Document: 472 U.S. 648 105 S.Ct. 2882 86 L.Ed.2d 515 Loretta CORNELIUS, Acting Director, Office of Personnel Management, Petitionerv.Allison E. NUTT et al. No. 83-1673. Argued Jan. 7, 1985. Decided June 24, Syllabus Under the Civil Service Reform Act 1978 (Act), a federal employee may challenge agency disciplinary action by appealing agency's decision to Merit Systems Protection Board (Board), or if he is member employees' labor union may, in alternative, through any grievance and arbitration procedure provided collective-bargaining agreement between union. 5 U.S.C. § 7701(c)(2)(A), not sustain "shows harmful error application procedures arriving at such decision." The also requires an arbitrator apply this "harmful-error" rule under bargaining agreement. Two employees General Services Administration (GSA), members having with GSA, were removed from their jobs for falsification records other reasons. When first interrogated about wrongdoing, later when they admitted it sworn affidavits, advised that entitled have representative present. did receive notices proposed removal until almost three months after wrongdoing. challenged removals agreement's procedures. arbitrator, while finding wrongdoing normally would justify removal, found GSA had committed procedural errors violation failing give opportunity present during interrogation unreasonably delaying issuance removal. concluded that, although prejudice employees, just cause. Accordingly, reduced penalties two weeks' suspension without pay. Court Appeals affirmed substantial part, holding prejudiced, making ultimate award, could take into account significant violations important union, because tantamount "harmful error" within scope 7701(c)(2)(A). ruled reduction was proper means "penalizing agency" disregarding protections. Held: employee-grievant must show caused his individual rights possibly affecting decision. Pp. 657-665. (a) has so interpreted 7701(c)(2)(A) its regulation defining error," interpretation deference. To different definition arbitral context than proceeding as permit overturn on basis only directly contravene Act's purpose promoting consistency resolving grievances avoiding forum shopping. 657-662. (b) Moreover, be interprets underlying maintaining effective efficient Government, particular 7701 agencies greater ability remove discipline erring expeditiously, are carried out. strengthening unions process more undermined Board's context. rule, free bargain govern actions, follow agreed-upon If violates these employee's rights, resulting will reversed. Whether there employee, file own behalf and, case clear breach agreement, unfair practice charge Federal Labor Relations Authority. Thus, adequate remedies enforcing compliance requirements 662-665. 718 F.2d 1048 (CA Fed.1983), Charles A. Rothfeld, Washington, D.C., petitioner, pro hac vice, special order Court. Hobbie, respondents. Justice BLACKMUN delivered opinion 1 1978, Pub.L. 95-454, 92 Stat. 1111, (Board). If, however, unit he, pursuing Neither nor statute require causes This presents issue whether should arbitration, or, phrase another way, 2 * "a comprehensive revision laws governing obligations civil servants, [and] contains statutory scheme relations employees." Bureau Alcohol, Tobacco Firearms v. FLRA, 464 89, 91, 104 439, 441, 78 195 (1983). Among major purposes "preser[vation of] managers maintain 'an Government,' " ibid., quoting 7101(b), "strengthen[ing position [making] instrument public interest," U.S., 107, S.Ct., 449. 3 promote purposes, provides otherwise disciplined unacceptable performance misconduct. Specifically, 4303 establishes which demote whose unacceptable. In addition, 7512 adverse against including 14 days, grade pay, furlough 30 days less, for, 7513 states, "such cause efficiency service," A subjected taken pursuant appeal Board. §§ 4303(e), 7513(d), 7701. supported appropriate evidence. 7701(c)(1).1 sustained, 7701(c)(2)(A).2 4 second Act—"to strengthen make interest"—the representing "negotiate over terms conditions employment, unless proposal inconsistent existing law, regulation." 92, 441. Even matters reserved agency-management discretion, discipline, subject negotiation concerning management officials observe exercising authority. 7106(b)(2). provide binding resolution disputes arising 7121(a) (b). An negotiated covers thus elect filing rather 7121(e)(1). elects proceed, invokes see 7121(b)(3)(C), same substantive standards matter been appealed. See S.Rep. 95-969, p. 111 (1978); H.R.Conf.Rep. 95-1717, 157 (1978), U.S.Code Cong. & Admin.News 2723. particular, provides: "In covered sections . raised ., shall governed section 7701(c)(1). ." 