[Federal Register Volume 63, Number 75 (Monday, April 20, 1998)]
[Proposed Rules]
[Pages 19413-19414]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 98-10390]


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FEDERAL LABOR RELATIONS AUTHORITY

5 CFR Parts 2424 and 2429


Processing of Negotiability Petitions: Miscellaneous and General 
Requirements

AGENCY: Federal Labor Relations Authority.

ACTION: Notice of proposed rulemaking with request for comments.

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SUMMARY: The Federal Labor Relations Authority intends to revise its 
regulations concerning the processing of negotiability appeals (part 
2424). The Federal Labor Relations Authority established a Task Force 
to study and evaluate part 2424 of its regulations. The Task Force 
proposes to conduct focus groups to solicit and consider customers' 
views prior to undertaking these revisions.

DATES: Written comments must be received on or before May 29, 1998. A 
meeting will be held at 10:00 a.m. on May 12, 1998, in Washington, DC.

ADDRESSES: Mail or deliver written comments to the Office of Case 
Control, Federal Labor Relations Authority, 607 14th Street, NW, 
Washington, DC 20424-0001. The meeting will be held at the Federal 
Labor Relations Authority, 607 14th Street, NW, Second Floor Agenda 
Room, Washington, D.C.

FOR FURTHER INFORMATION CONTACT: Peter Constantine, Director, Office of 
Case Control, at the address listed above or by telephone: (202) 482-
6540.

SUPPLEMENTARY INFORMATION:

1. Background

    The Chair and Members of the Federal Labor Relations Authority (the 
Authority) intend to review and, where appropriate, implement 
mechanisms to improve the manner in which negotiability appeals are 
processed, and to revise the regulations governing review of these 
appeals. The Authority has established an internal Task Force to study 
this matter.
    Part 2424 of chapter XIV of Title 5 of the Code of Federal 
Regulations (1997) contains, among other things, the current 
regulations which govern all matters relating to the processing of 
negotiability appeals. Part 2429 contains general regulatory 
requirements which also govern these appeals. The regulations apply to 
petitions for review of negotiability issues that concern union 
proposals for bargaining as well as petitions for review of 
negotiability issues that arise from disapprovals of collective 
bargaining provisions that have been agreed on by parties.
    In conjunction with its review of the procedures for processing 
negotiability appeals, the Task Force is requesting oral and/or written 
comments concerning issues to be addressed in the regulatory revisions 
it is developing. A focus group meeting has been scheduled for Tuesday, 
May 12, 1998, at 10:00 a.m. in Washington, DC to discuss matters 
relevant to the negotiability appeal process. Persons interested in 
attending this meeting on the proposed rulemaking should call or write 
the point of contact listed in the preceding section to confirm 
attendance. If appropriate, other discussions may be scheduled.
    The Task Force will make written recommendations to the Chair and 
Members of the Authority, who will, as determined appropriate, issue 
proposed amendments to the existing negotiability and miscellaneous 
regulations. All agencies, unions, and interested persons will be 
afforded an opportunity to submit further comments on any proposed 
specific modifications to the existing regulations. The Task Force will 
conduct additional focus group meetings after the Authority proposes 
its revisions to the existing regulations.

2. The Federal Service Labor-Management Relations Statute (the 
Statute)

    Section 7117 of Title 5, United States Code, empowers the Authority 
to consider negotiability appeals under the conditions prescribed by 
section 7117(b) and (c), directs the Authority to expedite these 
appeals to the extent practicable, and instructs the Authority to issue 
a written decision at the earliest practicable date.
    The appeal process is set forth in Section 7117(c) of the Statute. 
Under this process, the exclusive representative may ``institute an 
appeal'' by ``filing a petition with the Authority.'' 5 U.S.C. 
7117(c)(2). Once an exclusive representative institutes a negotiability 
appeal, section 7117(c)(3)(A) and section 7117(c)(4) provide that an 
agency involved in a negotiability dispute ``shall file with the 
Authority'' a statement of position responding to the petition for 
review,

[[Page 19414]]

and that an exclusive representative ``shall file with the Authority 
its response to the statement.'' Consistent with section 7117(c)(5), 
the Authority, in its discretion, may hold a hearing on the petition 
for review before making a determination.

