WWW.FLRA.GOV 

CONGRESSIONAL BUDGET JUSTIFICATION

U.S. FEDERAL LABOR RELATIONS AUTHORITY

Promoting and protecting labor-management 

relations for effective, efficient government.
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UNITED STATES

FEDERAL LABOR RELATIONS AUTHORITY

Congressional Budget Justification

Fiscal Year 2021
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Table of Contents

U.S. FEDERAL LABOR RELATIONS AUTHORITY.......................................................1

BACKGROUND AND MISSION.................................................................................................1

ORGANIZATIONAL STRUCTURE............................................................................................2

Authority.......................................................................................3

The Office of the General Counsel.................................................3

The Federal Service Impasses Panel..............................................4

AGENCY TRENDS AND CHALLENGES ................................................................................4

Authority.......................................................................................5

Office of the General Counsel .......................................................7

Federal Service Impasses Panel.....................................................7

Improving the Customer Experience .............................................8

Executive Branch Reform..............................................................9

People: Developing a Workforce for the 21st Century .................10

IT Modernization ........................................................................11

BUDGET JUSTIFICATION.......................................................................................................... 13

APPROPRIATIONS LANGUAGE.............................................................................................13

2021 FUNDING REQUEST.........................................................................................................13

CHANGE FROM 2020....................................................................................................................14

PROGRAM AND FINANCING SCHEDULE......................................................................15

OBJECT CLASSIFICATION SCHEDULE...............................................................................16

EMPLOYMENT SUMMARY SCHEDULE..........................................................................16

AWARDS DATA SCHEDULE......................................................................................................17

INSPECTOR GENERAL RESOURCES...................................................................................17

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

STRATEGIC AND PERFORMANCE-PLANNING FRAMEWORK.....................20

FLRA Strategic Goals, Objectives and Measures.........................21
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U.S. FEDERAL LABOR RELATIONS 

AUTHORITY

BACKGROUND AND MISSION 

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

administrative Federal agency created by Title VII of the Civil Service Reform Act of 

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

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

and obligations of the employees of the Federal Government and to establish procedures 

that are designed to meet the special requirements and needs of the Government. 

Id. § 7101(b). The provisions of the Statute are to be interpreted in a manner consistent 

with the requirement of an effective and efficient Government. Id.

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

facilitating stable relationships among Federal agencies, labor organizations, and 

employees while advancing an effective and efficient Government through the 

administration of the Statute.

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

the following statutory responsibilities:

1. Conduct hearings and resolve complaints of unfair labor practices (ULPs) under 

§ 7118 of the Statute. Id. § 7105(a)(2)(G). FLRA is responsible for investigating, 

prosecuting, and adjudicating claims that an agency or a labor organization has 

failed to uphold its legal obligations under the Statute. 

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

under the Statute, and supervise or conduct elections to determine whether a labor 

organization has been selected as an exclusive representative by a majority of 

employees in an appropriate unit. Id. § 7105(a)(2)(A). FLRA also resolves 

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

Statute. Id. § 7105(a)(2)(B).

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

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

arbitration awards that result from grievances filed by employees, labor 

organizations, or agencies under parties’ negotiated grievance procedures. The 

FLRA reviews those awards to assess whether they are contrary to any law, rule, 

or regulation, or are deficient on other grounds similar to those applied by federal 

courts in private-sector labor-management disputes. 

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

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

during bargaining under two circumstances – when an agency claims that a 

contract proposal is outside the duty to bargain and when an agency head 

disapproves a negotiated agreement claiming that it contains provisions that are 

contrary to law, rule, or regulation. 
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5. Provide assistance in resolving negotiation impasses between federal agencies and 

exclusive representatives. Id. § 7119.

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

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

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

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

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

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

provisions of the Statute.

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

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

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

ORGANIZATIONAL STRUCTURE

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

– the Authority, the Office of the General Counsel (OGC), and the Federal Service 

Impasses Panel (the FSIP or the Panel) – each with unique adjudicative or prosecutorial 

roles. 

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

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

pursuant to the Foreign Service Act of 1980, 22 U.S.C. §§ 4101-4118. 
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Authority

Chief Executive and Administrative Officer

The President of the United States designates one Member as Chairman who serves as 

FLRA’s chief executive and administrative officer. 5 U.S.C. § 7104(b). 

The Authority

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

nominated and Senate-confirmed Members who are appointed to fixed, staggered fiveyear terms. 

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

arbitrators’ awards, resolving disputes over the negotiability of collective-bargaining

proposals and provisions, and deciding applications for review of Regional Directors’ 

decisions in representation disputes. The Authority Members appoint Administrative 

Law Judges (ALJs) to hear and prepare recommended decisions that may be appealed to 

the Authority in cases involving ULP complaints. 

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

the Solicitor, the Office of Administrative Law Judges (OALJ), the Office of Case Intake 

and Publication (CIP), the Alternative Dispute Resolution Program, and the Equal 

Employment Opportunity Program. Standing as an independent entity within the 

Authority is the Office of Inspector General.

The Office of the General Counsel

The Office of the General Counsel (OGC) is led by a presidentially appointed and Senateconfirmed General Counsel who has direct authority over, and responsibility for, all 

employees in the OGC, including those in FLRA’s Regional Offices. The OGC investigates 

and resolves ULP charges, files and prosecutes ULP complaints, and provides training, as 

appropriate. In addition, through delegation by the Authority, the Regional Offices 

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

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

D.C. Headquarters management provides administrative oversight; develops policies, 

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

Offices and training and education for the parties; and processes appeals from the 

Regional Offices’ dismissals of ULP charges. Each Regional Office is headed by a 

Regional Director who provides leadership and management expertise for their respective 

regions. There are five Regional Offices in Atlanta, Georgia; Chicago, Illinois; Denver, 

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

The FSIP is composed of part-time Presidential appointees who are appointed to fixed, 

staggered five-year terms. The FSIP provides assistance 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 AND CHALLENGES

FLRA is requesting funding to fully support an FTE level of 119 for 2021. In 2019, FLRA 

carefully reexamined its organizational structure and size to prepare for the reduction in 

the budget for 2020, focusing on the cost of FTEs. FLRA calculations resulted in the need 

to reduce in 2020 the requested and authorized 2019 staffing level from 125 to 115 to 

meet the five-percent reduction implemented. Based on experience in 2019, FLRA has 

determined that the cut was detrimental to the Authority’s overall case production and 

Agency wide customer engagement efforts. Thus, this request returns one attorney FTE 

for each of the three Authority members. In addition, the Inspector General (IG) has 

requested an additional staff member to provide mandated legal services to the IG in 

accordance with the IG Act. For 2021, given this staff level and recent pay increase, as 

well as the need to institute a more robust awards and recognition program mandated by

Office of Management and Budget (OMB) Guidance, FLRA has calculated how much it 

will cost to pay and maintain 119 FTEs. This request provides a budget to support that 

number. 

The funding increase will also support the steady and efficient progress FLRA has been 

making in completing an electronic case filing system, which will provide for better 
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service delivery to its customers, stakeholders, and the public. Adequate funding is 

needed to complete the Case Management System development for two components, as 

well as to connect the Case Management System and the Agency Document Management 

System, resulting in a fully electronic case file. Funding will be needed to address 

converting legacy (paper) documents to electronic format - to include converting oversized 

documents as part of the electronic case file. Receiving the requested funding increase 

will ensure that the Agency meets the requirement for electronic records by December 31, 

2022 as directed by OMB. 2021 will be a critical time for the IT security program and 

other integral IT programs as FLRA begins to tie them together and bring them into full 

production. 

To be an effective partner in achieving the President’s vision of Strengthening the Federal 

Workforce, FLRA itself needs a first-in-class workforce. Consistent with the PMA, FLRA 

seeks to build an agile organization to quickly respond and align to changing mission 

needs, innovations, and technological advancements. FLRA is committed to recruiting, 

rewarding, and retaining a diverse and well-respected workforce and, to help achieve this 

goal, intends to institute an Agency Workforce Fund Plan as required by OMB and OPM 

Guidance, M-19-24 (July 12, 2019). (see infra p. 12)

As discussed in more detail below, FLRA is a high performing Agency. Under its 2018-

2022 Strategic Plan, FLRA will continue to achieve strong mission-related results, while 

focusing on more customer-friendly time targets and educational resources, IT 

modernization, and human-capital initiatives. 

