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A. a.(1)(a) i) a)S!"#($0 ($0 0 (($0 0 0   A_ekqwDocumentDocument StyleI.1.A.a.(1)(a)i)a)x?t2PleadingHeader for Numbered Pleading Paper & r '!(LL  *L T \LX*  xXXXLLx[X` hp x (#%'0*,.8135@8:<H?ALX\LHxXX?/('*dE*??/('*dE*?HH1HH2HH3HH4HH5HH6HH7HH8HH910111213141516171819202122232425262728  .+(2!$ Au!LL  *L T \LX*    p4Heading 2Underlined Heading Flush LeftV4Heading 1Centered Heading@..  b* 8Bullet ListIndented Bullet List0..0` ..`  d(WV $   (WV $    d( W7$  (2!$ Au!LL  *L T \LX*    (W0$   (WV $   ("$    /(W0$   (2e$ Au!LL  *L T \LX*    YXXXX  0  /( W7$  ԫ<6X9`(CourierXx6X@`7X@   (WV $     CRight ParRight-Aligned Paragraph NumbersI.A.1.a.(1)(a)i)a)3|x9<6X9`(CourierXx6X@`7X@(u$LL  *L T \LX*   Table_A 0#GuHXd# H ./23,4567D89Daq#l.Courier New Regular- -Table_A( W8$   ( W7$  ( W7$  ( W7$  ( W7$  ( W7$  ( W7$  ( W7$  (WV $   (WV $   ( W8$   ( W7$  ( W7$  ( W7$  < 9Z .Courier New Regular( W7$  ( W7$  ( W7$  ( W7$  ( W7$  (WV $   ( W8$   ( W7$  ( W7$  ( W7$  ( W7$  ( W7$  ( W7$  ( W7$  ( W7$  ( W7$  ( W7$  ( W8$   (WV $   ( W7$  ( W7$  ( W7$  ( W8$   ( W7$  ( W7$  ( W7$  ( W7$  ( W7$  ( W7$  ( W7$  ( W7$  (WV $   ( W7$  ( W7$  ( W7$  ( W8$   ( W7$  ( W7$  ( W7$  ( W7$  ( W7$  ( W7$  ( W7$  (W0$   ( W7$  ( W7$  ( W7$  (W0$   ( W7$  ( W7$  ( W7$  ( W7$  (W0$   ( W7$  (WV $   ( W7$  ( W7$  ( W7$  ( W8$   ( W7$  ( W7$  ( W7$  ( W7$  ( W7$  ( W7$  ( W7$  ( W7$  ( W7$  (W0$   (W0$   ( W7$  ( W7$  ( W7$  ( W7$  ( W7$  ( W7$  (W0$   (WV $   ( W7$  (W0$   (W0$   ( W7$  ( W7$  (WV $   ( W7$  ( W7$  ( W7$  ( W8$   ( W7$  ( W7$  ( W7$  ( W7$  ( W7$  ( W7$  ( W7$  ( W7$  ( W7$  (W0$   (WV $   (WxA$    (WxA$    ( W7$  (WV $   (WxA$    ( W7$  (W0$   (W0$   ( W7$  ( W7$  (WV $   ( W7$  ( W7$  ( W7$  ( W8$   ( W7$  ( W7$  ( W7$  ( W7$  ( W7$  ( W7$  ( W7$  ( W7$  ( W7$  (W0$   (W0$   (W0$   ( W7$  ( W7$  (WV $   ( W7$  ( W7$  ( W7$  ( W8$   ( W7$  ( W7$  ( W7$  ( W7$  ( W7$  ( W7$  ( W7$  ( W7$  ( W7$  (W0$   (WV $   (WxA$    ( W7$  (W0$   (W0$   ( W7$  ( W7$  (WV $   ( W7$  ( W7$  ( W7$  ( W8$   ( W7$  ( W7$  ( W7$  ( W7$  ( W7$  ( W7$  ( W7$  ( W7$  ( W7$  (W0$   (WV $   (WxA$    ( W7$  (W0$   (W0$   ( W7$  ( W7$  (WV $   ( W7$  ( W7$  ( W7$  ( W8$   ( W7$  ( W7$  ( W7$  ( W7$  ( W7$  ( W7$  ( W7$  ( W7$  ( W7$  (W0$   (WV $   (WxA$    (WV $   (WxA$    ( W7$  (W0$   (W0$   ( W7$  ( W7$  (WV $   (WxA$    (WV $   ( W7$  ( W7$  ( W7$  ( W8$   ( W7$  ( W7$  ( W7$  ( W7$  ( W7$  ( W7$  ( W7$  ( W7$  ( W7$  (W0$   (WV $   (WxA$    (WV $   (WxA$    ( W7$  (W0$   (W0$   ( W7$  ( W7$  (WV $   (WV $   (WxA$    ( W7$  (W0$   (W0$   ( W7$  ( W7$  (WV $   (WxA$    (WV $   ( W7$  ( W7$  ( W7$  ( W8$   ( W7$  ( W7$  ( W7$  ( W7$  ( W7$  ( W7$  ( W7$  ( W7$  ( W7$  (W0$   (WV $   (WxA$    (WxA$    (WV $   ( W7$  ( W7$  ( W7$  ( W8$   ( W7$  ( W7$  ( W7$  ( W7$  ( W7$  ( W7$  ( W7$  ( W7$  ( W7$  (W0$   (WV $   (WxA$    BBBBpTable_AB  6e$LL  *L T \LX*YXXXX  1  /  AsconcededbyRespondent,thesalientfactsare X undisputed.Itakethistomean,andinanyeventIconclude,thatallofthematerialfactsareundisputed.     