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U.S. FEDERAL LABOR RELATIONS 

AUTHORITY

Promoting and protecting labor-management relations for 

effective, efficient Government.

ANNUAL

PERFORMANCE 

PLAN & REPORT

2020
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TABLE OF CONTENTS

MESSAGE FROM THE CHAIRMAN ........................................................................................................1

MANAGEMENT’S DISCUSSION AND ANALYSIS................................................................................3

Background and Mission..........................................................................................................................3

Organizational Structure...........................................................................................................................4

Strategic and Performance-Planning Framework .....................................................................................6

Performance Overview.............................................................................................................................7

ANNUAL PERFORMANCE PLAN..........................................................................................................20

Strategic Goal 1: We will ensure quality, timely, impartial, and consistent investigative and decisionmaking processes with determinations that are clearly articulated. ........................................................22

Strategic Goal 2: We will develop and provide tools and resources to enable the parties to prevent or 

more effectively and efficiently resolve their labor-relations disputes and improve their labormanagement relationships.......................................................................................................................44

Strategic Goal 3: We will manage our resources effectively and efficiently, and recognize that our 

dedicated workforce is critical to the resolution of labor-relations disputes...........................................53

INSPECTOR GENERAL: TOP MANAGEMENT AND PERFORMANCE CHALLENGES FOR 

FISCAL YEAR 2020..................................................................................................................................70
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MESSAGE FROM THE CHAIRMAN

I am pleased to submit the 2020 Annual Performance Report (APR) for the Federal 

Labor Relations Authority (FLRA). Although this has been a challenging year with a 

key leadership vacancy remaining, it was also another successful and productive year.

FLRA, in one small agency, serves as investigator, prosecutor, adjudicator, and 

interest arbitrator for labor-management disputes involving 1.2 million Federal 

employees worldwide. The agency is committed to fostering an efficient and effective 

Federal Government, providing leadership in establishing policies and guidance 

related to federal-sector labor-management relations, and ensuring compliance with the Federal Service 

Labor-Management Relations Statute (the Statute), which it enforces.

In fiscal year (FY) 2020, FLRA operated under the Strategic Plan put in place for 2018-2022. In the 

Strategic Plan, we reaffirmed our commitment to chart the course of federal-sector labor-management 

relations through impartial, clear, and timely actions based on the Statute. We also renewed our focus on 

the legislative foundation enabling FLRA to serve as a responsible leader in this arena. In addition, 

FLRA began implementing the new and expanded performance measures set out in the Annual 

Performance Plan in the FY 2020 Congressional Budget Justification.

With respect to mission performance, 2020 was another strong year for FLRA, particularly given staffing 

and budget challenges. In 2020, the Authority closed a total of 136 cases by issuing merits decisions, up 

from 92 in 2019. This amounted to an increase from between 7 and 8 merits closures per month in 2019, 

to an average of 11 merits closures per month in 2020. Despite the productivity improvement, however, 

the Authority backlog increased because the Authority case intake for 2020 was up to 235 from 189 in 

2019. As a result, the Authority missed some of its 2020 targets.

Consistent with Congress’s statutory instruction, in 5 U.S.C. § 7117, that the Authority “expedite” 

negotiability proceedings “to the extent practicable,” the Authority prioritized negotiability cases and met 

its 2020 case processing goals in this case type. Additionally, pursuant to a memorandum of 

understanding (MOU) with the Federal Mediation and Conciliation Service (FMCS), FLRA trained 

FMCS mediators in negotiability law and began referring negotiability appeals to FMCS for mediation at 

no cost to the parties. This pilot partnership has been a success as FMCS mediators have resolved 71 

percent of the proposals or provisions referred to mediation.

As part of FLRA’s commitment to providing clear, understandable guidance to its customers, in 2020 the 

Authority culminated a two-year initiative to post each new decision with an accompanying digest. 

FLRA case digests that summarize each of the full-length, merits decisions are compiled on the Quarterly 

Digest Reports page. The FLRA expects that case-summary digests will provide customers with 

additional, easy-to-understand guidance and information regarding precedent. The Authority pursued this 

digest initiative as part of its commitment in the 2018-2022 Strategic Plan “to develop tools and 

resources” to assist the parties. The Authority has published more than 205 case-summary digests as an 

online resource for our parties. 

In 2020, the Federal Service Impasses Panel (FSIP) received 90 filings, up from 77 in 2019. The FSIP 

exceeded nearly all of its timeliness measures for assisting parties in resolving negotiation impasses.

However, in 2020, the historic overall average age for processing a FSIP case increased 18 percent to 100 

days from 82.5 days in 2019. This change resulted from an increase in the number of issues in the cases 

and parties tending to be less willing to settle the impasse. 

FLRA has been without a presidentially-nominated, Senate-confirmed General Counsel (GC) since 

January 20, 2017. Despite the challenges this vacancy created, the Office of General Counsel (OGC) 
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delivered strong results in 2020. Without a GC, no unfair labor practice (ULP) complaints could issue. 

Nevertheless, the OGC exceeded its strategic performance goals for the timely resolution of ULP cases, 

resolving nearly 93 percent of such cases by withdrawal, dismissal, or settlement of the ULP charge 

within 120 days of the charge’s filing date. It also exceeded its performance goals for timely resolution of 

representation cases, resolving 80 percent of representation petitions by withdrawal, election, or issuance 

of a Decision and Order within 120 days of filing.

The Agency staff has been remarkable in adapting to the pandemic’s multitude of challenge. 

Commencing March 12, 2020, the Agency went to and continues in maximum telework. Due to the 

strategic readiness of the Agency’s Information Resources Management Division (IRMD or IT) staff, 

FLRA was able to accelerate the plan to fully implement Webex video conferencing so FLRA employees 

could continue to operate at 100 percent capacity during maximum telework. This was not an easy feat 

and required many long hours to meet the immediate needs of an all-virtual workforce.

FLRA extended Agency work hours and eliminated Agency core hours during maximum telework to 

give personnel much needed flexibilities to promote work-life balance during COVID-19. FLRA has 

been extremely successful in maintaining a high level of productivity, due to the amazing dedication of 

staff, while also continuing to engage with staff through open and transparent communications.

The Agency halted all in-person filings and established protocols for virtual representation hearings. The 

Human Resources Division, IT Division, and Administrative Services Division all transitioned to virtual 

on-boarding of new employees and our summer law school interns, providing a seamless experience for 

all. The Administrative Services Division additionally spent hours tracking down the elusive pandemic 

supplies, including the personal protective equipment, touchless thermometers, disinfectant, plexiglass 

for workstation separation, etc., needed for a return to office environment.

In 2020, FLRA continued to execute its multi-year plan to achieve the long-term goal of implementing 

end-to-end electronic case files throughout the Agency. The Authority’s electronic Case Management 

System (CMS) has been completed, and completion for the OGC, FSIP and the rest of the agency is 

ongoing.

Per the strategic goal to “develop and provide tools and resources to enable the parties to prevent or more 

effectively and efficiently resolve their labor-relations disputes and improve their labor management 

relations,” in 2020, FLRA created video trainings which are accessed via FLRA’s new YouTube channel, 

receiving approximately 2,700 views since its inception on 4/29/2020 through the end of 2020.

Since 2019, the Authority received an unprecedented fifteen requests for policy statements or guidance. 

Pursuant to these requests, the Authority carefully considered those areas where its precedent required 

clarification or reexamination. Accordingly, in 2020, the Authority issued five policy statements to 

educate and guide the public, including regulatory revisions.

FLRA’s many successes and accomplishments could not have been achieved without the extraordinary 

efforts of our dedicated, diverse, and talented workforce who continue to deliver for our stakeholders and 

the American people. 

Colleen Duffy Kiko, Chairman 

Federal Labor Relations Authority 

January 11, 2021
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MANAGEMENT’S DISCUSSION AND ANALYSIS

The FLRA has elected to produce an Agency Financial Report (AFR), with a primary focus on financial 

results, and an Annual Performance Report (APR), which focuses on strategic goals and performance 

results, in lieu of a combined Performance and Accountability report (PAR).

The FLRA will submit its 2020 APR final draft to OMB on January 11, 2021, and, once approved, make 

it available on the FLRA website. Both the AFR and APR will be available on the FLRA website. 

BACKGROUND AND MISSION 

FLRA is an independent administrative Federal agency created by Title VII of the Civil Service Reform 

Act of 1978, also known as the Federal Service Labor-Management Relations Statute (the Statute), 

5 U.S.C. §§ 7101-7135. The purpose of the Statute is to prescribe certain rights and obligations of the 

employees of the Federal Government and to establish procedures that are designed to meet the special 

requirements and needs of the Government. Id. § 7101(b). The provisions of the Statute are to be 

interpreted in a manner consistent with the requirement of an effective and efficient Government. Id. 

Consistent with its statutory mandate, FLRA’s mission is: Protecting rights and facilitating stable 

relationships among Federal agencies, labor organizations, and employees while advancing an effective 

and efficient Government through the administration of the Statute. 

FLRA applies its Federal-sector expertise to execute its mission primarily by carrying out the following 

statutory responsibilities: 

1. Conduct hearings and resolve complaints of ULPs under § 7118 of the Statute. Id. § 7105(a)(2)(G).

FLRA is responsible for investigating, prosecuting, and adjudicating claims that an agency or a

labor organization has failed to uphold its legal obligations under the Statute.

2. Determine the appropriateness of units for labor-organization representation under the Statute, and

supervise or conduct elections to determine whether a labor organization has been selected as an

exclusive representative by a majority of employees in an appropriate unit. Id. § 7105(a)(2)(A).

FLRA also resolves disputes about which employees may be included in bargaining units under the

Statute. Id. § 7105(a)(2)(B).

3. Resolve exceptions to grievance-arbitration awards under § 7122 of the Statute.

Id. § 7105(a)(2)(H). FLRA adjudicates appeals – known as exceptions – to arbitration awards that

result from grievances filed by employees, labor organizations, or agencies under parties’ 

negotiated grievance procedures. The FLRA reviews those awards to assess whether they are

contrary to any law, rule, or regulation, or are deficient on other grounds similar to those applied by

Federal courts in private-sector labor-management disputes.

4. Resolve issues relating to the duty to bargain in good faith under § 7117(c) of the Statute.

Id. § 7105(a)(2)(E). FLRA resolves negotiability disputes that arise during bargaining under two

circumstances – when an agency claims that a contract proposal is outside the duty to bargain and

when an agency head disapproves a negotiated agreement claiming that it contains provisions that

are contrary to law, rule, or regulation.

5. Assist in resolving negotiation impasses between Federal agencies and exclusive representatives.

Id. § 7119.
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In addition, Congress directed FLRA to prescribe criteria and resolve issues relating to the granting of 

national consultation rights under § 7113 of the Statute; prescribe criteria and resolve issues relating to 

determining compelling need for agency rules or regulations under § 7117(b) of the Statute; prescribe 

criteria relating to the granting of consultation rights with respect to conditions of employment under 

§ 7117(d) of the Statute; and take such other actions as are necessary and appropriate to effectively 

administer the provisions of the Statute.

Moreover, FLRA is to “provide leadership in establishing policies and guidance” related to matters under 

the Statute. Id. § 7105(a)(1). FLRA satisfies this directive primarily through its written determinations, 

but also by offering training and other services.

ORGANIZATIONAL STRUCTURE

Headquartered in Washington, D.C., FLRA has three statutory components–the Authority, the Office of the 

General Counsel (OGC), and the Federal Service Impasses Panel (the FSIP or the Panel)–each with unique 

adjudicative or prosecutorial roles.

The Agency also provides full program and staff support to two other organizations–the Foreign Service 

Labor Relations Board and the Foreign Service Impasse Disputes Panel, pursuant to the Foreign Service 

Act of 1980, 22 U.S.C. §§ 4101-4118.
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Chief Executive and Administrative Officer

The President of the United States designates one Member as Chairman who serves as FLRA’s chief 

executive and administrative officer. 5 U.S.C. § 7104(b).

The Authority

The Authority – FLRA’s adjudicatory body – is led by three full-time, presidentially nominated and 

Senate-confirmed Members who are appointed to fixed, staggered five-year terms. The President 

designates one Member to serve as Chairman. The Chairman acts as the Agency’s Chief Executive and 

Administrative Officer.

The Authority is responsible for adjudicating ULP complaints, ruling on exceptions to arbitrators’ awards, 

resolving disputes over the negotiability of collective-bargaining proposals and provisions, and deciding 

applications for review of Regional Directors’ decisions in representation disputes. The Authority 

Members appoint Administrative Law Judges (ALJs) to hear and prepare recommended decisions that may 

be appealed to the Authority in cases involving ULP complaints.

Other offices and programs under the jurisdiction and supervision of the Authority include the Office of the 

Solicitor, the Federal Service Impasses Panel (FSIP), the Office of Administrative Law Judges (OALJ), the 

Office of Case Intake and Publication (CIP), and the Equal Employment Opportunity Program (EEO). 

Standing as an independent entity within the Authority is the Office of Inspector General.

The Office of the General Counsel

The Office of the General Counsel (OGC) is led by a presidentially appointed and Senate-confirmed 

General Counsel (GC) who has direct authority over, and responsibility for, all employees in the OGC, 

including those in FLRA’s Regional Offices. There has not been a Presidentially-nominated and Senateconfirmed GC since January 20, 2017, although under the Vacancies Act, there was an Acting GC through 

November 16, 2017. The OGC investigates and resolves ULP charges, files and prosecutes ULP 

complaints, and provides training, as appropriate. In addition, through delegation by the Authority, the 

Regional Offices investigate and resolve representation cases and conduct secret-ballot elections.

The General Counsel has a small staff at FLRA Headquarters, located in Washington, D.C. Headquarters 

management provides administrative oversight; develops policies, guidance, procedures, and manuals that 

provide programmatic direction for the Regional Offices and training and education for the parties; and 

processes appeals from the Regional Offices’ dismissals of ULP charges. Each Regional Office is headed 

by a Regional Director who provides leadership and management expertise for their respective regions. 

There are five Regional Offices: Atlanta, Georgia; Chicago, Illinois; Denver, Colorado; San Francisco, 

California; and Washington, D.C.
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The Federal Service Impasses Panel

The Federal Service Impasses Panel (FSIP) is composed of part-time Presidential appointees who are 

appointed to fixed, staggered five-year terms. The FSIP helps resolve negotiation impasses between 

Federal agencies and labor organizations representing Federal employees that arise from collectivebargaining negotiations under the Statute and the Federal Employees Flexible and Compressed Work 

Schedules Act. The FSIP Members are presidentially appointed (PA), but they are not subject to Senate

confirmation. In addition, pursuant to the President’s November 2019 delegation, they may be removed by 

a majority vote of the Authority. 

STRATEGIC AND PERFORMANCE-PLANNING FRAMEWORK

FLRA established strategies and goals designed to maximize the delivery of Agency services throughout 

the Federal Government through a comprehensive review – by leadership at all levels throughout the 

Agency – of its operations, staffing, work processes, resource allocations, and performance. Throughout 

2020, FLRA engaged in a continuous assessment of performance and other data to ensure that it 

accomplished its mission effectively and efficiently, and that it promoted innovation throughout the 

Agency.

FLRA’s 2020 performance-planning framework was initially based on the Agency’s 2020 Annual 

Performance Plan, which established the Agency’s annual performance goals and measures. The Annual 

Performance Plan reflects the Agency’s commitment to meaningful metrics to assist in assessing 

performance outcomes, aligning resources, and effectively identifying staffing and training needs. The 

2020 Annual Performance Plan, as set forth in the 2020 Congressional Budget Justification, was developed 

in 2019 to implement the 2018-2022 Strategic Plan.
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2018-2022 Strategic Plan

The 2018-2022 Strategic Plan established strategies and goals designed to maximize the delivery of 

Agency services throughout the Federal Government. In addition, FLRA identified performance goals that 

allowed the Agency to both monitor progress towards achieving its strategic goals and to recalibrate 

strategies, as necessary, for maximum mission performance.