3. Issues on Which Comments Are Requested

    Following are several groups of subjects on which the Task Force is 
seeking comments. This is not intended to be an exclusive list; comment 
on any matter relevant to the processing of petitions for review in 
negotiability appeals is invited.

a. Alternative Dispute Resolution (ADR) in the Negotiability Appeal 
Process

    Should the Authority require and/or offer ADR services to the 
parties as part of the negotiability appeal process? If the Authority 
requires the parties to participate in ADR in connection with the 
negotiability appeal process, are there any particular issues that the 
Authority should consider in the drafting of its amendments to the 
negotiability regulations?

b. Compliance With Procedural Requirements

    What consequences, if any, should result from either an agency's 
failure to file a statement of position, as required by section 
7117(c)(3)(A) of the Statute or an exclusive representative's failure 
to file a response to this statement, as required by section 7117(c)(4) 
of the Statute?
    Under what circumstances, if any, should the Authority exercise its 
authority under section 7117(c)(5) of the Statute to hold hearings?
    Are there any general requirements, in addition to those set forth 
in part 2429 of the Authority's regulations, that the Authority should 
consider in drafting its amendments to the negotiability regulations?

c. The Meaning of a Proposal or Provision

    What burdens should the Authority place on the parties with respect 
to the meaning of proposals or provisions, the factual record, and the 
arguments? Where the Authority is unable to determine the meaning of a 
proposal or provision, what action should the Authority take?

d. The Relationship Between Issues Arising Under the Negotiability 
Appeal Process and the Unfair Labor Practice Process

    Should the Authority modify its procedure for processing complaints 
alleging unfair labor practices and negotiability petitions? If so, how 
should the Authority process cases involving alleged unfair labor 
practices and negotiability petitions?
    How should ``duty to bargain issues'' (such as whether a matter is 
``covered by'' an existing agreement or whether a union has waived its 
right to bargain) as opposed to ``scope of bargaining'' issues (whether 
a proposal is consistent with law, rule, or regulation) be addressed 
when arising in connection with a negotiability appeal?

e. Authority Orders in Decisions on Review of Negotiability Appeals; 
Compliance With the Authority's Orders

    Part 2424.10 of the Authority's regulations currently provides 
that, if in a decision the Authority finds that the duty to bargain 
extends to ``a matter proposed to be bargained,'' then the Authority 
shall include a bargaining order and, if the Authority finds that the 
duty to bargain does not extend to the matter, or that the duty extends 
to the matter ``only at the election of the agency,'' then the 
Authority shall dismiss the petition for review.
    Should the regulations be modified to include other orders? If so, 
what other orders should be included and in what circumstances should 
they be used?
    Should the Authority's regulations concerning compliance with 
negotiability orders be modified? If so, how should the Authority 
address a party's failure to comply with the Authority's negotiability 
order?

f. Proposals for Bargaining and Provisions Subject to Agency-Head 
Review

    Should the Authority's negotiability regulations differ depending 
on whether the petition for review concerns a proposal for bargaining 
or a provision that has been agreed on and subsequently disapproved?

g. Other Issues

    The foregoing questions are not intended to exclude any other 
subjects relevant to the negotiability appeal process. What other 
subjects relevant to the negotiability appeal process should the 
Authority consider in developing amendments to the existing 
negotiability regulations?

(Authority: 5 U.S.C. 7105(a)(2)(E) and (I)).

    Dated: April 15, 1998.
Solly Thomas,
Executive Director, Federal Labor Relations Authority.
[FR Doc. 98-10390 Filed 4-17-98; 8:45 am]
BILLING CODE 6727-01-P