Opinion ID: 407565
Heading Depth: 2
Heading Rank: 1

Heading: The FLRA's Discretion Under Section 7120(f)

Text: 135 This case presents the first occasion for review of the FLRA's revocation of a union's exclusive recognition status pursuant to section 7120(f). Accordingly, we discuss in some detail the scope of the FLRA's discretion under that section. The scope of the FLRA's discretion was the source of some disagreement within the Authority; 68 that disagreement has been renewed before this court. 69 Because the issue is not subject to a ready resolution, we must analyze not only the words of the statute, but also its legislative history. 136
137 Of course, the starting point for the interpretation of any statute is the language Congress employed to express its meaning. E.g., Ernst & Ernst v. Hochfelder, 425 U.S. 185, 197, 96 S.Ct. 1375, 1382, 47 L.Ed.2d 668 (1976); Department of Defense v. FLRA, 659 F.2d 1140, 1151 (D.C.Cir.1981), cert. denied, --- U.S. ----, 102 S.Ct. 1443, 71 L.Ed.2d 658 (1982). Section 7120(f) states: 138 In the case of any labor organization which by omission or commission has willfully and intentionally, with regard to any strike, work stoppage, or slowdown, violated section 7116(b)(7) of this title, the Authority shall, upon an appropriate finding by the Authority of such violation- 139 (1) revoke the exclusive recognition status of the labor organization, which shall then immediately cease to be legally entitled and obligated to represent employees in the unit; or 140 (2) take any other appropriate disciplinary action. 141 5 U.S.C. § 7120(f) (Supp. IV 1980). The language of this section clearly requires the FLRA to take some disciplinary action when it finds that a union has violated section 7116(b)(7). Section 7120(f)(2) just as clearly announces that the FLRA has some discretion to revoke or not to revoke the exclusive recognition status of a union that, like PATCO, is found to have committed an unfair labor practice by calling, participating in or condoning a strike against the federal government. 142 The inference that the FLRA has some degree of discretion in the enforcement of section 7120(f) is supported by another section of the Act that generally deals with remedies for unfair labor practices, of which union strikes are only a single example. This provision, found in section 7118(a)(7), grants the FLRA the power to issue an order requiring a party found to be guilty of an unfair labor practice (1) to cease and desist from the practice, (2) to renegotiate a collective bargaining agreement, (3) to reinstate an employee with backpay, or (4) to take such other action as will carry out the purpose of this chapter. 5 U.S.C. § 7118(a)(7) (Supp. IV 1980). 70 143 At the same time, yet another provision in the same Act, found in section 7103(a)(4), suggests that the FLRA is without discretion in its choice of remedy once it finds that a union has violated the Act's no-strike provisions. In defining labor organization under the Act, section 7103(a)(4) states that: 144 (4) labor organization means an organization composed in whole or in part of employees, in which employees participate and pay dues, and which has as a purpose the dealing with an agency concerning grievances and conditions of employment, but does not include- 145 .... 146 (D) an organization which participates in the conduct of a strike against the Government or any agency thereof or imposes a duty or obligation to conduct, assist, or participate in such a strike .... 147 5 U.S.C. § 7103(a)(4)(D) (Supp. IV 1980). 71 Broadly construed, this definitional section at least implies that a labor organization found to have violated the Act's no-strike proscriptions may no longer be treated as a labor organization under the Act, and hence may not be accorded exclusive recognition status. 148 We hesitate to read so much into a definitional section of a statute, particularly where, as here, that broad reading would contradict a separate section of the same statute that describes the power given to an agency to determine the substantive rights of parties before it. 72 Nevertheless, section 7103(a)(4)(D) arguably clouds the interpretation of section 7120(f). Moreover, even without reference to the statutory definition of a labor organization, section 7120(f) does not plainly declare the extent of the Authority's discretion to revoke a union's exclusive recognition status. Therefore, because the plain words of the statute cannot resolve our inquiry, we must turn to the statute's legislative history for further guidance as to Congress' meaning. 149
