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/ Section7106(b)(1)oftheStatuteprovides,inpertinent part: (b)Nothinginthissectionshallprecludeanyagencyandanylabororganizationfromnegotiating
X X (1)attheelectionoftheagency,onthenumbers,types,andgradesofemployeesorpositionsassignedtoanyorganizationalsubdivision,workproject,ortourofduty,oronthetechnology,methods,andmeansofperformingwork[.]% T a b l e _ A L
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/ Section2.(d)oftheExecutiveOrder,providesin pertinentpartasfollows:
X X Sec.2.IMPLEMENTATIONOFLABORMANAGEMENTPARTNERSHIPSTHROUGHOUTTHEEXECUTIVEBRANCH.Theheadofeachagencysubjecttotheprovisionsofchapter71oftitle5,UnitedStatesCodeshall:@ ********(d)negotiateoverthesubjectssetforthin5U.S.C.7106(b)(1),andinstructsubordinateofficialstodothesame;....
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@ X 5 X X XB Xq U.S.DEPARTMENTOFVETERANSAFFAIRS MEDICALCENTER,LEXINGTON,KENTUCKY
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X Xx ? ЀRespondent̀andNATIONALASSOCIATIONOFGOVERNMENTEMPLOYEES̀ChargingParty
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$ @ 0 0 NOTICEOFTRANSMITTALOFDECISION TheaboveentitledcasehavingbeenheardbeforetheundersignedAdministrativeLawJudgepursuanttotheStatuteandtheRulesandRegulationsoftheAuthority,theundersignedhereinserveshisDecision,acopyofwhichisattachedhereto,onallpartiestotheproceedingonthisdateandthiscaseisherebytransferredtotheFederalLaborRelationsAuthoritypursuantto5C.F.R.2423.26(b). PLEASEBEADVISEDthatthefilingofexceptionstotheattachedDecisionisgovernedby5C.F.R.2423.26through2423.29,2429.21through2429.25and2429.27. Anysuchexceptionsmustbefiledonorbefore SEPTEMBER29,1997 ,andaddressedto: ( P' T FederalLaborRelationsAuthority T OfficeofCaseControl T 60714thStreet,NW,4thFloor T Washington,DC204240001 T L ? / ( ' L& @ dEL' @? h'#2 T L GARVINLEEOLIVER T L AdministrativeLawJudgeDated:August26,1997̀Washington,DC h-): m M T 9 ) % ` |0[
` x E73 ^ m n "n "L"L" H n n n H n n n H n n n B qo XB Xq Ԉ@ ss" ; X8 X XB Xq UnitedStatesofAmerica# ; X8 X ; w # ; w X; X8 Ԉ # ; X8 X ; w. # FEDERALLABORRELATIONSAUTHORITY ; w X; X8 @ OfficeofAdministrativeLawJudges# ; X8 X ; w # Ԉ X H @ H @ B XB Xq WASHINGTON,D.C. @ # ; o # k # X X # B XB Xq L"L"n "n " ̜# X X 5 # MEMORANDUM T L DATE:August26,1997 @ TO: TheFederalLaborRelationsAuthority
FROM: GARVINLEEOLIVER @ AdministrativeLawJudgeSUBJECT: U.S.DEPARTMENTOFVETERANSAFFAIRS X
MEDICALCENTER,LEXINGTON,KENTUCKY T Respondent T andCaseNo.CHCA50399 NATIONALASSOCIATIONOFGOVERNMENT EMPLOYEES T ChargingParty Pursuanttosection2423.26(b)oftheRulesandRegulations,5C.F.R.2423.26(b),IamherebytransferringtheabovecasetotheAuthority.EnclosedarecopiesofmyDecision,theservicesheet,andthetransmittalformsenttotheparties.Alsoenclosedarethetranscript,exhibitsandanybriefsfiledbytheparties.2 5Enclosures 5
A % ; X8 X XB Xq FEDERALLABORRELATIONSAUTHORITY ; w X; X8 @ OfficeofAdministrativeLawJudges# ; X8 X ; wC # Ԉ ; o X; X8 WASHINGTON,D.C.# B ; o # X # B Xq X B # *q W X d d d X d d X d d X L"L"q , d t , g d d +
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X 5 U.S.DEPARTMENTOFVETERANSAFFAIRSMEDICALCENTER,LEXINGTON,KENTUCKY
