Opinion ID: 502436
Heading Depth: 2
Heading Rank: 2

Heading: Necessity of the Data

Text: 24 The Shipyard contends that even if disclosure is not prohibited by law, the Union has not shown that the names and addresses of unit employees meet all the other requirements of 5 U.S.C. Sec. 7114(b)(4)(B). Although the Shipyard concedes that the data is reasonably available, it contends that the names and addresses are not necessary for full and proper discussion, understanding, and negotiation of subjects within the scope of collective bargaining. 5 U.S.C. Sec. 7114(b)(4)(B). It argues that adequate alternative means of communication are available and that the term collective bargaining under the statute refer[s] only to the actual process of contract negotiations and agreement respecting 'conditions of employment,' and not any subsequent representational or other activities on behalf of its members. Petitioner's Brief at 45-46 (quoting 5 U.S.C. Sec. 7103(a)(12)). It contends that inasmuch as an employee's name and home address is not one of the conditions of employment, it is not subject to release under section 7114(b)(4)(B). 25 Both of these objections have been rejected by every court of appeals that has decided the name and home address issue. See USDA v. FLRA, 836 F.2d 1139, 1142 (8th Cir.1988); United States Dep't of Health and Human Services v. FLRA, 833 F.2d 1129, 1133 (4th Cir.1987); cf. Local 1760, 786 F.2d at 557 (upholding without detailed explanation the ALJ's finding that data met the requirements for release of Sec. 7114(b)(4)); United States Dep't of the Air Force v. FLRA, 838 F.2d 229 (7th Cir.1988) (following Local 1760 ). We agree. 26 The statute defines collective bargaining as 27 the performance of the mutual obligation of the representative of an agency and the exclusive representative of employees ... to meet at reasonable times and to consult and bargain in a good-faith effort to reach agreement with respect to the conditions of employment affecting such employees and to execute, if requested by either party, a written document incorporating any collective bargaining agreement reached ...; 28 5 U.S.C. Sec. 7103(a)(12). 29 The FLRA, to whom we owe deference on the construction of the statute, has taken a broad view of the scope of collective bargaining and what is necessary to facilitate it. See, e.g., United States Equal Opportunity Commission, 20 F.L.R.A. 357, 359 (1985) (ordering disclosure of data needed for deciding whether to file a grievance under collective bargaining agreement); National Weather Service, Silver Spring, Maryland, 21 F.L.R.A. 455, 456 (1986) (information relating to employee appraisal system necessary for impact and implementation bargaining); see also American Fed'n of Gov't Employees v. FLRA, 811 F.2d 769, 774-75 (2d Cir.1987) (union request related to existing or potential grievance was within Sec. 7114(b)(4)). 30 In FHAFO II, the FLRA drew on private sector precedent under the National Labor Relations Act holding that the release of names and addresses of employees is a part of the statutory requirement to bargain in good faith. See FHAFO II, 23 F.L.R.A. at 797 n. 3 (citing Prudential Ins. Co. of America v. NLRB, 412 F.2d 77, 84 (2d Cir.) (union entitled to list of names and addresses for communication purposes), cert. denied, 396 U.S. 928, 90 S.Ct. 263, 24 L.Ed.2d 226 (1969), and NLRB v. Acme Industrial Co., 385 U.S. 432, 436, 87 S.Ct. 565, 568, 17 L.Ed.2d 495 (1967) (duty to bargain under the NLRA unquestionably extends beyond the period of contract negotiations and applies to labor-management relations during the term of an agreement) (citations omitted)). NLRB cases, although lacking the full force of precedent in a Fed'l L-M Statute matter, provide useful guidance. Library of Congress v. FLRA, 699 F.2d 1280, 1286-87 (D.C.Cir.1983); see United States Dep't of Health and Human Services v. FLRA, 833 F.2d 1129, 1132 (4th Cir.1987). Because a union must have the information necessary to fulfill its statutory responsibility to represent all employees in the unit, we conclude that the FLRA did not err in holding that the requested information is necessary within the meaning of 5 U.S.C. Sec. 7114(b)(4)(B). 31 The Shipyard also argues that the FLRA has impermissibly established a per se rule requiring release to unions of the requested names and addresses without consideration of alternatives. In FHAFO II, the FLRA decided that there will ordinarily be valid reasons for a union to communicate directly with unit employees, and that disclosure of their names and addresses is necessary to facilitate such communication. The FLRA explained its position as follows: 32 [I]t is not necessary for us to examine the adequacy of alternative means in cases involving requests for names and home addresses because the communication between unit employees and their exclusive representative which would be facilitated ... is fundamentally different from other communication through alternative means which are controlled in large part by the agency. When using direct mailings, the content, timing, and frequency of the communication is completely within the discretion of the union and there is no possibility of agency interference.... Further, direct mailings reach unit employees in circumstances where those employees may consider the union's communication without regard to the time constraints inherent in their work environments.... 33 FHAFO II, 23 F.L.R.A. at 796-97. While some of this language in isolation may suggest that the FLRA has created the presumption posited by the Shipyard, it argues that in each case it has considered the alternative means available. Transcript of Oral Argument at 33-34. Thus, we understand that an agency in an appropriate case may argue that under the special circumstances there, the alternative means are adequate. 34 The FLRA's determination that direct mail by a union to the unit employees has unique advantages is not unreasonable. Although the Shipyard stresses that this represents a change from the agency's earlier position, the FLRA has explained that it changed its initial position in light of amicus briefs on the name and address issue received pursuant to a notice in the Federal Register, 51 Fed.Reg. 21,416 (June 12, 1986). Since notice and comment are designed to give the agency an opportunity to reconsider its position, we cannot fault it when it does precisely that. Moreover, because in this case the FLRA's conclusion that the alternative means of communication are inadequate is amply supported by the record, we need not decide whether alternative means might, under a different fact pattern, require a different result.