150 Prior to the enactment of Title VII of the Civil Service Reform Act, labor-management relations in the federal sector were governed by Executive Order 11,491. Exec. Order No. 11,491, 34 Fed.Reg. 17,605 (1969), reprinted as amended in 5 U.S.C. § 7301 note (1976 & Supp. I 1977). Executive Order 11,491 contained no provision comparable to the revocation provision of the Civil Service Reform Act. The Executive Order did, however, declare strikes by federal sector unions to be unfair labor practices, id. § 19(b)(4), and excluded a union that engaged in a strike from the Order's definition of a labor organization, id. § 2(e)(2). 73 151 The inclusion in Title VII of the Civil Service Reform Act of a provision like that found in the predecessor Executive Order, excluding a striking union from the definition of a labor organization, stemmed primarily from an amendment offered on the floor of the House of Representatives. The addition of a section providing for the revocation of a striking union's exclusive recognition status, however, resulted from an amendment offered on the floor of the Senate. In order to more fully understand Congress' intent in enacting sections 7103(a)(4)(D) and 7120(f) of the Act, we must examine these passages of the legislative history and the Conference Report on the final bill. 152 The vehicle for enactment of Title VII of the Civil Service Reform Act in the House of Representatives was an amendment offered by Congressman Udall as a substitute for the bill reported by the House Committee on Post Office and Civil Service. 74 As originally proposed, the Udall substitute contained neither a provision for revoking a striking union's exclusive recognition status nor an exclusion of a striking union from the statutory definition of a labor organization. On the floor of the House, Congressman Erlenborn offered an amendment to the Udall substitute that added the definitional exclusion. The Erlenborn amendment provided that a labor organization would not include an organization which participates in the conduct of a strike against the Government of the United States or any agency thereof or imposes a duty or obligation to conduct, assist, or participate in such a strike. 124 Cong.Rec. 29,194 (1978), reprinted in Legislative History, supra note 10, at 946. The only explanation in the legislative history of this definitional exclusion, which eventually became section 7103(a)(4)(D) of the Civil Service Reform Act, is found in the following colloquy on the Erlenborn amendment: 153 Mr. FORD of Michigan.... 154 Mr. Chairman, I would like to ask the gentleman this question: It is (sic) the understanding of the gentleman from Illinois (Mr. ERLENBORN) that it would still be up to the labor authority to determine whether or not this provision applies? 155 Mr. ERLENBORN. Mr. Chairman, if the gentleman will yield, yes, that is correct. This would leave the discretion in the FLRA as to whether or not the decertification should be applied. It will not happen automatically. 156 Id. at 29,194, Legislative History at 947 (emphasis added). Following this brief exchange, the Erlenborn amendment to the Udall substitute was agreed to by voice vote. Subsequently, the House of Representatives adopted the Udall substitute as the House version of Title VII. Id. at 29,202-03, 29,220-21, Legislative History at 962-63, 964-66. 157 Thus, as initially passed by the House, Title VII of the Civil Service Reform Act did not provide for the revocation of the exclusive recognition status of a union that struck against the government, but did exclude striking unions from the definition of the term labor organization. As the sponsor of that language made clear on the House floor, however, the definitional exclusion was intended to leave the discretion in the FLRA whether or not to apply the exclusion and thereby remove a union from the protections of the statute. No expression of the scope of the FLRA's discretion or guidance for its application was offered. 158 Before the House of Representatives adopted its version of Title VII of the Civil Service Reform Act, the Senate completed action on the bill reported by the Senate Committee on Governmental Affairs, S. 2640, 95th Cong., 2d Sess. (1978), reported in S.Rep.No.969, 95th Cong., 2d Sess. 271-320 (1978), Legislative History at 499-548. The Senate Committee bill closely resembled Executive Order 11,491, 75 and thus excluded striking unions from the definition of labor organizations, id. § 7202(a)(3)(B), S.Rep.No.969, supra, at 273-74, Legislative History at 501-02. 76 However, like the original House bill, the Senate bill did not explicitly provide for the revocation of the exclusive recognition status of a union that struck against the federal government. 