Slide 1

Navigating 

the 

Negotiability Process

August 16, 2017
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8/16/2017 2 Navigating the Negotiability Process

?
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8/16/2017 3 Navigating the Negotiability Process
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Personnel policies, practices, 

and matters, established by 

rule, regulation, or “otherwise,” 

affecting working conditions.

Navigating the Negotiability Process 8/16/2017 4

• 5 U.S.C. § 7103 (a)(14)
Slide 5

Hatch Act political activity

Classification matters

Matters “specifically provided for by 

[f]ederal statute”

Navigating the Negotiability Process 8/16/2017 5

• 5 U.S.C. § 7103(a)(14)

• Hatch Act: 5 U.S.C. §§ 7321-7326

• Classification matters as defined in 5 C.F.R. § 511.101
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8/16/2017 6 Navigating the Negotiability Process
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 Mandatory

• Must bargain

 E.g., 5 U.S.C. § 7106(b)(2) & (3)

 Prohibited

• Cannot agree to (law prohibits)

 E.g., 5 U.S.C. § 7106(a) (where no exception applies)

 Permissive

• May bargain/agree to

 E.g., 5 U.S.C. § 7106(b)(1); agreements to bargain below 

level of recognition

Navigating the Negotiability Process 8/16/2017 7

• 62 FLRA 174, 182 (agreeing to bargain below the level of recognition 

is a permissive subject of bargaining)
Slide 8

Look at each proposal or provision in 

petition.

Is the Agency saying not now or never?

Navigating the Negotiability Process 8/16/2017 8

• E.g., 65 FLRA 738, 741
Slide 9

Examples of bases of negotiability 

claims:

• statutes (including Federal Service LaborManagement Relations Statute)

• executive orders

• government-wide rules and regulations

• agency regulations with “compelling need”

Navigating the Negotiability Process 8/16/2017 9
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Proposals: Prohibited and permissive are 

outside the duty to bargain

Provisions: Only prohibited may be 

disapproved by Agency head

Navigating the Negotiability Process 8/16/2017 10
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Prior agreement doesn’t mean it’s within 

the duty to bargain now. 

Nor does the fact that proposal reflects an 

existing Ag policy or practice (e.g., Ag 

regulation).

Navigating the Negotiability Process 8/16/2017 11

• Prior agreement: e.g., 61 FLRA 554, 557
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 Not required to bargain under current 

circumstances.

• E.g., “covered by,” “de minimis”

 No ULP remedies

 Dismiss petition/portion of petition if only 

b-o dispute; any resolution of b-o dispute 

must occur in other proceedings (such as 

grievance or ULP)

Navigating the Negotiability Process 8/16/2017 12

• 5 C.F.R. § 2424.40(a) (“with the exception of an order to bargain,” an 

Authority decision and order in a negotiability proceeding “will not 

include remedies that could be obtained in an unfair-labor-practice 

proceeding under 5 U.S.C. § 7118(a)(7)”)
Slide 13

 For example:

1) “covered by”

2) “de minimis”

3) trying to bargain at wrong level

4) proposal outside the scope of the change

 See also OGC ULP Case-Law Outline

Navigating the Negotiability Process 8/16/2017 13

• OGC ULP Case-Law Outline available at 

https://www.flra.gov/resources-training/resources/guides-manuals
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 Don’t have statutory duty to bargain over 

conditions of employment that have already 

been resolved by bargaining.

 Two-prong test:

1) Is subject matter expressly contained in the 

agreement?

2) If not, is the subject matter inseparably bound up 

with, and thus plainly an aspect of, a subject 

expressly covered by the agreement

Navigating the Negotiability Process 8/16/2017 14

• No statutory duty where already resolved: e.g., 68 FLRA 580, 582

• Two-prong test: e.g., 66 FLRA 213, 216
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 “Expressly Contained in the Agreement”

• Exact congruence of language not needed.

• Would a reasonable reader conclude that the 

contract provision settles the matter in dispute?

• Does proposal modify or conflict with the 

express terms of the contract provision?

Navigating the Negotiability Process 8/16/2017 15

• E.g., 66 FLRA 213, 216; 66 FLRA 124, 126; 60 FLRA 572, 573-74
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“Inseparably Bound Up With”

• Matter in proposal must be more than 

tangentially related to a contract provision

• Is the matter so commonly considered to be 

an aspect of a matter in the parties’ 

agreement that negotiations can be 

presumed to have foreclosed further 

bargaining?

Navigating the Negotiability Process 8/16/2017 16

• E.g., 66 FLRA 213, 216
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At term negotiations.

When no term agreement is in 

effect.

Where the agreement specifically 

contemplates bargaining.

