorney-fee requests or permit an arbitrator 

to deny such requests.256 In addition, if parties have agreed to establish a time period 

during which the grievant must file with the arbitrator an attorney-fee request, then 

that period governs.257 Absent such an agreement, if an appropriate fee request has not 

been filed before the issuance of the backpay award, then the fee request must be filed 

within a reasonable period of time after the backpay award issues or becomes final and 

binding.258 Arbitrators should be aware that, if parties file exceptions to their awards on 

 

249 E.g., NFFE, Forest Serv. Council, Local 1771, 56 FLRA 737, 742 (2000).

250 E.g., Local 3354, 66 FLRA at 306 (citing Hensley, 461 U.S. at 436-37).

251 E.g., USDA, Animal & Plant Health Inspection Serv., Plant Prot. & Quarantine, 53 FLRA 1688, 1693 (1998).

252 E.g., Bennett v. Dep’t of the Navy, 699 F.2d 1140, 1143-46 (Fed. Cir. 1983).

253 E.g., id.

254 E.g., id.

255 E.g., Navy Region Haw., 64 FLRA at 927.

256 E.g., Ala. Ass’n of Civilian Technicians, 52 FLRA 1386, 1388 (1997).

257 E.g., U.S. Dep’t of VA, Med. Ctr., Ann Arbor, Mich., 56 FLRA 216, 224-25 (2000).

258 E.g., Local 1148, 65 FLRA at 403.
42

the merits, then their awards will not become final and binding until either the 

Authority issues its decision resolving the exceptions or the exceptions are 

withdrawn.259 Arbitrators should consider this in determining how long they should 

retain their records of the case on the merits.

(f) Management Rights

Section 7106 of the Statute provides broad rights to management. Section 7106

provides, in pertinent part:

(a) Subject to subsection (b) . . . , nothing in [the Statute] shall affect the 

authority of any management official of any agency—

(1) to determine the mission, budget, organization, number of 

employees, and internal security practices of the agency; and

(2) in accordance with applicable laws—

(A) to hire, assign, direct, layoff, and retain employees in the 

agency, or to suspend, remove, reduce in grade or pay, or 

take other disciplinary action against such employees;

(B) to assign work, to make determinations with respect to 

contracting out, and to determine the personnel by which 

agency operations shall be conducted;

(C) with respect to filling positions, to make selections for

appointment from—

(i) among properly ranked and certified candidates for 

promotion; or

(ii) any other appropriate source; and 

(D) to take whatever actions may be necessary to carry out the 

agency mission during emergencies.

(b) Nothing in this section shall preclude any agency and any labor 

organization from negotiating—

(1) at the election of the agency, on the numbers, types, and grades of 

employees or positions assigned to an organizational subdivision, 

 

259 E.g., Customs, 48 FLRA at 940.
43

work project, or tour of duty, or on the technology, methods, and 

means of performing work;

(2) procedures which management officials of the agency will observe 

in exercising any authority under this section; or

(3) appropriate arrangements for employees adversely affected by the 

exercise of any authority under this section by such management 

officials.

As the rights set forth in § 7106(a) are “[s]ubject to” § 7106(b), all of the rights set 

forth in both § 7106(a)(1) and (2) must be exercised in accordance with CBA provisions 

that are negotiated under § 7106(b). In addition, all of the rights set out in § 7106(a)(2)

must be exercised in accordance with “applicable laws.” (By contrast, the Statute does 

not require that the rights set out in § 7106(a)(1) be exercised in accordance with 

applicable laws.)

The rights set forth in § 7106(a) are broad and potentially apply to a wide range 

of workplace disputes. In addition, as discussed further below, they constrain what an 

arbitrator can do, unless he or she is enforcing a contract provision negotiated under 

subsection (b) or, for the rights set out in subsection (a)(2), he or she is enforcing an

applicable law.

To determine what the management rights in § 7106(a) encompass, parties and 

arbitrators should consider Authority decisions, including not only decisions that 

review arbitration awards, but other decisions (such as in negotiability and ULP cases) 

where the interpretation of § 7106(a) is at issue. Parties and arbitrators also should 

consult the Authority’s Guide to Negotiability Under the Statute, which discusses each of 

the management rights individually.

If an arbitrator’s award affects a right under § 7106(a)(1), then the Authority will 

deny exceptions to the award only if the arbitrator enforced a contract provision that 

was negotiated pursuant to § 7106(b).

260 If an arbitrator’s award affects a right under 

§ 7106(a)(2), then the Authority will deny exceptions to the award only if the arbitrator

enforced: (1) a contract provision that was negotiated pursuant to § 7106(b); or (2) an 

applicable law.261

When an agency files an exception contending that an arbitration award is 

deficient as contrary to § 7106, the Authority first assesses whether the award affects the 

exercise of any management right cited by the excepting party.262 When there is no 

 

260 E.g., U.S. EPA, 65 FLRA 113, 115 (2010) (EPA) (Member Beck concurring as to result).

261 E.g., id. at 115 n.7.

262 E.g., id. at 115.
44

such effect, the Authority denies the exception.263 When the award affects the exercise 

of a cited management right(s) under § 7106(a)(1), and is not based on a violation of a 

contract provision negotiated under § 7106(b), the Authority will set aside the award.264 

If the award affects the exercise of a cited management right under § 7106(a)(2) and is 

not based on a violation of either a contract provision negotiated under § 7106(b) or an 

applicable law, then the Authority will set aside the award.265 But where an agency files 

a management-rights exception to an arbitration award that enforces a contract 

provision, the agency has the burden to allege not only that the award affects a 

management right(s), but also that the relevant contract provision (as interpreted and 

applied by the arbitrator) does not fall within one of the exceptions set forth in 

§ 7106(b).

266 If the agency does not do so, then its exception fails as a matter of law.267

Section 7106(b) sets forth three types of contract provisions that are enforceable 

in arbitration. If a contract provision (as interpreted and applied by the arbitrator) falls 

within any of the three types, then it is unnecessary for the Authority to address 

whether it falls within the other types; the Authority will deny the management-rights 

exception as long as the provision falls within one subsection of § 7106(b).

268 We discuss 

each of the three types of provisions below. And, again, we encourage parties to also 

consult the Guide to Negotiability Under the Statute, which provides a detailed discussion 

of the subsections of § 7106(b).

First, § 7106(b)(1) provisions involve: the numbers, types, and grades of 

employees or positions assigned to any organizational subdivision, work project, or 

tour of duty; and the technology, methods, and means of performing work. Although 

the agency may elect not to bargain over these matters, once the parties agree to a 

contract provision concerning these matters, an arbitrator may enforce the provision.269

 

263 E.g., U.S. Dep’t of Energy, Rocky Flat Field Office, Golden, Colo., 59 FLRA 159, 163 (2003) 

(Chairman Cabaniss concurring).