159 During Senate debate on the bill, Senator Hatch offered an amendment that, among other things, added section 7217(e) to the bill. That section, the predecessor to section 7120(f) of the Civil Service Reform Act, stated: 160 Any labor organization which by omission or commission has willfully and intentionally violated section 7216(b)(4)(B) 77 shall upon an appropriate finding by the Authority, of such violation, have its exclusive recognition status revoked and it shall cease immediately to be legally entitled and obligated to represent employees in the unit. 161 S. 2640, 95th Cong., 2d Sess. § 7217(e) (1978), Legislative History at 588 (version passed by the Senate). Debate between Senator Hatch and Senators Javits and Metzenbaum made clear that the only decisionmaking authority granted to the FLRA under the proposed section was the power to decide whether or not a charged union had committed an unfair labor practice by striking or illegally picketing, or condoning such action, against the federal government. If that decision was made contrary to the union, revocation of the union's exclusive recognition status was to be mandatory. See 124 Cong.Rec. 27,579-80, 27,584-85 (1978), Legislative History at 1021-22, 1028-30 (debate on Hatch amendment). The Senate adopted the Hatch amendment, id. at 27,588, Legislative History at 1035, and ultimately passed its version of the Civil Service Reform Act, id. at 27,593, Legislative History at 1038. 162 Thus, as initially passed by the Senate, Title VII of the Civil Service Reform Act included a section that explicitly provided for the revocation of the exclusive recognition status of a union that struck against the government. Revocation pursuant to the section was not discretionary, but was mandatory whenever the FLRA found that a union had committed an unfair labor practice by striking against the government, by picketing an agency and interfering with agency operations, or by condoning either forbidden picketing or work stoppage. 163 The House and Senate conferees settled upon a bill that, at least with respect to Title VII, closely tracked the House version. See H.R.Rep.No.1717, 95th Cong., 2d Sess. 152-59 (1978) (Conference Report), Legislative History at 820-27; 124 Cong.Rec. 38,713 (1978), Legislative History at 990 (statement of Rep. Ford). The houses were not in conflict over the language excluding striking unions from the definition of labor organizations, which was identical in both bills, and the conference did not alter that provision. The conferees did, however, make significant liberalizing changes in section 7217(e) of the Senate bill. The conferees eliminated picketing as a possible basis for its application, thereby limiting its reach to any strike, work stoppage, or slow-down. More important for our present purposes, the conferees made revocation of exclusive recognition status discretionary with the Federal Labor Relations Authority. See 5 U.S.C. § 7120(f) (Supp. IV 1980). 164 The Conference Report devoted only a single paragraph to discussion of section 7217(e) from the Senate bill and its transformation into the final section 7120(f). It stated: 165 The conference report adopts the Senate wording with an amendment. As agreed to by the conferees the provision will not apply to instances where the organization was involved in picketing activities. The amendment also specifies that the Authority may impose disciplinary action other than decertification. This is to allow for instances, such as a wildcat strike, where decertification would not be appropriate. In cases where the Authority finds a person has violated this provision, disciplinary action of some kind must be taken. The authority may take into account the extent to which the organization made efforts to prevent or stop the illegal activity in deciding whether the organization should be decertified. 166 H.R.Rep.No.1717, 95th Cong., 2d Sess. 156 (1978), Legislative History at 824. Both houses passed the conference version of the Civil Service Reform Act after only brief debates which did not touch upon section 7120(f). See 124 Cong.Rec. 33,388-90 (1978), Legislative History at 1039-41 (Senate passage); id. at 34,098-105 (1978), Legislative History at 985-89 (House passage). 167 As we read this statement from the Conference Report and consider as well the language and history of the Civil Service Reform Act, we conclude that Congress intended to grant the Federal Labor Relations Authority discretion to determine the appropriate disciplinary action for unions that commit unfair labor practices in violation of section 7116(b)(7). There are several important considerations that militate in favor of this conclusion. First, the Conference Report states that disciplinary action other than decertification may be appropriate in instances, such as a wildcat strike. By referring to instances and citing a wildcat strike as but a single example, the conferees apparently did not intend that example to be the only instance in which revocation would not follow. Had Congress intended wildcat strikes to be the only type of strike allowing a less severe penalty, the Conference Report and the section itself could have expressly so stated. They do not. 168 Second, if disciplinary action short of revocation applied only to wildcat strikes, the discretion expressly granted in subsection 7120(f)(2) would rarely, if ever, be exercised. If a strike or work slowdown was a wildcat action, then the union would not be in violation of section 7116(b)(7)(A) because, by definition, it had not called or participated in the strike. Further, if the union attempted to end the wildcat strike, then it would not be guilty of failing to take action to prevent or stop the strike and hence would not be in violation of section 7116(b)(7)(B). In that case, no discipline could be taken against the union, since the union would have committed no unfair labor practice. 