This continued FLRA’s increased focus on targeted data collection and data-driven leadership and 

decision-making. In developing the strategic plan, FLRA referenced evidence-based performance and 

resource trends. Data collected was intended to measure progress against this strategic plan and overall 

mission performance and effectiveness.

FLRA’s vision, which drives achievement of its mission, is: Charting the course of Federal- sector labormanagement relations through impartial, clear, and timely actions by dedicated and accountable 

employees. Three strategic goals, each supported by several strategic objectives, guide FLRA’s pursuit of 

its vision and achievement of its mission.

FLRA developed this strategic plan against a canvas of strengths and challenges that can affect overall 

mission delivery. The source of FLRA’s internal strengths is its skilled workforce guided by the Agency’s 

values of transparency and accountability, along with its increasing focus on the innovative use of 

information technology (IT) and data-driven analysis. Challenges arise from budget uncertainty and 

Presidential-appointee vacancies. The goals and objectives in this plan support FLRA’s mission in light of 

these strengths and challenges.

FLRA sought to achieve its strategic goals primarily through the timely, high-quality, and impartial review 

and disposition of cases. The Agency supplemented these efforts with a focus on reducing litigation and its 

attendant costs by helping parties to resolve their own disputes through improved labor-management 

relationships. Further supporting these efforts in 2020 was FLRA’s continued focus on more effective and 

efficient use of human capital and internal improvements in IT.

PERFORMANCE OVERVIEW

Strategic Goal 1: We will ensure quality, timely, impartial, and consistent 

investigative and decision-making processes with determinations that are 

clearly articulated.

The Authority

The Authority began 2020 with renewed energy and staffing. During 2018 and 2019, the Authority 

experienced significant staffing shortages that hampered its case processing speed and resulted in a 

backlog. As a result, the Authority only averaged between 7 and 8 merits closures per month in 2019. 

However, as a result of its focus on filling vacancies and training new attorneys, the Authority increased 

its productivity and ended 2020 with an average of roughly 11.3 merits closures per month.

Because the Authority entered 2020 with a backlog, the cases it closed were older. This means that, 

despite its increased productivity, the Authority did not meet all of its targeted goals regarding caseprocessing timelines (as will be reflected in the Annual Performance Plan). For example, the Authority 

met its 210-day target in only 32 percent (34/107) of arbitration cases, and its outer 365-day target in 61 

percent (65/107) of arbitration cases. In contrast, the Authority met its 300-day target in 78 percent 

(25/32) of negotiability cases, and met its outer 365-day target in 84 percent (27/32) of negotiability 

cases. Further, the Authority continues to meet the statutory requirement to determine whether to grant 
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review in 100 percent of representation cases within 60 days of filing of an application for review from a 

Regional Director’s determination. Where the Authority has granted applications for review, it has met its 

210-day target in 88 percent (14/16) of cases and met its outer 365-day target in 88 percent (14/16) of 

cases. The few ULP cases in the Authority’s inventory are some of the oldest cases in its inventory. As a 

result, the Authority met its 300-day target and outer 365-day target in only 25 percent of the ULP 

decisions issued this year (1/4).

Although the Authority set targets to reduce the “average age” of closed cases within each case type by 5 

percent, this target is in tension with the Authority’s focus on clearing its backlog and issuing the oldest 

cases in its inventory. Accordingly, the Authority did not hit the 5 percent reduction in any of its four 

case types.

The Office of Administrative Law Judges

The OALJ is also a part of the Authority. Due to the continuing lack of a Presidentially nominated and 

Senate-confirmed GC, the OALJ continued performing work for other agencies on a reimbursable basis 

through the OPM ALJ Loan Program. When the caseload increases substantially after a GC is confirmed, 

the OALJ may well have to become a recipient of the OPM ALJ Loan Program. In addition, due to 

attrition and reduction of staff of the Authority, the OALJ continued drafting decisions in accordance with 

regulations to assist the Authority with matters other than ULP cases.

The Office of the Solicitor

The Office of the Solicitor represents FLRA in court proceedings before all U.S. courts, including the 

U.S. Supreme Court, the U.S. Courts of Appeals, and the Federal District Courts. During 2020, the 

Solicitor’s Office litigated numerous cases in the Federal courts, filed briefs supporting Authority 

decisions and defending the constitutionality of Authority components, and presented oral argument 

before panels of circuit court judges. After receiving decisions from the courts of appeals, the Solicitor’s 

Office provided timely and thoughtful advice to the Authority concerning the courts’ orders. The 

Solicitor’s Office experienced a sharply increased caseload in 2020, which is expected to continue in 

2021 as parties seek review of adverse Authority decisions in the courts of appeals under 5 U.S.C. § 

7123(a). In addition, parties have increasingly been seeking to circumvent 5 U.S.C. § 7123(a)’s 

jurisdictional bar by filing many cases in Federal District Court. 

The Solicitor also serves as FLRA's in-house counsel, providing legal advice to FLRA components on all 

facets of Government operations, including ethics, FOIA, privacy, human resources, fiscal law, and the 

Administrative Procedure Act. It met all reporting and substantive deadlines under those authorities.

The Federal Service Impasses Panel

In the previous years, the Panel received an average of 140 requests for assistance per year (averaging 

close to 11 new filings per month). Beginning in 2018, the Panel received 92 filings (an average of 6 new 

filings per month) and 77 filings in 2019 (an average of 7 new filings per month). In 2020, the Panel 

received 90 new case filings (an average of 7.5 new filings per month). That filing trend is expected to 

continue.

In 2020, the FSIP exceeded nearly all of its timeliness measures for assisting parties in resolving their 

negotiation impasses. Specifically, the Panel issued its decision to decline jurisdiction on cases not 

appropriately before the Panel within 140 days of the date that the parties filed their request for assistance 

in 100 percent (23/23) of cases. The Panel assisted the parties in achieving voluntary settlement within 

160 days of the date that the parties filed their requests for assistance in 85 percent (11/13) of cases. And, 

it issued its final order within 200 days of the date that the parties filed their request for assistance in 88 

percent (35/40) of cases.
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The Agency has also established “average age” goals to provide the Panel and the parties a sense of how 

long, on average, it takes for a case to be resolved by the Panel. That target is a measurement of the age of 

disposition of cases, averaged over the prior 3 fiscal years—historical average age. The Panel 

accomplished a reduction in the amount of time, on average, to close out cases (i.e., notify parties of the 

Panel decision) where the Panel has determined that it will decline jurisdiction (i.e., historical average 89 

days reduced to 70 days in 2020; 21 percent decrease in processing time).

However, the Panel has seen an increase in the processing and closing of cases closed by other means. 

Following the Administration’s issuance of Executive Orders 13836, 13837, and 13839, and the related 

OPM guidance to agencies regarding collective bargaining, effectuated in August 2019, the FSIP began to 

receive more impasses over ground rules for successor collective-bargaining agreements. These cases 

tend to be substantively more complex than single issue impact and implementation changes (e.g., 

changes in a personnel policy). In 2018, before the implementation of the 2018 Executive Orders, there 

were 4.7 issues, on average, in a FSIP case. In 2019, after the injunction on the Executive Orders was 

lifted in July 2019, there were 9.3 issues, on average, in a FSIP case. In 2020, there were, on average, 

13.7 issues in a FSIP case. In addition to the increase in the number of issues in the cases, the parties 

tended to be more entrenched in their positions and less willing to settle the impasse. These trends 

resulted in the need for the Panel to issue lengthy, complex, final decisions ordering the parties to adopt 

contract language to resolve the impasse.

The impact of these trends can be seen in the overall average age of the cases. Where a case was closed 

as a result of the Panel working with the parties to achieve mutual settlement of a negotiations impasse, 

the Panel saw a decrease in the amount of time, on average, to close out cases where the parties have 

reached settlement of the outstanding issues (i.e., historical average of 120 days decreased to 72 days in 

2020; 40 percent decrease in processing time). Where the case was closed as a result of the Panel needing 

to make a final decision to order contract language to be adopted by the parties, the Panel saw an increase 

in the amount of time, on average, to close out cases where the Panel has ordered the adoption of final 

contract language (i.e., historical average of 154 days increased to 162 days in 2020; 5 percent increase in 

processing time). In total, the historic overall average age for processing a FSIP case was 82.5 days. In 

2020, that overall average age increased to 100 days, an 18 percent increase in processing time.

Office of General Counsel

The OGC has not had a GC or Acting GC since November 17, 2017. As a result, there were 400 merit 

decisions and 406 appeals pending for review by a GC. In addition, the OGC staff teleworked since midMarch of 2020, due to the COVID-19 pandemic. Despite these challenges, the OGC continued to 

investigate cases and deliver strong results. It met its strategic performance measures for the timely 

resolution of ULP and representation cases, having resolved 94 percent (1692/1808) of ULP cases within 

120 days of the filing date, and 80 percent (140/175) of representation cases within 120 days of filing. 

The timely resolution of REP cases increased by 20 percent. Of those ULP cases resolved in 2020, the 

OGC resolved over 248 of them through voluntary settlement during the investigative process.

A key aspect of FLRA’s 2018-2022 Strategic Plan is to increase the rate of eFiling, because by December 

31, 2022, FLRA is mandated to have transitioned to electronic case files. To this end, the OGC increased 

its eFiling rate to 52 percent of all cases filed. This represents a 10 percent increase in the eFiling rate for 

the OGC.

Having OGC political leadership in place will restore the OGC’s ability to carry out its full mission and 

allow it to be successful in further meeting its 2021 and 2022 performance goals while beginning to 

address the large backlog of cases pending GC action (currently 420 recommended complaints and 409 

appeals).
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Strategic Goal 2: We will develop and provide tools and resources to enable 

the parties to prevent or more effectively and efficiently resolve their laborrelations disputes and improve their labor-management relationships.

Offering high-quality educational resources through FLRA’s website is crucial to preventing or more 

effectively and efficiently resolving labor-management disputes. Parties who are better informed about 

their rights and obligations under the Statute are less likely to pursue frivolous matters or defenses, and 

they are more likely to approach their labor-management relations in a manner that is consistent with the 

Statute.

The Agency will continue to explore ways to supplement and enhance the educational resources on its 

website, such as expanding parties’ access to statutory and other training, online training modules, and 

short animated training videos.

Education and Training Tools

FLRA provides valuable education and training tools to the Federal labor-management-relations 

community in all aspects of its case law and processes. Providing meaningful and clear guidance on 

statutory rights and responsibilities so that its customers are knowledgeable furthers timely and efficient 

case processing and is an important function of FLRA under the Statute. FLRA delivers its educational 

materials through a variety of means, primarily through its decisions but also through in-person training 

sessions; web-based training modules and YouTube videos; and case outlines, manuals, and subjectmatter guides that are easily accessible on www.flra.gov.

Training

FLRA addressed specific requests of parties for targeted training. Agency components have traditionally 

provided training on statutory principles governing ULPs, representational issues, negotiability disputes, 

and arbitration exceptions. Providing such external training to Federal agencies and labor organizations 

regarding their rights and obligations under the Statute directly promotes FLRA’s mission of protecting 

rights and facilitating stable labor-management relationships while advancing an effective and efficient 

Government.

Obviously, the 2020 training landscape was dramatically affected by the COVID-19 pandemic, 

particularly the ability to offer in-person training. Accordingly, for 2020, FLRA provided only 29 training 

sessions, of which 9 were in-person and 20 were virtual (online). The training sessions conducted in the 

second-half of the fiscal year were done virtually. 

These sessions were requested by the organizations based on their perceived needs in the Federal labormanagement relations area. The targeted training sessions focused on a range of issues, including unfair 

labor practices and representation matters. 

FLRA staff tailored each session to meet the individualized needs of the particular group and received 

consistent positive feedback from the participants. Specifically, in 2020, 98% of evaluators rated the 

training as effective or highly effective. This positive feedback achieved the FLRA performance goal in 

this area.

In addition to training presentations at in-person events, the Authority, the OGC, and the FSIP provided 

online training, including presentations at several nationwide, annual conferences that were held virtually 

due to public health concerns. These conference sessions included presentations of newly prepared 

materials of current relevance. 
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In 2020, the training sessions at which FLRA presented virtually, combined with the 6 in-person training 

sessions reached an estimated 2,780 participants. That number of participants achieved FLRA’s 2020 

performance goal set for training.

In total, FLRA’s in-person, virtual, and YouTube training reached 5,480 persons.

YouTube Educational Tool

In 2020, FLRA created video trainings via FLRA’s new YouTube channel.

The new channel modernizes the Agency’s customer interactions and delivers on the Agency’s second 

strategic goal from the 2018-2022 Strategic Plan promising to “develop and provide tools and resources 

to enable the parties to prevent or more effectively and efficiently resolve their labor-relations disputes 

and improve their labor management relations.”

The channel can be found here. Once on the channel, customers can click “Subscribe” to receive updates 

when new material is posted.

On April 29, 2020, FLRA unveiled the channel beginning with five training videos covering unfair labor 

practice topics referenced in the Statute. The first five educational videos cover the following topics:

• Unlawful Interference – Section 7116(a)(1) of the Statute,

• Violations by Unions – Duty of Fair Representation and To Bargain in Good Faith,

• Discrimination – Section 7116(a)(2) and (4) of the Statute,

• Meetings and Bypasses – Formal Meetings, Investigatory Examinations, and Bypasses,

• Information Requests – Section 7114(b)(4) of the Statute.

On August 19, 2020, FLRA released an animated training video explaining the Agency’s eFiling process. 

This release was the first in a series of animated videos serving to further educate our customers on the

many different aspects of federal-sector labor law. The eFiling video covers: 

• How to file a case, 

• Where to file, 

• Who is eligible to file, 

• Case Types – Arbitration, Negotiability, Representation, Unfair Labor Practice, Negotiation 

Impasse, and 

• How to check case status. 

Over and above these virtual conferences and in-person training sessions referenced above, 

FLRA YouTube instructional videos received over 2,700 views from the channel’s launch on 

April 29, 2020 through September 30, 2020. FLRA issued two press releases announcing 6 

instructional training sessions online. New educational content is in regular production to address 

our customers’ evolving needs. 

In total, FLRA’s in-person, virtual, and YouTube training reached 5,480 persons.

Live-Stream Training

In 2020, for the first time, FLRA live-streamed educational training via the internet. 
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Case-Processing Timelines

Throughout 2020, FLRA provided leadership and guidance by educating parties with more meaningful 

information about case-processing timelines. For example, starting in 2019, the Authority has been 

measuring case age starting from the date that the case is filed until the date that either a decision is issued

or the case is procedurally dismissed. In addition, the Agency began reporting “average ages” of closed 

cases within all FLRA components and offices, which provides the parties with the average amount of 

time that it takes to process each case type. 

Educating the parties with this information will help them reach better, more informed decisions 

regarding their litigation options. It provides them with more realistic expectations around case 

processing.

Case Digests

The Authority educates the parties primarily through its issued decisions, particularly those on previously 

unaddressed legal issues. To that end, now along with the agency decision, the Authority now 

publishes case-summary “digests” to provide additional, easy-to-understand guidance to its customers.

As of 2020, the Authority now posts each new decision with an accompanying digest. That culminates a 

two-year strategic initiative. Authority case digests that summarize each of the full-length, merits 

decisions can be viewed online. 

While the digests are not part of the official decisions, these summaries are a valuable tool for researchers 

and members of the Federal labor-management community to identify more quickly and efficiently the 

decisions that interest them. The FLRA expects that case-summary digests will provide customers with 

additional, easy-to-understand guidance and information regarding precedent. 

Parties have been reminded, however, that the descriptions contained in the digests are for informational 

purposes only, do not constitute legal precedent, and are not intended to be a substitute for the opinion of 

the Authority. 