6e$LL  *L T \LX*YXXXX  2  /  Althoughtheseadditionalcategoriesapparentlyinclude X employeeswhoareoutsidethebargainingunit,thereseemstobenodisputethatsomeofthemarewithintheunit.    h 6e$LL  *L T \LX*YXXXX  3  /  Theprocedurallandscapemaybeevenmorecomplicatedthan X this,buttheaboveshouldsufficetoillustratetheinterestsatstakehere.    [ 6e$LL  *L T \LX*YXXXX  4  /  RespondentalsoreliesonU.S.Dept.ofJustice,I.N.S.v. X FLRA,995F.2d46(5thCir.1993).Ifindthatdecisiontobe  inapplicablebecause,inthatcase,theagencypromptlyasserteditscontentionofnonnegotiabilityandbecausethecourtconcludedthatthechangesmanagementmade,notmerelytheunionsspecificproposals,werenonnegotiable.  6V$LL  *L T \LX*pX7XXX  7  /  Candordictatedthedisclosureorreminder,asthecase  maybe,thataprominentoccupantofthislistis thatnisi  priusnuisancewhojustnowisratherrife,thejudicial X humorist.  6e$LL  *L T \LX*YXXXX  5  /  Havingdisposedofthecontractualdefenseonthisbasis, X Ifinditunnecessarytopassonthe mandatoryversus permissivenatureofanyoftheexpiredcontractsprovisionstodeterminewhethertheywerestillenforceable.< 9Z .Courier New Regular Z 6e$LL  *L T \LX*YXXXX  6  /  Butcf.DepartmentofJustice,UnitedStatesImmigration X andNaturalizationService,UnitedStatesBorderPatrol,Laredo,Texas,23FLRA90,93,103(1986)(necessitywasshown  wherechangeswere deemednecessarybyRespondentsofficials,basedonthebestintelligenceavailable,toeffectivelystopthemaximumnumberofillegalaliens).  6V$LL  *L T \LX*tX7XXX  9  /  Although,inFCI,theAuthorityidentifiedfivefactors  thatitstateditwouldconsider, amongotherthings,nootherfactorsthatmightbeapplicableherehavebeenbroughttomyattention.  6e$LL  *L T \LX*YXXXX  7  /  Candordictatesthedisclosureorreminder,asthecase X maybe,thataprominentoccupantofthislistis thatnisi  priusnuisancewhojustnowisratherrife,thejudicial  humorist.< 9Z .Courier New Regular u 6e$LL  *L T \LX*YXXXX  8  /  ThequirkinessoftheMikadosideasaboutgoverningin X generalandtheadministrationofjusticeinparticularhadalreadybeendemonstrated.Hisobject(allsublime)wastoachieve,intime,tomakethepunishmentfitthecrime(etc.).Inpursuitthereof,hewouldresorttoextraordinaryremediessuchashousingconvictedbilliardsharksincellsequippedwithtwistedcuesandellipticalballs.  6e$LL  *L T \LX*YXXXX  9  /  Although,inFCI,theAuthorityidentifiedfivefactors X thatitstateditwouldconsider, amongotherthings,nootherfactorsthatmightbeapplicableherehavebeenbroughttomyattention. , 1!'LL  *L T \LX*  x[LL: #0= dl!#&t(*$-|/1,4684;=???  ?