+ ! / / + ? / / , H
X Xx ? ЀRespondent̀andNATIONALASSOCIATIONOFGOVERNMENTEMPLOYEES̀ChargingParty
+ ! @ / / + @ ((3 CaseNo.CHCA50399$
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GinnyM.Hamm̀CounselfortheRespondent%
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GeorgeL.Reaves,Jr. RepresentativeoftheChargingParty%
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SusanL.KanePhilipT.Roberts̀CounselfortheGeneralCounsel,FLRABefore:GARVINLEEOLIVER̀AdministrativeLawJudge@ & DECISION@ /I./StatementoftheCase ( P' Thisunfairlaborpracticecasewassubmittedinaccordancewithsection2423.26(a)oftheAuthority sRegulationsbasedonawaiverofahearingandastipulationoffactsbytheparties,whohaveagreedthatnomaterialissueoffactexists.TheRespondentandtheGeneralCounselfiledbriefs. ThecomplaintallegesthattheRespondentviolatedsection7116(a)(1)and(5)oftheFederalServiceLaborManagementRelationsStatute(theStatute),5U.S.C.Ϝ7116(a)(1)and(5),by(1)declaringtheUnion sproposalsconcerningtheRespondent splantohaveunitemployeelabtechniciansperformcertaindentalassistantdutiestobenonnegotiable,and(2)implementingitsplanpriortothecompletionofbargaining,theAuthorityhavingfoundthatthe
proposalswerenegotiableattheelectionoftheAgencyunder
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/7106(b)(1)oftheStatute \
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X X XD Xq ԀandthePresidentoftheUnited t
StateshavingissuedExecutiveOrder12871, LaborManagement 4 Partnerships, onOctober1,1993(58Fed.Reg.5220152203, October6,1993)(ExecutiveOrder12871orExecutiveOrder)concerningthenegotiationofsection7106(b)(1)subjects. h
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כ X X X> Xq t Forthereasonsexplainedbelow,IconcludethattheRespondentdidnotviolatetheStatute. II.FindingsofFact 4 ThepartiesstipulatedasfollowsconcerningthematerialfactsandIsofind:
X X 1.TheU.S.DepartmentofVeteransAffairs,MedicalCenter,Lexington,Kentucky(theRespondentorVAMCLexington)isanagencyunder5U.S.C.7103(a)(3). 2.TheNationalAssociationofGovernmentEmployees,(theUnion)isalabororganizationunder5U.S.C. %% //%%7103(a)(4). 3.NationalAssociationofGovernmentϜEmployees,LocalR5184 $","$!!#(#!LocalR5184!)isanagentoftheUnionforthepurposeofrepresentingthebargainingunitemployeesatVAMCLexington. @ 4.ThechargewasfiledbytheUnionwiththeChicagoRegionalDirectoronFebruary24,1995.(Jt.Ex.1(a)). 5.AcopyofthechargewasservedontheRespondent. 6.AComplaintandNoticeofHearingwasissuedinthisproceedingunder5U.S.C.''71017135and5(C.F.R.( (U.S.C.(ChapterXIVbytheChicagoRegionalDirectoroftheFederalLaborRelationsAuthorityonMarch31,1997(Jt.Ex.1(b)). 7.TheRespondentfileditsAnswertotheComplaintonApril21,1997,admittinginpartanddenyinginparttheComplaint sallegations.(Jt.Ex.1(d)). 8.Duringthetimeperiodcoveredbythiscomplaint,thesepersonsoccupiedthepositionoppositetheirnames:D.C.SchmonskyChief,HumanResourcesManage T mentService,VAMCLexingtonJamesBlust AssistantChief,HumanResources 4 T ManagementService,VAMCLexington 9.Duringthetimeperiodcoveredbythiscomplaint,thepersonsnamedinparagraph8weresupervisorsormanagementofficialsunder5U.S.C.Ϝ))7103(a)(10)and(11). 