Further, the Authority has compiled these digests on the Quarterly Digest Reports page. The Authority 

pursues this digest initiative as part of its commitment in the 2018-2022 Strategic Plan “to develop tools 

and resources” to assist the parties. 

The Quarterly Digest Reports are online for all of 2019 and 2020. To date, the Authority has published 

approximately 205 digests. Quarterly digests are up to date and were announced in a press release. 

FLRA’s 2018-2022 Strategic Plan also includes a renewed emphasis on clearly articulated written work 

products. As part of this effort, the FLRA has particularly focused in the first few paragraphs of each 

Authority decision as a place to provide a brief synopsis of the most pertinent principles in the decision. 

This uniform structure should help customers understand a decision’s significance or relevance to them 

without needing to read the entire decision. 

RSS Feeds

Via subscription to its Really Simple Syndication (RSS) Feed, FLRA offers updates on FLRA-related 

news and provides notifications when new Authority decisions are posted. In 2020, by press release, the 

FLRA encouraged subscription to its RSS Feed.
13

Guides & Manuals

In 2020, FLRA continued to update online educational tools, including guides and manuals. In September 

of 2020, the Office of General Counsel updated the OGC Case Law Outline. Also in September of 2020, 

the Office of General Counsel updated the Representation Case Law Outline.

Federal Mediation and Conciliation Service 

As part of the Agency’s strategic commitment to develop and provide tools and resources to enable the 

parties to prevent or more effectively and efficiently resolve their labor-relations disputes and improve 

their labor-management relationships, the Authority signed a memorandum of understanding (MOU) with 

the Federal Mediation and Conciliation Service (FMCS) creating a new pilot procedure for resolving 

negotiability appeals at no cost to the parties. 

The Authority trained a unique cadre of FMCS mediators so that they may assist the parties in the 

resolution of negotiability appeals through mediation. The training program was exceptionally well 

received by the mediators, who submitted comments that the trainers were “excellent” and 

“knowledgeable,” and that the course provided “great coverage of complex information.” 

Under the pilot program, before a negotiability appeal is considered by the Authority’s Members for a 

decision, the Authority may refer such appeals to FMCS, either on the Authority’s own initiative or based 

upon a request from the parties. The Authority anticipates that this will reduce case-processing time in 

negotiability appeals as well as provide opportunities for parties to expeditiously resolve appropriate 

negotiability disputes without the need for a formal Authority decision.

After working with FMCS to develop a shared case-management system for tracking referrals, the 

Authority began referring negotiability appeals to FMCS mediators in December, 2019. The preliminary 

results have showed promise. FMCS mediators have either narrowed, or completely resolved, the parties’ 

negotiability dispute in 50 percent (5/10) of referred cases. More importantly, with the help of the FMCS 

mediators, the parties have resolved 71 percent (82/117) of the proposals or provisions referred to 

mediation.

Consistent with the MOU, the Authority and FMCS regularly confer to discuss any necessary adjustments 

to the pilot program. Additionally, the Chairman of the Authority, and the FSIP, and the Director of 

FMCS made a joint, virtual panel presentation at the FMCS National Labor-Management Conference in 

August with approximately 500 participants.

eFiling

FLRA’s eFiling efforts serve to improve the customer’s experience by allowing both filers and the 

Agency to more efficiently handle filings electronically.

A key aspect of FLRA’s 2018-2022 Strategic Plan is to increase the rate of eFiling, because by December 

31, 2022, FLRA is mandated to have transitioned to electronic case files. To this end, the OGC increased 

its eFiling rate to 52 percent of all cases filed. This represents a 10 percent increase in the eFiling rate for 

the OGC. The Authority saw a nine percent increase in eFiling, bringing its 2020 eFiling rate to 89 

percent of all cases filed.

Like the rest of the federal government, FLRA is grappling with the challenges posed by the COVID-19 

pandemic. In response, the Agency adapted very well technologically. To ensure the health and safety of 

the Agency’s employees and parties, FLRA suspended in-person filings and the use of FLRA’s eFiling 
14

system has increased. At the same time, the Agency has continued to process documents filed by mail 

and facsimile, consistent with regulation.

Videoconference Hearings

In 2020, the OGC issued guidance to its Regional Directors on conducting representation hearings 

through videoconference in order to ensure that vital representational work continues during the COVID19 pandemic.

Updated Regulations and Policies

The Authority also educates the parties through the issuance of regulations and policies. In situations 

where parties experience labor-management challenges, targeted assistance can promote stable labormanagement relationships by educating the parties regarding their statutory rights and obligations. It can 

also promote effective and efficient Government by assisting parties in addressing their disputes without 

necessarily resorting to formal filings.

Regulations

In 2020, to educate and guide the public, the Authority issued one new regulation and requested comment 

on another:

• On December 23, 2019, FLRA sought comment on the regulations governing negotiability appeals 

to better “expedite proceedings,” consistent with Congress’s direction, and with the FLRA’s goal 

in its strategic plan to “ensure quality, timely . . . decision-making processes.” The proposed rule is 

designed to streamline the adjudication process for negotiability appeals, resulting in more timely 

decisions for the parties. On January 28, 2020, FLRA extended comments to February 11, 2020. 

The submitted comments are currently under consideration by the Authority’s Members.

• On July 9, 2020, FLRA published a Final Rule, which will appear as § 2429.19 of the Authority’s 

Regulations, stating that “after the expiration of the one-year period during which an assignment 

may not be revoked under 5 U.S.C. § 7115(a), an employee may initiate the revocation of a 

previously authorized assignment at any time that the employee chooses... The employing agency 

must process the employee’s dues-revocation made after the first year “as soon as administratively 

feasible.” 

Policies

In 2020, the Authority issued five policy statements to educate and guide the public:

• On February 14, 2020, in Office of Personnel Management, (71 FLRA No. 107, 0-PS-34), the 

Authority stated that 5 U.S.C. § 7115(a) is most reasonably interpreted as permitting revocation of 

dues assignments at any time after the first year of assignment and stated that it would pursue 

notice-and-comment rulemaking to that effect. The resulting regulation, 5 C.F.R. § 2429.19, is 

described above.

• On August 19, 2020, in National Right to Work Legal Defense Foundation, Inc., (71 FLRA No. 

178, 0-PS-39), the Authority clarified that the Statute expressly authorizes only ‘direct’ lobbying 

and does not expressly authorize any other type of “indirect” or “grass roots” lobbying on official 

time.

• On September 30, 2020, in United States Office Of Personnel Management, (71 FLRA No. 191, 0-

PS-38), the Authority stated that the Statute neither requires nor prohibits midterm bargaining, and 

that all proposals concerning midterm-bargaining obligations (including zipper clauses) are 

mandatory subjects for negotiation that may be bargained.
15

• On September 30, 2020, in U.S. Department of Education and U.S. Department of Agriculture, (71 

FLRA No. 190, 0-PS-44), the Authority announced that “because the de minimis standard is 

inconsistent with the purposes of the Statute, ... an agency will not be required to bargain over a 

change to a condition of employment unless the change is determined to have a substantial impact 

on a condition of employment.”

• On September 30, 2020, in U.S. Department of Agriculture (71 FLRA No. 192, 0-PS-46), the 

Authority clarified that when parties are renegotiating an existing collective-bargaining agreement 

and a continuance provision extends the operation of the agreement beyond the originally 

established, concrete expiration date, the first day of the extension period marks the beginning of a 

new term for the agreement under sections 7114(c) and 7116(a)(7) of the Statute. On that first day 

of the extension, all government-wide regulations that became effective during the previous term 

of the agreement will, where applicable, govern the parties immediately by operation of law, and 

the thirty-day period for agency-head review will begin.

Questionnaire

During the COVID-19 pandemic, FLRA implemented a customer questionnaire which was used in 

representation cases.

Strategic Goal 3: We will manage our resources effectively and efficiently, 

and recognize that our dedicated workforce is critical to the resolution of 

labor-relations disputes.

FLRA completed, and complied with, the three requirements of the President’s Management Agenda, 

Cross-Agency Priority Goal 3, as required by the Director’s memorandum “Maximization of Employee 

Performance Management and Engagement by Streamlining Agency Performance and Dismissal Policies 

and Procedures” dated September 25, 2019. Specifically, the Authority:

1. Reviewed whether agency policies create unnecessary barriers to addressing poor performance;

2. Removed steps and procedures for addressing poor performance and misconduct that are not 

required by statute or Federal regulation that is currently in force; and

3. Provided supervisors with policies and guidance regarding performance improvement plans (PIPs) 

pursuant to Chapter 43 (noting PIPs can be started at any point and not just at the end of the rating 

period) and guidance that unacceptable performance can be addressed through Chapter 75.
16

EO 13781

In full support of Executive Order 13781, Comprehensive Plan for Reorganizing the Executive Branch, 

(March 13, 2017) and Office of Management and Budget (OMB) Memorandum M-17-22, Comprehensive 

Plan for Reforming the Federal Government and Reducing the Federal Civilian Workforce (April 12, 

2017), the Agency completed its process of taking a closer look at its structure and operations, and 

implemented solutions for streamlining and reducing costs across FLRA. It developed reform proposals 

and a long-term workforce plan focused on improving the Agency’s efficiency, effectiveness, and 

accountability. Based on regional workload, flat budgets, increasing rental costs, and the availability of 

technology to improve operational efficiency, the final result was the closure of the Boston and Dallas 

Regional Offices in 2019 and 2018, respectively. 

Travel and Training

Other reform efforts included sustaining the 25 percent across-the-board reduction in the Agency-wide 

travel and Agency-wide internal, employee-development training from 2017 through 2020. However, 

travel costs will increase for hearings once a GC is on board and for specific targeted statutory training to 

parties. In addition, increased funding was necessary for professional development of FLRA staff, noting 

the significant turnover of staff, was incorporated into the 2021 budget, and is continued in 2022

budget requests. 

Professional Development

With respect to professional development, despite budgetary limitations, FLRA continues to provide its 

employees with relevant, mission-related training and better identify training needs. This includes 

utilizing recommendations from the Agency’s Professional Development Team such as the promotion of 

the use of employee individual development plans for all staff. The Agency has also continued to provide 

informal “lunch and learns” on a variety of mission-related and operational topics. 

Additional Cost Reductions

FLRA has also committed to other administrative efforts to reduce costs. Where appropriate, the Agency 

will continue to tap existing Government-wide shared-services solutions, like those that it already uses for 

payroll, financial services, and travel. It will continue to seek out and utilize existing Government-wide 

procurement solutions and contracting flexibilities. These include using a General Services 

Administration (GSA) approved vendor that the Agency otherwise would not have found for its eFiling 

and Case Management projects, and piggybacking on the Library of Congress’s FEDLINK contracting 

tool to procure Westlaw legal research services more easily.

All-Employee Meetings

FLRA had 6 all-employee WebEx meetings to keep employees engaged:

COVID All-Employee Meeting Dates

October 22, 2020

July 30, 2020

May 7, 2020

March 12, 2020

Pre-COVID All-Employee Meeting Dates

February 20, 2020 (Black History Event)
17

January 30, 2020

People: Developing a Workforce for the 21st Century

The mission accomplishments cited above are particularly noteworthy because, in 2020, the Agency has 

been operating with only 107 FTEs throughout most of 2020 due to attrition, retirements, and reduced 

funding in 2020.

Guided by its strategic plan, in 2020, FLRA continued its review of Agency performance-management 

systems (both General Schedule and Senior Executive Service) and individual employee performance 

plans to ensure that they directly align with the 2018-2022 Strategic Plan. Revised performance standards 

were implemented as part of a one-year pilot that began in 2020.

In support of these efforts to improve performance management, the Agency is working with OPM to 

implement the USA Performance automated performance-management system in 2021. Automating the 

performance-management process using a tool that is compliant with all Federal performancemanagement regulations and OPM recommendations, will assist Agency managers – and the Agency as a 

whole – in increasing performance accountability.

OPM’s FEVS provides employees an opportunity to influence change by submitting feedback about their 

work environment, agency leadership, and other important factors affecting morale and employee 

satisfaction. FLRA’s 2019 overall response rate was 64 percent - 23 points higher than the Governmentwide average of 41 percent. That rate is also in line with the small agency (100-999 employees) response 

rate of 67 percent.

In response to the 2019 FEVS feedback, the Agency continued to actively engage employees at all levels 

in Agency processes and to seek their opinions. The Strategic Plan Implementation Teams (with 

representation from headquarters, regional offices, and all agency components) continue to address the 

challenges raised by the recent FEVS results. Teams have conducted focus groups to better understand 

and address employee concerns. The teams, which include managers and non-managers, are:

(1) Professional Development Team

(2) Performance Communication Teams

a. Authority

b. OGC

c. Administrative and Management

(3) Customer Engagement Team

(4) Employee Engagement Team

(5) Diversity & Inclusion Team

(6) Health & Wellness Team

(7) Agency Awards Development Team

The teams continue to focus on a variety of issues including revisions to performance plans for mission 

critical positions, improving customer engagement, and improving professional development within the 

Agency. These employee-led teams have recommended, for example, new performance standards for the 

majority of positions in the agency, completion of individual development plans by employees to identify 

their training needs, professional development opportunities, a new communication form implemented as 

a way of improving anonymous employee engagement, and recently recorded video presentations of 

educational material available on the FLRA website and YouTube channel. Many of the teams’ 

recommendations were accepted and implemented in 2020. Teams continue to engage in discussions 

with leadership and have a prominent voice on how best to allocate the Agency’s limited training dollars. 

This process continues to add value and has allowed employees to be engaged in the stewardship of the 
18

Agency and to offer innovative and creative solutions to problems they see in the workplace or its 

processes.

Consistent with OMB policy, FLRA provided a Workforce Fund Plan to guide the awards program in 

2020. For 2021, as directed by OMB, the Agency will increase the award funding by one percent of nonSES/SL spending. To ensure that FLRA creates a comprehensive strategy to develop and foster a culture 

of recognition, both formal and informal, FLRA created an Agency Awards Development Team to not 

only create and implement the Agency’s Workforce Fund Plan but also to provide innovative ideas to 

update the Agency’s award policy. This review is to be completed in 2021.

IT Modernization

As noted above, FLRA is continuing its ongoing efforts to expand its IT capabilities to enhance mission 

performance by improving the quality and effectiveness of its internal- and external-customer-facing 

services – including increased use of cloud-based solutions, improving its IT security program, and 

developing innovative means for enhancing employees’ ability to work remotely. The Agency also 

continues to improve its overall efficiency, as well as the customer service experience, by engaging in 

new and innovative ways to conduct business, such as through eFiling. In addition, the Agency has 

strategically emphasized IT modernization by implementing realistic and attainable equipment lifecycles.

In 2020, FLRA continued to execute its multi-year plan to achieve the long-term goal of implementing 

end-to-end electronic case files throughout the Agency. Originally a four-phase plan, the Agency has 

succeeded in merging Phases 2 and 3 of the original plan into a single implementation. This combination 

will allow the Agency to accelerate the realization of a fully electronic case file and compliance with 

OMB mandates.

1. Phase 1 was implementation of the upgraded eFiling “3.0” system. Addressing customer 

feedback, and after refining its approach, the Agency launched a more user-friendly and intuitive 

user interface that is built on a new, cloud-based technology platform that will better support the 

Agency’s long-term needs. This was completed in 2018.

2. The original goal of Phase 2 was to provide an integrated, more user friendly and intuitive user 

interface for the Agency’s internal electronic CMS that mimicked the look and feel of eFiling 3.0. 

Phase 2 also included implementation of an Agency-wide DMS–an electronic, cloud-based “filing 

cabinet” that provides a framework for organizing digital and paper documents. The DMS also 

provides the necessary storage capacity and IT platform for the integration of eFiling, CMS, and 

DMS. The Agency has successfully implemented the DMS, and in 2020 completed the first pilot 

of the CMS with the Authority component.

