WPC^ Kq] _ q*C0ͯTų̹Y󱚲$lGad#k1{wC,P^{ 8SSFGF&\S-}#?e 9,rƺ@!Z:Aa_+=*RЖ8 R9)G/CbP@u& Axkjyd`rzۭ y!4.DMͭ$ lL=TZ;@I9 ;{ބ`Qj>mVLU, \j&I)$/+b^ee+ZUhcNg#33֋HJ 2F2i:z؀Y?8Og'\qݩ%1L3LK[AiNgJXNR1Fksh^Y>"WM4# U. % 0UFw@G4 0iC 0K - -$ Q U. h`---@ Bb E+++++f-a/// 0CfHaJhp laserjet 4/4mHPPCL5E,,,,,,0 <6X9`+CourierX(L$((LLX\XXX    &&7XXdXXd7< 9Z .Courier New Regular  DVDDVUE !aq#3|x!   );$LLXXXX  @@((LLLL  2  /  ݀TheGeneralCounseladditionallydisputestheRespondents  assertionthatsummaryjudgmentisappropriateasamatteroflawbecausethesubjectmatterofthisdisputeis coveredbyArticle6.C.ofthepartiesagreement.InviewofmydispositionoftheMotionforSummaryJudgmentherein,IfinditunnecessarytodiscussthecontractualargumentmadebytheRespondentanddisputedbytheGeneralCounsel.('2);$ L!(LLXXXX    &7dXXdd7  ((LLLL  0  /(r$  0  / ##Xd# ##Xd#BN-CA-41011"ALJ Decision  9 ' 6Garvin Lee Oliver, ALJ 0 .   <6X9`(Courier228@2?2` ##Xd# 6  );$LLXXXX  @@((LLLL  1  /  ݀RespondentfiledaMotiontoStriketheGeneralCounsels  ResponseinOppositiontotheRespondentsMotiontoDismissandMotionforSummaryJudgmentonthegroundthattheGeneralCounselsresponsewasuntimelyundertheAuthoritysRulesandRegulations.OnJuly12,1996,theundersignedissuedanOrderindefinitelypostponingthehearinginthiscasetopermittheRespondentsMotionforSummaryJudgmenttobeconsidered.AspartofthatOrder,allpartieswereaffordedtheopportunitytofileadditionalbriefs,iftheysodesire,untilJuly23,1996.TheGeneralCounselthenfiledanOppositiontoRespondentsMotiontoStrikeandrefiledtheOppositiontotheMotiontoDismissandforSummaryJudgment.Accordingly,theRespondentsMotiontoStriketheGeneralCounselsresponseasuntimelyismoot. d- -Table_A(2$ L!(LLXXXX    &7dXXdd7  Table_B L!(LLXXXX    &7dXXdd7   7dXXdXXd7 MEMORANDUM T      \   DATE:July31,1996  TO:   TheFederalLaborRelationsAuthority  @  FROM: SAMUELA.CHAITOVITZ      ChiefAdministrativeLawJudgeSUBJECT: DEPARTMENTOFTHEAIRFORCE      647THAIRBASEGROUP,HANSCOMAIR   FORCEBASEMASSACHUSETTS     Respondent      T andCaseNo.BNCA41011     NATIONALASSOCIATIONOFGOVERNMENT   EMPLOYEES,SEIU,AFLCIO,LOCALR18   ChargingParty  XdXXX  Pursuanttosection2423.26(b)oftheFinalRulesand @ Regulations,5C.F.R.2423.26(b),IamherebytransferringtheabovecasetotheAuthority.EnclosedarecopiesofmyDecision,theservicesheet,andthetransmittalformsenttotheparties.AlsoenclosedisaMotionforSummaryJudgmentandothersupportingdocumentsfiledbytheparties.#XXXXd#Enclosures  !( ̛̜*q-. ddd Xdd Xdd XL"L"q,hdt , dd +  5"  85DEPARTMENTOFTHEAIRFORCE̜647THAIRBASEGROUP,HANSCOMAIRFORCEBASEMASSACHUSETTS̀Respondent +! H  + ?, H  8 x?ЀandNATIONALASSOCIATIONOFGOVERNMENTEMPLOYEES,SEIU,AFLCIO,LOCALR18̀ChargingParty +!  +@pp2 CaseNo.BNCA41011$X  x   $@*@0 0 NOTICEOFTRANSMITTALOFDECISION    Theabove-entitledcasehavingbeenpresentedtotheundersignedAdministrativeLawJudgepursuanttotheStatuteandtheFinalRulesandRegulationsoftheAuthority,theundersignedhereinserveshisDecision,acopyofwhichisattachedhereto,onallpartiestotheproceedingonthisdate,andthiscaseisherebytransferredtotheFederalLaborRelationsAuthoritypursuantto5C.F.R.2423.26(b).  