WWW.FLRA.GOV 

U.S. FEDERAL LABOR RELATIONS AUTHORITY

Promoting and protecting labor-management relations

for effective, efficient Government.

CONGRESSIONAL BUDGET 

JUSTIFICATION
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UNITED STATES

FEDERAL LABOR RELATIONS AUTHORITY

Congressional Budget Justification

Fiscal Year 2023
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Table of Contents

EXECUTIVE SUMMARY........................................................................................................................1

U.S. FEDERAL LABOR RELATIONS AUTHORITY......................................................................3

BACKGROUND AND MISSION ...............................................................................................................3

ORGANIZATIONAL STRUCTURE ..........................................................................................................3

ORGANIZATIONAL CHART...............................................................................................................................4

THE AUTHORITY..............................................................................................................................................5

OFFICE OF THE GENERAL COUNSEL (OGC)................................................................................................5

FEDERAL SERVICE IMPASSES PANEL (FSIP) ..............................................................................................6

AGENCY TRENDS & CHALLENGES ................................................................................................6

INTRODUCTION ................................................................................................................................................6

1999-2009 ...................................................................................................................................................6

2009-2016 ...................................................................................................................................................7

2017-2020 ...................................................................................................................................................7

2021-2024 ...................................................................................................................................................8

OFFICE OF THE GENERAL COUNSEL.............................................................................................................9

OFFICE OF ADMINISTRATIVE LAW JUDGES (OALJ).................................................................................10

COLLABORATION AND ALTERNATIVE DISPUTE RESOLUTION OFFICE (CADRO).................................11

TRAINING AND MUCH-NEEDED UPDATES TO GUIDANCE MATERIALS...................................................13

OFFICE OF THE EXECUTIVE DIRECTOR ......................................................................................................14

Technology Investment – 100 percent electronic files.......................................................................14

Technology Investment – CyberSecurity.............................................................................................15

Technology Investment – FLRA.gov ....................................................................................................15

CURRENT SERVICES ESTIMATE........................................................................................................15

BUDGET JUSTIFICATION................................................................................................................. 16

APPROPRIATIONS LANGUAGE ......................................................................................................................16

2023 FUNDING REQUEST .............................................................................................................................16

CHANGE FROM 2022 .....................................................................................................................................16

PERSONNEL COMPENSATION AND BENEFITS............................................................................................17

PROGRAM AND FINANCING SCHEDULE ......................................................................................................17

OBJECT CLASSIFICATION SCHEDULE .........................................................................................................18

EMPLOYMENT SUMMARY SCHEDULE .........................................................................................................18

INSPECTOR GENERAL RESOURCES .............................................................................................................19

ANNUAL PERFORMANCE PLAN .................................................................................................... 22

FLRA STRATEGIC GOALS ......................................................................................................................23

STRATEGIC OBJECTIVES......................................................................................................................23

STRATEGIC GOAL 1: RESOLVE DISPUTES UNDER THE STATUTE IN A TIMELY, HIGHQUALITY, AND IMPARTIAL MANNER .........................................................................................24

STRATEGIC GOAL 2: PROMOTE STABILITY IN THE FEDERAL LABOR-MANAGEMENT

COMMUNITY BY PROVIDING LEADERSHIP AND GUIDANCE THROUGH

ALTERNATIVE DISPUTE RESOLUTION AND EDUCATION.................................................41

STRATEGIC GOAL 3: MANAGE OUR RESOURCES EFFECTIVELY AND EFFICIENTLY IN

ORDER TO ACHIEVE ORGANIZATIONAL EXCELLENCE......................................................45
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EXECUTIVE SUMMARY

The Federal Labor Relations Authority (FLRA’s) is pleased to present its 2023 Congressional 

Budget Justification in the amount of $31,762,000—or $2,515,000 (+9 percent) over 2022 CBJ

or $4,364,000 (+16 percent) over 2022 enacted budget. 

FLRA is an independent 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. FLRA is a small agency with a large mission: overseeing the labormanagement programs of most agencies in the Federal government. Thus, FLRA is the rare 

type of agency whose performance actually affects other Federal agencies. Specifically, if FLRA 

is not able to resolve or help prevent Federal agencies’ and unions’ labor disputes in a timely, 

effective manner, then that can have rippling, negative effects on mission performance 

throughout the rest of the Federal government.

In 2023, FLRA will continue a multiyear Agency rebuild that began in 2021 and 2022. This

reconstruction was preceded by two decades of level funding, at best, where inflation 

consistently reduced the agency’s ability to afford FTEs – resulting in FLRA being down about 

100 FTEs from 20 years ago. Additionally, FLRA is dealing with unprecedented case backlogs,

created by: the nearly four-year absence of an FLRA General Counsel (GC) and the resulting 

inability to issue unfair-labor-practice (ULP) complaints; the elimination of FLRA’s highly 

successful Collaboration and Alternative Dispute Resolution Office (CADRO); the loss of 

experienced staff, including those who departed when FLRA closed its Dallas and Boston 

Regional Offices; and explosions in new case filings. 

The first steps of FLRA’s rebuild were designed to enable FLRA to effectively “stop the 

bleeding”: to reestablish CADRO; to restore FTEs to the Office of the General Counsel (OGC)

and Office of Administrative Law Judges (OALJ); to prevent case backlogs from increasing 

further; and to position the Agency to again provide the level of service that the parties expect 

and deserve. 

Consistent with that design, FLRA’s 2022 budget request of $29,247,000 was intended to be the 

first, but not final, step in restoring FLRA to a “normal” state of operations. That request 

would have funded 131 full-time equivalents (FTEs), including twelve new FTEs: one conflictmanagement expert in CADRO, one ALJ in the OALJ, and ten attorneys in the OGC. It also 

would have provided needed resources to improve FLRA’s administrative functions and

cybersecurity posture, and to continue to build on our successful virtual-trial capabilities.

However, FLRA’s 2022 enacted budget of $27,398,000, along with an increase in average-FTE 

costs, will enable FLRA to fund only 116 FTEs for 2022.1 This leaves staffing at the 2021 level, 

so the need for additional funding remains. Therefore, this 2023 request would fund 135 FTEs, 

reestablishing many of the positions that have been lost over recent years and reviving FLRA’s

ability to effectively perform its mission for the employees, agencies, and unions, who depend 

on the Agency’s labor-relations expertise and leadership. 

 

1 The average annualized cost of an FTE at FLRA in FY 2022 is $195,000 and FY 2023 is $207,000.
2

President Biden’s Executive Order 14003, “Protecting the Federal Workforce” (1/22/21) and 

OPM Guidance, “Guidance for Implementation of Executive Order 14003 - Protecting the 

Federal Workforce” (3/5/21), direct agencies to revise any collective-bargaining agreements 

implementing Executive Order 13836 from the previous Administration. As a result, FLRA is 

seeing a surge in its workload throughout all components. This new surge in work, on top of 

the resolution of the backlogs of cases, discussed below, will necessitate a restoration of FTEs.

In FY 2004, FLRA’s enacted budget was $29,611,000: in FY 2022 it is $27,398,000. Throughout

the years, the Agency has had the same mission and responsibilities as it has today. FLRA 

survived those years by virtually eliminating face-to-face interactions with the employee,

agency, and union representatives that we serve; making, what were thought to be temporary 

cost cuts, in every budget area; closing two Regional Offices; and, in largest part, by reducing 

staff levels through attrition and not filling the vacated positions. FLRA’s greatest cost, and 

greatest asset, has always been its FTEs – about 80 percent of the entire budget – and the 

Agency simply could not afford the FTEs it needed to fully carry out its mission.

FLRA acknowledges that the requested funding increase may seem “exorbitant,” but it is 

crucial if FLRA is to return to a fully-functioning agency and meet President Biden’s call to 

“Protect the Federal Workforce.” Compared to the reduction in enacted FLRA funding over the 

course of the last twenty years, the Agency’s FY 2023 request is well below the funding we 

would have, even if only given yearly budget increases simply based on inflation. It is past time 

to make significant investments in FLRA and return to a more appropriate level of service for 

the parties we serve.
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U.S. FEDERAL LABOR RELATIONS AUTHORITY

BACKGROUND AND MISSION

The U.S. Federal Labor Relations Authority (FLRA) is responsible for establishing policies 

and guidance regarding the labor-management-relations program for 2.1 million non-Postal, 

Federal employees worldwide, approximately 1.2 million (60 percent) of whom are 

represented in 2,200 bargaining units. FLRA was created by Title VII of the Civil Service 

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

(the Statute). The Agency’s genesis dates from the issuance of Executive Order 10988 by 

President Kennedy in 1962, which established the first government-wide, labor-managementrelations program within the Federal Government. In 1970, President Nixon established the 

Federal Labor Relations Council, by Executive Order 11491, to administer the Federal labormanagement-relations program and to make final decisions on policy questions and major 

disputes arising under Executive Order 10988. Executive Order 11491, as amended, was the 

basis for President Carter’s proposal to Congress to create FLRA as an independent agency.

The Statute protects the rights of Federal employees to form, join, or assist a labor 

organization, or to refrain from such activity, freely and without fear of penalty or reprisal.

These rights include acting for a labor organization as a representative and, in that capacity, 

presenting the views of the organization. Employees also have the right to engage in 

collective bargaining with respect to conditions of employment through representatives 

chosen by the employees.