3. Phase 3 was originally slated to consist of the integration of eFiling, CMS, and DMS. However, 

Phase 2 and Phase 3 have been combined. The Agency has successfully developed a full, end-toend integrated and automated electronic casefile for the Authority component. The system went 

live in the last quarter of FY 2020. The Agency aims to complete development for the OGC in FY

2021.

4. Phase 3 (nee 4) is the transition to 100 percent electronic case files throughout the Agency, with a 

mandate of September 30, 2022, for completion.

The Agency has relied on an agile development approach, both in how the systems are developed and 

with how the project is funded. As such, timelines associated with the plan have shifted over time, but 

the Agency still remains within target, and its overall costs are well below industry standards for similar 

undertakings. 
19

It is important to note that without having received the IT funds requested and approved by OMB for

2021, significant delays will occur. Successful achievement of this goal will enable implementation of 

additional external and internal case processing improvements that will further maximize the use of 

technology and eliminate many of the labor-intensive, manual case processes that are currently in place. 

These case-processing improvements include reducing the time and expense that FLRA staff spends 

copying, scanning, mailing, and manually entering data; eliminating outdated facsimile service; reducing 

U.S. Postal Service costs by implementing electronic service of case-related documents by FLRA on the 

parties; reducing or eliminating delivery service costs for transferring paper case files between FLRA 

components; implementing a pilot program that would mandate FLRA parties to file all case-related 

documents electronically; and eventually mandating eFiling for all FLRA case filings. The greatest 

benefit will be the ability to redirect staff hours currently used to perform manual administrative tasks to 

perform other mission-critical functions.

In addition, FLRA continues to embrace its “cloud-first” approach. All of the Agency’s major technical 

components – email, DMS, CMS, and eFiling – are hosted in the cloud. The pandemic significantly 

accelerated the Agency’s plan to move its Video Teleconferencing (VTC) system to the cloud in 2020 and 

Voice over Internet Protocol (VoIP) in 2021. The Agency fully implemented the industry-standard 

Webex video conferencing system so that FLRA employees could continue to operate at 100 percent 

during social distancing. In 2020, the Agency transitioned to a new network cloud service provider, 

increasing the Agency’s network bandwidth and saving the Agency roughly 40 percent of its network 

costs to invest in cybersecurity initiatives. FLRA continued to maintain its lifecycle for Agency computer 

hardware, completing an Agency refresh of key networking infrastructure components and specific data 

center hardware.
20

ANNUAL PERFORMANCE PLAN

STRATEGIC AND PERFORMANCE-PLANNING FRAMEWORK

FLRA’s 2022 strategic performance planning framework is based on the Agency’s 2018-

2022 Strategic Plan, and it is supported by the Agency’s Annual Performance Plan, which 

establishes the Agency’s annual performance goals and measures. In developing the 2018-

2022 Strategic Plan, the Agency refined its mission statement, developed a vision 

statement, and identified Agency core values.

FLRA seeks to achieve its strategic goals primarily through the timely, high-quality, and 

impartial review and disposition of cases. The Agency supplements these efforts, and helps 

the parties to avoid or resolve their own disputes, by producing educational materials, 

offering targeted assistance to parties with significant labor-management challenges, and 

providing training activities. Further supporting these efforts is FLRA’s focus on internal 

improvements in IT and efforts to maximize human capital.

Through comprehensive review of its programmatic requirements under the Statute, 

operations, staffing, work processes, resource allocations, and performance, FLRA has 

established goals and measures that are designed to maximize the delivery of Agency 

services throughout the Federal Government. The Annual Performance Plan reflects the 

Agency’s commitment to establishing meaningful metrics that will assist in assessing 

performance, providing transparency to the parties around case-processing, aligning 

resources, and effectively identifying staffing and training needs.
21

FLRA Strategic Goals

Strategic Goal #1 Strategic Goal #2 Strategic Goal #3

We will ensure quality, 

timely, impartial, and 

consistent investigative and 

decision-making processes 

with determinations that are 

clearly articulated.

We will develop and provide 

tools and resources to enable 

the parties to prevent or more 

effectively and efficiently 

resolve their labor-relations 

disputes and improve their 

labor-management 

relationships.

We will manage our resources 

effectively and efficiently, and 

recognize that our dedicated 

workforce is critical to the 

prevention and resolution of 

labor-relations disputes.

Strategic Objectives

a. Establish and attempt to 

surpass (1) case-processing 

productivity goals, and (2) 

timeliness measures that are 

meaningful to the parties.

a. Maintain and expand 

educational resources on 

www.flra.gov.

a. Ensure that the FLRA’s 

performance-management 

systems are synchronized with 

and support the Agency’s 

strategic goals.

b. Ensure excellence in 

investigations and clearly 

articulated written work 

products by establishing and 

surpassing case-processing 

quality goals that build upon 

the Agency’s longstanding 

traditions of impartiality and 

consistent determinations that 

are effectively enforced.

b. Identify and offer targeted 

assistance to parties with 

significant labor-management 

challenges.

b. Continue to expand the 

FLRA’s technological 

capabilities to enable employees 

to deliver mission results more 

effectively and efficiently.

c. Maintain and expand our 

external training programs to 

enable the parties to better 

understand their rights and 

obligations under the Statute.

c. Recruit, retain, and develop a 

diverse, respected workforce in 

an environment that fosters 

employee input and satisfaction 

and makes the best use of FLRA 

resources.

Consistent with Government-wide efforts to improve performance and incorporate datadriven management decisions, FLRA engages in continuous strategic assessment of 

performance and other data to ensure that it is accomplishing its mission effectively and 

efficiently. The Agency conducts this ongoing review on a monthly basis with its automated 

monthly SMART report (introduced in 2019, replacing the manual Monthly Analysis of 

Performance and Status (MAPS) report), which contains statistical case and performance 

data derived from FLRA’s CMS and Agency management. In addition, Agency managers 

utilize a variety of internal CMS reports, which track the number, age, status, or resolution 

type of all pending and closed cases, to manage performance on a daily basis. Analysis of 

these reports drive, among other things: adjustments in workload through case transfers at 

the national, regional, and office levels; reallocation of human resources, including use of 

details and contract support decisions; and decisions to provide targeted assistance (such as 

training) to certain parties or geographical locations.
22

STRATEGIC GOAL 1: WE WILL ENSURE QUALITY, TIMELY, IMPARTIAL,

AND CONSISTENT INVESTIGATIVE AND DECISION-MAKING PROCESSES 

WITH DETERMINATIONS THAT ARE CLEARLY ARTICULATED.

This strategic goal concerns the core statutory activities of FLRA. The Statute charges 

FLRA with responsibility for protecting rights and facilitating stable labor-management 

relationships in the Federal sector. To achieve that mandate, FLRA must provide the 

Federal labor-management community with quality, timely, impartial, and consistent 

investigations and determinations. Further, FLRA must convey those determinations 

clearly and enforce them effectively. All FLRA components must help to achieve this goal 

in order to attain overall Agency success.

Strategic Objective 1a: Establish and attempt to surpass (1) case-processing 

productivity goals, and (2) timeliness measures that are meaningful to the parties.

Parties often have time-sensitive interests at stake in matters pending before FLRA. 

Delays in the resolution of those matters can impede the ability of the parties to fulfill their 

missions effectively and efficiently. So, to properly serve the Federal labor-management 

community and accomplish FLRA’s own mission, the Agency must satisfy internal caseprocessing productivity goals that enable it to investigate and resolve cases in a timely 

fashion.

Parties are best served when they have a clear understanding of how long it might take 

FLRA to process cases. Therefore, effective 2019, FLRA set its standards for timeliness in a 

way that gives parties a reasonable expectation as to the duration of the FLRA 

determination process. This requires the use of simple, straightforward metrics for 

understanding how long it might take to resolve a given matter before the Agency.

Performance Goal 1a-1: Use updated metrics to measure productivity and overall 

timeliness of matters pending before the FLRA. 

Performance Goal 1a-2: Regularly measure productivity and overall case-processing 

timelines in each FLRA component; modify strategies as necessary to address unforeseen 

or unplanned events. 

Performance Goal 1a-3: Track and publicly report progress of matters before the FLRA 

that the Federal labor-management community considers clear, relevant, widely known, 

and meaningful. 
23

Authority

Arbitration Cases 2018 2019 2020 2021 Est.

2022 

Est.

Cases pending, start of year 73 73 122 146 140

Exceptions filed (Intake) 105 136 131 124 124

Total caseload 178 209 253 270 264

Cases closed procedurally 11 15 17 17 17

Cases closed based on merits 94 72 90 113 113

Total cases closed (Output) 105 87 107 130 130

Cases pending, end of year 73 122 146 140 134
24

Measure 1a-1: The average age of arbitration exceptions decided by the Authority.* 

Results Targets

2019 261 2019 247

2020

Goal: 248 days

317 days

Not Met

2020 Reduce by 5%

* This measure calculates case age based on the “date filed,” 

to reflect “day in-day out” case-processing times.

2021 Maintain

2022 Maintain

Measure 1a-2: The percentage of arbitration cases decided within 150 days of assignment 

to an Authority Member.

Results

2018 38% – (36/94 cases)

Measure 1a-2: The percentage of arbitration cases decided by the Authority within 210 

days of the filing of exceptions.*

Results Targets

2019 37% – (32/87 cases) 2019 75%

2020 32% – (34/107 cases)

Not Met

2020 75%

* This measure calculates case age based on the “date filed,” to 

reflect “day in-day out” case-processing times.

2021 75%

2022 75%

Measure 1a-3: The percentage of arbitration cases decided within 365 days of assignment 

to an Authority Member.

Results

2018 98% – (92/94 cases)

Measure 1a-3: The percentage of arbitration exceptions decided by the Authority within 

365 days of the filing of exceptions.* 

Results Targets

2019 84% – (73/87 cases) 2019 90%

2020 61% – (65/107 cases)

Not Met

2020 90%

* This measure calculates case age based on the date filed,” to 

reflect “day in-day out” case-processing times. 

2021 90%

2022 90%
25

Authority

Negotiability Cases 2018 2019 2020 2021 Est.

2022 

Est.

Cases pending, start of year 11 23 17 65 56

Petitions filed (Intake) 43 30 80 45 45

Total caseload 54 53 97 110 101

Cases closed procedurally 25 30 19 19 19

Cases closed based on merits 6 6 13 35 16

Total cases closed (Output) 31 36 32 54 35

Cases pending, end of year 23 17 65 56 66
26

Measure 1a-4: The average age of negotiability cases decided by the Authority. * 

Results Targets

2019 169 2019 119

2020

Goal: 161 days

176 days

Not Met

2020 Reduce by 5%

* This measure calculates case age based on the “date 

filed,” to reflect “day in-day out” case-processing times.

2021 Maintain

2022 Maintain

Measure 1a-5: The percentage of negotiability cases decided within 180 days of 

assignment to an Authority Member.

Results

2018 83% – (5/6 cases)

Measure 1a-5: The percentage of negotiability cases decided by the Authority within 300 

days of the filing of a petition for review.*

Results Targets

2019 83% – (30/36 cases) 2019 75%

2020 78% – (25/32 cases)

Me

2020 75%

* This measure calculates case age based on the “date 

filed,” to reflect “day in-day out” case-processing times. 

2021 75%

2022 75%

Measure 1a-6: The percentage of negotiability cases decided within 365 days of 

assignment to an Authority Member.

Results

2018 100% – (6/6 cases)

Measure 1a-6: The percentage of negotiability cases decided by the Authority within 365 

days of the filing of a petition for review.*

Results Targets

2019 92% – (33/36 cases) 2019 75%

2020 84% – (27/32 cases)

Met

2020 75%

* This measure calculates case age based on the “date 

filed,” to reflect “day in-day out” case-processing times.

2021 75%

2022 75%
27

OALJ

ULP Cases 2018 2019 2020 2021 Est.

2022 

Est.

Cases pending, start of year 49 1 0 0 0

Complaints received (Intake) 44 0 0 100 200

Total caseload 93 1 0 100 200

Settlements before hearing 66 0 0 80 160

Cases closed by decision 27 1 0 20 40

Total cases closed (Output) 93 1 0 100 200

Cases pending, end of year 0 0 0 0 0

0

20

40

60

80

100

120

140

160

180

200

2018 2019 2020 2021 Est. 2022 Est.

49

1 0 0 0

44

0

100

200

Total OALJ ULP Caseload

Cases pending, start of year Cases received from the OGC

0

50

100

150

200

2018 2019 2020 2021 Est. 2022 Est.

66

0 0

80

27 160

1

20

40

Total OALJ ULP Cases Closed

Settlements before hearing Cases closed by decision
28

Measure 1a-7: The average age of ULP complaints decided by the OALJ. 

Results Targets

2019

Goal: 124 days

90 2019 Reduce by 5%

2020 N/A 2020 Reduce by 5%

2021 Maintain

*OALJ performance standards remain to resolve 80% of ULP 

complaints with 180 days of filing and 95% within 365 days

2022 Maintain

Measure 1a-8: The percentage of ULP complaints issued by the General Counsel resolved 

or decided in the OALJ within 180 days of the complaint being issued.

Results Targets

2018 77% – (72/93 cases) 2018 80%

2019 N/A 2019 80%

2020 N/A 2020 80%

*OALJ performance standards remain to resolve 80% of ULP 

complaints with 180 days of filing and 95% within 365 days

2021 80%

2022 80%

Measure 1a-9: The percentage of ULP complaints issued by the General Counsel decided 

in the OALJ within 365 days of the complaint being issued.

Results Targets

2018 90% – (84/93 cases) 2018 95%

2019 N/A 2019 95%

2020 N/A 2020 95%

*OALJ performance standards remain to resolve 80% of ULP 

complaints with 180 days of filing and 95% within 365 days

2021 95%

2022 95%
29

Authority

ULP Cases 2018 2019 2020 2021 Est.

2022 

Est.

Cases pending, start of year 8 10 6 3 10

Cases filed (Intake) 19 4 1 20 40

Total caseload 27 14 7 23 50

Cases closed procedurally 9 1 1 7 13

Cases closed based on merits 8 7 3 6 6

Total cases closed (Output) 17 8 4 13 19

Cases pending, end of year 10 6 3 10 31

0

10

20

30

40

50

2018 2019 2020 2021 Est. 2022 Est.

8 10 6 3

10

19

4

1

20

40

Total Authority ULP Caseload

Cases pending, start of year Exceptions filed (Intake)

0

5

10

15

20

2018 2019 2020 2021 Est. 2022 Est.

9

1 1

7

13

8

7

3

6

6

Total Authority ULP Cases Closed

Cases closed procedurally Cases closed based on merits
30

Measure 1a-10: The average age of ULP exceptions decided by the Authority.* 

Results Targets

2019 238 2019 165

2020

Goal: 226 days

422 days

Not Me

2020 Reduce by 5%

* This measure calculates case age based on the “date 

filed,” to reflect “day in-day out” case-processing times. 

2021 Maintain

2022 Maintain

Measure 1a-11: The percentage of ULP cases decided within 150 days of assignment to an 

Authority Member.

Results

2018 50% – (4/8 cases)

Measure 1a-11: The percentage of ULP cases decided by the Authority within 300 days of 

issuance of an OALJ decision. * 

Results Targets

2019 75% – (6/8cases) 2019 75%

2020 25% – 1/4 cases)

Not Met

2020 75%

* This measure calculates case age based on the “date 

filed,” to reflect “day in-day out” case-processing times. 

2021 75%

2022 75%

Measure 1a-12: The percentage of ULP cases decided within 365 days of assignment to an 

Authority Member.

Results

2018 100% – (8/8 cases)

Measure 1a-12: The percentage of ULP cases decided by the Authority within 365 days of 

issuance of an OALJ decision. *

Results Targets

2019 86% – (6/7 cases) 2019 90%

2020 25% – (1/4 cases)

Not Met

2020 90%

* This measure calculates case age based on the “date 

filed,” to reflect “day in-day out” case-processing times.