Nonetheless, the Agency faces external challenges that are beyond its control, such as 

vacancies in political leadership, staffing fluctuations, and budget uncertainty. For 

example, FLRA has been without a presidentially appointed, Senate-confirmed General 

Counsel since January 20, 2017. In the absence of a General Counsel, the Regional 

Offices may investigate ULP charges and dismiss those found to lack merit, but they 

cannot issue ULP complaints when the Regional Director recommends that a complaint 

be issued. This is because the text of the Statute makes clear that issuance of a complaint 

is a power reserved exclusively to the General Counsel’s discretion. 5 U.S.C. §§ 

7104(f)(2)(B), 7118(a)(1). In addition, only the General Counsel can decide appeals of a 

Regional Director’s dismissal of a ULP charge. 

The General Counsel position is subject to the Federal Vacancies Reform Act (Vacancies 

Act), so, upon the resignation of the then-General Counsel, the career Deputy General 

Counsel automatically became the Acting General Counsel on January 20, 2017. He 

served as Acting General Counsel until November 16, 2017, the statutory maximum 

under the Vacancies Act absent a General Counsel nominee. Since that date, no ULP 

complaints or ULP appeal decisions have issued. As of September 30, 2019, there are 298

ULP-complaint recommendations and approximately 326 appeals awaiting review by a 

new General Counsel. 

Authority 

The Authority has experienced significant staffing shortages in 2019 that have hampered 

its case processing speed. Between August 2018 and June 2019, the Member offices lost 

eleven attorneys, which constituted 61 percent of the attorneys at that time. Although 

the Authority has recently filled many of those vacancies, the intervening period of 

understaffing dramatically affected the Authority’s case processing abilities. At the end 
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of 2018, the Authority was averaging almost 12 merits decisions per month. However, as 

a result of staff loss, the Authority averaged 8 merits decisions per month in 2019. 

Staffing shortages have also resulted in an accumulating backlog of pending cases, and 

the Authority focused its efforts on issuing the oldest cases in its inventory. However, 

without a full staff, making significant progress has been challenging, as the backlog of 

negotiability and arbitration cases is growing faster than the cases are being issued. The 

Authority began 2019 with a pending inventory of 111 cases, but ended the year with an 

inventory of approximately 136 cases.

Although its new case-processing performance measures provide the Authority with 

ambitious time targets and the parties with more meaningful information regarding caseprocessing timelines, the significant staffing shortages discussed above have resulted in 

the Authority failing to meet some of its targeted goals. The Authority met its 210-day 

target in 37 percent (32/87) of arbitration cases and met its 300-day target in 75 percent 

(6/8) of ULP cases and 83 percent (30/36) of negotiability cases. Because the Authority

made a concerted effort to clear most of its oldest cases by the end of 2019, its 

performance in these measures reflects that it is issuing some of the oldest cases in the 

Authority’s inventory. For example, the Authority met its outer 365-day target in 92

percent (33/36) of negotiability cases, 88 percent (7/8) of ULP cases, and 84 percent (73/87) 

of arbitration cases. Further, the Authority continues to meet the statutory requirement 

to determine whether to grant review in 100 percent of representation cases within 

60 days of filing of an application for review from a Regional Director’s determination. 

Where the Authority has granted applications for review, it met its 210-day target in 75 

percent (6/8) of cases and its outer 365-day target in 88 percent (7/8) of cases. 

The Authority is also committed to decreasing its “average ages” of closed cases within 

each case type. The Authority set 2019 targets to reduce the average age in each case 

type by 5 percent. However, this target is in tension with the Authority’s focus on issuing 

the oldest cases in its inventory. Accordingly, the Authority did not hit the 5 percent 

reduction in average age for any of its four case types. But by issuing many of its oldest 

cases by the end of 2019, the Authority is positioning itself to improve its performance 

under 2020 case-processing timeliness measures.

The OALJ – also part of the Authority – met or substantially met all of its performance 

goals in 2019. Due to the continuing lack of a Presidentially nominated and Senateconfirmed General Counsel, the OALJ completed all of its remaining ULP cases and 

continued performing work for other agencies on a reimbursable basis through the ALJ 

Loan Program. In addition, due to attrition and reduction of staff of the Authority, the 

OALJ continued drafting decisions in accordance with regulations to assist the Authority 

with matters other than ULP cases.

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

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

Courts. During 2019, the Solicitor’s Office litigated numerous cases in the federal courts, 

filed briefs supporting Authority decisions, and presented oral argument before panels of 

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

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

orders. As the Authority issued many of its pending cases in 2018, the Solicitor’s Office 

experienced increasing caseloads in 2019, which is expected to continue in 2020 and 2021 

as parties seek review of adverse Authority decisions in the courts of appeals under 5 
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U.S.C. § 7123(a). The Solicitor also serves as FLRA's in-house counsel, providing legal 

advice to FLRA components on all facets of government operations, including ethics, 

FOIA, privacy, human resources, fiscal law, and the Administrative Procedure Act. It 

met all reporting and substantive deadlines under those authorities.

Office of the General Counsel

Despite not having a General Counsel or Acting General Counsel since November 17, 

2017, the OGC continued to investigate cases and deliver strong results. It met its 

strategic performance measures for the timely resolution of ULP and representation 

cases, having resolved, 88 percent (1,867/2,134) of ULP cases within 120 days of the filing 

date, and 77 percent (205/266) of representation cases within 120 days of filing. Of those 

ULP cases resolved in 2019, the OGC resolved over 360 of them through voluntary 

settlement during the investigative process. 

In both 2018 and 2019, the OGC continued to experience a downward trend in its ULP 

intake. From 2018 to 2019, ULP intake declined by 22 percent (or 625 cases). 

The Agency bases this request on an assumption that a new General Counsel will be 

nominated and confirmed in 2020. Having OGC political leadership in place will restore 

the OGC’s ability to carry out its full mission and allow it to be successful in further 

meeting its 2020 and 2021 performance goals while eliminating the backlog of cases 

pending GC action. 

Federal Service Impasses Panel

FSIP has exceeded most of its timeliness measures for assisting parties in resolving their 

negotiation impasses. Specifically, in most cases, it issued its decision to decline 

jurisdiction on cases not appropriately before the Panel within 140 days of the date that 

the parties filed their request for assistance in 90 percent (10/11) of cases. It assisted the 

parties in achieving voluntary settlement within 160 days of the date that the parties 

filed their requests for assistance in 100 percent (15/15) of cases. And it issued its final 

order within 200 days of the date that the parties filed their request for assistance in 100 

percent (21/21) of cases. 

Although in previous years, the Panel has received an average of 140 requests for 

assistance per year (averaging close to 11 new filings per month), In 2017, the Panel 

received 97 filings (an average of 8 new filings per month), 92 filings in 2018 (an average 

of 8 new filings per month), and 77 filings in 2019 (an average of 6 new filings per month). 

This downward trend is expected to continue. While the number of cases filed has 

decreased, the issues involved in the impasses have become more complex. Following the 

Administration’s May 2018 issuance of Executive Orders 13836, 13837, and 13839, the 

FSIP began to receive more impasses over ground rules for successor collective-bargaining 

agreements and successor collective-bargaining agreements. These cases tend to be 

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

changes in a personnel policy) and, the parties tend to be more entrenched in their 

positions and less willing to settle the impasse, resulting in the need for the Panel to issue 

final orders to resolve the impasse. In 2017, the Panel issued a final order on parties in 

12 cases (which was 10% of the cases filed with the Panel). In 2019, the number of cases 
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where the Panel issued a final decision was 24, approximately 31 percent of the cases filed 

that year. 

