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OBJECT #0001'r Z 6Times New Roman RegularWPC?xx519H0d0x,, -?}?~~ ???~?7>??  ?~808 ?` ~~ p0"p`x~À   ~ 0@`~ 0p`~0  0? ??~ 0 A0~ a~`@@`~! 00@ @0 ~0   ~   ( ~00~  @0`~1 @  gx?~d~00  !!8??~1@@@0 ~"Fy@0?x~ 0 $>@B1c~  @ p@ ~ @ @    ? ??? ~ @@0  xp x? ? ?? ?? ? ?? ? ? ~ @ `   ?? ??  ??~Ϗ  |? ~  #    ?? x  ??   ? ? ??     ? ? ~   G@ ? ??? ?  ?  p?? 0 ??  ?? ?  ??~ @ 0 #D 8 @~  @ #'  ?   ?  ?  ? ? ? ? ?~  $@!  ! 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OBJECT #00023|xa( T$   WDYDZE[E\ ]^_D`aDaq#@\0 \(h$(LLXXXX  0  /<  9`("Courier 10cpi(D$XXXXXXXX  0  /<Q 9Z .Courier New Regular h $@@(LLXXXX  1  /  Section7106(b)(1)oftheStatuteprovides,inpertinent  part:  (b)Nothinginthissectionshallprecludeanyagencyandanylabororganizationfromnegotiating X X(1)attheelectionoftheagency,onthenumbers,types,andgradesofemployeesorpositionsassignedtoanyorganizationalsubdivision,workproject,ortourofduty,oronthetechnology,methods,andmeansofperformingwork[.]<Q 9Z .Courier New Regular  $@@(LLXXXX  2  /  Section2(d)oftheExecutiveOrder,providesinpertinent  partasfollows: X XSec.2.IMPLEMENTATIONOFLABORMANAGEMENTPARTNERSHIPSTHROUGHOUTTHEEXECUTIVEBRANCH.Theheadofeachagencysubjecttotheprovisionsofchapter71oftitle5,UnitedStatesCodeshall:@ ********(d)negotiateoverthesubjectssetforthin5U.S.C.7106(b)(1),andinstructsubordinateofficialstodothesame;....HSF-CA-50155"ALJ Decision  # ' 6Garvin Lee Oliver, ALJ 0 .   EEE`b@E`}- -.Courier New Regular >#"u"Xd# !  dTable_ATable_B T!   ]*T!]      (XXXX33] VFBzlpx@ HKKKK@Ee\]^] VFBzlpx@ HKKKK@Ee\]^]*T!]\񀀀ܻXXUNITEDSTATESOFAMERICA  XXܻ 򀀀FEDERALLABORRELATIONSAUTHORITY   ЀܻXXOfficeofAdministrativeLawJudgesXXܻ ? ЀXXWASHINGTON,D.C.204240001 2Z 33XXXXXX (#(# (# (#LL*q39 ddd Xdd Xdd XL"L"q,hdt , dd +  5//"   5М\ZXXXX.Z\SOCIALSECURITYADMINISTRATIONSANTAROSADISTRICTOFFICESANTAROSA,CALIFORNIA̜\Z#X.XXX#Z\̀Respondent +!U } // + ?//,U }   8x?Ѐand̜\[XXXX.[\AMERICANFEDERATIONOFGOVERNMENTEMPLOYEES,COUNCIL147,AFLCIO̜\[#X.XXX#[\̀ChargingParty +! 5// +@pp2 CaseNo.SFCA50155$  x 8  $@0 0 NOTICEOFTRANSMITTALOFDECISION    TheaboveentitledcasehavingbeenheardbeforetheundersignedAdministrativeLawJudgepursuanttotheStatuteandtheRulesandRegulationsoftheAuthority,theundersignedhereinserveshisDecision,acopyofwhichisattachedhereto,onallpartiestotheproceedingonthisdateandthiscaseisherebytransferredtotheFederalLaborRelationsAuthoritypursuantto5C.F.R.2423.26(b).  PLEASEBEADVISEDthatthefilingofexceptionstotheattachedDecisionisgovernedby5C.F.R.2423.26(c)through2423.29,2429.21through2429.25and2429.27.  Anysuchexceptionsmustbefiledonorbefore OCTOBER30,1996 ,andaddressedto: $     T FederalLaborRelationsAuthority    T OfficeofCaseControl    T 60714thStreet,NW,4thFloor    T Washington,DC204240001A/()L&<dEP'<A &"-     T      \ GARVINLEEOLIVER    T      \ AdministrativeLawJudgeDated:September30,1996̀Washington,DC  ]-)6 LLXXXX33 VFBzlpx@ HKKKK@Ee^ (# (#(#(# ܻXXUNITEDSTATESOFAMERICA  XXܻ 򀀀FEDERALLABORRELATIONSAUTHORITY   ЀܻXXOfficeofAdministrativeLawJudgesXXܻ  ЀXXWASHINGTON,D.C.204240001    (#(# (# (# XuX XXX Xu33LLMEMORANDUM T      \ DATE:September30,1996  $ TO:   TheFederalLaborRelationsAuthority $  FROM: GARVINLEEOLIVER |     AdministrativeLawJudgeSUBJECT: SOCIALSECURITYADMINISTRATION     SANTAROSADISTRICTOFFICE   SANTAROSA,CALIFORNIA    T   Respondent    T andCaseNo.SFCA50155   AMERICANFEDERATIONOFGOVERNMENT   EMPLOYEES,COUNCIL147,AFLCIO    T   ChargingParty  Pursuanttosection2423.26(b)oftheRulesandRegulations,5C.F.R.2423.26(b),IamherebytransferringtheabovecasetotheAuthority.EnclosedarecopiesofmyDecision,theservicesheet,andthetransmittalformsenttotheparties.Alsoenclosedarethetranscript,exhibitsandanybriefsfiledbytheparties.Enclosures\_   _\XXXX\ #tlрHhhhHhhhHh \#XXXX#XXXX\񛀀ܻXXԈ@VVUNITEDSTATESOFAMERICA  #XXܻ#   FEDERALLABORRELATIONSAUTHORITY \#XXXX#XXXX\ $ NӀܻXX@OfficeofAdministrativeLawJudges#XXܻ#Ԉ  H   H@  H@ XXWASHINGTON,D.C.204240001 ;c Ӝ#XX#\#XXXX#\W XX.W̜W#X.X e#W*qEI ddd Xdd Xdd X(#(#q,hdt , dd +  5//" G o 5SOCIALSECURITYADMINISTRATIONSANTAROSADISTRICTOFFICESANTAROSA,CALIFORNIÀRespondent +!V~ // + ?//,   8x?ЀandAMERICANFEDERATIONOFGOVERNMENTEMPLOYEES,COUNCIL147,AFLCIÒChargingParty +!// +@``0CaseNo.YXXXX.YSFCA50155Y#X.XXX/#Y$ x 8  $WilsonG.Schuerholz̀RepresentativeoftheRespondentCharlesR.Estudillo  RepresentativeoftheChargingPartyJohnR.Pannozzo,Jr.̀CounselfortheGeneralCounsel,FLRABefore:GARVINLEEOLIVER̀AdministrativeLawJudge #-K)' #tl7""XXdd7!  _#tl7""XXdXXd7!  _@  &DECISION t @ StatementoftheCase 6   TheunfairlaborpracticecomplaintallegesthatRespondentviolatedsection7116(a)(1)and(5)oftheFederalServiceLaborManagementRelationsStatute(theStatute),5U.S.C.7116(a)(1)and(5),byunilaterallymovinganemployeenamedSteveMatichfromtheSupplementalSecurityIncome(SSI)PostEntitlementUnit(PEUnit)totheSSIDisabilityUnit(DIBUnit)withoutnotifyingandbargainingwiththeChargingParty(Union)totheextentrequiredbytheStatute.ThecomplaintallegesthattheUnionhadproposedthatRespondentnotimplementthechange,thatsuchproposalconcernedasubjectsetforthinsection7106(b)(1)ofthe_#tl7""XXdXXd7!  _Y#tl7"."XXdXXd7!  YW#tl7"."XXdXXd7!  #tl7"."XXdXXd7!  WStatute XXXXXXXX  1  /    ,and )  thatbyissuingExecutiveOrder12871, LaborManagementϜPartnerships,onOctober1,1993(58Fed.Reg.5220152203,October6,1993)(ExecutiveOrder12871orExecutiveOrder)  XXXXXXXX  2  /    , N thePresidentoftheUnitedStatesexercisedtheRespondentsdiscretionundersection7106(b)(1)tonegotiatesection7106(b)(1)subjects,includingthenumbers,typesandgradesofemployeesorpositionsassignedtoanyorganizational F subdivision.%  ԀTherecordestablishesthattheUniononlywishedtobargainoversection7106(b)(1)subjectsandnotmattersrelatingtotheimpactandimplementationofthechange.  RespondentsansweradmittedthejurisdictionalallegationsastotheRespondent,theUnion,andthecharge,andthattheUnionrequestedthatRespondentnotimplementthechange,butgenerallydeniedallotherallegations.  Forthereasonssetoutbelow,IconcludethatRespondentdidnotviolatetheStatutebyrefusingtonegotiatepursuanttosection7106(b)(1)oftheStatute.Concerningthefundamentalissuepresented,theRespondenthasnotexerciseditsdiscretiontonegotiatepursuanttosection7106(b)(1),andthePresidentsdirectivetotheheadsofagenciesinExecutiveOrder12871didnotexercisethatdiscretion.  