A Message from FMCS Director Allison Beck

Annual Report FY 2015

Summarizing the achievements of FMCS in Fiscal Year 2015 requires only three 

words: “Securing the Future.” Early in 2015, FMCS began the serious work of ensuring that the Agency is a model of government effi ciency, integrity, employee engagement, and customer service. With the last in-depth examination of Agency structure, 

management, and services occurring nearly 20 years ago, FMCS started the year by 

announcing a new initiative called “Securing the Future of FMCS Together” to engage 

all employees in mapping a path forward. The overarching goal of the initiative is 

to ensure that FMCS meets the highest standards of integrity and operational excellence and that it embraces a culture of innovation to fulfi ll the evolving needs of 

its customers. In collaboration with Agency mediators, managers, and support staff, 

FMCS identifi ed and announced the following overarching priorities:

• Ensure the continuing value and relevance of Agency services;

• Position the Agency for the future, both internally and externally;

• Reinforce a culture of integrity and compliance; and

• Foster an atmosphere of respect, engagement, inclusion, and innovation.

These became its organizational guideposts as FMCS faced key challenges arising from new technologies, evolving workplace issues, and contentious labor-management relations. To “Secure the Future” of FMCS—in other words, to prepare the 

Agency to address the workplace conflicts and collective bargaining disputes of the 

Internet-enabled 21st century—its agenda for FY 2015 was to upgrade and modernize outdated or obsolete FMCS technology, prepare its mediators to better address the disputes of today’s on-demand, “Twitterized” workplaces, and better utilize the latest knowledge and most informed dispute resolution training and techniques to 

assist labor-management customers in conflict and crisis.

At the nation’s bargaining tables this past fi scal year, employers looked to technology for cost-savings, and unions made 

workforce job security a priority issue. The complex issue of health care and the cost of benefi ts remained a major concern 

for labor and management. In addition, unions sought to gain a share of the prosperity reaped by many employers who 

survived and then succeeded, in part thanks to contract concessions granted by unions in 2008 to 2009, during the depths 

of the Great Recession. Fiscal year 2015 for FMCS was marked by major negotiations in transportation, notably U.S. west 

coast ports and trucking; in energy, specifi cally petroleum refi neries and oil facilities; in the health care industry, specifi cally 

Kaiser Permanente and a coalition of unions representing 100,000 health care workers; in telecommunications, specifi cally 

key negotiations affecting the Northeast and Southern United States; and in the auto industry, specifi cally the Detroit big-three 

auto manufacturers.

If FY 2015 was a year of challenges for FMCS in improving internal operations and in achieving settlements at the nation’s bargaining tables, it was also a year of many accomplishments in meeting these challenges. During the year, FMCS confronted 

technological challenges by embracing and implementing new technologies to better train and communicate with customers 

and Agency stakeholders as well as other key audiences. By leveraging new technologies in program training, FMCS was 

able to develop and implement what the Agency calls its “Virtual Academy,” which uses on-demand webinars to allow FMCS 

mediators to sharpen their skills, develop expertise in complex bargaining areas, and share success stories and experience 

with colleagues. 

2 FMCS FY 2015 ANNUAL REPORT
Again leveraging new training and communications technology, FMCS has made available new training for external audiences 

of labor and management that address new workplace issues and complex bargaining topics, emphasizing joint problem 

solving and best practices for working together for mutual benefi t. In addition, technology has expanded the reach of FMCS 

in better informing and educating the national labor and management community about the benefi ts of FMCS mediation 

services and alternative dispute resolution in avoiding or mitigating the costly consequences of economically disruptive workplace conflicts.

While listing the many FMCS accomplishments of FY 2015, it must be said that none could have been achieved without a 

committed, highly professional and dedicated work force. Although FMCS is a small agency, its record of achievement 

belies its size. Perhaps the proudest moment of recognition for the year came when FMCS was ranked again (for the third 

time in a decade) as a best place to work in the Federal government by the Partnership for Public Service, and rated number 

one among Federal small agencies.

Analyzing results of the employee survey, the Partnership also designated FMCS as one of the “most innovative” Federal 

agencies, rating us among the government’s top performers for fostering innovation and motivating employees to develop 

new ideas on the job. Although the Agency is gratifi ed by the recognition, FMCS continues to mine the results of employee 

surveys to identify areas for improvement. Analysis of previous years’ survey results has prompted ongoing initiatives related

to improving employee performance evaluation systems and encouraging appropriate utilization of telework.

Also in FY 2015, FMCS working groups looked at negotiated rulemaking processes and at generational differences in the 

workplace. Their work produced valuable materials for use by FMCS mediators. Other working groups reviewed labor dispute 

resolution practices for symphony orchestras and opera companies and looked at collective bargaining in the health care 

industry. FMCS also has a group studying collective bargaining issues arising from health care benefi ts. Meanwhile, other 

working groups have been assigned to recommend FMCS responses on subjects such as Federal sector bargaining, costing 

collective bargaining contracts, and facilitating multi-party public policy disputes.

Concerted efforts during the year produced numerous opportunities for FMCS mediators to share “best practices” among their 

colleagues. Headquarters and fi eld staff provided maximum support to fi eld mediators with resources, specialized training 

and technological tools—all with the goal of enabling FMCS to deliver high quality, state-of-the art, professional programs and

services to current and future customers. The emphasis was on information and knowledge sharing due to the large number 

of FMCS mediator retirements for a third straight year. To mitigate or avert any loss of institutional know-how that would 

come with a wave of retirements, FMCS implemented an innovative “flash mentoring” program that was used successfully 

at several regional staff meetings. Defi ned as a one-time meeting or discussion that enables an individual to learn and seek 

guidance from a more experienced person who can pass on relevant knowledge and experience, flash mentoring provides a 

valuable learning opportunity while requiring a limited commitment of time and resources from the mentors. As implemented 

by FMCS at regional meetings, newly hired mediators during round-table conversations quizzed senior mediators about best 

practices in different service delivery areas. These quizzes and follow-up discussions provided the “mentors”—FMCS senior 

mediators—with new ideas as well.

Perhaps the proudest moment of recognition for the year came 

when FMCS was ranked again (for the third time in a decade) as 

a best place to work in the Federal government by the 

Partnership for Public Service, and rated number one among 

Federal small agencies.