PLEASEBEADVISEDthatthefilingofexceptionstotheattachedDecision,isgovernedby5C.F.R.2423.26(c)through2423.29,2429.21through2429.25and2429.27.  Anysuchexceptionsmustbefiledonorbefore SEPTEMBER3,1996 ,andaddressedto: (P%     T FederalLaborRelationsAuthority    T OfficeofCaseControl    T 60714thStreet,NW,4thFloor    T Washington,DC204240001   ̛    T      \      d      l!     T      \ _______________________________̜    T      \ SAMUELA.CHAITOVITZ    T      \ ChiefAdministrativeLawJudge̜Dated:July31,1996̀Washington,DC    TRX3'3'3'Note3'T     ћ ћ@LL UNITEDSTATESOFAMERICA  @0 0 FEDERALLABORRELATIONSAUTHORITY@ OFFICEOFADMINISTRATIVELAWJUDGES@\ \ WASHINGTON,D.C.204240001  @ *q23 ddd Xdd Xdd XL"L"q,hdt , dd +  5" X 85DEPARTMENTOFTHEAIRFORCE̜647THAIRBASEGROUP,HANSCOMAIRFORCEBASEMASSACHUSETTS̀Respondent +!   + ?,  8 x?ЀandNATIONALASSOCIATIONOFGOVERNMENTEMPLOYEES,SEIU,AFLCIO,LOCALR18̀ChargingParty +!@ +@pp2 CaseNo.BNCA41011$  x   $StevenE.Sherwood,Esq.̀FortheRespondentPeterF.Dow,Esq.̀FortheGeneralCounselBefore:SamuelA.Chaitovitz̀ChiefAdministrativeLawJudge @ DECISIONONMOTIONFORSUMMARYJUDGMENT (P! @ StatementoftheCase   ThiscasearoseundertheFederalServiceLabor (P% ManagementRelationsStatute,Chapter71ofTitle5oftheU.S.Code,5U.S.C.7101,etseq.(theStatute).  '   BaseduponanunfairlaborpracticechargefiledbytheChargingParty,NationalAssociationofGovernmentEmployees,ϜSEIU,AFLCIO,LocalR18(theUnion),aComplaintandNoticeofHearingwasissuedbytheRegionalDirectorfortheBostonRegionoftheFederalLaborRelationsAuthority.ThecomplaintallegesthattheDepartmentoftheAirForce,647thAirBaseGroup,HanscomAirForceBase,Massachusetts(theRespondent)violatedsection7116(a)(1)and(5)oftheStatutebyfailingandrefusingtonegotiateuponrequestconcerningmatterscoveredundersection7106(b)(1)oftheStatute.̀Morespecifically,thecomplaintallegesthatExecutiveOrder12871,entitled LaborManagementPartnerships,issuedonOctober1,1993(58Fed.Reg.5220152203),requirestheRespondenttonegotiateoverthesubjectssetforthinsection7106(b)(1)oftheStatute;thatbyissuingE.O.12871,the h-)8 7dXXdXXd7  7dXXdXXd7  7dXXdXXd7  7dXXdXXd7  7dXXdXXd7  7dXXdXXd7  7dXXdXXd7  7dXXdXXd7  7dXXdXXd7  7dXXdXXd7  7dXXdXXd7  7dXXdXXd7  7dXXdXXd7  7dXXdXXd7  7dXXdXXd7  7dXXdXXd7  7dXXdXXd7  7dXXdXXd7  7dXXdXXd7  7dXXdXXd7  7dXXdXXd7  7dXXdXXd7  7dXXdXXd7  7dXXdXXd7   7XXdXXd7  PresidentoftheUnitedStateshasexercisedtheRespondentsdiscretionundersection7106(b)(1)tonegotiateoverthesubjectssetforththerein,includingthenumbers,typesandgradesofemployeesorpositionsassignedtoanyorganizationalsubdivision,workproject,ortourofduty,andconcerningthetechnology,methodsandmeansofperformingwork;thatonoraboutFebruary1,1994,theUnionrequestedtonegotiateoversuchmattersbuttheRespondenthasfailedandrefusedtodoso;thatinMay1994,theRespondentannounceditsintentiontofillapproximately86vacantpositionsatthesametimethatitwasabsorbingaworkforcereductionofabout457civilianpositions;thatonMay17,1994,theUnionrequestedtobargainoversuchmatterspursuanttosection7106(b)(1)oftheStatute,butthattheRespondentimplementeditsdecisiontofillthe86vacantpositionswithoutprovidingtheUnionanopportunitytonegotiatetotheextentrequiredbytheStatute,therebyviolatingsection7116(a)(1)and(5)oftheStatute.  