FLRA’s mission is to promote stable, constructive labor-management relations in the Federal

government by resolving and assisting in the prevention of labor-management disputes, in a 

manner that gives full effect to the collective-bargaining rights of employees, unions, and 

agencies. FLRA does not initiate cases; all proceedings before FLRA originate from filings by

Federal agencies and employees, or labor organizations which represent employees. Although 

FLRA is a small agency, accomplishing its mission, including timely and quality resolution of 

labor-management disputes, is essential for program performance government-wide. If a 

labor-management dispute remains unresolved for too long, then mission accomplishment at 

the affected agencies likely will suffer. In many ways, FLRA provides the grease for the 

wheels of government. As such, its influence is important beyond its size.

ORGANIZATIONAL STRUCTURE

FLRA consists of the Authority, the Office of the General Counsel (OGC), and the Federal 

Service Impasses Panel (FSIP). The Agency also provides full staff support to two other 

organizations, the Foreign Service Impasse Disputes Panel and the Foreign Service Labor 

Relations Board.
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Organizational Chart
5

The Authority

The Authority, FLRA’s bipartisan, adjudicatory body, comprises three full-time Members 

appointed by the President with the advice and consent of the Senate. The Members are 

appointed for fixed, five-year, staggered terms, and the President designates one Member to 

serve as Chairman. The Chairman acts as the Agency’s chief executive and administrative 

officer. 

The Authority, first and foremost, is directed to “provide leadership in establishing policies and 

guidance” related to the purposes of the Statute. Moreover, the Authority is specifically

empowered to resolve disputes over the negotiability of proposals made in collective 

bargaining; decide whether conduct alleged in a complaint constitutes an unfair labor practice 

(ULP); resolve exceptions to grievance-arbitration awards; and review decisions of Regional 

Directors in representation disputes over union elections and unit determinations. The 

Authority Members appoint Administrative Law Judges (ALJs) to hear and prepare 

recommended decisions in cases involving ULP complaints. The ALJs’ recommended decisions 

may be appealed to the Authority.

Other offices and programs under the Authority’s jurisdiction include the Office of the Solicitor, 

the Office of Administrative Law Judges (OALJ), the Collaboration and Alternative Dispute 

Resolution Office (CADRO), the Office of Case Intake and Publication (CIP), and the Equal 

Employment Opportunity Program (EEO). The Office of Inspector General (OIG) stands as an 

independent entity within the Authority.

Office of the General Counsel (OGC)

The General Counsel, appointed by the President with the advice and consent of the Senate, 

has separate and independent responsibilities from the Authority. Under the Statute, the 

General Counsel has sole responsibility over the investigation and prosecution of ULP cases. 

The General Counsel’s determinations in these matters are final and unreviewable. The 

General Counsel has direct authority over, and responsibility for, all employees in the OGC, 

including those in FLRA’s Regional Offices. 

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;

provides 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. 

The Regional Offices, on behalf of the General Counsel, investigate and resolve alleged ULP

charges, file and prosecute ULP complaints, effectuate compliance with settlement agreements 

and Authority Orders, and provide training and alternative dispute resolution services. In 

addition, through delegation from the Authority, the Regional Offices investigate and resolve 

representation petitions (REP) and conduct secret-ballot elections. Currently, 45 percent of 

FLRA staff are employed in the Regional Offices, where all ULP charges and REP petitions are 

filed.

There are five Regional Offices located in Atlanta, Georgia; Chicago, Illinois; Denver, Colorado; 

San Francisco, California; and Washington, D.C.
6

Federal Service Impasses Panel (FSIP)

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

appointed to fixed, staggered five-year terms. The FSIP assists in resolving negotiation 

impasses between Federal agencies and labor organizations representing Federal employees 

that arise from collective-bargaining negotiations under the Statute and the Federal 

Employees Flexible and Compressed Work Schedules Act.

AGENCY TRENDS & CHALLENGES

Introduction

Over the past twenty years or so, FLRA has experienced several significant eras.

1999-2009

FLRA’s history since 1999 is one of “doing much more with much less.” FLRA experienced a 

brutal appropriations loss of about seven million dollars (23 percent, close to one quarter of its 

budget) from $29,611,000 in 2004 to $22,674,000 in 2009. 

From 1999 to 2009, FLRA lost about one hundred FTE employees (from 213 to 114): about half 

its staff. 

Along with staff losses, there were vacancies of long duration in key positions, such as 

Chairman and Members of the Authority, the General Counsel and Deputy General Counsel, 

Panel Members, Solicitor, Executive Director, Budget Director, Human Resources Director, and 

five of the then-seven Regional Directors. 
7

And in the 2007 and 2008 Federal Employee Viewpoint Surveys (FEVS), FLRA ranked as the 

worst small agency for which to work.2

The ability to discharge our statutory responsibilities was severely compromised. 

2009-2016

To correct course, FLRA submitted a Corrective Action Plan (CAP) to OMB in April 2009. As 

part of that plan, FLRA recommitted to engaging its workforce and improving overall employee 

satisfaction. 

Through the prudent management of resources, as well as the hard work and dedication of 

agency leadership and employees, FLRA transformed itself from a seriously under-performing 

agency marked by considerable deficiencies to what it had not been in years: a high-performing 

agency with numerous notable achievements. For example, FLRA completed its CAP, educated

the labor-management community at unprecedented rates, provided practitioners with 

educational and training resources and tools for success, eliminated its case backlogs, and met 

and exceeded its performance expectations.

In addition, FLRA experienced extraordinary increases in employee satisfaction and morale so 

that, by 2015, FLRA reached the rank as the #3 best agency to work for under the Best Places 

to Work in the Federal Government® small-agency rankings, including ranking as the #1 small 

agency in several meaningful categories. 

An indispensable part of this impressive turn-around in the agency’s performance of its 

essential work and the meteoric rise in the FEVS, was a steady increase in the number of 

employees doing the agency’s work, reaching a high of 131 employees in 2015.

2017-2020

From 2017 to 2020, the crucial advances made by FLRA through 2016, which led to momentous 

results, were undone. 

For nearly four years, there was not a Presidentially-nominated and Senate-confirmed General 

Counsel, leading to an historically high backlog of 494 complaint and 436 appeal cases.

FLRA did not have a full complement of Members until late 2017, during which time few 

decisions were issued. By the time it had its full complement, the Authority faced an enormous 

number of aging cases pending decision, as well as a steep increase in new case filings. At the 

same time, the new Members revisited multiple areas of longstanding precedent and FLRA 

received an unparalleled number of requests for Authority “Policy Statements,” both of which 

led to very overage cases.

During these four years, nearly 30 percent of FLRA employees departed. Most heavily affected, 

the OGC experienced a drop of 40 percent of its professional staff: from 42 attorneys in 2017 to 

only 26 in 2021. When FLRA staff departed, including some of the most experienced OGC and 

 

2 In fact, the FLRA score was so low that OPM was unable to include FLRA numbers with the overall 

government numbers, because it determined it would unduly skew the statistics to do so.
8

Authority staff, few positions were backfilled. Overall, FLRA FTE employee levels dropped to a 

low of 99 in 2019.

These reductions included the closure of two Regional Offices, in Boston and Dallas, and the 

complete elimination of the Collaboration and Alternative Dispute Resolution Office (CADRO). 

As for staff morale, FLRA once again dropped, in just two years, from one of the top five best 

places to work, in 2016, to one of the bottom two, by 2018.

2021-2024

FLRA began its re-stabilization in 2021 and seeks to complete this effort by 2024. As discussed 

above, many trends in the past several years have resulted in a number of existing challenges 

for FLRA, and other projected trends will present additional challenges. To address all of these 

challenges, ensure the statutory right to engage in collective bargaining, and provide a more 

constructive approach to labor-management relations in the Federal sector, urgent steps, 

which we outline below, must be taken.

The first re-stabilization action entails stopping the increase in the case backlogs. 

FLRA’s 2022 Budget Request was $29,247,000. That amount would have funded 131 FTEs, 

including twelve new FTEs: one conflict-management expert in the newly reconstituted

CADRO, one ALJ in the OALJ, and ten attorneys in the OGC. The addition of ten attorneys to 

the OGC in 2022 would have brought the total from 26 in 2021 up to 36 in 2022, but still lower 

than the 42 that were in the OGC as recently as March 2018.3

FLRA’s 2022 enacted budget was $27,398,000, which, along with an increase in average-FTE 

costs, will enable FLRA to fund only 116 FTEs for 2022, leaving no room for growth in 2022.

To effectively accomplish its important mission of resolving and helping prevent workplace 

disputes, FLRA itself needs a first-in-class workforce. Understaffing FLRA, especially on the 

heels of the significant and painful downsizing that had already taken place within the Agency, 

undermines FLRA’s ability to recruit, reward, professionally develop, and retain top 

performers.

As a small agency primarily employing highly-educated attorneys, personnel compensation and 

benefits account for the largest share of FLRA’s overall budget: nearly 80 percent in 2022. The 

requested funding increase for 2023 is not to purchase fungible, tangible items, but is to bring 

back the professional labor that is essential to carrying out the Agency’s mission of 

investigations, settlement, litigation, decisions, and improvement of workplace relationships so 

sorely needed by our parties. FLRA is its people; without the appropriate cadre of employees, 

FLRA cannot function and its mission, critical to the government as a whole, is left undone.

 

3 After March 2018, the number of OGC professional staff dropped as a result of the resignation of staff 

and those vacancies being left unfilled and the loss of staff due to the elimination of two Regional 

offices.
9

Office of the General Counsel

The OGC plays a fundamental role in facilitating orderly, efficient, and effective change within 

the Federal Government. Inadequate staffing interferes with the OGC’s ability to promptly 

investigate and resolve ULP charges and REP petitions. Given the high rate of unionization in 

the Federal Government, work place change frequently requires collective bargaining or a 

representation proceeding, or both. Indeed, the vast majority of ULP and REP cases are filed in 

connection with a management-initiated change in conditions of employment.