Improving the Customer Experience

FLRA speaks first through its decisions. Consistent with the PMA, the Agency will 

emphasize Improving the Customer Experience by providing more meaningful 

information to parties about case-processing timelines. For example, starting in 2019, the 

Authority is measuring case age starting from the date that the case is filed until the date 

that a decision is issued. In addition, the Agency began reporting “average ages” of closed 

cases within all FLRA components and offices, which will provide the parties with the 

average amount of time that it takes to process each case type. Making all of this 

information available to the parties will help them reach better, more informed decisions 

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

around case processing.

FLRA also provides valuable education and training tools to the Federal labormanagement-relations community in all aspects of its case law and processes. Providing 

meaningful and clear guidance on statutory rights and responsibilities so that its 

customers are knowledgeable furthers timely and efficient case processing and is an 

important function of FLRA under the Statute. FLRA delivers its educational materials 

through a variety of means, such as: in-person training sessions; web-based training 

modules; and case outlines, manuals, and subject-matter guides that are easily accessible 

on www.flra.gov. 

In 2019, FLRA, as a whole, provided 95 training sessions to over 3,000 participants. The 

Authority, the OGC, and the FSIP also provided in-person case-law updates and training 

at several nationwide, annual conferences. These sessions included presentations of 

newly prepared materials of current relevance, as well as updated materials for more 

standard sessions. The OGC consistently provided statutory training courses across the 

country.

However, these numbers are significantly lower than in prior years. For example, in 2016 

and 2017, FLRA conducted 280 and 273 training, outreach, and facilitation activities, 

respectively. In 2018, FLRA conducted only 124. Due to staffing challenges, the 

Authority limited its external training offerings in 2019 to ensure that all available staff 

was working to process cases. Similarly, the number of participants reached through 

these activities has decreased from over 8,000 in 2015 through 2017 to 4,289 in 2018 and 

4,807 in 2019. In 2021, FLRA plans to increase customer engagement by, among other 

things, offering more training sessions to parties appearing before the Authority and 

reaching more participants through newly-developed online training and greater use of 

social media. 

As stated, the Authority educates the parties, primarily, through its issued decisions, 

particularly those on previously unaddressed legal issues. To that end, many of the 

trainings that it provided in 2019 were “Case Law Updates.” The Authority has also 

focused on providing training on topics where the case law has been changing. For 

example, the Authority presented training on management rights and arbitrability. 

During 2019, the Authority began publishing case-summary “digests” to provide 

additional, easy-to-understand guidance to its customers.
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In addition, due to budget uncertainty in 2019, the OGC scaled back its provision of 

training that required FLRA-funded travel. Consistent with the 2018-2022 Strategic 

Plan, the FLRA is developing creative ways to provide educational material in new, 

innovative, and more cost-effective ways that allow for wider reach and less travel. In 

2020 and 2021, FLRA will develop training videos that anyone can easily access from the 

Agency website. FLRA is also exploring options to live stream training sessions. 

Moreover, the Authority and the OGC will continue to update online educational tools, 

including guides and manuals. 

In order to serve its customers and fulfill its statutory obligation to expedite negotiability 

appeals to the extent practicable, the Authority signed a memorandum of understanding 

(MOU) with the Federal Mediation and Conciliation Service (FMCS) creating a new pilot 

procedure to offer alternative dispute resolution opportunities at no cost to the parties for 

resolving negotiability appeals. Under its terms, FMCS is developing a unique cadre of 

mediators, some of whom have already received specialized training from the Authority, 

to assist the parties through mediation. Under the pilot program, before a negotiability 

appeal is considered by the Authority’s Members for a decision, the Authority may refer 

such appeals to FMCS, either on the Authority’s own initiative or based upon a request 

from the parties. The negotiability-appeal-mediation procedure is expected to take 

between 30 and 60 days. 

In addition, as described in detail below, FLRA’s eFiling efforts are focused on improving 

the customer experience and allowing both filers and the Agency to improve efficiency 

through paperless automation. 

Executive Branch Reform

Executive Order 13781, Comprehensive Plan for Reorganizing the Executive Branch, 

(March 13, 2017) and OMB Memorandum M-17-22, Comprehensive Plan for Reforming 

the Federal Government and Reducing the Federal Civilian Workforce,(April 12, 2017), 

provided the Agency with an opportunity to take a close look at its structure and 

operations, and to implement solutions for streamlining and reducing costs across FLRA. 

It developed reform proposals and a long-term workforce plan focused on improving the 

Agency’s efficiency, effectiveness, and accountability. Based on regional workload, flat 

budgets, increasing rental costs, and the availability of technology to improve operational 

efficiency, on February 12, 2018, the Agency announced that it would consolidate from 

seven to five regional offices, resulting in closure of the Agency’s Dallas and Boston 

Regional Offices. The Dallas Regional Office closed on September 30, 2018, followed by 

the Boston Regional Office on November 30, 2018.

Other recent reform efforts included sustaining the 25 percent across-the-board reduction 

in the Agency-wide travel and agency-wide internal, employee-development training from 

2017 through 2020. However, travel costs will increase for hearings once a GC is 

onboard. In addition, in 2021, additional costs are expected for professional development 

for FLRA staff and providing specific targeted statutory training to parties. 

With respect to employee-development training, despite budgetary limitations, FLRA has 

worked to provide its employees with relevant, mission-related training and to better 

identify training needs. For example, the Agency has implemented individual employee 

development plans for all staff, and the Agency has instituted informal “lunch and learns” 

on topics such as case law updates, FSIP, and OALJ.
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FLRA has also committed to other administrative efforts to reduce costs. Where 

appropriate, the Agency will continue to tap existing Government-wide shared-services 

solutions, like those that it already uses for payroll, financial services, and travel. It will 

continue to seek out and utilize existing Government-wide procurement solutions and 

contracting flexibilities. These include using a General Services Administration 

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

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

contracting tool to procure Westlaw legal research services more easily. 

People: Developing a Workforce for the 21st Century

The mission accomplishments cited above are particularly noteworthy because, in 2019, 

FLRA has operated with as many as 16 vacant positions. 

Guided by its new strategic plan, in 2019, FLRA began its review of Agency performancemanagement systems (both General Schedule and Senior Executive Service) and 

individual employee performance plans to ensure that they directly align with the new 

2018-2022 Strategic Plan. Revised performance standards will be implemented as part of 

a one-year pilot at the beginning of 2020.

In support of these efforts to improve performance management, the Agency is currently 

working with the Office of Personnel Management’s (OPM) to implement the USA 

Performance automated performance-management system in 2020. Automating the 

performance-management process using a tool that is compliant with all Federal 

performance-management regulations and OPM recommendations will assist Agency 

managers – and the Agency as a whole – in increasing performance accountability. 

OPM’s Federal Employee Viewpoint Survey (FEVS) provides employees an opportunity to 

influence change by submitting feedback about their work environment, agency 

leadership, and other important factors affecting morale and employee satisfaction. In 

2018, the FLRA FEVS responses declined for certain measures as compared with prior 

years. Specifically, FLRA employees identified areas for improvement involving training, 

the mission of the Agency, communication, innovation, management, and leadership. 

In response to the 2018 FEVS feedback, the Agency has enhanced its efforts to actively 

engage employees at all levels in Agency processes and to seek their opinions. For 

example, building on the Agency’s efforts in 2018 to develop an employee-driven 2018-

2022 Strategic Plan, FLRA launched several internal Strategic Plan Implementation 

Teams, which have operated throughout 2019. The teams, each of which includes both 

managers and non-managers, are:

(1) Professional Development Team

(2) Performance Communication Team

(3) Customer Engagement Team

(4) Digests Team

(5) Employee Engagement Team

The teams have focused on a variety of issues including revisions to performance plans for 

mission critical positions, improving customer engagement, and improving professional 

development within the Agency. These employee-led teams have recommended, for 
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example, new performance standards for the majority of positions in the Agency, 

completion of individual development plans by employees to identify their training needs, 

and recently recorded video presentation of educational material to be made available on 

the FLRA website. Many of the teams’ recommendations have been accepted and will be 

implemented in 2020. Further, the teams have engaged in discussions with leadership on 

how best to allocate limited training dollars for the agency. This process has allowed 

employees to be engaged in the stewardship of the Agency and to offer innovative and 

creative solutions to problems they see in the workplace or its processes. 