TheRespondentfiledaMotiontoDismissdatedMay14,1996,andaMotionforSummaryJudgmentonJune4,1996,tobothofwhichtheGeneralCounselfiledanoppositionon̜July9,1996.  r  1  /    כThepositionsofthepartiesaresetforth  immediatelybelow.   ContentionsoftheParties (     A.TheRespondent  @   InitsMotionforSummaryJudgment,theRespondentassumesthatallofthefactualallegationsofthecomplaintareasstatedbytheGeneralCounsel,butcontendsthatthe,complaintmustbedismissedbecausetheUnionsrequeststobargainoverthenumbers,typesandgradesofemployeesorpositionsassignedtoanorganizationalsubdivision,workproject,ortourofduty,orconcerningthetechnology,methodsandmeansofperformingworkare,bycontract,subjecttotheelectionofmanagement.Moreparticularly,the (!% RespondentreferstoArticle6.C.ofthepartiescollectivebargainingagreementwhichessentiallytracksthelanguageofsection7106(b)(1)oftheStatuteandcontendsthatitisentitledtojudgmentasamatteroflawbecauseithastherighttoexerciseitsdiscretionasnegotiatedinthecontracttodeclinetobargainoversuchenumeratedmatters.Inthisregard,theRespondentreliesontheAuthoritysdecisioninU.S.DepartmentofHealthandHumanServices,SocialSecurity  @ Administration,Baltimore,Maryland,47FLRA1004(1993),that h  anagencyhasnodutytobargainovermatters coveredbythepartiesnegotiatedagreement.  B.TheGeneralCounsel  h    InopposingtheRespondentsMotionforSummaryJudgment,theGeneralCounselcontendsthat, byissuingtheExecutiveOrder[12871],thePresidentoftheUnitedStateshasexercisedtheRespondentsdiscretionundersection7106(b)(1)tonegotiatesection7106(b)(1)subjects,includingthoseatissueinthiscase.Morespecifically,theGeneralCounselquotesSection2(d)oftheExecutiveOrder,whichprovidesinpartasfollows:  Sec.2.IMPLEMENTATIONOFLABORMANAGEMENTPARTNERSHIPS̀THROUGHOUTTHEEXECUTIVEBRANCH.Theheadofeachagencỳsubjecttotheprovisionsofchapter71oftitle5,  UnitedStatesCodeshall:̀*********  (d)negotiateoverthesubjectssetforthin5U.S.C.̀7106(b)(1),andinstructsubordinateofficialstodothèsame;....Accordingly,theGeneralCounselasserts,sincethePresidenthasmadetheelectionforagenciesatthelevelofexclusiverecognitiontonegotiateoversection7106(b)(1)subjects,theRespondentcouldnotlawfullyrefusetobargainoversuchmattersinthiscase.   r  2  /     !&   Conclusions h#(     A.AppropriatenessofSummaryJudgment  $*   %@ +   Ithaslongbeenestablishedthatthepurposeofsummary judgmentistoavoiduseless,expensive,andtimeconsumingtrialswhentherearenogenuineissuesofmaterialfacttobetried.StateofCaliforniaNationalGuard,8FLRA54,60 @ (1982).Thus,section2423.19(k)oftheAuthoritysRulesandRegulationsspecificallyauthorizesAdministrativeLawJudgestograntmotionsforsummaryjudgmentinlieuofhearingswhenonlylegalissuesareinvolved,solongasthepartieshavehadanopportunitytopresentwrittenargument.Id.;seealso h  DepartmentofVeteransAffairs,VeteransAffairsMedicalCenter,Nashville,Tennessee,50FLRA220,222(1995).    