~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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D0H~@ B  ~ @ ` $~  D@~ @$D0@@@~H |@ @` ~@  " ~$   @~  @ @`~@ xD@~@@~ @ g ~  p@`@~ `p"8 ? ?~ H!>@ @~(`$@ `<@8#0`H@$>~@H $> H~ $ @ ?? ~@ ~ @   ! ~ N "  @@~0 D@ ~@ @@D $~@ D H~0"!  ~     ~ @H @@  $`H~@$  @H~( @ !@ ~  B0 ~ `  (@~ D d@@ ???~   "`  ~  @ H @~H`@$0 ?? ?  ~" " @~ PLF D@0@ ?? ?q??!????? ? ?~ @H "!  @   ?? ?? ? ~ H H DbL   ? ?? ~  @@1 `  @h ??  ? ?? ~ @1C0   ?? 8? ?? ~  f   ??? ~ Hp @0a@ " ? ?? ~  F0`0`   ?? ? ?    ?? ? ?   ~  x   ???   ~  Da& ? ? ??? ?        ?  ?  ?       ? ? ? ? ? ?~H   cb~&B~1~@```~ 1 ~Fc ~1 8p$0~ 0@@@`???  ? ~00~p 8C~c 8p~ 0~0@~c2 ?? ?~`  8p ~À8 ~8p 8???   ?o?? BOlePartOlePres000h???}ow~g}p??{>?s>w=on{?w?w=;û}8va|ls~>o?'om{Co?oo=_??GOq={C8omlF~xmiG߾|sm{ryqc>smہs f~e?e_dde?l7oeoyeoe}m_h___h?_o_o_?o_t>o_quo_d~?_ol?/_lϟo? o lomo}?C_???>?M-[L-CyF{?g;-s?q6s?϶l\`=o=m=ێm~onown}og~}o{#{x>ۯ6w ݾon[]7`.wwxm<<ro?gs?3?|psyY>?`ww>pg61v>?8{rpG?p 9#w;#y?Lϟ<<?̝?~?ࡱࡱ;  METAFILEPICT0H ^     ^C (p???}ow~g}p??{>?s>w=on{?w?w=;û}8va|ls~>o?'om{Co?oo=_??GOq={C8omlF~xmiG߾|sm{ryqc>smہs f~e?e_dde?l7oeoyeoe}m_h___h?_o_o_?o_t>o_quo_d~?_ol?/_lϟo? o lomo}?C_???>?M-[L-CyF{?g;-s?q6s?϶l\`=o=m=ێm~onown}og~}o{#{x>ۯ6w ݾon[]7`.wwxm<<ro?gs?3?|psyY>?`ww>pg61v>?8{rpG?p 9#w;#y?Lϟ<<?̝?~?'r Z 6Times New Roman Regular Au!LL  *L T \LX*    553 T LLX\LH3XX3XXX335VFBzlpx@ HKKKK@ELX \565VFBzlpx@ HKKKK@ELX \564񀀀*?XX3UNITEDSTATESOFAMERICA X #X3X*?# 򀀀FEDERALLABORRELATIONSAUTHORITY  > Ѐ*?XX3OfficeofAdministrativeLawJudges#X3X*?# $ ЀiXX3WASHINGTON,D.C.204240001   L334#XXXX3#4X7 XXX L"L" " "L#X7 Xe##XX XX7#1XX#XX1}#*q=C ddd Xdd Xdd XL"L"q,hdt , dd +  5//" b  5}XXXXU.S.DEPARTMENTOFJUSTICE,    IMMIGRATIONANDNATURALIZATIONSERVICÈRespondent +! // + ?//,   8x?ЀandAMERICANFEDERATIONOFGOVERNMENTEMPLOYEES,NATIONALBORDERPATROLCOUNCIL,AFLCIÒChargingParty +!b // +ЀCaseNo.WACA50048$"  x 8  $@0 0 NOTICEOFTRANSMITTALOFDECISION Z   TheaboveentitledcasehavingbeenheardbeforetheundersignedAdministrativeLawJudgepursuanttotheStatuteandtheRulesandRegulationsoftheAuthority,theundersignedhereinserveshisDecision,acopyofwhichisattachedhereto,onallpartiestotheproceedingonthisdateandthiscaseisherebytransferredtotheFederalLaborRelationsAuthoritypursuantto5C.F.R.2423.26(b).  PLEASEBEADVISEDthatthefilingofexceptionstotheattachedDecisionisgovernedby5C.F.R.2423.26,(c),through2423.29,2429.21through2429.25and2429.27.  Anysuchexceptionsmustbefiledonorbefore SEPTEMBER30,1996 ,andaddressedto:  (     T FederalLaborRelationsAuthority    T OfficeofCaseControl    T 60714thStreet,NW,4thFloor    T Washington,DC204240001    T    L ?/('L&@dEL(@? r(&2     T    L JESSEETELSON    T    L AdministrativeLawJudgeDated:August27,1996̀Washington,DC  ,*8  " "L"L"XX3XXX33~VFBzlpx@ HKKKK@EL\߀*?XX3UNITEDSTATESOFAMERICA  #X3X*?R# 򀀀FEDERALLABORRELATIONSAUTHORITY  ~ Ѐ*?XX3OfficeofAdministrativeLawJudges#X3X*?