Consistent with OMB policy, FLRA has prepared a Workforce Fund Plan to guide the 

award program in 2020 and will develop the plan further in 2020. For fiscal year 2021, as 

directed by OMB, the Agency will increase award funding by 1 percent of non-SES/SL/ST 

salary spending. To ensure that the Workforce Fund Plan sets forth a comprehensive 

strategy to develop and foster a culture of recognition, both formal and informal, FLRA 

will review and update the plan in 2020 for use in 2021. As part of this review, FLRA 

will: identify the projected awards spending level, as a dollar amount, by component; 

align with agency strategic goals and support organizational values; address how FLRA 

will strategically spend the determined amount consistent with its broader recognition 

plan; explain how the strategic spending plan will result in improved outcomes and 

organizational performance; explain how FLRA evaluated and adjusted, as appropriate, 

the balance between rating-based awards and individual contribution awards; ensure use 

of an evidence-based approach to support issuing awards and the amount; and define how 

FLRA will determine the effectiveness of awards and recognition programs and the 

measures used to evaluate effectiveness.

IT Modernization

FLRA is continuing its ongoing efforts to expand its IT capabilities to enhance mission 

performance by improving the quality and effectiveness of its internal- and externalcustomer-facing services – including increased use of cloud-based solutions, improving its 

IT security program, and developing innovative means for enhancing employees’ ability to 

work remotely. The Agency also continues to improve its overall efficiency, as well as the 

customer-service experience, by engaging in new and innovative ways to conduct 

business, such as through electronic case filing (eFiling). In addition, the Agency has 

strategically emphasized IT modernization by implementing realistic and attainable 

equipment lifecycles. 

In 2019, FLRA continued to execute its multi-year, four-phase plan to achieve its longterm goal of implementing end-to-end electronic case files throughout the Agency and 

complying with OMB mandates. 

1. Phase 1 was implementation of upgraded eFiling 3.0. Addressing customer 

feedback, and after refining its approach, the Agency launched a more userfriendly and intuitive user interface that is built on a new, cloud-based technical 

platform that will better support the Agency’s long-term needs. This was 

completed in 2018.

2. Phase 2 is to provide a similar, more user-friendly and intuitive user interface for 

the Agency’s internal electronic Case Management System (CMS). Phase 2 also 

includes implementation of an Agency-wide Document Management System 

(DMS) – an electronic, cloud-based “filing cabinet” that provides a framework for 
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organizing digital and paper documents. The DMS also provides the necessary 

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

DMS. The Agency has already implemented the DMS, and in 2019 initiated the 

first pilot of the CMS with the Authority office. The Agency expects to complete 

development for the Office of General Counsel in FY 2020 and to fully implement 

the new CMS across all components by the end of calendar-year 2021. 

3. Phase 3 is the integration of the automated connection between eFiling, CMS, and 

DMS, which is currently underway, with completion anticipated by the end of 

2021. 

4. Phase 4 is the transition to 100 percent electronic case files throughout the 

Agency, with a goal of September 30, 2022, for completion (in advance of the 

deadline of December 31, 2022, directed by OMB). 

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

developed and with how the project is funded. As such, timelines associated with the 

four-phase plan have shifted over time, but the Agency still remains within target, and its 

overall costs are well below industry standards for similar undertakings. Further, despite 

the evolving nature of the approach, the goal and the results have remained the same: 

implementation of fully electronic case files throughout the Agency to enable the FLRA to

meet OMB requirements and 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. 

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

staff spends copying, scanning, mailing, and entering data; eliminating outdated facsimile 

service; reducing U.S. Mail costs by implementing electronic service of case-related 

documents by FLRA on the parties; reducing or eliminating courier costs for transferring 

paper case files between FLRA components; implementing a pilot program that would 

mandate FLRA parties to file all case-related documents electronically, and eventually 

mandating eFiling for all FLRA case filings. The greatest benefit will be the ability to 

redirect staff hours currently used to perform manual administrative tasks to perform 

other mission-critical functions. 

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

major technical components – email, DMS, CMS, and eFiling – are hosted in the cloud. 

The FLRA is planning to move its Video Teleconferencing (VTC) system to the cloud in 

2020 and Voice over Internet Protocol (VoIP) in 2021. Also, in 2019 the Agency continued 

to maintain its lifecycle for Agency computer hardware, completing an Agency refresh of 

all laptops and specific data center hardware. FLRA is also exploring options to 

modernize employee communication platforms. 

Reports on Outstanding Government Accountability Office and Inspector 

General Recommendations

There are no outstanding Government Accountability Office or Inspector General 

Recommendations subject to section 2(b) of the Good Accounting Obligation in 

Government Act, Pub. L. No. 115-414 (2019).
13

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, $28,395,000: 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.

2021 FUNDING REQUEST

FLRA requests $28,395,000 in 2021 to fund employee salaries and related operating expenses 

necessary to execute its mission and meet annual performance targets. The Agency’s 2021

request will fund 119 full-time equivalents (FTEs). 

(In thousands of dollars)

The requested 2021 funding level follows cost-saving measures initiated in recent years to 

increase program effectiveness, and reduce fragmentation, overlap, and duplication. 

These efforts included, among others, consolidation of the Agency’s regional-office 

structure in 2018 and 2019 – from seven regional offices to five – in order to improve 

efficiencies and reduce rent and other costs. FLRA also previously reduced the size of its 

Headquarters location by approximately 12,000 square feet, and it continues to look for 

ways to reduce rental costs annually throughout the Agency, even before its leases 

approach expiration. 
14

The Agency has undertaken a thorough evaluation and prioritization of every vacancy, 

consistent with the Administration’s goal of comprehensive Government reform and 

workforce reshaping. While the vast majority of the increased funding level will go toward 

compensating the 119 FTEs, the funding will also go toward additional training of the 

parties, an important function entrusted to FLRA under the Statute, but one which has 

diminished in 2019 as a result of the prior funding decrease. In addition, with the 

turnover of staff, resources are needed to properly train professional staff. 

The 2021 Budget Request and the Agency Performance Plan assume that there will be a 

presidentially nominated and Senate-confirmed General Counsel in place during 2020. 

Filling this position will allow for processing of the backlog of unfair-labor-practice (ULP) 

cases in which ULP-complaint recommendations and appeals are awaiting review by the 

General Counsel. This anticipates increased ULP hearing activities and increased caserelated travel costs in 2020 for the Office of the General Counsel (OGC) and the Office of 

Administrative Law Judges (OALJ). With the onboarding of a new GC, the requested FTE 

level will allow the GC to manage the increased level of work. 

CHANGE FROM 2020

The requested funding level for 2021 reflects an overall increase of $3,505.000, 

approximately 14 percent, over 2020. 