Navigating the Negotiability Process 8/16/2017 17

• Term negotiations: e.g., 68 FLRA 334, 338

• No term agreement: e.g., 57 FLRA 185, 193

• Agreement contemplates: e.g., 68 FLRA 580, 582-83
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 Examples of proposals covered by 

agreement:

• E.g., 67 FLRA 482, 484-87; 66 FLRA 213, 218; 62 FLRA 

174, 178-79; 56 FLRA 798, 803-05.

 Examples of proposals not covered by 

agreement:

• E.g., 68 FLRA 580, 582-83; 66 FLRA 124, 126; 64 FLRA 

879, 882-83.

Navigating the Negotiability Process 8/16/2017 18
Slide 19

 Ag has no duty to bargain over changes that 

have only “de minimis” effects on unit 

employees’ conditions of employment.

 Authority looks to nature and extent of the 

effects, or reasonably foreseeable effects, of 

the change.

 Number of employees not dispositive.

Navigating the Negotiability Process 8/16/2017 19

• No duty where de minimis: e.g., 64 FLRA 85, 89

• Look to effects, or reasonable foreseeable effects: Id.

• Number not dispositive: e.g., 64 FLRA 166, 173

• Decisions addressing: 64 FLRA 166, 173-74; 64 FLRA 85, 89-90; 

60 FLRA 315, 318; 60 FLRA 169, 175-76; 59 FLRA 728, 728-29; 59 FLRA 

646, 654-55; 21 FLRA 580, 585-86
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Required to bargain only at “level of 

recognition.”

Bargaining below = permissive subject

Note: If level of recognition is lower level 

of agency, then can’t avoid bargaining 

just because subjects also may be 

subject to bargaining at higher level.

Navigating the Negotiability Process 8/16/2017 20

• Req’d only at “level of recognition”: e.g., 62 FLRA 174, 182

• Bargaining below: Id.

• Bargaining req’d at lower and higher level: e.g., 67 FLRA 34, 37 (“an 

agency may not refuse to bargain merely because the matters over 

which the union demands bargaining are, or may be, subject to 

negotiations at a higher organizational level”)
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21 Navigating the Negotiability Process 8/16/2017
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8/16/2017 22 Navigating the Negotiability Process

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Initiates process before Authority

Only U may file

Process depends on whether 

Proposal or Provision

Navigating the Negotiability Process 8/16/2017 23
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Navigating the Negotiability Process 8/16/2017 24

Proposal: language offered for 

bargaining that parties haven’t agreed 

to — Ag has declared outside the duty 

to bargain

Provision: contract language that U and 

Ag negotiators have agreed to as part of 

their CBA or FSIP has imposed; 

disapproved on Ag-head review

• 5 C.F.R. §§ 2424.2(c) & 2424.2(e)

• Id. § 2424.2(f)

• Ag-head review under 5 U.S.C. § 7114(c)
Slide 25

For Proposals

Ag says: Outside the duty to 

bargain

No particular degree of 

specificity required

Navigating the Negotiability Process 8/16/2017 25

• 61 FLRA 97, 98 (no particular degree of specificity required)
Slide 26

For provisions

Ag head says: Contrary to law, 

rule, or regulation

Cannot disapprove permissive

Navigating the Negotiability Process 8/16/2017 26

• 5 U.S.C. § 7114(c)(2)

• Cannot disapprove permissive: e.g., 61 FLRA 336, 339
Slide 27

Proposal Provision

At the bargaining table Executed agreement or 

FSIP-imposed wording

Agency rep declares 

proposal nonnegotiable

Agency head disapproves

Can declare nonnegotiable 

at any time

Must disapprove within 30 

days

Agency chooses whether to 

bargain over permissive 

subjects

Cannot disapprove 

permissive subject

Navigating the Negotiability Process 8/16/2017 27
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 Solicited allegation of nonnegotiability

• U requests (in writing), and Ag responds 

w/ written allegation: U must file within 

15 days of service of allegation

• U requests (in writing), but Ag doesn’t 

respond: U can file at any time after 

10-day period for Ag response. 

Navigating the Negotiability Process 8/16/2017 28

• 5 C.F.R. § 2424.21
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Sunday Monday Tuesday Wednesday Thursday Friday Saturday

1 2 3 4

Agency 

says nonnegotiable

5

Filing 

clock 

starts

6 7

8 9 10 11 12 12 14

15 16 17 18 19

Petition 

DUE!

20 21

22 23 24 25 26 27 28

29 30

Navigating the Negotiability Process 8/16/2017 29

Union 

request

• 5 U.S.C. § 7117(c)(2)

• 5 C.F.R. § 2424.21(a)
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Sunday Monday Tuesday Wednesday Thursday Friday Saturday

1 2 3 4 5 6 7

8 9 10 11 12

Tenth 

day, now 

what?

13 14

15 16 17 18 19 20 21

22 23 24 25 26 27 28

29 30

Navigating the Negotiability Process 8/16/2017 30

Union 

request

• 5 C.F.R. § 2424.21(b)
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 Unsolicited allegation of nonnegotiability

• U doesn’t request, but Ag gives (in writing)—two 

options, U can:

1. file petition but it must do so timely (within 15 days); or

2. not file petition and later request written allegation if U 

wants to pursue an appeal.