78 Thus, providing for disciplinary measures short of revocation only in the case of wildcat strikes would often be meaningless. Courts, of course, are reluctant to adopt an interpretation of a statute that makes a portion superfluous. See, e.g., D. Ginsberg & Sons v. Popkin, 285 U.S. 204, 208, 52 S.Ct. 322, 323, 76 L.Ed. 521 (1932); Motor & Equipment Manufacturers Association v. EPA, 627 F.2d 1095, 1107-08 (D.C.Cir.1979), cert. denied, 446 U.S. 952, 100 S.Ct. 2917, 64 L.Ed.2d 808 (1980). We, too, are loathe to embrace such a construction and, therefore, do not read the Conference Report to limit the Authority's discretion only to cases of wildcat strikes. 169 Third, an interpretation of section 7120(f) limiting the Authority's discretion to an inquiry into whether the union made efforts to prevent or stop the strike must also be rejected. The final sentence of the quoted paragraph of the Conference Report clearly allows the Authority to consider this factor, but the sentence is phrased in permissive (i.e., may take into account) terms. Moreover, nothing in the sentence suggests that this factor, while likely to be highly relevant in many cases, must be the Authority's only concern. Indeed, the structure of section 7120(f) suggests just the opposite. Were efforts to prevent or stop the illegal activity the only relevant factor, Congress could have explicitly made revocation turn upon whether a union had violated section 7116(b)(7)(B) or, alternatively, upon whether it had violated both sections 7116(b)(7)(A) and 7116(b)(7)(B). Congress wrote neither of these simple formulations into law, but instead granted the FLRA the more general power to take any ... appropriate disciplinary action. 170 Finally, we note that our interpretation of the scope of the FLRA's discretion under section 7120(f) is wholly consistent with the other sections of the Act viewed in light of the legislative history. The general remedial authority of the FLRA under section 7118(a)(7) includes the power to order such ... action as will carry out the purpose of this chapter. 5 U.S.C. § 7118(a)(7)(D) (Supp. IV 1980). The Supreme Court has interpreted similar language in the National Labor Relations Act, 29 U.S.C. § 160(c) (1976), as granting the National Labor Relations Board broad remedial discretion in effectuating the purposes of that Act. See, e.g., Fibreboard Paper Products Corp. v. NLRB, 379 U.S. 203, 215-16, 85 S.Ct. 398, 405, 13 L.Ed.2d 233 (1964); Phelps Dodge Corp. v. NLRB, 313 U.S. 177, 194, 61 S.Ct. 845, 852, 85 L.Ed. 1271 (1941); accord, United Steelworkers of America v. NLRB, 646 F.2d 616, 629-30 (D.C.Cir.1981). The legislative history of the Civil Service Reform Act strongly suggests that Congress intended to grant similar discretion to the FLRA to remedy unfair labor practices, including union strikes, in the federal sector. See, e.g., H.R.Rep.No.1403, 95th Cong., 2d Sess. 53 (1978), Legislative History at 699; 124 Cong.Rec. 38,714 (1978), Legislative History at 992-93 (statement of Rep. Ford). 79 171 The legislative history also reveals that the discretion granted to the FLRA in section 7120(f) is not inconsistent with the exclusion of unions that participate in strikes from the definition of labor organization in section 7103(a)(4)(D). The brief House debate on the Erlenborn amendment-the only debate on or legislative elucidation of this subsection-clearly announces that the FLRA is vested with discretion in its application. See 124 Cong.Rec. 29,194 (1978), Legislative History at 946-47 (quoted at page 71 supra ). Therefore, contrary to first impressions from reading the definitional section, section 7103(a)(4)(D) reinforces, rather than detracts from, the conclusion that section 7120(f) vests the FLRA with discretion. 