Personnel Compensation and Benefits

Personnel compensation and benefits costs continue to account for the overwhelming 

majority of its overall budget – nearly 80 percent. 
15

PROGRAM AND FINANCING SCHEDULE

(In thousands of dollars)

FY 2019 

Actual

FY 2020 

Estimate

FY 2021 

Request 

Budgetary resources:

Unobligated balance (total) $ 467 $ 1,341 $ 1,341 

Appropriation, discretionary (total) $ 26,200 $ 24,890 $ 28,395 

Spending authority from offsetting collections, discretionary (total) $ 30 $ 100 $ - 

Total budgetary resources $ 26,697 $ 26,331 $ 29,736 

Status of budgetary resources:

Direct obligations (total) $ 26,357 $ 24,890 $ 28,395 

Reimbursable obligations (total) $ 30 $ 100 $ - 

New obligations and upward adjustments (total) $ 26,387 $ 24,990 $ 28,395 

Unobligated balance, end of year $ 310 $ 1,314 $ 1,314 

Total budgetary resources $ 26,697 $ 26,304 $ 29,709 

Change in obligated balance:

Obligated balance, start of year $ 3,739 $ 3,132 $ 3,132 

Obligated balance, end of year $ 5,858 $ 3,132 $ 3,132 

Budget authority and outlays, net:

Budget authority, gross $ 26,230 $ 24,890 $ 28,395 

Outlays, gross (total) $ 24,028 $ 24,690 $ 29,748 

Offsets against gross budget authority and outlays (total) $ (48) $ (31) $ (31)

                 

 $ 18 $ 10

Budget authority, net (discretionary) $ 26,200 $ 24,890 $ 28,395 

Outlays, net (discretionary) $ 23,981 $ 24,690 $ 29,748 

Additional offsets against budget authority only (total)
16

OBJECT CLASSIFICATION SCHEDULE

(In thousands of dollars)

EMPLOYMENT SUMMARY SCHEDULE
17

AWARDS DATA SCHEDULE

(In thousands of dollars)

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 the 

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 2021 funding request includes $921,120 for the OIG, including funding to create 

an attorney/investigator position to provide mandated legal services to the IG in 

accordance with the IG Act. The funding level requested by the IG, including $10,000 for 

training and $3,030 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 2021.
18

 

September 4, 2019

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
19

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 2021:

• The aggregate budget request for the operations of the OIG is $921,120;

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

• The portion of this amount needed to support the CIGIE is $3,030. 

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 2021.

Inspector General

Federal Labor Relations Authority

 
20

ANNUAL PERFORMANCE PLAN

STRATEGIC AND PERFORMANCE-PLANNING FRAMEWORK

FLRA’s 2021 strategic performance-planning framework is based on the Agency’s 2018-

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

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

2018-2022 Strategic Plan, the Agency refined its mission statement, developed a vision 

statement, and identified Agency core values. 

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

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

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

materials, offering targeted assistance to parties with significant labor-management 

challenges, and providing training activities. Further supporting these efforts is FLRA’s 

focus on internal improvements in IT and efforts to maximize human capital. 

Through comprehensive review of its programmatic requirements under the Statute, 

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

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

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

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

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

resources, and effectively identifying staffing and training needs. 
21

FLRA Strategic Goals, Objectives and Measures

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.

a. Maintain and expand 

educational resources on 

www.flra.gov.

a. Ensure that the FLRA’s 

performance-management 

systems are synchronized 

with and support the 

Agency’s strategic goals.

b. Ensure excellence in 

investigations and clearly 

articulated written work 

products by establishing 

and surpassing 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 the 

FLRA’s technological 

capabilities to enable 

employees to deliver 

mission results more 

effectively and efficiently.

c. Maintain and expand 

our external training 

programs to enable the 

parties to better 

understand their rights 

and obligations under the 

Statute.

c. Recruit, retain, and 

develop a diverse, respected 

workforce in an 

environment that fosters 

employee input and 

satisfaction and makes the 

best use of FLRA resources.

Consistent with Government-wide efforts to improve performance and incorporate 

data-driven management decisions, FLRA engages in continuous strategic assessment of 

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

efficiently. The Agency conducts this ongoing review on a monthly basis with its 
22

automated monthly SMART report (introduced in 2019, replacing the existing 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: WE WILL ENSURE QUALITY, TIMELY, IMPARTIAL,

AND CONSISTENT INVESTIGATIVE AND DECISION-MAKING PROCESSES 

WITH DETERMINATIONS THAT ARE CLEARLY ARTICULATED.

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

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

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

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

investigations and determinations. Further, FLRA must convey those determinations 

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

in order to attain overall Agency success.

STRATEGIC OBJECTIVE 1A: ESTABLISH AND ATTEMPT TO SURPASS (1) CASEPROCESSING 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 labormanagement 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 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.
23

Authority

Arbitration Cases 2017 2018 2019 2020 Est.

2021

Est.

Cases pending, start of year 42 73 73 121 138

Exceptions filed (Intake) 103 105 135 108 127

Total caseload 145 178 208 229 265

Cases closed procedurally 16 11 15 16 16

Cases closed based on merits 56 94 72 75 75

Total cases closed (Output) 72 105 87 91 91

Cases pending, end of year 73 73 121 138 174
24

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

Results Targets

FY 2019

Goal: 247 days 261 Days

FY 2019 Reduce by 5%

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

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

FY 2020 Reduce by 5%

FY 2021 Maintain

Measure 1a-2: The percentage of arbitration cases decided within 180 days of assignment 

to an Authority Member.

Results

FY 2016 79% – (59/75)

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

assignment to an Authority Member.

Results

FY 2017 79% – (44/56)

FY 2018 38% – (36/94)

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

days of the filing of exceptions.*

Results Targets

FY 2019 37% – (32/87) FY 2019 75%

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

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

FY 2020 75%

FY 2021 75%

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

to an Authority Member.

Results

FY 2017 100% – (56/56)

FY 2018 98% – (92/94)

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

365 days of the filing of exceptions.* 

Results Targets

FY 2019 84% – (73/87) FY 2019 90%

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

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

FY 2020 90%

FY 2021 90%
25

Authority

Negotiability Cases 2017 2018 2019 2020 Est.

2021

Est.

Cases pending, start of year 27 11 23 17 40

Petitions filed (Intake) 40 43 30 69 69

Total caseload 67 54 53 86 109

Cases closed procedurally 52 25 30 41 41

Cases closed based on merits 4 6 6 5 5 

Total cases closed (Output) 56 31 36 46 46

Cases pending, end of year 11 23 17 40 63
26

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

Results Targets

FY 2019

Goal: 119 days

169 days FY 2019 Reduce by 5%

* This measure calculates case age based on the “date 

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

FY 2020 Reduce by 5%

FY 2021 Maintain

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

assignment to an Authority Member.

Results

FY 2016 75% – (3/4)

Measure 1a-5: The percentage of negotiability cases decided within 150 days of 

assignment to an Authority Member.

Results

FY 2017 75% – (3/4)

FY 2018 83% – (5/6)

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

FY 2019 83% – (30/36) FY 2019 75%

* This measure calculates case age based on the “date 

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

FY 2020 75%

FY 2021 75%

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

assignment to an Authority Member.

Results

FY 2017 100% – (4/4)

FY 2018 100% – (6/6)

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

FY 2019 92% – (33/36) FY 2019 75%

* This measure calculates case age based on the “date 

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

FY 2020 75%

FY 2021 75%
27

OALJ

ULP Cases 2017 2018 2019 2020 Est.

2021

Est.

Cases pending, start of year 52 49 1 0 30

Complaints received (Intake) 197 44 0 250 250

Total caseload 249 93 1 250 280

Settlements before hearing 176 66 0 175 195

Cases closed by decision 24 27 1 45 45

Total cases closed (Output) 200 93 1 220 240

Cases pending, end of year 49 0 0 30 40
28

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

Results Targets

FY 2019

Goal: 124 days

N/A FY 2019 Reduce by 5%

FY 2020 Reduce by 5%

FY 2021 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

FY 2016 80% – (144/181) FY 2019 80%

FY 2017 93% – (186/200) FY 2020 80%

FY 2018 77% – (72/93) FY 2021 80%

FY 2019 N/A

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

FY 2016 89% – (161/181) FY 2019 95%

FY 2017 97% – (194/200) FY 2020 95%

FY 2018 90% – (84/93) FY 2021 95%

FY 2019 N/A
29

Authority

ULP Cases 2017 2018 2019 2020 Est.

2021

Est.

Cases pending, start of year 9 8 10 6 25

Cases filed (Intake) 23 19 4 52 56

Total caseload 32 27 14 58 81

Cases closed procedurally 22 9 1 27 27

Cases closed based on merits 2 8 7 6 6

Total cases closed (Output) 24 17 8 33 33

Cases pending, end of year 8 10 6 25 48
30

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

Results Targets

FY 2019

Goal: 165 days

238 days FY 2019 Reduce by 5%

* This measure calculates case age based on the “date 

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

FY 2020 Reduce by 5%

FY 2021 Maintain

Measure 1a-11: The percentage of ULP cases decided within 180 days of assignment to an 

Authority Member.