2021 90%

2022 90%
31

Authority

Representation Cases 2018 2019 2020 2021 Est.

2022 

Est.

Cases pending, start of year 6 5 2 3 1

Applications for review (Intake) 6 5 17 11 11

Total caseload 12 10 19 14 12

Cases closed procedurally 0 1 1 1 1

Cases closed based on merits 7 7 15 12 11

Total cases closed (Output) 7 8 16 13 12

Cases pending, end of year 5 2 3 1 0
32

Measure 1a-13: The average age of representation cases decided by the Authority.* 

Results Targets

2019 194 2019 107

2020

Goal: 184 days

210 days

Not Met

2020 Reduce by 5%

* This measure calculates case age based on the “date 

filed,” to reflect “day in-day out” case-processing times.

2021 Maintain

2022 Maintain

Measure 1a-14: The percentage of representation cases in which the Authority issued a 

decision whether to grant review within 60 days of the filing of an application for review.

Results Targets

2018 100% – (7/7 cases) 2018 100%

2019 100% – (8/8 cases) 2019 100%

2020 100% – (16/16 cases)

Met

2020 100%

2021 100%

2022 100%

Measure 1a-15: The percentage of representation cases decided by the Authority within 

210 days of the filing of an application for review.*

Results Targets

2019 75% – (6/8 cases) 2019 75%

2020 88% – (14/16 cases)

Met

2020 75%

* This measure calculates case age based on the date that a 

final decision is issued in the case, to reflect “day in-day out” 

case-processing times. 

2021 75%

2022 75%

Measure 1a-16: The percentage of representation cases decided by the Authority within 

365 days of the filing of an application for review.

Results Targets

2018 100% – (7/7 cases) 2019 95%

2019 88% – (7/8 cases) 2020 95%

2020 88%– (14/16 cases)

Not Met

2021 95%

* This measure calculates case age based on the date that a 

final decision is issued in the case, to reflect “day in-day out” 

case-processing times. 

2022 95%
33

OGC

ULP Cases 2018 2019 2020 2021 Est.

2022 

Est.

Cases pending, start of year 882 682 783 903 845

Charges filed (Intake) 2,860 2,235 1,928 2,408 3,130

Total caseload 3,742 2,917 2,711 3,311 3,975

Charges withdrawn/settled 2,343 1755 1435 1913 2,343

Charges dismissed 674 379 373 453 478

Complaints issued* 43 0 0 100 200

Total cases closed (Output) 3,060 2,134 1,808 2,466 3,021

Cases pending, end of year 682 783 903 845 954

*The OGC was unable to issue decisions on ULP complaints in the absence of a General Counsel 

after November 16, 2017. Those cases are currently held in abeyance.

0

1,000

2,000

3,000

4,000

2018 2019 2020 2021 Est. 2022 Est.

882 682 783 903 845

2,860

2,235 1,928

2,408 3,130

Total OGC ULP Caseload

Cases pending, start of year Charges filed

0

500

1,000

1,500

2,000

2,500

3,000

3,500

2018 2019 2020 2021 Est. 2022 Est.

2,343

1,755 1,435

1,913 2,343

674

379

373

453

478

43

0

0

100

200

Total OGC ULP Cases Closed

Charges withdrawn/settled Charges dismissed Complaints issued
34

Measure 1a-17: The average age of ULP charges resolved by the OGC.

Results Targets

2019 68 2019 99

2020

Goal: 99 Days

61 days

Met

2020 Reduce by 5%

2021 Maintain

2022 Maintain

Measure 1a-18: The percentage of ULP charges resolved by the Office of the General 

Counsel by complaint, withdrawal, dismissal, or settlement within 120 days of filing of 

the charge.

Results Targets

2019 87% 2019 70%

2020 94% – (1692/1808 cases)

Met

2020 70%

2021 70%

2022 70%

Measure 1a-19: The percentage of ULP charges resolved by the OGC by complaint, 

withdrawal, dismissal, or settlement within 240 days of filing of the charge.

Results Targets

2019 99% 2019 95%

2020 99.9% – (1806/1808

cases)

Met

2020 95%

2021 95%

2022 95%
35

OGC

ULP Appeals 2018 2019 2020 2021 Est.

2022 

Est.

Appeals pending, start of year 22 181 302 406 363

Appeals filed (Intake) 180 121 107 157 167

Total caseload 202 302 409 563 530

Appeals closed* (Output) 21 0 3 200 300

Appeals pending, end of year 181 302 406 363 230

*The OGC was unable to issue decisions on appeals in the absence of a General Counsel, except 

where a jurisdictional issue is presented, after November 16, 2017. Those cases are currently 

held in abeyance.

0

100

200

300

400

500

600

2018 2019 2020 2021 Est. 2022 Est.

22

181

302

406 363

180

121

107

157 167

Total OGC Appeals Caseload

Appeals pending, start of year Appeals filed (Intake)

0

50

100

150

200

250

300

2018 2019 2020 2021 Est. 2022 Est.

21 0 3

200

300

Total OGC Appeals Closed

Appeals closed (Output)
36

Measure 1a-20: The average age of ULP appeals decided by the General Counsel. 

Results Targets

2019

Goal: 45 days

N/A 2019 Reduce by 5%

2020

Goal: 45 days

N/A 2020 Reduce by 5%

2021 Maintain

2022 Maintain

Measure 1a-21: The percentage of decisions on an appeal of a Regional Director’s 

dismissal of a ULP charge issued by the General Counsel within 60 days of the date filed.

Results Targets

FY 2018 100% (21/21 cases) FY 2018 95%

FY 2019 NA FY 2019 95%

FY 2020 100% (3/3 cases)

Met

FY 2020 95%

FY 2021 95%

FY 2022 95%

Measure 1a-22: The percentage of decisions on an appeal of a Regional Director’s 

dismissal of a ULP charge issued by the General Counsel within 120 days of the date 

filed.

Results Targets

2018 100% (21/21 cases) 2018 100%

2019 NA 2019 100%

2020 100% (3/3 cases) 2020 100%

2021 100%

2022 100%
37

OGC

Representation Cases 2018 2019 2020 2021 Est.

2022 

Est.

Cases pending, start of year 58 64 49 38 58

Petitions filed (Intake) 245 249 164 234 280

Total caseload 303 313 213 272 338

Petitions withdrawn 110 126 81 97 116

Cases closed based on merits 129 140 94 117 164

Total cases closed (Output) 239 266 175 214 280

Cases pending, end of year 64 47 38 58 58

0

50

100

150

200

250

300

350

2018 2019 2020 2021 Est. 2022 Est.

58 64 49 38 58

245 249

164

234

280

Total Representation Caseload

Cases pending, start of year Petitions filed

0

50

100

150

200

250

300

2018 2019 2020 2021 Est. 2022 Est.

110 126

81 97 116

129

140

94

117

164

Total Representation Cases Closed

Petitions withdrawn Cases closed based on merits
38

Measure 1a-23: The average age of representation cases resolved by the OGC through 

withdrawal, election, or issuance of a Decision and Order. 

Results Targets

2019 92 2019 114

2020

Goal: 108 days

91 days

Met

2020 Reduce by 5%

2021 Maintain

2022 Maintain

Measure 1a-24: The percentage of representation cases resolved by the OGC through 

withdrawal, election, or issuance of a Decision and Order within 120 days of the filing of 

a petition.

Results Targets

2018 82% – (195/239 cases) 2018 70%

2019 77% - (205/266 cases) 2019 70%

2020 80% (140/175 cases)

Met

2020 70%

2021 70%

2022 70%

Measure 1a-25: The percentage of cases resolved by the OGC through withdrawal, 

election, or issuance of a Decision and Order within 365 days of the filing of a petition.

Results Targets

2018 100% (348/349 cases) 2018 95%

2019 97% (259/266 cases) 2019 95%

2020 100% (175/175 cases) 

Met

2020 95%

2021 95%

2022 95%
39

FSIP

Impasses 2018 2019 2020 2021 Est.

2022 

Est.

Cases pending, start of year 17 23 28 22 22

Impasses filed (Intake) 92 77 90 90 90

Total caseload 109 100 118 118 118

Panel Decision 21 24 40 -- --

Panel declined jurisdiction 11 11 23 -- --

Settled with Panel assistance 7 13 5 -- --

Voluntarily withdrawn 47 22 28 -- --

Cases closed total (Output) 86 72 96 96 96

Cases pending, end of year 23 28 22 22 22

0

20

40

60

80

100

120

2018 2019 2020 2021 Est. 2022 Est.

17 23 28 22 22

92 77

90 90 90

Total Impasse Caseload

Cases pending, start of year Impasses filed (Intake)

0

20

40

60

80

100

2018 2019 2020 2021 Est. 2022 Est.

86

72

96 96 96

Total Impasse Cases Closed

Cases closed
40

Measure 1a-26: The average age of bargaining-impasse cases in which the FSIP 

declines jurisdiction.

Results Targets

2019 90 2019 95

2020 

Goal: 89 days

70 days (23 cases)

Met

2020 Maintain

2021 Maintain

2022 Maintain

Measure 1a-27: The percentage of bargaining-impasse cases in which the FSIP 

declines jurisdiction within 140 days of the date filed.

Results Targets

2018 100% – (11/11 cases) 2018 90%

2019 90% – (9/10 cases) 2019 90%

2020 100% - (23/23 cases)

Met

2020 90%

2021 90%

2022 90%

Measure 1a-28: The percentage of bargaining-impasse cases that are voluntarily 

settled, after the FSIP asserts jurisdiction, within 160 days of the date filed. 

Results Targets

2018 71% – (5/7 cases) 2018 80%

2019 100% – (15/15 cases) 2019 80%

2020 84% – (11/13 cases)

Met

2020 80%

2021 80%

2022 80%

Measure 1a-29: The average age of bargaining-impasse cases that the FSIP resolves 

through final action.

Results Targets

2019 140 2019 146 days

2020

Goal: 154 days

162 days (40 cases)

Not met

2020 Maintain

2021 Maintain

2022 Maintain

Measure 1a-30: The percentage of bargaining-impasse cases that the FSIP resolves 

through final action that are closed within 200 days of the date filed.

Results Targets

2018 100% – (21/21 cases) 2018 80%

2019 100% – (24/24 cases) 2019 80%

2020 87% – (35/40 cases)

Met

2020 80%

2021 80%

2022 80%
41

Strategic Objective 1b: Ensure excellence in investigations and clearly 

articulated written work products by establishing and attempting to surpass caseprocessing quality goals that build upon the Agency’s longstanding traditions of 

impartiality and consistent determinations that are clearly articulated.

Excelling at FLRA’s core functions requires the Agency to perform thorough investigations 

and produce clearly articulated written products. From informal communications, to FLRA 

determinations, to information on the FLRA website, FLRA’s written work is one of the 

primary means by which the Agency communicates with parties and the Federal labormanagement community.

FLRA’s ability to achieve its mission depends on its ability to issue impartial and consistent 

determinations that are clearly articulated. Even the appearance of partiality can cause 

parties to lose trust in FLRA’s determinations, and ultimately, in FLRA as an institution.
42

Performance Goal 1b-1: Conduct high-quality investigations and produce high-quality 

written work products.

Measure 1b-1: Establish and surpass case-processing quality goals.

Results

2019  Developed internal tools to establish agency case quality goals 

and identify areas where improvement is needed, to be used in 

conjunction with performance reviews.

2020  Updated all performance standards to include a quality 

standard. Monitored quality and evaluated through end-ofyear performance evaluations.

 Developed and instituted Agency-wide informal training 

program using brown bag sessions.

 Conducted internal legal writing training for Authority 

attorneys and legal interns.

 Following an internal survey on training needs, provided 

unlimited access to “West Legal Ed” for multitude training 

opportunities - ideal remote training opportunity during 

maximum telework/social distancing.

 Increased emphasis on well written cases, in compliance with 

the Plain Writing Act and as mentioned by Chairman Kiko 

and Member Abbott in the August 2020 FDR conference video.

Targets

2019  Complete development of Agency-wide quality assessment 

tools and finalize pilot implementation. 

2020  Target areas for improvement in case-processing quality, 

based on data gathered from internal tool(s) and survey 

results.

 Set case-quality goals, as measured by surveys or other 

quality assessment tools. 

2021  Written work products should reflect an increase in quality, as 

measured by the tools.

2022  Written work products should reflect an increase in quality, as 

measured by the tools.

Performance Goal 1b-2: Implement effective methods to maintain and improve the 

quality of FLRA investigations and written work products, including FLRA staff training 

and internal education resources. 

Measure 1b-2: Train FLRA staff and provide internal educational resources to improve 

the quality of investigations and written work products.

Results

2019  Developed and instituted Agency-wide informal training 

program using brown bag sessions.

 Developed and administered internal survey on training.

 Encouraged employees to increase awareness of Authority 

decisions by using electronic distribution tool for Agency-wide 

dissemination of decisions.

 Implemented Individual Development Plans for each staff 

member to identify training needs.
43

2020  Conducted in-house Casework Training in early March 2020.

 Conducted internal legal writing training for Authority. 

attorneys and legal interns.

 Offered leadership training for new agency supervisors and 

managers.

 See also 2020 results in Measure 1b-1.

Targets

2019  Develop internal training programs and other educational 

tools Agency-wide in order to improve the quality of 

investigations and written work products (e.g., componentspecific mentoring programs, Agency-wide or componentspecific brown bag sessions, Agency-wide dissemination of 

decisions and other relevant legal opinions). 

 Develop and administer internal surveys or other measures to 

assess the effectiveness of pilot internal training programs 

and educational tools.

 Make necessary adjustments to make internal training 

programs more effective.

 Formally implement those internal training programs and 

educational tools that are deemed effective in order to improve 

the quality of investigations and written work products. 

2020  Target ways to improve the effectiveness of internal 

educational resources based on survey results.

 Show a 10 percent increase in the effectiveness of internal 

educational resources, as measured by internal survey 

instruments or other measures developed in 2019. 

2021  Continue to make necessary adjustments to maximize 

efficiency of internal training programs.

 Increase professional development options for FLRA staff in 

order to improve the quality of investigations and written 

work products.

2022  Continue to make necessary adjustments to maximize 

efficiency of internal training programs.

 Increase professional development options for FLRA staff in 

order to improve the quality of investigations and written 

work products.
44

Performance Goal 1b-3: Ensure external stakeholder confidence in the FLRA’s 

abilities. 

Measure 1b-3: Customer perceptions about the FLRA’s impartiality. 

Results

2019  Developed a survey to assess parties’ perceptions of FLRA’s 

impartiality.

2020  COVID-19 delayed implementation of pilot survey – will carry 

over to 2021.

Targets

2019  Develop and administer an external survey(s) to assess the 

parties’ perceptions of the FLRA’s impartiality. 

2020  Maintain or improve overall perceptions about the FLRA’s 

impartiality year over year.

 Pilot external survey. 

2021  Deliver external survey electronically with every final agency 

action and evaluate results. 

2022  Deliver external survey electronically with every final agency 

action and evaluate results.

STRATEGIC GOAL 2: WE WILL DEVELOP AND PROVIDE TOOLS AND 

RESOURCES TO ENABLE THE PARTIES TO PREVENT OR MORE 

EFFECTIVELY AND EFFICIENTLY RESOLVE THEIR LABOR-RELATIONS 

DISPUTES AND IMPROVE THEIR LABOR-MANAGEMENT RELATIONSHIPS.

FLRA is specifically empowered and obligated to “provide leadership in establishing policies 

and guidance” related to matters arising under the Statute 5 U.S.C. § 7105(a)(1). 