The pace at which the OGC resolves these ULP and REP cases directly affects the pace of 

government change. In this regard, the Statute generally obligates management to maintain 

the status quo during negotiations and during the pendency of a representation proceeding. 

Moreover, the core purpose of the Statute is to promote collective bargaining as a means of 

fostering improved employee performance, quality of work life, and government operations. 

Hence, the quality and timeliness of OGC case dispositions and the extent to which OGC 

agents are able to take full advantage of dispute resolution opportunities also directly impact 

the effectiveness and efficiency of government change. The OGC cannot effectively carry out its 

mission without the restoration of 14 FTEs to accomplish its mission.

Overall, OGC-HQ projects 3745 ULP cases to be filed in 2023, a 27% increase over 2022. From 

February 2021, ULP case filings began to rise exponentially, however, the OGC is 

conservatively estimating an annual 27-30% rise in case filings. This will bring the OGC case 

filings to what they were prior to 2017, when case filings began to fall in the absence of a GC. 

In addition to the rise in ULP cases, REP petitions will also rise, as the OGC expects two

agencies’ multi-unit reorganizations will result in 120 petitions in 2022 and 2023 alone. As 

well, the OGC hopes to conduct 75 training sessions for labor and agencies in 2023.

Historically, the OGC settles or litigates, on average, about six complaints per attorney per 

year (about 250 in total per year, with 42 attorneys4). Once an Acting GC was named in March 

20215, the OGC took the initial steps of addressing the 494-complaint backlog by making 

settlement offers in most of the 494 cases.6 Through the end of 2021, the OGC settled 206 of 

the 494 pending complaints, without the need to issue complaint.7 The OGC also issued 130 

complaints. Within the same time period, the Regional Directors also authorized 106 new 

complaints which were added to the complaint backlog. This brought the backlog of complaints

to 264. 

 

4 Forty-two was the number of attorneys in the OGC when the last complaint, issued under the prior 

GC and then Acting GC, was litigated in March 2018.

5 Under the Vacancies Act, an Acting General Counsel was designated on March 24, 2021. A General 

Counsel nominee was named on August 4, 2021, and resubmitted on January 4, 2022. 6 In the absence of a General Counsel, the Regional Offices may investigate ULP charges and dismiss 

those found to lack merit, but they cannot issue ULP complaints in meritorious cases. In addition, 

only the General Counsel can decide appeals of a Regional Director’s dismissal of a ULP charge.

7 Many of the206 cases resolved were of the “low hanging fruit” variety. The remaining cases will 

require more dedicated resources to resolve.
10

The number of precomplaint settlements, as expected, fell to 30 in 2022, as many of the most 

contentious, hard-to-settle complaints were left after the initial flood of settlements in 2021.8

And as more time is dedicated to the litigation of the issued complaints, less time can be spent 

trying to resolve the cases prior to issuance of complaint. As well, the OGC is expected to 

authorize an additional 250 complaints, on average, each year thereafter. As a result, the 

backlog of complaint cases is still estimated to be as high as 374 cases by the end of 2022. By 

restoring OGC staffing to 40 FTEs in 2023, the OGC could resolve, by settlement or litigation,

320 complaints per year. This would nearly eliminate the complaint backlog (down to 54) by 

the end of 2023. Without the restoration of 14 FTEs, the backlog will continue to grow.

At the same time that all 40 FTEs9 are working to eliminate the complaint backlog, they will 

also be investigating newly filed ULP charges and REP petitions. A decision to prioritize the 

backlog of complaint cases over other work will necessarily result in a backlog of investigations 

of newly filed REP and ULP cases, which are expected to increase by 27-30% each year. And 

doing so will significantly increase the number of untimely ULP and REP decisions.

To have any chance of getting to a place where there are neither complaint nor investigation 

backlogs and the OGC is meeting its performance goals for productivity and timeliness, the 

OGC must rebuild to 40 attorneys in the Regions, which is still under the number on board in 

March 2018.

Congress obtains a great deal of “bang” for the “bucks” allocated to FLRA in 2023. With the 

restoration of 14 OGC staff, the OGC expects to issue 360 complaints through 2023. We expect 

that more than 90% of those complaints (324) will settle without the need for trial. This will 

allow the OGC to bring the historically high backlog of cases awaiting complaint from 494 (in 

April 2021) to 54 cases, a tremendous accomplishment. At the same time the OGC will be 

trying cases before the OALJ, it will also investigate approximately 3209 ULP charges; process 

280 REP petitions; and conduct 75 training sessions for 7000 participants. This will not be 

possible without the OGC hiring 14 attorneys in 2023.

Office of Administrative Law Judges (OALJ)

The unprecedented backlog of unfair-labor-practice (ULP) cases triggered by the lack of a 

General Counsel in the previous administration has created increased caseloads for the OALJ, 

which had three Administrative Law Judges (ALJs) in 2021 who conduct hearings and issue 

recommended decisions on cases involving alleged ULPs. In 2021, the ALJs were also 

supported by one attorney-advisor to assist in legal research. Due to a retirement of one of our 

judges, the OALJ has been short-staffed but continues to make significant progress in 

addressing the backlog. Because ALJs’ recommended decisions can be appealed to the 

Authority, the Authority undoubtedly will continue to experience an increase in its ULP

caseload. In 2023, the OALJ requests two attorneys to accelerate the delivery of written 

decisions. When parties are unable to settle their cases, the unique skill set of judges entails 

ensuring that full, adversarial due process hearings are conducted in order to resolve the 

dispute. While judges can conduct legal research and writing tasks, FLRA has prioritized their 

limited time to conducting trials in order to bring justice to litigants who have been waiting 

years for their dispute to be heard and resolved. Authorization to hire two additional attorneys 

 

8 The OGC continues to prioritize those complaints authorized between 2017 and 2020.

9 This number includes the 14 FTEs the OGC hopes to regain in 2023.
11

will directly support the OALJ’s goal of professionally producing quality decisions in a timely 

manner and allow the ALJs to focus their attention on conducting hearings and overseeing the 

drafting of decisions.

In addition to conducting hearings and issuing recommended decisions on cases involving 

alleged ULPs, ALJs render recommended decisions involving applications for attorney fees 

filed under the Back-Pay Act and the Equal Access to Justice Act. The OALJ – through its 

Settlement Judge Program administered by the CADRO practitioners – also provides 

alternative dispute-resolution (ADR) services in ULP complaint cases. Prior years’ ADR 

success rates in ULP cases, averaging more than 82%, provide evidence that the delivery of 

ADR services in ULP case processing results in more effective and cost-efficient program 

performance for FLRA, as well as the timely resolution of disputes for its customers.

Absent the additional attorneys assisting the OALJ to address the unprecedented backlog,

OALJ production can be compared to identical staff production in comparable years leading up 

to 2016. Between 2012 and 2015, a normal period without a backlog, the ALJs cumulatively 

conducted nearly 27 hearings on average per year. Average decisions per judge over that fouryear period was 14 written decisions. Since an Acting General Counsel was appointed by 

President Biden, OALJ has been scheduling four to six ULP cases per ALJ for hearing every 

other week in order to aggressively reduce the backlog.

For FY 2022, the OGC has estimated 110 ULP complaints will be filed with the OALJ, 

increasing to 250 cases in FY 2023, with the restoration of 14 FTEs to its corps. The OALJ 

caseload is directly proportional to the number of complaints filed by the General Counsel. In 

light of the initial backlog of 494 cases, it will take over three total years to eliminate only the 

backlog. This number does not include the number of complaints which the OGC will issue on 

newly filed ULPs that will be filed each year in addition to the backlog. The remaining cases 

that do not settle before trial are the most complex and litigious.

With three judges, the OALJ can expect to issue 43 decisions in 2023. With the additional two 

attorneys requested in 2023, the number of decisions issued could increase and be delivered in 

a much shorter period of time. Litigants who have waited over five years to have their cases 

resolved deserve, in the interest of justice, to benefit from the research and writing of 

additional attorneys in the OALJ to increase production. The additional attorneys will not only 

help OALJ to eliminate the current backlog but also to avoid the creation of a new backlog of 

pending ULP cases over the first three years of the Biden Administration.

Collaboration and Alternative Dispute Resolution Office (CADRO)

FLRA’s highly successful and vitally important CADRO has been key to FLRA mission 

performance for most of the past 26 years. CADRO conflict-management experts serve the dual 

role of efficiently resolving complex, sensitive cases pending before FLRA and delivering 

training, facilitation, and labor-management relationship services in support of the President’s 

initiative to restore constructive labor-management relationships between federal agencies and 

unions. Like ADR generally, CADRO has earned significant bipartisan support.

In 2023 and beyond, CADRO will continue to play a crucial role in accomplishing FLRA’s 

performance goal to resolve cases and reduce litigation and its attendant costs. CADRO offers 

FLRA parties voluntary, confidential mediation to achieve timely resolution of negotiability 

disputes and arbitration exceptions pending before the Authority, as well as settlement 
12

conferences in pre-complaint and post-complaint ULP cases. CADRO dispute-resolution 

services serve the dual purpose of preventing unnecessary and costly litigation before FLRA 

and making case processing more effective and efficient. 

