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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 2022
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Table of Contents

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

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

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

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

THE AUTHORITY ............................................................................................................................4

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

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

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

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

BUDGET CUTS AND PRECIPITOUS REDUCTIONS IN FTES .........................................................6

DEPLETION OF LITIGATION EXPERIENCE WITHIN THE OGC.....................................................8

INCREASING WORKLOADS.............................................................................................................8

CURTAILMENT OF TRAINING AND MUCH-NEEDED UPDATES TO GUIDANCE MATERIALS .......9

GC ISSUANCE OF COMPLAINTS ..................................................................................................10

OGC COMPLAINTS WILL MEAN MORE ULP CASES BEFORE THE OALJ AND AUTHORITY ..10

PROJECTED UPCOMING CHANGES AND PROJECTS ..................................................................11

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

OUTYEAR PLANNING ...................................................................................................................12

INFORMATION TECHNOLOGY INVESTMENT ...............................................................................12

EFFECTS DUE TO INFLATION......................................................................................................13

FISCAL BURDENS BEYOND INFLATION......................................................................................14

ADDITIONAL FISCAL EFFICIENCY MEASURES...........................................................................14

PROFESSIONAL DEVELOPMENT .................................................................................................14

CUSTOMER ENGAGEMENT ..........................................................................................................15

AGENCY WORKFORCE PLANNING...............................................................................................15

CURRENT SERVICES ESTIMATE..................................................................................................16

BUDGET JUSTIFICATION ...........................................................................................................17

APPROPRIATIONS LANGUAGE ....................................................................................................17

2022 FUNDING REQUEST ............................................................................................................17

CHANGE FROM 2021....................................................................................................................18

Personnel Compensation and Benefits ...............................................................................................18

PROGRAM AND FINANCING SCHEDULE......................................................................................18

OBJECT CLASSIFICATION SCHEDULE ........................................................................................19

EMPLOYMENT SUMMARY SCHEDULE.........................................................................................19

INSPECTOR GENERAL RESOURCES............................................................................................20

ADDENDUM: ANNUAL PERFORMANCE PLAN .......................................................................23

PREFACE ......................................................................................................................................23

STRATEGIC AND PERFORMANCE-PLANNING FRAMEWORK......................................................23

FLRA STRATEGIC GOALS...........................................................................................................24

Strategic Goal 1:......................................................................................................................................25

ENSURE QUALITY, TIMELY, IMPARTIAL, AND CONSISTENT INVESTIGATIVE AND DECISIONMAKING PROCESSES WITH CLEARLY ARTICULATED DETERMINATIONS. ................................25

Strategic Goal 2:......................................................................................................................................48

DEVELOP AND PROVIDE TOOLS AND RESOURCES TO ENABLE THE PARTIES TO PREVENT OR 

MORE EFFECTIVELY AND EFFICIENTLY RESOLVE THEIR LABOR-RELATIONS DISPUTES AND 

IMPROVE THEIR LABOR-MANAGEMENT RELATIONSHIPS. .......................................................48

Strategic Goal 3:......................................................................................................................................56
MANAGE RESOURCES EFFECTIVELY AND EFFICIENTLY, AND RECOGNIZE THAT A DEDICATED 

WORKFORCE IS CRITICAL TO THE RESOLUTION OF LABOR-RELATIONS DISPUTES................56
U.S. FEDERAL LABOR RELATIONS AUTHORITY

MESSAGE FROM THE CHAIRMAN

I am pleased to present the Federal Labor Relations Authority’s (FLRA’s) Fiscal 

Year 2022 Congressional Budget Justification in the amount of $29,247,000, or 

$2.647 million (+10 percent) over 2021 Enacted. This amount would restore 

twelve full-time equivalents (FTEs), including ten for the Office of General 

Counsel (OGC), one for the Collaboration and Alternative Dispute Resolution 

Office, and one for the Office of Administrative Law Judges (OALJ). 

FLRA is an independent administrative Federal agency created by Title VII of 

the Civil Service Reform Act of 1978, also known as the Federal Service LaborManagement Relations Statute (the Statute), 5 U.S.C. §§ 7101-7135. FLRA is a 

small agency with a large mission: overseeing the labor-management programs of most agencies in 

the Federal government. 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 negative ripple effects on 

mission performance throughout the rest of the Federal government.

In recent years, FLRA has experienced a number of challenges. FLRA budgets have been sharply 

reduced. Over 25 percent of the regional offices (two out of seven) were closed. Nearly 40 percent of 

the staff, including some of the most experienced and skilled staff, left the Agency, and few of those 

positions were backfilled. Employee morale plummeted, with FLRA dropping, over four years, from 

one of the “top three” best places to work to one of the “bottom two,” under the Best Places to Work 

in the Federal Government® small-agency rankings. Additionally, FLRA was without a General 

Counsel (GC) or Acting GC from November 2017 until very recently, which meant, among other 

things, that FLRA could not issue unfair labor practice (ULP) complaints for more than 3 years. 

FLRA also eliminated the highly successful and vitally important Collaboration and Alternative 

Dispute Resolution Office (CADRO), which had existed for over 25 years. CADRO provides 

mediation, training, facilitation, and workplace-relationship services to FLRA parties. And, like 

ADR generally, CADRO had significant bipartisan support. Eliminating CADRO resulted in fewer 

cases being settled and a growing case backlog before FLRA’s three-Member, decisional component 

(the Authority). At the same time, the Authority and the OGC have seen increases in case-filing 

rates, and an unprecedented number of requests for policy statements or guidance. 

As a result of these challenges, the Authority and the OGC are experiencing significant case 

backlogs – including unprecedented backlogs in the OGC. At the same time, those backlogs and the 

loss of experienced staff has caused FLRA to curtail its provision of training and the updating of 

training and guidance materials.

I also anticipate that there are further challenges to come. As there is now an Acting GC and ULP 

complaints can issue, this will result in a significant increase in the OALJ’s caseload. And, if the 

OALJ’s recommended decisions are appealed to the Authority, the Authority’s caseload also will 

increase. In addition, as a result of President Biden’s Executive Order 14003, “Protecting the 
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Federal Workforce” (1/22/21) and OPM Guidance, “Guidance for Implementation of Executive Order 

14003 - Protecting the Federal Workforce” (3/5/21), which direct agencies to revise any collectivebargaining agreements that implemented EO 13836, FLRA anticipates seeing a surge in all of its 

components’ workloads.

Therefore, FLRA is in a serious “rebuilding and restoration” mode. And I am glad to report some 

progress in addressing the challenges, including hiring back some of the most experienced staff who 

left FLRA over the past several years.

But, to successfully resolve the remaining challenges – and to help ensure the statutory right to 

engage in collective bargaining and provide a more constructive approach to labor-management 

relations in the Federal sector – additional staffing is needed. Specifically, to put a dent in its 

current backlog, and to handle newly issued ULP complaints, the OGC must hire at least ten 

additional attorneys for 2022. Further, the anticipated surge in ULP trials in the OALJ 

necessitates hiring an additional administrative law judge. And the increase in case filings before 

the Authority and anticipated increase in caseload for the OALJ requires hiring an additional 

attorney in CADRO. CADRO not only helps resolve cases that come before the Authority, but also 

plays a crucial settlement-official role for the OALJ.

To meet these important staffing requirements and successfully perform its mission, FLRA needs 

additional funding. In making this request, it is important to recognize that FLRA has operated 

under the guiding principle of “doing more with less” over many years. In the past several years, for 

example, FLRA has engaged in a number of cost-cutting measures, including reducing the Agencywide travel expenditures and professional-development budgets by 25 percent, moving the San 

Francisco regional office to Oakland to save $1 million in annual rental costs, and giving up 

significant space at Headquarters. There simply is nowhere else to cut. To return to a fully 

functioning agency, FLRA must rebuild the staffing to a more appropriate level of 131 FTEs, the 

level of staffing that FLRA had in 2015.

By restoring the staffing level to 131 FTEs, FLRA can begin to address the dire case backlog 

without falling further behind, prevent case-related disputes, increase the training of parties and 

dispute-resolution services, make much-needed updates to the training and guidance materials, 

and, I hope, significantly improve employee morale. In short, to quote President Biden, FLRA can 

“build back better.”

I am proud to have the honor to serve as Chairman of FLRA and to work with its incredibly resilient 

and resourceful employees.

If you have any questions regarding this request, please contact Michael Jeffries, Executive 

Director, at (202) 218-7982 or MJeffries@flra.gov, or Aloysius Hogan, Director, Office of Legislative 

Affairs and Program Planning, at (202) 218-7927 or AHogan@flra.gov.

Ernest DuBester, Chairman

Federal Labor Relations Authority
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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-management-relations program within the Federal

Government. In 1970, President Nixon established the Federal Labor Relations Council, by 

Executive Order 11491, to administer the Federal labor-management-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.

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 vitality 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

The Authority

The Authority, FLRA’s adjudicatory body, is composed of 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 one Member is designated by the President to serve as Chairman. 

The Chairman acts as the Agency’s chief executive and administrative officer. The Authority is 

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. Decisions of the ALJs 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 Office of Case Intake and Publication (CIP), 

the Equal Employment Opportunity Program (EEO), and the Collaboration and Alternative 

Dispute Resolution Office (CADRO). Standing as an independent entity within the Authority is 

the Office of Inspector General.
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Office of the General Counsel (OGC)

The General Counsel, who is 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 – independent of the Authority – 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.

There has not been a Presidentially-nominated and Senate-confirmed General Counsel since 

January 20, 2017, although under the Vacancies Act, there was an Acting General Counsel

through November 16, 2017. On March 24, 2021, an Acting General Counsel was again named. 

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

Headquarters management provides administrative oversight; develops policies, guidance, 

procedures, and manuals that provide programmatic direction for the Regional Offices and 

training and education for the parties; and processes appeals from the Regional Offices’ dismissals 

of ULP charges. Each Regional Office is headed by a Regional Director who provides leadership 

and management expertise for their respective regions. 

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 cases and conduct secret-ballot elections. Nearly 50 percent of FLRA’s staff is 

employed in the Regional Offices, where all ULP charges and representation petitions are filed.

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

Francisco, California; and Washington, D.C.
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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

FLRA is in a serious rebuilding and restoration mode. As discussed in greater detail below, 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 – and to 

support President Biden’s goal of “building back better,” help ensure the statutory right to engage in 

collective bargaining, and provide a more constructive approach to labor-management relations in 

the Federal sector – additional staffing and funding is vital.

Specifically, to effectively serve FLRA customers – Federal agencies, employees, and employees’ 

chosen, exclusive representatives – the 2022 budget for FLRA in the amount of $29,247,000 or 

$2.647 million (+10 percent) over 2021 Enacted would finance twelve new full-time equivalents 

(FTEs). The twelve additional FTEs include ten for the Office of General Counsel (OGC), one for the 

Collaboration and Alternative Dispute Resolution Office (CADRO), and one for the Office of 

Administrative Law Judges (OALJ). This request will help to replenish staffing levels needed to 

address case backlogs throughout all FLRA components, to maintain day-to-day operations, to 

restore CADRO, and to address other existing and projected challenges facing FLRA, as discussed 

further below.

Budget Cuts and Precipitous Reductions in FTEs

Over the past several years, FLRA has experienced budget cuts, including 25 percent reductions in 

the Agency-wide travel and professional-development budgets in each fiscal year from 2017 to 2020. 