Results

FY 2016 89% – (8/9)

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

Authority Member.

Results

FY 2017 50% – (1/2)

FY 2018 50% – (4/8)

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

issuance of an OALJ decision.* 

Results Targets

FY 2019 75% – (6/8) FY 2019 75%

* This measure calculates case age based on the “date 

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

FY 2020 75%

FY 2021 75%

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

Authority Member.

Results

FY 2017 100% – (2/2)

FY 2018 100% – (8/8)

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

issuance of an OALJ decision.*

Results Targets

FY 2019 88% – (7/8) FY 2019 90%

* This measure calculates case age based on the “date 

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

FY 2020 90%

FY 2021 90%
31

Authority

Representation Cases 2017 2018 2019 2020 Est.

2021

Est.

Cases pending, start of year 0 6 5 2 2

Applications for review (Intake) 12 6 5 8 8

Total caseload 12 12 10 10 10

Cases closed procedurally 1 0 1 1 1

Cases closed based on merits 5 7 7 7 7

Total cases closed (Output) 6 7 8 8 8

Cases pending, end of year 6 5 2 2 2
32

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

Results Targets

FY 2019

Goal: 107 days

194 days FY 2019 Reduce by 5%

* This measure calculates case age based on the “date 

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

FY 2020 Reduce by 5%

FY 2021 Maintain

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

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

Results Targets

FY 2015 100% – (21/21) FY 2019 100%

FY 2016 100% – (8/8) FY 2020 100%

FY 2017 100% – (6/6) FY 2021 100%

FY 2018 100% – (7/7)

FY 2019 100% – (8/8)

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

FY 2019 75% – (6/8) FY 2019 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. 

FY 2020 75%

FY 2021 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

FY 2017 100% – (6/6) FY 2019 95%

FY 2018 100% – (7/7) FY 2020 95%

FY 2019 88% – (7/8) FY 2021 95%
33

OGC

ULP Cases 2017 2018 2019 2020 Est.

2021

Est.

Cases pending, start of year 1,133 882 682 783 1,880

Charges filed (Intake) 3,655 2,860 2,235 3,338 3,415

Total caseload 4,988 3,742 2,917 4,121 5,295

Charges withdrawn/settled 3,130 2,343 1,755 1,571 2,047

Charges dismissed 786 674 379 370 613

Complaints issued 190 43 0 300 175

Total cases closed (Output) 4,106 3,060 2,134 2,241 2,835

Cases pending, end of year 882 682 783 1,880 2,460

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

after November 16, 2017. Those cases are currently held in abeyance. The estimates for 2020 and 2021 

assume FLRA will have a General Counsel in 2020. 
34

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

Results Targets

FY 2019

Goal: 99 Days

68 days FY 2019 Reduce by 5%

FY 2020 Reduce by 5%

FY 2021 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

FY 2016 71% – (2,973/4,190) FY 2019 70%

FY 2017 73% – (2,984/4,106) FY 2020 70%

FY 2018 88% – (2,682/3,060) FY 2021 70%

FY 2019 88% - (1,867/2,134)

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

FY 2016 95% – (3,963/4,190) FY 2019 95%

FY 2017 95% – (3,883/4,106) FY 2020 95%

FY 2018 99% – (3,039/3,060) FY 2021 95%

FY 2019 99% - (2,114/2,134)
35

OGC

ULP Appeals 2017 2018 2019 2020 Est.

2021

Est.

Appeals pending, start of year 26 22 181 306 209

Appeals filed (Intake) 192 180 125 203 215

Total caseload 218 202 306 509 424

Appeals closed (Output) 196 21* 0* 300 300

Appeals pending, end of year 22 181 306 209 124

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

2017. Those cases are currently held in abeyance. The estimates for 2020 and 2021 assume FLRA will have a 

General Counsel in 2020. 
36

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

Results Targets

FY 2019

Goal: 45 days

N/A FY 2019 Reduce by 5%

FY 2020 Reduce by 5%

FY 2021 Maintain

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

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

Results Targets

FY 2016 100% – (245/245) FY 2019 95%

FY 2017 96% – (188/196) FY 2020 95%

FY 2018 100% – (21/21) FY 2021 95%

FY 2019 N/A

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

FY 2016 100% – (245/245) FY 2019 100%

FY 2017 100% – (196/196) FY 2020 100%

FY 2018 100% - (21/21) FY 2021 100%

FY 2019 N/A
37

OGC

Representation Cases 2017 2018 2019 2020 Est.

2021

Est.

Cases pending, start of year 112 58 64 47 89

Petitions filed (Intake) 208 245 249 252 243

Total caseload 320 303 313 299 332

Petitions withdrawn 130 110 126 110 115

Cases closed based on merits 132 129 140 100 127

Total cases closed (Output) 262 239 266 210 242

Cases pending, end of year 58 64 47 89 90
38

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

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

Results Targets

FY 2019

Goal: 114 days

92 days FY 2019 Reduce by 5%

FY 2020 Reduce by 5%

FY 2021 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

FY 2016 73% – (163/223) FY 2019 70%

FY 2017 68% – (179/262) FY 2020 70%

FY 2018 82% – (195/239) FY 2021 70%

FY 2019 77% - (205/266) 

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

FY 2016 98% (219/223) FY 2019 95%

FY 2017 95% (250/262) FY 2020 95%

FY 2018 100% (348/349 FY 2021 95%

FY 2019 99% (259/266) 
39

FSIP

Impasses

2017 2018 2019 2020

Est.

2021

Est.

Cases pending, start of year 42 17 23 28 28

Impasses filed (Intake) 97 92 77 80 80

Total caseload 139 109 100 108 108

Panel Decision 12 21 24 -- --

Panel declined jurisdiction 22 11 11 -- --

Settled with Panel assistance 24 7 9 -- --

Voluntarily withdrawn 64 47 28 -- --

Cases closed total (Output) 122 86 72 80 80

Cases pending, end of year 17 23 28 28 28
40

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

declines jurisdiction.

Results Targets

FY 2019

Goal: 90 days

95 days (11 cases) FY 2019 Reduce by 5%

FY 2020 Reduce by 5%

FY 2021 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

FY 2016 100% – (9/9) FY 2019 90%

FY 2017 95% – (21/22) FY 2020 90%

FY 2018 100% – (11/11) FY 2021 90%

FY 2019 90% - (10/11)

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

FY 2016 100% – (22/22) FY 2019 90%

FY 2017 93% – (22/24) FY 2020 90%

FY 2018 71% – (5/7) FY 2021 90%

FY 2019 100% – (15/15)

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

through final action.

Results Targets

FY 2019

Goal: 146 days

140 days (24 cases) FY 2019 Reduce by 5%

FY 2020 Reduce by 5%

FY 2021 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

FY 2016 88% – (21/24) FY 2019 80%

FY 2017 77% – (9/12) FY 2020 80%

FY 2018 100% – (21/21) FY 2021 80%

FY 2019 100% – (24/24)
41

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

an institution. 

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

written work products.

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

Results

FY 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.

Targets

FY 2019  Complete development of Agency-wide quality assessment 

tools and finalize pilot implementation. 

FY 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. 

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

measured by the tools.
42

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

FY 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.

Targets

FY 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. 

FY 2020  Target ways to improve the effectiveness of internal

educational resources based on survey results.

 Show a 10% increase in the effectiveness of internal 

educational resources, as measured by internal survey 

instruments or other measures developed in FY 2019. 

FY 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.
43

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

abilities. 

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

Results

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

impartiality.

Targets

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

parties’ perceptions of the FLRA’s impartiality. 

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

impartiality year over year.

 Pilot external survey. 