CADRO will continue to be essential to preventing and reducing case backlogs for the 

Authority and FLRA’s ALJs. The multi-year ULP complaint backlog continues to skew the 

CADRO caseload heavily in that direction. In FY 2023, the OGC and the OALJ will expect 

CADRO staff to conduct 250 settlement conferences so as to prevent ULP cases from becoming 

hopelessly backed up waiting for trial. In addition, CADRO staff will be expected to resolve 

about a half-dozen sensitive arbitration exception (appeal) cases and at least 200 complex legal 

issues in about 25 negotiability cases so that Members and their attorneys can adjudicate other 

matters on the Authority’s docket.

CADRO also is an important vehicle through which FLRA exercises leadership in the manner

specifically recommended to the President by the Vice President and the Secretary of Labor in 

their report entitled White House Task Force on Worker Organizing and Empowerment

(publicly released February 07, 2022) and envisioned by the President in his April 26, 2021 

Executive Order on Worker Organizing and Empowerment (14025) and his January 22, 2021 

Executive Order Protecting the Federal Workforce (14003). In 2023, CADRO plans to expertly 

deliver at least a dozen facilitation, training, and fractured-workplace-relationship repair 

initiatives. These services will be offered to FLRA parties that want to learn how to improve 

the way they constructively manage workplace conflict and prevent conflict from erupting into 

destructive disputes. CADRO assists the stakeholders in these cases to resolve difficult, 

pragmatic issues that give rise to the legal disputes before FLRA. These services not only 

minimize the need for third-party intervention, they enable agencies and unions to 

fundamentally change their workplace relationships. The result is better mission performance 

and better quality of work life throughout Government, real evidence that these initiatives 

work. As a result, the value of CADRO dispute-prevention and dispute-resolution services goes 

far beyond the staff hours and the taxpayer dollars that it saves by settling disputes.

CADRO presently has only two FTEs and no dedicated administrative support. As reflected in 

the table below, CADRO expects to close more than 300 cases in 2023. That is an unsustainable 

number for two FTEs. They cannot possibly keep pace with projected requests to resolve 

backlogged ULP complaints pending before FLRA ALJs in addition to arbitration exceptions 

and complex negotiability cases containing hundreds of legal disputes pending before the 

Authority Members. Nor can two FTEs fully satisfy joint agency and union requests for 

training, facilitation, and assistance improving essential labor-management relationships. 

Moreover, expected Authority caseloads and other priorities for Authority staff, including

regulatory revisions, updates to training and guidance materials, and increased provision of 

training, as discussed further below, make it unlikely that non-CADRO staff at FLRA can 

continue providing CADRO staff with the same level of essential assistance in CADRO cases. 

This is particularly true given that FLRA is not requesting funding for any additional FTEs on 

the Authority Members’ staffs in 2023. For these reasons, FLRA has made it a priority to 

restore the third FTE to CADRO during 2023 (that was eliminated in 2017). After the case 

backlogs begin to clear, the third CADRO FTE will remain critical to continue delivering expert 

ADR services to help parties resolve important cases, deliver facilitation and necessary 

training, and lead essential workplace-relationship repair, all of which are key to FLRA 

accomplishing its mission and to support the White House priority to promote stable, 

constructive labor relations.
13

As a direct result of restoring the third FTE, additional disputes in cases pending before the 

Authority and FLRA ALJs will be significantly reduced, narrowed, and resolved in a timelier 

manner. Members of the labor-management community will become better equipped to prevent 

and constructively manage workplace conflict and resolve their own disputes without thirdparty intervention and resources. Fewer cases will require FLRA adjudication, thereby 

preserving limited FLRA case-processing resources and associated resources of the agencies 

and unions that FLRA serves. The high impact of restoring a third CADRO FTE in 2023 makes 

it a critical priority to fund this request.

Case Type FY 2023 est.

Negotiability 25

Arbitration 6

Other 10

Training and Facilitation 12

Subtotal 53

Settlement Judge Program 250

Total 303

Training and Much-Needed Updates to Guidance Materials

Outreach to FLRA parties by developing updated and new tools, training, online webinars, 

videos, podcasts, or other social-media tools assists the parties in understanding their statutory 

obligations and promotes a stable Federal labor-relations program. FLRA strategic plans for 

educational resources, such as YouTube videos, are expected to advance significantly in 2023.

The need for electronic training has grown with the rapid changes in workplace culture 

triggered by the pandemic, during which travel to conduct training was curtailed. The need for 

these video and audio modes of training will only increase in 2023.

However, not all customer engagement can be done virtually. Joint in-person engagement 

remains the best way for FLRA staff to help unions and agencies improve their workplace 

relationships and related skills. Engaging in-person with some of FLRA’s “repeat customers” 

has the potential to produce the greatest value throughout Government. The additional staff 

resources requested in this budget will enable FLRA experts, including OGC, Authority, and 

CADRO staff, to conduct more in-person customer engagements and achieve meaningful 

results.

Less experienced staff has made it necessary for the Authority to curtail much of its training, 

which comes at a time when parties need significant guidance. Further, the Authority’s focus 

on attempting to reduce its case backlog has prevented it from devoting staff time to developing 

and updating training materials and guidance documents. For example, the Guide to 

Arbitration that summarizes the Authority’s precedent and practices in the type of case that 

makes up the majority of the Authority’s caseload has not been updated since 2016. Also, the 

Guide to Negotiability has not been updated since it was initially created in 2013. This dearth 

of updated educational materials and Authority training has meant that there are fewer useful 

educational tools available to the parties. Restoring and improving FLRA’s ability to offer 

training requires committing time and other resources to training FLRA staff to deliver 

educational programs and giving them opportunities to become experienced at doing so.
14

With a new Member anticipated to come on board in 2022, the Authority will need to devote

much of its time and resources to issuing decisions, given the historical fact that changes in 

Agency leadership can require an increase in the amount of time that staff must devote to case 

adjudication. However, once the caseload begins to stabilize in 2023, the Authority plans to 

begin updating its guidance and training materials and increasing its delivery of training 

programs. These activities will require substantial time commitments by Authority staff.

Office of the Executive Director

FLRA proposes to build an agile organization to quickly respond and align to changing mission 

needs, innovations, and technological advancements. Clearly, FLRA’s ability to transition to 

virtual platforms so seamlessly in 2020 (required when FLRA went to maximum telework due 

to the pandemic) is a tribute to the well-positioned spending of end-of-year funds, which 

amount to an absorbed cost. This cost absorption cannot continue to be the manner in which 

FLRA funds its critical infrastructure.

Changes to FLRA’s rules and regulations will be necessary when it moves to fully electronic 

case files by December 31, 2022, as directed by Office of Personnel Management Memorandum 

M-19-21 (Transition to Electronic Records) and managed through the National Archives and

Records Administration’s Federal Electronic Records Modernization Initiative (FERMI).

Relatedly, FLRA’s general procedural regulations have not been significantly updated in 

decades and need a comprehensive review. Once they are updated, FLRA will need to develop 

guidance and provide training to its parties regarding the changes. All of these important 

activities will require substantial time commitments of Authority staff, including those in the 

Office of Case Intake and Publication, as well as OGC staff. Further, these activities, 

potentially larger caseloads, and the decision not to request additional FTEs for the Authority 

Member staffs, may affect those staffs’ ability to engage in other activities, such as assisting

CADRO, in 2023. This reinforces the need for a third CADRO FTE in 2023.

Technology Investment – 100 percent electronic files

FLRA is continuing to work towards its goal of transitioning to 100 percent electronic case 

files. This goal is in support of Presidential Memoranda: M-12-18 and M-19-21. Unfortunately, 

the FY 2022 enacted budget does not provide the requested funding necessary and will delay

the Agency completing this effort. The original goal was to be completed by December 31, 

2022. Assuming a favorable 2023 budget, the completion of this effort is now estimated to be 

2024.

Implementation of fully electronic case files throughout the Agency would enable FLRA to 

increase its overall efficiency and effectiveness. 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, including:

a. Reducing the time and expense that FLRA staff spends copying, scanning, mailing, and 

manually entering data;

b. Eliminating outdated facsimile service;

c. Reducing U.S. Postal Service costs by implementing electronic service of case-related 

documents by FLRA on the parties;
15

d. Reducing or eliminating delivery service costs for transferring paper case files between 

FLRA components;

e. Implementing a pilot program that would mandate FLRA parties to file all case-related 

documents electronically; and

f. Eventually mandating eFiling for most 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. As described above, Office of 

the Executive Director (OEXD), Authority, and OGC staff will need to review and revise the 

relevant FLRA regulations in connection with these National Archives and Records 

Administration-directed efforts. However, this would be only a short-term commitment of staff 

resources and would facilitate the long-run benefits discussed above.

Technology Investment – CyberSecurity

FLRA requires additional annual funding to ensure a sufficient cybersecurity posture. The 

President’s Executive Order (EO) on Cybersecurity has imposed a plethora of new 

requirements that require persistent funding for FLRA. The tools required for implementing 

and maintaining a Zero Trust model architecture, multifactor authentication, automation of 

data classification, and modernized endpoint detection and response require both upfront and 

ongoing financial and human capital resources.

Technology Investment – FLRA.gov

The Agency website, FLRA.gov, requires a migration from an application server that has 

reached its end-of-life service. This upgrade/migration will require outside assistance.

CURRENT SERVICES ESTIMATE

FLRA will require $31,762,000 in 2023 to successfully meet its statutory and regulatory 

responsibilities.

