FEDERAL LABOR RELATIONS AUTHORITY

STRATEGIC PLAN 2018-2022
Federal Labor Relations Authority

2018-2022 Strategic Plan

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Federal Labor Relations Authority

2018-2022 Strategic Plan

Contents

Message from the Chairman......................................................................................... 1

Executive Summary ...................................................................................................... 2

Mission and Responsibilities......................................................................................... 4

Organizational Structure .............................................................................................. 6

Stakeholder Engagement.............................................................................................. 8

Vision and Values .......................................................................................................... 9

Strategic Goals............................................................................................................. 11

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

CONSISTENT INVESTIGATIVE AND DECISION-MAKING PROCESSES WITH 

DETERMINATIONS THAT ARE CLEARLY ARTICULATED............................................. 12

STRATEGIC GOAL 2: WE WILL DEVELOP AND PROVIDE TOOLS AND RESOURCES TO 

ENABLE THE PARTIES TO PREVENT OR MORE EFFECTIVELY AND EFFICIENTLY 

RESOLVE THEIR LABOR-RELATIONS DISPUTES AND IMPROVE THEIR LABORMANAGEMENT RELATIONSHIPS. ............................................................................. 15

STRATEGIC GOAL 3: WE WILL MANAGE OUR RESOURCES EFFECTIVELY AND 

EFFICIENTLY, AND RECOGNIZE THAT OUR DEDICATED WORKFORCE IS CRITICAL TO 

THE RESOLUTION OF LABOR-RELATIONS DISPUTES. ............................................... 20

Major Management Priorities and Challenges .......................................................... 26

Evidence Building........................................................................................................ 26

Appendix (Abbreviations)............................................................................................ 28
Federal Labor Relations Authority

2018-2022 Strategic Plan

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Federal Labor Relations Authority

2018-2022 Strategic Plan

1

Message from the Chairman

This is the 40th anniversary of enactment of the Federal Service 

Labor-Management Relations Statute. What we refer to simply as 

“the Statute” was passed in 1978 and implemented the following 

year. It evolved from President Richard M. Nixon’s 1969 Executive 

Order on Labor-Management Relations in the federal sector (E.O. 

No. 11491), and had its genesis in President John F. Kennedy’s 1962 

Executive Order on Employee-Management Cooperation in the 

Federal Service (E.O. 10988). 

Anniversaries are important. They present opportunities to 

appreciate and reflect on what led up to this day. Of equal importance is that anniversaries 

can remind us to reconnect, recommit, and refocus on what really matters. They help us 

build on the past and set out a path for the future.

Congress envisioned the Statute as the primary means by which the Federal Labor 

Relations Authority would protect the rights of, and facilitate the collective-bargaining 

relationships among federal agencies, labor organizations, and employees. This remains 

the source of the FLRA’s mission, which is as relevant today as it was on the day that 

Congress enacted the Statute. More than ever, the FLRA should chart the course of 

federal-sector labor-management relations through impartial, clear, and timely actions 

based on the Statute. We can do so by utilizing our unique expertise in federal-sector labor 

law to effectively resolve labor-management disputes, and doing so in a transparent

manner that respects the legitimate interests of key stakeholders. 

So, on this 40th anniversary of the Statute, let us reflect and be inspired by that which 

came before us. Let us also renew our focus on the legislative foundation that enables the 

FLRA to serve as a responsible leader in this arena. And let us rely on the Statute as the 

beacon to guide us towards a bright future in which we reconnect, recommit, and refocus on 

the important mission of this agency. To this, I am firmly committed.

Colleen Duffy Kiko, Chairman

Federal Labor Relations Authority
Federal Labor Relations Authority

2018-2022 Strategic Plan

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Executive Summary

The Federal Labor Relations Authority (the FLRA) is an independent administrative 

agency created by Title VII of the Civil Service Reform Act of 1978. The FLRA has three 

independent statutory components—the Authority, the Office of the General Counsel, and 

the Federal Service Impasses Panel—each with unique adjudicative or prosecutorial roles. 

The FLRA’s mission statement is: Protecting rights and facilitating stable relationships 

among federal agencies, labor organizations, and employees while advancing an effective 

and efficient government through the administration of the Statute. The FLRA does so by 

carrying out five primary statutory functions: We resolve complaints of unfair labor 

practices (ULPs); determine the appropriateness of bargaining units, and supervise or 

conduct secret-ballot elections for labor-organization representation; adjudicate exceptions

to grievance-arbitration awards; adjudicate legal issues relating to the duty to bargain; and 

resolve impasses during negotiations.