 In (2), when U requests: if Ag gives written allegation, 

U must file within 15 days; if Ag doesn’t, U can file any 

time after 10-day period

• Ag may provide unsolicited allegation before the FSIP, 

and the same rules apply

Navigating the Negotiability Process 8/16/2017 31

• 5 C.F.R. §§ 2424.11(c) & 2424.21(a)-(b); 52 FLRA 1429, 1435

• FSIP context: 50 FLRA 121, 121-22
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Within 15 days of service of Ag-head 

disapproval

Navigating the Negotiability Process 8/16/2017 32

• 5 C.F.R. § 2424.21(a)(2)
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8/16/2017 33 Navigating the Negotiability Process

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1) U Petition for Review

2) Post-Petition Conference

3) Ag Statement of Position

4) U Response

5) Ag Reply

34 Navigating the Negotiability Process 8/16/2017
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High Standard

• Necessary to resolve disputed issues of 

material fact.

Authority rarely grants hearing requests; 

almost always relies on documents in the 

record.

35 Navigating the Negotiability Process 8/16/2017

• Hearing Request Standard: 5 C.F.R. § 2424.31
Slide 36

 Forms (including eFiling) or 

same info 

 In proposal cases, Ag’s 

written allegation of 

nonnegotiability or evidence 

that U requested

 In provision cases, copy of 

Ag-head disapproval

 Exact wording of proposals

 Special terms explained

 Copies of Ag 

regs/instructions

 Meaning & operation

 Supporting arguments

 Any related proceedings 

 Hearing request

 Severance 

 Reps’ info

 Statement of service

36 Navigating the Negotiability Process 8/16/2017
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 Within 30 days of Ag head’s receipt of petition

 Forms (including eFiling) or equivalent

 Must contain all arguments why proposals 

outside duty to bargain/provisions contrary to 

law

 Any disagreements regarding meaning & 

operation

 Any disagreements regarding severance

37 Navigating the Negotiability Process 8/16/2017

• Agency’s Statement of Position: 5 C.F.R. § 2424.24
Slide 38

 Within 15 days of receiving Ag’s SOP

 Forms (including eFiling) or equivalent

 Must discuss any claims from SOP that U 

disagrees with

 If not previously provided:

• Copies of Ag regs

• Any requests for severance

38 Navigating the Negotiability Process 8/16/2017

• Union’s Response: 5 C.F.R. § 2424.25
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 Must file within 15 days after Ag receives copy of 

U’s response

 Forms (including eFiling) or equivalent

 Created by regulation to allow Ag to respond to 

facts or arguments made for the first time in U’s 

response

 May not raise new arguments/bases for nonnegotiability that could have been raised in SOP

39 Navigating the Negotiability Process 8/16/2017

• Agency’s Reply: 5 C.F.R. § 2424.26
Slide 40

40

 Written request for permission

 Additional submissions may be filed only in 

“extraordinary circumstances.”

 Parties encouraged to include submission 

along with request

 Amicus requests will be granted only if 

Authority deems “appropriate.”

Navigating the Negotiability Process 8/16/2017

• Extraordinary Circumstances: 5 C.F.R. § 2424.27

• Amicus Requests: 5 C.F.R. § 2424.27
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Chief, Case Intake and Publication 

(CIP)

Federal Labor Relations Authority

Docket Room, Suite 200

1400 K Street NW.

Washington, DC 20424-0001

Phone = (202) 218-7740

Fax = (202) 482-6657 (only motions)

41 Navigating the Negotiability Process 8/16/2017
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 eFiling

 In person

 Commercial delivery

 First-class mail

 Certified mail

 NOT fax (except for motions)

42 Navigating the Negotiability Process 8/16/2017

• How to File: 5 C.F.R. § 2429.24
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Navigating the Negotiability Process 8/16/2017 43
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Navigating the Negotiability Process 8/16/2017 44
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For eFiled: Any calendar day (including 

Saturdays, Sundays, and holidays) or time 

(by midnight EST), but don’t have to on 

weekends/holidays

For in-person: Monday through Friday 

(not holidays), 9 a.m. to 5 p.m. EST

45 Navigating the Negotiability Process 8/16/2017
Slide 46

 Parties must serve other parties with copies of everything 

they file with Authority. 

 U must serve Ag head (in addition to principal Ag 

bargaining rep).

 Methods:

• Certified mail

• First-class mail

• In person

• Email (ONLY if other party consents)

• NOT fax (except service of motions)

46 Navigating the Negotiability Process 8/16/2017

• Service Requirements: 5 C.F.R. § 2424.2(g)
Slide 47

Original and 4 copies of everything must 

be filed with Authority (except eFile). 