10.Duringthetimeperiodcoveredbythiscomplaint,thepersonsnamedinparagraph8wereactingfortheRespondent. 11.TheUnionistheexclusiverepresentativeofaunitofemployeesappropriateforcollectivebargainingattheRespondent. 12.PriortoJuly1994,certainDentalAssistantdutieswerecontainedinthePositionDescriptionofLabTechnicians(Jt.Ex.2,Attachment,page3,paragraphIV. Other ),however, t& !, theLabTechniciansdidnotroutinelyperformtheseduties.OnoraboutJuly11,1994,theRespondent,bySchmonsky,gavenoticetotheUnion(Jt.Ex.3)ofitsintentiontoimplementitsplantohaveunitemployeeLabTechniciansperformcertainDentalAssistantdutiesonaregularrotationalbasis,asdescribedinamemodatedJune30,1994(Jt.Ex.2)andaskedthattheUnionsubmitanyproposalsconcerningtheimpactandimplementationofthischangebyJuly21,1994.OnoraboutJuly20,1994, -(6 theUnion*,*++ **byLocalR5184PresidentJimGreensubmittedproposalsconcerningthischange.(Jt.Ex.4).OnoraboutDecember13,1994,theUnionrequestedawrittenallegationofnonnegotiabilityastotheUnion sproposalsconcerningthechange.(Jt.Ex.5). 13.OnoraboutDecember22,1994,theRespondentdeclaredalloftheUnion sproposalsconcerningtheproposedchangedescribedinparagraph12andJointExhibit2tobenonnegotiable(Jt.Ex.6). 14.OnoraboutJanuary3,1995,theUnionfiledanegotiabilityappealwiththeAuthorityconcerningtheUnion sproposalsdescribedinparagraph13.(Jt.Ex.7). 15.OnoraboutJanuary9,1995,theRespondentimplementeditsplan,describedinparagraph12andJointExhibit2,tohaveunitemployeeLabTechniciansperformcertainDentalAssistantduties. 16.DentalAssistantdutiesasdescribedinparagraph12andJointExhibit2andassignedtoLabTechnicianshadmorethanademinimisimpactonthe workingconditionsofthesebargainingunitemployees. 17.TheAuthority,inNationalAssociationof GovernmentEmployees,LocalR5184,andU.S.DepartmentofVeteransAffairsMedicalCenter,Lexington,Kentucky,51FLRA386(1995)andNational 4 ! AssociationofGovernmentEmployees,LocalR5184andU.S.DepartmentofVeteransAffairsMedicalCenter,Lexington,Kentucky,52FLRANo.106(1997), t $ foundthattheUnion sproposalsdescribedinparagraphs12and13werenegotiableattheelectionoftheAgencyundersection7106(b)(1)oftheStatute. 18.FromonoraboutDecember22,1994,andcontinuingtothepresent,theRespondenthasrefusedandcontinuestorefusetobargainovertheϜUnion sproposalsconcerningtheproposedchangedescribedinparagraph12,15and16andJointExhibit2becausetheRespondentcontendsthatithasnodutytobargainovertheseproposals. XU+
XG+ III.TheGeneralCounsel sPosition *%2 TheGeneralCounselnotesthatwhereaunionsubmitsbargainingproposalsandanagencyrefusestobargainovertheproposalsbasedonthecontentionthattheyarenonnegotiable, -(6 theagencyactsatitsperilifitthenimplementstheproposedchangeinconditionsofemployment.Iftheagencywasobligatedtobargainoveranyoneoftheproposals,theagencywillhaveviolatedsection7116(a)(1)and(5)oftheStatutebyimplementingthechangewithoutfulfillingitsbargainingobligation.Accordingly,theGeneralCounselurgesthat,astheAuthorityhasalreadydeterminedinVAMC, LexingtonIandVAMC,LexingtonIIthattheproposalsin