264 E.g., EPA, 65 FLRA at 115.

265 E.g., id.

266 E.g., U.S. DOJ, Fed. BOP, Fed. Med. Ctr., Lexington, Ky., 69 FLRA 10, 14 (2015) (Member Pizzella 

dissenting); U.S. DOJ, Fed. BOP, 68 FLRA 311, 315 (2015) (Member Pizzella dissenting); U.S. DOD, Def. 

Logistics Agency, Def. Distrib. Depot, Red River, Texarkana, Tex., 67 FLRA 609, 613 (2014) (Red River) 

(Member Pizzella dissenting); SSA, Office of Disability Adjudication & Review, Region VI, New Orleans, La., 

67 FLRA 597, 602 (2014) (ODAR Region VI) (Member Pizzella dissenting) (citing U.S. DHS, U.S. CBP, 

66 FLRA 634, 638 (2012)); U.S. DOJ, Fed. BOP, Metro. Corr. Ctr., N.Y.C., N.Y., 67 FLRA 442, 447 (2014) 

(Member Pizzella dissenting) (citing U.S. Dep’t of the Treasury, IRS, Wage & Inv. Div., 66 FLRA 235, 242 

(2011)).

267 E.g., Red River, 67 FLRA at 613 (citing ODAR Region VI, 67 FLRA at 603).

268 E.g., U.S. DOJ, Fed. BOP, 68 FLRA at 315 (because agency did not argue that the provision was not a 

procedure under § 7106(b)(2), it was unnecessary for the Authority to address the agency’s claim that the 

provision was not an appropriate arrangement under § 7106(b)(3)).

269 E.g., U.S. Dep’t of Transp., FAA, Alaskan Region, 62 FLRA 90, 92 (2007).
45

Second, § 7106(b)(2) provisions involve procedures that management will 

observe in exercising its rights. These matters are both within an agency’s duty to 

bargain and are fully enforceable in arbitration.270

Third, § 7106(b)(3) provisions are “appropriate arrangements” for employees 

who are adversely affected by the exercise of a management right.271 In the arbitration 

context, to be an “arrangement,” the contract provision must ameliorate or mitigate the 

adverse effects that an employee(s) experienced as a result of the exercise of a 

management right.272 (We note that, in the negotiability context, the Authority also 

applies a “tailoring” test in assessing whether either a bargaining proposal or an 

agreed-upon provision that has been disapproved on agency-head review is an 

appropriate arrangement.

273

 The Authority does not apply a tailoring test in the 

arbitration context.274)

Also, in the arbitration context, to be “appropriate,” the Authority previously has 

held that the contract provision – as interpreted and enforced by the arbitrator – cannot 

“abrogate” (or “waive”) the affected management right.275 An award abrogates the 

exercise of a management right if it precludes the agency from exercising that right.276

This is the same test that the Authority previously has applied, in the 

negotiability context, to assess whether an agreed-upon contract provision (as distinct from 

a bargaining proposal) constitutes an appropriate arrangement.277 However, in

U.S. Department of the Treasury, IRS, Office of the Chief Counsel, Washington, D.C. v. 

FLRA,

278 the D.C. Circuit set aside the Authority’s application of the abrogation 

standard in the negotiability context, stating that the Authority could not apply two 

different appropriate-arrangement standards in two different contexts.279 In this 

connection, in the negotiability context, if the Authority is assessing whether a

bargaining proposal is within the duty to bargain, then the Authority assesses whether 

the proposal “excessively interferes” with – not whether it “abrogates”– the affected 

management right.280 As of the date on the front of this Guide, the Authority has not 

yet held whether it will follow the D.C. Circuit’s decision in either arbitration cases or 

 

270 E.g., SSA, Office of Hearings & Appeals, 54 FLRA 1365, 1373 (1998).

271 5 U.S.C. § 7106(b)(3).

272 E.g., EPA, 65 FLRA at 116.

273 E.g., NTEU, 65 FLRA 509, 511 (2011) (Member Beck dissenting in part), review denied sub nom. U.S. Dep’t 

of the Treasury, Bureau of the Pub. Debt, Wash., D.C. v. FLRA, 670 F.3d 1315 (D.C. Cir. 2012).

274 E.g., EPA, 65 FLRA at 116-18.

275 E.g., id.

276 E.g., U.S. Dep’t of VA, Med. Ctr., Kan. City, Mo., 65 FLRA 809, 814 (2011).

277 E.g., NTEU, 65 FLRA at 511-15.

278 739 F.3d 13 (D.C. Cir. 2014).

279 Id. at 21.

280 E.g., AFGE, Local 1367, 64 FLRA 869, 870-71 (2010) (Member Beck dissenting in part).
46

negotiability cases involving agreed-upon contract provisions.281 As with all areas of 

the law, we encourage parties and arbitrators to research the most recent Authority and 

court decisions when litigating these issues.

With regard to arbitration awards that affect management rights under 

§ 7106(a)(2) (but not rights under § 7106(a)(1)), an arbitration award also may be upheld 

if the arbitrator is enforcing an “applicable law.”282 Applicable laws include not only 

statutes, but also the U.S. Constitution, judicial decisions, executive orders, and 

regulations having the force and effect of law.283 Regulations have the force and effect 

of law where they: (1) affect individual rights and obligations; (2) were promulgated 

pursuant to an explicit or implicit delegation of legislative authority by Congress; and 

(3) were promulgated in accordance with procedural requirements imposed by 

Congress.284 The Statute is not an “applicable law” within the meaning of 

§ 7106(a)(2).

285

With regard to arbitral remedies that affect management rights, in FDIC, Division 

of Supervision & Consumer Protection, San Francisco Region (FDIC)

286 the Authority stated 

that an arbitrator’s award that affects management rights under § 7106(a) of the Statute 

must provide a remedy for a violation of either an applicable law, within the meaning 

of § 7106(a)(2) of the Statute, or a contract provision that was negotiated pursuant to 

§ 7106(b) of the Statute. In FDIC, the Authority stated that although, generally, an 

arbitrator enjoys broad discretion to remedy a meritorious grievance even if the remedy 

affects management rights under § 7106(a), such remedial authority is not unfettered; 

rather, the remedy must be reasonably related to the negotiated provisions at issue and 

the harm being remedied.287 However, where there is no claim that a remedy is not 

reasonably related to the violation that the arbitrator found, it suffices that the award 

provides a remedy for the violation.288

Thus, in processing a grievance and participating in arbitration proceedings, 

party representatives should consider whether the dispute may involve the exercise of a 

management right and, if so, whether the contract provision(s) or legal provision(s)

relied on are enforceable, despite any possible effects on management rights. If the 

arbitrator finds merit to the grievance and believes that sustaining the grievance would 

 

281 See, e.g., NTEU, Chapter 299, 68 FLRA 835, 836-37 (2015) (Chapter 299) (assuming without deciding that 

the excessive-interference test applies in the arbitration context); Local 4052, 68 FLRA at 41 (finding it 

unnecessary to address whether to follow the D.C. Circuit’s decision in deciding the case).