-# d Ѐ1XXWASHINGTON,D.C.204240001 Jr L33 L"L" " "#} is #L#}XX }#1XXX7 XXX#X7 X##}XX XX7#MEMORANDUM T    L DATE:August27,1996   TO:   TheFederalLaborRelationsAuthority )Q FROM: JESSEETELSON     AdministrativeLawJudgeSUBJECT: U.S.DEPARTMENTOFJUSTICE,IMMIGRATIONAND  Ѐ   NATURALIZATIONSERVICE      T   Respondent    T andCaseNo.WACA50048   AMERICANFEDERATIONOFGOVERNMENTEMPLOYEES,   NATIONALBORDERPATROLCOUNCIL,AFLCIO    T ChargingParty  Pursuanttosection2423.26(b)oftheRulesandRegulations,5C.F.R.2423.26(b),IamherebytransferringtheabovecasetotheAuthority.EnclosedarecopiesofmyDecision,theservicesheet,andthetransmittalformsenttotheparties.Alsoenclosedarethetranscript,exhibitsandanybriefsfiledbytheparties.47Enclosures  X Л7  D%jr h@lr9@@LLUNITEDSTATESOFAMERICA X @0 0 FEDERALLABORRELATIONSAUTHORITY@ OFFICEOFADMINISTRATIVELAWJUDGES@\ \ WASHINGTON,D.C.204240001*qBI ddd Xdd Xdd XL"L"q,hdt , dd +  5//" n   5U.S.DEPARTMENTOFJUSTICE,IMMIGRATIONANDNATURALIZATIONSERVICÈRespondent +!6 // + ?//,   8x?ЀandAMERICANFEDERATIONOFGOVERNMENTEMPLOYEES,NATIONALBORDERPATROLCOUNCIL,AFLCIÒChargingParty +!// +ЀCaseNo.WACA50048$n  x 8  $ThomasF.Bianco,Esquire   FortheGeneralCounselJamesE.Lewis,Esquire   ForRespondentT.J.Bonner,PresidentDeborahS.Wagner,Esquire(ontheBrief)   FortheChargingPartyBefore: JESSEETELSON "6 %    AdministrativeLawJudge @%DECISION  &&#)   AnunfairlaborpracticecomplaintallegesthatRespondentviolatedsections7116(a)(1)and(5)oftheFederalServiceLaborManagementRelationsStatute(theStatute)byimplementingapolicyconcerningimmigrationofficersuseof nondeadlyforcewithoutfirstgivingtheChargingParty(the +2)/ D%7GGXXdXXd7H  7D%7GGXXdXXd7H  D%7GGXXdXXd7H  D%7GGXXdXXd7H  D%7GGXXdXXd7H  D%7GGXXdXXd7H  D%7GGXXdXXd7H  D%7GGXXdXXd7H  D%7GGXXdXXd7H  D%7GGXXdXXd7H  D%7GGXXdXXd7H  7Union)anopportunitytobargain totheextentrequiredby  7D%7GGXXdXXd7H  D%7GGXXdXXd7H  D%7GGXXdXXd7H  D%7GGXXdXXd7H  D%7GGXXdXXd7H  D%7GGXXdXXd7H  D%7GGXXdXXd7H  D%7GGXXdXXd7H  D%7GGXXdXXd7H  D%7GGXXdXXd7H  D%7GGXXdXXd7H  D%7GGXXdXXd7H  76D%#GuHXd# H   6the[Statute].     AlthoughCounselfortheGeneralCounselbeganhisopeningstatementatthehearinginthiscasewiththeobservationthat [t]hisisafairlysimplecase,thearrayof r~ contentionspresentedbyallthreepartiesbeliesthathopefulrepresentation.Infact,thereappearstobeso7D%7GGXXdXXd7H  7,D%7G[GXXdXXd7H  ,littlemutualunderstandingofwhatthecaseisaboutthatoneapproachesitmuchasonewouldapproachthetaskofawitnesstoapolicelineup,theinitialtaskbeingtosingleoutthecasethatisactuallytobedecided. 