@ disputearenegotiableattheRespondent selectionundersection7106(b)(1)oftheStatute,theRespondentviolatedtheStatute. TheGeneralCounselassertsthatbyissuingExecutiveOrder12871,PresidentClintonexercisedtheRespondent sdiscretionandelectedtobargainoversection7106(b)(1)subjects.Therefore,theRespondentcouldnotlawfullyrefusetobargainoversuchmattersinthiscasewhichwerefoundbytheAuthoritytobenegotiableattheelectionoftheRespondentundersection7106(b)oftheStatute,anditviolatedsection7116(a)(1)and(5)oftheStatutebyimplementingthechangewithoutfulfillingitsbargainingobligation.TheGeneralCounselclaimsheisnotenforcingExecutiveOrder12871,butsimplyenforcingtheUnion sstatutorysection7106(b)(1)bargainingrights.TheGeneralCounselurges,however,thatanyconclusion thatthe t PresidentlackedthisfundamentalpowertodirecthowExecutiveagencieswillexercisetheirrightsundertheStatuteandallowagenciessuchastheRespondenttoescapeliabilitybymerelyclaimingthattheyhavenotelectedtobargainoversection7106(b)(1)subjects,...wouldrendermeaninglessnotonlysection2(d)oftheExecutiveOrderbutalsothePresident sstatedgoalsforlabormanagementrelationsintheFederalsector. t ӜIV.TheRespondent sPosition " TheRespondentassertsthatthereisnostatutoryrighttobargainoversection7106(b)(1)subjects,andthepromulgationofExecutiveOrder12871,byitsownterms,wasdesignedtoimprovetheinternalmanagementoftheExecutivebranchandcreatesnorightsenforceableadministrativelyorjudicially.Therefore,theRespondenturgesthatthecomplaintbedismissedforfailureoftheGeneralCounseltostateaclaimforwhichreliefcanbegrantedandforlackofsubjectmatterjurisdictionintheAuthority. ӜV.@ @
DiscussionandConclusions '". @ Section7106(b)(1)makesitclearthatmattersconcerning t) $0 numbers,types,andgradesofemployeesorpositionsassigned 4*$1 toanyorganizationalsubdivision,workproject,ortourofduty arenegotiableonlyatanagency selection.The +@&3 AuthorityinNationalAssociationofGovernmentEmployees, t, '4 LocalR5-184andU.S.DepartmentofVeteransAffairs,MedicalCenter,Lexington,Kentucky,51FLRA386(1995)(VAMC, -(6 LexingtonI)andNationalAssociationofGovernmentEmployees, t LocalR5-184andU.S.DepartmentofVeteransAffairs,MedicalCenter,Lexington,Kentucky,52FLRA1024(1997)(VAMC, LexingtonII)heldthattheUnion sproposals @ involvedherewerenegotiableattheelectionoftheAgencyundersection7106(b)(1)oftheStatute. TheAuthoritydidnotordertheAgencytobargain;rathertheAuthoritydismissedtheUnion spetitionforreviewundersection2424.10(b)oftheAuthority sRegulations 3
? h D Xq X X X 3
/
כ X X XD Xq Ԁbecauseit 4 foundthattheproposalswerenegotiableattheAgency selection.SeeAmericanFederationofGovernmentEmployees,
@ CouncilofPrisonLocals,Local171andU.S.DepartmentofJustice,FederalBureauofPrisons,FederalCorrectionalInstitution,ElReno,Oklahoma,52FLRA1484,1490(1997)
(PrisonLocals)(similaractionbasedonVAMCLexingtonI). @ TheAuthorityspecificallystatedthatitdidnotaddresstheclaimthatExecutiveOrder12871compelledtheAgencytobargain,VAMC,LexingtonI,51FLRAat394n.12,andithas