Additionally, FLRA has had precipitous reductions in FTEs. In this regard, FLRA now has about 

half of the employees it did twenty years ago – down from 212 in 2000 to 109 in 2020. And, in 

recent years, nearly 40 percent of FLRA staff have departed, with the number of employees 

dropping from 131 FTEs (the appropriate level of staffing) in 2015 to 109 FTEs in 2020. When these 

staff – including some of the most experienced staff – departed, few positions were backfilled. These 

reductions also included the elimination of the CADRO and the contracting out of vital disputeresolution services.
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The reductions in FTEs have been felt particularly acutely in the OGC. In 2017, the OGC had 42 

attorneys. In 2021, they have only 26. This was due, in large part, to the closure of two Regional 

Offices within the OGC, with the associated loss and displacement of staff.

The OGC Regional Offices play a critical 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 unfair labor practice charges and representation petitions. Given the high 

rate of unionization in the Federal Government, work place change frequently requires collective 

bargaining or a representation proceeding. Indeed, the vast majority of Unfair Labor Practice 

(ULP) and Representation (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 affects the quality, effectiveness, and 

efficiency of government change.

Due to a 60 percent loss of staff since 2017, OGC Regional staff are required to handle substantially 

more than the optimal 80 cases per year and their ability to contribute to the accomplishment of 

this key statutory objective is grievously undermined. Having experienced several years of belowoptimal staffing levels, OGC senior managers and staff made dramatic changes in case-handling 

and outreach practices in an attempt to meet established performance goals. While some of these 

changes increased efficiency without unduly compromising the OGC’s statutory mission, many are 

more appropriately considered stop-gap measures that limited the expenditure of resources, but did 

not contribute to or facilitate the timely resolution of disputes. 212 206 196 188 184 167 142 129 119 114 128131 130 120

121

131

129

119119

99

109

95

115

135

155

175

195

215

Actual FTE by Fiscal Year
8

Most significantly, because of the loss of funds, over time, Regional Offices have virtually eliminated 

on-site investigations of ULP charges and in-person pre-trial preparation. This “call center” 

approach to investigations and trial preparation has not only undermined the effectiveness of these 

activities, it has significantly reduced Agency visibility in the Federal workplace and greatly limited 

opportunities for early resolution of disputes and on-site education and facilitation, which are 

effective ways of preventing future disputes requiring third-party intervention.

Depletion of Litigation Experience within the OGC

Due to not having a GC or Acting GC since November 2017, an extraordinary amount of time, the 

OGC attorneys have not litigated cases in the last three+ years. As described above, because of the 

loss of staff, the OGC currently has 26 attorneys, 67 percent of whom have little to no trial 

experience. These inexperienced litigators have not had an opportunity to learn the OGC trial 

process – not even observing a trial. Only 33 percent of OGC attorneys are experienced litigators 

who can handle ULP trials independently, but even these experienced litigators have not had the 

opportunity to practice their litigation skills in years.

Region # Attys

Level of Experience1

Zero Minimal Limited Full

AT 6 0 0 3 3

CH 5 1 0 2 2

DE 5 1 2 0 2

SF 5 1 0 2 2

WA 5 2 3 0 0

Of the nine attorneys with enough experience to litigate on their own, they, along with the 

supervisory Regional Attorneys, will be responsible for leading the less experienced attorneys 

through their litigation learning process, diminishing the experienced attorneys’ capacity to try new 

cases, investigate their normal caseload, and conduct training for OGC parties.

Increasing Workloads

At the end of 2020, the OGC projected 2429 ULP cases to be filed in 2021—a 16 percent increase 

over 2020.

In December 2020, 116 ULP cases were filed. Since then, case filings have risen every month. In 

April 2021, 300 ULP cases were filed – a 150 percent rise in ULP filings over four months. In 

addition to the rise in cases filed, the OGC expects to conduct 75 training sessions for labor and 

agencies, in 2021—almost four times 2020 levels. Significantly, when the Acting GC was designated

on March 24, 2021, nearly 500 ULP complaint recommendations were pending. As discussed 

below, each of these will need to be settled or litigated by the depleted number of OGC attorneys.

The Authority experienced a 28 percent increase in case filings from 2018-2020, with 229 new cases 

being filed in 2020. This included a large uptick in the number of newly filed negotiability cases –

 

1 Zero experience means the employee has not participated in or even observed a ULP trial. Minimal experience means 

the employee assisted a more experienced attorney during a ULP trial. Limited experience means the employee has tried 

one or more trials, as a first chair, with the assistance of a more experienced attorney. Full experience means the 

employee has tried three or more ULP trials, without assistance of an experienced attorney.
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which can present some of the most complex, time-consuming issues that come before the Authority. 

Specifically, in 2020, the Authority received 80 negotiability cases, which was more than the 

number filed in the previous two years combined (43 in 2018 and 30 in 2019).

Although the Authority’s case-closure rate has increased (from 8 merit decisions a month in 2019 to 

11 merit decisions a month in 2020), it has not kept pace with the increase in case filings.

Additionally, the Authority previously decided to prioritize the unprecedented number of requests 

for policy statements and guidance that it had received since 2019. The elimination of CADRO 

reduced the number of case settlements, especially in negotiability cases. All of these factors, taken 

together, have contributed to a significant backlog of cases pending before the Authority. As of the 

end of April, the Authority’s backlog had reached 184 pending cases, including 49 negotiability 

cases. These numbers are much higher than normal. 

While the case-closure rate increased somewhat, the significant backlog has impeded the 

Authority’s ability to issue decisions in a timely manner. That is especially true with respect to 

negotiability cases, which the Statute (at 5 U.S.C. § 7117(c)(6)) requires the Authority to resolve 

expeditiously. And the loss of experienced staff over the past several years has resulted in a less 

experienced staff, which is not as prepared to handle large and complex caseloads, posing further 

challenges to eliminating the backlog.

FSIP also experienced an increase in caseload. While not experiencing a large increase in cases, as 

have the OGC and the Authority, the average number of issues in each Panel case has tripled from 

4.7 to 13.7 in two years. Parties have become much more entrenched in their positions and less 

willing to resolve the impasse short of a decision. Increasingly the Panel must issue lengthy, 

complex, final decisions ordering adoption of contract language. As a result, the overall historic 

average age for processing an FSIP case increased 21 percent in 2020.

Most recently, 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. As a result, FLRA expects to see a surge in its workload 

throughout all components, because resolving these Federal-sector collective-bargaining disputes 

is precisely FLRA’s mission. This new surge in work, on top of the already projected increasing 

caseloads, will necessitate an increase in FTEs.

Curtailment of Training and Much-Needed Updates to Guidance Materials

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 –

which 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. And the Guide to 

Negotiability has not been updated since it was initially created in 2013. This dearth of Authority 

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

available to the parties.
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GC Issuance of Complaints

With the designation of an Acting GC on March 24, 2021, the OGC faces the prospect of reducing 

the largest backlog of complaints in OGC history, while continuing to investigate newly filed ULP 

charges, including the issuance of complaints in these newly filed charges.

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

(about 250 in total, with 42 attorneys). In order to address the nearly 500-complaint backlog, the 

OGC hopes to increase the number of complaints settled or litigated per attorney to eight per year.

With only 26 FTE attorneys at present, the OGC expects to settle or litigate about 104 complaints in 

the final five months of 2021. During the same time period, however, its Regional Directors will 

also authorize about 122 new complaints. As a result, even with the hoped for increase in the number 

of settled or litigated complaints per attorney, the backlog of complaint cases is estimated to 

actually increase to more than 500 cases by the end of 2021. Without additional staffing, the 

backlog will continue to grow, on average, by approximately 36 cases every year. To put a dent in 

the current backlog, and to handle newly issued complaints, the OGC must hire at least ten 

additional attorneys for 2022. With these additional attorneys, the OGC expects to resolve 288 

complaints per year. This will reduce the backlog by approximately 44 cases per year.

The OGC cannot simply dedicate more of the current 26 attorneys’ time to litigation to avoid 

growing the backlog of complaints. As addressed above, only nine of those attorneys are 

experienced litigators, and all 26 attorneys will also be investigating newly filed ULP charges and 

REP petitions. If the OGC were to try to eliminate the backlog of complaints in two years, each 

attorney would have to increase the amount of time devoted to litigation from approximately 5

percent to 40 percent of their time spent working. A decision to prioritize the backlog of complaint 

cases will result in a backlog of investigations of newly filed ULP and REP cases. And doing so will 

significantly increase the number of untimely ULP and REP investigations.

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

backlogs, the OGC must have ten additional attorneys, to rebuild to 36 attorneys.

OGC Complaints Will Mean More ULP Cases before the OALJ and Authority

Cases prosecuted by the OGC will result in a greater caseload for the OALJ, which currently has 

three Administrative Law Judges (ALJs). And, because ALJs’ recommended decisions can be 

appealed to the Authority, the Authority undoubtedly will see an increase in its unfair labor 

practice (ULP) caseload, as well. As discussed further below, FLRA is requesting one additional 

ALJ to help alleviate the burden in the OALJ, and an additional attorney in CADRO, in order to, 

among other things, alleviate the anticipated caseload burden on the Authority and ALJs.

FLRA ALJs conduct hearings and issue recommended decisions on cases involving alleged ULPs. 

ALJs also 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 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.
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The OGC’s litigation of an unprecedented backlog of ULP complaints will significantly encumber 

the OALJ, requiring an additional (fourth) ALJ in order to address the anticipated four-year backlog 

while not losing ground to the newly filed ULP charges, prospectively.

Projected Upcoming Changes and Projects

FLRA Strategic Plan needs to be updated for the next 5-year period. The strategic plan, especially 

for a small agency like FLRA, will require a significant commitment of staff time and energy.

Additionally, at some time in the near future, there will be a new Member or Members of the 

Authority. Any new Members would need to familiarize themselves with, and vote on, the 

Authority’s pending cases, which will require additional staff work and slow case processing –

thereby furthering the Authority’s backlog. 

Collaboration and Alternative Dispute Resolution Office (CADRO)

The Authority’s Collaboration and ADR Office, or “CADRO,” will play a crucial role in 2022 and 

beyond 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 

conferences in pre- and post-complaint ULP cases. In addition, CADRO training, facilitation, and 

workplace-relationship repair help agencies and unions learn to more effectively manage conflict, 

prevent conflict from erupting into destructive disputes, and maintain cooperative and productive 

labor-management relations throughout the Federal government.

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 

“prevention” services teach parties techniques for effectively resolving labor-management issues on 

their own, without the need for third-party intervention. These types of services help the parties 

develop constructive workplace relationships that promote more effective and efficient mission 

performance, as well as quality of work life – real evidence that the program works. All of this 

work was accomplished by only three FTEs.

The prior Administration started disbanding CADRO during 2017, shortly before it closed two OGC

Regional Offices. In 2021, FLRA’s new Chairman assigned two FTEs out of existing funds to 

partially restore CADRO. Restoring the third FTE to CADRO is essential to help resolve hundreds 

of backlogged ULP complaints pending before FLRA ALJs and many complex negotiability cases 

pending before the Authority Members. Once the case-processing path begins to clear, which might 

take several years, the restored third FTE will be critical to continue helping parties resolve 

important cases, deliver facilitation and necessary training, and foster essential workplacerelationship repair, all of which are key to FLRA accomplishing its mission to promote stable, 

constructive labor relations.