7121(e)(2). Section 7701(c)(1) incorporates reference provisions subsection (c)(2), harmful-error rule. mandates challenges arbitration.3 II 6 Thomas Rogers Robert Wilson, Jr. (grievants), employed (GSA) Protective (FPS) officers Center Denver, Colo. patrolled property owned leased Government various locations Denver metropolitan area contact either radio telephone Command Center. Wilson worked dispatcher Everything spoken lines recorded tape. tape constitutes record activity 7 On January 1982, patrol official car. At request shift supervisor, drove home nearby suburb, picked up several cans beer, beer supervisor drank left empty went off duty. following day, duty, became concerned unexplained presence might lead discovery drinking He therefore telephoned Center, instructed him alter previous day include false explanation cans. complied request. 8 Subsequently, FPS monitoring tapes unrelated reason noted irregularities them edited. GSA's Inspector initiated investigation. agents Rogers' asked accompany local police station "noncustodial" interrogation. made detailed notes interview. interviewed manner. interview, neither requested representative. 9 About month later, again men separately sign affidavits prepared agents' earlier interviews. grievants corrections then, oath, signed them. participation above-described incidents As before, present, representation. 10 April 2, incidents, formally service. Upon receiving written responses charges, informed grounds attempting conceal activities record. Similarly, records, failure report irregularities, use vehicle non-official purpose.4 11 Both elected established respondent American Federation Employees. then invoked 7121(b)(3)(C). Nutt, alleged acts misconduct penalty found, part First, failed interrogation.5 Second, permitted unreasonable period time elapse date learned issued removal.6 no themselves due delay notices. nevertheless, "[s]olely Agency's pervasive comply [collective-bargaining] agreement." App. Pet. Cert. 38a. imposed less Id., 39a. required placed protected "demonstrated proclivity tamper recording system." 12 Pursuant 7703(d) 7121(f), Director Management sought review arbitrator's United States Circuit. 28 1295(a)(9). contended properly applied granted petition review, heard 5-judge panel. court part. It held standard determining grievant personally prejudiced. case, Nevertheless, what deemed Devine White, 225 U.S.App.D.C. 179, 697 421 (1983),7 hold even though adversely affected, reasoned: "The (if major) party interests protected, not, alone, call protection" (emphasis original). F.2d, 1054. Here, agreed safeguards representation notice, effectively rights. "[v]iolations explicit contained contract, these, fairly said 'harmful error' (1982) collective party." 1055. grievants' protections agreement.8 Ibid. 13 Because importance issue, we certiorari. 469 814, 78, 83 26 (1984). III appealable sustained Petitioner argues 15 does define term error,"9 legislative history inconclusive.10 provides, "may prescribe regulations carry out [§ 7701]," provision appears. 7701(j). authority, promulgated error": 16 "Error which, absence cure error, reach conclusion one reached. burden upon appellant based whole harmful, i.e., harm his/her rights." CFR 1201.56(c)(3) (1985).11 17 "procedures" considered applying statute, regulation,12 but union.13 Board, bargained-for result action's being overturned, affected employee. least insofar applies proceedings before deference.14 Chevron U.S.A. Inc. Natural Resources Defense Council, Inc., 467 837, 844, 2778, 2782, 81 694 18 Respondents do dispute correctness argue, differs significantly proceeding, point solely applicant 7701(a), role proceeding. contrast, according respondents, arbitration. negotiate establishing extent possess exclusive power invoke process, parties jointly select acceptable arbitrator.15 focus exclusively broader view consider well. contend correctly "the can affected." 19 We persuaded respondents' arguments. Congress clearly intended rules reviewing 7121(e)(2) involving "which title, applicable." Senate Report explains provision, "if exercises option pursue [involving discipline] deciding administrative law judge appeals officer appealed appellate 7701." 2833. version bill passed House contain similar provision. Conference Committee "when considering [Board] proof actions Board." 2891. "adopted issues, avoid shopping."16 20 Adoption congressional intent. who prove substantially prejudiced interpretation, obtain reversal merely showing occurred. discharges Because, pursued procedures, benefited advocated respondents Appeals, replaced brief suspensions. claim violated guaranteed tend forum—the treats favorably. very inconsistency shopping avoid. B 21 We, rest our deference intent Rather, ultimately interpret 'to remain faithful central enactment CSRA.' Lindahl 470 768, 794, 1620, 1635, 84 674 (1985), U.S.App.D.C., 183, 425. above, "preserv[e] Government.' 