FY 2021  Deliver external survey electronically with every decision 

issued by the Agency.
44

STRATEGIC GOAL 2: WE WILL DEVELOP AND PROVIDE TOOLS AND 

RESOURCES TO ENABLE THE PARTIES TO PREVENT OR MORE 

EFFECTIVELY AND EFFICIENTLY RESOLVE THEIR LABOR-RELATIONS 

DISPUTES AND IMPROVE THEIR LABOR-MANAGEMENT RELATIONSHIPS.

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

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

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

rights and facilitating stable labor-management relationships while advancing an 

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

determinations and 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.

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 the 

FLRA website.

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

FLRA website.

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

on the FLRA website.
45

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

Results

FY 2019  Began publishing digests on a quarterly basis.

 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.

Targets

FY 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. 

FY 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. 

FY 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.

STRATEGIC OBJECTIVE 2B: IDENTIFY AND OFFER TARGETED ASSISTANCE TO PARTIES 

WITH SIGNIFICANT LABOR-MANAGEMENT CHALLENGES.

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

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

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

Government by assisting parties in addressing their disputes without necessarily 

resorting to formal filings. 

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

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

signed a memorandum of understanding (MOU) with the Federal Mediation and 

Conciliation Service (FMCS) creating a new pilot procedure to offer alternative dispute 

resolution opportunities at no cost to the parties. Under its terms, the Authority will 

train a unique cadre of FMCS mediators so that they may assist the parties in the 
46

resolution of negotiability appeals through mediation. Under the pilot program, before a 

negotiability appeal is considered by the Authority’s Members for a decision, the 

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

based upon a request from the parties. The negotiability-appeal-mediation procedure is 

expected to take between 30 and 60 days. The Authority anticipates that this will reduce 

case-processing time in negotiability appeals as well as provide opportunities for parties 

to expeditiously resolve appropriate negotiability disputes without the need for a formal 

Authority decision. 

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 30 training sessions to more than 25 federal agencies and

labor organizations in 2019. 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.
47

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

targeted-assistance program and related procedures. 

Results

FY 2019  Collaborated with FMCS on a pilot program to offer alternative 

dispute resolution in appropriate negotiability disputes.

 Addressed specific requests of parties for targeted training.

Targets

FY 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. 

FY 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 FY 2019.

 Make necessary refinements and improvements based on 

customer feedback. 

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

metrics established in FY 2019. 

FY 2021  Evaluate the effectiveness of the FMCS mediation pilot program 

using metrics established in FY 2020.

 Continue to evaluate the effectiveness of the targeted-assistance 

program.

STRATEGIC OBJECTIVE 2C: MAINTAIN AND EXPAND OUR EXTERNAL TRAINING

PROGRAMS TO ENABLE THE PARTIES TO BETTER UNDERSTAND THEIR RIGHTS AND 

OBLIGATIONS UNDER THE STATUTE.

Agency components have traditionally provided training on statutory principles governing 

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

Providing such external training to federal agencies and labor organizations regarding 

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

protecting rights and facilitating stable labor-management relationships while advancing 

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

and, where possible, expand these external training programs.
48

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 2b-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

FY 2016 280

FY 2017 273

FY 2018 100

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

Results Targets

FY 2019 95 FY 2019 50

FY 2020 50

FY 2021 50

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

facilitation activities. 

Results

FY 2016 8,440

FY 2017 8,122

FY 2018 2,574

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

Results Targets

FY 2019 4,807 FY 2019 2,500

FY 2020 2,500

FY 2021 2,500
49

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

that they received. 

Results Targets

FY 2019 Evaluations in 

development

FY 2019 Develop evaluations. 

FY 2020 80% of participants rate the 

training as effective or highly 

effective

FY 2021 80% of participants rate the 

training as effective or highly 

effective

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

filing and processing FLRA cases. 

Results Targets

FY 2019 72 FY 2019 40

FY 2020 40

FY 2021 FLRA will 

discontinue this 

measure; covered 

by statutory 

training

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

for filing and processing FLRA cases. 

Results Targets

FY 2019 3,082 FY 2019 2,000

FY 2020 2,000

FY 2021 FLRA will 

discontinue this 

measure; covered 

by statutory 

training

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

FY 2019 Evaluations in 

development

FY 2019 Develop evaluations. 

FY 2020 80% of participants rate the 

training as effective or highly 

effective 

FY 2021 FLRA will discontinue this 

measure; covered by statutory 

training
50

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

developed and implemented. 

Results Targets

FY 2019 5 FY 2019 5

FY 2020 7

FY 2021 10

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

Results Targets

FY 2019 In Development FY 2019 Develop evaluations.

FY 2020 80% of participants rate the 

training as effective or highly 

effective 

FY 2021 80% of participants rate the 

training as effective or highly 

effective
51

STRATEGIC GOAL 3: WE WILL MANAGE OUR RESOURCES EFFECTIVELY 

AND EFFICIENTLY, AND RECOGNIZE THAT OUR DEDICATED WORKFORCE 

IS CRITICAL TO THE RESOLUTION OF LABOR-RELATIONS DISPUTES.

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

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

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

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

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

experienced professionals.

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

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

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

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

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

organizational goals, and that the Agency appropriately recognizes employee 

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

employee growth, development, and innovation. 

STRATEGIC OBJECTIVE 3A: ENSURE THAT THE FLRA’S PERFORMANCE-MANAGEMENT 

SYSTEMS ARE SYNCHRONIZED WITH AND SUPPORT THE AGENCY’S STRATEGIC GOALS.

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

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

well as the contributions of the Agency’s components and individual employees. To do 

this, employee performance-management targets will be adapted to support Agency goals. 

This will help ensure that the evaluation of FLRA employees will include consideration of 

how well they assist the Agency to achieve its strategic and performance goals. 

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

achieving this strategic plan. 

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

individual achievement contributes to achievement of Agency priorities and successful 

implementation of FLRA strategic goals. 

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

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

the FLRA’s strategic goals.
52

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

plans with current Strategic Plan. 

Results

FY 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. 

Targets

FY 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. 

FY 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.

 Implement automated employee performance assessment system 

to streamline performance management process and utilize 

existing technologies.

FY 2021  Evaluate pilot and revise performance plans as appropriate.

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

overall Agency strategic goals. 

Results

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

provided through FEVS.

Targets

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

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

understand how their individual achievements contribute to Agency 

priorities and successful implementation of FLRA strategic goals. 

(E.g., FEVS Question #12, “I know how my work relates to the 

agency’s goals and priorities”; FEVS Question #16, “I am held 

responsible for achieving results.”)

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

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

FY 2021 FLRA will continue to review and analyze most recent FEVS results 

and discontinue this measure.
53

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

rewards that they receive and their individual contributions towards achieving the 

FLRA’s strategic goals.

Results

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

provided through FEVS.

Targets

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

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

recognition and rewards relate to their contribution toward 

achievement of FLRA strategic goals. (E.g., FEVS Question #24, “In 

my work unit, differences in performance are recognized in a 

meaningful way”; FEVS Question #25, “Awards in my work unit 

depend on how well employees perform their jobs”; FEVS Question 

#32, “Creativity and innovation are rewarded.”)

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

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

FY 2021 FLRA will continue to review and analyze most recent FEVS results 

and discontinue this measure.
54

STRATEGIC OBJECTIVE 3B: CONTINUE TO EXPAND THE FLRA’S TECHNOLOGICAL 

CAPABILITIES TO ENABLE EMPLOYEES TO DELIVER MISSION RESULTS MORE 

EFFECTIVELY AND EFFICIENTLY.

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

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

efficiencies. For example, the Agency has connected all FLRA components in ways that 

improve internal communication, and FLRA staff works more efficiently by using a cloudbased Document Management System that allows for simplified document management 

and internal collaboration. 

The Agency implemented a new and improved version of its eFiling system in FY 2018 

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. The Agency is currently using the same 

software and agile methodology to develop a more user-friendly electronic Case

Management System. 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, FLRA continues to enhance and leverage these 

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

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

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

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

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

capability throughout the Agency.

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

most effective use of the FLRA’s electronic systems.