172 Thus, we conclude that section 7120(f) entrusts the Federal Labor Relations Authority with extensive authority to remedy illegal strikes, work stoppages and slowdowns by federal employee unions. The section clearly permits the FLRA to employ the extreme measure of revoking a union's exclusive recognition status-a remedy unknown to private sector labor law-if the union commits or condones any of these unfair labor practices. The Senate and House conferees' rejection of the Senate's section 7217(e), however, establishes that revocation is not intended to be mandatory. Further, we reject an interpretation of the Conference Report that would limit the FLRA's inquiry to a single issue or its discretion to a single type of violation. Rather, we hold that the FLRA has discretion under section 7120(f) to choose an appropriate remedy for any given violation of section 7116(b)(7) of the Civil Service Reform Act. 80 B. The FLRA's Exercise of Its Discretion 173 We have concluded that the FLRA has substantial discretion under section 7120(f) to decide whether or not to revoke the exclusive recognition status of a union found guilty by the FLRA of striking or condoning a strike against the government. A concomitant of this conclusion is that the courts have only a limited role in reviewing the FLRA's exercise of its remedial discretion. Section 7123(c) of the Civil Service Reform Act, 5 U.S.C. § 7123(c) (Supp. IV 1980), directs the court to review the Authority's orders in accordance with section 10(e) of the Administrative Procedure Act, 5 U.S.C. § 706 (1976). For our present purposes, therefore, we must determine whether the FLRA's revocation of PATCO's exclusive recognition status was arbitrary, capricious, (or) an abuse of discretion. Id. § 706(2)(A). Under this standard, our review is highly deferential and we need satisfy ourselves only that the agency has exercised a reasoned discretion, with reasons that do not deviate from or ignore the ascertainable legislative intent. Greater Boston Television Corp. v. FCC, 444 F.2d 841, 850 (D.C.Cir.1970) (footnote omitted), cert. denied, 403 U.S. 923, 91 S.Ct. 2229, 29 L.Ed.2d 701 (1971); see Ethyl Corp. v. EPA, 541 F.2d 1, 33-37 (D.C.Cir.) (en banc), cert. denied, 426 U.S. 941, 96 S.Ct. 2663, 49 L.Ed.2d 394 (1976). As with judicial review of remedial orders of the NLRB, we will uphold the remedial orders of the FLRA unless it can be shown that the order is a patent attempt to achieve ends other than those which can fairly be said to effectuate the policies of the Act. Virginia Electric & Power Co. v. NLRB, 319 U.S. 533, 540, 63 S.Ct. 1214, 1218, 87 L.Ed. 1568 (1943). 174 We have little trouble deciding that the FLRA did not abuse its discretion in this case. First, the FLRA could take official notice that PATCO has repeatedly violated legal prohibitions against striking and other job actions. In 1970, PATCO called a sick-out of the air traffic controllers subject to its exclusive representation. Extensive disruptions in air service resulted as approximately one quarter of the nation's air controllers reported in sick each day between March 24 and April 14 .... Miller v. Bond, 641 F.2d 997, 999 (D.C.Cir.1981) (per curiam). 81 In 1978, PATCO threatened a nationwide air traffic slowdown. Based on a stipulated record, the union was held in contempt for its actions. Air Transport Association v. Professional Air Traffic Controllers Organization, 453 F.Supp. 1287 (E.D.N.Y.), aff'd mem., 594 F.2d 851 (2d Cir. 1978), cert. denied, 441 U.S. 944, 99 S.Ct. 2163, 60 L.Ed.2d 1046 (1979). In 1980, PATCO controllers engaged in a work slowdown at Chicago's O'Hare Airport. United States v. Professional Air Traffic Controllers Organization, 653 F.2d 1134, 1136 (7th Cir.), cert. denied, 454 U.S. 1083, 102 S.Ct. 639, 70 L.Ed.2d 617 (1981). In August 1981, PATCO called the nationwide strike that gives rise to the present action. See text at notes 4-7 supra. 175 Second, all of PATCO's job actions after 1970 occurred while the union was subject to an injunction resulting from its 1970 strike that prohibited such actions. See Air Transport Association v. Professional Air Traffic Controllers Organization, 453 F.Supp. 1287 (E.D.N.Y.), aff'd mem., 594 F.2d 851 (2d Cir. 1978), cert. denied, 441 U.S. 944, 99 S.Ct. 2163, 60 L.Ed.2d 1046 (1979). Nor could PATCO have had any doubt about the continued validity of that injunction before it commenced its 1981 strike. After the effective date of the Civil Service Reform Act, PATCO petitioned the District Court for the Eastern District of New York for vacatur of its 1970 injunction on the ground that Title VII of the Act had deprived the District Court of jurisdiction to enjoin federal employee strikes. In June 1981, before the most recent strike began, the District Court reaffirmed the validity of its 1970 injunction and denied PATCO's motion. Air Transport Association v. Professional Air Traffic Controllers Organization, 516 F.Supp. 1108 (E.D.N.Y.), aff'd, 667 F.2d 316 (2d Cir. 1981). 