The FLRA’s vision, which drives achievement of its mission, is: Charting the course of 

federal-sector labor-management relations through impartial, clear, and timely actions by 

dedicated and accountable employees.

Three strategic goals, each supported by several strategic objectives, guide the FLRA’s 

pursuit of its vision and achievement of its mission.

The FLRA developed this strategic plan against a canvas of strengths and challenges that 

can affect overall mission delivery. The source of the FLRA’s internal strengths is its 

skilled workforce guided by the Agency’s values of transparency and accountability, along 

with its increasing focus on the innovative use of information technology (IT) and datadriven analysis. Challenges arise from budget uncertainty and Presidential-appointee 

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

these strengths and challenges.
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FLRA Strategic Goals

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

We will ensure quality, 

timely, impartial, and 

consistent investigative

and decision-making 

processes with 

determinations that are 

clearly articulated.

We will develop and 

provide tools and resources 

to enable the parties to 

prevent or more effectively 

and efficiently resolve their 

labor-relations disputes 

and improve their labormanagement relationships.

We will manage our 

resources effectively and 

efficiently, and recognize 

that our dedicated 

workforce is critical to the 

prevention and resolution 

of labor-relations disputes.

Strategic Objectives

a. Establish and attempt 

to surpass (1) caseprocessing productivity 

goals, and (2) timeliness 

measures that are 

meaningful to the 

parties.

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.

a. Maintain and expand 

educational resources on 

www.flra.gov.

b. Identify and offer 

targeted assistance to 

parties with significant 

labor-management 

challenges.

c. Maintain and expand our 

external training programs 

to enable the parties to 

better understand their 

rights and obligations 

under the Statute.

a. Ensure that the FLRA’s 

performance-management 

systems are synchronized 

with and support the 

Agency’s strategic goals.

b. Continue to expand the 

FLRA’s technological 

capabilities to enable 

employees to deliver 

mission results more 

effectively and efficiently.

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.
Federal Labor Relations Authority

2018-2022 Strategic Plan

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Mission and Responsibilities

The FLRA is an independent administrative federal agency created by Title VII of the Civil 

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

Relations Statute (the Statute), 5 U.S.C. §§ 7101-7135. The purpose of the Statute is to 

prescribe certain rights and obligations of the employees of the Federal Government and to 

establish procedures that are designed to meet the special requirements and needs of the 

Government. The provisions of the Statute are to be interpreted in a manner consistent 

with the requirement of an effective and efficient Government. Id. § 7101(b).

The FLRA applies its federal-sector expertise to execute its mission primarily by carrying 

out the following statutory responsibilities:

1. Conduct hearings and resolve complaints of ULPs under § 7118 of the Statute. 

Id. § 7105(a)(2)(G). The FLRA is responsible for investigating, prosecuting, and 

adjudicating claims that an agency or a labor organization has failed to uphold its legal 

obligations under the Statute.

2. Determine the appropriateness of units for labor organization representation under the 

Statute, and supervise or conduct elections to determine whether a labor organization has 

been selected as an exclusive representative by a majority of employees in an appropriate 

unit. Id. § 7105(a)(2)(A). The FLRA also resolves disputes about which employees may be 

included in bargaining units under the Statute. Id. § 7105(a)(2)(B).

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

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

awards that result from grievances filed by employees, labor organizations, or agencies 

under parties’ negotiated grievance procedures. The FLRA reviews those awards to assess 

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

similar to those applied by federal courts in private-sector labor-management disputes. 

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

Statute. Id. § 7105(a)(2)(E). The FLRA resolves negotiability disputes that arise during 

FLRA MISSION: “Protecting rights and facilitating stable 

relationships among federal agencies, labor organizations, 

and employees while advancing an effective and efficient 

government through the administration of the Federal 

Service Labor-Management Relations Statute.”
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bargaining under two circumstances – when an agency claims that a contract proposal is 

outside the duty to bargain and when an agency head disapproves a negotiated agreement 

claiming that it contains provisions that are contrary to law, rule, or regulation. 

5. Provide assistance in resolving negotiation impasses between federal agencies and 

exclusive representatives. Id. § 7119.

In addition, Congress directed the FLRA to prescribe criteria and resolve issues relating to 

the granting of national consultation rights under § 7113 of the Statute; prescribe criteria 

and resolve issues relating to determining compelling need for agency rules or regulations 

under § 7117(b) of the Statute; prescribe criteria relating to the granting of consultation 

rights with respect to conditions of employment under § 7117(d) of the Statute; and take 

such other actions as are necessary and appropriate to effectively administer the provisions 

of the Statute.