Table of contents if over 10 doublespaced pages (except fillable forms in 

eFiling). 

Signed statement of service (or eFile

certification).

47 Navigating the Negotiability Process 8/16/2017

• Original and 4 copies: 5 C.F.R. § 2429.25

• Table of contents: 5 C.F.R. § 2429.29

• Statement of service: 5 C.F.R. § 2429.27(c)
Slide 48

 Minor/technical – Authority will allow party to 

correct mistake (by deficiency order)

 But failure to file timely – dismiss petition with 

prejudice (after show-cause order)

 Failure to respond to Authority order:

• Dismiss petition (for U failure)

• Order bargaining or withdrawal of Ag-head 

disapproval (for Ag failure)

48 Navigating the Negotiability Process 8/16/2017
Slide 49

Proposal or provision nonnegotiable

Failure to comply with certain 

procedural and other requirements

No negotiability dispute (look to 

each proposal/provision)

• E.g., if only bargaining-obligation 

dispute.

49 Navigating the Negotiability Process 8/16/2017

• No negotiability dispute: e.g., 65 FLRA 738, 741

• Bargaining-obligation dispute: 5 C.F.R. § 2424.2(d)
Slide 50

 Mootness

• No advisory opinions. 

• Jurisdictional – burden on party arguing

• But Authority may raise “sua sponte”

• Issues that led to filing of petition resolved, or no 

longer a dispute between the parties. 

 E.g., not bargaining over wording in petition 

 E.g., date already passed

 E.g., parties reached agreement

50 Navigating the Negotiability Process 8/16/2017

• No advisory opinions: 5 C.F.R. § 2429.10

• Issues resolved: 66 FLRA 393, 393

• Not bargaining over wording in petition: 67 FLRA 280, 281-83

• Date already passed: 58 FLRA 409, 410

• Parties reached agreement: 52 FLRA 251, 254
Slide 51

 “Directly Related” to ULP or Grievance

• Generally dismiss petition if U has filed ULP 

charge or grievance alleging ULP.

• Exception in “compelling need” cases.

• Dismissal without prejudice: U may refile 

petition within 30 days of administrative 

resolution of ULP charge or grievance, if negot

issue has not been resolved.

51 Navigating the Negotiability Process 8/16/2017

• Grievance was directly related to petition: 56 FLRA 796, 797

• Grievance wasn’t directly related: 66 FLRA 1038, 1038-39
Slide 52

If petition seeks review of proposal/ 

provision that has not “substantively 

changed” from prior petition; or

Authority dismissed previous petition 

with prejudice,

Then Authority will dismiss petition.

52 Navigating the Negotiability Process 8/16/2017

• Not substantially changed from prior petition: 56 FLRA 236, 237-38

• Dismissed previous petition with prejudice: 5 C.F.R. § 2424.32(d)
Slide 53

CADR

53 flra.gov/CADRO CADRO@flra.gov
Slide 54

Litigate negotiability 

petition

Part of ULP before ALJ or 

arbitrator

CADR

54

Generally not Federal Service Impasses Panel unless 

“substantively identical” to previous proposal or provision.

Navigating the Negotiability Process 8/16/2017

• 5 C.F.R. § 2424.10 (“Collaboration and Alternative Dispute Resolution 

Program”)

• Arbitrators and ALJs authorized to determine negotiability issues in 

ULP context: 64 FLRA 443, 446-47

• Panel jurisdiction: Carswell, 31 FLRA 620, 624
Slide 55

55

ADR = Spectrum of procedures other than 

litigation, effective for solving problems rather 

than just settling disputes

Navigating the Negotiability Process 8/16/2017
Slide 56

1. Check box in petition

2. Request during post-petition 

conference

56

flra.gov/CADRO 
Slide 57

57
Slide 58

 Most often: Reach 

full agreement 

resolving all 

language disputes.

 Sometimes: At least 

resolve legal 

questions. They finish 

the rest through 

collective bargaining.

 Rarely: Proceed for 

decision by the 

Authority.

 Abeyance, remains in 

queue

 Pragmatic

 Federal-sector expertise

 Help you assess risks, 

opportunities

58 Navigating the Negotiability Process 8/16/2017
Slide 59

59

Litigate ADR

Vindication V

Neutral opinion V

Solve problem V

Control V

Risk V

Communication V

Emotions V

Constituents V

Compliance V

Litigate ADR

Precedent V

Q of fact/law V

All/None V

Cost V

Speed V

Voluntary V

Confidential V

Relationship V

Informed choice V
Slide 60

ADR

 Almost any issue 

can be appropriate 

for ADR!

 RIF procedures

 Representation duties 

outside of the employee's 

own bargaining unit

 Attorney fees

 Call back overtime

 HSPD-12 SmartIDs

 BUE access to the base 

galley

 Furloughs for uncommon 

TOD

 Disciplinary action 

against probationary 

employees

 New office locations & 

closing offices

60

Examples of successful issues

Navigating the Negotiability Process 8/16/2017
Slide 61

from CADR .