176 Third, after PATCO struck on August 3, 1981, additional restraining orders and injunctions directed only at this strike issued. See notes 5-6 supra. PATCO openly defied these injunctions as well. 177 Finally, PATCO's actions before and after August 3, 1981, can only be characterized as defiant. The union threatened its strike, then willfully and intentionally called and participated in it. After the strike commenced, PATCO made no attempt to end it; indeed, PATCO condoned and encouraged it. Even after the striking controllers had been terminated and a majority of the Authority had ordered revocation of its exclusive recognition status, PATCO failed to satisfy Chairman Haughton's request that it end the strike and promise to abide by the no-strike provisions of the Civil Service Reform Act. 178 In these circumstances the FLRA's decision to revoke PATCO's exclusive recognition status was not an abuse of discretion. The union is a repeat offender that has willfully ignored statutory proscriptions and judicial injunctions. It has shown little or no likelihood of abiding by the legal requirements of labor-management relations in the federal sector. If the extreme remedy that Congress enacted cannot properly be applied to this case, we doubt that it could ever properly be invoked. C. Evidence of Mitigating Factors 179 PATCO argues on appeal that the FLRA's revocation order must be rejected because the A.L.J. and the Authority failed to grant PATCO a continuance to enable the union to gather and prepare evidence in mitigation of the requested remedy. In the hearings before the A.L.J., PATCO suggested that, if given time, it might produce evidence 82 regarding its claims that the FAA had refused to bargain in good faith, that working conditions for PATCO members were unsafe, and that antiunion animus existed within the FAA. PATCO contends that it was not given the opportunity to prepare this evidence and, as a consequence, it was improperly prevented from presenting and substantiating mitigating factors that were relevant to the exercise of the FLRA's remedial discretion. PATCO claims further that, because of the denial of the requested continuance, the record before the Authority was incomplete, and, therefore, the Authority's decision cannot stand. 180 At the outset, we note that whatever evidence PATCO might have offered could serve only in mitigation of the FLRA's ordered remedy and not as justification of PATCO's actions. Even if mitigating evidence was improperly excluded, it would not affect the conclusion that PATCO committed unfair labor practices in violation of sections 7116(b)(7)(A) and 7116(b)(7)(B). 83 In addition, we note that the Civil Service Reform Act, unlike some state public employee relations acts, does not specifically provide for consideration of the types of mitigating circumstances pointed to by PATCO in this case. 84 Despite the absence of any clear statutory provision for the consideration of the mitigating evidence suggested by PATCO, we do not suggest that such evidence could never be relevant to the exercise of the FLRA's discretion under section 7120(f). Given the Authority's broad discretion, in a particular case evidence of prolonged unsafe working conditions, extreme agency provocation or agency intransigence might affect the Authority's determination of the appropriate remedy under section 7120(f), even though it could not justify a strike in any circumstances. 181 In the present case, however, we do not believe that the FLRA abused its discretion by excluding potentially probative evidence of mitigating circumstances. First, based on the record before us we do not find that PATCO made any satisfactory proffer of evidence in mitigation. The A.L.J. repeatedly tried to discern what evidence PATCO intended to offer in response to the case presented by the FLRA General Counsel. PATCO indicated that it might or might not introduce evidence, and that if it did, that evidence would be in an attempt to mitigate the remedy. PATCO made several suggestions of the type of mitigating evidence it might bring forward, but failed to describe in any detail the nature, content or scope of the evidence. 85 PATCO was required, however, to do more than this in order to make an offer of proof. An offer of proof must consist of specific evidence that the party proposes to introduce, rather than mere argument and conclusory allegations. See, e.g., Duncan Foundry & Machine Works v. NLRB, 458 F.2d 933, 937 (7th Cir. 1972); Amalgamated Clothing Workers of America v. NLRB, 424 F.2d 818, 827-28 (D.C.Cir.1970). 86 In its only proffer that approached this standard, PATCO suggested that it would call certain FAA officials to establish the nature of the air traffic controllers' working conditions, but it did not identify the officials or request subpoenas from the A.L.J. Nor did PATCO identify the testimony it intended to elicit from these adverse, potentially hostile, witnesses. Therefore, this attempt to make an offer of proof also lacked substance. See UAW v. NLRB, 231 F.2d 237, 242-43 (7th Cir.), cert. denied, 352 U.S. 908, 77 S.Ct. 146, 1 L.Ed.2d 117 (1956). PATCO's other suggestions of mitigating evidence were even more vague and conclusory; thus, they also failed to constitute valid offers of proof. 