Educating parties regarding statutory obligations promotes FLRA’s mission of protecting 

rights and facilitating stable labor-management relationships while advancing an effective 

and efficient Government. FLRA accomplishes this goal first through its written 

determinations. Additionally, FLRA Regulations permit parties to “ask the Authority for a 

general statement of policy or guidance.” Since 2019, the Authority has received an 

unprecedented fifteen policy statement requests. Although the Authority has denied these 

requests where, for example, the question presented could be more appropriately resolved 

in a case or controversy, the Authority has issued five policy statements in 2020. Where the 

Authority has found that resolution of the question presented would have general 

applicability under the Statute, the Authority has issued policy statements, which are 

intended to promote clarity in federal sector labor-management relations and are posted on 

www.flra.gov. 

In addition to decisions and policy statements, FLRA accomplishes this strategic goal by 

providing parties with quality educational resources through FLRA’s website; by 

identifying, and offering targeted assistance to, parties with significant labor-management 

challenges; and by offering external training to Federal agencies and labor organizations 

regarding their rights and obligations under the Statute.
45

Strategic Objective 2a: Maintain and expand educational resources on 

www.flra.gov. 

Offering high-quality educational resources through FLRA’s website is a key component of 

promoting stability in the Federal labor-management community. Parties who are better 

informed about their rights and obligations under the Statute are less likely to pursue 

frivolous matters or defenses, and they are more likely to approach their labor-management 

relations in a manner that is consistent with the Statute.

The Agency will continue to explore ways to supplement and enhance the educational 

resources on its website, such as expanding parties’ access to statutory and other training, 

online training modules, and short animated training videos.

Performance Goal 2a-1: Routinely review and update educational resources on the 

FLRA website.

Performance Goal 2a-2: Develop a growing library of online training modules on the 

FLRA website. 

Performance Goal 2a-3: Develop and maintain case digests of new Authority decisions 

on the FLRA website.
46

Measure 2a: Expand the relevancy, currency, and reach of educational tools. 

Results

2019  Drafted digests and prepared for upcoming publication.

 Acquired animation software to begin developing short animated 

training videos.

 Piloted desktop video teleconferencing to expand capabilities for 

providing interactive external training online.

 Developed 5 pre-recorded training modules in preparation for 

posting.

 Updated OGC Unfair Labor Practice Case Law Outline and the 

OGC Representation Case Outline.

2020  FLRA issued two press releases announcing seven training 

sessions online Agency-wide. 

 FLRA now offers a new animated video on FLRA YouTube 

channel and posted five pre-recorded training modules on 

www.flra.gov

 YouTube trainings plus those currently on the website. 

 Continue to provide case digest summaries for all Authority 

decisions. To date, the Authority has published approximately 

205 digests. 

 Quarterly digests reports are up to date and were announced in a 

press release. 

 Requested public comment on proposed negotiability regulations.

 Agency updated its union-dues-revocation regulation. 

 Conducted live-stream training.

 Requested public comment via Federal Register notice on four 

policy statement requests.

 Agency issued five policy statements. 

 Updated OGC Representation Case Outline.

Targets

2019  Update at least 3 guides or manuals Agency-wide.

 Establish a mechanism to live stream trainings online or offer 

pre-recorded trainings on the www.flra.gov website. 

 Offer at least 5 training sessions online Agency-wide.

 Begin publishing case digest summaries for all Authority 

decisions. OGC and FSIP to evaluate doing the same for their 

decisions. 

2020  Critically review and update the relevancy and currency of 

Agency regulations.

 Update 2 guides or manuals Agency-wide.

 Offer 7 training sessions online Agency-wide.

 Continue to provide case digest summaries for all Authority 

decisions. Provide OGC and FSIP case digests, if deemed 

appropriate. 

2021  Critically review and update the relevancy and currency of 

Agency regulations.

 Update remaining guides or manuals Agency-wide as needed.

 Offer 10 additional training sessions online as developed.

 Continue to provide case digest summaries for all Authority 

decisions. Provide OGC and FSIP case digests, if deemed 

appropriate.
47

2022  Continue to expand online resources.

 Continue to provide case digest summaries for all Authority 

decisions. Provide OGC and FSIP case digests, if deemed 

appropriate.

Strategic Objective 2b: Identify and offer targeted assistance to parties with 

significant labor-management challenges.

In situations where parties experience labor-management challenges, targeted assistance 

can promote stable labor-management relationships by educating the parties regarding 

their statutory rights and obligations. It can also promote effective and efficient 

Government by assisting parties in addressing their disputes without necessarily resorting 

to formal filings. 

As part of the Agency’s strategic commitment to develop and provide tools and resources to 

enable the parties to prevent or more effectively and efficiently resolve their labor-relations 

disputes and improve their labor-management relationships, the Authority signed a 

memorandum of understanding (MOU) with the Federal Mediation and Conciliation 

Service (FMCS) creating a new pilot procedure for resolving negotiability appeals at no cost 

to the parties. The Authority trained a unique cadre of FMCS mediators so that they may 

assist the parties in the resolution of negotiability appeals through mediation. The training 

program was exceptionally well received by the mediators, who submitted comments that 

the trainers were “excellent” and “knowledgeable,” and that the course provided “great 

coverage of complex information.” Under the pilot program, before a negotiability appeal is 

considered by the Authority’s Members for a decision, the Authority may refer such appeals 

to FMCS, either on the Authority’s own initiative or based upon a request from the parties. 

The Authority anticipates that this will reduce case-processing time in negotiability appeals 

as well as provide opportunities for parties to expeditiously resolve appropriate 

negotiability disputes without the need for a formal Authority decision. After working with 

FMCS to develop a shared case-management system for tracking referrals, the Authority 

began referring negotiability appeals to FMCS mediators in December, 2019. The 

preliminary results have showed promise. FMCS mediators have either narrowed, or 

completely resolved, the parties’ negotiability dispute in 50 percent (5/10) of referred cases. 

More importantly, with the help of the FMCS mediators, the parties have resolved 71

percent (82/117) of the proposals or provisions referred to mediation. Consistent with the 

MOU, the Authority and FMCS regularly confer to discuss any necessary adjustments to 

the pilot program. Additionally, leadership of the Authority, FSIP, and FMCS made a joint 

panel presentation at the FMCS National Labor-Management Conference in August with 

approximately 500 participants.

Additional targeted assistance may take various forms, including offering training to 

parties on particular topics that have given rise to frequent ULP charges, negotiability 

disputes, or arbitration exceptions. Other types of assistance might be most appropriate for 

parties experiencing broader labor-management challenges. For parties involved in 

complex representational matters, targeted assistance can include conducting conferences 

with the parties to assist them in identifying and, if feasible, resolving relevant issues.

For example, OGC conducted 10 training sessions to Federal agencies and labor 

organizations in 2020. These sessions were requested by the organizations based on their 

perceived needs in the Federal labor-management relations area. FLRA staff tailored each 

session to meet the individualized needs of the particular group and received consistent 
48

positive feedback from the participants. The targeted training sessions focused on a range 

of issues, including unfair labor practices and representation matters.

Performance Goal 2b-1: Identify and evaluate parties with significant labormanagement challenges.

Performance Goal 2b-2: Refer appropriate parties to suitable resources.

Performance Goal 2b-3: Implement highly effective targeted assistance programs 

and associated materials.
49

Measure 2b: Develop and implement a highly effective, totally voluntary 

targeted-assistance program and related procedures.

Results

2019  Collaborated with FMCS on a pilot program for mediation of 

appropriate negotiability disputes.

 Addressed specific requests of parties for targeted training.

2020  FLRA conducted 16 customer trainings.

 Authority and FSIP attorneys conducted successful training of 

FMCS mediators.

 Authority and FMCS developed a shared electronic casemanagement system in order to track the status of referred 

negotiability cases.

 Pursuant to FMCS pilot program, began referring negotiability 

cases to FMCS mediators in December 2019.

 To date, FMCS has narrowed – or entirely resolved – the 

negotiability dispute in 50 percent (5/10) of referred cases.

 To date, FMCS mediators have assisted the parties in resolving 

71 percent (82/117) of the proposals/provisions referred to 

mediation.

 Authority and FMCS project leaders confer regularly to refine 

and apply metrics for measuring success.

 FLRA implemented a PDF questionnaire for customers to be used 

in representation cases (implemented during COVID-19).

 Virtual REP hearings procedures were put into place. 

 Addressed specific requests of parties for targeted training.

Targets

2019  Develop the criteria for identifying parties with significant labormanagement challenges.

 Develop procedures for offering targeted assistance to identified 

parties or referring such parties to appropriate resources.

 Pilot a targeted-assistance program.

 Identify metrics for evaluating the program’s success.

 Formally implement a targeted-assistance program with 

appropriately ambitious measures to assess its effectiveness.

2020  Train FMCS mediators and support the pilot mediation program.

 Establish metrics for evaluating the effectiveness of the 

mediation program.

 Evaluate the effectiveness of the targeted-assistance program 

using the metrics established in 2019.

 Make necessary refinements and improvements based on 

customer feedback.

 Increase the program’s overall success as measured by the 

metrics established in 2019.

2021  Evaluate the effectiveness of the FMCS mediation pilot program 

using metrics established in 2020.

 Continue to evaluate the effectiveness of the targeted-assistance 

program.
50

2022  Evaluate the effectiveness of the FMCS mediation pilot program 

using metrics established in 2020.

 Continue to evaluate the effectiveness of targeted-assistance 

program.

Strategic Objective 2c: Maintain and expand our external training programs to 

enable the parties to better understand their rights and obligations under the 

Statute. 

Agency components have traditionally provided training on statutory principles governing 

ULPs, representational issues, negotiability disputes, and arbitration exceptions. 

Providing such external training to Federal agencies and labor organizations regarding 

their rights and obligations under the Statute directly promotes FLRA’s mission of 

protecting rights and facilitating stable labor-management relationships while advancing 

an effective and efficient Government. For this reason, it is essential that FLRA maintain 

and, where possible, expand these external training programs.

Performance Goal 2c-1: Exceed an annual target number of highly rated in-person 

training programs for a target number of participants concerning the full range of 

statutory matters.

Performance Goal 2c-2: Find additional ways to deliver real-time and pre-recorded 

external trainings that have been successfully developed and implemented utilizing 

appropriate technology and participant-friendly best practices. 

Performance Goal 2c-3: Exceed an annual target number of highly rated training 

programs for a target number of participants regarding procedures for filing and 

processing FLRA cases.

Measure 2c-1: The number of training, outreach, and facilitation activities delivered. 

Results

2018 100

2019 95

Measure 2c-1: The number of in-person statutory training programs delivered. 

Results Targets

2020 29*

Not Met

2020 50

2021 2021 50

*Training limited due to COVID-19 Pandemic

Training via videoconference included

Measure 2c-1: The number of training programs delivered (in-person or virtual). 

Results (New measure) Targets

2022 2022 50
51

Measure 2c-2: The number of participants involved in training, outreach, and 

facilitation activities. 

Results

2017 8,122

2018 2574

2019 4807

Measure 2c-2: The number of participants who receive in-person statutory 

training. 

Results Targets

2020 2780*

Met

2020 2,500

2021 2021 2,500

*In-person training limited due to COVID-19 Pandemic; Training via videoconference included

Measure 2c-2: The number of participants who received training (in-person or 

virtual). 

Results (New measure) Targets

2022 2022 2,500

Measure 2c-3: The percentage of participants who highly rate the statutory training 

that they received.

Results Targets

2020 Met (Since the OGC has 

been using its form, 96% 

of the evaluations 

received rate the OGC 

training as highly 

effective or effective.)

2020 Develop evaluations. 80% of 

participants rate the training 

as effective or highly effective.

Measure 2c-3: The percentage of responders who rated training highly effective. 

Targets

2021 80% of participants rate the 

training as effective or highly 

effective.

2022 80% of participants rate the 

training as effective or highly 

effective.

Measure 2c-4: The number of training programs delivered regarding procedures for 

filing and processing FLRA cases. 

Results Targets

2020 Over 200 views of 

new (released 8-19-

2020) eFiling video 

on FLRA YouTube 

channel. 

Met

2020 40 FLRA will discontinue this 

measure in 2021; covered by 

2c-1.
52

Measure 2c-5: The number of participants who receive training regarding procedures 

for filing and processing FLRA cases.

Results Targets

2020 Over 200 views of 

the new (released 8-

19-2020) eFiling 

video on FLRA 

YouTube channel. 

Met

2020 FLRA will discontinue this 

measure in 2021; covered by 

2c-2.

Measure 2c-6: The percentage of participants who highly rate the training that they 

received regarding procedures for filing and processing FLRA cases.

Results Targets

2019 Evaluations being retooled for an onlinetraining-video 

environment.

2020 Develop evaluations.

Discontinued this measure; 

covered by 2c-3.

Measure 2c-7: The number of real-time and pre-recorded online training programs 

developed and implemented.

Results Targets

2020 7

Met

2020 7

2021 FLRA will discontinue this 

measure and combine it with

2c-1.

Measure 2c-8: The percentage of participants who highly rate the real-time and prerecorded online training that they received.

Results Targets

2020 Met (96% of OGC 

evaluations rated highly 

effective or effective.)

2020 Develop evaluations. 

2021 FLRA will discontinue this 

measure and combine it with 

2c-3.
53

STRATEGIC GOAL 3: WE WILL MANAGE OUR RESOURCES EFFECTIVELY 

AND EFFICIENTLY, AND RECOGNIZE THAT OUR DEDICATED WORKFORCE 

IS CRITICAL TO THE RESOLUTION OF LABOR-RELATIONS DISPUTES.

The FLRA honors the trust that the public has placed in it to use Agency resources wisely 

on behalf of the American taxpayer. Recognizing that trust, FLRA has always focused its 

resources on carrying out its mission. It will continue to do so.

The core of FLRA’s mission is to protect rights and facilitate stable labor-management 

relationships. FLRA will continue to achieve that goal by employing committed, 

experienced professionals.

FLRA will continue to explore ways to manage its workforce effectively and efficiently. A 

key component of that commitment is to continue developing IT systems, with the goal of 

enabling FLRA employees to spend more time on mission-critical, substantive work. FLRA 

will also reexamine its performance-management systems to ensure that they align with 

the goals in the Strategic Plan, that individual employee standards reflect organizational 

goals, and that the Agency appropriately recognizes employee achievements in support of 

these goals. Finally, FLRA will continue to encourage employee growth, development, and 

innovation. 

Strategic Objective 3a: Ensure that the FLRA’s performance-management systems 

are synchronized with and support the Agency’s strategic goals.

At the foundation of the Agency’s 2018-2022 Strategic Plan is FLRA’s renewed commitment 

to developing the most effective ways to evaluate Agency performance, as well as the 

contributions of the Agency’s components and individual employees. To do this, employee 

performance-management targets will be adapted to support Agency goals. This will help 

ensure that the evaluation of FLRA employees will include consideration of how well they 

assist the Agency to achieve its strategic and performance goals. 

Performance Goal 3a-1: FLRA employees perceive that the Agency’s performancemanagement systems, and their individual performance plans, directly align with achieving 

this strategic plan. 

Performance Goal 3a-2: FLRA employees have a clear understanding of how their 

individual achievement contributes to achievement of Agency priorities and successful 

implementation of FLRA strategic goals. 

Performance Goal 3a-3: FLRA employees perceive that their performance recognition 

and rewards are also directly linked to their contribution to the successful achievement of 

the FLRA’s strategic goals.
54

Measure 3a-1: Align performance-management systems and individual performance 

plans with current Strategic Plan. 

Results

2019  Evaluated Agency performance-management systems and 

individual employee performance plans for alignment with the 

Strategic Plan.

 Formed Strategic Implementation Teams for the three types of 

positions (1) OGC Attorneys, (2) Non-OGC attorneys, (3) 

Non--Attorneys and tasked those teams with offering 

recommended revisions to employees’ standards and elements. 

 Strategic Implementation Teams have provided Agency 

leadership with recommended revisions of performance plans to 

pilot in 2020. 

2020  Completed the development of revised performance plans for all 

attorney positions and rolled them out for 2020 performance 

year.