The FLRA is to “provide leadership in establishing policies and guidance” related to 

matters under the Statute. Id. § 7105(a)(1). The FLRA satisfies this directive primarily 

through its written determinations, but also by offering training and other services. 

Together, this is how the FLRA plans to achieve its mission.
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Organizational Structure

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

Authority, the Office of the General Counsel, and the Federal Service Impasses Panel (the 

FSIP) – each with unique adjudicative or prosecutorial roles.

The Authority – the FLRA’s adjudicatory body – is led by three presidentially nominated 

and Senate-confirmed Members. The Authority is responsible for adjudicating ULP 

complaints heard by the Office of Administrative Law Judges,1 exceptions to arbitrators’ 

grievance-arbitration awards, disputes over the negotiability of collective-bargaining 

 

1 The Authority has delegated to the Office of Administrative Law Judges its authority under § 7118 

of the Statute to determine whether any person has engaged in or is engaging in a ULP. 

5 U.S.C. § 7105(e)(2).
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language, and disputes concerning bargaining-unit determinations.2 Pursuant to § 7104(b) 

of the Statute, the President designates one Member to serve as Chairman of the FLRA. 

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

Other programs and offices under the jurisdiction of the Chairman include the Office of the 

Solicitor, the Office of Case Intake and Publication, and the Alternative Dispute Resolution 

and Equal Employment Opportunity Programs. Standing as an independent entity within 

the Authority is the Office of Inspector General.

The Office of the General Counsel (OGC) is led by a presidentially 

appointed and Senate-confirmed General Counsel. Id. § 7104(f)(1), 

(2), and (3). The General Counsel has direct authority over, and 

responsibility for, all employees in the OGC, including the FLRA’s 

Regional Offices. The OGC investigates ULP charges, files and 

prosecutes ULP complaints, determines representation matters,3 and 

provides training, as appropriate. 

The FSIP provides assistance in resolving

negotiation impasses between federal 

agencies and exclusive representatives 

under § 7119 of the Statute )and under 

the Federal Employees Flexible and 

Compressed Work Schedules Act, 

5 U.S.C. § 6131(c)(2)(A), (c)(3)(B) and (C). 

The FSIP is composed of a Chairman and 

at least six other members, who are appointed by the 

President. Id. § 7119(c)(2).

Pursuant to the Foreign Service Act of 1980, 22 U.S.C.

§§ 4101-4118, the FLRA also provides full program and staff 

support to two additional bodies. The Foreign Service Labor 

Relations Board oversees the labor-management relations 

program for Foreign Service employees of the Broadcasting 

Board of Governors, the U.S. Agency for International Development, and the Departments

of State, Agriculture, and Commerce. The Foreign Service Impasse Disputes Panel assists

in resolving bargaining impasses arising in the course of collective bargaining between the 

exclusive representative and those same Foreign Service agencies. 

 

2 The Authority has delegated to the regional directors its authority to determine whether a group of 

employees is an appropriate unit; to conduct investigations and to provide for hearings; to determine 

whether a question of representation exists and to direct an election; and to supervise or conduct 

secret-ballot elections and certify the results thereof. 5 U.S.C. § 7105(e)(1).

3 The Authority has delegated these duties to the regional directors. See n.2.
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Stakeholder Engagement 

The FLRA enlisted the ideas, expertise, and assistance of both internal and external 

stakeholders when developing this strategic plan.

FLRA staff from every Agency component, every region of the country, and every level, 

actively participated in developing all substantive elements of this strategic plan. As a 

result, more than one-third of the FLRA workforce played an active role in developing and 

drafting the new mission statement, vision and value statements, strategic goals and 

objectives, strategies, and performance goals. When the new FLRA mission statement was 

unveiled to Agency staff, ninety percent (90%) responded in a survey saying, “Yes, the work 

I do on a daily basis helps achieve this mission.” Strategic plan reviewers and editors were 

careful to preserve stakeholder input to the maximum extent possible.

The FLRA obtained input from more than 450 external stakeholders during the 

development of this strategic plan. A draft of the entire Strategic Goals section of this 

document was posted online for external stakeholders to review and assess. About threequarters of the participating external stakeholders self-identified as federal employees and 

offered input that could be tabulated. Just over half of the federal-employee respondents 

were labor-organization representatives and about one-third were management 

representatives. Other stakeholder respondents included those who filed cases with the 

FLRA, former federal employees, former union representatives, and attorneys.