282 E.g., U.S. DOD, Ill. Nat’l Guard, Scott Air Force Base, Ill., 69 FLRA 345, 347-48 (2016) (Scott AFB); 

U.S. OPM, 68 FLRA 1039, 1041 (2015) (Member Pizzella dissenting); EOIR, 65 FLRA at 662-63.

283 E.g., Fed. Prof’l Nurses Ass’n, Local 2707, 43 FLRA 385, 390 (1991).

284 E.g., AFGE, Local 1441, 61 FLRA 201, 206 (2005) (Chairman Cabaniss concurring).

285 E.g., IRS v. FLRA, 494 U.S. 922, 930 (1990).

286 65 FLRA 102, 106 (2010) (Chairman Pope concurring in part).

287 E.g., id. at 106-07.

288 Scott AFB, 69 FLRA at 349.
47

affect a management right, then the arbitrator should consider whether he or she is 

enforcing either a contract provision negotiated under § 7106(b) or an “applicable law.” 

And if a union relies on a particular contract provision and proposes that it be 

interpreted in a manner that would affect management rights under § 7106(a), then the 

agency must argue not only that the proposed interpretation would affect rights under 

§ 7106(a), but also that the contract provision, so interpreted, would not be a provision 

that was negotiated under § 7106(b).

289 If the agency does not make those arguments at 

arbitration, then, consistent with §§ 2425.4(c) and 2429.5 of the Authority’s Regulations, 

it may not make those arguments on exceptions to the Authority.290

Finally, in filing exceptions and oppositions with the Authority in cases 

involving management rights, parties should address these elements. As stated above, 

in order for an agency to demonstrate to the Authority that an arbitrator’s award is 

contrary to § 7106, the agency must argue and prove to the Authority not only that the 

award affects a management right under § 7106(a), but also that the arbitrator was not 

enforcing an exception to § 7106(a), such as a contract provision negotiated under 

§ 7106(b).

291

(g) Status of Regulations

In addition to laws, there is a regulatory framework that applies to many aspects 

of the employment relationship between federal employees and their employing 

agencies. Specifically, both government-wide regulations and agency regulations may 

apply. These two types of regulations are discussed separately below.

 Government-Wide Regulations

Government-wide rules or regulations are rules, regulations, or official 

declarations of policy that are generally applicable throughout the federal government 

and are binding on the federal agencies and officials to whom they apply.292

If a government-wide regulation was in effect before a CBA took effect, then the 

government-wide regulation governs over related CBA provisions.293 However, with 

one exception, if a CBA was in effect before the effective date of a government-wide 

regulation, then the CBA governs over the government-wide regulation.294 The one 

exception involves government-wide regulations that implement 5 U.S.C. § 2302, which, 

as set forth previously in this Guide, lists certain prohibited personnel practices. If the 

 

289 See U.S. DHS, U.S. CBP, 66 FLRA at 636-38.

290 Id.

291 E.g., id. at 638.

292 E.g., NAGE, Local R1-109, 53 FLRA 403, 416 (1997).

293 See 5 U.S.C. § 7116(a)(7).

294 E.g., U.S. Dep’t of Commerce, Patent & Trademark Office, 65 FLRA 817, 819 (2011) (PTO).
48

regulation implements § 2302, then the regulation governs over the CBA, regardless of 

when the regulation or the CBA took effect.295 Accordingly, most newly prescribed 

government-wide regulations will not control over a preexisting, conflicting CBA 

provision until the preexisting CBA expires. But if a government-wide regulation 

implements 5 U.S.C. § 2302, then that regulation governs immediately, without regard 

to the terms of a preexisting, contrary CBA provision.296

To avoid deficient awards, arbitrators must ensure that their awards are 

consistent with government-wide rules and regulations that govern the matter in 

dispute – most typically, the regulations set forth in Title 5 of the Code of Federal 

Regulations.297 In addition, arbitrators must ensure that any government-wide rules or 

regulations apply to the particular employee(s) at issue, as some government-wide 

regulations do not apply to particular groups of employees, such as civilian technicians 

of the National Guard, or health-care professionals of the Department of Veterans 

Affairs.

 Agency Regulations

In addition to government-wide rules and regulations, each federal agency may 

prescribe rules, regulations, and official declarations of policy to govern the resolution 

of matters within the agency. Arbitrators are empowered to interpret and apply these 

agency rules and regulations. An arbitration award that conflicts with a governing

agency regulation is deficient under § 7122(a)(1) of the Statute.298

Where a CBA provision concerns the same matter as an agency regulation, the CBA 

provision governs over the agency regulation.299 Thus, if an arbitrator is enforcing a 

CBA provision that concerns a matter, then the Authority will not set aside the 

arbitrator’s award as contrary to an agency regulation that concerns the same matter.300

Agency regulations are different from government-wide regulations in this respect. 

And where a CBA expressly incorporates an agency regulation, and a party challenges 

the arbitrator’s interpretation of the regulation, the Authority views the issue as one of 

contract interpretation – and therefore applies an “essence” analysis (discussed in 

Section 2.6(f) below) in resolving the exception.301

The Authority will defer to an agency’s interpretation of its own regulations

unless that interpretation is plainly erroneous or inconsistent with the wording of the 

 

295 E.g., NATCA, 60 FLRA 398, 399 n.6 (2004).

296 E.g., PTO, 65 FLRA at 819.

297 See, e.g., Treasury, IRS, 65 FLRA at 371-72.

298 E.g., U.S. Dep’t of Transp., FAA, 64 FLRA 680, 683 (2010).

299 E.g., EOIR, 65 FLRA at 660 (citing U.S. Dep’t of the Army, Fort Campbell Dist., Third Region, Fort Campbell, 

Ky., 37 FLRA 186, 190-96 (1990)).