The value of the CADRO services goes far beyond the staff hours and the taxpayer dollars that it 

saves by settling disputes. The stakeholders in these cases resolve difficult, pragmatic issues that 

give rise to the legal disputes before FLRA. 
12

As a direct result of restoring the third FTE, disputes in cases pending before FLRA will be 

significantly reduced, narrowed, and resolved; members of the labor-management community will 

become better equipped to resolve their own disputes without third-party intervention and 

resources; and fewer cases will require processing through FLRA’s adjudication processes, thereby 

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

unions that FLRA serves. The high impact of restoring the third FTE to CADRO makes it a

critical priority to fund this request.

Outyear Planning

This budget does not yet request restoration of a presence in the northeastern United States or in 

Texas, where the third highest number of Federal employees are located (after the DC area and 

California). That concern will be addressed in a future request, in accordance with a phased 

approach to rebuilding. Increased staffing in the currently existing offices is the linchpin for success

over the next year.

Information Technology Investment

FLRA is under a mandate to transition to 100 percent electronic case files by December 31, 2022. 

FLRA was not appropriated the OMB-approved IT funds requested for 2021. That has caused 

significant delays.

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;

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 caserelated documents electronically; and

f. Eventually mandating eFiling for all FLRA case filings.

The greatest benefit will be the ability to redirect staff hours currently used to perform manual 

administrative tasks to perform other mission-critical functions.
13

Effects Due to Inflation

Twenty years ago, in 2002, FLRA funding was $26,524,000. 

This year, in 2021, FLRA funding is $26,600,000, virtually the same funding as twenty years ago.

Inflation has taken its toll on FLRA. According to the Bureau of Labor Statistics’ Consumer Price 

Index Inflation Calculator, 2004’s $26,524,000, that commenced in October of 2003, was worth 

$39,536,280 in March of 2021. 

To match inflation over the past two decades, FLRA funding would be about $40,000,000 in 2021. 

Just to keep up with inflation from 2002 to 2021, FLRA would need around fifty percent more funds. 39,536,280 42,295,580 42,396,070 35,621,720 33,864,900 33,428,580 29,970,700 27,731,160 30,353,820 30,002,140 28,922,030 28,309,870 28,920,910 28,501,000 29,178,590 28,708,920 28,134,650 27,442,420 25,618,380 27,058,570

10,000,000

15,000,000

20,000,000

25,000,000

30,000,000

35,000,000

40,000,000

45,000,000

20 Years of FLRA Inflation-Adjusted 

Appropriations

(in dollars) 

26,524

28,950

29,611

25,67325,46825,46823,64122,67424,77324,77324,72324,72325,50025,548

26,20026,20026,20026,200

24,890

26,600

0

10,000

20,000

30,000

20 Years of FLRA Appropriations

(in thousands of dollars)
14

Major increased costs covered in that inflation include personnel and rent. As a small agency 

employing primarily highly-educated attorneys, personnel compensation and benefits continue to 

account for the overwhelming majority of its overall budget – nearly 80 percent in 2020. As costs of 

FTEs increased over the years, and the budget allocations remained flat or were reduced, the 

number of FTEs afforded went down as is reflected by the chart below. This trend needs to be 

stabilized for now at 131 FTEs. 

Fiscal Burdens Beyond Inflation

Above and beyond inflation since 2010, FLRA has absorbed additional financial responsibilities 

within existing budgets, such as cost-of-living increases, pay raises, and additional expenses 

associated with closing two regions. Cybersecurity is paramount for e-records, and costs are high. 

These improvements to date have been funded from what funds were available at the end of each 

fiscal year.

Additional Fiscal Efficiency Measures

FLRA has made notable cuts over the last several years:

• Closed two regional offices to reduce the overall rent, technology, and footprint costs; yet the 

work was simply redistributed to other Regional offices. Due to this decision, FLRA lost 

nine out of 16 affected employees. This decision was significant and painful to not only the 

affected employees, but also the entire Agency morale.

• Reduced the overall Agency-wide travel expenditures by 25 percent in 2017, 2018, 2019, and 

2020. 

• Further reduced Agency-wide, professional-development budgets by 25 percent in 2017, 

2018, 2019 and 2020.

• Negotiated for a less expensive location for the San Francisco Regional office from San 

Francisco to Oakland. Although the rent will increase, the increase will be less than what it 

would have been if the office remained in San Francisco.

FLRA does not provide grant funding or have other discretionary programs that could be curtailed. 

Professional Development

After decreasing the professional development budget by twenty-five percent for four years, FLRA

decided it was critical to invest additional funds annually into the professional development of the 

staff. This investment was incorporated into and approved in the 2021 budget request and 

continues in the 2022 budget. 

This move was driven in part by Federal Employee Viewpoint Survey (FEVS) responses that 

reflected a significant Agency challenge after several years of limited spending in this area. This 

goal was particularly important due to the staff turnover that the Agency has experienced.

Although FLRA tried to increase the professional development, the pandemic stymied the effort. A 

number of classes were canceled, leaving employees without the professional development for 

which FLRA had planned well in advance. 

What is worse, while the funds were refunded from the training organizations, the refunds went 

back to general government funds, and were not given back to the FLRA to try to fund professional 

development in the future.
15

Thus, FLRA still needs to increase the funding for professional development.

With this restoration of professional-development funding, the Agency will be able to equip the

staff with adequate training to protect rights and facilitate stable relationships among Federal 

agencies, labor organizations, and employees, while advancing an effective and efficient 

Government through the administration of the Federal Service Labor-Management Relations 

Statute.

Customer Engagement

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. This cannot be done with the

current number of employees. FLRA strategic plans for educational resources, such as YouTube 

videos, have advanced significantly in 2021, but are still sorely neglected and in need of 

enhancement. The need for such electronic training has grown with the occurrence of the 

pandemic, during which travel was curtailed. The need for these video and audio modes of 

training will only increase in 2022.

Agency Workforce Planning

To be an effective partner in achieving the President’s vision of Building Back Better, FLRA itself 

needs a first-in-class workforce. FLRA proposes to build an agile organization to quickly respond 

and align to changing mission needs, innovations, and technological advancements. Clearly, the 

IT department’s ability to transition to virtual platforms so seamlessly in 2020 (required when 

FLRA went to maximum telework due to the pandemic) was a tribute to the well-positioned 

spending of end-of-year funds. In other words, it was an absorbed cost. Underfunding the Agency, 

especially on the heels of significant and painful downsizing that has already taken place, will 

undermine FLRA’s ability to recruit, reward, professionally develop, and retain top performers.
16

Current Services Estimate

The 2022 budget for FLRA in the amount of $29,247,000, or $2.647 million (+10 percent) over 2021 

Enacted, is necessary to meet statutory and regulatory responsibilities.

(In thousands of dollars)
17

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, 

[$26,600,000] $29,247,000: 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 labor-management 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.

2022 Funding Request

The 2022 budget for the U.S. Federal Labor Relations Authority in the amount of $29,247,000—or

$2.647 million (+10 percent) over 2021 Enacted—is necessary to meet statutory and regulatory 

responsibilities. The Agency’s 2022 request will fund 131 FTEs.

(In thousands of dollars)
18

Change from 2021

The 2022 budget for the U.S. Federal Labor Relations Authority in the amount of $29,247,000 is 

$2.647 million (+10 percent) over the 2021 Enacted of $26,600,000. 

Personnel Compensation and Benefits

Consistent with OMB Supplemental Instructions, the 2022 request reflects a 1 percent increase in 

award spending above 2020.

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

its overall budget – nearly 80 percent.

A 2.7 percent Federal pay raise for civilian Federal employees in 2022 is included.

Program and Financing Schedule

(In thousands of dollars)
19

Object Classification Schedule

(In thousands of dollars)

Employment Summary Schedule
20

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 2022 funding request includes $970,236 for the OIG. As requested in 2021, 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 $3,480 to support the Council of the 

Inspectors General on Integrity and Efficiency (CIGIE) has been funded in total. The IG has 

certified that FLRA’s funding request for the OIG satisfies all training requirements for 2022.
21

 

August 20, 2020

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.

INSPECTOR 

GENERAL

UNITED STATES OF AMERICA

FEDERAL LABOR RELATIONS AUTHORITY

WASHINGTON, D.C. 20424-0001
22

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 2022:

• The aggregate budget request for the operations of the OIG is $970,236;

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

• The portion of this amount needed to support the CIGIE is $3,481.

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 2022.

Inspector General

Federal Labor Relations Authority
23

ADDENDUM: ANNUAL PERFORMANCE PLAN

Preface

This annual performance plan is a legacy product of the previous administration. A new annual 

performance plan that comports with this budget request will be developed in due course, per the 

strategic and performance planning process outlined in OMB Circular A-11.

Strategic and Performance-Planning Framework

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

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

the Agency’s annual performance goals and measures. In developing the 2018-2022 Strategic 

Plan, the Agency refined its mission statement, developed a vision statement, and identified 

Agency core values.

FLRA proposes to achieve its strategic goals through the timely, high-quality, and impartial 

review and disposition of cases. The Agency supplements these efforts, and helps the parties to 

avoid or resolve their own disputes, by producing educational materials, offering targeted 

assistance to parties with significant labor-management challenges, and providing training 

activities. Further supporting these efforts is FLRA’s focus on internal improvements in IT and 

efforts to maximize human capital.

Through comprehensive review of its programmatic requirements under the Statute, operations, 

staffing, work processes, resource allocations, and performance, FLRA has established goals and 
24

measures that are designed to maximize the delivery of Agency services throughout the Federal 

Government. The Annual Performance Plan reflects the Agency’s commitment to establishing 

meaningful metrics that will assist in assessing performance, providing transparency to the 

parties around case-processing, aligning resources, and effectively identifying staffing and training 

needs.

FLRA Strategic Goals

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

Ensure quality, 

timely, impartial, and 

consistent investigative 

and decision-making 

processes with 

determinations that are 

clearly articulated.

Develop and provide 

tools and resources to 

enable the parties to 

prevent or more effectively 

and efficiently resolve their 

labor-relations disputes 

and improve their labormanagement relationships.

Manage resources 

effectively and efficiently, and 

recognize that a dedicated 

workforce is critical to the 

prevention and resolution of 

labor-relations disputes.

Strategic Objectives

a. Establish and 

attempt to surpass (1) 

case-processing 

productivity goals, and (2) 

timeliness measures that 

are meaningful to the 

parties.

a. Maintain and expand 

educational resources on 

www.flra.gov.

a. Ensure that FLRA’s 

performance-management 

systems are synchronized with 

and support the Agency’s 

strategic goals.

b. Ensure excellence 

in investigations and 

clearly articulated written 

work products by 

establishing and 

surpassing caseprocessing quality goals 

that build upon the 

Agency’s longstanding 

traditions of impartiality 

and consistent 

determinations that are 

effectively enforced.

b. Identify and offer 

targeted assistance to 

parties with significant 

labor-management 

challenges.

b. Continue to expand 

FLRA’s technological 

capabilities to enable 

employees to deliver mission 

results more effectively and 

efficiently.

c. Maintain and expand 

the external training 

programs to enable the 

parties to better 

understand their rights and 

obligations under the 

Statute.

c. Recruit, retain, and 

develop a diverse, respected 

workforce in an environment 

that fosters employee input 

and satisfaction and makes 

the best use of FLRA 

resources.