Inasmuchasthereisnomaterialissueoffactindisputehereinandthepartieshavebeenaffordedfullopportunitytopresenttheirlegalarguments,IconcludethatthiscaseisappropriateforresolutionontheRespondentsmotionforsummaryjudgment.  B.TheLegalIssue  (    ThefundamentallegalissuepresentedbytheGeneralCounselsoppositiontotheRespondentsMotiontoDismissandseparateMotionforSummaryJudgmentiswhetherthePresidentspromulgationofExecutiveOrder12871,especiallySection2(d)thereof,constitutestheblanketexerciseofallexecutiveagenciesdiscretionundersection7106(b)(1)oftheStatuteinfavorofbargainingoverallsubjectsenumeratedinthatprovision.Forthereasonsstatedbelow,Iconcludethatitdoesnot.  InitsOrderDenyingRequestforaGeneralRuling, ( 51FLRA409,410(1995),theAuthorityhadbeforeittheGeneralCounselsexplanationthathisrequestforageneralrulingconcerningtherelationshipbetweensection7106(b)(1)andsection7106(a)oftheStatutewaspromptedbyExecutiveOrder12871,whichprovides,inSection2(d),thatagencyheadsshall negotiateoversubjectssetforthinsection7106(b)(1)andinstructsubordinateofficialstodothesame,andbythecourtsdecisioninAssociationofCivilian (!% Technicians,MontanaAirChapterNo.29v.FLRA,22F.3d1150, !& 1155(D.C.Cir.1994),inwhichtheDistrictofColumbiaCircuitheldthatwhereamatterfallswithinsubsection(b)(1)ofsection7106,evenifthematteralsoaffectsarightundersubsection(a),thematterissubjecttonegotiationattheelectionoftheagency.TheGeneralCounselsrequestforageneralrulingstatedthatthemandateintheExecutiveOrdertonegotiateoversection7106(b)(1)matters,andthecourtsholdinginMontanaACT,hasrendered '". therelationshipbetweensubsections(a)and(b)(1)amajorpolicyissue.51FLRAat410411.TheAuthoritydeniedtheGeneralCounselsrequestforageneralruling,statingthatanegotiabilitycasedecidedthatsameday addressesthequestionraisedbytheGeneralCounsel.Id.at412. +@&3   h,'4   ThenegotiabilitydecisionreferredtobytheAuthority aboveisNationalAssociationofGovernmentEmployees, ( LocalR5184andU.S.DepartmentofVeteransAffairsMedicalCenter,Lexington,Kentucky,51FLRA386(1995)(VAMedical @ Center).Inthatdecision,theAuthorityconcluded(as h applicablehere)thatwhereitfindsabargainingproposalgovernedbysection7106(b)(1),itwilldismissaunionspetitionforreviewpursuanttosection2424.10(b)ofitsRulesandRegulationswithoutorderingthepartiestobargain,notwithstandingtheunionsassertionthatnegotiationovertheproposalismandatedbyExecutiveOrder12871whichconstitutesanelectiontonegotiatewithinthemeaningofsection7106(b)(1).Id.at393394andn.12.AsIinterpret h  theAuthoritysdecisioninVAMedicalCenter,whichthe (  AuthoritysOrderDenyingRequestforaGeneralRuling   describesasaddressingtheissuesraisedbytheGeneral @  Counselinhisrequest,theAuthorityatleastinferentiallyhasdeterminedthatitwillnotorderanagencytobargainoverthesubstanceofasection7106(b)(1)matterunlesssuchagencyhaselectedtodoso,notwithstandingthe mandateinSection2(d)ofExecutiveOrder12871thatagenciescoveredbytheStatute shallnegotiateoverthesubjectssetforthin5U.S.C.7106(b)(1)....  