300 E.g., U.S. Dep’t of the Air Force, Seymour Johnson Air Force Base, N.C., 55 FLRA 163, 166 (1999).

301 E.g., AFGE, Local 15, 68 FLRA 877, 879 (2015).
49

regulation.302 However, consistent with the approach of the courts, the Authority 

declines to defer to an agency’s litigative position.303 In this regard, the Authority has 

explained that such positions may not reflect the views of the agency head and may 

have been developed hastily, or under special pressure, or without an adequate 

opportunity for presentation of conflicting views.304 So if an agency’s exceptions put 

forth an interpretation of agency regulations, then the Authority will defer to that 

interpretation only if the interpretation was publicly articulated prior to litigation.305 

Where an agency fails to establish that deference is due its alleged interpretation, the 

Authority independently assesses whether the arbitrator’s interpretation of the 

regulation is consistent with its provisions.306 In doing so, the Authority determines 

whether the arbitrator’s award is inconsistent with the plain wording of, or is otherwise 

impermissible under, the agency regulation.307

2.6 Private-Sector Grounds

Section 7122(a)(2) of the Statute states that an arbitration award may be found 

deficient on “grounds similar to those applied by federal courts in private[-]sector 

labor-management[-]relations” cases.308 The private-sector grounds are narrow, and it 

is difficult for parties to establish that an award is deficient on these grounds. The 

Authority currently recognizes seven private-sector grounds for review, which are 

discussed separately below.309

(a) Denial of a Fair Hearing

The Authority will find an award deficient on the ground that an arbitrator failed 

to conduct a fair hearing when a party demonstrates that the arbitrator refused to hear 

or consider pertinent and material evidence, or that other actions in conducting the 

proceeding so prejudiced a party as to affect the fairness of the proceeding as a 

whole.310 Federal courts have held that arbitrators are required only to grant parties a 

fundamentally fair hearing that provides adequate notice, a hearing on the evidence, 

and an impartial decision by the arbitrator.311 As such, an arbitrator has considerable 

latitude in conducting a hearing, and the fact that an arbitrator conducts a hearing in a 

manner that a party finds objectionable does not, by itself, provide a basis for finding an 

 

302 E.g., FAA, 64 FLRA at 514.

303 E.g., NTEU, Chapter 231, 67 FLRA at 249 (citing U.S. DOJ, Fed. BOP, Med. Facility for Fed. Prisons, 

51 FLRA 1126, 1136 (1996) (Prisons Med. Facility)); FAA, 64 FLRA at 514.

304 E.g., FAA, 64 FLRA at 514.

305 E.g., NTEU, Chapter 231, 67 FLRA at 249 (citing Prisons Med. Facility, 51 FLRA at 1136); FAA, 64 FLRA 

at 514.

306 E.g., FAA, 64 FLRA at 514.

307 E.g., Local 2219, 68 FLRA at 450; U.S. DHS, ICE, 66 FLRA at 884.

308 5 U.S.C. § 7122(a)(2).

309 See 5 C.F.R. § 2425.6.

310 E.g., AFGE, Local 2152, 69 FLRA 149, 152 (2015) (Local 2152).

311 E.g., AFGE, Local 3979, Council of Prisons Locals, 61 FLRA 810, 813-14 (2006) (Local 3979).
50

award deficient.312 In this connection, arbitrators may allow the liberal admission of 

testimony and other evidence.313 Further, an arbitrator’s limitation on the submission of 

evidence does not, by itself, demonstrate that the arbitrator failed to provide a fair 

hearing.314 And disagreement with an arbitrator’s evaluation of testimony and other

evidence, including the determination of the weight to be accorded such evidence, 

provides no basis for finding an award deficient on this ground.315 But the Authority 

has found that an arbitrator denied a party a fair hearing where, for example, the 

arbitrator relied on evidence, from a different case, that the party was unable to 

contest.

316

It is important to note that, if a party disagrees with an arbitrator’s conduct 

during the hearing, then the party should object to that conduct during the hearing. In 

this regard, the Authority has held that – absent extraordinary circumstances – it will 

not consider issues involving an arbitrator’s conduct at a hearing that could have been, 

but were not, raised before the arbitrator.317

(b) Arbitrator Bias

To establish that an award is deficient because the arbitrator was biased, a party 

must show that an award was procured by improper means, that the arbitrator was 

partial or corrupt, or that the arbitrator engaged in misconduct that prejudiced the 

parties’ rights.318

When assessing whether an award is deficient on this ground, the Authority 

applies the approach of federal courts, which requires the appealing party to prove 

specific facts establishing improper motives; the courts ascertain whether the 

arbitrator’s conduct was so biased and prejudiced as to destroy fundamental fairness.319 

Federal courts will find bias when: (1) a reasonable person would conclude that the 

arbitrator was partial; (2) the circumstances are powerfully suggestive of bias; or (3) the 

evidence of impropriety is direct, definite, and capable of demonstration.320

A party’s assertions that all of the arbitrator’s findings were adverse to that 

party, without more, does not demonstrate that the arbitrator was biased.321 Similarly, 

 

312 E.g., Pension Benefit Guar. Corp., 68 FLRA 916, 922-23 (2015).

313 E.g., id.; AFGE, Local 376, 62 FLRA 138, 142 (2007) (Chairman Cabaniss concurring) (consideration of 

hearsay evidence did not demonstrate denial of fair hearing); MSPBPA, 61 FLRA at 653 (reliance on 

extrinsic and parol evidence in interpreting CBA did not demonstrate denial of fair hearing).

314 E.g., AFGE, Council of Prison Locals, Local 3828, 66 FLRA 504, 505 (2012).

315 E.g., U.S. Dep’t of the Treasury, IRS, 68 FLRA 1027, 1031 (2015) (Dep’t of Treasury IRS).

316 E.g., U.S. DHS, U.S. CBP, JFK Airport, Queens, N.Y., 62 FLRA 360, 362-63 (2008).

317 E.g., AFGE, Local 2923, 69 FLRA 286, 291 (2016).

318 E.g., Chapter 299, 68 FLRA at 839.

319 E.g., Local 3979, 61 FLRA at 813.

320 E.g., id.

321 E.g., Chapter 299, 68 FLRA at 839.
51

the fact that an arbitrator’s award contains language that is critical of a party does not 

demonstrate that the arbitrator was biased against that party.322 In addition, an 

arbitrator’s decision to credit one party’s evidence over another party’s evidence is not 

sufficient to demonstrate bias.323

As with allegations that an arbitrator is not conducting a fair hearing, a party that 

believes that an arbitrator is exhibiting bias should, during the hearing, object to the 

arbitrator’s conduct. In this regard, when allegations of arbitral bias could have been, 

but were not, raised before the arbitrator, the Authority will not consider such 

allegations for the first time on exceptions, absent extraordinary circumstances.324

(c) Incomplete, Ambiguous, or Contradictory Award

The Authority will find an award deficient when it is incomplete, ambiguous, or 

contradictory so as to make implementation of the award impossible.325 In order for an 

award to be found deficient on this ground, the appealing party must show that 

implementation of the award is impossible because the meaning and effect of the award 

are too unclear or uncertain.326 The Authority has found that an award that granted 

remedies to five unnamed grievants was deficient in this regard because the identities 

of the grievants could not be determined from the record.