(In thousands of dollars)

Program 

Activity

FY 2021 

Actual

FY 2022 

Enacted

FY 2023 

Request 

Change from 

FY 2022

Authority $ 16,555 $ 15,557 $ 17,267 $ 1,710 

Office of the 

General 

Counsel

 $ 9,176 $ 10,820 $ 13,358 $ 2,538 

Federal Service 

Impasses Panel $ 806 $ 1,021 $ 1,137 $ 116 

Direct 

Obligations $ 26,537 $ 27,398 $ 31,762 $ 4,364 

FTEs 111 116 135 19
16

BUDGET JUSTIFICATION

Appropriations Language

FEDERAL LABOR RELATIONS AUTHORITY

SALARIES AND EXPENSES

For necessary expenses to carry out functions of the Federal Labor Relations Authority, 

pursuant to Reorganization Plan Numbered 2 of 1978, and the Civil Service Reform Act of 

1978, including services authorized by 5 U.S.C. 3109, and including hire of experts and 

consultants, hire of passenger motor vehicles, and including official reception and 

representation expenses (not to exceed $1,500) and rental of conference rooms in the District of 

Columbia and elsewhere, $31,762,000: Provided, That public members of the Federal Service 

Impasses Panel may be paid travel expenses and per diem in lieu of subsistence as authorized 

by law (5 U.S.C. 5703) for persons employed intermittently in the Government service, and 

compensation as authorized by 5 U.S.C. 3109: Provided further, That, notwithstanding 31 

U.S.C. 3302, funds received from fees charged to non-Federal participants at labormanagement relations conferences shall be credited to and merged with this account, to be 

available without further appropriation for the costs of carrying out these conferences.

2023 Funding Request

The 2023 budget for the U.S. Federal Labor Relations Authority in the amount of $31,762,000

is necessary to meet statutory and regulatory responsibilities. The Agency’s 2023 request will 

fund 135 FTEs.

(In thousands of dollars)

Change from 2022

The 2023 budget for the U.S. Federal Labor Relations Authority in the amount of $31,762,000

is $2,515,000 (+9 percent) over 2022 CBJ or $4,364,000 (+16 percent) over 2022 enacted 

budget.

Program 

Activity

FY 2021 

Actual

FY 2022 

Enacted

FY 2023 

Request 

Change from 

FY 2022

Authority $ 16,555 $ 15,557 $ 17,267 $ 1,710 

Office of the 

General 

Counsel

 $ 9,176 $ 10,820 $ 13,358 $ 2,538 

Federal Service 

Impasses Panel $ 806 $ 1,021 $ 1,137 $ 116 

Direct 

Obligations $ 26,537 $ 27,398 $ 31,762 $ 4,364 

FTEs 111 116 135 19
17

Personnel Compensation and Benefits

Personnel compensation and benefits costs continue to account for the overwhelming majority 

of FLRA’s overall budget, nearly 80 percent.

A 4.6 percent Federal pay raise for civilian Federal employees in 2023 is included.

Program and Financing Schedule

(In thousands of dollars)
18

Object Classification Schedule

(In thousands of dollars)

Employment Summary Schedule

FY 2021 

Actual

FY 2022 

Enacted

FY 2023 

Request 

Direct obligations:

Personnel compensation:

Full-time permanent $ 14,645 $ 15,033 $ 17,936 

Other than full-time permanent $ 239 $ 548 $ 571 

Other personnel compensation $ 381 $ 371 $ 407 

Total personnel compensation $ 15,265 $ 15,952 $ 18,914 

Civilian personnel benefits $ 5,251 $ 5,353 $ 6,281 

Travel and transportation of persons $ 5 $ 31 $ 225 

Transportation of things $ 5 $ 5 $ 5 

Rental payments to GSA $ 2,602 $ 2,607 $ 2,607 

Communications, utilities, and misc. charges $ 293 $ 410 $ 410 

Printing and reproduction $ - $ 14 

Other services from non-federal sources $ 1,588 $ 1,710 $ 1,900 

Other goods and services from Federal sources $ 906 $ 1,000 $ 1,000 

Operation and maintenance of facilities $ 4 $ 4 

Operation and maintenance of equipment $ 400 $ 34 $ 93 

Supplies and materials $ 150 $ 108 $ 121 

Equipment $ 68 $ 188 $ 188 

Direct obligations $ 26,537 $ 27,398 $ 31,762 

Reimbursable obligations:

Travel and transportation of persons $ 15 $ 1

Reimbursable obligations $ 15 $ 1

Total new obligations $ 26,552 $ 27,399 $ 31,762 

FY 2021 

Actual

FY 2022 

Estimate

FY 2023 

Request 

Direct civilian full-time 

equivalent employment 111 116 135
19

Inspector General Resources

The Office of the Inspector General (OIG) provides independent and objective assessments of 

FLRA’s efficiency, effectiveness, and compliance with laws and regulations. This is 

accomplished through proactive evaluations of Agency operational processes. In addition to 

striving to prevent and detect fraud, waste, and abuse of FLRA’s resources and operations, a 

key goal of the Inspector General (IG) is to serve as a catalyst for improving operations and 

maximizing the efficiency and integrity of Agency programs.

In fulfilling these responsibilities and objectives, the IG conducts and supervises 

investigations, internal reviews, audits, and evaluations of the programs and operations of the 

Agency. The IG communicates the results of investigations and assessments to FLRA 

management, Congress, other oversight entities, and the public, as appropriate. Generally, the 

IG communicates results in formal reports that contain findings and recommendations aimed 

at correcting any deficiencies identified and promoting efficiency and effectiveness in Agency 

programs and operations. The IG also manages a hotline to provide employees and the public 

with a direct means for confidentially communicating information on potential fraud, waste, or 

abuse.

FLRA’s 2023 funding request includes $929,888 for the OIG. 

The OIG’s FY 2021, 2022, and 2023 submissions include a GS-15 Attorney to provide mandated 

legal services to the Inspector General (IG) in accordance with the IG Act, as amended. Since 

2010, the FLRA OIG has had a memorandum of understanding (MOU) with the Department of 

Treasury OIG to provide statutory mandated legal services to the FLRA OIG. The MOU has 

saved the FLRA OIG over $2 million. In June 2019, the Treasury IG retired, and FLRA has no 

assurance the new IG will continue to provide these mandated legal services.

The IG’s Budget Request for FY 2022 was $970,236 and in FY 2023 the OIG is requesting 

$929,888. This results in a $40,348 net decrease from the OIG’s 2022 Budget Request. The 

OIG eliminated one task from the contract resulting in the decrease from the prior year 

request. 

Thus, as requested in 2021 and 2022, this level includes funding for 3 FTEs to provide 

mandated legal services to the IG in accordance with the IG Act. Accordingly, the Agency did 

not reduce the OIG budget by five percent. The funding level requested by the IG, including 

$10,000 for training and $3,336 to support the Council of the Inspectors General on Integrity 

and Efficiency (CIGIE) has been requested in total. The IG has certified that FLRA’s funding 

request for the OIG satisfies all training requirements for 2023.
20

 

August 23, 2021

The Inspector General Reform Act (Pub. L. 110-149) was signed by the President on 

October 14, 2008. Section 6(f)(1) of the Inspector General Act of 1978, 5 U.S.C. app. 3, 

was amended to require certain specifications concerning Office of Inspector General 

(OIG) budget submissions each fiscal year (FY).

Each Inspector General (IG) is required to transmit a Budget Request to the head of the 

establishment or designated Federal entity to which the IG reports specifying:

• The aggregate amount of funds requested for the operations of the OIG,

• The portion of this amount requested for OIG training, including a certification 

from the IG that the amount requested satisfies all OIG training requirements 

for the fiscal year, and

• The portion of this amount necessary to support the Council of the Inspectors 

General on Integrity and Efficiency (CIGIE).

The head of each establishment or designated Federal entity, in transmitting a proposed 

budget to the President for approval, shall include:

• An aggregate request for the OIG,

• The portion of this aggregate request for OIG training,

• The portion of this aggregate request for support of the CIGIE, and

• Any comments of the affected IG with respect to the proposal.

The President shall include in each budget of the U.S. Government submitted to 

Congress.

• A separate statement of the budget estimate submitted by each IG,

• The amount requested by the President for each OIG,

• The amount requested by the President for training of OIGs,

• The amount requested by the President for support of the CIGIE, and

• Any comments of the affected IG with respect to the proposal if the IG concludes

that the budget submitted by the President would substantially inhibit the IG

from performing duties of the OIG.

UNITED STATES OF AMERICA

FEDERAL LABOR RELATIONS AUTHORITY

WASHINGTON, D.C. 20424-0001

INSPECTOR GENERAL
21

Following the requirements as specified above, the Federal Labor Relations Authority 

Inspector General submits the following information relating to the OIG’s requested 

budget for FY 2023:

• The aggregate Budget Request for the operations of the OIG is $929,888;

• The portion of this amount needed for OIG training is $10,000; and

• The portion of this amount needed to support the CIGIE is $3,336.

I certify as the IG of the Federal Labor Relations Authority that the amount I have 

requested for training satisfies all OIG training needs for FY 2023.

Inspector General

Federal Labor Relations Authority
22

ANNUAL PERFORMANCE PLAN

STRATEGIC AND PERFORMANCE-PLANNING FRAMEWORK

In 2021 and 2022, with the agency’s new 2022-2026 Strategic Plan at its inception, the FLRA 

engaged in a review by agency leadership and agency offices of FLRA operations, staffing, 

work processes, resource allocations, and performance. The FLRA established strategies and 

goals designed to maximize the delivery of agency services throughout the federal 

government.

The FLRA has engaged in a continuous assessment of performance in the SMART (Strategic 

Milestones and Accountability Report)—a monthly report that tracks the performance 

measures in the Annual Performance Plan, FEVS results, and other mission-related data to 

ensure that it is accomplishing its mission effectively and efficiently, and that it is promoting 

innovation throughout the agency.