AhearingwasheldinSanFrancisco,California.TheRespondent,Union,andtheGeneralCounselwererepresentedandaffordedfullopportunitytobeheard,adducerelevantevidence,examineandcrossexaminewitnesses,andfileposthearingbriefs.  Basedontheentirerecord,includingmyobservationofthewitnessesandtheirdemeanor,Imakethefollowingfindingsoffact,conclusionsoflaw,andrecommendations.@,,"FindingsofFact >    OnOctober31,1994,theRespondent,byDistrictManagerRandeeDimond,movedemployeeSteveMatich,aTitle16,SSIClaimsRepresentative(Specialized),athisownrequest,fromtheSSIPEUnittotheSSIDIBUnitintheSantaRosaDistrictOffice.DistrictManagerDimondconcludedthatthePEUnitwasoverstaffedandtheDIBUnitwasunderstaffed.TherewasnochangeinMatichsjobtitle,positiondescription,performancestandards,tourofduty,shift,generalworkarea,orequipment,andalthoughtherewereworkorjobrelateddifferencesintheworkofthetwounits,workwasequallydifficultandavailableinbothareas. $-'(   Priortothemove,theUnion,byCharlesR.Estudillo,ExecutiveVicePresident,hadrequestedtonegotiate,pursuanttoExecutiveOrder12871andsection7106(b)(1)oftheStatute,onthedecisiontomakethechange.Mr.EstudilloadvisedtheRespondentthat changeswithinthepurviewofthenumbers,typesandgradesofemployeesorpositionsassignedtoanyorganizationalsubdivision,workproject...arenowmandatoryareasofbargainingandproposedthatRespondent notimplementthischangeinthenumberofemployeesassignedtotheDIBUnituntilwehavebargainedtoagreement.𛀀TheUnionsproposalwasbasedonwhatitperceivedtobeinequitiesintherespectiveworkloadsofthePEandDIBUnits.  DistrictManagerDimondofferedtonegotiatewiththeUnionconcerningtheimpactandimplementationofthemove,butdeclinedtobargainontheUnionssection7106(b)(1)proposalrelatingtothenumbers,typesandgradesofemployeesdoingtheϜwork.ShebasedherdecisiononguidancereceivedfromtheRegionalOfficeinSanFranciscototheeffectthatherofficehadnotbeentrainedininterestbasedbargainingapproachesandcouldnotgoforwardwithbargainingoversection7106(b)(1)subjectsuntilsuchtraininghadbeenprovided.DistrictManagerϜDimondsresponsetotheUniondidnotraisethedefensethattheproposalwascoveredbyotheragreements.  TheGeneralCounselsPosition @  B 4  Insummary,theGeneralCounselcontendsthatRespondentviolatedsection7116(a)(1)and(5)oftheStatutewhenitrefusedtobargainoversection7106(b)(1)subjectsinconnectionwithSteveMatichsOctober31,1994movefromthePEUnittotheDIBUnit.TheGeneralCounselclaimsthattheUnionsproposalwasnegotiableundersection7106(b)(1)oftheStatute,sinceitinvolvedthe numbers,typesandgradesofemployeesorpositionsassignedtoanorganizationalsubdivisionorworkproject,and,therefore,underNationalAssociationofGovernmentEmployees, .