The FLRA also polled internal stakeholders concerning substantive portions of this 

document. Eight-three percent (83%) of internal-stakeholder respondents affirmed that the 

strategic goals in this strategic plan are important or “essential” to the Agency’s mission. 

An even higher percentage of internal-stakeholder respondents opined that the strategic 

objectives and strategies in this document will help to achieve those goals. More than 

ninety percent (90%) of external federal-employee respondents agreed. 

In addition to tabulated input, internal and external stakeholders offered more than 500 

narrative comments after reviewing substantive portions of this document. In light of the 

entirety of stakeholder input, FLRA leadership concluded that this strategic plan will 

appropriately guide the Agency for the next several years. The broad range of stakeholder 

input also will help Agency staff to implement this plan in a way that helps stakeholders 

perceive that the FLRA is successfully achieving its mission.

Reviewers from the Office of Management and Budget suggested refinement in one area, 

which was adopted. The OMB reviewers otherwise favorably reviewed the FLRA’s new 

strategic plan. The strategic plan document was finalized after submitting it to 

congressional reviewers for input and recommendations.
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Vision and Values

The FLRA’s vision statement expresses our aspirations, our hopes, and what we believe we 

can do in ways that no other agency can. This vision drives us and guides us to achieve the 

goals and objectives designed to accomplish our mission. 

Charting the course of federal-sector labor-management relations ...

The FLRA’s vision statement begins with the unique characteristic that distinguishes the 

FLRA from all other entities. Congress established the FLRA to administer the Statute 

and provide leadership in establishing policies and guidance relating to federal-sector labormanagement relations. In this role, we strive to offer the very best leadership for all 

stakeholders in the outcome of our work.
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... through impartial, clear, and timely actions ...

The FLRA primarily offers such leadership 

and guidance through impartial, clear, and 

timely actions that are necessary and 

appropriate to effectively administer the 

provisions of the Statute. In federal-sector 

labor-management relations, this includes 

determining appropriate units for labororganization representation, determining 

exclusive recognition of labor 

organizations, and resolving ULP

allegations, exceptions to grievancearbitration awards, issues relating to the 

duty to bargain in good faith, and 

negotiation impasses. 

... by dedicated and accountable 

employees.

We are proud to be a committed and 

responsible workforce that consistently

acts in a manner that reflects the public interest’s demand for the highest standards of 

employee performance and the efficient accomplishment of government operations. 

The FLRA’s core values contain lasting beliefs and shared ideals that help guide our 

actions. As public servants,

1. We are IMPARTIAL.

2. We are COMMITTED to fulfilling our statutory mandate.

3. We are TRANSPARENT in our processes.

4. We have unique EXPERTISE in federal-sector labor law.

5. We EFFECTIVELY resolve labor-management-relations disputes.

These values help enable the FLRA vision statement and give deeper meaning to our goals 

and objectives.

FLRA Chairman 

Colleen Duffy Kiko
Federal Labor Relations Authority

2018-2022 Strategic Plan

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Strategic Goals

FLRA Strategic Goals

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

We will ensure quality, 

timely, impartial, and 

consistent investigative

and decision-making 

processes with 

determinations that are 

clearly articulated.

We will develop and 

provide tools and resources 

to enable the parties to 

prevent or more effectively 

and efficiently resolve their 

labor-relations disputes 

and improve their labormanagement relationships.

We will manage our 

resources effectively and 

efficiently, and recognize 

that our dedicated 

workforce is critical to the 

prevention and resolution 

of labor-relations disputes.

Strategic Objectives

a. Establish and attempt 

to surpass (1) caseprocessing productivity 

goals, and (2) timeliness 

measures that are 

meaningful to the 

parties.

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.

a. Maintain and expand 

educational resources on 

www.flra.gov.

b. Identify and offer 

targeted assistance to 

parties with significant 

labor-management 

challenges.

c. Maintain and expand our 

external training programs 

to enable the parties to 

better understand their 

rights and obligations 

under the Statute.

a. Ensure that the FLRA’s 

performance-management 

systems are synchronized 

with and support the 

Agency’s strategic goals.

b. Continue to expand the 

FLRA’s technological 

capabilities to enable 

employees to deliver 

mission results more 

effectively and efficiently.

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.
Federal Labor Relations Authority

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

AND CONSISTENT INVESTIGATIVE AND DECISION-MAKING PROCESSES 

WITH DETERMINATIONS THAT ARE CLEARLY ARTICULATED.