Consistent with Government-wide efforts to improve performance and incorporate data-driven 

management decisions, FLRA engages in continuous strategic assessment of performance and 
25

other data to ensure that it is accomplishing its mission effectively and efficiently. The Agency 

conducts this ongoing review on a monthly basis with its automated monthly SMART report 

(introduced in 2019, replacing the manual Monthly Analysis of Performance and Status (MAPS) 

report), which contains statistical case and performance data derived from FLRA’s CMS and 

Agency management. In addition, Agency managers utilize a variety of internal CMS reports, 

which track the number, age, status, or resolution type of all pending and closed cases, to manage 

performance on a daily basis. Analysis of these reports drive, among other things: adjustments in 

workload through case transfers at the national, regional, and office levels; reallocation of human 

resources, including use of details and contract support decisions; and decisions to provide targeted 

assistance (such as training) to certain parties or geographical locations.

Strategic Goal 1: 

ENSURE QUALITY, TIMELY, IMPARTIAL, AND CONSISTENT INVESTIGATIVE AND 

DECISION-MAKING PROCESSES WITH CLEARLY ARTICULATED DETERMINATIONS.

This strategic goal concerns 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. To achieve that mandate, FLRA must provide the Federal labor-management 

community with quality, timely, impartial, and consistent investigations and determinations. 

Further, FLRA must convey those determinations clearly and enforce them effectively. All FLRA 

components must help to achieve this goal in order to attain overall Agency success.

Strategic Objective 1a: 

Establish and attempt to surpass (1) case-processing productivity goals, and (2) 

timeliness measures that are meaningful to the parties.

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

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

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

accomplish FLRA’s own mission, the Agency must satisfy internal case-processing productivity 

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

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

process cases. Therefore, effective 2019, FLRA set its standards for timeliness in a way that gives 

parties a reasonable expectation as to the duration of FLRA’s determination process. This 

requires the use of simple, straightforward metrics for understanding how long it might take to 

resolve a given matter before the Agency.

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

timeliness of matters pending before FLRA. 

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

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

unforeseen or unplanned events.
26

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

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

and meaningful. 

Authority

Arbitration Cases 2018 2019 2020 2021 Est.

2022 

Est.

Cases pending, start of year 73 73 122 146 140

Exceptions filed (Intake) 105 136 131 124 124

Total caseload 178 209 253 270 264

Cases closed procedurally 11 15 17 17 17

Cases closed based on merits 94 72 90 113 113

Total cases closed (Output) 105 87 107 130 130

Cases pending, end of year 73 122 146 140 134
27

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

Authority.* 

Results Targets

2019 261 2019 247

2020

Goal: 248 days

317 days

Not Met

2020 Reduce by 5%

* This measure calculates case age based on the 

“date filed,” to reflect “day in-day out” caseprocessing times.

2021 Maintain

2022 Maintain

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

assignment to an Authority Member.

Results

2018 38% – (36/94 cases)

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

within 210 days of the filing of exceptions.*

Results Targets

2019 37% – (32/87 cases) 2019 75%

2020 32% – (34/107 cases)

Not Met

2020 75%

* This measure calculates case age based on the 

“date filed,” to reflect “day in-day out” caseprocessing times.

2021 75%

2022 75%

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

assignment to an Authority Member.

Results

2018 98% – (92/94 cases)

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

Authority within 365 days of the filing of exceptions.* 

Results Targets

2019 84% – (73/87 cases) 2019 90%

2020 61% – (65/107 cases)

Not Met

2020 90%

* This measure calculates case age based on 

the date filed,” to reflect “day in-day out” caseprocessing times. 

2021 90%

2022 90%
28

Authority

Negotiability Cases 2018 2019 2020 2021 Est.

2022 

Est.

Cases pending, start of year 11 23 17 65 56

Petitions filed (Intake) 43 30 80 45 45

Total caseload 54 53 97 110 101

Cases closed procedurally 25 30 19 19 19

Cases closed based on merits 6 6 13 35 16

Total cases closed 

(Output) 31 36 32 54 35

Cases pending, end of year 23 17 65 56 66
29

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

Results Targets

2019 169 2019 119

2020

Goal: 161 

days

176 days

Not Met

2020 Reduce by 5%

* This measure calculates case age based on 

the “date filed,” to reflect “day in-day out” 

case-processing times.

2021 Maintain

2022 Maintain

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

assignment to an Authority Member.

Results

2018 83% – (5/6 cases)

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

within 300 days of the filing of a petition for review.*

Results Targets

2019 83% – (30/36 cases) 2019 75%

2020 78% – (25/32 cases)

Met

2020 75%

* This measure calculates case age based on 

the “date filed,” to reflect “day in-day out” 

case-processing times. 

2021 75%

2022 75%

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

assignment to an Authority Member.

Results

2018 100% – (6/6 cases)

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

within 365 days of the filing of a petition for review.*

Results Targets

2019 92% – (33/36 cases) 2019 75%

2020 84% – (27/32 cases)

Met

2020 75%

* This measure calculates case age based on 

the “date filed,” to reflect “day in-day out” 

case-processing times.

2021 75%

2022 75%
30

OALJ

ULP Cases 2018 2019 2020 2021 Est.

2022 

Est.

Cases pending, start of year 49 1 0 0 0

Complaints received (Intake) 44 0 0 100 200

Total caseload 93 1 0 100 200

Settlements before hearing 66 0 0 80 160

Cases closed by decision 27 1 0 20 40

Total cases closed (Output) 93 1 0 100 200

Cases pending, end of year 0 0 0 0 0

0

50

100

150

200

2018 2019 2020 2021 Est. 2022 Est.

49

1 0 0 0

44

0

100

200

Total OALJ ULP Caseload

Cases pending, start of year Cases received from the OGC

0

50

100

150

200

2018 2019 2020 2021 Est. 2022 Est.

66

0 0

80

27 160

1

20

40

Total OALJ ULP Cases Closed

Settlements before hearing Cases closed by decision
31

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

Results Targets

2019

Goal: 124 

days

90 2019 Reduce by 5%

2020 N/A 2020 Reduce by 5%

2021 Maintain

*OALJ performance standards remain to 

resolve 80 percent of ULP complaints with 180 

days of filing and 95 percent within 365 days

2022 Maintain

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

Counsel resolved or decided in the OALJ within 180 days of the complaint being 

issued.

Results Targets

2018 77% – (72/93 cases) 2018 80%

2019 N/A 2019 80%

2020 N/A 2020 80%

*OALJ performance standards remain to resolve 

80 percent of ULP complaints with 180 days of 

filing and 95 percent within 365 days

2021 80%

2022 80%

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

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

Results Targets

2018 90% – (84/93 cases) 2018 95%

2019 N/A 2019 95%

2020 N/A 2020 95%

*OALJ performance standards remain to resolve 80

percent of ULP complaints with 180 days of filing and 

95 percent within 365 days

2021 95%

2022 95%
32

Authority

ULP Cases 2018 2019 2020 2021 Est.

2022 

Est.

Cases pending, start of year 8 10 6 3 10

Cases filed (Intake) 

19

 

4

 

1

 

20

 

40

Total caseload 27 14 7 23 50

Cases closed procedurally 9 1 1 7 13

Cases closed based on merits 

8

 

7

 

3

 

6

 

6

Total cases closed (Output) 17 8 4 13 19

Cases pending, end of year 10 6 3 10 31
33

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

Results Targets

2019 238 2019 165

2020

Goal: 226 

days

422 days

Not Met

2020 Reduce by 5%

* This measure calculates case age based on 

the “date filed,” to reflect “day in-day out” 

case-processing times. 

2021 Maintain

2022 Maintain

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

assignment to an Authority Member.

Results

2018 50% – (4/8 cases)

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

300 days of issuance of an OALJ decision. * 

Results Targets

2019 75% – (6/8 cases) 2019 75%

2020 25% – 1/4 cases)

Not Met

2020 75%

* This measure calculates case age based on 

the “date filed,” to reflect “day in-day out” 

case-processing times. 

2021 75%

2022 75%

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

assignment to an Authority Member.

Results

2018 100% – (8/8 cases)

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

365 days of issuance of an OALJ decision. *

Results Targets

2019 86% – (6/7 cases) 2019 90%

2020 25% – (1/4 cases)

Not Met

2020 90%

* This measure calculates case age based on 

the “date filed,” to reflect “day in-day out” 

case-processing times.

2021 90%

2022 90%
34

Authority

Representation Cases 2018 2019 2020 2021 Est.

2022 

Est.

Cases pending, start of year 6 5 2 3 1

Applications for review (Intake) 6 5 17 11 11

Total caseload 12 10 19 14 12

Cases closed procedurally 0 1 1 1 1

Cases closed based on merits 7 7 15 12 11

Total cases closed (Output) 7 8 16 13 12

Cases pending, end of year 5 2 3 1 0
35

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

Authority issued a decision whether to grant review within 60 days of the 

filing of an application for review.

Results Targets

2018 100% – (7/7 cases) 2018 100%

2019 100% – (8/8 cases) 2019 100%

2020 100% – (16/16 cases)

Met

2020 100%

2021 100%

2022 100%

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

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

Results Targets

2019 75% – (6/8 cases) 2019 75%

2020 88% – (14/16 cases)

Met

2020 75%

* This measure calculates case age based on the 

date that a final decision is issued in the case, to 

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

2021 75%

2022 75%

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

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

Results Targets

2018 100% – (7/7 cases) 2019 95%

2019 88% – (7/8 cases) 2020 95%

2020 88%– (14/16 cases)

Not Met

2021 95%

* This measure calculates case age based on the 

date that a final decision is issued in the case, to 

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

2022 95%

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

Authority.* 

Results Targets

2019 194 2019 107

2020

Goal: 184 days

210 days

Not Met

2020 Reduce by 

5%

* This measure calculates case age based on the 

“date filed,” to reflect “day in-day out” caseprocessing times.

2021 Maintain

2022 Maintain
36

OGC

ULP Cases 2018 2019 2020 2021 Est.

2022 

Est.

Cases pending, start of year 882 682 783 903 845

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

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

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

Charges dismissed 674 379 373 453 478

Complaints issued* 43 0 0 100 200

Total cases closed 

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

Cases pending, end of 

year

682 783 903 845 954

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

Counsel after November 16, 2017.
37

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

Results Targets

2019 68 2019 99

2020

Goal: 99 Days

61 days

Met

2020 Reduce by 5%

2021 Maintain

2022 Maintain

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

General Counsel by complaint, withdrawal, dismissal, or settlement within 120 

days of filing of the charge.

Results Targets

2019 87% 2019 70%

2020 94% – (1692/1808 cases)

Met

2020 70%

2021 70%

2022 70%

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

complaint, withdrawal, dismissal, or settlement within 240 days of filing of the 

charge.

Results Targets

2019 99% 2019 95%

2020 99.9% – (1806/1808 

cases)

Met

2020 95%

2021 95%

2022 95%
38

OGC

ULP Appeals 2018 2019 2020 2021 Est.

2022 

Est.