("# LocalR5184andU.S.DepartmentofVeteransAffairsMedicalCenter,Lexington,Kentucky,51FLRA386,393(1995)(VAMC, **$% Lexington),itisunnecessarytoanalyzetheproposalunder (+%& section7106(a)todeterminewhetheritinterfereswithϜRespondentsrighttoassignworkundersection7106(a)(2)(A). $-'( Ї  TheGeneralCounselassertsthatbyissuingExecutiveOrder12871,PresidentClintonexercisedtheagenciesdiscretionandelectedtobargainoversection7106(b)(1)subjects.Therefore,theRespondentcouldnotlawfullyrefusetobargainoversuchmattersinthiscase.TheGeneralCounselclaimsheisnotenforcingExecutiveOrder12871,butsimplyenforcingtheUnionsstatutorysection7106(b)(1)bargainingrights.  TheGeneralCounselfurthermaintainsthatthegeneralsubjectmatteroftheMatichmovewasnot coveredbyorϜ containedinvariousotheragreementsasallegedbytheRespondent,includinganationalpartnershipagreement.TheGeneralCounselclaimsthat,assumingthatthematteris coveredϜbythenationalpartnershipagreement,therewasaspecificreservationofabargainingrightin Objective(8)toimmediatelybargainoversection7106(b)(1)subjects.  V   TheRespondentsPosition R =  TheRespondentpresentsnumerousdefensestotheallegedunfairlaborpractice.Essentially,theRespondentassertsthat,underthecircumstancesofthiscase,ithasnotexerciseditsdiscretiontobargainundersection7106(b)(1)and,therefore,couldnot,anddidnot,violatetheStatute.TheRespondentcontendsthatitdidnotchoosetobargaininthisinstancebecauseevaluationandtrainingprocedureswerenotinplaceintheRegionasrequiredbytheExecutiveOrderandthepartiesnationalpartnershipagreementand,further,asection7106(b)(1)requestwasonthetableatthenationallevel.TheRespondentalsopointsoutthatthePresidentsExecutiveOrderisaninternalmanagementmatterandcreatednorightsenforceableadministrativelyorjudicially.  Inaddition,theRespondentcontendsthatthemovewasdeminimis,andtheUnionhadnorighttoinitiatemidterm 0'!" bargaining.Italsoassertsthatthemovewasnotasection7106(b)(1)issuebecausetheallegedviolationoccurredinaunitwithinthedistrictoffice.Respondentcontendsthatitsformalorganizationalstructureonlyextendstothedistrictoffice/branchofficelevel.Therefore,themoveoftheemployeetoadifferentunitdidnotinvolvean organizational $-'( Мsubdivision,andRespondentclaimsthat workprojectand tourofdutyarealsoinapplicableundersection7106(b)(1).  Finally,theRespondentcontendsthatthematterofmovingtheemployeefromoneunittoanotherwas coveredbyothercollectivebargainingagreementsplacedinevidence,includingaJuly18,1992reassignmentmemorandumofunderstanding,theSeptember10,1991orNovember17,1994rotationplans,aDecember21,1994reorganizationagreement , orthenational d  partnershipagreementofJune22,1994.(RespondentsExhibits14;GeneralCounselsExhibits10,21.)@ DiscussionandConclusions j    IagreewiththeGeneralCounselthattheUnionsproposal,thattheRespondent notimplementthischangeinthenumberofemployeesassignedtotheDIBUnituntilwehavebargainedtoϜagreement,wasnegotiableattheRespondentselectionundersection7106(b)(1)oftheStatute.TheAuthoritystatedinVAMC, ^ Lexington,that,indeterminingwhetheraproposalconcernsa \ mattercoveredbysection7106(b)(1),itwould analyzewhethertheproposal...relatesto:i)thenumbers,types,andgrades;ii)ofemployeesorpositions;iii)assignedtoanyorganizationalsubdivision,workproject,ortourofduty.𛀀Id., T 51FLRAat394(footnoteomitted).Theproposalhereexpresslyinvolvesthefirsttwofactors,the number...ofemployeesϜassigned,𛀜andIconcludethat totheDIBUnitcomeswithinthethirdfactor,thebroadstatutorylanguageof anyorganizationalϜsubdivision.