7101(b). achieve purpose, "central tasks" "[a]llow servants able hired fired easily, right reasons." 2726. Act, "to expeditiously engage misconduct, work unacceptable." 51.17 concededly improper justified Although errors, those cast doubt reliability factfinding believe force retain "penalize nonprejudicial mistakes Government. 22 penalizing manner necessary enforce arrived bargaining, interest." shown sense really become meaningless. find concern overstated. action, 7106(b)(2) (3), obligated reversed arbitrator. 23 prejudicial remedy. permits behalf. 7121(b)(3)(A). broadly defines "grievance" "any complaint organization effect breach, 7103(a)(9)(C)(i). authorization alleging agreement.18 remedy ordering "cease desist" further violation. patent agreement," Iowa National Guard Bureau, F.L.R.A. 500, 510 (1982), Authority.19 711620 7118. Our today prevent obtaining disputed compelling forcing reliably determined unfit 24 judgment 25 ordered. POWELL took case. 27 MARSHALL, whom BRENNAN joins, dissenting. Today holds collectively bargained ignore possibility sustaining injurious legitimate integrity process. Following Congress' healthy serves conduct business, I agree injures union's role. dissent. 29 passing declared "labor organizations service 7101(a). study "experience both private employment," "bargain collectively, participate decisions affect contributes business." One goals effectuate policy framework system 7101 seq. principal spheres where "procedures taking employees. added). agreements covering union-invoked "binding arbitration." involves officers. accused serious "committed enumerated" "under normal circumstances [those would] government service." 32a. But behavior reaching plagued "pervasive contractual repeatedly inform all investigatory officers' prior unambiguously employer availability "unrealistic pretend Grievants entirely unaware representation," id., 34a-35a, some modification denigration requirements. 31 Court's view, requirement complaining associated "sho[w] rejects Circuit, injury stemming contract," 1048, 1055 (1983), error." Instead, prohibits consideration "affect employee." Ante, 659. wording offered today, language history, arbitrators may—because refusal honor decisions—result continued stability union-agency relations. By requiring factor, undermines gain sector benefits derived stable bargaining. 32 analyzes concept criminal trial.1 narrowly fact accused. mandate simply misconduct; 7513(a). flexible easily encompasses desire assure relationships agencies,2 accordingly, relevant error.3 33 service" pre-dates recognition Arnett Kennedy, 416 134, 158-164, 94 1633, 1646-1649, 40 (1974) (plurality opinion) (discussing phrase). Nonetheless always understood "admittedly general standard," 159, 1647, adaptable situations faced "myriad performing widely disparate tasks." certainly meant leave room evolving conceptions management. plurality previously explained "longstanding principles employer-employee relationships, like developed sector, followed interpreting [standard]," 160, takes light success serve example workplace. looks "just cause" unionized confines inquiry findings passage concerns evaluation "cause" proper.4 34 discussion leaves unanalyzed interest fails analysis Instead principally rests "one 'central tasks' '[a]llow easily.' 662 (quoting 2726). 35 reasons "concededly defeat reinstatement "do "efficiency included possible injuries agency. Given determination business," 7101(a), cannot quickly involved seriously, indeed called question.5 36 true facilitating goal Tobacco, (1983) 7101(b)), These influenced many aspects governance Indeed, explicitly "management rights" authority suspend, remove, reduce 7106(a)(2)(A). establish [its] authority" area, 7106(b)(2), makes well severely limit management's freedom discipline.6 37 While underemphasizes overemphasizes allowing stand. common trivial putting people back positions harm; returned harm. 38 "pervasive," 38a, affirmed. "violations union." standard, prohibited reversing technical contract enough injure Brisco, 733 867 Fed.1984) (reversing seriously compromise position). 39 will, hoped, frequently commit flagrant agreements. Nutt great. perceives need flexibility, seek congressionally sanctioned means—the 201, 421, 443 ("Within areas permissible, believe, Congress, competent look government's interests"). Lastly, here return unqualified old position. grieving trusted perform adequately position, gave flexibility capacity reinstated. 38a-39a (allowing reinstate nonclerical "he reasonably expected satisfactorily" entrance level). 