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

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

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

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

investigations and determinations. Further, the FLRA must convey those determinations 

clearly and enforce them effectively. This goal must be achieved throughout all FLRA 

components to attain the level of success that should be expected of the Agency.

Strategic Objectives

a. 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 the 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 the FLRA’s own mission, the Agency must satisfy internal caseprocessing productivity goals 

that enable it to investigate 

and resolve cases in a timely 

fashion.

Parties are best served when 

they have a clear 

understanding of how long it 

might take the FLRA to process 

cases. The FLRA therefore will

set its standards for timeliness 

in a way that gives parties a 

reasonable expectation as to 

the duration of the FLRA 

determination process. This 

requires the use of simple, 

straightforward metrics for 

understanding how long it 

might take to resolve a given 

matter before the Agency.
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Strategies

The FLRA will use the following strategies to achieve this objective:

1) Update the methods to measure productivity and the metrics to measure overall 

timeliness of matters pending before the FLRA.

2) Regularly measure productivity and the overall status of case-processing timeliness 

in each FLRA component, and update strategies as necessary to address unforeseen 

or unplanned events.

3) Update realistic metrics and methods that the Agency uses to track the internal 

progress of matters before the FLRA to make them clear, relevant, meaningful, and 

widely known to the federal labor-management community.

Contributing Components

• All FLRA components.

Performance Goals

1) Use updated metrics to measure 

productivity and overall timeliness 

of matters pending before the 

FLRA.

2) Regularly measure productivity 

and overall case-processing 

timeliness in each FLRA 

component; modify strategies as 

necessary to address unforeseen or 

unplanned events.

3) Track and publically report 

progress of matters before the 

FLRA that the federal labormanagement community considers 

clear, relevant, widely known, and 

meaningful.
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b. 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 the FLRA’s core functions requires the Agency to perform thorough 

investigations and produce clearly articulated written products. From informal 

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

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

and the federal labor-management community. 

The 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 the FLRA’s determinations, and ultimately, in the FLRA 

as an institution. 

Strategies

The FLRA will use the following strategies to achieve this objective:

1) Periodically update the metrics that the FLRA uses to assess quality of 

investigations and written work products.

2) Periodically update methods that the FLRA uses to maintain and improve the 

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

training and internal educational resources.

3) Periodically assess external perceptions of the FLRA’s impartiality and factors that 

affect those perceptions; take action, if deemed appropriate, to ensure external 

perceptions of FLRA impartiality.

Contributing Components

• All FLRA components.

Performance Goals

1) Conduct high-quality investigations and produce high-quality written work 

products.
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2) Implement effective methods to maintain and improve the quality of FLRA 

investigations and written work products, including FLRA staff training and 

internal educational resources.

3) Ensure external stakeholder confidence in the FLRA’s impartiality.

STRATEGIC GOAL 2: WE WILL DEVELOP AND PROVIDE TOOLS AND 

RESOURCES TO ENABLE THE PARTIES TO PREVENT OR MORE 

EFFECTIVELY AND EFFICIENTLY RESOLVE THEIR LABOR-RELATIONS 

DISPUTES AND IMPROVE THEIR LABOR-MANAGEMENT RELATIONSHIPS.

The 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 the FLRA’s mission of 

protecting rights 

and facilitating 

stable labormanagement 

relationships while 

advancing an 

effective and 

efficient 

government. The 

FLRA 

accomplishes this 

goal first through 

its written 

determinations 

and by providing 

parties with 

quality educational 

resources through 

the 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.
Federal Labor Relations Authority

2018-2022 Strategic Plan

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Strategic Objectives

a. Maintain and expand educational resources on www.flra.gov.

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

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

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

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

relations in a manner that is consistent with the Statute.

In April 2016, the FLRA launched a totally redesigned website featuring all-new 

substantive content, a convenient training-registration tool, a visually engaging design, 

simplified global navigation, and improved usability and search functions. The Agency will 

continue to build on this achievement by exploring ways to supplement and enhance the 

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

other training, including the development of online training modules that replicate the inperson trainings that the FLRA currently provides. It will also include opportunities for 

parties to access live statutory training sessions on the FLRA website by utilizing 

technology and techniques that encourage interaction with remote participants.

Strategies

The FLRA will use the following strategies to achieve this 

objective:

1) Review and regularly update the educational 

resources currently posted on the FLRA website to 

ensure that they accurately reflect governing case 

law and procedures.

2) Develop online training modules that the parties can 

utilize in addition to live, in-person training, 

including resources that educate the parties on the 

labor-management aspects of situations commonly 

arising in government operations (e.g., agency reorganizations, office moves, 

furloughs).