3 FMCS FY 2015 ANNUAL REPORT
Sharing ideas, information and knowledge was the foundation for FMCS’s “employee engagement” initiative throughout FY 2015. Employee engagement is another element of 

FMCS strategy to improve retention and performance and to create an enhanced organizational culture. When employees are engaged, they are committed to their organization’s 

goals and values, motivated to contribute to organizational success, and are simultaneously 

able to enhance their own sense of well-being. To maintain its comparatively high level of 

engagement, as compared with other similarly sized agencies, FMCS encouraged diverse viewpoints, feedback and innovation and practiced open communications and transparency. Implementation of these organizational values was accomplished by, among other things: regular communications from the Director; daily internal and external news roundups; regular 

newsletters featuring up-to-date information about signifi cant cases and training programs; regular meetings between the 

Agency Director, managers, and staff, instituting monthly meetings with national offi ce managers to discuss upcoming needs, 

goals, action plans and deliverables; providing fi eld directors with opportunities for regular information exchange and collaboration; and reinvigorating the FMCS labor-management forum to constructively engage the Agency’s unionized workforce on 

a regular basis.

The Agency’s re-energized headquarters labor-management forum was fully involved in pre-decisional involvement discussions throughout 2015. These discussions were particularly important due to the mandatory relocation of the FMCS national 

offi ce scheduled November 2016. As a result of a positive relationship with its bargaining unit, upon completion of the 

Agency’s relocation, FMCS will have reduced its Agency footprint, improved its work flow and processes, and adopted new 

and more effi cient space design and service delivery.

In 2015, FMCS saw that even the best labor-management relationship can be challenged when negotiation involves the kinds 

of multiple and complex issues currently facing most bargaining 

partners. Thus, the work of FMCS is as essential to the success 

of the U.S. economy as it has ever been. This reality was powerfully demonstrated throughout FY 2015 by a number of high profi le negotiations and disputes for which the parties jointly 

requested FMCS mediation services. During a challenging year marked by national labor-management disputes of signifi cant 

scope and economic impact, FMCS mediators stepped into key roles as peacemakers and as sources of expert knowledge 

for labor and management.

Employee 

Engagement

In FY 2015, FMCS mediators were actively involved in more 

than 3,700 collective bargaining contract negotiations in 

every major industry throughout the United States.

Effectively Managing 

Negotiating Challenges

4 FMCS FY 2015 ANNUAL REPORT
The following are brief summaries of FMCS work in major cases and activities during fi scal 2015:

Atlanta Symphony Orchestra Players' Association (ASOPA), the Atlanta Symphony management and the Woodruff Arts 

Center. Following the second lockout of musicians in two years, the agreement reached by the parties helped ensure the 

continuing viability of one of South’s premier cultural institutions.

International Longshore and Warehouse Union (ILWU) and the Pacifi c Maritime Association (PMA). Following nearly six 

weeks of intensive negotiations with the FMCS top dispute mediator, and the 11th hour assistance of Secretary of Labor 

Thomas Perez, Secretary of Commerce Penny Pritzker, and Los Angeles Mayor Eric Garcetti, a complete shutdown of West 

Coast shipping operations was avoided. Analysts had predicted that a 10-day shutdown of the West Coast ports would have 

cost the U.S. economy $2.1 billion a day.

Major League Soccer (MLS) and the Major League Soccer Players Union. With assistance from FMCS, a new 5-season 

collective bargaining agreement “will provide a platform for our players, ownership and management to work together to help 

build Major League Soccer into one of the great soccer leagues in the world," stated MLS Commissioner Don Garber.

FairPoint Communications, Inc., the International Brotherhood of Electrical Workers (IBEW) and the Communications Workers of America (CWA). An 18-week work stoppage impacting telecommunications services and delivery in the northeastern 

United States was successfully concluded when the parties resumed bargaining at FMCS Headquarters in Washington, DC 

with FMCS leadership.

National Nurses United (NNU) and the University of Chicago Medical Center (UCMC). With FMCS assistance, issues surrounding the use of ratios for staffi ng, team leads, charge nurses, elimination of rotation positions and other staffi ng concerns, 

along with Ebola treatment, union access, and many economic issues were ultimately resolved in a fi nal, full day of bargaining 

that lasted until early the next morning.

Kaiser Permanente and the Coalition of Kaiser Permanent Unions. A team of FMCS mediators helped the parties reach 

agreement in the largest private-sector contract talks in the United States in 2015. The three-year, national contract covering 

105,000 Kaiser Permanente health care workers used an interest based bargaining model to develop new quality, safety and 

affordability standards.

United Steelworkers (USW) and U.S. Oil Facilities. For the fi rst time in 35 years, negotiations broke down between these 

parties and oil workers from coast to coast went on strike in February 2015. After agreement on national issues was reached, 

local negotiations faltered and work stoppages continued at a number of locations. FMCS mediators assisted in the settlement of all these disputes over several months.

NY State Nurses Association (NYSNA) and NYC Hospital Alliance. A team of senior FMCS mediators helped the parties 

avoid what would have been the largest nurses' strike in New York City history.

Consolidated Nuclear Security (CNS) / Pantex and the Amarillo Metal Trades Council. Pantex is the nation’s primary facility 

responsible for production and maintenance of the U.S. nuclear warhead arsenal. Senior FMCS mediators helped the parties 

through lengthy and diffi cult talks until they reached agreement.

5 FMCS FY 2015 ANNUAL REPORT
While the Agency’s fi rst priority must 

always be to prevent or promptly resolve labor disputes that could have an 

immediate, adverse impact on the U.S. 

economy, FMCS experience demonstrates the enormous value of training 

parties in the tools and techniques of collaboration and joint problem-solving well in advance of any contract dispute. In the

private, public, and Federal sectors, FMCS offers a wide range of programs designed to prevent workplace disputes and improve labor-management relationships by helping the parties develop collaborative problem-solving approaches for managing conflict. Refi ned over decades of hands-on dispute resolution experience, the FMCS labor relations model encourages 

an ongoing, joint problem-solving approach characterized by open communications, respect, trust, and transparency.