saidthesamethinginothercaseswhereitfoundthataproposalwasnegotiableattheelectionoftheagencyundersection7106(b)(1).PrisonLocals,52FLRAat1495(citing 4 cases). ThePresidentoftheUnitedStatesdidnotexercisetheϜRespondent sdiscretionasallegedbytheGeneralCounsel.Rather,ExecutiveOrder12871atSec.2.(d)providesthat the headofeachagency...shall...(d)negotiateoverthesubjectssetforthin5U.S.C.7106(b)(1),andinstructsubordinateofficialstodothesame[.] Nevertheless,the 4 Respondenthasnotexerciseditsstatutorydiscretiontonegotiatepursuanttosection7106(b)(1)inthiscase.TheϜparties stipulationreflectsthattheRespondent [f]romon t oraboutDecember22,1994,andcontinuingtothepresent...hasrefusedandcontinuestorefusetobargainovertheϜUnion sproposals...becausetheRespondentcontendsthatithasnodutytobargainovertheseproposals. t $ AstheRespondentpointsout,Section3ofExecutiveOrder12871specificallystatesthattheorder isintended "@ ' onlytoimprovetheinternalmanagementoftheexecutivebranchandisnotintendedto,anddoesnot,createanyrighttoadministrativeorjudicialreview,oranyright...enforceable...againsttheUnitedStates,itsagencies...,officersoremployees.... Therefore,anydispute t& !, astotheRespondent scompliancewiththePresident sdirectionintheExecutiveOrderisamatterforinternalresolutionwithintheExecutivebranch,isnotanunfairlaborpracticeundertheStatute,andisnotsubjecttoadministrativereviewhere.However,theAuthoritynotedinPrisonLocals,52FLRAat1490,thatitsassertionof jurisdictionovertheunion snegotiabilityappealundersection7117(c)inthatcasedidnotviolatesection3oftheExecutiveOrder.Similarly,theassertionofjurisdictionandresolutionofthiscomplaintofunfairlaborpracticesundersection7118oftheStatutedoesnotviolatesection3oftheExecutiveOrder. Sincethesection71101 1116(b)(1)proposalswerenegotiableattheAgency selection,theRespondentdidnotviolatesection7116(a)(5)by refus[ing]toconsultornegotiateingood @ faithwithalabororganizationasrequiredbythischapter (emphasisadded).Itiswellsettledthatapartyisnotrequiredtobargainoverapermissivesubjectofbargaining.FederalDepositInsuranceCorporation,Headquarters,18FLRA @ 768,771(1985)(citingcases).TheRespondentwasobligatedtobargainovernegotiableproposalsonly.SincealloftheϜUnion sproposalswerenegotiableonlyattheelectionoftheagency,theRespondent srefusaltobargainoversuchproposalsanditsunilateralimplementationofthechangesdidnotviolatetheStatute.DepartmentofHealthandHuman Services,Washington,D.C.andDepartmentofHealthandHumanServices,RegionX,Seattle,Washington,19FLRA73,74 @ (1985). Basedontheabovefindingsandconclusions,itisrecommendedthattheAuthorityissuethefollowingOrder:@ ( ORDER ! ̜ Thecomplaintisdismissed.̛̜̜Issued,Washington,DC,August26,1997̜,, //,,? / ( ' Lp @ dEL& @? %!- T L GARVINLEEOLIVER T L AdministrativeLawJudge 7 (@#/ 7
ќ 6@ CERTIFICATEOFSERVICE IherebycertifythatcopiesofthisDECISIONissuedbyGARVINLEEOLIVER,AdministrativeLawJudge,inCase̜No.CHCA50399,weresenttothefollowingpartiesinthemannerindicated: T L ? / ( ' L
@ dELX
@? CERTIFIEDMAIL: X
6 ++ 6̜Ms.SusanL.Kane L P600695461 МMr.PhilipRobertsFederalLaborRelationsAuthority55WestMonroeStreet,Suite1150Chicago,IL606039729Mr.GeorgeL.Reaves,Jr. L P600695462 X
NationalAssociationofGovernment̀Employees36WineStreetHampton,VA23669Ms.GinnyHamm T L P600695463 OfficeofRegionalCounsel(02CDD)VeteransAffairsMedicalCenterLexington,KY40511̛̜ REGULARMAIL: X МDanielSobrio,DirectorLaborManagementRelationsServiceDepartmentofVeteransAffairs810VermontAvenue,NWWashington,DC204206 .--. 66 ++ 6̛Dated:August26,1997̀Washington,DC6