Opinion ID: 513340
Heading Depth: 2
Heading Rank: 2

Heading: Compelling Need

Text: 35 As stated above, no duty to bargain exists over proposals that conflict with an agency regulation for which a compelling need exists. 5 U.S.C. Sec. 7117(a)(2) (1980). The Army contends that the Union's proposals conflict with Army Regulation 352-3,1-7 and that a compelling need exists for this regulation. This regulation requires the dependents schools' salary schedules to equal those of the local schools to the maximum extent practicable. 6 Because some of the Union's proposals conflict with this regulation, we must decide whether a compelling need exists for this regulation. 7 36 The FLRA and the Second Circuit have concluded that no compelling need exists for this regulation. A compelling need exists if the rule or regulation is essential, as distinguished from helpful or desirable, to the accomplishment ... of functions of the [Army].... [or] the rule or regulation implements a mandate to the [Army] ... under law ... which implementation is essentially nondiscretionary in nature. 5 C.F.R. Sec. 2424.11(a) & (c) (1986). We agree with the FLRA and the Second Circuit that Army Regulation 352-3, 1-7 does not implement a mandate to the Army because as discussed above, section 241 does not require the Army to compensate its school employees according to local public school practices. Accord West Point Elementary School Teachers Assoc., at 943. Similarly, this regulation is not essential to the Army providing a comparable education at a comparable cost per pupil. As the Second Circuit recently concluded, the Army can achieve both of these goals notwithstanding large variations in the employees' wages because many expenses beyond their salaries enter into the per pupil expenditures. West Point Elementary School Teachers Assoc., at 943. For example, books, building maintenance, athletic programs, clubs, and lunch services also enter into this calculation. Many factors other than teachers' compensation also affect the quality of education. Moreover, section 241 requires equality only to the maximum extent possible, not exact equality. Consequently, the Army has not established a compelling need for this regulation.