Under the FLRA’s 2022-2026 Strategic Plan, 3 strategic goals, each of which is supported by 

a number of strategic objectives, promote the FLRA’s ability to fulfill its mission. In addition, 

the FLRA has identified these performance measures that will allow the agency to both 

monitor progress towards achieving its strategic goals and to recalibrate strategies, as 

necessary. This continues the FLRA’s increasing focus on data analytics. In developing this 

strategic plan, the FLRA referenced evidence-based performance and resource trends, and it 

intends to use data collected to measure progress against this strategic plan, in conjunction 

with future evaluations, to support agency decision making.

In 2022, the FLRA’s strategic- and performance-planning framework is based on the agency’s 

2022-2026 Strategic Plan and supported by this Annual Performance Plan, which establishes 

the agency’s annual performance goals. The Annual Performance Plan reflects the FLRA’s 

commitment to establishing meaningful measures that will assist in assessing performance 

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

Annual Performance Plan also demonstrates the FLRA’s ongoing commitment to 

organizational excellence.

Consistent with the government-wide initiative to leverage existing data to facilitate 

agencies’ programmatic work and enhance the value of data, the FLRA strategically monitors 

its progress in accomplishing the goals and measures set forth in the Annual Performance 

Plan. This ongoing, agency-wide review is conducted on a monthly basis with distribution of 

the aforementioned SMART, which contains statistical case and performance data derived 

from the FLRA’s Case Management System (CMS) and agency management. The agency 

examines the data contained in the SMART and shares the report with managers each 

month. At the component and office levels, there are also daily performance assessments 

using a variety of reports, including: case- filing reports, which track the number and age of 

cases; case-status reports, which track the status of all assigned pending cases within the 

Authority, the OGC, and the FSIP; and monthly disposition reports, which track the number, 

age, and resolution type of every closed case within the OGC.
23

The analysis and assessment of these reports drive, among other things: decisions to target 

services (including training, facilitations, and on-site investigations) to certain parties or 

geographical locations; adjustments in workload through case transfers at the national, 

regional, and office levels; and reallocation of resources, including use of details, contract 

support, and temporary hires. As to the latter point, the agency also uses this data to make 

budgetary decisions in order to increase efficiency and eliminate the backlog of cases.

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

impartial review and disposition of cases, as seen in the performance measures under Goal 1. 

Under Goal 2, the agency supplements these efforts with a focus on reducing litigation and its 

attendant costs by helping parties to resolve their own disputes through collaboration, ADR, 

education, and labor-management-cooperation activities. Lastly, under Goal 3, the FLRA 

further supports these efforts by focusing on internal improvements in IT and more effective 

and efficient use of human capital.

FLRA STRATEGIC GOALS

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

Resolve disputes under 

the Federal Service 

Labor-Management 

Relations Statute in a 

timely, high-quality, and 

impartial manner.

Promote stability in the 

federal labormanagement community 

by providing leadership 

and guidance through 

Alternative Dispute 

Resolution and education.

Manage our resources 

effectively and 

efficiently in order to 

achieve organizational 

excellence.

STRATEGIC OBJECTIVES

1.1: Produce timely 

investigation, review,

and disposition of 

each case type (ULP, 

REP, ARB, NEG, 

Impasse).

1.2: Resolve overage 

cases in a timely 

fashion.

2.1: Provide targeted 

access to training, 

outreach, and 

facilitation activities 

within the labormanagement 

community.

2.2: Successfully resolve 

a significant portion 

of FLRA cases 

through ADR.

3.1: Recruit, retain, and 

develop a highly 

talented, 

motivated, and 

diverse workforce 

to accomplish the 

FLRA’s mission.

3.2 Improve use of 

existing technology 

and deploy new IT 

systems to 

streamline and 

enhance 

organizational 

operations.
24

STRATEGIC GOAL 1: RESOLVE DISPUTES UNDER THE STATUTE IN A TIMELY, 

HIGH-QUALITY, AND IMPARTIAL MANNER

STRATEGIC OBJECTIVE 1.1: PRODUCE TIMELY INVESTIGATION, REVIEW, AND 

DISPOSITION OF EACH CASE TYPE (ULP, REP, ARB, NEG, IMPASSE).

STRATEGIC OBJECTIVE 1.2: RESOLVE OVERAGE CASES IN A TIMELY FASHION.

This strategic goal and these strategic objectives concern the FLRA’s core statutory activities. 

The Statute charges FLRA with responsibility for protecting rights and facilitating stable 

labor-management relationships in the Federal sector.

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 case-processing productivity 

goals that enable it to investigate and resolve cases in a timely fashion.

Authority

Arbitration Cases 2019 2020 2021 2022 Est.

2023 

Est.

Cases pending, start of year 73 122 146 120 122

Exceptions filed (Intake) 136 131 117 128 125

Total caseload 209 253 263 248 247

Cases closed procedurally 15 17 23 20 26

Cases closed based on merits 72 90 120 106 101

Total cases closed (Output) 87 107 143 126 127

Cases pending, end of year 122 146 120 122 120
25

Measure 1.1.1: The average age of arbitration exceptions decided by the 

Authority. 

Results Targets

2019 261 days

Not Met 2019 247 days

2020 317 days

Not Met 2020 248 days

2021 395 days

Not Met 2021 248 days

2022 375 days

2023 356 days

Measure 1.1.2: The percentage of arbitration cases decided by the Authority 

within 210 days of the filing of exceptions.

Results Targets

2019 37% – (32/87 cases)

Not Met 2019 75%

2020 32% – (34/107 cases)

Not Met 2020 75%

2021 29% - (42/143 cases)

Not Met 2021 75%

2022 75%

2023 75%

Measure 1.2.1: The percentage of arbitration exceptions decided by the 

Authority within 365 days of the filing of exceptions.

Results Targets

2019 84% – (73/87 cases)

Not Met 2019 90%

2020 61% – (65/107 cases)

Not Met 2020 90%

2021 49% – (70/143 cases)

Not Met 2021 90%

2022 90%

2023 90%
26

Authority

Negotiability Cases 2019 2020 2021 2022 Est.

2023 

Est.

Cases pending, start of year 23 17 65 33 33

Petitions filed (Intake) 30 80 47 69 65

Total caseload 53 97 112 102 98

Cases closed procedurally 30 19 35 58 63

Cases closed based on merits 6 13 44 11 10

Total cases closed (Output) 36 32 79 69 73

Cases pending, end of year 17 65 33 33 25
27

Measure 1.1.3: The average age of negotiability cases decided by the Authority.

Results Targets

2019 169 days

Not Met 2019 119 days

2020 176 days

Not Met 2020 161 days

2021 235 days

Not Met 2021 161 days

2022 223 days

2023 212 days

Measure 1.1.4: 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)

Met 2019 75%

2020 78% – (25/32 cases)

Met 2020 75%

2021 73% – (58/79 cases)

Not Met 2021 75%

2022 75%

2023 75%

Measure 1.2.2: 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)

Met 2019 75%

2020 84% – (27/32 cases)

Met 2020 75%

2021 86% – (68/79 cases)

Met 2021 75%

2022 75%

2023 75%

Authority

ULP Cases 2019 2020 2021 2022 Est.

2023 

Est.

Cases pending, start of year 10 6 3 1 3

Cases filed (Intake) 4 1 3 15 15

Total caseload 14 7 6 16 18

Cases closed procedurally 1 1 1 10 5

Cases closed based on merits 7 3 4 3 12

Total cases closed (Output) 8 4 5 13 17

Cases pending, end of year 6 3 1 3 1
28

Measure 1.1.5: The average age of ULP exceptions decided by the Authority.

Results Targets

2019 238 days

Not Met 2019 165 days

2020 422 days

Not Met 2020 226 days

2021 554 days

Not Met 2021 226 days

2022 526 days

2023 500 days
29

Measure 1.1.6: The percentage of ULP cases decided by the Authority within 

300 days of issuance of an OALJ decision.

Results Targets

2019 75% – (6/8 cases)

Met 2019 75%

2020 25% – (1/4 cases)

Not Met 2020 75%

2021 40% – (2/5 cases)

Not Met 2021 75%

2022 75%

2023 75%

Measure 1.2.3: 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)

Not Met 2019 90%

2020 25% – (1/4 cases)

Not Met 2020 90%

2021 40% – 2/5 cases)

Not Met 2021 90%

2022 90%

2023 90%

Authority

Representation Cases 2019 2020 2021 2022 Est.

2023 

Est.

Cases pending, start of year 5 2 4 3 1

Applications for review (Intake) 5 17 3 8 11

Total caseload 10 19 7 11 12

Cases closed procedurally 1 1 0 1 1

Cases closed based on merits 7 15 4 9 10

Total cases closed (Output) 8 16 4 10 11

Cases pending, end of year 2 3 3 1 1
30

Measure 1.1.7: The average age of representation cases decided by the 

Authority.

Results Targets

2019 194 days

Not Met 2019 107 days

2020 210 days

Not Met 2020 184 days

2021 225 days

Not Met 2021 184 days

2022 214 days

2023 203 days
31

Measure 1.1.8: 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

2019 100% – (8/8 cases)

Met 2019 100%

2020 100% – (16/16 cases)

Met 2020 100%

2021 100% – (4/4 cases)

Met 2021 100%

2022 100%

2023 100%

Measure 1.1.9: 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)

Met 2019 75%

2020 88% – (14/16 cases)

Met 2020 75%

2021 75% – (3/4 cases)

Met 2021 75%

2022 75%

2023 75%

Measure 1.2.4: The percentage of representation cases decided by the 

Authority within 365 days of the filing of an application for review.