3) Develop, post, and maintain current case digests on the FLRA website that briefly 

summarize recent Authority decisions.

FLRA Member 

Ernest DuBester
Federal Labor Relations Authority

2018-2022 Strategic Plan 

17

Contributing Components

• All FLRA components.

Performance Goals

1) Routinely review and update educational resources on the FLRA website.

2) Develop a growing library of online training modules on the FLRA website.

3) Develop and maintain case digests of new Authority decisions on the FLRA website.

b. Identify and offer targeted assistance to parties with significant labormanagement 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. 

Targeted assistance can take 

many 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.
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Strategies

The FLRA will use the following strategies to achieve this objective:

1) Develop, implement, and assess methods to identify and evaluate parties with 

significant labor-management challenges that could benefit most from an offer of 

targeted assistance.

2) Identify other agencies, such as the Federal Mediation and Conciliation Service, to 

which the FLRA may refer the parties for assistance, when appropriate.

3) On a cross-component basis, and resources permitting, develop targeted-assistance 

programs and related materials; offer them to parties experiencing significant labormanagement challenges to help protect rights and facilitate stable labormanagement relationships; and assess the effectiveness of these programs. 

Contributing Components

• All FLRA components.

Performance Goals

1) Identify and evaluate 

parties with significant 

labor-management 

challenges.

2) Refer appropriate parties 

to suitable resources. 

3) Implement highly effective 

targeted assistance programs and associated materials.

c. Maintain and expand our external training programs to enable the 

parties to better understand their rights and obligations under the 

Statute.

Agency components have traditionally provided training on statutory principles governing 

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

Providing such external training to federal agencies and labor organizations regarding their 

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

rights and facilitating stable labor-management relationships while advancing an effective 
Federal Labor Relations Authority

2018-2022 Strategic Plan 

19

and efficient government. For this reason, it is essential that the FLRA maintain and, 

where possible, expand these external training programs.

Strategies

The FLRA will use the following strategies to achieve this objective:

1) Continue to develop and deliver high-quality in-person training opportunities, 

including basic and advanced statutory training, and training on unit determination 

and representational matters, negotiation impasses, federal-sector grievancearbitration appeals, and negotiability matters.

2) Develop, maintain, and improve additional ways to offer external training, including

real-time participation from remote locations, recorded modules available through

the FLRA website, videos hosted on remote sites like YouTube, podcasts that users

can download, recordings of segments of in-person training, audio recordings, and

other participant-friendly best practices as they become available.

3) Develop, deliver, and assess the effectiveness of training regarding procedures for

filing and processing FLRA cases.

Contributing Components

• All FLRA components.

Performance Goals

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.

2) Find additional ways to

deliver real-time and pre-recorded external trainings that have been successfully

developed and implemented utilizing appropriate technology and participantfriendly best practices.

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.
Federal Labor Relations Authority

2018-2022 Strategic Plan

20

STRATEGIC GOAL 3: WE WILL MANAGE OUR RESOURCES EFFECTIVELY 

AND EFFICIENTLY, AND RECOGNIZE THAT OUR DEDICATED WORKFORCE 

IS CRITICAL TO THE RESOLUTION OF LABOR-RELATIONS DISPUTES.

We honor the trust that the public has placed in us to use Agency resources wisely on 

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

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

The core of the FLRA’s 

mission is to resolve 

labor-relations

disputes. The FLRA 

will continue to achieve 

that goal by employing 

committed, experienced 

professionals.

The FLRA developed a 

cross-component 

working group to meet 

the goals articulated in 

Executive Order No. 

13781 (March 13, 

2017), Comprehensive Plan for Reorganizing the Executive Branch, and Office of 

Management and Budget (OMB) Memorandum M-17-22 (April 12, 2017), Comprehensive 

Plan for Reforming the Federal Government and Reducing the Federal Civilian Workforce.

Guided by internal and external input, this working group offered FLRA leadership a set of 

recommendations to improve the efficiency, effectiveness, and accountability of Agency 

operations. The FLRA expects to maximize its resources by reducing travel, training, and 

mail costs through the increased use of teleconferencing, utilization of in-house and 

interagency training, and implementation of fully electronic case files.

The FLRA will continue to explore ways to manage its workforce effectively and 

efficiently. A key component of that commitment is to continue developing our IT systems, 

with the goal of enabling FLRA employees to spend more time on mission-critical, 

substantive work. The FLRA will also reexamine its performance-management systems to 

ensure that they align with the goals in this plan, that individual employee standards 

reflect organizational goals, and that the Agency appropriately recognizes employee 

achievements in support of these goals. Finally, the FLRA will continue to encourage 

employee growth, development, and innovation. 
Federal Labor Relations Authority

2018-2022 Strategic Plan 

21

Strategic Objectives 

a. Ensure that the FLRA’s performance-management systems are

synchronized with and support the Agency’s strategic goals.