In the private sector, this approach was best demonstrated in FY 2015 by a specialized program FMCS delivered for the 

United Auto Workers (UAW) and the Ford Motor Company (Ford) national negotiating committee. The UAW and Ford had 

previously changed their approach to labor relations and bargaining partly because of the devastating impact of foreign 

competition on Ford products in the early part of this century. As a result, the company not only survived but even prospered 

following the Great Recession in large part because of the problem-solving, collaborative relationship the parties had spent 

years cultivating.

In anticipation of major contract negotiations in the summer of 2015 and high internal expectations resulting from the Company’s recovery, the UAW and Ford jointly approached FMCS to train their combined company-wide negotiations committee at a 

pre-bargaining conference, nine months before contract expiration. Both sides recognized that the 2015 round of bargaining 

could be especially contentious if their leadership throughout the country—not just at the national/corporate level—did not 

have additional training conducted by well-respected neutral experts in the collective bargaining process.

A team of FMCS mediators worked closely with the UAW and Ford to design a full day training program for 150 negotiation 

committee members. Twelve FMCS mediators, divided into two-person teams, delivered fi ve modules. For each of these 

modules, the following concepts were presented and followed by interactive exercises: (1) building trust and respect; (2) collaborative behavior and basic problem-solving approaches; (3) listening skills; (4) how to jointly collect facts and data; and (5) 

managing stakeholder expectations and social media.

The program was so well-received that FMCS now offers a training program for bargaining committees modeled on the UAWFord training.

FMCS also plays a role in helping to 

achieve constructive labor-management 

relations throughout the public sector and 

in Federal government. While many public 

and all Federal unionized workers cannot 

be locked out or go on strike, the damage 

from unresolved labor disputes can still be substantial. For example, updating job descriptions, work rules, and work processes can increase organizational effectiveness and allow more cost effi cient delivery of services to the public.

Promoting Collaborative Solutions: 

Labor-Management Training

In FY 2015, FMCS mediators conducted more than 1,900 

training programs with collective bargaining partners.

Improving Public and Federal 

Sector Bargaining Relationships

6 FMCS FY 2015 ANNUAL REPORT
In its work to improve labor-management relations in the public and Federal sectors, FMCS has designed relationship-building programs that help unions and employers develop collaborative, problem-solving approaches and manage their inherent 

conflicts. Effective use of these programs better enables the parties to respond jointly to changing business and economic 

conditions. Similarly, FMCS continues its important work in support of effective labor-management forums for Federal government agencies across the country, as mandated by Executive Order 13522, issued in 2009, to “promote satisfactory labor 

relations and improve the productivity and effectiveness of the Federal Government.” 

The President’s order required Federal agencies to establish “[l]abor-management forums [that] allow managers and employees to collaborate in continuing to deliver the highest quality services to the American people.” FMCS mediators have had a 

central role in training and facilitating forums throughout the country. In addition, the National Council on Federal Labor-Management Relations has frequently called upon FMCS instructional design experts to develop and deliver interactive web-based 

training tools to improve forum performance.

For Federal agencies involved in collective bargaining with employee unions, FMCS provides training in professional development with the Federal Service Impasses Panel (FSIP). FMCS, in fact, has had a working team specializing in Federal sector 

bargaining so that in requesting its mediation services, Federal managers and employees can be assured that an FMCS mediator is experienced and knowledgeable and will be helpful to them in bridging their differences. Ideally, however, FMCS recommends to Federal managers and unions that they begin working with us before they reach a bargaining table. For several 

years, FMCS has worked nationally in conjunction with the Federal Labor Relations Authority (FLRA) in training labor and 

management representatives in how to organize successful labor-management forums. FMCS’s goal under the President’s 

Executive Order 13522 has been to improve relationships, cooperation and collaboration and to help both sides understand 

the benefi ts that result. Since the President issued EO 13522 in late 2009, FMCS has provided more than 270 Relationship 

Development and Training programs in support of labor-management cooperative efforts.

The Administrative Dispute Resolution (ADR) Act 

of 1996 calls upon FMCS to assist Federal, state, 

and local agencies in resolving disputes arising 

under their jurisdictions. On a cost reimbursable 

basis, FMCS provides Federal agencies, state and local governments with a wide 

variety of professional services, such as mediating workplace and employment 

disputes, mediating disputes involving administrative programs, consultation and evaluation in the designing and building 

of capacity for effective conflict management systems, convening and facilitation services associated with Negotiated 

Rulemaking, facilitation services for public policy discussions occurring under the Federal Advisory Committee Act, and developing tools for interagency and public-private cooperation and collaboration.

To better inform prospective users of FMCS collective bargaining services and conflict management services to government, 

Alternative Dispute Resolution (ADR) services and training, FMCS in early 2014 successfully launched a new and innovative 

“Conflict Resolution Week” program. Partnering with conflict resolution experts from the FLRA, the National Council on Labor 

Management Relations, the U.S. Offi ce of Personnel Management (OPM), the Udall Foundation, and experts from the University of Illinois at Champaign-Urbana, this series of in-person and web-based training was able to reach thousands of participants at no cost to them and with minimal cost to FMCS and the providers. The fi rst event of its kind for FMCS, this showcase 

event highlighted its ability to provide effective outreach and training with cost-saving, innovative technology.

Conflict Management Services 

for Government

7 FMCS FY 2015 ANNUAL REPORT
The program’s success led in 2015 to numerous requests for live and web-based training, including programs in early dispute 

resolution and other skills for the FLRA, OSHA, and the U.S. Park Service. Similar programs also were provided to the U.S. 

Environmental Protection Agency (EPA) and the Social Security Administration (SSA).

In addition to providing labor-management dispute resolution services, the Administrative Dispute Resolution (ADR) and Negotiated Rulemakings Acts of 1996 call upon FMCS to assist Federal, state, and government entities in resolving disputes 

arising under their jurisdictions. On a cost-reimbursable basis, FMCS provides a wide variety of professional services to 

more than 130 Federal agencies and bureaus.

These services include: mediating employment disputes and disputes involving administrative programs; training in the skills 

and procedures of alternative dispute resolution; consulting, evaluating, designing, and building capacity in conflict management systems; facilitating public policy and intra/inter-agency discussions; and developing tools for interagency and public-private cooperation and collaboration.

