Document: 485 U.S. 409 108 S.Ct. 1261 99 L.Ed.2d 470 FEDERAL LABOR RELATIONS AUTHORITY, Petitionerv.ABERDEEN PROVING GROUND, DEPARTMENT OF THE ARMY. No. 86-1715. April 4, 1988. PER CURIAM. 1 The Federal Service Labor-Management Relations Statute, Title VII of the Civil Reform Act 1978, 5 U.S.C. § 7101 et seq., protects right federal employees "to form, join, or assist any labor organization, to refrain from such activity," 7102, and requires that agencies organizations bargain in good faith concerning terms conditions employment, §§ 7114, 7116(a)(5), (b)(5). Recognizing "the special requirements needs Government," 7101(b), exempts certain matters duty negotiate. One exemption provides an agency's extends which are subject agency rule regulation . only if [Federal Labor Authority (Authority) ] has determined under subsection (b) this section no compelling need exists for regulation." 7117(a)(2). Subsection specifies detailed procedures determining whether there is a "compelling need" regulation. We granted certiorari resolve conflict between Circuits as 7117(b) exclusive procedure alternatively may make determination connection with unfair practice (ULP) proceeding. 484 813, 64, 98 28 (1987).* 2 In September 1981, respondent, Aberdeen Proving Ground, notified its employees' union representatives intended curtail operations three days after Thanksgiving, November 27-29, that, result, would be placed on forced annual leave Friday, 27. Thereafter, met discuss procedures. Union requested instead administrative leave; management replied was not permitted by relevant rules regulations issue "verges nonnegotiability." 21 F.L.R.A. 826, 829 (1982). 3 then filed ULP charge Authority, Authority's General Counsel issued complaint alleging Aberdeen's refusal negotiate union's proposal failure faith. Administrative Law Judge held favor, concluding inconsistent thus negotiations because had previously regulations. Id., at 834. reversed, holding properly where Government employer undertakes unilateral change even though been determination. view, cases unified 814, 816-820 (1986). Finding justified need, violated See 7116(a)(1) (a)(5). 4 Court Appeals summarily reversed authority prior decision Army Engineer Center v. FLRA, 762 F.2d (CA4 1985). wrote "an examination history, policies, and, above all, language persuades us Congress meant negotiability appeal sole means question statute." F.2d, 417. agree both analysis conclusion Appeals. plain unambiguously matter covered regulation, arises until first justifies adherence Section 7117(a)(2) states unequivocally "[t]he shall extend (Emphasis supplied.) As noted, statute condition precedent. 413. phrase "only if" denotes exclusivity; it does suggest one multiple options. Moreover, words "has section" clearly refer event come pass. Thus, arise occurred. further confirms reading statute. Here, again speaks mandatory terms: "In case collective bargaining representative alleges effect governs bargaining, determine paragraph (2) exists." 6 This fully consistent with—if compelled by—the legislative history asserted purpose strives achieve balance rights collectively paramount public interest effective conduct public's business." Message President Transmitting A Draft Proposed Legislation Laws (1978), Legislative History 1978 (Committee Print compiled House Committee Post Office Service) 96-7, p. 626 (1979) (Leg.Hist.); see also 124 Cong.Rec. 25600-25601, 25613-25614 (1978) (remarks Rep. Clay), Leg.Hist. 842-845. 7 carefully constructed strike balance. Under provided clarify scope bargain; refuses bargain, seek relief through At same time, designed promote government. For instance, appeal, but forum, necessary party, 7117(b)(4); 7117(b)(3); presented directly rather than law judge, CFR pt. 2424 (1987). hearing expedited proceeding, 7117(b)(3), resolving doubt controlling promptly practicable. Most importantly, requiring resolved exclusively allows act accordance their without overriding apprehension might result sanctions 7118(a)(7). To allow adjudicated context frustrate careful disregard Congress' direction "be interpreted manner requirement efficient Government." 7101(b). 8 Although "reviewing courts should uphold reasonable defensible constructions enabling Act, they must 'rubber-stamp decisions deem statutory mandate congressional policy underlying statute.' " Bureau Alcohol, Tobacco Firearms 464 89, 97, 104 439, 444, 78 195 (1983), quoting NLRB Brown, 380 278, 291-292 (1965). concluded acted inconsistently permitting resolution forum. 9 judgment accordingly 10 Affirmed. * Compare Defense Logistics Agency 244 U.S.App.D.C. 22, 754 1003 (1985) (permissible either forum cases), 1985) (§ need).

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