At the foundation of this strategic plan is the 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 performancemanagement 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. 

Strategies

The FLRA will use the following strategies to achieve 

this objective:

1) Continually evaluate FLRA performancemanagement systems to achieve, and recognize 

contributions towards, the Agency’s strategic 

goals. 

2) Provide in-house training to help the FLRA

workforce gain a better understanding of the

connections between individual employee

performance goals and the Agency’s strategic

goals and objectives.

3) Encourage and solicit employee innovation to achieve the Agency’s strategic goals.

Contributing Components

• All FLRA components.

Performance Goals

1) FLRA employees perceive that the Agency’s performance-management systems, and

their individual performance plans, directly align with achieving this strategic plan.

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.
Federal Labor Relations Authority

2018-2022 Strategic Plan

22

3) FLRA employees perceive that their performance recognition and rewards are also

directly linked to their contribution to the successful achievement of the FLRA’s 

strategic goals.

b. Continue to expand the FLRA’s technological capabilities to enable 

employees to deliver mission results more effectively and efficiently.

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

the FLRA will more effectively and efficiently deliver quality services and increase internal 

efficiencies. For example, the Agency has connected 

all FLRA offices in ways that improve internal 

communication, and FLRA staff works more 

efficiently by using a cloud-based document 

management system that allows for simplified 

document management and internal collaboration. 

The Agency also recently launched a new and 

improved version of its eFiling system that provides 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 and easily 

access FLRA services, which enables FLRA 

employees to take timely and quality actions. The 

Agency is currently using the same software and agile 

methodology to develop a more user-friendly 

electronic case-management system. The FLRA will integrate these three systems—

document management, eFiling, and case management—to fully implement electronic case 

file capability throughout the Agency.

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

technological capabilities. For example, the logical next step after fully implementing 

electronic case files is 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.

Strategies

The FLRA will use the following strategies to achieve this objective:

1) Improve and enhance the FLRA electronic case-management system and integrate it 

with the electronic document management system and eFiling system in order to 

FSIP Chairman

Mark A. Carter
Federal Labor Relations Authority

2018-2022 Strategic Plan 

23

fully implement electronic case file capability throughout the Agency. Thereafter,

encourage the widest use of eFiling and electronically serve FLRA-generated case 

documents on the parties. 

2) Continue to effectively implement and manage other IT systems to help the FLRA 

more effectively and efficiently deliver services.

3) Implement methodologies to determine how to improve the usefulness of

technological enhancements and their positive impact on the internal and external

customer experience.

Contributing Components

• All FLRA components.

Performance Goals

1) Implement a new and

improved FLRA

electronic casemanagement system.

Integrate the casemanagement system

with the FLRA

document management

and eFiling systems in

order to fully implement

electronic case file

capability throughout

the Agency.

2) FLRA employees and parties understand how to make the most effective use of the

FLRA’s electronic systems.

3) Enhance the positive impact of technological advancements on the customer

experience.
Federal Labor Relations Authority

2018-2022 Strategic Plan 

24

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.

The FLRA’s charge to uphold and administer the Statute 

relies on its employees. Accordingly, the 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. 

The FLRA will continue to assess the skills and training 

needs of its workforce, and it will seek new, cost-effective 

ways to cultivate employee development and commitment. 

The FLRA will provide opportunities for experienced 

employees to share their institutional knowledge by providing 

internal training and through other means. The FLRA’s 

continued focus on human-capital development will help 

ensure continued mission accomplishment and leadership of 

the federal-sector labor-management relations program. 

Strategies

The FLRA will use the following strategies to achieve this objective:

1) Recruit and retain a diverse and respected work force with federal-sector labormanagement expertise; periodically review succession planning initiatives; develop 

nontraditional resources and other appropriate means for employee education and 

development.

2) Conduct internal employee surveys to monitor and address employee morale and

engagement issues to continue the FLRA’s culture of respectful problem-solving with

its workforce.

3) Use technology and telework options where appropriate to promote employee

efficiency and a healthy work-life balance, which in turn enables our workforce to

better serve the public.