41 wrong fear undermine Government's incorporate actions. Giving business displace ignores concerns, invalid. formulating instances abstract rendered deserving action.7 IV 42 work-force interest, "cause slightly complex. complexity long successful operation 43 reads: "Subject paragraph (2) subsection, decision— "(A) described evidence, "(B) preponderance evidence." 7701(c)(2) "Notwithstanding (1), employment— shows decision; personnel 2302(b) title; "(C) accordance law." refers 7701(c)(1), discussed below, incorporated 199, 441 867, 872 Fed.1984). concede differently contexts. incident discharged. His discharge upheld Article XXVII, Employer agrees formal statements connection him, counseling sessions discussions." 22a. investigated. 3, supplemented, pertinent part: "PROPOSED NOTICE: event notice afforded aware served employee(s) reasonable (normally calendar days) occurrence offense becomes known management." 23a. District Columbia Circuit are, definition, absent outcome 443. White protect dispenses likelihood approve suspension, since statutorily minimum month's unauthorized vehicle. 1349(b). ordered imposition one-month's Rogers. 1055-1056. natural, assume meaning judicial context, is, See, e.g., Hasting, 461 499, 507-509, 103 1974, 1979-1980, 76 96 (1983); Kotteakos States, 328 750, 760-762, 66 1239, 1245-1246, 90 L.Ed. 1557 (1946). original "agency judge, unless—(A) impaired 224 179. explains: "Henceforth, courts reverse new title prejudiced." 51. 54, 64. refer Report, state 111. focused suggest affirmatively adopt version. points Joint Explanatory Statement Conference, managers" bodies, 127 2860, note change language. decline, infer substance silence. Parker Logistics Agency, M.S.P.B. 489, 493, M.S.P.R. 505, 513 (1980), explained: "Unless likely result, prejudicial. Stated question range appreciable probability agency." also, Davies Department Navy, 83, 85, 565, 568 (1980); Fuiava Justice, 217, 218, 103, 106 (1980). M.S.B.P., 492-496, M.S.P.R., 512-517. Stalkfleet Postal Service, 536, 537, 637, 641 (1981); Battaglia Health Human Services, 212, 152 Giesler Transportation, 367, 368-369, 277, 279-281 aff'd, 686 844 (CA10 1982). approved construction Miguel Army, 727 1081, 1084-1086 (1984); Cheney 720 1280, 1285 Shaw 1078, 1080-1081 hand, initial election all, 7121(e)(1), decision, 7703(a)(1). Also, plain bears error. "in decided Board," expressly conformity 52 (1978) 2774 (provisions eliminate unwarranted reversals actions"); 54 "avoid unnecessary oversights"). argue duplicative proceedings. There why, institutional arise factual situation, consolidated constraint windfall penalize violating whenever "on February 4, patently breached applicable advise Union present." Reply Memorandum 4a. Regional She differing arguable interpretations contracts' meanings, appropriately resolved parties' grievance/arbitration forum." 6a. unclear, favorable cease-and-desist invoking Any subsequent charge. 7116(d) precludes when, initiates situation. states: "Issues practices section. Except wherein, 7121(e) (f) using procedure, issues discretion aggrieved party, section, procedures." raise identical practice. preclude independent Internal Revenue Western Region, 480, 480-481 n. (1982); Air Force, 512, 527 ante, 657, ("assum[ing] context" citing cases, (1946), standard). infra. Cf. supra, 1245-1246 (in evaluating "[w]hat another; minor unimportant setting crucial another"). below alone recognizing relevance heart Writing court, Judge Edwards constitute theory argued certain reflects "attached considerable importance" allow stand, "substantial employee," "would ensure government, receiv[e] flow bargaining." Arbitrator rested modify accepted standard. 36a. ("This approach most future"). conform generally Telephone Co., Lab.Arb. 793 City Sterling Heights, 80 825 (local arbitration); Fort Wayne Community Schools, 928 (same). F. Elkouri Elkouri, How Arbitration Works 633, 110 (3d ed. 1973) (collecting citations published opinions arbitrators). spite cases usually grievant, principle "compliance spirit [may be] suffice." 634. instant little effort letter supposed reflect actually times Protections ---- - ----, necessarily demands "cause." surprising MSPB's mention regarding unlike MSPB brought unions. presented here. chooses primarily MSPB. ----. quite agencies' exercise floor bill, explaining emerged Committee, stressed itself, enumerated [such employees] conditioned full arrangements effects 124 Cong.Rec. 38715 (comments Rep. Ford). proposals fully valid "[a]n indirect secondary impact right," regard decisionmaking implementation phases authority." far acknowledge gives "indirectly [management rights] doing directly." 158 2892. 6, accompanying text.

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