61
Slide 62

 Call from CADRO staff

 CIP normally sends 

abeyance order

 Schedule initial 

session

62

 Initial joint session

• About 1 hour long

• Clarify disputed 

language & legal 

concerns

• Explore interests

• Collect additional 

information

• Answer questions

• Schedule next session

Navigating the Negotiability Process 8/16/2017
Slide 63

 Between sessions

• CADRO research

• Calls, email with 

parties

• Preparation

63

 Next session(s)

Normally,

• Day-long

• By phone and/or video

• 1st: brief joint session

• Mostly caucuses

• Ground rule: 

mutual respect

Navigating the Negotiability Process 8/16/2017
Slide 64

 (a) a neutral in a dispute 

resolution proceeding shall not 

voluntarily disclose or through 

discovery or compulsory process 

be required to disclose any 

dispute resolution 

communication or any 

communication provided in 

confidence to the neutral, ...

 (b) A party to a dispute resolution 

proceeding shall not voluntarily 

disclose or through discovery or 

compulsory process be required 

to disclose any dispute 

resolution communication, ...

 ...

 (d) (1) The parties may agree 

to alternative confidential 

procedures for disclosures by 

a neutral.

 (2) To qualify for the 

exemption [from FOIA], an 

alternative confidential 

procedure under this 

subsection may not provide 

for less disclosure than the 

confidential procedures 

otherwise provided under this 

section.

64

[Subject to statutory exceptions, ...]
Slide 65

for CADR .

65 Navigating the Negotiability Process 8/16/2017
Slide 66

 Scope

 Distinguish:

• Nonnegotiable 

• No bargaining 

obligation

• Not agreeable

 Participants have:

• Authority to settle 

• Knowledge of issue(s)

 Written agreement to 

mediate

 Prepare & share info

 Educate constituents

 Step back from positions, 

prepare to describe

• The problem (i.e., the 

issue)

• Why you care (i.e., 

your interests)

 Be ready to brainstorm 

creative ideas!

 Avoid the dreaded “oh 

by the way” 

66 Navigating the Negotiability Process 8/16/2017
Slide 67

 Willing to listen, ask & 

answer questions, explore 

new ideas and options

 Respectful, informal, 

conversational, patient

 Focus: 

• Goals, desires, fears, 

obstacles 

• Strengths & weaknesses 

• BATNA & WATNA

67 Navigating the Negotiability Process 8/16/2017
Slide 68

Michael Wolf Director mwolf@flra.gov

Merritt Weinstein Sr. D.R. Specialist mweinstein@flra.gov

Jayne Ricco Sr. D.R. Specialist jricco@flra.gov 68
Slide 69

Navigating the Negotiability Process 8/16/2017 69
Slide 70

 Authority, U rep(s), Ag rep(s)

 Normally by phone

 Parties must participate

 Party reps must be knowledgeable about dispute 

and have authority to discuss and resolve 

matters. Includes:

• Meaning

• Any disputed factual issues

• Objections to proposals/provisions

• Any related proceedings

Navigating the Negotiability Process 8/16/2017 70

• See 5 C.F.R. § 2424.32(d) for consequences of failure to participate.
Slide 71

 Authority rep will:

• Gather factual information about the dispute (including 

meaning and impact of proposals/provisions)

• Facilitate discussion, seek areas of agreement, discuss 

modifications to wording

• Decide issues concerning requests for extensions (but 

not waivers) of time

• Prepare written record (served on parties) – will not 

contain Ag legal objections; Ag must make in statement of 

position

Navigating the Negotiability Process 8/16/2017 71
Slide 72

If parties’ agreed meaning (or U’s 

explanation) consistent with wording, 

adopt; if not, don’t.

Provision cases – defer to parties that 

executed agreement, not Ag head.

Meaning adopted by Authority will apply 

in other proceedings.

Navigating the Negotiability Process 8/16/2017 72

• Parties agree on meaning: e.g., 65 FLRA 509, 510

• Parties disagree on meaning: e.g., 67 FLRA 654, 655-56; 66 FLRA 278, 

278; 51 FLRA 451, 459.

• Provisions: e.g., 65 FLRA 509, 514.

• Meaning adopted applies in other proceedings: e.g., 55 FLRA 562, 

564 n.9.
Slide 73

 Division of proposal/provision into separate 

parts with independent meaning, for purpose 

of determining whether any separate parts = 

within duty to bargain/contrary to law.

 U may request in petition or response.

 Ag may oppose; must explain why 

inappropriate.

Navigating the Negotiability Process 8/16/2017 73

• 5 C.F.R. §§ 2424.2(h), 2424.25(d). 

• 66 FLRA 1038, 1040 (where no severance request, if one section of 

proposal is outside duty to bargain, then entire proposal is outside 

duty to bargain).