During 2015, FMCS provided negotiated rulemaking services to the U.S. Department of Energy (DOE), which had a goal of defi ning energy effi ciency standards for manufactured housing. In what has been hailed as the biggest energy-saving standards 

rulemaking in DOE history, FMCS assisted industry, government and advocacy groups in achieving new consensus energy 

standards for commercial heating and air conditioning equipment. The new standards have the potential to save nearly 15 

quadrillion BTUs (quads) of energy over 30 years and reduce energy consumption and costs by billions of dollars over the 

lifespan of the equipment. DOE has asked FMCS to facilitate three additional rulemakings in 2016.

In 2015, FMCS also provided training to more than 20 agencies in the skills and procedures of alternative dispute resolution. 

These trainings included an Agency-wide effort to assist the Social Security Administration’s ADR program by training 6,000 

supervisors and managers in the effective utilization of ADR. Additionally, in conjunction with the Offi ce of Personnel Management (OPM), the Federal Executive Boards in Philadelphia, Detroit, Atlanta, Dallas, Washington, and Baltimore, and other 

Federal agencies, FMCS provided Basic, Advanced, and Refresher Mediation Skills training to more than 320 neutrals for the 

Federal Shared Neutral Services and other Federal agency ADR programs. The training included more than 120 IRS agents 

from the IRS Offi ce of Appeals.

In FY 2015, FMCS began improving and 

expanding services, developing and delivering new training programs beyond what 

has been described here, and incorporating the newest approaches to conflict resolution. For example, FMCS is utilizing and incorporating research on the neuroscience of conflict, specifi cally, what happens 

in the brain in a dispute, and applying this knowledge to the Agency’s work in conflict resolution. In another relevant area, 

FMCS is looking at research on generational differences in the workplace, and how these differences can contribute to workplace conflict.

The program’s success led in 2015 to numerous requests for 

live and web-based training, including programs in early 

dispute resolution and other skills for the FLRA, OSHA, 

and the U.S. Park Service.

Innovative Education and 

Outreach to Agency Customers

8 FMCS FY 2015 ANNUAL REPORT
The FMCS toolkit for troubled labor-management relationships now includes a number of specifi c programs tailored to 

match special needs and circumstances. To cite a few examples, FMCS provides grievance mediation that can help head off 

workplace problems before they escalate into headaches at the bargaining table later. With FMCS Relationship by Objectives 

(RBO) training, labor and management representatives can learn how to repair and rebuild a broken relationship. FMCS also 

provides Relationship Development Training (RDT), aimed at building better and stronger labor-management ties.

FMCS mediators work closely with labor and management in each case to develop the most effective types of relationship 

training, based on their needs. Under the agency’s RDT program, for example, unions and employers learn from FMCS how to:

• Administer their collective bargaining agreement effectively;

• Communicate with understanding;

• Establish a labor-management committee to address issues of mutual concern;

• Train effective labor-management committee members;

• Develop organizational strength, productivity and effi ciency.

In addition to customizing its training as needed, FMCS also offers choices for alternative bargaining processes to augment 

traditional mediation for parties engaged in the traditional brand of collective bargaining. These alternative mediation techniques for bargaining include:

• Modifi ed traditional bargaining;

• Critical issues bargaining;

• Expedited bargaining;

• Interest-based bargaining;

• Affi nity approach to economic bargaining.

FMCS is particularly proud of several new training programs and “success story” webinars, which were so well received among 

Agency customers that they were fi lled to capacity soon after FMCS announced they were being offered. The trainings and 

programs are examples of the 21st century technologies and innovations that are used at FMCS to help labor-management 

and ADR customers meet 21st century workplace challenges.

These initiatives included:

• “From Adversaries to Allies: An Interest-Based Bargaining Success Story” described the journey of the Nevada Health 

District on the management side and SEIU Local 1107 from committed opponents at the bargaining table to a relationship of mutual understanding and trust with the assistance of FMCS. 

• “Clearing the Deck: A Grievance Mediation Success Story” described how NHS Human Services and AFSCME DC 88 

improved their labor-management relationship and learned quickly to resolve workplace conflict and potential collective 

bargaining disputes by utilizing grievance mediation as a tool for achieving voluntary settlement.

• ”FMCS GM: Solving Disputes and Improving Relations Together” was fi lled to capacity within 20 minutes after FMCS 

announced the program. Because it was so popular, FMCS also offered an audio-only version, which also has sold out.

9 FMCS FY 2015 ANNUAL REPORT
• “Leadership Conflict Resolution Skills: The Six Competencies of Outcome-Based Communications” was designed 

specifi cally for leaders who are tasked with crucial mission and organizational goals. It provided participants with advanced soft-skill conflict resolution training in effective communication and interpersonal dynamics.

• “The Art and Science of Inquiry” focused on enhancing the oft-ignored but crucial conflict resolution skill of asking 

questions. It explored how to best use questions to bring parties in conflict together and facilitate their problem-solving. 

Finally, FMCS continues to innovate with the production of interactive instructional tools designed to help FMCS customers 

more effectively utilize its services. Recent topics covered the on-line fi ling of statutorily required §8(d) notices of contract 

expiration and effectively using FMCS negotiated rulemaking support services.

Like many Federal agencies, FMCS has experienced many challenges related to employee recruitment, training, and retention. As mentioned previously, FMCS has experienced three consecutive years of signifi cant mediator retirements. In 2015 alone FMCS lost 18 mediators to 

retirement with more than 379 years of combined mediation experience. In response, FMCS 

recruited, on-boarded and began training 18 new mediators, or slightly more than 10 percent 

of its mediator workforce. Training new mediators is a labor-intensive process, involving fi ve 

weeks of formal classroom training and between six and 24 months of on-the-job training and job shadowing. Bringing a large 

number of new employees without previous Federal experience into an organization presents challenges, but it also provides 

an opportunity to create a dynamic yet consistent operating culture.

In meeting this challenge, FMCS has sought to 

position itself as one of the most desirable places to work in government. FMCS strives to attract 

the widest, most diverse, and best qualifi ed applicants and to retain the best and most effective 

workforce. To this end, in 2015, FMCS hired a new 

human resources director with years of high-level experience at the Department of the Navy and possessing specialized OPM 

staffi ng experience. The new director immediately began revamping and modernizing the FMCS HR offi ce. Improvements to 

date include: OPM granted FMCS delegated hiring authority; FMCS became the fi rst agency to beta test and use the new USA 

Staffi ng system; FMCS developed and implemented consistent on-boarding and mentoring practices across its operations; 

and FMCS reviewed and revised employee position descriptions and performance standards.

