Opinion ID: 461570
Heading Depth: 2
Heading Rank: 3

Heading: The Issues in this Case

Text: 12 On May 25, 1983, the Union, alleging that a number of agencies were using the head of the agency provision in Sec. 7114(c) to disapprove agreements containing terms imposed on the parties by the FSIP, requested the Authority to issue a Statement of General Policy, 9 pursuant to 5 C.F.R. Sec. 2427 (1983). The Union claimed (1) that this practice contravenes the statutory mandate that the Impasses Panel's decisions are binding on the parties, and (2) that even if the head of an agency has the right to invalidate provisions, a union should be able to arbitrate the issue in the grievance procedure established in the collective bargaining agreement. 13 The Authority rejected both of the Union's contentions. Interpretation and Guidance, 15 F.L.R.A. 564 (1984). It explained that the Labor-Management Act requires that action taken by the Impasses Panel not be inconsistent with the law, and that the head of the agency provision was similarly geared to ensuring that all contracts be in compliance with the law. Thus, 14 [r]elying on the plain words of the Statute, and in the absence of relevant legislative history, the Authority conclude[d] that, pursuant to the provisions of section 7114(c), agency heads are empowered to review all provisions of collective bargaining agreements, including those mandated by the Panel, to assure conformity with the provisions of the Statute as well as other applicable laws, rules, and regulations. 15 Id. at 567 (emphasis in original). The Authority explained that this interpretation was consistent with the statute's language, since the statute provides for agency head review of collective bargaining agreements, and it is well established that the procedures of the Panel are part of the collective bargaining process. Id. (citing International Brotherhood of Electrical Workers, AFL-CIO, Local 121 and Department of the Treasury, Bureau of Engraving and Printing, Washington, D.C., 10 F.L.R.A. 198, 199 (1982); American Federation of Government Employees, Locals 225, 1504 and 3723, AFL-CIO v. FLRA, 712 F.2d 640, 646 n. 24 (D.C.Cir.1983)). 16 The Authority also held that the Union has two alternative routes to seek review of the head of the agency's determination. Interpretation and Guidance, 15 F.L.R.A. at 567. First, the Union may pursue its statutory right of expedited review of negotiability issues, since the head of the agency's disapproval of an agreement is the equivalent of an allegation of nonnegotiability. Id. at 567-68 (citing National Federation of Federal Employees, Local 1505 and Department of the Interior, National Park Service, Roosevelt-Vanderbilt National Historical Site, Hyde Park, New York, 7 F.L.R.A. 608 (1982); Association of Civilian Technicians, Inc., Pennsylvania State Council and the Adjutant General, Department of Military Affairs, Commonwealth of Pennsylvania, 7 F.L.R.A. 346 (1981), rev'd on other grounds sub nom. Adjutant General, Dep't of Military Affairs v. FLRA, 685 F.2d 93 (3d Cir.1982)). Alternatively, the Union may file unfair labor practice charges against the agency. Interpretation and Guidance, 15 F.L.R.A. at 568. If the Authority finds that the Impasses Panel's provision was not in fact contrary to law, the agency head's disapproval would constitute a failure or refusal 'to cooperate in ... impasse decisions' in violation of section 7116(a)(1) and (6) of the Statute. Id.