• Ag may oppose: 5 C.F.R. §§ 2424.24(d) & 2424.26(d).
Slide 74

 Both: Create record & support arguments. 

 U: Within duty to bargain, not contrary to law, or permissive; 

any severance request (but can reserve that until response). 

 Ag: Outside duty to bargain or contrary to law; why 

severance is not appropriate (if U requested in petition).

 Failure to raise and support = waiver.

 Failure to respond = concession. 

 Failure to support = bare assertion.

Navigating the Negotiability Process 8/16/2017 74

• Create record & support: 5 C.F.R. § 2424.32(a)-(b).

• U’s burden: id. § 2424.32(a).

• Ag’s burden: id. § 2424.32(a)-(b).

• Waiver: id. § 2424.32(c)(1).

• Concession: id. § 2424.32(c)(2).

• Bare assertion: e.g., 66 FLRA 124, 128.
Slide 75

Proposals: Either dismiss petition or 

order bargaining

If proposal is permissive matter, order 

will say so

Provisions: Either dismiss petition or, if 

mandatory or permissive, order Ag head 

to rescind disapproval

Navigating the Negotiability Process 8/16/2017 75
Slide 76

Possible scenarios:

 Comply

 Timely move for reconsideration (within 10 days after 

service).

 Appeal to U.S. Court of Appeals within 60 days. But can’t 

make arguments that weren’t made to Authority (except in 

“extraordinary circumstances”).

 Report, to the appropriate Regional Director, any failure to 

comply – within a “reasonable period of time” after 60-day 

appeal time expires.

Navigating the Negotiability Process 8/16/2017 76

• Motion for reconsideration: 5 C.F.R. § 2429.17.

• Judicial review: 5 U.S.C. § 7123(a)(1). 

• Compliance: 5 C.F.R. § 2424.41.
Slide 77

Navigating the Negotiability Process 8/16/2017 77
Slide 78

Section 7117(a) defines the duty to 

bargain and limits that duty.

No duty if inconsistent with:

• any federal law,

• any government-wide rule/regulation, or

• any agency rule or regulation for which 

there is a compelling need.

Navigating the Negotiability Process 8/16/2017 78
Slide 79

Navigating the Negotiability Process 8/16/2017 79

Make the Statute your friend.
Slide 80

Proposals/provisions must concern BUEs’ 

“conditions of employment,” and may not 

concern:

• Hatch Act political activity

• Classification matters

• Matters “specifically provided for by [f]ederal

statute”

Navigating the Negotiability Process 8/16/2017 80

• “Conditions of Employment”

5 U.S.C. § 7103(a)(14)

• Hatch Act political activity

5 U.S.C. §§ 7321-7326

• Classification matters

Defined in 5 C.F.R. § 511.101

• “Specifically provided for”

E.g., 57 FLRA 373, 383
Slide 81

 § 7106(a)(1) – not limited by “applicable laws”

 § 7106(a)(2) – limited by “applicable laws”

 § 7106(b)(1) – permissive

 All include right to not act

 All limited by § 7106(b)(2) and (3)

 Proposal/provision may involve more than one right or 

exception – Authority addresses only those raised

Navigating the Negotiability Process 8/16/2017 81

• 5 U.S.C. § 7106.
Slide 82

Right to determine agency’s:

• Mission

• Budget

• Organization

• Number of Employees

• Internal-Security Practices

Navigating the Negotiability Process 8/16/2017 82

• Mission: 59 FLRA 159, 163; 58 FLRA 341, 342; 49 FLRA 333, 349; 

22 FLRA 868, 869

• Budget: 66 FLRA 124, 125; 61 FLRA 113, 116; 47 FLRA 980, 998; 

44 FLRA 18, 30

• Organization: 63 FLRA 530, 532; 58 FLRA 175, 178; 56 FLRA 444, 449

• Number of Employees: 46 FLRA 298, 316

• Internal-Security Practices: 66 FLRA 929, 931
Slide 83

Right to:

• Hire Employees

• Assign Employees

• Direct Employees

• Layoff Employees

• Retain Employees

Navigating the Negotiability Process 8/16/2017 83

• Hire: 62 FLRA 93, 94-95

• Assign: 65 FLRA 911, 913; 62 FLRA 508, 510; 61 FLRA 209, 218

• Direct: 65 FLRA 509, 511; 63 FLRA 505, 508; 63 FLRA 450, 453; 

62 FLRA 15, 17

• Layoff & Retain are Separate Rights with Different Definitions: 

58 FLRA 344, 345

• Layoff: 65 FLRA 911, 913

• Retain (separate from Layoff): 67 FLRA 85, 87; 60 FLRA 839, 841-42
Slide 84

Navigating the Negotiability Process 8/16/2017 84

Right to:

• Suspend Employees

• Remove Employees

• Reduce Grade or Pay of Employees

• Take Other Disciplinary Action Against

Employees

• Suspend: 19 FLRA 647, 650

• Remove: 11 FLRA 475, 482; 3 FLRA 3, 5-6

• Reduce Grade or Pay: 53 FLRA 539, 579

• Other Discipline: 65 FLRA 142, 145; 61 FLRA 341, 346; 60 FLRA 124, 

127; 53 FLRA 625, 679
Slide 85

Navigating the Negotiability Process 8/16/2017 85

Right to:

Assign Work

Contract Out

Determine Personnel

Make Selections to Fill Positions

Carry Out Mission in Emergencies

• Assign Work: 66 FLRA 819, 823; 64 FLRA 443, 447; 63 FLRA 505, 508; 

61 FLRA 97, 99

• Contract Out: 60 FLRA 595, 597; 48 FLRA 168, 204

• Determine Personnel: 61 FLRA 371, 373

• Selections/Positions: 61 FLRA 618, 622; 61 FLRA 226, 229; 56 FLRA 

1046, 1048

• Mission in Emergencies: 58 FLRA 549, 551; 31 FLRA 131, 132
Slide 86

Navigating the Negotiability Process 8/16/2017 86

All rights in § 7106(a) are “subject to” 

§ 7106(b), including:

• § 7106(b)(1)

• § 7106(b)(2)

• § 7106(b)(3)
Slide 87

 At the election of the agency, negotiate:

 Numbers, types, and grades

 Of employees or positions

Assigned to any-

• Organizational subdivision,

• Work project, or

• Tour of duty

Navigating the Negotiability Process 8/16/2017 87

• Enforceable in arbitration: 62 FLRA 90, 92

• Cannot be disapproved on agency-head review

• 61 FLRA 336, 338, 339

• If also concerns § 7106(b)(2) or (b)(3), then mandatory:

• 62 FLRA 341, 343

• Numbers: 57 FLRA 424, 426. Types & Grades: 52 FLRA 1024, 1032 & 

n.11, 1034. Organizational subdivision: 55 FLRA 925, 928; 54 FLRA 

1302, 1306; 52 FLRA 794, 802. Work Project: 55 FLRA 848, 853. Tour 

of Duty: 57 FLRA 424, 426.
Slide 88

Navigating the Negotiability Process 8/16/2017 88

 Technology, methods, & means of performing work

TECHNOLOGY

technical method used in accomplishing or furthering 

performance of agency’s work

METHODS

the way agency performs its work (the “how”)

MEANS

any instrumentality, including an agent, tool, device, 

measure, plan, or policy used by an agency for the 

accomplishment or furtherance of the performance of its 

work (“with what”)

• Technology of Performing Work: 58 FLRA 273, 275

• Methods & Means of Performing Work: 66 FLRA 499, 502; 66 FLRA 

639, 646; 66 FLRA 112, 115; 56 FLRA 69, 87-91. But see 64 FLRA 723, 

725.
Slide 89

The “procedures which management 

officials of the agency will observe in 

exercising” any management right under 

§ 7106

Look to the case law

Navigating the Negotiability Process 8/16/2017 89

• Must bargain despite effect on § 7106(a) or (b)(1) rights

• E.g., 61 FLRA 209, 220 (advance notice)

• E.g., 61 FLRA 327, 331-33 (requiring delayed exercise of mgmt. rights 

until bargaining complete)

• Cannot preclude management from assigning employees particular 

duties: 47 FLRA 512, 520

• Cannot substantively limit right to determine content of performance 

standards: 56 FLRA 1115, 1116 n.2

• Examples that were not procedures: 70 FLRA 100, 104; 68 FLRA 676, 

679
Slide 90

 “Appropriate arrangements for employees adversely 

affected by the exercise of any authority” under 

§ 7106(a) or § 7106(b)(1)

 Ask:

• Is it an arrangement?

• If so, is it appropriate?

 Must be “tailored”

 Within duty to bargain even if it’s not a procedure

Navigating the Negotiability Process 8/16/2017 90

• 56 FLRA 69, 69, 86-91 (appropriate arrangements for exercise of 

§ 7106(b)(1) rights)

• Must seek to mitigate adverse effects flowing from exercise of a 

management right. E.g., 68 FLRA 676, 679.

• Union must identify effects or reasonably foreseeable effects flowing 

from management rights, and explain how they’re adverse: 21 FLRA 

24, 31.

• “Tailored” to compensate/benefit adversely affected employees. 

Compare 66 FLRA 929, 940-41 (tailored), with 51 FLRA 1308, 1318-19 

(not tailored).

• Can’t be speculative or hypothetical, e.g., 59 FLRA 25, 29, but may be 

“prophylactic,” e.g., 64 FLRA 953, 959-60.
Slide 91

DIFFERENT TEST

for “Appropriateness”

 Proposals = KANG, “excessive interference”

• Weigh burdens on exercise of management rights against 

benefits to employees.