Operational 

Excellence

Reforming Hiring Practices 

and Managing Performance

10 FMCS FY 2015 ANNUAL REPORT
A critical part of the effort to improve compliance is the learning management system 

(LMS) that FMCS procured in 2015. The LMS 

will track and record each employee’s completion of mandatory training, receipt of internal 

memos, and other professional development 

activities. This system will provide critical 

support to insure that FMCS employees are continuing the culture of innovation and creativity necessary for the success of 

the FMCS mission.

For its fi nancial operations, FMCS hired a new fi nance director to update FMCS policies, strengthen and document its internal 

controls, and update staff skills. Strengthened fi nancial policies and procedures, uniformly applied, will improve FMCS’ ability 

to demonstrate effective, effi cient, and transparent use of public resources. Also in 2015, FMCS contracted with the National 

Archives and Records Administration (NARA) to review its records keeping policies and systems, and by the end of 2016, 

FMCS will complete staff training on the new policies and procedures recommended by NARA. In FY 2015, FMCS began a 

review and update, as necessary, of all internal policy statements (FMCS Directives).

With such urgent challenges to be confronted 

in FY 2015, FMCS reorganized the Agency management structure to ensure better integration 

between fi eld and national offi ce operations. It is 

currently reviewing and revising standard operating procedures across the Agency. In addition, a 

working group has been tasked with developing succession planning guidelines, and another is reviewing fi eld offi ce utilization for effi ciency and cost-effectiveness.

FMCS utilizes a well-developed system for evaluating the distribution and effectiveness of its fi eld offi ce staff and offi ces. 

This evaluation occurs on an annual basis and as retirements and attrition present opportunities for non-disruptive realignment of its personnel. With the majority of its employees involved in direct program delivery—175 employees (75 percent 

of its workforce in 2015 totaling 245 FTEs) distributed across 67 fi eld stations—FMCS makes certain to place employees in 

areas where they can provide the greatest benefi t at the least cost. FMCS will continue to use a workload evaluation model to 

determine trends in specifi c fi eld stations. The results help ensure that decisions to fi ll vacant mediator positions reflect the 

current and potential demand for FMCS services.

Increasing Compliance and 

Strengthening Internal Controls

Creating Structural Integrity 

and Operational Consistency

11 FMCS FY 2015 ANNUAL REPORT
FMCS strives to provide high-quality, high-value 

services to its customers in order to meet and 

fulfi ll its statutory mission. Equally important is 

FMCS’s commitment to using allocated resources 

as effi ciently as possible in order to ensure that customers and taxpayers receive 

the most value for the services it provides.

In 2015, FMCS revamped and updated Agency technology to better serve current and future customers, including: launching 

a new public website; using social media (Facebook, Twitter and YouTube) to communicate with customers and employees; 

and using a new email service delivery system designed to reach larger audiences with information about upcoming live and 

web-based conflict resolution presentations and training events. In the near-term, FMCS expects to have an effective and 

modern communications strategy in place that clearly communicates the positive benefi ts of FMCS services.

The FMCS mission statement reflects the Agency’s statutory foundation: "to promote the development of sound and stable labor-management relationships and to prevent or minimize work 

stoppages by assisting labor and management in settling their disputes through mediation." 

As the scope and complexity of workplace issues facing labor and management grow, FMCS 

will continue to play a critical role in helping labor and management create the kind of good labor-management relationships 

we know to be essential to averting labor strife that can damage the competitiveness and productivity of U.S. companies, the 

welfare of their employees, and the nation's economic well-being.

Based on its experience, FMCS believes that collective bargaining, collaboration, and joint problem-solving continue to be the 

best solutions to the workplace challenges of the 21st century. With an economy in transition, however, FMCS also recognizes 

the need for new approaches to managing workplace conflict. We are working hard to develop innovative conflict resolution 

techniques and tools, and using the latest technologies to help a new generation of workers and employers fi nd solutions 

and success.

At the same time, FMCS continues to refi ne and expand our menu of training and dispute resolution programs for our sister 

Federal agencies and government at all levels to improve the delivery of services through enhanced labor-management collaboration, joint problem-solving, effective communication, increased employee engagement, diversity, mutual respect, and 

trust . FMCS also works to improve the effi ciency and cost effectiveness of government at the Federal , state, and local levels 

with customized dispute resolution solutions for government agencies in the context of their administrative, regulatory, or 

enforcement activities.

To ensure that the Agency functions effectively in an environment greatly changed from its beginning nearly seven decades 

ago, FMCS is transforming at every level as a small, but critical independent agency of the U.S. government: it is structuring 

internal operations to meet the highest ethical and compliance standards; it is creating a positive sense of enthusiasm and 

urgency within its workforce to take services to the next level; and it is reaching new customers by leveraging the talent and 

creativity of its workforce with the newest technologies. Agency employees are working harder and innovating more than 

ever with extraordinary results. These are challenging times for employers, workers, and the organizations served by FMCS. 

Agency employees feel privileged and proud to help companies and their workers create more collaborative, competitive and 

productive workplaces and to contribute to our country’s overall economic well-being.

Modernizing Communications 

with Customers

Conclusion

Director, FMCS

12 FMCS FY 2015 ANNUAL REPORT
FY 2015 Agency Services 

Agency Mission

The Federal Mediation and Conciliation Service (FMCS) is an independent agency of the Federal government established by Congress in 1947 to help employers and unions avoid costly work 

stoppages and minimize their potentially devastating effects on 

regional or national commerce. FMCS, headquartered in Washington, D.C., has mediators located in over 60 fi eld offi ces and ten 

regional offi ces across the country and is best known for its history of successful and innovative advances in labor-management 

collaboration, joint problem-solving and the resolution of major 

collective bargaining disputes. 

In 1996, Congress recognized this record for pioneering dispute 

resolution techniques and highly skilled professional mediators 

and called upon FMCS to help other Federal, state and local agencies minimize costly litigation by resolving disputes arising under 

their jurisdictions. Thus, while its core activity remains the prevention or resolution of labor-management disputes, FMCS also 

provides its sister agencies with a wide variety of alternative dispute resolution services.