327 In that situation, the

Authority remanded the matter to the parties, absent settlement, for resubmission to the 

arbitrator for clarification.328

Please note, however, that the mere allegation that an award is confusing or 

inconsistent does not demonstrate that an award is impossible to implement.329 

Further, an arbitrator’s failure to set forth specific findings, or to specify and discuss all 

of the allegations before him or her, does not provide a basis for finding an award 

deficient on this ground.330

(d) Arbitrator Exceeded Authority

An arbitrator exceeds his or her authority when the arbitrator fails to resolve an 

issue submitted to arbitration, resolves an issue not submitted to arbitration, disregards 

 

322 E.g., Local 1061, 63 FLRA at 320.

323 E.g., U.S. Dep’t of the Army, Norfolk Dist., Army Corps of Eng’rs, Norfolk, Va., 59 FLRA 906, 910 (2004).

324 E.g., AFGE 3354, 64 FLRA at 332.

325 E.g., Local 2152, 69 FLRA at 153.

326 E.g., id.

327 E.g., U.S. EEOC, Balt. Field Office, Balt., Md., 59 FLRA 688, 692 (2004).

328 E.g., id.

329 E.g., AFGE, Local 2923, 61 FLRA 725, 728 (2006); see also U.S. DOD, Def. Contract Mgmt. Agency, 59 FLRA 

396, 404 (2003) (then-Member Pope dissenting in part) (even if arbitrator made inconsistent findings, that 

would not, by itself, render award deficient).

330 E.g., NFFE, Local 1904, 56 FLRA 196, 200-01 (2000).
52

specific limitations on his or her authority, or awards relief to persons who are not 

encompassed by the grievance.331 The Authority, like the federal courts, gives

arbitrators substantial deference in determining what issues were submitted to 

arbitration.332

Arbitrators are not required to address every argument raised by the parties.333 

In addition, in the absence of a stipulated issue, the arbitrator’s formulation of the issue 

receives substantial deference.334 Further, where the parties have stipulated the issue 

for resolution, arbitrators do not exceed their authority by addressing any issue that is 

necessary to decide the stipulated issue or by addressing any issue that necessarily 

arises from issues specifically included in the stipulation.335 In examining an 

arbitrator’s interpretation of a stipulation of issues, the Authority grants an arbitrator 

the same substantial deference that the Authority grants an arbitrator’s interpretation of 

a CBA (which is discussed in the “essence” section below).

336 Further, where a party 

fails to identify a specific limitation on the arbitrator’s authority, the Authority will 

deny an exception alleging that the arbitrator disregarded such a specific limitation.337

However, arbitrators must confine their awards to those issues that the parties 

have submitted.338 Arbitrators may not decide matters that are not before them.339 

Thus, if a grievance is limited to a particular grievant, then the remedy must be 

similarly limited.340 In addition, an arbitrator exceeds his or her authority by providing 

a remedy where he or she has found no violation of law or contract.341

Arbitrators also exceed their authority if they violate the doctrine of “functus 

officio.”342 Under that doctrine, once an arbitrator resolves the matter submitted to 

arbitration, he or she is generally without further authority.343 Thus, the doctrine 

prevents arbitrators from reconsidering a final award.344 So unless arbitrators have 

retained jurisdiction or received permission from the parties, arbitrators exceed their 

authority when they reopen or reconsider an original award that has become final and 

 

331 E.g., U.S. DOD, Army & Air Force Exch. Serv., 51 FLRA 1371, 1378 (1996).

332 E.g., AFGE, Local 3911, 69 FLRA 233, 236-37 (2016).

333 E.g., AFGE, Local 3911, 64 FLRA 686, 687-88 (2010); U.S. Dep’t of VA, Med. Ctr., Richmond, Va., 63 FLRA 

553, 557 (2009).

334 E.g., NTEU, Chapter 160, 67 FLRA 482, 484 (2014).

335 E.g., Interior, 68 FLRA at 995.

336 E.g., id. at 993-95.

337 E.g., U.S. Dep’t of VA, Med. Ctr., W. Palm Beach, Fla., 63 FLRA 544, 548 (2009).

338 E.g., DOT, 64 FLRA at 613-14.

339 E.g., id. at 614.

340 E.g., DHS, CBP, 69 FLRA 244, 246-47 (2016).

341 E.g., FCC Pollock, 68 FLRA at 152.

342 E.g., AFGE, Local 2172, 57 FLRA 625, 627 (2001).

343 E.g., U.S. DOJ, U.S. Marshals Serv., Justice Prisoner & Alien Transp. Sys., 67 FLRA 19, 22 (2012).

344 E.g., id.
53

binding.345 But consistent with decisions of federal courts, the Authority recognizes 

exceptions to the doctrine, and finds that arbitrators do not exceed their authority, 

where the arbitrators merely clarify their awards, correct clerical mistakes or obvious 

errors in arithmetical computations in their awards, or complete their awards by 

resolving issues that were submitted to the arbitrator but unresolved in the original 

award.346

(e) Award Based on Nonfact (Challenges to Factual Findings)

When a party wants to challenge an arbitrator’s factual findings, the party 

should address the “nonfact” standard. To establish that an award is based on a 

nonfact, the excepting party must demonstrate that a central fact underlying the award 

is clearly erroneous, but for which the arbitrator would have reached a different 

result.347 The Authority will not find an award deficient on the basis of an arbitrator’s 

determination of any factual matter that the parties disputed at arbitration.

348 For 

examples of decisions where the Authority found awards based on nonfacts, see 

U.S. DOD, Defense Commissary Agency, Randolph Air Force Base, Texas349 (arbitrator’s 

finding that agency admitted that it had engaged in favoritism was a nonfact) and 

Department of the Interior, Bureau of Reclamation, Great Plains Region, Colorado/Wyoming

Area Office350 (arbitrator’s math error in calculating a remedy was a nonfact).

Claims that an arbitrator’s factual findings are not sufficiently supported do not 

demonstrate that an award is deficient.351 In addition, exceptions to an arbitrator’s 

evaluation of evidence and the weight to be accorded such evidence do not provide a 

basis for finding that an award is based on a nonfact.352 This includes exceptions to an 

arbitrator’s determinations regarding the credibility of witnesses.353 Even if an 

arbitrator relies on an erroneous fact, the award will not be found deficient on this 

ground if the excepting party fails to show that, but for the arbitrator’s reliance on the 

erroneous fact, the arbitrator would have reached a different conclusion.354

An arbitrator’s conclusion that is based on an interpretation of the parties’ CBA

is not a “fact” that can be challenged as a nonfact.355 In addition, an exception that 

 

345 E.g., id.

346 E.g., id.

347 E.g., U.S. Dep’t of the Air Force, Lowry Air Force Base, Denver, Colo., 48 FLRA 589, 593 (1993).

348 E.g., Pension Benefit Guar. Corp., 64 FLRA 692, 696 (2010) (PBGC).

349 65 FLRA 310, 311 (2010).