Appeals pending, start of year 22 181 302 406 442

Appeals filed (Intake) 180 121 107 136 136

Total caseload 202 302 409 542 578

Appeals closed* (Output) 21 0 3 100 300

Appeals pending, end of year 181 302 406 442 278

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

where a jurisdictional issue is presented, after November 16, 2017. 
39

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

Counsel. 

Results Targets

2019

Goal: 45 days

N/A 2019 Reduce by 5%

2020

Goal: 45 days

N/A 2020 Reduce by 5%

2021 Maintain

2022 Maintain

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

Director’s dismissal of a ULP charge issued by the General Counsel within 60 

days of the date filed.

Results Targets

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

2019 NA 2019 95%

2020 100% (3/3 cases)

Met

2020 95%

2021 95%

2022 95%

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

Director’s dismissal of a ULP charge issued by the General Counsel within 120 

days of the date filed.

Results Targets

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

2019 NA 2019 100%

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

2021 100%

2022 100%
40

OGC

Representation Cases 2018 2019 2020 2021 Est.

2022 

Est.

Cases pending, start of year 58 64 49 38 58

Petitions filed (Intake) 245 249 164 234 280

Total caseload 303 313 213 272 338

Petitions withdrawn 110 126 81 97 116

Cases closed based on merits 129 140 94 117 164

Total cases closed (Output) 239 266 175 214 280

Cases pending, end of year 64 47 38 58 58
41

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

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

Results Targets

2019 92 2019 114

2020

Goal: 108 days

91 days

Met

2020 Reduce by 

5%

2021 Maintain

2022 Maintain

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

through withdrawal, election, or issuance of a Decision and Order within 120 

days of the filing of a petition.

Results Targets

2018 82% – (195/239 cases) 2018 70%

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

2020 80% (140/175 cases)

Met

2020 70%

2021 70%

2022 70%

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

withdrawal, election, or issuance of a Decision and Order within 365 days of the 

filing of a petition.

Results Targets

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

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

2020 100% (175/175 cases) 

Met

2020 95%

2021 95%

2022 95%
42

FSIP

Impasses 2018 2019 2020 2021 Est.

2022 

Est.

Cases pending, start of year 17 23 28 22 22

Impasses filed (Intake) 92 77 90 90 90

Total caseload 109 100 118 118 118

Panel Decision 21 24 40 -- --

Panel declined jurisdiction 11 11 23 -- --

Settled with Panel assistance 7 13 5 -- --

Voluntarily withdrawn 47 22 28 -- --

Cases closed total (Output) 86 72 96 96 96

Cases pending, end of year 23 28 22 22 22
43

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

FSIP declines jurisdiction.

Results Targets

2019 90 2019 95 days

2020 

Goal: 90 days

70 days (23 cases)

Met

2020 90 days

2021 Maintain

2022 Maintain

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

declines jurisdiction within 140 days of the date filed.

Results Targets

2018 100% – (11/11 cases) 2018 90%

2019 90% – (9/10 cases) 2019 90%

2020 100% - (23/23 cases)

Met

2020 90%

2021 90%

2022 90%

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

voluntarily settled, after the FSIP asserts jurisdiction, within 160 days of the 

date filed. 

Results Targets

2018 71% – (5/7 cases) 2018 80%

2019 100% – (15/15 cases) 2019 80%

2020 85% – (11/13 cases)

Met

2020 80%

2021 80%

2022 80%

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

resolves through final action.

Results Targets

2019 140 2019 146 days

2020

Goal: 146 days

162 days (40 cases)

Not met

2020 Maintain

2021 Maintain

2022 Maintain

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

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

Results Targets

2018 100% – (21/21 cases) 2018 80%

2019 100% – (24/24 cases) 2019 80%

2020 88% – (35/40 cases)

Met

2020 80%

2021 80%

2022 80%
44

Strategic Objective 1b: 

Ensure excellence in investigations and clearly articulated written work 

products by establishing and attempting to surpass case-processing 

quality goals that build upon the Agency’s longstanding traditions of 

impartiality and consistent determinations that are clearly articulated.

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

investigations and produce clearly articulated written products. From informal 

communications, to FLRA determinations, to information on FLRA website, FLRA’s 

written work is one of the primary means by which the Agency communicates with 

parties and the Federal labor-management community.

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

consistent determinations that are clearly articulated. Even the appearance of 

partiality can cause parties to lose trust in FLRA’s determinations, and ultimately, 

in FLRA as an institution.
45

Performance Goal 1b-1: Conduct high-quality investigations and produce highquality written work products.

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

Results

2019 ▪ Developed internal tools to establish agency case quality goals 

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

conjunction with performance reviews.

2020 ▪ Updated all performance standards to include a quality 

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

▪ Developed and instituted Agency-wide informal training 

program using brown bag sessions.

▪ Conducted internal legal writing training for Authority 

attorneys and legal interns.

▪ Following an internal survey on training needs, provided 

unlimited access to “West Legal Ed” for multitude training 

opportunities - ideal remote training opportunity during 

maximum telework/social distancing.

▪ Increased emphasis on well written cases, in compliance with 

the Plain Writing Act and as mentioned by Chairman Kiko 

and Member Abbott in the August 2020 FDR conference video.

Targets

2019 ▪ Complete development of Agency-wide quality assessment 

tools and finalize pilot implementation. 

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

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

results.

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

quality assessment tools. 

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

measured by the tools.

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

measured by the tools.

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

the quality of FLRA investigations and written work products, including FLRA 

staff training and internal education resources. 

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

improve the quality of investigations and written work products.

Results

2019 ▪ Developed and instituted Agency-wide informal training 

program using brown bag sessions.

▪ Developed and administered internal survey on training.

▪ Encouraged employees to increase awareness of Authority 

decisions by using electronic distribution tool for Agency-wide 

dissemination of decisions.

▪ Implemented Individual Development Plans for each staff 

member to identify training needs.
46

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

▪ Conducted internal legal writing training for Authority. 

attorneys and legal interns.

▪ Offered leadership training for new agency supervisors and 

managers.

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

Targets

2019 ▪ Develop internal training programs and other educational 

tools Agency-wide in order to improve the quality of 

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

decisions and other relevant legal opinions). 

▪ Develop and administer internal surveys or other measures to 

assess the effectiveness of pilot internal training programs 

and educational tools.

▪ Make necessary adjustments to make internal training 

programs more effective.

▪ Formally implement those internal training programs and 

educational tools that are deemed effective in order to improve 

the quality of investigations and written work products. 

2020 ▪ Target ways to improve the effectiveness of internal 

educational resources based on survey results.

▪ Show a 10 percent increase in the effectiveness of internal 

educational resources, as measured by internal survey 

instruments or other measures developed in 2019. 

2021 ▪ Continue to make necessary adjustments to maximize 

efficiency of internal training programs.

▪ Increase professional development options for FLRA staff in 

order to improve the quality of investigations and written 

work products.

2022 ▪ Continue to make necessary adjustments to maximize 

efficiency of internal training programs.

▪ Increase professional development options for FLRA staff in 

order to improve the quality of investigations and written 

work products.
47

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

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

and internal education resources. 

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

the quality of investigations and written work products.

Results

2019 ▪ Developed and instituted Agency-wide informal training 

program using brown bag sessions.

▪ Developed and administered internal survey on training.

▪ Encouraged employees to increase awareness of Authority 

decisions by using electronic distribution tool for Agency-wide 

dissemination of decisions.

▪ Implemented Individual Development Plans for each staff 

member to identify training needs.

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

▪ Conducted internal legal writing training for Authority. 

attorneys and legal interns.

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

Targets

2019 ▪ Develop internal training programs and other educational 

tools Agency-wide in order to improve the quality of 

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

decisions and other relevant legal opinions). 

▪ Develop and administer internal surveys or other measures to 

assess the effectiveness of pilot internal training programs 

and educational tools.

▪ Make necessary adjustments to make internal training 

programs more effective.

▪ Formally implement those internal training programs and 

educational tools that are deemed effective in order to improve 

the quality of investigations and written work products. 

2020 ▪ Target ways to improve the effectiveness of internal 

educational resources based on survey results.

▪ Show a 10 percent increase in the effectiveness of internal 

educational resources, as measured by internal survey 

instruments or other measures developed in 2019. 

2021 ▪ Continue to make necessary adjustments to maximize 

efficiency of internal training programs.

▪ Increase professional development options for FLRA staff in 

order to improve the quality of investigations and written 

work products.

2022 ▪ Continue to make necessary adjustments to maximize 

efficiency of internal training programs.

▪ Increase professional development options for FLRA staff in 

order to improve the quality of investigations and written 

work products.
48

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

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

Results

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

impartiality.

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

over to 2021.

Targets

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

parties’ perceptions of FLRA’s impartiality. 

2020 ▪ Maintain or improve overall perceptions about FLRA’s 

impartiality year over year.

▪ Pilot external survey. 

2021 ▪ Deliver external survey electronically with every final agency 

action and evaluate results. 

2022 ▪ Deliver external survey electronically with every final agency 

action and evaluate results.

Strategic Goal 2:

DEVELOP AND PROVIDE TOOLS AND RESOURCES TO ENABLE THE PARTIES TO 

PREVENT OR MORE EFFECTIVELY AND EFFICIENTLY RESOLVE THEIR LABORRELATIONS DISPUTES AND IMPROVE THEIR LABOR-MANAGEMENT 

RELATIONSHIPS.

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

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

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

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

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

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

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

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

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

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

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

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

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

www.flra.gov. 

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

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

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

and by offering external training to Federal agencies and labor organizations regarding their 

rights and obligations under the Statute.
49

Strategic Objective 2a: Maintain and expand educational resources on 

www.flra.gov.

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

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

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

pursue frivolous matters or defenses, and they are more likely to approach their labormanagement relations in a manner that is consistent with the Statute.

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

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

online training modules, and short animated training videos.

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

website.

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

FLRA website. 

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

on FLRA website.
50

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

Results

2019 ▪ Drafted digests and prepared for upcoming publication.

▪ Acquired animation software to begin developing short animated 

training videos.

▪ Piloted desktop video teleconferencing to expand capabilities for 

providing interactive external training online.

▪ Developed 5 pre-recorded training modules in preparation for 

posting.

▪ Updated OGC Unfair Labor Practice Case Law Outline and the 

OGC Representation Case Outline.

2020 ▪ FLRA issued two press releases announcing seven online training 

sessions Agency-wide. 

▪ FLRA produced and published several training videos on a new 

YouTube channel

(https://www.youtube.com/c/FederalLaborRelationsAuthority) 

Also posting five pre-recorded training modules on FLRA.gov

▪ YouTube trainings plus those currently on the website. 

▪ Continue to provide case digest summaries for all Authority 

decisions. To date, the Authority has published approximately 

205 digests. 

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

press release. 

▪ Requested public comment on proposed negotiability regulations.

▪ Agency updated its union-dues-revocation regulation. 

▪ Conducted live-stream training.

▪ Requested public comment via Federal Register notice on four 

policy statement requests.

▪ Agency issued five policy statements. 

▪ Updated OGC Representation Case Outline.

Targets

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

▪ Establish a mechanism to live stream trainings online or offer 

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

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

▪ Begin publishing case digest summaries for all Authority 

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

decisions. 

2020 ▪ Critically review and update the relevancy and currency of 

Agency regulations.

▪ Update 2 guides or manuals Agency-wide.

▪ Offer 7 training sessions online Agency-wide.