Collective Bargaining 

Mediation

Through collective bargaining mediation, FMCS helps avert 

or minimize the cost of work stoppages to the U.S. economy. FMCS’s core work is to mediate collective bargaining negotiations for initial contract negotiations—which 

take place between an employer and a newly certifi ed or 

recognized union representing its employees—and for negotiations for successor collective bargaining agreements. 

FMCS provides mediation services to the private sector, 

and also to the public sector, including Federal agencies, 

and state and local governments.

During mediation, the mediator’s task is to identify alternative solutions and compromises, encourage settlement 

where appropriate, control the critical timing of offers, and 

persuade the parties to honestly discuss their differences. 

In FY 2015, FMCS mediators were actively involved in more 

than 3,700 collective bargaining contract negotiations in every major industry throughout the United States.

Grievance Mediation

Grievance mediation involves the use of a neutral party to 

mediate disputes that may arise over the terms and conditions of a collective bargaining agreement. FMCS mediators provide this service to the private and public sectors 

with the goal of preventing unresolved contract interpretation issues from spilling over into future contract negotiations. Lengthening contract terms increase the importance 

of resolving contentious issues arising during the term of 

a contract. In FY 2015, FMCS mediated more than 1,600 

grievance mediation cases and helped the parties reach 

agreement in 1,200 of these (73 percent).

13 FMCS FY 2015 ANNUAL REPORT
Relationship Development 

and Training

Preventing conflict that may arise during the term of a collective 

bargaining agreement is another important goal of FMCS. The 

Agency’s relationship-building training programs are designed 

to improve labor-management relationships by helping labor and 

management to develop collaborative problem-solving approaches. Use of these programs better enables the parties to jointly 

respond to rapidly changing business and economic conditions 

during the term of the contract and also make future mediation 

efforts more effective.

FMCS Relationship Development and Training Programs

• Alternative Bargaining Training. Teaches the benefi ts and techniques of a non-adversarial, joint problem-solving approach to negotiation. In addition to the Interest-Based Bargaining process, various models include:

• The Affi nity Model of Collaborative Economic Bargaining. The Affi nity Model is a facilitation tool that can 

be applied immediately to deal with distributive economic issues in an integrative and collaborative setting. 

The Affi nity Model of bargaining has been used with a great success in a variety of industries and sectors 

such as K-12 Education and the Performing Arts.

• Critical Issues Bargaining (CIB). CIB is a hybrid collaborative bargaining model which encourages information- sharing and interest-based problem-solving to resolve issues, and which then provides a built-in 

transition to traditional bargaining for unresolved and other critical issues. Prior to bargaining, parties 

present their economic forecast/projections/parameters.

 FMCS has developed other alternative bargaining models for training parties to enhance problem-solving 

 and mitigate adversarial relationships. These include: Enhanced Conventional Negotiations (ECN); Com 

 pressed Bargaining (CB); and Modifi ed Traditional Bargaining (MTB).

14 FMCS FY 2015 ANNUAL REPORT
• Relationship by Objective. Improves the parties’ relationship with one another, particularly where the relationship has 

worsened after a contentious representation election, initial contract negotiation, or strike.

• Committee Effectiveness Training. Assists the parties in developing joint labor-management committees designed to 

bring the parties into regular communication.

• Partners in Change. Explores the organization’s current culture, identifi es perceptions within the organization, creates 

a vision for the future, and designs systems that effectuate change.

• Labor-Management Work-Site Committee Training. Helps labor-management committees extend to the work-site 

level, forming work-site committees, group interactions, and learning techniques to manage change.

• Contract Administration/Steward-Supervisor Training. Trains front-line supervisors and shop stewards on their roles 

and responsibilities in contract administration, grievance processing, the arbitration procedure, and interpersonal communications for building cooperative relationships.

• Cultural Awareness Skills for Labor and Management. Trains the parties to function in a multicultural work setting 

including the resolution of cross-cultural conflicts in a workplace.

• Collective Bargaining and Mediation Training. Trains the parties on effective negotiation and communication skills.

FMCS Relationship Development and Training Programs

More FMCS Relationship

Development and Training 

Programs

15 FMCS FY 2015 ANNUAL REPORT
FMCS provided conflict management and ADR services more than 1,100 times in FY 2015. These services included negotiation, mediation, convening, facilitation, training, and systems design. FMCS provides these ADR services to Federal agencies 

and to state and local governments on a cost-reimbursable basis:

• Workplace and Employment Disputes. FMCS mediates workplace and employment disputes for Federal and state 

agencies. The majority of these disputes concern claims of employment discrimination (EEO), other types of personnel 

issues and workplace conflicts. FMCS accepts individual and multi-party conflicts for mediation.

• Disputes Involving Administrative Programs. FMCS also mediates disputes between agencies and their “regulated 

public,” such as whistleblower complaints or disputes involving contracts, grants, licenses, enforcement, and administrative programs.

• Training Persons in the Skills and Procedures Employed in Alternative Means of Dispute Resolution. FMCS also 

provides training in conflict resolution to aid in the effective use of alternative dispute resolution throughout the Federal 

government. To that end, FMCS offers both live and web-based training on a variety of topics. 

• Consultation, Evaluation, and Systems Design. FMCS provides professional conflict resolution specialists to help 

agencies design conflict prevention and resolution systems to build capacity for constructive conflict management systems. Systems design may include an initial consultation, an assessment, program design and development, training 

delivery, and program management follow-up.

• Facilitation during Decision-Making. Particularly in times of limited budgets, FMCS facilitation services can help agencies achieve cost-savings when decision-making is delegated to a committee, task force, or other type of group. FMCS 

facilitation services, including consultation, convening, training, and the actual facilitation, help groups accomplish their 

tasks within specifi ed time frames. Notably, these services can be provided both onsite and virtually, another valuable 

time and cost saving feature of FMCS facilitation services.

• Negotiated Rulemaking. Negotiated rulemaking is a process in which a government agency invites persons and groups 

potentially impacted by a proposed rule to participate in its drafting. Interested parties who might otherwise oppose or 

challenge the rule are given the chance to participate in its formulation, thus reducing post-issuance challenges. The 

Negotiated Rulemaking Act of 1996 authorizes FMCS to convene and facilitate this process. Since the 1980s, FMCS 

has convened and facilitated dozens of negotiated rulemakings for numerous agencies.