350 68 FLRA 992, 995 (2015).

351 E.g., PBGC, 64 FLRA at 696.

352 E.g., U.S. Dep’t of the Air Force, Whiteman Air Force Base, Mo., 68 FLRA 969, 971 (2015); Dep’t of the 

Treasury IRS, 68 FLRA at 1031-32.

353 E.g., U.S. Dep’t of the Treasury, IRS, Wage & Inv. Div., Austin, Tex., 64 FLRA 39, 58 (2009).

354 E.g., AFGE, Local 1395, 64 FLRA 622, 625-26 (2010).

355 E.g., NLRB, 50 FLRA 88, 92 (1995).
54

challenges an arbitrator’s legal conclusions does not demonstrate that the award is 

based on a nonfact.356

(f) Award Fails to Draw Its Essence from CBA (Challenges to Contract 

Interpretation)

When a party wants to challenge an arbitrator’s interpretation of a CBA, the 

appropriate argument to make is that the award fails to draw its “essence” from the 

CBA. However, this is another situation in which the Authority gives great deference to 

the arbitrator. In this connection, the Authority will find that an arbitration award fails

to draw its essence from the CBA only when the appealing party establishes that the 

award: (1) cannot in any rational way be derived from the agreement; (2) is so 

unfounded in reason and fact and so unconnected with the wording and purposes of 

the agreement as to manifest an infidelity to the obligation of the arbitrator; (3) does not 

represent a plausible interpretation of the agreement; or (4) evidences a manifest 

disregard of the agreement.357

Generally, the Authority has found that an award failed to draw its essence from 

the CBA when the award was expressly contrary to the CBA. For example, in U.S. Small 

Business Administration,

358 the Authority found that an award directing the agency to 

pay the union’s costs and expenses failed to draw its essence from the CBA because the 

CBA expressly required that the agency and union bear costs and expenses equally.

The Authority and the courts defer to an arbitrator’s interpretation of a CBA 

“because it is the arbitrator’s construction of the agreement for which the parties have 

bargained.”359 Consistent with this deferential standard, the Authority has denied 

essence exceptions where the excepting party has failed to identify a provision of the 

agreement that the arbitration award directly and expressly contradicts.360 And when 

an arbitrator interprets a CBA as imposing a particular requirement, that the CBA is 

silent with respect to the requirement does not, by itself, demonstrate that the award 

fails to draw its essence from the CBA.361 Further, an arbitrator may find that a past 

practice modified the terms of a CBA, and an award that enforces that past practice 

does not fail to draw its essence from the CBA.362

In addition, a party’s exceptions to an arbitrator’s factual findings in the course 

of applying an agreement at arbitration do not demonstrate that an award fails to draw 

 

356 E.g., PBGC, 64 FLRA at 696.

357 E.g., U.S. DOL (OSHA), 34 FLRA 573, 575 (1990) (OSHA).

358 55 FLRA 179, 182 (1999).

359 E.g., OSHA, 34 FLRA at 576.

360 E.g., AFGE, Local 2505, 64 FLRA 689, 691 (2010).

361 E.g., Bremerton Metal Trades Council, 68 FLRA 154, 155-56 (2014).

362 E.g., U.S. DOD, Def. Logistics Agency, 66 FLRA 49, 51 (2011).
55

its essence from the agreement.

363 (Challenges to an arbitrator’s factual findings are 

more appropriately raised under the “nonfact” standard, discussed above.)

(g) Public Policy

One private-sector ground for finding an arbitration award deficient is that the 

award is contrary to public policy. The Authority has held that this ground is 

“extremely narrow.”364 For an award to be deficient on this basis, the alleged public 

policy must be “explicit,” “well-defined,” and “dominant.”365 The appealing party 

must identify the policy “by reference to the laws and legal precedents and not from 

general considerations of supposed public interests.”366 In addition, the alleged 

violation of that public policy “must be clearly shown.”367

2.7 Challenges to Arbitrability Findings

Parties often challenge arbitrators’ determinations concerning the “arbitrability” 

of a grievance – in other words, whether a grievance may properly be taken to 

arbitration. There are two categories of arbitrability: procedural and substantive.

Procedural-arbitrability issues pertain to the procedural conditions to resolving a 

dispute on the merits.368 Timeliness is a common procedural-arbitrability issue.369 The 

Authority generally will not find an arbitrator’s ruling on the procedural arbitrability of 

a grievance deficient on grounds that directly challenge the procedural-arbitrability 

ruling itself,

370 such as an essence or a nonfact challenge.371 However, the Authority has 

stated that a procedural-arbitrability determination may be found deficient on grounds

that do not directly challenge the determination itself, which include claims that an 

arbitrator was biased or that the arbitrator exceeded his or her authority.372 

Additionally, a procedural-arbitrability determination may be found deficient on the 

ground that it is contrary to law.373 In order for a procedural-arbitrability ruling to be 

 

363 E.g., AFGE 3354, 64 FLRA at 333.

364 E.g., White Sands, 67 FLRA at 622.

365 E.g., AFGE, Local 1415, 69 FLRA 386, 391-92 (2016).

366 E.g., id.

367 E.g., id.

368 E.g., U.S. Dep’t of Transp., FAA, Portland, Me., 64 FLRA 772, 773 (2010); see also Local 953, 68 FLRA at 645.

369 See, e.g., U.S. DOJ, Fed. BOP, 68 FLRA 728, 730 (2015) (Fed. BOP); U.S. Dep’t of VA, John J. Pershing Med. 

Ctr., Poplar Bluff, Mo., 68 FLRA 852, 853 (2015) (Member DuBester concurring, Member Pizzella 

dissenting) (arbitrator’s finding that circumstances of a particular case did not warrant “strict 

compliance” with a grievance-filing deadline) (citing Eng’rs Memphis, 52 FLRA at 922).

370 E.g., VA Winston-Salem, 66 FLRA at 37.

371 E.g., White Sands, 67 FLRA at 624.

372 E.g., VA Winston-Salem, 66 FLRA at 37.

373 E.g., Fed. BOP, 68 FLRA at 730.
56

found deficient as contrary to law, the appealing party must establish that the ruling 

conflicts with statutory procedural requirements that apply to the parties’ NGP.

374

Substantive arbitrability involves questions as to whether the subject matter of 

the dispute is arbitrable.375 When an arbitrator bases his or her substantive-arbitrability 

determination on law or governing regulations, the Authority reviews that

determination “de novo” – without deference to the arbitrator.

376 When an arbitrator’s 

substantive-arbitrability determination is based on an interpretation of the parties’ CBA, 

the Authority reviews that determination under the deferential “essence” standard

discussed above.