 Provisions = “abrogation”

• Does the arrangement “waive,” or preclude Ag from 

exercising, affected rights?

• But see D.C. Cir.: arbitrary and capricious to apply two 

different standards

Navigating the Negotiability Process 8/16/2017 91

• Different Test: 65 FLRA 509, 512

• Weighing burdens vs. benefits: KANG, 21 FLRA 24, 31-32; see also 

67 FLRA 316, 317-18

• Applying abrogation to provisions: 65 FLRA 509, 513, 515

• But see 739 F.3d 13, 21 (D.C. Cir. 2014) (reversing abrogation 

standard in provision dispute)
Slide 92

 When agency claims proposal or provision affects 

§ 7106(a)(2) rights, Authority may ask whether 

proposal/provision enforces an “applicable law.”

APPLICABLE LAWS

Lawfully enacted statutes (but not The Statute), the 

U.S. Constitution, controlling judicial decisions, 

executive orders issued pursuant to express 

statutory authorization, and regulations having the 

force and effect of law. 

Navigating the Negotiability Process 8/16/2017 92

• E.g., 61 FLRA 201, 206

• See Dep’t of the Treasury, IRS v. FLRA, 494 U.S. 922 (1990) (discussing 

the meaning of “applicable laws”)
Slide 93

 Generally, if Ag has discretion over a matter, 

then Ag must bargain over proposals 

concerning that matter.

 But if Ag’s discretion is “sole and exclusive,” 

then it would be contrary to law to require 

bargaining over that discretion.

 Sole-and-exclusive discretion may arise from 

statutes or regulations.

Navigating the Negotiability Process 8/16/2017 93

• Generally, if discretion, Ag must bargain: 55 FLRA 1, 4-5

• Sole-and-exclusive discretion: 59 FLRA 331, 346, 351

• Under statutes, Authority examines wording & legislative history: 

58 FLRA 246, 248-50

• If discretion under reg, Authority may consider interpretation of Ag 

that promulgated reg: 59 FLRA 331, 341-45

• See U.S. Dep’t of the Air Force, Luke AFB, Ariz. v. FLRA, 844 F.3d 957 

(D.C. Cir. 2016) (example of sole-and-exclusive discretion; no 

particular wording required to show Congressional intent to grant 

sole-and-exclusive discretion)
Slide 94

Ag rules and regs = rules, regulations, 

and official declarations of policy that 

govern the resolution of matters within 

particular agencies.

Generally within duty to bargain, unless 

Ag shows “compelling need” for 

rule/reg.

Navigating the Negotiability Process 8/16/2017 94

• Ag rules & regs: 37 FLRA 186, 193-94

• “Compelling need”: 5 U.S.C. § 7117(a)(2); Illustrative criteria: 5 C.F.R. 

§ 2424.50

• But “compelling need” does not apply if U “represents . . . a majority 

of employees in the issuing agency or . . . subdivision” to whom the 

rule/reg applies. Id. § 7117(a)(3); see 68 FLRA 407, 408-09.
Slide 95

 Claim must be resolved in negotiability 

proceeding. 

 Test under 5 C.F.R. § 2424.50: • Essential, not merely helpful or desirable, to accomplishment of mission or execution of functions of Ag or primary 

national subdivision in a manner that’s consistent with 

requirements of effective and efficient government;

• Necessary to ensure maintenance of basic merit principles; 

or

• Implements a mandate to the Ag or primary national 

subdivision under law or outside authority, which 

implementation is essentially nondiscretionary in nature.

Navigating the Negotiability Process 8/16/2017 95

• Must resolve in NG proceeding. E.g., 49 FLRA 534, 542.

• But see 67 FLRA 34 (compelling-need assertion cannot completely 

preempt bargaining process).
Slide 96

 Government-wide = Rules, regulations, and 

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

 Generally, if CBA preceded gov’t-wide 

regulation, CBA governs until it expires.

• Exception: gov’t-wide regulations that implement 5 U.S.C. 

§ 2302 (prohibited personnel practices).

Navigating the Negotiability Process 8/16/2017 96

• Proposal/provision cannot be inconsistent with gov’t-wide rule or reg: 

5 U.S.C. § 7117(a)(1)

• “Government-wide”: e.g., 53 FLRA 403, 416

• Generally, CBA applies if precedes gov’t-wide reg: 5 U.S.C. 

§ 7117(a)(7); 65 FLRA 817, 819

• Reciting standard with exception: 60 FLRA 398, 399 n.6
Slide 97

Prior agreement doesn’t mean it’s 

within the duty to bargain now

Nor does the fact that proposal 

reflects an existing Ag policy or 

practice (e.g., Ag regulation).

Navigating the Negotiability Process 8/16/2017 97

• Prior agreement doesn’t = negotiable: 61 FLRA 554, 557
Slide 98

Questions?

Evaluations

Navigating the Negotiability Process 8/16/2017 98