Results Targets

2019 88% – (7/8 cases)

Not Met 2019 100%

2020 88% – (14/16 cases)

Not Met 2020 100%

2021 75% – (3/4 cases)

Not Met 2021 100%

2022 100%

2023 100%

OALJ

ULP Cases 2019 2020 2021 2022 Est.

2023 

Est.

Cases pending, start of year 1 0 0 97 7

Complaints received (Intake) 0 0 125 110 250

Total caseload 1 0 125 207 257

Settlements before hearing 0 0 26 170 211

Cases closed by decision 1 0 2 30 43

Total cases closed (Output) 1 0 28 200 254

Cases pending, end of year 0 0 97 7 3
32

Measure 1.1.10: The median age of ULP complaints decided by the OALJ. *

Results Targets

2019 N/A 2019 *

2020 N/A 2020 *

2021 69 days

Met 2021 124 days

*OALJ performance standards remain to resolve 80 

percent of ULP complaints within 180 days of filing 

and 95 percent within 365 days.

2022 124 days

2023 124 days

Measure 1.1.11: 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

2019 N/A 2019 *

2020 N/A 2020 *

2021 100% – (2/2 cases)

Met 2021 80%

*OALJ performance standards remain to resolve 80 

percent of ULP complaints within 180 days of filing 

and 95 percent within 365 days.

2022 80%

2023 80%
33

Measure 1.2.10: The percentage of ULP complaints issued by the General 

Counsel decided in the OALJ within 365 days of the complaint being issued. *

Results Targets

2019 N/A 2019 *

2020 N/A 2020 *

2021 100% – (2/2 cases)

Met 2021 95%

*OALJ performance standards remain to resolve 80 

percent of ULP complaints within 180 days of filing 

and 95 percent within 365 days.

2022 95%

2023 95%

OGC

ULP Cases 2019 2020 2021 2022 Est.

2023 

Est.

Cases pending, start of year 682 783 903 1031 1493

Charges filed (Intake) 2235 1928 2471 2949 3745

Total caseload 2917 2711 3374 3980 5238

Charges withdrawn/settled 1755 1435 1850 2005 2467

Charges dismissed 379 373 363 372 492

Complaints issued* 0 0 130 110 250

Total cases closed (Output) 2134 1808 2343 2487 3209

Cases pending, end of year 783 903 1031 1493 2029

*The OGC was unable to issue decisions on ULP complaints in the absence of a General Counsel after November 16, 

2017, until an Acting General Counsel was named on March 24, 2021.
34

Measure 1.1.12: 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% – (1867/2134 cases)

Met 2019 70%

2020 94% – (1692/1808 cases)

Met 2020 70%

2021 94% – (2208/2343 cases)

Met 2021 70%

2022 70%

2023 70%

Measure 1.2.11: 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 99.8% (2338/2343 cases)

Met 2021 95%

2022 95%

2023 95%
35

OGC

ULP Appeals 2019 2020 2021 2022 Est.

2023 

Est.

Appeals pending, start of year 181 302 406 395 385

Appeals filed (Intake) 121 107 70 115 126

Total caseload 302 409 476 510 511

Appeals closed* (Output) 0 3 81 125 150

Appeals pending, end of year 302 406 395 385 361

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

jurisdictional issue is presented, from November 16, 2017, until an Acting General Counsel was named on March 

24, 2021.
36

Measure 1.1.13: 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, and in no case more than 120 days. 

Results Targets

2019 N/A 2019 95%

2020 100% (3/3 cases) 2020 95%

2021 100% (81/81) 2021 95%

2022 95%

2023 95%

OGC

Representation Cases 2019 2020 2021 2022 Est.

2023 

Est.

Cases pending, start of year 64 49 38 48 124

Petitions filed (Intake) 249 164 135 200 250

Total caseload 313 213 173 248 374

Petitions withdrawn 126 81 42 54 116

Cases closed based on merits 140 94 83 70 164

Total cases closed (Output) 266 175 125 124 280

Cases pending, end of year 47 38 48 124 94
37

Measure 1.1.14: 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

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

2020 80% (140/175 cases)

Met 2020 70%

2021 77% (96/125 cases)

Met 2021 70%

2022 70%

2023 70%

Measure 1.2.12: The percentage of representation 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

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

2020 100% (175/175 cases)

Met 2020 95%

2021 100% (125/125 cases)

Met 2021 95%

2022 95%

2023 95%
38

FSIP

Impasses 2019 2020 2021 2022 Est.

2023 

Est.

Cases pending, start of year 23 28 22 45 15

Impasses filed (Intake) 77 90 68 90 90

Total caseload 100 118 90 135 105

Panel Decision 24 40 21 * *

Panel declined jurisdiction 11 23 4 * *

Settled with Panel assistance 9 5 2 * *

Voluntarily withdrawn 28 28 18 * *

Cases closed total (Output) 72 96 45 120* 100*

Cases pending, end of year 28 22 45 15* 5*

*The FSIP anticipates closing as many or more cases as are filed in any given year. The means by which cases 

are closed is driven by the parties and directive of the Panel. 
39

Measure 1.1.15: The average age of bargaining-impasse cases in which the 

FSIP declines jurisdiction.

Results Targets

2019 90 days (10 cases)

Met 2019 95 days

2020 70 days (23 cases)

Met 2020 90 days

2021 64 days (4 cases)

Met 2021 81 days

2022 75 days

2023 75 days

Measure 1.2.13: The percentage of bargaining-impasse cases in which the 

FSIP declines jurisdiction within 140 days of the date filed.

Results Targets

2019 90% – (9/10 cases)

Met 2019 90%

2020 100% - (23/23 cases)

Met 2020 90%

2021 100% - (4/4 cases)

Met 2021 90%

2022 90%

2023 90%

Measure 1.1.16 (New *): The average age of bargaining-impasse cases that 

are voluntarily settled.

Results Targets

2021 73 days

Met 2021 120 days

*This new measure now reports more in parallel 

with other FSIP measures by providing an 

average for cases that are voluntarily settled.

2022 120 days

2023 120 days

Measure 1.2.14: The percentage of bargaining-impasse cases that are 

voluntarily settled within 160 days of the date filed.

Results Targets

2019 100% – (15/15 cases)

Met 2019 80%

2020 85% – (11/13 cases)

Met 2020 80%

2021 100% – (2/2 cases)

Met 2021 80%

2022 80%

2023 80%
40

Measure 1.1.17: The average age of bargaining-impasse cases that the FSIP 

resolves through final action.

Results Targets

2019 140 days (24 cases)

Met 2019 146 days

2020 162 days (40 cases)

Not met 2020 146 days

2021 137 days (21 cases)

Met 2021 154 days

2022 150 days

2023 150 days

Measure 1.2.15: 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

2019 100% – (24/24 cases) 

Met 2019 80%

2020 88% – (35/40 cases)

Met 2020 80%

2021 95% – (20/21 cases)

Met 2021 80%

2022 80%

2023 80%
41

STRATEGIC GOAL 2: PROMOTE STABILITY IN THE FEDERAL LABORMANAGEMENT COMMUNITY BY PROVIDING LEADERSHIP AND GUIDANCE 

THROUGH ALTERNATIVE DISPUTE RESOLUTION AND EDUCATION

Key to the FLRA’s ADR objectives is to offer high-quality outreach and preventive services, 

as well as resources, to promote more effective labor-management relations across the 

federal government. In furtherance of that objective, the FLRA has integrated ADR and 

consensus decision-making into virtually all of its processes, and it has significantly 

expanded its training, outreach, and facilitation activities. ADR is an informal process that 

allows parties to discuss and develop their interests in order to resolve the underlying 

issues and problems in their relationships. This includes interest-based conflict resolution 

and intervention services in pending ULP cases, representation cases, arbitration cases, 

negotiability appeals, and bargaining-impasse disputes.

The agency also provides training, labor-management improvement, outreach, and 

facilitation activities to help labor and management develop collaborative relationships. 

Many of the FLRA’s training programs are now available as web-based training modules, 

bringing educational tools and resources directly to agency customers at their desks to 

further assist them in resolving labor-management disputes. The FLRA’s goals include 

delivering outreach, training, and facilitation services that significantly contribute to the 

mission of the FLRA, and ensuring that training participants evaluate FLRA training as 

highly effective.

STRATEGIC OBJECTIVE 2.1: PROVIDE TARGETED ACCESS TO TRAINING, 

LABOR-MANAGEMENT IMPROVEMENT, OUTREACH, AND FACILITATION 

ACTIVITIES WITHIN THE LABOR-MANAGEMENT COMMUNITY.

Measure 2.1.1 (New): The number of training, labor-management improvement, 

outreach, and facilitation activities delivered.

Results Targets

FY 2019 72

Met

FY 2019 40

FY 2020 20

Not Met

FY 2020 40

FY 2021 54

Met

FY 2021 40

FY 2022 40

FY 2023 40
42

Measure 2.1.2 (New): The number of recipients of training, labor-management 

improvement, outreach, and facilitation activities.

Results Targets

FY 2019 4,807

Met

FY 2019 2.500

FY 2020 2,780

Met

FY 2020 2,500

FY 2021 7,886

Met

FY 2021 2,500

FY 2022 2,500

FY 2023 2,500

Measure 2.1.3: The percentage of participant responders who highly rate the training 

that they received.