 Assessing employees’ perceptions that performance management 

systems align with the Strategic Plan via FEVS. In FEVS 2019 

results, 79.2% of employees “Know how my work relates to the 

agency’s goals. (#12)”

 Completed the development of revised performance plans for all 

non-attorney and manager positions.

 Completed the review of, and updated, the Agency’s GS 

performance management system’s policy and the Agency’s 

attorney individual performance plans to ensure they align 

directly with the 2018-2022 Strategic Plan.

 Created the new SL performance plans.

Targets

2019  Develop communications strategies, educational tools, and other 

materials to successfully implement the new systems. 

 Develop and administer an internal survey(s) to assess whether 

employees perceive that performance management systems (GS 

and SL/SES) and individual employee performance plans align 

with the Strategic Plan. 

2020  Develop revised performance plans for remaining positions.

 Pilot all revised performance plans.

 Implement appropriate communications strategies and 

educational tools to successfully achieve the transition. 

2021  Evaluate pilot and revise performance plans as appropriate.

 Managers add whistleblower protection information to 

performance plans.

 Completed the development of revised performance plans for all 

remaining positions.

2022  FLRA will discontinue this measure; all performance plans and 

systems are aligned with the Strategic Plan.
55

Measure 3a-2: Employees understand how their individual performance contributes to 

overall Agency strategic goals. 

Results

2019 FLRA did not administer a separate survey, but relied on data 

provided through FEVS.

2020  Maintained or improved positive responses to relevant FEVS 

questions. In FEVS 2019 results, 79.2% of employees “Know 

how my work relates to the agency’s goals. (#12)”

 Presented Strategic Plan Implementation Teams with 

personal acknowledgements for their contributions - over 50 

percent of FLRA employees serve on one or more teams 

directly supporting the Strategic Plan goals and objectives.

Targets

2019 Develop and administer an internal survey(s), or use existing survey 

instruments (e.g., FEVS), to assess whether FLRA employees 

understand how their individual achievements contribute to Agency 

priorities and successful implementation of FLRA strategic goals. 

(E.g., FEVS Question #12, “I know how my work relates to the 

agency’s goals and priorities”; FEVS Question #16, “I am held 

responsible for achieving results.”)

2020 Maintain or improve positive responses to relevant question(s) in 

existing survey instruments or internal survey(s) year over year. 

2021 FLRA will rely on FEVS and discontinue this measure.

Measure 3a-3: Employees believe that there is alignment between the recognition and 

rewards that they receive and their individual contributions towards achieving the 

FLRA’s strategic goals.

Results

2019 FLRA did not administer a separate survey, but relied on data 

provided through FEVS.

2020  Roll-out of the updated Attorney Performance Plans aligned the 

performance standards with the strategic plan 

 Approximately 1/2 of FLRA employees received a recognition 

award in May 2020 for participation as a leader or member on 

one or more of the Strategic Plan Implementation Teams.

 Creation of new awards committee development team.

Targets

2019 Develop and administer an internal survey(s), or use existing survey 

instruments (e.g., FEVS), to assess whether employees believe that 

recognition and rewards relate to their contribution toward 

achievement of FLRA strategic goals. (e.g., FEVS Question #24, “In 

my work unit, differences in performance are recognized in a 

meaningful way”; FEVS Question #25, “Awards in my work unit 

depend on how well employees perform their jobs”; FEVS Question 

#32, “Creativity and innovation are rewarded.”)

2020 Maintain or improve positive responses to relevant question(s) in 

existing survey instruments the internal survey(s) year over year. 

2021 FLRA will rely on FEVS and discontinue this measure. 
56
57

Strategic Objective 3b: Continue to expand the FLRA’s technological capabilities 

to enable employees to deliver mission results more effectively and efficiently.

FLRA’s IT systems have provided, and will continue to provide, a key means by which the 

FLRA will more effectively and efficiently deliver quality services and increase internal 

efficiencies. For example, the Agency has connected all FLRA components in ways that 

improve internal communication, and FLRA staff works more efficiently by using a cloudbased DMS that allows for simplified document management and internal collaboration. 

The Agency began implementing a new and improved version of its eFiling system in 2018 

and streamlined it in 2019 to provide a more intuitive, user friendly customer experience. 

This improved eFiling experience allows the parties to submit ULP, representation, 

arbitration, and negotiability filings in an electronic format. The Agency is currently using 

the same agile methodology to develop a more user-friendly electronic CMS. FLRA seeks to

integrate these three systems — document management, eFiling, and case management —

to fully implement electronic case file capability throughout the Agency by the end of CY 

2022.

Thereafter, as resources permit, FLRA will continue to enhance and leverage these 

technological capabilities. Work has continued to fully implement electronic case files, to 

encourage the widest uses of eFiling, and to serve FLRA-generated case documents on the 

parties electronically—saving time, human-capital resources, and postage costs.

Performance Goal 3b-1: Implement a new and improved FLRA electronic casemanagement system. Integrate the case-management system with the FLRA document 

management and eFiling systems in order to fully implement electronic case file 

capability throughout the Agency.

Performance Goal 3b-2: FLRA employees and parties understand how to make the 

most effective use of the FLRA’s electronic systems.

Performance Goal 3b-3: Enhance the positive impact of technological advancements 

on the customer experience.
58

Measure 3b-1: Expand the use of eFiling.

Results

2016 • 22 percent of cases eFiled Agency-wide.

2017 • 35 percent of cases eFiled Agency-wide. 

2018 • 35 percent of cases eFiled Agency-wide. 

2019 • 46 percent of cases eFiled Agency-wide.

• Authority and FSIP exceeded target of 10 percent increase.

2020 • 56 percent of cases eFiled Agency-wide.

• 89 percent of Authority cases eFiled.

• OGC eFiling has increased by 9.3%

• Streamlined eFiling software & created eFiling training module.

Targets

2019 • 50 percent of cases eFiled Agency-wide.

• 10 percent increase in eFiling in each component – the OGC, the 

Authority, and the FSIP.

•

2020 • 75 percent of cases eFiled Agency-wide.

• Critically review and revise FLRA regulations to modernize filing 

requirements. 

•

2021

• Pilot mandatory eFiling in at least one Regional Office. 

• Amend FLRA’s regulations to eliminate the use of facsimile service for 

case filings throughout the Agency. 

2022

• Expand mandatory eFiling to all components. 

• Continue regulatory revisions to mandate eFiling in all components.

• Adopt suggested enhancements to the eFiling System, as appropriate.

Measure 3b-2: Implement end-to-end electronic case files. 

Results

2018

• Developed and launched eFiling 3.0, which both internal and external 

users report is significantly more user-friendly and intuitive. 

• Began development of a new and improved CMS that, over time, will 

provide significant ($100,000 annually) cost savings and allow for 

more efficient integration of the CMS and eFiling systems with the 

DMS, enabling end-to-end electronic case processing throughout the 

Agency. 

• Identified the basic structure of electronic case files for each 

component/office in the DMS. 

• Completed transition of all major IT functions – CMS, DMS, email – to 

the cloud, which improves both IT security, consistent with the PMA, 

and Agency continuity of operations plans.

2019 • Developed CMS for the Authority. Developed electronic case file 

structure in the DMS and initial planning to automate creating the 

electronic folders from the CMS.

2020 • Combined original Phase 2 and Phase 3 of the four-phase plan to 

implement fully-electronic casefile. Developed and tested end-to-end 

electronic casefile for the Authority component, rolled out in late 2020.
59

Targets

2019 • Develop and fully implement the new and improved CMS in at least 

one FLRA component (Phase 2). 

2020 • Develop and implement the new and improved CMS for the Authority 

component, to include end-to-end electronic casefile.

2021 • Develop and implement end-to-end electronic case files for the OGC 

component, and begin development of the CMS for the remaining 

components.

2022 • Complete implementation of end-to-end electronic casefile system for 

all FLRA components. Align Agency policies and procedures for full 

acceptance of fully Electronic Casefile.

Measure 3b-3: Internal and external customer perceptions of the eFiling System.

Results

2019  Received feedback from external users via the provided engagement 

email address. Implemented suggestions and replied to customer 

feedback.

 Developed and distributed notices to customers promoting the use of 

eFiling.

2020  Received feedback from external users via the provided engagement 

email address. Implemented suggestions and replied to customer 

feedback.

 Streamlined the eFiling system & created eFiling training module.

Targets

2019  Develop a communications strategy for sharing with internal and 

external customers the benefits and advantages of eFiling (e.g., notice 

to go out with all Authority decisions). 

 Develop and administer internal and external survey tools to assess 

customer perceptions of the eFiling System. 

 Develop online, pop-up eFiling surveys that appear while users are 

logged into the eFiling System.

2020  Maintain or improve positive responses to internal and external 

survey instruments.

 Adopt suggested enhancements to the eFiling System, as appropriate.

2021  Maintain or improve positive responses to internal and external 

survey instruments.

 Adopt suggested enhancements to the eFiling System, as appropriate. 

2022  FLRA will discontinue this measure; will measure through the 

engagement email address.
60

Measure 3b-4: Assess how internal and external customers perceive the effectiveness of 

the Agency’s IT modernization efforts. 

Results

2019  Developed and administered internal surveys to assess how 

FLRA employees perceive the effectiveness of the Agency’s IT 

modernization efforts.

2020  Produced and administered a survey to assess employees’ 

response to the new WebEx system rolled out during pandemic in 

2020.

 Employee Engagement Team & FLRA Pandemic Task Force 

jointly produced a survey to gather information on best practices, 

needs, to assess overall response to maximum telework, and to 

invite personnel to raise return to workplace concerns (77 

percent respondents – positive results).

 Received a well-above-positive response to managers’ survey 

questions on how IT is functioning during maximum telework 

mode.

 Reinstated the Technology Council in order to directly gather 

feedback and actionable input regarding IT modernization 

efforts.

 Administered internal survey to assess how FLRA employees 

perceive the effectiveness of the Agency’s IT modernization 

efforts.

Targets

2019  Develop and administer internal and external survey(s) to 

assess: (1) whether FLRA employees and customers know how to 

maximize available technology; and (2) how FLRA employees and 

customers perceive the effectiveness of the Agency’s IT 

modernization efforts. 

 Develop and implement appropriate communications to promote 

and enhance these efforts.

2020  Craft an effective, targeted communications strategy based on 

the results of the customer-satisfaction surveys. 

 Develop and provide any necessary internal or external training 

programs so that employees and customers have the tools to 

maximize technological improvements.

 Achieve improved survey results year over year. 

2021  Annually distribute internal customer satisfaction survey and 

continue to receive point of service surveys.

 Maintain improved survey results.

2022  Develop and Administer targeted surveys to assess usability of 

enhancements and changes to the eFiling system, made in 

conjunction with CMS development activities.

 Annually distribute internal customer satisfaction survey and 

continue to receive point of service surveys.

 Maintain improved survey results.
61

Strategic Objective 3c: Recruit, retain, and develop a diverse, respected workforce 

in an environment that fosters employee input and satisfaction and makes the best 

use of FLRA resources. 

FLRA’s charge to uphold and administer the Statute relies on its employees. Accordingly, 

FLRA’s success relies on the expertise and engagement of its workforce. A key component 

of attracting and retaining an effective workforce is creating a positive work environment in 

which employees see themselves as stakeholders and innovators. FLRA will continue to 

assess the skills and professional education/training needs of its workforce, and it will seek 

new, cost-effective ways to cultivate employee development and commitment. FLRA will 

provide opportunities for experienced employees to share their institutional knowledge by 

providing internal training and through other means. FLRA’s continued focus on humancapital development will help ensure continued mission accomplishment and leadership of 

the Federal-sector labor-management relations program.

Performance Goal 3c-1: Internal and external survey respondents perceive that 

diverse and respected FLRA employees demonstrate expertise in Federal-sector labormanagement relations; minimal gaps exist in succession plans; and the Agency develops 

nontraditional resources for employee education and development.

Performance Goal 3c-2: The FLRA workforce expresses a stable and improving level of 

overall job satisfaction, as well as satisfaction with the manner in which internal 

problem-solving occurs. 

Performance Goal 3c-3: FLRA managers and employees perceive that the Agency 

appropriately uses telework and technology to promote employee efficiency and a healthy 

work-life balance. 

Measure 3c-1: Recruit, retain, and develop a diverse, respected workforce. 

Results

2019  Reviewed a portion of Agency performance-management systems and 

individual performance plans to ensure that they align directly with 

the 2018-2022 Strategic Plan. 

 Completed review of all position descriptions Agency-wide, to ensure 

that all Agency positions reflect the actual duties of the position.

 Issued a revised Reasonable Accommodation Policy – including 

Personal Assistive Device policy – that is fully compliant with recent 

EEOC regulatory amendments and guidance.

 Ensured compliance with Government-wide goals for Schedule A 

hiring.

 Expanded recruitment efforts to target persons with disabilities.

 Formed Diversity and Inclusion Team to develop programs to 

highlight and celebrate the diversity of Agency employees.

2020  Scheduled quarterly Diversity and Inclusion Team events and 

programs to highlight and celebrate diversity of Agency employees 

including Black History Month, Women’s History, Pride Month, 

Hispanic Heritage Month--provided pertinent resources/informational 
62

subject matter regarding diversity through weekly emails, published 

monthly newsletter and all employee intra-agency communications.

 Met or exceeded Government-wide standards for diversity and 

Schedule A hiring. Established contacts with organizations that 

assist individuals with disabilities in securing employment including: 

America Job Centers, state vocational rehabilitation agencies, the 

Veterans’ Vocational rehabilitation and Employment Program, 

Centers for Independent Living, and employment network service 

providers to ensure recruitment efforts include individuals with 

disabilities. The Agency also utilized the Schedule A hiring authority 

to fill critical vacancies this FY.

 Continued to support the Agency Diversity and Inclusion Team in 

their collective efforts to provide information to all FLRA employees.

 Increased recruitment efforts allowed the Agency to gather time-tohire data in 2019 and 2020 to use to assess recruitment and staffing 

processes and procedures moving forward.

Targets

2019  Review Agency performance-management systems and individual 

performance plans to ensure that they align directly with the 2018-

2022 Strategic Plan. 

 Conduct a comprehensive, Agency-wide position classification review 

to confirm that all Agency positions reflect the actual duties of the 

position. 

 Assess time-to-hire results for Agency positions by reviewing 

recruitment and staffing processes and procedures.

 Issue a revised Reasonable Accommodation Policy – including 

Personal Assistive Device policy – that is fully compliant with recent 

EEOC regulatory amendments and guidance. 

 Ensure compliance with Government-wide goals for Schedule A 

hiring.

2020  Continue the review of the Agency’s non-attorney individual 

performance plans to ensure that they align directly with the 2018-

2022 Strategic Plan.

 Review and assess time-to-hire metrics based on recruitment data 

received in 2019 and 2020.

 Continue to meet or exceed Government-wide standards for diversity 

and Schedule A hiring. 

2021  Complete the review of all Agency position’s individual performance 

plans to ensure that they align directly with the 2018–2022 Strategic 

Plan.

 Maintain a diverse and respected workforce through targeted 

recruitment.

 Improve time-to-hire metrics based on assessment of 2019 and 2020 

data.

2022  Continue to reinforce recruitment and retention of a diverse and 

inclusionary workforce.

 Develop new and improved recruitment strategies based on overall 

time to hire assessment.
63

Measure 3c-2: Maintain and grow Agency expertise through employee development.

Results

2018

 Offered cross-component details to provide employees with training 

and developmental experiences that will enhance their skills and 

increase their understanding of the Agency’s mission and operations. 

 Managers assessed annually employees on their developmental needs 

and provided appropriate training and developmental opportunities. 

 Maintained sustained growth of positive responses to the OPM FEVS 

question “supervisors in my work unit support employee development”

(Q. 47). 

2019

 Held 3 component specific brown bag sessions (Authority, FSIP, 

OALJ).