Inmyview,theforegoingconclusioniscompelledbythelanguageoftheStatuteandtheExecutiveOrder.Thus,astheGeneralCounselrecognizes,Section3ofExecutiveOrder12871specificallystatesthattheorder isintendedonlytoimprovetheinternalmanagementoftheexecutivebranchandisnotintendedto,anddoesnot,createanyrighttoadministrativeorjudicialreview,oranyright...enforceable...againsttheUnitedStates,itsagencies...,officersoremployees....Inotherwords,ifanagencyofficialfailedtoobeythePresidentsdirectiveinSection2(d)oftheExecutiveOrder,theappropriateremedywouldbedeterminedinternallywithintheexecutivebranchratherthanthroughadministrativeorjudicialproceedings.Inthismanner,potentialconflictsbetweenthetermsofanExecutiveOrderandtheprovisionsofanactofCongressareavoided.  IfurthernotethattwootherAdministrativeLawJudgesoftheAuthorityhavereachedthesameconclusionthatIreachherein.SeeMarineCorpsLogisticalBase,CaseNo.SFCA %@ + 41251,Feb.15,1996(ALJDReportNo.123,Apr.30,1996);U.S.DepartmentofCommerce,PatentandTrademarkOffice,Case ('!- No.WACA40743,July9,1996.WhilesuchdecisionsofJudgesϜNashandOliverarenotprecedential,IfinditinstructivethattheybothindependentlyrejectedtheGeneralCounselsassertionthatthePresidentinSection2(d)ofExecutiveOrder12871exercisedeveryagencysdiscretionundersection7106(b)(1)oftheStatuteinfavorofbargainingoverthesubjectssetforththerein.NoJudgehasdecidedtothecontrary. (-'5 Ї  Forthereasonssetforthabove,IconcludethatsummaryjudgmentinfavoroftheRespondentiswarranted,andthatthecomplaintinthiscaseshouldbedismissed.   ORDER h     ThecomplaintinCaseNo.BNCA41011isdismissed.   Issued,Washington,D.C.,July31,1996.̛̜    T      \ ______________________________    T      \ SAMUELA.CHAITOVITZ    T      \ ChiefAdministrativeLawJudge     7XXdXXd7  !     7dXXdXXd7  !  7XXdXXd7   !@CERTIFICATEOFSERVICE    IherebycertifythatcopiesofthisDECISIONissuedbySAMUELA.CHAITOVITZ,AdministrativeLawJudge,inCaseNo.BNCA41011,weresenttothefollowingpartiesinthemannerindicated:?('L @dELX @?    CERTIFIEDMAIL:  X   ̜Mr.PeterDow,Esq.CounselfortheGeneralCounselFederalLaborRelationsAuthority99SummerStreet,Suite1500Boston,MA021101200Mr.StevenE.SherwoodAFLSA/CLLO1501WilsonBoulevard! 7XXdXXd7  !Arlington,VA22209! 7XXdXXd7  !! 7XXdXXd7  !CraigMosher,President! 7XXdXXd7  !NationalAssociationofGovernment! 7XXdXXd7  !Employees,SEIU,AFLCIO,LocalR18! 7XXdXXd7  !P.O.Box848! 7XXdXXd7  !Bedford,MA01730! 7XXdXXd7  !! 7XXdXXd7  ! REGULARMAIL:   ! 7XXdXXd7  !KennethLyons,PresidentNationalAssociationofGovernment̀Employees,SEIU,AFLCIOATTN:AttorneyMichaelManning159BurginParkwayQuincy,MA021694213! 7XXdXXd7  !! 7XXdXXd7  !! 7XXdXXd7  !! -@)7  7XXdXXd7  !! 7XXdXXd7  !Dated:July31,1996! #Xd#  !񀀀Washington,DC!