▪ Continue to provide case digest summaries for all Authority 

decisions. Provide OGC and FSIP case digests, if deemed 

appropriate. 
51

2021 ▪ Critically review and update the relevancy and currency of 

Agency regulations.

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

▪ Offer 10 additional training sessions online as developed.

▪ Continue to provide case digest summaries for all Authority 

decisions. Provide OGC and FSIP case digests, if deemed 

appropriate.

2022 ▪ Continue to expand online resources.

▪ Continue to provide case digest summaries for all Authority 

decisions. Provide OGC and FSIP case digests, if deemed 

appropriate.

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

significant labor-management challenges.

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

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

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

Government by assisting parties in addressing their disputes without necessarily resorting 

to formal filings. 

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

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

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

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

complex representational matters, targeted assistance can include conducting conferences 

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

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

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

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

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

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

of issues, including unfair labor practices and representation matters.

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

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

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

associated materials.
52

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

targeted-assistance program and related procedures.

Results

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

appropriate negotiability disputes.

▪ Addressed specific requests of parties for targeted training.

2020 ▪ FLRA conducted 16 customer trainings.

▪ Authority & FSIP lawyers successfully trained FMCS mediators.

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

negotiability cases.

▪ Pursuant to FMCS pilot program, began referring negotiability 

cases to FMCS mediators in December 2019.

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

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

▪ To date, FMCS mediators assisted parties in resolving 71 percent 

(82/117) of the proposals/provisions referred to mediation.

▪ Authority and FMCS project leaders confer regularly to refine 

and apply metrics for measuring success.

▪ FLRA implemented a PDF questionnaire for customers to be used 

in representation cases (implemented during COVID-19).

▪ Virtual REP hearings procedures were put into place. 

▪ Addressed specific requests of parties for targeted training.

Targets

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

▪ Develop procedures for offering targeted assistance to identified 

parties or referring such parties to appropriate resources.

▪ Pilot a targeted-assistance program.

▪ Identify metrics for evaluating the program’s success.

▪ Formally implement a targeted-assistance program with 

appropriately ambitious measures to assess its effectiveness.

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

▪ Establish metrics for evaluating the effectiveness of the 

mediation program.

▪ Evaluate the effectiveness of the targeted-assistance program 

using the metrics established in 2019.

▪ Make necessary refinements and improvements based on 

customer feedback.

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

metrics established in 2019.

2021 ▪ Evaluate the effectiveness of the FMCS mediation pilot program 

using metrics established in 2020.

▪ Continue to evaluate the effectiveness of the targeted-assistance 

program.

2022 ▪ With the re-establishment of CADRO, FLRA will discontinue this 

measure.
53

Strategic Objective 2c: 

Maintain and expand external training programs to enable the parties to better 

understand their rights and obligations under the Statute. 

Agency components have traditionally provided training on statutory principles governing 

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

such external training to Federal agencies and labor organizations regarding their rights and 

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

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

Government. For this reason, it is essential that FLRA maintain and, where possible, expand 

these external training programs.

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

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

statutory matters.

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

external trainings that have been successfully developed and implemented utilizing 

appropriate technology and participant-friendly best practices. 

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

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

processing FLRA cases.

Measure 2c-1: The number of training, outreach, and facilitation activities delivered. 

Results

2018 100

2019 95

Measure 2c-1: The number of in-person statutory training programs delivered. 

Results Targets

2020 29*

Not Met

2020 50

2021 2021 50

*Training limited due to COVID-19 Pandemic;

Training via videoconference included

Measure 2c-1: The number of training programs delivered (in-person or virtual). 

Results (New measure) Targets

2022 2022 50
54

Measure 2c-2: The number of participants involved in training, outreach, and 

facilitation activities. 

Results

2017 8,122

2018 2574

2019 4807

Measure 2c-2: The number of participants who receive in-person statutory 

training. 

Results Targets

2020 2780*

Met

2020 2,500

2021 2021 2,500

*In-person training limited due to COVID-19 Pandemic; Training via videoconference included

Measure 2c-2: The number of participants who received training (in-person or 

virtual). 

Results (New measure) Targets

2022 2022 2,500

Measure 2c-3: The percentage of participants who highly rate the statutory training 

that they received.

Results Targets

2020 Met (Since the OGC has 

been using its form, 96

percent of the 

evaluations received rate 

the OGC training as 

highly effective or 

effective.)

2020 Develop evaluations. 80

percent of participants rate the 

training as effective or highly 

effective.

Measure 2c-3: The percentage of responders who rated training highly effective. 

Targets

2021 80 percent of participants rate 

the training as effective or 

highly effective.

2022 80 percent of participants rate 

the training as effective or 

highly effective.

Measure 2c-4: The number of training programs delivered regarding procedures for 

filing and processing FLRA cases.

Results Targets

2020 Over 200 views of 

new (released 8-19-

2020) eFiling video 

on FLRA YouTube 

channel. 

Met

2020 FLRA discontinued this 

measure in 2021; covered by 

2c-1.
55

Measure 2c-5: The number of participants who receive training regarding procedures 

for filing and processing FLRA cases.

Results Targets

2020 Over 200 views of 

the new (released 8-

19-2020) eFiling 

video on FLRA

YouTube channel. 

Met

2020 FLRA will discontinue this 

measure in 2021; covered by 

2c-2.

Measure 2c-6: The percentage of participants who highly rate the training that they 

received regarding procedures for filing and processing FLRA cases.

Results Targets

2019 Evaluations being retooled for an onlinetraining-video 

environment.

2020 Develop evaluations. 

Discontinued this measure; 

covered by 2c-3.

Measure 2c-7: The number of real-time and pre-recorded online training programs 

developed and implemented.

Results Targets

2020 7

Met

2020 7

2021 FLRA will discontinue this 

measure and combine it with 

2c-1.

Measure 2c-8: The percentage of participants who highly rate the real-time and prerecorded online training that they received.

Results Targets

2020 Met (96 percent of OGC 

evaluations rated highly 

effective or effective.)

2020 Develop evaluations. 

2021 FLRA will discontinue this 

measure and combine it with 

2c-3.
56

Strategic Goal 3: 

MANAGE RESOURCES EFFECTIVELY AND EFFICIENTLY, AND RECOGNIZE THAT 

A DEDICATED WORKFORCE IS CRITICAL TO THE RESOLUTION OF LABORRELATIONS DISPUTES.

FLRA honors the trust that the public has placed in it to use Agency resources wisely on 

behalf of the American taxpayer. Recognizing that trust, FLRA has always focused its 

resources on carrying out its mission. It will continue to do so.

The core of FLRA’s mission is to protect rights and facilitate stable labor-management 

relationships. FLRA will continue to achieve that goal by employing committed, 

experienced professionals.

FLRA will continue to explore ways to manage its workforce effectively and efficiently. A 

key component of that commitment is to continue developing IT systems, with the goal of 

enabling FLRA employees to spend more time on mission-critical, substantive work. FLRA

will also reexamine its performance-management systems to ensure that they align with 

the goals in the Strategic Plan, that individual employee standards reflect organizational 

goals, and that the Agency appropriately recognizes employee achievements in support of 

these goals. Finally, FLRA will continue to encourage employee growth, development, and 

innovation. 

Strategic Objective 3a: 

Ensure that FLRA’s performance-management systems are synchronized with and 

support the Agency’s strategic goals.

At the foundation of the Agency’s 2018-2022 Strategic Plan is FLRA’s renewed commitment 

to developing the most effective ways to evaluate Agency performance, as well as the 

contributions of the Agency’s components and individual employees. To do this, employee 

performance-management targets will be adapted to support Agency goals. This will help 

ensure that the evaluation of FLRA employees will include consideration of how well they 

assist the Agency to achieve its strategic and performance goals. 

Performance Goal 3a-1: FLRA employees perceive that the Agency’s performancemanagement systems, and their individual performance plans, directly align with achieving 

this strategic plan. 

Performance Goal 3a-2: FLRA employees have a clear understanding of how their 

individual achievement contributes to achievement of Agency priorities and successful 

implementation of FLRA strategic goals. 

Performance Goal 3a-3: FLRA employees perceive that their performance recognition 

and rewards are also directly linked to their contribution to the successful achievement of 

FLRA’s strategic goals.
57

Measure 3a-1: Align performance-management systems and individual performance 

plans with current Strategic Plan. 

Results

2019 ▪ Evaluated Agency performance-management systems and 

individual employee performance plans for alignment with the 

Strategic Plan.

▪ Formed Strategic Implementation Teams for the three types of 

positions (1) OGC Attorneys, (2) Non-OGC attorneys, (3) 

Non-Attorneys and tasked those teams with offering 

recommended revisions to employees’ standards and elements. 

▪ Strategic Implementation Teams have provided Agency 

leadership with recommended revisions of performance plans to 

pilot in 2020. 

2020 ▪ Completed the development of revised performance plans for all 

attorney positions and rolled them out for 2020 performance 

year.

▪ Assessing employees’ perceptions that performance management 

systems align with the Strategic Plan via FEVS. In FEVS 2020

results, 90.8 percent of employees “Know how my work relates to 

the agency’s goals,” up from 79.2 percent in 2019.

▪ Completed the development of revised performance plans for all 

non-attorney and manager positions.

▪ Completed the review of, and updated, the Agency’s GS 

performance management system’s policy and the Agency’s 

attorney individual performance plans to ensure they align 

directly with the 2018-2022 Strategic Plan.

▪ Created the new SL performance plans.

Targets

2019 ▪ Develop communications strategies, educational tools, and other 

materials to successfully implement the new systems. 

▪ Develop and administer an internal survey(s) to assess whether 

employees perceive that performance management systems (GS 

and SL/SES) and individual employee performance plans align 

with the Strategic Plan. 

2020 ▪ Develop revised performance plans for remaining positions.

▪ Pilot all revised performance plans.

▪ Implement appropriate communications strategies and 

educational tools to successfully achieve the transition. 

2021 ▪ Evaluate pilot and revise performance plans as appropriate.

▪ Managers add whistleblower protection information to 

performance plans.

▪ Completed the development of revised performance plans for all 

remaining positions.

2022 ▪ FLRA will discontinue this measure; all performance plans and 

systems are aligned with the Strategic Plan.
58

Measure 3a-2: Employees understand how their individual performance contributes to 

overall Agency strategic goals. 

Results

2019 FLRA did not administer a separate survey, but relied on data 

provided through FEVS. In FEVS 2019 results, 79.2 percent of 

employees “Know how my work relates to the agency’s goals.”

2020 ▪ Maintained or improved positive responses to relevant FEVS 

questions. In FEVS 2020 results, 90.8 percent of employees 

“Know how my work relates to the agency’s goals.”

▪ Presented Strategic Plan Implementation Teams with 

personal acknowledgements for their contributions - over 50 

percent of FLRA employees serve on one or more teams 

directly supporting the Strategic Plan goals and objectives.

Targets

2019 Develop and administer an internal survey(s), or use existing survey 

instruments (e.g., FEVS), to assess whether FLRA employees 

understand how their individual achievements contribute to Agency 

priorities and successful implementation of FLRA strategic goals. 

(E.g., FEVS Question “I know how my work relates to the agency’s 

goals and priorities”; FEVS Question #16, “I am held responsible for 

achieving results.”)

2020 Maintain or improve positive responses to relevant question(s) in 

existing survey instruments or internal survey(s) year over year. 