0  , 0"" , @!""FindingsofFactg 4  1  /    ׈     TheUnionistheagentoftheexclusiverepresentativeof nz  anationwidebargainingunitofemployeesemployedbyRespondent.Asitsagent,theUnionrepresentsemployeesofRespondentsBorderPatrol,includingBorderPatrolAgents(themajorityofthebargainingunit),criminalinvestigators( SpecialAgents),detentionenforcementofficers,garage  mechanics,maintenanceworkers,secretarialandadministrativeassistants,andoccupantsofsupportpositionssuchascommunicationassistantsandradiodispatchers.BorderPatroloperationsarecarriedoutin21geographical Sectors.    BetweenOctober1992andJanuary1993Respondentbegantoimplementapolicyconcerningtheuseofanonlethalweaponcalleda sidehandlebaton.Thepolicyisdescribedina ( documentoneand1/3typewrittenpagesinlengththatincludesthetrainingtoberequired,themannerofcarryingandholdingthebaton,arequirementforreportingincidentsinvolvingthebatonsdeployment,guidelinesforitsuse,andsomespecificapplicationsdesignatedas notauthorized. !! Implementationofthepolicy,andthetrainingprogramthataccompaniedit,wasthesubjectofanunfairlaborpracticeproceeding,CaseNo.DACA30370,thatiscurrentlybeforetheAuthority.Thepolicydocumentitselfidentifiestheemployeeswhoaretobetrainedtousethesidehandlebatononlyas Agents. & #'   '#(   OnNovember3,1993,MarylouWhelan,Respondents DirectoroftheHumanResourcesPolicyDivisionsentthefollowinglettertoUnionPresidentT.J.Bonner. X XEnclosedistheNewImmigrationandNaturalizationServicepolicyonNonDeadlyForce.WhileallpertinentaspectsofthepolicyhavebeenimplementedthroughtheimplementationoftheSideHandleBatonProgramforBorderPatrolSectorsandpersonnel,wearesupplyingtheoverallServicepolicytoyouforcomparisonandtoaffordyoutheopportunitytocommentonit.IfyounoteanyaspectoftheServicesNonDeadlyForcePolicythatwouldchangethepoliciesorproceduresestablishedthroughtheSideHandleBatonProgram,pleasebringthemattertoourattentionsothatitmaybecorrected. X X  The NonDeadlyForcepolicystatementaccompanying  , Ms.Whelansletterwasathreeand1/3pagetypewrittendocumentdatedOctober2,1993,signedbyActingImmigrationandNaturalizationServiceCommissionerChrisSale.Itoverlapstheareascoveredbythe SideHandleBatonPolicytosome  extent,butismoredetailed,variesinsomedescriptivedetails,coverstheuseofdevicesinadditiontotheexpandablesidehandlebatondescribedintheearlierpolicy,and,ashintedatinWhelansletter,isapplicabletoseveralcategoriesofemployeesotherthanborderpatrolagents.i 4  2  /    ׀ 6B   Anewsubjectcoveredbythe1993documentisalistofnondeadlydevicesthatarenotauthorizedforuse.Anothernewsubjectisapolicyonstorageandmaintenanceofnondeadlyforcedevices,providinginpartthateachimmigrationofficerwhoisauthorizedtouseoneormoreofthelisteddevicesisresponsibleforitssafestorage,generalcare,andmaintenance.Inplaceof(orperhapsinadditionto)thepreviousrequirementforreportingdeploymentsofthesidehandlebaton,the1993documentrequiresthatincidentsresultingininjuryorsuspectedinjurybereportedorallytoasupervisorwithinonehourandinwritingbytheendofthe & #' employeesworkshift.Inaddition, properandtimely '#( medicalattentionisrequired,priorto executingthe ($) 9@    reportingrequirements,for [a]nysuspectwhoclaimsinjury  orappearstobeinjured[.]    