 Developed and administered surveys to solicit feedback on employee 

education and development.

 Provided promotional opportunities for internal agency staff prior to 

advertising key leadership positions externally.

2020

 Provided access to “WestLegal Ed” training opportunities - ideal 

remote training opportunity during maximum telework/social 

distancing. 

 Provided Brown Bag Lunch training programs, and online 

development opportunities for all staff. 

 Due to an unexpected hiring lag in 2020, the Agency reallocated 

money to increase individual staff training budgets, and also offered 

comprehensive OPM leadership training opportunities to new and 

seasoned managers and supervisors. These learning and development 

opportunities were communicated and promoted by Agency leadership 

to all staff via email and all employee meetings and discussions.

 Led by the Agency’s Professional Development Team, promoted the 

implementation and use of Individual Development Plans (IDP’s) by 

staff and managers to ensure employees were receiving the requisite 

training opportunities to advance in their careers.

 Conducted internal writing training for Authority attorneys and legal 

interns.

 Completed the virtual Administrative Professionals’ Conference to 

provide information to the Agency’s administrative and operational 

staff on Agency programs, policies and procedures and also to gain 

insight from that workforce population. 

 Per 2019 FEVS results the Agency’s score in response to item #47 -

“Supervisors in my work unit support employee development” trended 

upwards from 71.5 percent in 2018 to 87 percent positive.

Targets
64

2019

 Develop and implement use of nontraditional resources for employee 

education and development (e.g., component-specific mentoring 

programs, Agency-wide or component-specific brown bag sessions, 

Agency-wide dissemination of decisions and other relevant legal 

opinions). 

 Develop and administer survey(s) to solicit feedback on and assess the 

effectiveness of nontraditional resources for employee education and 

development. 

 Maintain sustained growth of positive responses to FEVS Question 

#47 – “Supervisors in my work unit support employee development.”

2020

 Provide and promote “Westlaw Legal Ed” training opportunities –

diverse options available throughout the year (and during maximum 

telework / social distancing and a welcome option/time to take 

advantage of courses available remotely).

 Provide Brown Bag Lunch training programs, and online development 

opportunities for all staff. opportunities.; 

 Increase individual staff training budgets, and also offered 

comprehensive OPM leadership training opportunity to new and 

seasoned managers and supervisors. These learning and development 

opportunities were communicated and promoted by Agency leadership 

to all staff via email and all employee meetings and discussions.

 Promote the implementation and use of Individual Development 

Plans (IDP’s) by staff and managers to ensure employees were 

receiving the requisite training opportunities to advance in their 

careers.

 Conduct internal writing training for Authority attorneys and legal 

interns.

 Complete the virtual Administrative Professionals’ Conference to 

provide information to the Agency’s administrative and operational 

staff on Agency programs, policies and procedures and also to gain 

insight from that workforce population. 

 Maintain sustained growth of positive responses to FEVS Question 47 

– “Supervisors in my work unit support employee development.”

2021  FLRA will discontinue this measure because it is incorporated in 

Measure 1b-2. 
65

Measure 3c-3: Internal and external perceptions about the workforce. 

New measure 2019.

Results

2019  FLRA did not administer a separate survey, but relied on data 

provided through FEVS.

2020

 While FLRA did not administer a separate survey, there were marked 

increases in job satisfaction and overall well-being reported in the 

2019 FEVS as compared to 2018. See specifics below:

 14 percent Increase - How satisfied are you with your opportunity to 

get a better job in your organization?

 14 percent Increase - Physical conditions allow employees to perform 

their jobs well?

 14 percent Increase - Considering everything, how satisfied are you 

with your pay?

 13 percent Increase - Employees are protected from health and safety 

hazards on the job?

 13 percent Increase - Supervisors work well with employees of 

different backgrounds?

Targets

2019

 Develop and administer an internal survey(s), or use existing survey 

instruments (e.g., FEVS), to assess whether employees believe that 

FLRA employees: are diverse, are respected, and demonstrate 

expertise in Federal sector labor-management relations (e.g., FEVS 

FEVS Question #29 – “The workforce has the job-relevant knowledge 

and skills necessary to accomplish organizational goals.”) 

 Develop and administer an external survey(s) to assess whether 

external respondents perceive that FLRA employees: are diverse, are 

respected, and demonstrate expertise in Federal sector labormanagement relations. 

2020  Maintain or improve positive responses to relevant question(s) in 

existing survey instruments or internal survey(s) year over year. 

2021  FLRA will discontinue this measure regarding internal surveys 

because it will be measured through FEVS.
66

Measure 3c-4: Internal perceptions about succession plans. 

New measure 2019.

Results

2019  FLRA did not administer a separate survey, but relied on data 

provided through FEVS.

2020

 Ensured FLRA job opportunity announcements were distributed by 

email to all employees. Engaged in significant internal recruitment 

efforts, particularly for management positions.

Targets

2019

 Develop and administer an internal survey(s), or use existing survey 

instruments (e.g., FEVS), to assess whether employees believe that 

minimal gaps exist in succession planning (e.g., FEVS Question #68 –

“How satisfied are you with your opportunity to get a better job in 

your organization?”) 

2020  Maintain or improve positive responses to relevant question(s) in 

existing survey instruments or internal survey(s) year over year. 

2021  FLRA will discontinue this measure. This will be measured through 

FEVS.
67

Measure 3c-5: Overall employee job satisfaction. 

New measure 2019.

Results

2019

 FLRA formed an employee engagement Team and began conducting 

focus groups with all employees to better understand all aspects of job 

satisfaction.

2020

 Reinstated reimbursement for bar dues up to $1000 for 2020.

 Employee Engagement Team continues to discuss, review and develop 

recommendations on a variety of issues, including those identified in 

the Focus Group Report which include: technological challenges and 

ways to assure employees have a method of raising issues/concerns 

with leadership.

 Employee Engagement Team encourages its members and all 

employees to convey to the Team matters to include on the Team 

agenda.

 Health & Wellness Team provides a spectrum of opportunity to all 

employees to focus on their personal mental health, physical health, 

and work/life balance.

 Expanded work hours and eliminated core hours to provide maximum 

flexibility to allow for employees to manage additional family 

responsibilities during the pandemic.

 Created a one-stop shop for all COVID-19 information on the Agency’s 

intranet.

Targets

2019

 Develop and administer an internal survey(s), or use existing survey 

instruments (e.g., FEVS), to assess whether employees believe that 

FLRA employees: are diverse, are respected, and demonstrate 

expertise in Federal sector labor-management relations (e.g., FEVS 

Global Satisfaction Index; FEVS Question #69 – “Considering 

everything, how satisfied are you with your job?”) 

2020  Maintain or improve positive responses to relevant question(s) in 

existing survey instruments or internal survey(s) year over year. 

2021  FLRA will discontinue this measure. This will be measured through 

FEVS.
68

Measure 3c-6: Internal satisfaction with the manner in which internal problem-solving 

occurs. 

New measure 2019.

Results

2019  FLRA did not administer a separate survey, but relied on data 

provided through FEVS.

2020

 Employee Engagement Team & FLRA Pandemic Task Force produced 

survey to gather information on best practices, needs, to assess overall 

response to maximum telework, and to invite personnel to raise 

return to workplace concerns.

 Chairman set up consistent weekly, monthly, quarterly management 

& leadership meetings, including monthly meetings with Regional 

Office Directors.

 Chairman conducted all-employee meetings to ensure open and 

transparent communications to staff, especially due to COVID-19, and 

plans to continue with this method of communication on a recurring 

basis.

Targets

2019

 Develop and administer an internal survey(s), or use existing survey 

instruments (e.g., FEVS), to assess employee satisfaction with 

internal problem-solving practices. 

2020  Maintain or improve positive responses to relevant question(s) in 

existing survey instruments or internal survey(s) year over year. 

2021  FLRA will discontinue this measure. This will be measured through 

FEVS.
69

Measure 3c-7: Internal perceptions about use of technology to promote employee 

efficiency and work-life balance. 

New measure 2019.

Results

2019 FLRA did not administer a separate survey, but relied on data provided 

through FEVS.

2020

 Rolled out the new WebEx system during time of maximum telework 

with an overall positive response – capable of accommodating large 

groups (e.g. first WebEx all-employee meeting May 7 had 106 

employee participants; subsequent meetings throughout the year

easily accommodated 90-109 participants -- and streamlining remote 

communication between staff and with consumers.

 Produced Avatar “shorts” created to encourage best practices during 

maximum telework including health & wellness focus.

 Developed and administered Employee Engagement Team (EET) and 

Pandemic Task Force surveys to gauge employee perception and 

evaluated results to meet employees’ needs or concerns where 

possible.

Targets

2019

Develop and administer an internal survey(s), or use existing survey 

instruments (e.g., FEVS), to assess internal perceptions about the use of 

technology to promote efficiency and work-life balance (e.g., FEVS 

Question #42 – “My supervisor supports my need to balance work and 

other life issues.”)

2020 Maintain or improve positive responses to relevant question(s) in existing 

survey instruments or internal survey(s) year over year. 

2021 FLRA will discontinue this measure. This will be measured through 

FEVS.
70

 MEMORANDUM

DATE: September 24, 2020

TO: Colleen Duffy Kiko

Chairman

Ernest DuBester

Member

James Abbott

Member

FROM: Dana Rooney

Inspector General

SUBJECT: Top Management and Performance Challenges Facing the Federal Labor Relations 

Authority (MC-21-01)

In accordance with the Reports Consolidation Act of 2000, we are providing you with our perspective on 

the most serious management and performance challenges facing the Federal Labor Relations Authority 

(FLRA). The law states that the “agency head may comment on the Inspector General’s statement, but 

may not modify the statement.” By statute this statement should be included in the FLRA’s 

“Performance and Accountability Report” (PAR).

We identified these challenges based on the Office of Inspector General’s (OIG) experience and 

observations from our oversight work, as well as our general knowledge of the FLRA programs and 

operations. Our analysis considers the accomplishments the FLRA reported as of August 24, 2019. 

In this year’s memorandum, we retained only one of the two management challenges that we identified in 

Fiscal Year (FY) 2019. My office is reporting the records management challenge. FLRA has taken 

sufficient action to effectively mitigate the information technology security challenge that was reported in 

the FY 2019 PAR. We appreciate management’s strong commitment in addressing these challenges and 

welcome comments to our assessment.

Attachment

INSPECTOR GENERAL

UNITED STATES OF AMERICA

FEDERAL LABOR RELATIONS AUTHORITY

WASHINGTON, D.C. 20424-0001
73

 Office of Inspector General

Federal Labor Relations Authority

Comply with Records Management 

Federal agencies are required by law (the Federal Records Act of 1950, as amended and codified in 

Title 44 of the United States Code) to adequately document their missions, functions, policies, 

procedures, decisions, and transactions. They are required to preserve historically valuable records, and 

it is a crime to destroy records without approval from the National Archives.

In 2011, Presidential Memorandum, Managing Government Records, requires Federal agencies to 

manage both permanent and temporary email records in an electronic format by the end of 2016. By 

the end of 2019, agencies are directed by the Office of Management and Budget (OMB) and U.S. 

National Archives and Records Administration (NARA) jointly issued Memorandum M-12-18, 

Managing Government Records Directive to manage all permanent records in an electronic format. 

NARA is set to stop accepting paper-based records at the end of 2022, and OMB has issued M-19-21, 

Transition to Electronic Records to help agencies meet this deadline. 

OMB is directing agencies, to “ensure that all Federal records are created, retained, and managed in 

electronic formats, with appropriate metadata,” and develop plans to close agency-operated storage 

facilities for paper and other, analog records, and transfer those records to Federal Records Centers 

operated by NARA or commercial storage facilities.”

The OMB guidelines require that all agencies “manage all permanent electronic records in an electronic 

format” by December 31, 2019. By December 31, 2022 this requirement extends to all permanent 

records as well as temporary records,” to the fullest extent possible.” December 31, 2022 is also the 

deadline for agencies to close their agency-operated record centers, and transition all records to Federal 

or commercial centers.

The memo states, “Beginning January 1, 2023, all other legal transfers of permanent records must be in 

electronic format, to the fullest extent possible, regardless of whether the records were originally 

created in electronic formats. After that date, agencies will be required to digitize permanent records in 

analog formats before transfer to NARA.” 

FLRA has made great strides in to comply with the records management directive by continuing to 

develop the electronic case-management system (CMS) to properly handle agency case files and 

records. The FLRA is slated to complete testing of the CMS by end of the FY. NARA has approved 

the agencies proposed Capstone program for its retention schedule for the management of electronic 

mail messages. FLRA has also developed a Mandatory Agency Records and Information Management 

Training course. This is an excellent step forward to comply with records management standards. 

However, it is imperative that a complete oversight or governance process be established to include 

documenting agency policies, procedures and processes that address all hard copy and electronic 

records proper handling. Although new automated systems offer increased capabilities, they also 

present new internal (management) control challenges. The FLRA needs to ensure various roles (e.g., 

system administrator); related authorities and capabilities are properly assigned, documented, managed 

and monitored. Such written documentation should be maintained as this need becomes increasingly 

critical as additional functionality and enhancements are added to the system. Further, although, certain 

types of records do not have legal retention requirements; the policies, processes and procedures should, 

clearly and specifically, instruct staff on the proper handling. Further, management should periodically 
74

 Office of Inspector General

Federal Labor Relations Authority

verify that such policies are being followed. 

Progress in Addressing the Challenge

FLRA provided the following management challenge update:

“FLRA continues to bring its Records Management Program into compliance. During FY 2020 the 

Agency has taken active steps to comply with Presidential Memoranda: M-12-18 and M-19-21. Some 

of the progress achieved in FY 2020 includes the continued efforts to use technology to fully automate 

our current paper-based, manually intensive processes. This included the continued development of the 

electronic case-management system (CMS), which includes an electronic case file. This is a major 

accomplishment and is critical to support the Agency’s efforts to transition to paperless case files and 

records. The Agency has made significant strides in this area. The Authority CMS is in final 

development and testing, and is slated to be completed by the end of the fiscal year. Also, the Agency 

has requested the necessary funding in FY 2021 to address the remaining offices with their 

development and transition to the new CMS and fully electronic case files. This is in support of the 

Agency completing its transition to fully electronic files by December 2022, per M-19-21. 

The Agency has adopted the Capstone approach for its retention schedule for the management of 

electronic mail messages. NARA has officially approved the Agency’s proposed Capstone program. 

Also, during FY 2020, in accordance with NARA Bulletin, UNITED STATES OF AMERICA 

FEDERAL LABOR RELATIONS AUTHORITY WASHINGTON, D.C. 20424-0001 2017-01, the 

FLRA developed a Mandatory Agency Records and Information Management Training course. This 

newly-created computer-based and role-based training is now required annual training for all FLRA 

employees and contractors that create, receive, access, or use federal records. Further, the Agency has 

begun developing policies, and procedures to provide staff guidance for their responsibilities for 

managing all aspects of the agency records program.”

What Needs to Be Done

FLRA needs to continue its efforts to successfully achieve compliance with OMB deadlines. FLRA 

needs to develop policies and procedures to fully incorporate recordkeeping functionalities into 

electronic systems, establish controls and preservation considerations for systems, and issue instructions 

on email requirements.

Key OIG Resources

• President Memorandum, Managing Government Records, signed on November 28, 2011

• OMB Directive M-12-18, Managing Government Records Directive, issued August 24, 2012

• OMB/NARA Memorandum M-14-16, which included NARA Bulletin 2014-06, Guidance on 

Managing Email issued September 14, 2014

• NARA Memorandum, Records Management Priorities for 2017, issued March 15, 2017

• OMB Memorandum M-19-21, Transition to Electronic Records, signed on June 28, 2019
U.S. FEDERAL LABOR RELATIONS AUTHORITY

1400 K Street, NW

Washington, DC 20424

www.flra.gov