2021 FLRA will rely on FEVS and discontinue this measure.
59

Measure 3a-3: Employees believe that there is alignment between the recognition and 

rewards that they receive and their individual contributions toward achieving FLRA’s 

strategic goals.

Results

2019 FLRA did not administer a separate survey, but relied on data 

provided through FEVS.

2020 ▪ Roll-out of the updated Attorney Performance Plans aligned the 

performance standards with the strategic plan 

▪ Approximately 1/2 of FLRA employees received a recognition 

award in May 2020 for participation as a leader or member on 

one or more of the Strategic Plan Implementation Teams.

▪ Creation of new awards committee development team.

Targets

2019 Develop and administer an internal survey(s), or use existing survey 

instruments (e.g., FEVS), to assess whether employees believe that 

recognition and rewards relate to their contribution toward 

achievement of FLRA strategic goals. (e.g., FEVS Question “In my 

work unit, differences in performance are recognized in a meaningful 

way”; FEVS Question “Awards in my work unit depend on how well 

employees perform their jobs”; FEVS Question “Creativity and 

innovation are rewarded.”)

2020 Maintain or improve positive responses to relevant question(s) in 

existing survey instruments the internal survey(s) year over year. 

2021 FLRA will rely on FEVS and discontinue this measure. 
60

Strategic Objective 3b: 

Continue to expand FLRA’s technological capabilities to enable employees to 

deliver mission results more effectively and efficiently.

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

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 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

proposes to integrate these three systems — document management, eFiling, and case 

management — to fully implement electronic case-file capability throughout the Agency by 

December 31, 2022.

Thereafter, as resources permit, FLRA will continue to enhance and leverage these 

technological capabilities. Work has continued to fully implement electronic case files, to 

encourage the widest uses of eFiling, and to serve FLRA-generated case documents on the 

parties electronically—saving time, human-capital resources, and postage costs.

Performance Goal 3b-1: Implement a new and improved FLRA electronic casemanagement system. Integrate the case-management system with FLRA document 

management and eFiling systems in order to fully implement electronic case file 

capability throughout the Agency.

Performance Goal 3b-2: FLRA employees and parties understand how to make the 

most effective use of FLRA’s electronic systems.

Performance Goal 3b-3: Enhance the positive effect of technological advancements on 

the customer experience.
61

Measure 3b-1: Expand the use of eFiling.

Results

2016 • 22 percent of cases eFiled Agency-wide.

2017 • 35 percent of cases eFiled Agency-wide. 

2018 • 35 percent of cases eFiled Agency-wide. 

2019 • 46 percent of cases eFiled Agency-wide.

• Authority and FSIP exceeded target of 10 percent increase.

2020 • 56 percent of cases eFiled Agency-wide.

• 89 percent of Authority cases eFiled.

• OGC eFiling has increased by 9.3 percent

• Streamlined eFiling software & created eFiling training module.

Targets

2019 • 50 percent of cases eFiled Agency-wide.

• 10 percent increase in eFiling in each component – the OGC, the 

Authority, and the FSIP.

2020 • 75 percent of cases eFiled Agency-wide.

• Critically review and revise FLRA regulations to modernize filing 

requirements. 

2021 • Grow electronic filing to 85 percent Agency-wide, including eFax.

2022 • Achieve 95 percent eFiling, including eFax, by 9/30/2022.

Measure 3b-2: Implement end-to-end electronic case files. 

Results

2018

• Developed and launched eFiling 3.0, which both internal and external 

users report is significantly more user-friendly and intuitive. 

• Began development of a new and improved CMS that, over time, will 

provide significant ($100,000 annually) cost savings and allow for 

more efficient integration of the CMS and eFiling systems with the 

DMS, enabling end-to-end electronic case processing throughout the 

Agency. 

• Identified the basic structure of electronic case files for each 

component/office in the DMS. 

• Completed transition of all major IT functions – CMS, DMS, email – to 

the cloud, which improves both IT security, consistent with the PMA, 

and Agency continuity of operations plans.

2019 • Developed CMS for the Authority. Developed electronic case file 

structure in the DMS and initial planning to automate creating the 

electronic folders from the CMS.

2020 • Combined original Phase 2 and Phase 3 of the four-phase plan to 

implement fully-electronic casefile. Developed and tested end-to-end 

electronic casefile for the Authority component, rolled out in late 2020.

Targets
62

2019 • Develop and fully implement the new and improved CMS in at least 

one FLRA component (Phase 2). 

2020 • Develop and implement the new and improved CMS for the Authority 

component, to include end-to-end electronic casefile.

2021 • Develop and implement end-to-end electronic case files for the OGC 

component, and begin development of the CMS for the remaining 

components.

2022 • 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 3b-3: Internal and external customer perceptions of the eFiling System.

Results

2019 ▪ Received feedback from external users via the provided engagement 

email address. Implemented suggestions and replied to customer 

feedback.

▪ Developed and distributed notices to customers promoting the use of 

eFiling.

2020 ▪ Received feedback from external users via the provided engagement 

email address. Implemented suggestions and replied to customer 

feedback.

▪ Streamlined the eFiling system & created eFiling training module.

Targets

2019 ▪ Develop a communications strategy for sharing with internal and 

external customers the benefits and advantages of eFiling (e.g., notice 

to go out with all Authority decisions). 

▪ Develop and administer internal and external survey tools to assess 

customer perceptions of the eFiling System. 

▪ Develop online, pop-up eFiling surveys that appear while users are 

logged into the eFiling System.

2020 ▪ Maintain or improve positive responses to internal and external 

survey instruments.

▪ Adopt suggested enhancements to the eFiling System, as appropriate.

2021 ▪ Maintain or improve positive responses to internal and external 

survey instruments.

▪ Adopt suggested enhancements to the eFiling System, as appropriate.

2022 ▪ FLRA will discontinue this measure; will measure through the 

engagement email address.
63

Measure 3b-4: Assess how internal and external customers perceive the effectiveness of 

the Agency’s IT modernization efforts. 

Results

2019 ▪ Developed and administered internal surveys to assess how 

FLRA employees perceive the effectiveness of the Agency’s IT 

modernization efforts.

2020 ▪ Produced and administered a survey to assess employees’ 

response to the new WebEx system rolled out during pandemic in 

2020.

▪ Employee Engagement Team & FLRA Pandemic Task Force 

jointly produced a survey to gather information on best practices, 

needs, to assess overall response to maximum telework, and to 

invite personnel to raise return to workplace concerns (77 

percent respondents – positive results).

▪ Received a well-above-positive response to managers’ survey 

questions on how IT is functioning during maximum telework 

mode.

▪ Reinstated the Technology Council in order to directly gather 

feedback and actionable input regarding IT modernization 

efforts.

▪ Administered internal survey to assess how FLRA employees 

perceive the effectiveness of the Agency’s IT modernization 

efforts.

2021 ▪ Received overwhelmingly positive comments about the effort to 

move from legacy DMS solution to new integrated DMS
64

Targets

2019 ▪ Develop and administer internal and external survey(s) to 

assess: (1) whether FLRA employees and customers know how to 

maximize available technology; and (2) how FLRA employees and 

customers perceive the effectiveness of the Agency’s IT 

modernization efforts. 

▪ Develop and implement appropriate communications to promote 

and enhance these efforts.

2020 ▪ Craft an effective, targeted communications strategy based on 

the results of the customer-satisfaction surveys. 

▪ Develop and provide any necessary internal or external training 

programs so that employees and customers have the tools to 

maximize technological improvements.

▪ Achieve improved survey results year over year. 

2021 ▪ Annually distribute internal customer satisfaction survey and 

continue to receive point of service surveys.

▪ Maintain improved survey results.

2022 ▪ Develop and Administer targeted surveys to assess usability of 

enhancements and changes to the eFiling system, made in 

conjunction with CMS development activities.

▪ Annually distribute internal customer satisfaction survey and 

continue to receive point of service surveys.

▪ Maintain improved survey results.
65

Strategic Objective 3c: 

Recruit, retain, and develop a diverse, respected workforce in an environment 

that fosters employee input and satisfaction and makes the best use of FLRA 

resources. 

FLRA’s charge to uphold and administer the Statute relies on its employees. Accordingly, 

FLRA’s success relies on the expertise and engagement of its workforce. A key component 

of attracting and retaining an effective workforce is creating a positive work environment 

in which employees see themselves as stakeholders and innovators. FLRA will continue to 

assess the skills and professional education/training needs of its workforce and will look 

for new, cost-effective ways to cultivate employee development and commitment. FLRA

will provide opportunities for experienced employees to share their institutional knowledge 

by providing internal training and through other means. FLRA’s continued focus on 

human-capital development will help ensure continued mission accomplishment and 

leadership of the Federal-sector labor-management relations program.

Performance Goal 3c-1: Internal and external survey respondents perceive that diverse 

and respected FLRA employees demonstrate expertise in Federal-sector labormanagement relations; minimal gaps exist in succession plans; and the Agency develops 

nontraditional resources for employee education and development.

Performance Goal 3c-2: FLRA workforce expresses a stable and improving level of 

overall job satisfaction, as well as satisfaction with the manner in which internal problemsolving occurs. 

Performance Goal 3c-3: FLRA managers and employees perceive that the Agency 

appropriately uses telework and technology to promote employee efficiency and a healthy 

work-life balance. 

Measure 3c-1: Recruit, retain, and develop a diverse, respected workforce. 

Results

2019 ▪ Reviewed a portion of Agency performance-management systems and 

individual performance plans to ensure that they align directly with 

the 2018-2022 Strategic Plan. 

▪ Completed review of all position descriptions Agency-wide, to ensure 

that all Agency positions reflect the actual duties of the position.

▪ Issued a revised Reasonable Accommodation Policy – including 

Personal Assistive Device policy – that is fully compliant with recent 

EEOC regulatory amendments and guidance.

▪ Ensured compliance with Government-wide goals for Schedule A 

hiring.

▪ Expanded recruitment efforts to target persons with disabilities.

▪ Formed Diversity and Inclusion Team to develop programs to 

highlight and celebrate the diversity of Agency employees.

2020 ▪ Scheduled quarterly Diversity and Inclusion Team events and 

programs to highlight and celebrate diversity of Agency employees 

including Black History Month, Women’s History, Pride Month, 

Hispanic Heritage Month--provided pertinent resources/informational 
66

subject matter regarding diversity through weekly emails, published 

monthly newsletter and all employee intra-agency communications.

▪ Met or exceeded Government-wide standards for diversity and 

Schedule A hiring. Established contacts with organizations that 

assist individuals with disabilities in securing employment including: 

America Job Centers, state vocational rehabilitation agencies, the 

Veterans’ Vocational rehabilitation and Employment Program, 

Centers for Independent Living, and employment network service 

providers to ensure recruitment efforts include individuals with 

disabilities. The Agency also utilized the Schedule A hiring authority 

to fill critical vacancies this FY.

▪ Continued to support the Agency Diversity and Inclusion Team in 

their collective efforts to provide information to all FLRA employees.

▪ Increased recruitment efforts allowed the Agency to gather time-tohire data in 2019 and 2020 to use to assess recruitment and staffing 

processes and procedures moving forward.