Contributing Components

• All FLRA components.
Federal Labor Relations Authority

2018-2022 Strategic Plan 

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Performance Goals

1) Internal and external survey respondents perceive that diverse and respected FLRA 

employees demonstrate expertise in federal-sector labor-management relations; 

minimal gaps exist in succession plans; and the Agency develops nontraditional 

resources for employee education and development.

2) The FLRA workforce expresses a stable and improving level of overall job

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

3) FLRA managers and employees perceive that the Agency appropriately uses

telework and technology to promote employee efficiency and a healthy work-life

balance.
Federal Labor Relations Authority

2018-2022 Strategic Plan 

26

Major Management Priorities and Challenges

This strategic plan sets forth a long-term vision for modernizing the FLRA in key areas 

that will improve the Agency’s ability to deliver mission outcomes, provide excellent service 

to the federal labor-management community, and effectively steward taxpayer dollars on 

behalf of the American people.

The FLRA will continue to focus on improving the Agency’s effectiveness, efficiency, and 

accountability. The Agency also will continue to focus on transparency and the innovative 

use of IT and data-driven analysis, to maintain high levels of mission performance and 

employee engagement.

While the FLRA is committed to increasing government-wide 

effectiveness and efficiency, and improving service to the 

federal workforce, there are challenges outside of the Agency’s 

control that could pose a risk to overall mission delivery. 

These challenges include budget uncertainty and Presidential 

appointee vacancies. 

For the past several years, there has been budget uncertainty 

throughout the Federal Government. This uncertain fiscal 

environment reduces the FLRA’s flexibility in making 

resource decisions, such as hiring staff to fill vacancies, or 

investing in modernization of IT capabilities that will allow 

for more efficient case processing. 

For quite some time, the FLRA has not had a full complement of Presidential appointees. 

This decreases the Agency’s ability to process cases, to issue decisions, and to achieve its 

goals and measures.

The FLRA continues to make substantial progress in addressing and resolving challenges 

identified by its Office of the Inspector General (OIG). Specifically, over the last two fiscal 

years, the Agency has received clean audits for both its Privacy Program and Federal 

Information Security Management Act (FISMA) compliance, while reducing existing open 

recommendations in both from thirteen down to one. The FLRA has also been successful in 

closing longstanding management challenges identified by the Inspector General. Detailed 

information about progress towards addressing OIG findings is reported annually in the 

Agency’s Performance and Accountability Report (PAR).

FLRA Member 

James T. Abbott
Federal Labor Relations Authority

2018-2022 Strategic Plan 

27

To develop this strategic plan, the FLRA used information from a wide range of sources, 

including a traditional environmental scan, Agency performance data, and OPM’s 

Employee Viewpoint Survey. The FLRA obtains valuable information about the 

effectiveness of its program through its mission activities, such as trainings, stakeholder 

engagement, and responses to public inquiries.

The FLRA routinely collects evidence-based performance data to support decision making 

and to drive innovative approaches within the Agency. Using real-time data, the FLRA 

measures its performance against the FLRA strategic plan and develops strategies for 

effectively achieving the FLRA’s mission and goals. Throughout the year, Agency 

leadership shares performance metrics and holds data-driven management meetings where 

meaningful discussions occur around program performance, areas for improvement, and 

best practices across components. Also, to continuously improve internal service delivery, 

the FLRA frequently evaluates its administrative services (IT, human resources, and 

financial management), using internal survey tools, where appropriate. 

To the extent possible, the agency will embed data collection, analysis, and utilization 

within the design, management, and implementation of Agency programs and services so as 

to minimize new burdens on limited Agency resources.

Evidence Building
Federal Labor Relations Authority

2018-2022 Strategic Plan 

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Appendix (Abbreviations)

ADR Alternative Dispute Resolution

ARB Arbitration* 

eFiling Electronic-case-filing system

FLRA Federal Labor Relations Authority

FSIP Federal Service Impasses Panel, a component of the FLRA comprising 

seven part-time, presidentially appointed Members

Impasse Negotiation Impasse* 

IT Information Technology

NEG Negotiability* 

OALJ Office of Administrative Law Judges

OGC Office of the General Counsel, a component of the FLRA led by a 

presidentially appointed, Senate-confirmed General Counsel

OIG Office of the Inspector General

OMB Office of Management and Budget

OPM Office of Personnel Management

PAR Performance and Accountability Report

REP Representation* 

The Agency Federal Labor Relations Authority

The Authority A component of the FLRA comprising three presidentially appointed, 

Senate-confirmed Members

The Statute Federal Service Labor-Management Relations Statute 

ULP Unfair Labor Practice* 

*A specific type of case filed with the FLRA.