Opinion ID: 572627
Heading Depth: 2
Heading Rank: 2

Heading: Negotiability of the Policy Change

Text: 14 Griffiss does not contend that the change in policy is outside the first prong of the Antilles test. The policy clearly pertains to bargaining unit employees. Its challenge centers on the second prong of Antilles. Griffiss argues that policies affecting off-duty activities do not touch conditions of employment within the meaning of the statute except in rare circumstances not present here. Griffiss further argues that, even if some nexus can be shown between its policy towards off-duty traffic violations and conditions of employment, the Authority has not demonstrated the existence of the direct connection required by Antilles. 15 The FLRA denies that our case law and its own precedents establish a broad rule excluding employer policies affecting off-duty conduct from the Act's coverage. We agree with the Authority. We have made clear that the focus of our inquiry is on the reasonableness of the Authority's interpretation of the phrase conditions of employment and not the application of an absolute preclusion of bargaining over matters affecting off-duty conduct only. In Department of Defense v. FLRA, 685 F.2d 641 (D.C.Cir.1982), we upheld a determination by the FLRA that a change in policy governing the registration of private vehicles to obtain duty-free status by civilians at an overseas military base affected conditions of employment because possession of a duty-free vehicle ... was attendant on employment by the Army, and [because] an employee's failure to comply with the regulations could result in sanctions[.] Id. at 647. We noted that the term conditions of employment is not a model of precision--no doubt purposely so, id., and if a broad reading of the definition is reasonable, we will affirm even if a court could conceivably come out the other way on de novo review of the issue. Id. at 648. 16 The FLRA's finding here is consistent with our prior decisions applying the direct connection test. For example, in American Fed'n of Gov't Employees, Local 2761 v. FLRA, 866 F.2d 1443, we granted a petition for review of a decision of the Authority that found no duty to bargain over the cancellation of an annual employee picnic. The picnic was scheduled on a work day, and employees were released from their duties to attend. A dispute arose between management and the union over management's decision to require employees not coming to the picnic to remain at their posts. The Center cancelled the picnic in response to employee protests. The FLRA found no direct relationship between the work situation and the picnic because the picnic was essentially a recreational activity. Id. at 1446. 17 We reversed. We noted that the picnic was held at the place of employment, that attendance involved an adjustment to working hours, that the employer paid for the picnic, and that the picnic was used to present employee awards and otherwise improve employee-management relations. Those facts established an explicit link between the picnic and the work conditions and satisfied the Antilles test. Id. at 1448-49. 18 The FLRA's determination is also consistent with its own precedent. In U.S. Dep't of Health and Human Services, Social Sec. Admin. and AFGE Nat'l Council of SSA Field Office Locals, Council 220, 37 FLRA (No. 73) 880, 887-88 (1990), the Authority held that an agency could not terminate a subscription to The Federal Times for the employee lunch room without bargaining because the paper included information relevant to employee rights and benefits. Even though employees could read it only during break periods, the FLRA found that its availability had an effect on work conditions. Similarly, in AFGE, AFL-CIO and Air Force Logistics Command, Wright-Patterson Air Force Base, Ohio, 2 FLRA (No. 77) 604 (1980), aff'd on other issues, Department of Defense v. FLRA, 659 F.2d 1140 (D.C.Cir.1981), cert. denied sub nom. American Fed'n of Gov't Employees, AFL-CIO v. FLRA, 455 U.S. 945, 102 S.Ct. 1443, 71 L.Ed.2d 658 (1982), a duty to bargain was found to exist over a union proposal that an Air Force base set aside space for a day care facility. The proposal pertained to conditions of employment because the availability of day care would reduce tardiness and absenteeism. 19 Given our deferential standard of review, the Authority's finding that a direct connection exists is on firm ground. Prior to the change, Griffiss administratively sanctioned off-duty employees who committed traffic offenses on the base. Under the new policy, such employees must travel to Syracuse and appear in federal court during working hours. This requires them to take time from annual leave. As noted above, one employee referred to a Magistrate used annual leave time and missed training to make court appearances. There is no reason to suspect that his experience is atypical. As in AFGE, Local 2761, where the cancellation of the annual picnic had the effect of denying employees two hours of work day recreation a year and ended a traditional morale-boosting activity, the impact on conditions of employment here is neither remote nor speculative. Thus, we find no cause to disturb the Authority's decision in this case. 20 We note, however, that the FLRA's finding that a direct connection is also established by the putative effect of the policy on employee disciplinary proceedings at the base is not supported by substantial evidence in the record. The Authority found it reasonable to assume that base officials would use the results of proceedings before a magistrate as a basis for internal disciplinary actions because employees would remain subject to internal administrative sanctions, and base lawyers would prosecute the cases. Griffiss Air Force Base, 37 FLRA at 577. This reasonable assumption is not enough. The Authority must point to evidence in the record establishing this link. The record evidence, in fact, indicates that in one of the two cases referred to the Magistrate, the employee received an official admonishment prior to the resolution of his criminal case. Id. at 572. 21 Griffiss also seeks relief from the remedy imposed by the FLRA: a status quo ante order mandating cessation of the policy as it applies to off-duty offenses until Griffiss provides notice to the collective bargaining unit and an opportunity to bargain over the implementation of the policy. Id. at 582-83. Griffiss argues that the order conflicts with its own statutory obligation to report to the Attorney General any information, allegation or complaint regarding violations of Title 18 of the United States Code by a government employee. See 28 U.S.C. § 535(b) (1988). Griffiss claims that a status quo ante remedy should not force an agency to take an action that is illegal. See United States Dep't of Justice, INS, El Paso Dist. Office and AFGE, Local 1210, 34 FLRA (No. 166) 1035, 1048 (1990). 22 Griffiss did not raise this question below. Under the Act, 23 [n]o objection that has not been urged before the Authority, or its designee, shall be considered by the [reviewing] court, unless the failure or neglect to urge the objection is excused because of extraordinary circumstances. 24 5 U.S.C. § 7123(c) (1988). See also EEOC v. FLRA, 476 U.S. 19, 22-23, 106 S.Ct. 1678, 1680, 90 L.Ed.2d 19 (1986). The only extraordinary circumstance suggested here is that Griffiss was unaware of 28 U.S.C. 535(b) when the case was before the Authority. Such an argument does not survive its assertion. We therefore decline to alter the remedy imposed by the Authority. 25 The Authority, however, may wish to review its order to ensure that it will not force Griffiss to violate section 535(b). The Authority notes that the statute allows an agency to ignore the reporting requirement at the direction of the Attorney General with respect to a specified class of information, allegation, or complaint. See 28 U.S.C. § 535(b)(2). There is no indication in the record that the Attorney General has granted permission for the Air Force's policy allowing bases to retain control of driving offenses. This would seem relevant to any re-examination the Authority may undertake.