87 182 Second, given the nature of the evidence PATCO indicated it might produce, we do not believe that the A.L.J. erred in denying PATCO a continuance to develop its case in mitigation of the remedy. It is well established that the grant or denial of a continuance is within the discretion of the ALJ and will not be overturned absent a clear showing of abuse. NLRB v. Pan Scape Corp., 607 F.2d 198, 201 (7th Cir. 1979). In reaching this decision, the A.L.J. may properly consider the length of the delay requested, the potential adverse effects of that delay, the possible prejudice to the moving party if denied the delay, and the importance of the testimony that may be adduced if the delay is granted. See Consolidated Edison Co. v. NLRB, 305 U.S. 197, 226, 59 S.Ct. 206, 215, 83 L.Ed. 126 (1938); NLRB v. Interboro Contractors, 432 F.2d 854, 860 (2d Cir. 1970), cert. denied, 402 U.S. 915, 91 S.Ct. 1375, 28 L.Ed.2d 661 (1971); NLRB v. Sagamore Shirt Co., 401 F.2d 925, 928 (D.C.Cir.1968) (per curiam). 183 In this case, PATCO requested a thirty-day continuance. At the time of the hearings before the A.L.J., however, the PATCO strike was of some moment. The strike was arguably the most serious unfair labor practice in the federal sector since the enactment of the Civil Service Reform Act. The FLRA General Counsel's prosecution of the unfair labor practice charges was part of a government-wide response to PATCO's national strike. If prompt legal response were impossible in these circumstances, it is likely that Congress' carefully legislated scheme of sanctions in the Civil Service Reform Act would lose much of its credibility, both with federal employee unions and with the public. 184 Nor can we conclude that PATCO was unfairly prejudiced by the necessarily expeditious treatment given to this case. On at least two occasions during the hearings before the A.L.J., PATCO counsel noted that he could not guarantee that PATCO would present any evidence in mitigation of the remedy even if given a year to prepare its case. 88 These predictions now appear close to being accurate. PATCO did not identify in any greater detail its mitigating evidence in its briefs before the FLRA, submitted three weeks after the A.L.J. proceedings. Neither has PATCO identified in its briefs before this court, filed over three and six months after the A.L.J. proceedings, the specific evidence that it would have offered in mitigation. 185 In addition, PATCO can hardly claim surprise at the unfair labor practice charges or suggest a lack of opportunity to prepare for the FLRA proceedings. PATCO had been negotiating with the FAA over a new contract for several months. Certainly, the issues that PATCO sought to raise in mitigation of the remedy-the safety of its members' working conditions and the alleged antiunion animus of the FAA during bargaining-were raised or perceived during those negotiations. PATCO concurrently filed an unfair labor practice charge against the FAA stemming from those same negotiations; therefore, whatever factual basis the union had for those charges could not have required an additional thirty days of preparation before it could be presented to the A.L.J., at least by way of proffer. Cf. NLRB v. Interboro Contractors, 432 F.2d 854, 860 (2d Cir. 1970) (whatever evidence Respondent sought to introduce was already within its control), cert. denied, 402 U.S. 915, 91 S.Ct. 1375, 28 L.Ed.2d 661 (1971). Moreover, PATCO had been threatening to strike for several months prior to the actual strike. Accordingly, PATCO clearly had ample notice of the need for and opportunity to gather evidence with respect to such allegedly mitigating circumstances. PATCO at 25. 186 Finally, we believe that the Authority could decide that the evidence PATCO indicated it might offer in mitigation would not be sufficiently exculpatory to justify a prolonged delay. As noted above, it does not appear from the record that PATCO had specific mitigating evidence in mind when it requested a continuance from the A.L.J. Furthermore, despite the relevance of the mitigating factors suggested by PATCO, the Authority could reasonably conclude that in this case the factors would be overridden by the extreme nature of PATCO's violation. As Chairman Haughton stated: 187 Despite my concern that all relevant evidence going to the remedy is not before us at this time, one overriding fact is clear-PATCO has not made any attempt to end the strike. Unless it ends the strike forthwith, and immediately represents to the Authority that it intends to abide by the no-strike provisions of the Statute, I would view any additional evidence as having no mitigating effect on the penalty to be imposed. 188 PATCO at 35. 189 All things considered, we do not believe that the actions of the FLRA are subject to any serious challenge. For the reasons cited above, we hold that it was not an abuse of discretion for the FLRA to deny PATCO's requested continuance and to reach its decision based on the evidence before it and upon the arguments in mitigation presented in PATCO's brief. 89