• Agency Cooperation & Collaboration. FMCS can facilitate intra-agency or multiple agency groups tasked with developing a strategic plan or identifi ed objective involving complex matters. Interest-based problem-solving and collaboration 

skills are essential to achieving successful outcomes.

• Public Policy Dialogues. Similarly, FMCS is often called upon to facilitate public policy discussions involving Federal 

agencies and public-private stakeholders such as those conducted under the Federal Advisory Committee Act (FACA). 

These multi-party stakeholder discussions can benefi t from the assistance of a skilled and neutral facilitator experienced in synthesizing discussion points and interests, as well as establishing and overseeing meeting structures and 

processes. Training and coaching are also available for participants.

Outside the collective bargaining arena, FMCS provides professional services to a wide range of Federal, state, and government agencies. With a 

mandate to resolve disputes, train persons in skills and procedures employed in alternative means of dispute resolution design conflict management systems, build capacity for constructive conflict management, and 

strengthen inter-agency and public-private cooperation, FMCS seeks to 

reduce litigation costs and to promote better government decision-making

Conflict Resolution 

and ADR Services for 

Government

16 FMCS FY 2015 ANNUAL REPORT
International Training 

and Exchange

Beyond the nation’s borders, FMCS plays an important role in promoting collective bargaining and conflict resolution around the 

world. The FMCS international work is a small, but integral, part of 

its services. Emerging market economies often struggle to compete effectively in a globally integrated marketplace. FMCS helps 

establish the labor relations institutions that are essential to the 

smooth functioning of free market economies. These programs 

are also a knowledge-sharing experience: FMCS mediators gain 

familiarity with complex issues affecting the global economy and, 

as a result, are more effective in resolving domestic labor-management disputes with international implications.

In addition to programs delivered abroad, every year FMCS mediators host numerous foreign delegations visiting the United States and educate them in U.S. 

labor-management relations and conflict resolution practices.

FMCS international training programs are delivered using cost-reimbursable funds, largely through interagency acquisition 

agreements with other government agencies, such as the Departments of State, Labor, and USAID. In FY 2015, FMCS mediators delivered more than 330 hours of mediation and industrial relations training programs and consultation for delegations 

visiting the United States from Swaziland, Korea, Taiwan and Nigeria and in-country for participants in Burma, Morocco, Swaziland, Haiti, Bangladesh, Honduras, and Thailand. 

Arbitration Services

National labor policy favors arbitration over litigation for 

settling contractual disputes. The FMCS Offi ce of Arbitration Services maintains a roster of approximately 1,100 

independent arbitrators who are qualifi ed to hear and decide disputes over the interpretation or application of collective bargaining agreements. Upon request from the 

parties, FMCS furnishes a list of names from which they 

may choose an arbitrator to hear their case and render a 

decision. FMCS administers its established policies and 

procedures on arbitration, which also incorporate the Code 

of Professional Responsibility for Arbitrators of Labor-Management Disputes, to which FMCS is a signatory.

During FY 2015, the Offi ce of Arbitration Services processed 

more than 16,600 requests for panels and oversaw the appointment of more than 5,400 arbitrators nationwide.

FMCS Institute for 

Conflict Management

The FMCS Institute for Conflict Management (Institute) delivers accessible, innovative, and experience-based conflict 

resolution training for individuals and small groups of employees and managers. The training is specifi cally designed 

to meet the challenges of labor-management relations and 

organizational change. The Institute’s training programs 

provide participants the opportunity to interact with and 

learn from experienced practitioners who use these skills 

every day. Federal mediators and private-sector arbitrators 

comprise the Institute faculty.

The Institute offered eight courses on fi ve subjects in 2015: 

Mediation Skills for the Workplace, Labor-Management Negotiation Skills, Arbitration for Advocates, Six Competencies of Outcome-Based Communications, and Becoming a 

Labor Arbitrator. The Institute runs as a reimbursable program and is funded by fees received from training participants.

17 FMCS FY 2015 ANNUAL REPORT
Labor-Management 

Committee Grants

The 1978 Labor-Management Cooperation Act authorizes and 

directs FMCS to encourage and support joint labor-management 

committees “established for the purpose of improving labor-management relationships, job security, and organizational effectiveness, enhancing economic development or involving workers in 

decisions affecting their jobs, including improving communication 

with respect to subjects of mutual interest and concern." Congress 

funds this initiative in annual appropriations to FMCS, and grants 

are competed and awarded to encourage labor-management committees to develop innovative joint approaches to workplace problems. 

In FY 2015, FMCS awarded almost $800,000 in grants from funds 

appropriated in 2014 and 2015. 

Awarded funds included:

• Helen Miller Member Education and Training Center & SEIU HCII. Funds addressed a need to engage front-line hospital employees and hospital management to jointly identify areas for improvement in order to successfully transition 

health care delivery into the new performance-based systems that reward patient satisfaction, successful health care 

outcomes, and effi cient service delivery. The grantees expect that the partnership projects will lead to stronger performance on value-based purchasing and other frontline worker performance metrics. This will in turn lead to reduced 

payment reimbursement penalties by Medicare and Medicaid.

• Manufacturing Renaissance & Chicago Federation of Labor. Between 1979 and 2009, manufacturing employment fell 

by 41 percent and wages have remained historically stagnant due to global competition, the infusion of new technologies, and cost-cutting processes. This, in turn, has negatively impacted communities, schools, local services, and the 

ability of workers to provide for their families. Grant funds will be used to build strategic public-private partnerships 

focused on creating a vision for advances in manufacturing in the 21st century. The project expects to foster healthy 

communities by developing collaborative, locally tailored programs that will fuel manufacturing innovation and competitiveness.

• Golden Living Nursing Home Centers & SEIU Healthcare PA Training and Education Fund. Nursing homes are being 

inundated with standards, regulations, best practice guidelines for effi cient processes, and many other obligations or 

recommendations set forth by the Centers for Medicare and Medicaid Services (CMS) and the Affordable Care Act 

(ACA). While these are intended to improve patient safety, they can also have a negative impact on the flow of work if 

labor and management are not communicating well. By creating a Quality Assurance and Performance Improvement 

(QAPI) committee at each participating facility, one which includes management and frontline staff, the three facilities 

will improve employee satisfaction, work flow, and patient outcomes. 