377

2.8 Awards Based on Separate and Independent Grounds

When an arbitrator has based an award on separate and independent grounds,

the Authority will not set aside the award unless the excepting party establishes that all 

of the grounds for the award are deficient.378 For example, if an arbitrator bases an 

award on his or her interpretation of two CBA provisions, and the interpretation of 

either provision provides a sufficient basis for the award, then the Authority will not set 

aside the award unless the excepting party demonstrates that the arbitrator’s 

interpretation of both provisions is deficient.379 Similarly, if an arbitrator bases an 

award on interpretations of both a CBA and the Statute, then the Authority will not set 

aside the award unless the excepting party demonstrates that the arbitrator’s 

interpretations of both the CBA and the Statute are deficient.380 Further, if an arbitrator 

denies a remedy for more than one reason, then the Authority will not set aside the 

award unless the excepting party demonstrates that all of the reasons are deficient.381 

 

374 E.g., id.; see also IFPTE, Local 386, 66 FLRA 26, 30-31 (2011) (award was not contrary to law where, in 

assessing timeliness of grievance alleging violations of FLSA, arbitrator applied time limit in CBA, rather 

than 29 U.S.C. § 255(a)).

375 E.g., Overseas Private Inv. Corp., 68 FLRA 982, 984 (2015) (Member Pizzella dissenting on other grounds)

(OPIC); Local 953, 68 FLRA at 645.

376 E.g., OPIC, 68 FLRA at 984.

377 E.g., id.

378 E.g., DHS Savannah, 68 FLRA at 326. Cf. U.S. Dep’t of Transp., FAA, 68 FLRA 905, 907 (2015) (arbitrator 

did not make separate and independent findings, because he analyzed and discussed only one CBA 

article, and he did not separately discuss and analyze another).

379 E.g., ODAR Region VI, 67 FLRA at 604; SSA, Fredericksburg Dist. Office, 65 FLRA 946, 949 (2011).

380 E.g., U.S. Dep’t of the Treasury, IRS, 66 FLRA 325, 332 (2011) (Member Beck concurring). Cf. Fed. BOP v. 

FLRA, 654 F.3d 91, 97 (D.C. Cir. 2011), granting pet. for review of U.S. DOJ, Fed. BOP, Wash., D.C., 64 FLRA 

559 (2010) (rejecting Authority’s application of “separate and independent grounds” doctrine where court 

found that arbitrator’s award made no distinction between the “purportedly ‘separate’ statutory and 

contractual grounds for the award”), decision on remand, 67 FLRA 69 (2012).

381 E.g., AFGE, Council of Prison Locals 33, Local 3690, 69 FLRA 127, 132 (2015).
57

2.9 Authority Practice with Regard to Deficient Awards

Once the Authority has found an arbitration award to be deficient, the Authority 

generally will set it aside or modify it to remove its deficiency.382 Where the Authority 

sets aside an entire remedy, but does not disturb an arbitrator’s finding of an 

underlying violation, the Authority remands the award for determination of an 

alternative remedy.383 In addition, when the Authority is unable to determine whether 

the award is deficient, the Authority generally will remand the award to the parties for 

resubmission to the arbitrator for clarification, absent settlement.384

 

382 E.g., U.S. Dep’t of Energy, W. Area Power Admin., Lakewood, Colo., 67 FLRA 376, 377 (2014) (modifying 

award); AFGE, Council of Prison Locals, Local 4052, 65 FLRA 734, 737 (2011) (setting aside and remanding 

for an alternative remedy); Oak Ridge, 64 FLRA at 538 (setting aside portion of award, remanding for an 

alternative remedy, and directing selection of a different arbitrator if either party objects to resubmission 

to the arbitrator who adjudicated the case).

383 E.g., Immigration Servs., 68 FLRA at 1077 (setting aside portion of award and remanding for an 

alternative remedy); U.S. DOJ, Fed. BOP, Metro Det. Ctr., Guaynabo, San Juan, P.R., 67 FLRA 417, 420 (2014) 

(same).

384 E.g., U.S. DOJ, Fed. BOP, Fed. Corr. Inst., Bastrop, Tex., 69 FLRA 176, 180 (2016).
58

§ 3

COMPLIANCE WITH AWARDS & JUDICIAL REVIEW

3.1 Compliance with Arbitration Award

Parties must comply with a final and binding arbitration award.385 A party’s 

failure to do so is a ULP under § 7116(a)(8) (for agencies) and § 7116(b)(8) (for unions) of 

the Statute. As stated previously, an award becomes final and binding when: (1) the 

period for filing exceptions expires; (2) the Authority issues a decision resolving 

exceptions; or (3) exceptions are withdrawn.386 The issue of compliance with an 

arbitration award arises in various types of cases.

One type of case is where a party has filed timely exceptions that are pending 

before the Authority. An award is not final and binding, and compliance is not 

required, while those exceptions are pending.387

A second type of case is where neither party has filed (timely) exceptions, or 

exceptions have been filed but later are withdrawn. In this type of case, the award 

becomes final and binding – i.e., compliance with the award is required – when the 

30-day period for filing exceptions has expired (or, if exceptions are withdrawn after the 

30-day period, when the exceptions are withdrawn). Once the award becomes final and 

binding, the parties may not challenge the validity of the award in any ULP 

proceedings involving a refusal to implement the award.388 Those ULP proceedings 

will focus solely on whether there has been compliance with a final and binding award 

of an arbitrator, as required by § 7122(b), and not on the validity of the award. Thus, it 

is important for parties who wish to challenge an award to file timely exceptions; 

otherwise, they may not later raise their challenges to the Authority or the courts, even 

if their arguments otherwise might have merit.

A third type of case is where timely exceptions to the award have been filed 

with, but denied by, the Authority. In this type of case, once the exceptions are denied, 

the award becomes final and binding (i.e., parties must comply). And, again, the 

parties may not relitigate the merits of their exceptions in a ULP proceeding before 

either the Authority or the courts.389

 

385 See 5 U.S.C. § 7122(b).

386 Customs, 48 FLRA at 940.

387 U.S. Dep’t of the Navy, Naval Surface Warfare Ctr., Indian Head Div., Indian Head, Md., 56 FLRA 848, 

851-52 (2000).

388 E.g., U.S. Air Force, Air Force Logistics Command, Wright-Patterson Air Force Base, Ohio, 15 FLRA 151, 153 

(1984), aff’d sub nom. Dep’t of the Air Force v. FLRA, 775 F.2d 727 (6th Cir. 1985). 