BonnerreceivedWhelansletter,withthisenclosure,onNovember9,1993.OnDecember9herespondedwithalettercontaining comments,concerns,questions,andproposals... r~ submittedinresponsetotheServicessinstantproposal. X d Theletterscontentswere,forthemostpart,substantiveproposalstoreplaceormodifycertainprovisionsinthepolicydocument.Bonnerfollowedthisportionofhisletterwiththestatementthat [t]heforegoingcomments,concerns,    questions,andproposalsarenotallinclusive,andaresubjecttorevisionand/oraugmentationatanytimepriortothecompletionofbargaining.Hisconcludingparagraph   stated,inpertinentpart: X XAtthistimetheUnionmakesknownitsdemandtobargainconcerningtheproposedpolicyontheuseofnondeadlyforcetothefullestextentpermissibleunderlawandExecutiveOrders.Pendingthecompletionofnegotiations...,theUnionalso79@    7,9@    ,insiststhattheimplementationoftheproposedpolicybeheldinabeyance. X X  TheUnionreceivednofurthercommunicationfromRespondentonthissubjectuntilMay19,1994,whenBonnerreceivedaMay13letterfromRobertJ.Okin,ActingAssistantCommissionerforHumanResourcesandCareerDevelopment.Thisletterannouncedtheimplementation, forallServiceofficers ( whoarenotpresentlygovernedbyitsrequirements,ofa  slightlyrevisedversionoftheOctober1993 NonDeadlyForce  policy.Theletterrepresents,asdidWhelansNovember1993lettertoBonner,thatthepolicy isalreadyineffectfor    BorderPatrolAgentsandDetentionOfficersassignedtoBorderPatrolSectors,becauseitwasimplementedforthoseofficersthroughtheSideHandledBatonProgram.Thus,accordingto f#r# Okinsletter, theServiceisimmediatelyimplementingthe L$X $ requirementsofthe...PolicyforSpecialAgents(CriminalInvestigators)[,who]arenotcoveredbytheSideHandleBatonProgram. & #'   TheOkinletteralsoinformedBonnerthat [t]he ($) CommissionerhasdeterminedthatsuchimplementationisnecessarytothefunctioningoftheagencybecauseofthemassiveliabilityissuespresentedbythelackofServicepolicyonthesematters,andbecausethepublicinterest b,n(- demandsclearguidelinesontheuseofnondeadlyforcetoguideourofficers.Finally,OkinadvisedBonnerthat  implementationofthepolicyiswithoutprejudicetothe  rightoftheUniontoenterintonegotiationsoverapplicationofthisPolicytoSpecialAgentsinSectors[,]andheinvited  Bonnertosendtohimanyimmediatequestionsandconcerns r~ aboutthismatter[.] X d   Thepolicy,asimplemented,variedfromtheOctober1993versionsubstantivelyinthat,asproposedbyBonnerinhisDecember1993letter,itaddedoleoresincapsicum(pepper)tothelistofauthorizednondeadlyforcedevices.  