Results Targets

FY 2019 N/A FY 2019 80%

FY 2020 N/A FY 2020 80%

FY 2021 93%

Met

FY 2021 80%

FY 2022 80%

FY 2023 80%

Measure 2.1.4: (New): The number of times that on-demand online training is used.

Results Targets

* New Measure – Results forthcoming. FY 2022 1,000

FY 2023 1,000

STRATEGIC OBJECTIVE 2.2: SUCCESSFULLY RESOLVE A SIGNIFICANT 

PORTION OF FLRA CASES THROUGH ADR.

Measure 2.2.1 (New): Percentage of unfair labor practice cases where OGC offer of 

ADR is accepted and case is partially or fully resolved.

Results Targets

* New Measure – Results forthcoming. FY 2022 95%

FY 2023 95%

Measure 2.2.2 (New): Percentage of representation cases where OGC offer of ADR is 

accepted and case is partially or fully resolved.

Results Targets

* New Measure – Results forthcoming. FY 2022 95%

FY 2023 95%
43

Measure 2.2.3 (New): The percentage of appropriate ULP cases in which ADR services 

are offered to the parties or ordered by the OALJ Chief Judge.

Results Targets

* New Measure – Results forthcoming. FY 2022 90%

FY 2023 90%

Measure 2.2.4 (New): The percentage of ULP cases that are partially or totally resolved 

after ADR services are accepted by the parties or ordered by the OALJ Chief Judge.

Results Targets

* New Measure – Results forthcoming. FY 2022 80%

FY 2023 80%

Measure 2.2.5 (New): The percentage of appropriate arbitration cases pending before 

the Authority in which ADR services are offered to the parties.

Results Targets

* New Measure – Results forthcoming. FY 2022 N/A

FY 2023 90%

Measure 2.2.6 (New): The percentage of arbitration cases that are partially or totally 

resolved after the parties accept an offer of ADR services.

Results Targets

* New Measure – Results forthcoming. FY 2022 N/A

FY 2023 60%

Measure 2.2.7 (New): The percentage of appropriate negotiability cases pending before 

the Authority in which ADR services are offered to the parties.

Results Targets

* New Measure – Results forthcoming. FY 2022 90%

FY 2023 90%

Measure 2.2.8 (New): The percentage of proposals or provisions in negotiability cases 

that are partially or totally resolved after the parties accept an offer of ADR services.

Results Targets

* New Measure – Results forthcoming. FY 2022 90%

FY 2023 90%
44

Measure 2.2.9 (New): The percentage of negotiability cases that are partially or totally 

resolved after the parties accept an offer of ADR services.

Results Targets

* New Measure – Results forthcoming. FY 2022 90%

FY 2023 90%

Measure 2.2.10 (New): The percentage of cases – other than ULP, arbitration, and 

negotiability – that are partially or totally resolved after parties accept an offer of ADR 

services.

Results Targets

* New Measure – Results forthcoming. FY 2022 75%

FY 2023 75%
45

STRATEGIC GOAL 3: MANAGE OUR RESOURCES EFFECTIVELY AND 

EFFICIENTLY IN ORDER TO ACHIEVE ORGANIZATIONAL EXCELLENCE

The FLRA’s ability to fulfill its core mission under the Statute depends on excellent 

management of the organization and its resources. The organizational-excellence goal 

emphasizes how the agency’s employees and IT infrastructure are central to achieving all of 

the strategic goals and objectives outlined in the strategic plan.

The landscape of the federal workplace and workforce continues to evolve, as do the needs of 

the parties that the FLRA serves. It is crucial for the FLRA to focus on developing the 

workforce of the future while retaining valuable institutional knowledge.

The agency is prepared to meet ever-changing business demands through the innovative use 

of IT to best manage the workload and interact with parties. The FLRA continues to be an 

effective steward of taxpayer dollars, with a renewed focus on maximizing the use of data to 

inform decision making. The agency’s future operational approaches are designed to foster 

nimble and seamless deployment of resources coupled with cost-avoidance strategies to 

support productive labor-management relations across the federal government. The FLRA 

has a comprehensive, forward-looking plan to increase quality and value in its 

administrative and operational functions, continue efforts to enhance productivity and 

achieve cost savings, unlock the full potential of its workforce, and build the FLRA’s 

workplace for the future.

STRATEGIC OBJECTIVE 3.1: RECRUIT, RETAIN, AND DEVELOP A HIGHLY 

TALENTED, MOTIVATED, AND DIVERSE WORKFORCE TO ACCOMPLISH THE 

FLRA’S MISSION.

The success of FLRA employees is instrumental to its success as an agency. With this in 

mind, the FLRA actively manages its human-capital programs. At the foundation of the 

Agency’s 2018-2022 Strategic Plan is FLRA’s renewed commitment to having a highly 

talented, motivated, and diverse workforce that enjoys job satisfaction as a regular part of 

their overall experience at the Agency. 
46

Measure 3.1.1: Demonstrable, strong recruitment and retention practices.

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 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-to-hire 

data in 2019 and 2020 to use to assess recruitment and staffing 

processes and procedures moving forward.

2021 • Conducted an agency-wide recruitment effort for additional members 

for the Agency Diversity, Equity, and Inclusion Team. The team now 

has 15 members that we believe properly reflect the diversity of the 

Agency.

• Developed the official charter for the team that was approved by all 

members and established subcommittees to address the necessary 

actions in line with the new administration’s Executive Orders and 

mandates related to DE&I. The subcommittees include but are not 

limited to Training, Recruiting and Hiring, Agency Events, and Policy 

Review.

Targets
47

2022 • Continue to reinforce recruitment and retention of a diverse and 

inclusionary workforce.

• Develop an agency-wide workforce demographic survey to gain more indepth information from agency employees to establish various employee 

groups and committees to facilitate diverse agency programs and 

policies.

• Develop new and improved recruitment strategies based on overall time 

to hire assessments.

• Develop an Agency entrance and exit survey for all employees to gain 

data on incoming perceptions of the agency and why employees are 

leaving the agency. This Data will assist us in recruitment planning 

and providing the proper consultation to management for developing an 

effective recruitment strategy to successfully fill vacant positions.

2023 • Develop an expanded recruitment base that is inclusive of all 

communities to include individuals with disabilities, varied race and 

ethnicities and members of the LGBTQ+ communities.

• Effectively utilize the Agency’s Diversity, Equity, and Inclusion 

committee to gain new ideas from members of the agency to better 

recruit and, more importantly, retain a diverse workforce 

representative of the country.

• Continue to survey agency workforce to gain more insight on the 

diversity of the population or lack thereof in order to develop more 

inclusive agency programs.

Measure 3.1.2 (New): Improvement in overall employee job satisfaction, as 

demonstrated through the score for question 36 of the Federal Employee Viewpoint 

Survey (FEVS).

Year Results Targets

Reported in 2019 71% satisfied in 2018

Reported in 2020 62% satisfied in 2019

Reported in 2021 73% satisfied in 2020

Reported in 2022 75% satisfied in 2021 75% satisfied

Reported in 2023 77% satisfied
48

STRATEGIC OBJECTIVE 3.2: IMPROVE USE OF EXISTING TECHNOLOGY 

AND DEPLOY NEW IT SYSTEMS TO STREAMLINE AND ENHANCE 

ORGANIZATIONAL OPERATIONS.

FLRA’s IT systems have provided, and will continue to provide, a key means by which 

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 new 

cloud-based Document Management System (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 is on its way in its effort to integrate these three systems—document 

management, eFiling, and case management—to fully implement the electronic case-file 

throughout the Agency by December 31, 2022.

FLRA will continue to enhance technology security. The President’s Executive Order (EO) 

on Cybersecurity has imposed a plethora of new requirements that require persistent 

expenses for FLRA. The EO requires tools for implementing and maintaining a Zero Trust 

model architecture, multifactor authentication, automation of data classification, and 

modernized endpoint detection and response.

Measure 3.2.1: Expand the use of electronic filing for all components. 

Results

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 percent.

• Streamlined eFiling software & created eFiling training module.

2021 • 68 percent of cases eFiled Agency-wide.

• 78 percent of Authority cases eFiled.

• OGC eFiling has increased by 14 percent

• Research and planning began to vastly increase capabilities of the 

eFiling system to allow a wider array of case types/actions and 

interactions.

Targets

2022 • Achieve 75 percent eFiling, including eFax, by 9/30/2022.

• Critically review and revise FLRA regulations to modernize filing 

requirements.

2023 • Fully align procedural regulations for case submission with available 

technology resources (eFile, etc.) to eliminate costly legacy means.
49

Measure 3.2.2: Move FLRA towards 100% electronic case files, electronic permanent 

records, and electronic case management. 

Results

2019 • Developed Case Management System (CMS) for the Authority 

component of the FLRA. 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.

2021 • Enhancements and improvements continue on Authority CMS. OGC 

CMS development hindered by lack of appropriated funds, but 

continues slowly.

Targets

2022 • Continue development and implementation of end-to-end electronic 

casefile system for all FLRA components.

2023 • Continue development and 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 3.2.3 (New): Achieve an exceptional level of information security by 

increasing the percentage of systems using a zero-trust model and multifactor 

authentication and by promptly complying with cybersecurity orders and directives.

Results

2021 *New Measure for 2022

Targets

2022 75% of systems using Zero Trust model

2023 100% of systems using Zero Trust model; Multifactor Authentication in 

use for all external facing systems, all sensitive internal systems.
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1

U.S. FEDERAL LABOR RELATIONS AUTHORITY

1400 K Street, N.W.

Washington, DC 20424

FLRA.gov