389 E.g., Dep’t of HHS, SSA v. FLRA, 976 F.2d 1409, 1413 (D.C. Cir. 1992); BOP v. FLRA, 792 F.2d 25, 28-29 

(2d Cir. 1986); U.S. Marshals Serv. v. FLRA, 778 F.2d 1432, 1436-37 (9th Cir. 1985). 
59

3.2 Judicial Review

Under § 7123(a)(1) of the Statute, there is no judicial review of Authority 

decisions that resolve exceptions to arbitration awards, “unless the [Authority’s] [o]rder 

involves [a ULP].”390 The pertinent legislative history of the Statute provides: “In light 

of the limited nature of the Authority’s review, the conferees determined that it would 

be inappropriate for there to be subsequent review by the court of appeals in such 

matters.”391

Consistent with that legislative history, the D.C. Circuit has stated that 

“[i]nsulating arbitration awards from judicial review reflects ‘a strong [c]ongressional 

policy favoring arbitration of labor disputes’ and furthers ‘Congress’s interest in 

providing arbitration [awards] substantial finality.”392 The D.C. Circuit also has stated 

that the “limited exception that allows . . . judicial review . . . furthers Congress’s other 

stated interest of ensuring a single, uniform body of case law concerning [ULPs].”393

In Broadcasting Board of Governors, Office of Cuba Broadcasting v. FLRA (BBG 

Cuba),394 the D.C. Circuit reiterated its prior holdings that, to be judicially reviewable, 

the Authority’s order must “involve[]” a statutory ULP, and stated:

The word “involves” is far from precise. Simplifying our task, this Court 

has addressed the word’s scope in a series of decisions, all of which 

faithfully respect Congress’s desire to limit judicial review of arbitration 

awards. We first considered the meaning of “involves” in Overseas 

Education Association v. FLRA,

[395]

in which we held that “a statutory [ULP] 

[must] actually be implicated to some extent in the [FLRA’s] order,” so 

even if certain conduct is “capable of characterization as a statutory 

[ULP] . . . [,] the conduct must actually be so characterized and the claim 

pursued, by whatever route, as a statutory [ULP], not something else.”[396]

Not only that, but in [AFGE], Local 2510 v. [FLRA],[

397] . . . we emphasized 

that even when an aggrieved party argues that the other party committed 

a statutory [ULP], and even when the arbitrator’s award addresses that 

alleged [ULP], “it is the order of the [FLRA] that is the subject of the 

petition for judicial review,” not the arbitrator’s decision or the initial 

 

390 5 U.S.C. § 7123(a)(1).

391 H.R. Rep. No. 95-1717, at 153 (1978) (Conf. Rep.), reprinted in 1978 U.S.C.C.A.N. 2860, 2887.

392 U.S. Dep’t of the Navy, Naval Undersea Warfare Ctr. Div., Newport, R.I. v. FLRA, 665 F.3d 1339, 1344 

(D.C. Cir. 2012) (Navy) (quoting Ass’n of Civilian Technicians, N.Y. State Council v. FLRA, 507 F.3d 697, 699 

(D.C. Cir. 2007) (ACT N.Y.)).

393 ACT N.Y., 507 F.3d at 699.

394 752 F.3d 453 (D.C. Cir. 2014).

395 824 F.2d 61 (D.C. Cir. 1987).

396 Id. at 66.

397 453 F.3d 500 (D.C. Cir. 2006).
60

grievance.[398] That order, moreover, must do more than merely 

acknowledge a[ ULP]. As we made clear in Department of the Interior v. 

FLRA,

[399] a “passing reference does not satisfy the requirement that a

[ULP] be an explicit ground for or necessarily implicated by the [FLRA’s] 

decision.”[400] We thus concluded that we lack jurisdiction where, as in 

that case, the FLRA describes a[ ULP] claim solely to “reject the notion 

that a[ ULP] claim is any part of the case before [it].”[401] Reinforcing this 

requirement, we held in ACT,

[402]

that the order must “contain a 

substantive discussion of a[ ULP] claim”[403] – though we later clarified in 

Department of the Navy v. FLRA,

[404]

that the discussion need not be 

“explicit”[405](holding that when an FLRA order “necessarily implicates a 

statutory [ULP],” we have jurisdiction even if the order never “explicitly 

discuss[es]” the [ULP]).406

Further, the D.C. Circuit has held that “[w]here a successful claim could not possibly have 

been upheld based on [a] contract because the contract provided no ground for the 

Authority’s decision, the Authority’s decision necessarily implicates” a ULP.407

Additionally, while the D.C. Circuit has entertained constitutional challenges,408

the D.C. Circuit also has stated that “[r]outine statutory and regulatory questions” –

such as the meaning of certain terms in the BPA – “are not transformed into 

constitutional or jurisdictional issues merely because a statute waives sovereign 

immunity.”409 Finally, other courts of appeals also have addressed § 7123 and have 

further elaborated on the circumstances under which court review is precluded.410

 

398 Id. at 504.

399 26 F.3d 179 (D.C. Cir. 1994).

400 Id. at 184.

401 Id.

402 507 F.3d 697 (D.C. Cir. 2007).

403 Id. at 700.

404 665 F.3d 1339 (D.C. Cir. 2012).

405 Id. at 1345.

406 BBG Cuba, 752 F.3d at 457.

407 Navy, 665 F.3d at 1345.

408 See Griffith v. FLRA, 842 F.2d 487, 490 (D.C. Cir. 1988).

409 Scobey, 754 F.3d at 823.

410 See, e.g., Begay v. Dep’t of the Interior, 145 F.3d 1313, 1316 (Fed. Cir. 1998) (ULP was not “an explicit or a 

necessary ground” addressed in the Authority decision, as grievance did not allege ULP, grievant did not 

otherwise file ULP charge with Authority, and the Authority did not address any ULPs in its decision); 

AFGE, Local 916 v. FLRA, 951 F.2d 276, 278-79 (10th Cir. 1991) (to support judicial review, a ULP “must be 

an actual part, not just a foregone alternative characterization or a potential consequence, of the 

underlying controversy,” and review was not appropriate where the arbitrator and Authority did not 

consider, “explicitly or impliedly,” whether a statutory ULP had been committed); Tonetti v. FLRA, 

776 F.2d 929, 931 (11th Cir. 1985) (ULP was not “a necessary ground” for Authority’s decision where 

there was no assertion that agency violated § 7116, and the Authority’s decision made no reference to any 

such violation).
61

AFTERWORD

We hope that this Guide has proved helpful. Although it is not an official 

interpretation of the Statute and/or the Authority’s Regulations, and it is not official 

policy of the Authority, we believe that this Guide can be helpful to litigants, neutrals, 

and others. As stated previously, we encourage you to visit the Authority’s website, at 

www.FLRA.gov, to access even more information and guidance, including the wording 

of the Statute and the FLRA’s Regulations, the Authority’s published decisions, and 

other guidance and training materials that the FLRA has developed.