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

the customer experience.
55

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

Results

FY 2016  22% of cases eFiled Agency-wide.

FY 2017  35% of cases eFiled Agency-wide. 

FY 2018  35% of cases eFiled Agency-wide.

FY 2019  46% of cases eFiled Agency-wide.

 Authority and FSIP exceeded target of 10% increase.

 80% of case eFiled in the Authority; 78 % in FSIP

Targets

FY 2019  50% of cases eFiled Agency-wide.

 10% increase in eFiling in each component – the OGC, the Authority, 

and the FSIP.

 Amend FLRA’s regulations to eliminate the use of facsimile service 

for case filings throughout the Agency.

FY 2020  75% of cases eFiled Agency-wide.

 Critically review and revise FLRA regulations to modernize filing 

requirements. 

 Pilot mandatory eFiling in at least one Regional Office.

FY 2021  Expand mandatory eFiling pilot to all components.

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

Results

FY 2016

With the merger of the eFiling and Case Management System (CMS)

applications complete, and the bridge between the two systems in place to 

support end-to-end electronic case-processing capability, enhanced the 

available features for the integration of the eFiling and CMS 

applications. eFiled cases are routinely automatically entered into the 

CMS. Neared completion of an improved eFiling user interface (eFiling 

2.0) to make the application more user-friendly and intuitive. Began 

efforts to implement a Document Management System, which is a critical 

step in accomplishing the FLRA’s multi-year electronic-case-file plan.

FY 2017

Deployed an Agency-wide, cloud-based DMS, which replaced the existing 

network shares with an integrated document and email communications 

system that will facilitate document sharing and electronic caseprocessing initiatives. Adopted a new, more cost-effective approach to 

achieving end-to-end electronic case files. Using agile methodology and 

open-source code, and responding to user feedback, completed initial 

development of a brand new, user-friendly eFiling application (eFiling 

3.0) with a Ruby on Rails user interface and a Postgres backend database 

that is housed in Amazon Web Services – a cloud-based solution. The 

new application will be launched in 2018 once final testing and additional 

enhancements are completed. Began modernizing the infrastructure of 

the Agency’s electronic CMS and eFiling by transitioning to a new cloudbased, backend product – Postgres database housed in Amazon Web 

Services – that will allow for a more user friendly and complete 

integration of the CMS, the eFiling system, and the DMS. 
56

FY 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 endto-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.

FY 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.

Targets

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

FLRA component. 

FY 2020 Develop and implement the new and improved CMS for the OGC.

FY 2021 Develop and implement the new and improved CMS in all remaining 

components/offices. Implement end-to-end electronic case files 

throughout the Agency.

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

Results

FY 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.

Targets

FY 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.

FY 2020  Maintain or improve positive responses to internal and external 

survey instruments.

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

FY 2021  Maintain or improve positive responses to internal and external 

survey instruments.

 Adopt suggested enhancements to the eFiling System, as appropriate. 
57

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

the Agency’s IT modernization efforts. 

Results

FY 2019  Developed and administered internal surveys to assess how 

FLRA employees perceive the effectiveness of the Agency’s IT 

modernization efforts.

 Evaluated survey results.

Targets

FY 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.

FY 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. 

FY 2021  Annually distribute internal customer satisfaction survey and 

continue to receive point of service surveys.
58

STRATEGIC OBJECTIVE 3C: RECRUIT, RETAIN, AND DEVELOP A DIVERSE, RESPECTED 

WORKFORCE IN AN ENVIRONMENT THAT FOSTERS EMPLOYEE INPUT AND SATISFACTION 

AND MAKES THE BEST USE OF FLRA RESOURCES.

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

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

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

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

to assess the skills and professional education/training needs of its workforce, and it will 

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

will provide opportunities for experienced employees to share their institutional 

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

focus on 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: The FLRA workforce expresses a stable and improving level of 

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

problem-solving occurs. 

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

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

work-life balance. 

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

Results

FY 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.

Targets

FY 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 
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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.

FY 2020  Improve time-to-hire metrics based on results of FY 2019 assessment.

 Meet or exceed Government-wide standards for diversity and 

Schedule A hiring. 

FY 2021  Maintain a diverse and respected workforce through targeted 

recruitment.

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

New measure FY 2016.

Results

FY 2017

 Managers assessed employees’ developmental needs and provided at 

least one targeted developmental opportunity to each, many of those 

in-house (e.g., details, workgroups, and special projects).

 In the 2017 FEVS, had 55 identified strengths (items with 65 percent 

or higher positive ratings) and no identified challenges (items with 

35 percent or higher negative ratings). Continued to rank in the top 

ten among small agencies (those with 100-999 employees) in two 

important indices – Employee Engagement and New IQ – with #6 and 

#5 rankings, respectively. 

 78 percent of FLRA employees responded positively to the OPM FEVS 

question “supervisors in my work unit support employee development” 

(Q. 47), which is 5 percent above the small-agency score of 73 percent, 

and 10 percent above the Government-wide score of 68 percent. 

FY 2018

 Offered cross-component details to provide employees with training 

and developmental experiences that will enhance their skills and 

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

 Managers assessed annually employees on their developmental needs 

and provided appropriate training and developmental opportunities. 

 Maintained sustained growth of positive responses to the OPM FEVS 

question “supervisors in my work unit support employee development” 

(Q. 47). 

FY 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.

Targets

FY 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). 
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 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.”

FY 2020

 Enhance and continue to use those nontraditional resources for 

employee education and development that were found to be most 

successful. 

 Show a 10% increase in satisfaction with nontraditional methods, as 

measured by surveys or other measures developed in 2019. 

 Maintain sustained growth of positive responses to FEVS Question 

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

FY 2021  FLRA will discontinue this measure because it is incorporated in 

Measure 1b-2.

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

New measure FY 2019.

Results

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

provided through FEVS.

Targets

FY 2019

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

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

FLRA employees: are diverse, are respected, and demonstrate 

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

FEVS Question #29 – “The workforce has the job-relevant knowledge 

and skills necessary to accomplish organizational goals.”)

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

external respondents perceive that FLRA employees: are diverse, are 

respected, and demonstrate expertise in Federal sector labormanagement relations. 

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

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

FY 2021

 FLRA will discontinue this measure regarding internal surveys

because it will be measured through FEVS.

 FLRA will discontinue this measure regarding external surveys 

because it is incorporated in Measure 1b-3.

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

New measure FY 2019.

Results

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

provided through FEVS.

Targets
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FY 2019

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

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

minimal gaps exist in succession planning (e.g., FEVS Question #68 –

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

your organization?”) 

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

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

FY 2021  FLRA will discontinue this measure. This will be measured through 

FEVS.

Measure 3c-5: Overall employee job satisfaction. 

New measure FY 2019.

Results

FY 2019

 FLRA formed an employee engagement Team and began conducting 

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

satisfaction.

Targets

FY 2019

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

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

FLRA employees: are diverse, are respected, and demonstrate 

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

Global Satisfaction Index; FEVS Question #69 – “Considering 

everything, how satisfied are you with your job?”) 

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

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

FY 2021  Maintain or improve positive responses to relevant questions in 

FEVS.

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

occurs. 

New measure FY 2019.

Results

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

provided through FEVS.

Targets

FY 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. 

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

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

FY 2021  FLRA will continue to review and analyze most recent FEVS results 

and discontinue this measure.
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Measure 3c-7: Internal perceptions about use of technology to promote employee 

efficiency and work-life balance. 

New measure FY 2019.

Results

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

through FEVS.

Targets

FY 2019

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

instruments (e.g., FEVS), to assess internal perceptions about the use of 

technology to promote efficiency and work-life balance (e.g., FEVS 

Question #42 – “My supervisor supports my need to balance work and 

other life issues.”)

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

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

FY 2021 FLRA will continue to review and analyze most recent FEVS results and 

discontinue this measure.
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1

U.S. FEDERAL LABOR RELATIONS AUTHORITY

1400 K Street, N.W.

Washington, DC 20424

www.flra.gov