Therecordisnotclearastowhichcategoriesofbargainingunitemployees,otherthantheSpecialAgents,coveredbythe1994policyhadnotbeencoveredbythesidehandlebatonpolicy.However,itisundisputedthattheSpecialAgentswerenot.Further,despitetheassertionsintheWhelanandOkinletters(whichIdonotregardasevidenceforthispurpose)thatthe NonDeadlyForcepolicyhadbeen  implementedthroughthesidehandlebatonpolicyforthoseemployeescoveredbytheearlierpolicy,IcreditBonnersotherwiseundisputedtestimonythatsomeoftherequirementsinthe1994policywereneweventoBorderPatrolAgents. @ & d DiscussionandConclusions  P\   IssuesPresentedandPreliminaryDisposition (   CounselfortheGeneralCounselarguesinhisbrief,  initially,thatRespondentviolatedsections7116(a)(1)and'dPK(5)oftheStatutebyfailingtorespondtotheUnionsrequesttobargain.Thecomplaintdoesnotallegethisasanindependentviolation,nordoestherecordofthehearingprovideanadequatebasisfordeterminingthatRespondent f#r#  neverthelessunderstood,orobjectivelyshouldhave L$X $ understoodthatthistheoryofthecasewasbeingpursued 2%>!% andrequiredadefense.Therefore,IamnotpermittedtoentertainthisaspectoftheGeneralCounselscase.American & #' FederationofGovernmentEmployees,Local2501,Memphis,Tennessee,51FLRA1657at166064(1996).However,the ($) Unionsrequesttobargainandtheeventsthatfollowedremainaspartofthepatternofeventsthatpertaintotheotherissuesinthecase. b,n(- lr      ThecomplaintallegesthatRespondentviolatedsections7116(a)(1)and(5)oftheStatutebyimplementingthenondeadlyforcepolicy withoutfirstgiving[theUnion]an  opportunitytobargaintotheextentrequiredby[theStatute].Inhisopeningstatementatthehearing,Counsel  fortheGeneralCounselgavenoticethatthebargainingobligationbeinglitigatedincluded,atleastwithrespecttosomeaspectsofthenondeadlyforcepolicy,anobligationtobargain,pursuanttoExecutiveOrder12871(October1,1993),overthesubstanceofthechangesthatweremade.However,theGeneralCounselsbriefontheissueofunilateralimplementationarguesonlythatRespondentwasobligatedtonegotiateovertheimpactandimplementationofthenewpolicy.Ontheotherhand,theUnion,initsbrief,contendsthatExecutiveOrder12871hadtheeffectofrequiringRespondenttonegotiateoversubstantiveUnionproposalsonthesubjectof technology,methods,andmeansofperforming T` work,whichfallswithinsection7106(b)(1)oftheStatute. :F   Respondentdoesnotdisputethatitimplementedthenondeadlyforcepolicyorthat,asageneralproposition,thesubjectmatterofthepolicyincludedconditionsofemploymentaffectingbargainingunitemployees.Thus,thepolicyinvolvedthetechnology,methods,andmeansofperformingwork,seeNationalTreasuryEmployeesUnion,Chapter83and  DepartmentoftheTreasury,InternalRevenueService,35FLRA jv 398,40607(1990),asubjectmatterordinarilyrequiringnotificationtoanexclusiverepresentativeandtheopportunitytonegotiateatleastovertheimpactandimplementationofchanges.U.S.CustomsService,RegionI  (BostonMassachusetts),15FLRA309,311(1984).Rather,  Respondentdeniesanybargainingobligationbyvirtueofa7lr    7,lr    ,seriesofcontentionsthat,forpurposesoforganization,I,lr    ,shalldiscussundertheheadingof Defenses. !!   