Targets

2019 ▪ Review Agency performance-management systems and individual 

performance plans to ensure that they align directly with the 2018-

2022 Strategic Plan. 

▪ Conduct a comprehensive, Agency-wide position classification review 

to confirm that all Agency positions reflect the actual duties of the 

position. 

▪ Assess time-to-hire results for Agency positions by reviewing 

recruitment and staffing processes and procedures.

▪ Issue a revised Reasonable Accommodation Policy – including 

Personal Assistive Device policy – that is fully compliant with recent 

EEOC regulatory amendments and guidance. 

▪ Ensure compliance with Government-wide goals for Schedule A 

hiring.

2020 ▪ Continue the review of the Agency’s non-attorney individual 

performance plans to ensure that they align directly with the 2018-

2022 Strategic Plan.

▪ Review and assess time-to-hire metrics based on recruitment data 

received in 2019 and 2020.

▪ Continue to meet or exceed Government-wide standards for diversity 

and Schedule A hiring. 

2021 ▪ Complete the review of all Agency position’s individual performance 

plans to ensure that they align directly with the 2018–2022 Strategic 

Plan.

▪ Maintain a diverse and respected workforce through targeted 

recruitment.

▪ Improve time-to-hire metrics based on assessment of 2019 and 2020 

data.

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

inclusionary workforce.

▪ Develop new and improved recruitment strategies based on overall 

time to hire assessment.
67

Measure 3c-2: Maintain and grow Agency expertise through employee development.

Results

2018

▪ Offered cross-component details to provide employees with training 

and developmental experiences that will enhance their skills and 

increase their understanding of the Agency’s mission and operations. 

▪ Managers assessed annually employees on their developmental needs 

and provided appropriate training and developmental opportunities. 

▪ Maintained sustained growth of positive responses to the OPM FEVS 

question “supervisors in my work unit support employee 

development”. 

2019

▪ Held 3 component specific brown bag sessions (Authority, FSIP, 

OALJ).

▪ Developed and administered surveys to solicit feedback on employee 

education and development.

▪ Provided promotional opportunities for internal agency staff prior to 

advertising key leadership positions externally.

2020

▪ Provided access to “WestLegal Ed” training opportunities - ideal 

remote training opportunity during maximum telework/social 

distancing. 

▪ Provided Brown Bag Lunch training programs, and online 

development opportunities for all staff. 

▪ Due to an unexpected hiring lag in 2020, the Agency reallocated 

money to increase individual staff training budgets, and also offered 

comprehensive OPM leadership training opportunities to new and 

seasoned managers and supervisors. These learning and development 

opportunities were communicated and promoted by Agency leadership 

to all staff via email and all employee meetings and discussions.

▪ Led by the Agency’s Professional Development Team, promoted the 

implementation and use of Individual Development Plans (IDP’s) by 

staff and managers to ensure employees were receiving the requisite 

training opportunities to advance in their careers.

▪ Conducted internal writing training for Authority attorneys and legal 

interns.

▪ Completed the virtual Administrative Professionals’ Conference to 

provide information to the Agency’s administrative and operational 

staff on Agency programs, policies and procedures and also to gain 

insight from that workforce population. 

▪ Per 2020 FEVS results the Agency’s score in response to “Supervisors 

in my work unit support employee development” trended upwards 

from 71.5 percent positive in 2018 to 87 percent positive in 2019 and 

93.0 percent positive in 2020.

Targets
68

2019

▪ Develop and implement use of nontraditional resources for employee 

education and development (e.g., component-specific mentoring 

programs, Agency-wide or component-specific brown bag sessions, 

Agency-wide dissemination of decisions and other relevant legal

opinions). 

▪ Develop and administer survey(s) to solicit feedback on and assess the 

effectiveness of nontraditional resources for employee education and 

development. 

▪ Maintain sustained growth of positive responses to FEVS Question 

#47 – “Supervisors in my work unit support employee development.”

2020

▪ Provide and promote “Westlaw Legal Ed” training opportunities –

diverse options available throughout the year (and during maximum 

telework / social distancing and a welcome option/time to take 

advantage of courses available remotely).

▪ Provide Brown Bag Lunch training programs, and online development 

opportunities for all staff.

▪ Increase individual staff training budgets, and offer comprehensive 

OPM leadership training opportunity to new and seasoned managers 

and supervisors. These learning and development opportunities are to 

be communicated and promoted by Agency leadership to all staff via 

email and all employee meetings and discussions.

▪ Promote the implementation and use of Individual Development 

Plans (IDP’s) by staff and managers to ensure employees were 

receiving the requisite training opportunities to advance in their 

careers.

▪ Conduct internal writing training for Authority attorneys and legal 

interns.

▪ Complete the virtual Administrative Professionals’ Conference to 

provide information to the Agency’s administrative and operational 

staff on Agency programs, policies and procedures and also to gain 

insight from that workforce population. 

▪ Maintain sustained growth of positive responses to FEVS Question 47 

– “Supervisors in my work unit support employee development.”

2021 ▪ FLRA will discontinue this measure because it is incorporated in 

Measure 1b-2.
69

Measure 3c-3: Internal and external perceptions about the workforce. 

New measure 2019.

Results

2019 ▪ FLRA did not administer a separate survey, but relied on data 

provided through FEVS.

2020

▪ While FLRA did not administer a separate survey, there were marked 

increases in job satisfaction and overall well-being reported in 2020 as 

compared to 2019. 

• 45 percent Increase – Senior leaders demonstrate support for WorkLife programs 

• 37 percent Increase – Employees are recognized for providing high 

quality products and services 

• 30 percent Increase – I am given a real opportunity to improve my 

skills in my organization 

• 29 percent Increase – I recommend my organization as a good place 

to work 

• 23 percent Increase – In my organization, senior leaders generate 

high levels of motivation and commitment in the workforce

Targets

2019

▪ Develop and administer an internal survey(s), or use existing survey 

instruments (e.g., FEVS), to assess whether employees believe that 

FLRA employees: are diverse, are respected, and demonstrate 

expertise in Federal sector labor-management relations (e.g., FEVS 

FEVS Question “The workforce has the job-relevant knowledge and 

skills necessary to accomplish organizational goals.”) 

▪ Develop and administer an external survey(s) to assess whether 

external respondents perceive that FLRA employees: are diverse, are 

respected, and demonstrate expertise in Federal sector labormanagement relations.

2020 ▪ Maintain or improve positive responses to relevant question(s) in 

existing survey instruments or internal survey(s) year over year. 

2021 ▪ FLRA will discontinue this measure regarding internal surveys 

because it will be measured through FEVS.

Measure 3c-4: Internal perceptions about succession plans. 

New measure 2019.

Results

2019 ▪ FLRA did not administer a separate survey, but relied on data 

provided through FEVS.

2020

▪ Ensured FLRA job opportunity announcements were distributed by 

email to all employees. Engaged in significant internal recruitment 

efforts, particularly for management positions.

Targets
70

2019

▪ Develop and administer an internal survey(s), or use existing survey 

instruments (e.g., FEVS), to assess whether employees believe that 

minimal gaps exist in succession planning (e.g., FEVS Question “How 

satisfied are you with your opportunity to get a better job in your 

organization?”)

2020 ▪ Maintain or improve positive responses to relevant question(s) in 

existing survey instruments or internal survey(s) year over year.

2021 ▪ FLRA will discontinue this measure. This will be measured through 

FEVS.

Measure 3c-5: Overall employee job satisfaction. 

New measure 2019.

Results

2019

▪ FLRA formed an employee engagement Team and began conducting 

focus groups with all employees to better understand all aspects of job 

satisfaction.

2020

▪ Reinstated reimbursement for bar dues up to $1000 for 2020.

▪ Employee Engagement Team continues to discuss, review and develop 

recommendations on a variety of issues, including those identified in 

the Focus Group Report which include: technological challenges and 

ways to assure employees have a method of raising issues/concerns 

with leadership.

▪ Employee Engagement Team encourages its members and all 

employees to convey to the Team matters to include on the Team 

agenda.

▪ Health & Wellness Team provides a spectrum of opportunity to all 

employees to focus on their personal mental health, physical health, 

and work/life balance.

▪ Expanded work hours and eliminated core hours to provide maximum 

flexibility to allow for employees to manage additional family 

responsibilities during the pandemic.

▪ Created a one-stop shop for all COVID-19 information on the Agency’s 

intranet.

Targets

2019

▪ Develop and administer an internal survey(s), or use existing survey 

instruments (e.g., FEVS), to assess whether employees believe that 

FLRA employees: are diverse, are respected, and demonstrate 

expertise in Federal sector labor-management relations (e.g., FEVS 

Global Satisfaction Index; FEVS Question “Considering everything, 

how satisfied are you with your job?”) 

2020 ▪ Maintain or improve positive responses to relevant question(s) in 

existing survey instruments or internal survey(s) year over year. 

2021 ▪ FLRA will discontinue this measure. This will be measured through 

FEVS.
71

Measure 3c-6: Internal satisfaction with the manner in which internal problem-solving 

occurs. 

New measure 2019.

Results

2019 ▪ FLRA did not administer a separate survey, but relied on data 

provided through FEVS.

2020

▪ Employee Engagement Team & FLRA Pandemic Task Force produced 

survey to gather information on best practices, needs, to assess overall 

response to maximum telework, and to invite personnel to raise 

return to workplace concerns.

▪ Chairman set up consistent weekly, monthly, quarterly management 

& leadership meetings, including monthly meetings with Regional 

Office Directors.

▪ Chairman conducted all-employee meetings to ensure open and 

transparent communications to staff, especially due to COVID-19, and 

plans to continue with this method of communication on a recurring 

basis.

Targets

2019

▪ Develop and administer an internal survey(s), or use existing survey 

instruments (e.g., FEVS), to assess employee satisfaction with 

internal problem-solving practices. 

2020 ▪ Maintain or improve positive responses to relevant question(s) in 

existing survey instruments or internal survey(s) year over year. 

2021 ▪ FLRA will discontinue this measure. This will be measured through 

FEVS.

Measure 3c-7: Internal perceptions about use of technology to promote employee 

efficiency and work-life balance. 

New measure 2019.

Results

2019 FLRA did not administer a separate survey, but relied on data provided 

through FEVS.

2020

▪ Rolled out the new WebEx system during time of maximum telework 

with an overall positive response – capable of accommodating large 

groups (e.g. first WebEx all-employee meeting May 7 had 106 

employee participants; subsequent meetings throughout the year 

easily accommodated 90-109 participants – and streamlining remote 

communication between staff and with consumers.

▪ Produced Avatar “shorts” created to encourage best practices during 

maximum telework including health & wellness focus.

▪ Developed and administered Employee Engagement Team (EET) and 

Pandemic Task Force surveys to gauge employee perception and 

evaluated results to meet employees’ needs or concerns where 

possible.

Targets
72

2019

Develop and administer an internal survey(s), or use existing survey 

instruments (e.g., FEVS), to assess internal perceptions about the use of 

technology to promote efficiency and work-life balance (e.g., FEVS 

Question “My supervisor supports my need to balance work and other life 

issues.”)

2020 Maintain or improve positive responses to relevant question(s) in existing 

survey instruments or internal survey(s) year over year. 

2021 FLRA will discontinue this measure. This will be measured through 

FEVS.
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1

U.S. FEDERAL LABOR RELATIONS AUTHORITY

1400 K Street, NW

Washington, DC 20424

www.flra.gov