18 FMCS FY 2015 ANNUAL REPORT
PROGRAM SERVICES

2011 2012 2013 2014 2015

1. COLLECTIVE BARGAINING 

MEDIATION ............................................

 Assigned Cases1 13,712 13,114 12,938 12,054 11,636

 -Private Sector 12,460 11,814 11,802 10,856 10,620

 -Public Sector (state and municipal) 943 943 843 905 749

 -Federal Sector 309 357 293 293 267

 Mediated Cases2 4,665 4,528 4,122 4,009 3,719

 -Private Sector 3,271 3,079 2,826 2,697 2,600

 -Public Sector (state and municipal) 1,091 1,111 981 1,020 842

 -Federal Sector 303 338 315 292 277

 Closed Cases 13,776 13,652 12,651 12,032 11,644

 Closed Mediated Cases 3,815 3,764 3,339 3,299 3,081

 Activity Rate3 28% 28% 26% 27.4% 28.8%

 Settled and Closed Mediated Cases 3,234 3,159 2,807 2,852 2,605

 Percentage of mediated cases settled w/FMCS4 85% 84% 84% 86.5% 84.6%

 Activity rate in signifi cant cases5 33% 46% 47% 40.6% 42.6%

2. GRIEVANCE MEDIATION .........................

 Assigned Cases 1,968 1,837 1,872 1,762 1,729

 Mediated Cases 1,905 1,784 1,809 1,704 1,676

 -Private Sector 1,513 1,372 1,398 1,330 1,319

 -Public Sector (state and municipal) 261 264 267 256 240

 -Federal Sector 131 148 144 118 117

 Settled GM Cases 1,428 1,367 1,383 1,308 1,221

 Percentage of cases settled w/ FMCS6 75% 77% 76% 76.8% 72.9%

3. RELATIONSHIP-DEVELOPMENT AND 

TRAINING ................................................

 Number of training programs provided 2,301 2,128 2,027 1,884 1,923

 -Private Sector 1,267 1,262 1,174 1,111 1,090

Mediation Services 

Program Data

19 FMCS FY 2015 ANNUAL REPORT
PROGRAM SERVICES

2011 2012 2013 2014 2015

 -Public Sector (state and municipal) 493 463 533 436 472

 -Federal Sector 541 403 320 337 361

4. ADR Services...................................

 Mediated Cases 1,330 1,110 1,118 910 1,193

 -Federal Sector 1,323 1,090 1,089 884 1,152

 -Public Sector (state and municipal) 3 5 1 6 3

 -Private 4 15 28 20 38

 Settled ADR Cases 641 537 488 410 536

 Percent of ADR cases settled w/ FMCS7 48% 48% 44% 45.1% 44.9%

5. OUTREACH ...................................................

 Outreach cases8 3,190 3,019 2,911 2,710 2,722

6. ARBITRATION SERVICES .........................

 Number of panels issued 13,500 13,538 13,361 13,179 12,744

 Number of arbitrators appointed 5,575 6,129 6,020 5,836 5,415

7. INSTITUTE ....................................................

 Number of courses provided 5 8 10 8 8

 Number of participants 93 179 188 114 151

Work Stoppage Information

2010 2011 2012 2013 2014 2015

Work stoppages carried from 

preceding FY 13 18 24 21 16 14

Work stoppages beginning within 

FY 159 155 161 154 106 110

Work stoppages closed within FY 154 149 164 159 108 111

Work stoppages open at end of 

FY 18 24 21 16 14 13

Average duration of work stoppages in closed cases (number of 

days)

44.9 45.3 49.0 44.3 75.7 63.8

Estimated number of worker-hours lost due to work stoppages (1,000s)

8,877 11,222 11,038 15,317 6,823 39,280

Mediation Services 

Program Data

20 FMCS FY 2015 ANNUAL REPORT
Arbitration Services 

Program Data

Activity 2010 2011 2012 2013 2014 2015

Panels Issued9 16,486 14,367 13,538 13,361 13,179 16,689

Arbitrators Appointed 6,870 6,608 6,129 6,020 5,836 5,415

Activity Charged For

Travel Days .48 .44 .92 .63 .59 .76

Hearing Days 1.14 1.10 1.13 1.05 1.17 1.39

Study Days 2.37 2.37 2.37 2.39 2.21 3.11

Total 3.99 3.91 4.42 4.07 3.97 5.26

Average Charges

Per Diem Rate $981 $984 $1,006 $1,024 $1,045 $1,212

Amount of Fee $4,039 $4,045 $4,576 $4,517 $4,488 $6,290

Amount of Expenses $380 $384 $389 $395 $405 $456

Total Charged $4,419 $4,429 $4,965 $4,912 $4,893 $6,746

1. Section 8(d) of the National Labor Relations Act, as amended, 29 U.S.C. §158(d) requires that any employer or labor organization provide notice to FMCS 

30 days prior to contract expiration. Not all cases providing notices are assigned. Actual 2015 FMCS case intake was nearly 20,000.

2. Mediated cases represent the number of cases in the FY where mediators have become active in the negotiations.

3. Defi ned as the number of closed cases where there was at least one meeting divided by the number of total closed assignments.

4. Defi ned as the number of mediated cases settled divided by the total number of mediated cases.

5. Signifi cant cases are generally defi ned as situations where the bargaining unit exceeds 1,000.

6. Defi ned as the number of grievance mediation cases settled and closed within the fi scal year divided by the number of closed GM assignments.

7. Defi ned as the number of ADR cases settled divided by the number of mediated cases closed.

8. FMCS requires all mediators to engage in outreach efforts. These kinds of activities include non-bargaining meetings with labor and management 

representatives, attendance at conferences, meetings with local and state offi cials to offer FMCS services, and presentations designed to increase public 

knowledge.

9. Frequently, the labor-management parties request more than one panel for arbitration cases, resulting in an increase in the number of panels issued over 

the number of requests received.

21 FMCS FY 2015 ANNUAL REPORT
Federal Mediation and Conciliation Service 

2100 K Street NW

Washington, DC 20427

202-606-8100

www.fmcs.gov

22 FMCS FY 2015 ANNUAL REPORT