𛀀TheDIBUnitispartoftheRespondent,theSantaRosaDistrictOffice.IrejecttheRespondentspositionthataunitofthedistrictofficeisnotan organizationalsubdivision"becauseoftheSocialSecurityAdministrations formalorganizationalstructure.  Section7106(b)(1)makesitclearthatmattersconcerningϜ numbers,types,andgradesofemployeesorpositionsassignedtoanyorganizationalsubdivision,workproject,ortourofdutyarenegotiableonlyatanagencyselection.Underthecircumstancesofthiscase,Respondenthasnotexercisedits discretiontonegotiatetheUnionssection7116(b)(1)proposal. 4,&' Therefore,theRespondentdidnotviolatesection7116(a)(1)and(5)oftheStatuteinthisrespect,asalleged.   ThePresidentoftheUnitedStatesdidnotexercisetheϜRespondentsdiscretion.ExecutiveOrder12871atSec.2.(d)providesthat theheadofeachagency...shall...(d)negotiateoverthesubjectssetforthin5U.S.C.7106(b)(1),andinstructsubordinateofficialstodothesame[.]Nevertheless,theRespondenthasnotexerciseditsdiscretiontonegotiatepursuanttosection7106(b)(1)inthiscase.AstheRespondentpointsout,Section3ofExecutiveOrder12871specificallystatesthattheorder isintendedonlytoimprovetheinternalmanagementoftheexecutivebranchandisnotintendedto,anddoesnot,createanyrighttoadministrativeorjudicialreview,oranyright...enforceable...againsttheUnitedStates,itsagencies...,officersoremployees....  DespitethePresidentsordertotheheadofeachagencytonegotiatesection7106(b)(1)matters,thePresidentmayagreewiththeRespondentsinterpretationoftheExecutiveOrderandthepartiesnationalpartnershipagreementinthiscaseandconclude,forsomeofthesamereasonsadvancedinthiscase,thatsuchbargainingwasnotappropriateinthisinstance.Inanyevent,anydisputeastotheRespondentsfailuretocomplywiththeExecutiveOrdertonegotiate7106(b)(1)subjectsisamatterforinternalresolutionwithintheexecutivebranchandisnotanunfairlaborpracticeundertheStatute.  Inviewofthisdisposition,IfinditunnecessarytoresolvetheadditionalargumentsmadebytheRespondentindefenseofthisactionanddisputedbytheGeneralCounsel.  Basedontheabovefindingsandconclusions,itisrecommendedthattheAuthorityissuethefollowingOrder:  ORDER  Ӝ  TheComplaintisdismissed.Issued,Washington,DC,September30,1996 $-'( ЇA/()<dE<A     `     h   GARVINLEEOLIVER   `     h   AdministrativeLawJudgea    a``  ќ`@CERTIFICATEOFSERVICE    IherebycertifythatcopiesofthisDECISIONissuedbyGARVINLEEOLIVER,AdministrativeLawJudge,inCaseNo.SFCA50155,weresenttothefollowingpartiesinthemannerindicated:?/('L @dE @?    CERTIFIEDMAIL:     `__`Mr.WilsonG.SchuerholzOfficeofLaborManagementRelationsSocialSecurityAdministrationG110WestHighRiseBuilding6401SecurityBoulevardBaltimore,MD21235Mr.CharlesR.EstudilloAmericanFederationofGovernment̀Employees,Council147,AFLCIO2099RangeAvenueSantaRosa,CA95401JohnR.Pannozzo,Jr.,Esq.SanFranciscoRegionFederalLaborRelationsAuthority901MarketStreet,Suite220SanFrancisco,CA941031791 REGULARMAIL:  "  NationalPresidentAmericanFederationofGovernment̀Employees,AFLCIO80FStreet,NWWashington,DC20001 ,(* ЇDated:September30,1996̀Washington,DC`