Defenses f#r#   1.PublicPolicyExclusion  RespondentsfirstdefenseconteststheAuthoritysjurisdiction,assertingonpublicpolicygroundsthatthemattersincludedinthenondeadlyforcepolicy,irrespectiveofany incidentaleffectonconditionsofemployment,should )%* beexemptfromtheStatutesbargainingrequirements.ThiscontentionisgroundedinpartonU.S.Dept.ofTreasuryv. |+', FLRA,43F.3d682,689(D.C.Cir.1994),wherethecourt b,n(- rejectedtheAuthoritysbroadinterpretationof grievance  undertheStatutetoincludeaclaimedviolationofalawthatwasnotdirectedtowardworkingconditionsbutaffectedthemonlyincidentally.Respondentalsoreliesontheauthority  grantedtotheAttorneyGeneralandRespondentbytheImmigrationActof1990,PublicLaw101649,104Stat.4978(Immact90)toperformthefunctionsnecessarytoimplementtheagencymissioninamannerthatpreservestheconstitutionalrightsofsuspects.RespondentcontendsthatCongressthus $ 0  removedfromthesphereofconditionsofemploymentthe    policiesandstandardsgoverningtheuseofforcebyimmigrationofficersandemployees(Br.at12).        RespondentdoesnotidentifyanyparticularlanguageinImmact90thatcarvesthisareaofagencyactivityoutoftheAuthoritysjurisdiction.Rather,itreliesonthegeneralpoliciesassertedtobeimplicitinImmact90anditslegislativehistory.Thesepolicies,Respondentargues,precludearoleforcollectivebargaininginestablishingtheguidelinesandproceduresforitsemployeesuseofforce.  EveniftheconsiderationscitedbyRespondentareaccordedthemaximumweightimaginable,however,theydonotbringRespondenttowhereitseekstobe.Itsgoalhereisavoidanceofanybargainingobligation.Butwhilethese  policyconsiderationsmightbepersuasivewithrespecttobargainingoverthesubstanceofthepolicychanges,theyechoratherfaintlywithrespecttobargainingthatislimitedtotheimpactandimplementation(I&I)ofthechanges.SuchbargainingwouldnotplaceanyoneoutsideofagencymanagementinthepositionofinterpretingtherequirementsofImmact90.NorwoulditenabletheUniontoparticipateinsettingthepoliciesandstandardsgoverningtheuseofforce.TheUnion,giventheopportunity,mighthavesubmittedI&Iproposalsthatinterferedwithmanagementrightsandthatimpingedonthepublicpolicymatterscitedabove.However,itmighthavesubmittedproposalsthatdidnot.See,forexample,American L$X $ FederationofGovernmentEmployees,NationalBorderPatrolCouncil,Local2544andU.S.DepartmentofJustice,ImmigrationandNaturalizationService,BorderPatrol,Tucson,Arizona,46FLRA930,953(1992),remandedonothergrounds, '#( Nos.9370137and9370293(9thCir.Sept.8,1993),motionto ($) vacatedenied,49FLRA545(1994).Therefore,Respondentwas )%* requiredatleasttoaffordtheUnionthatopportunity.  2.AssertedNonnegotiabilityofUnionsProposals b,n(- Ї  RespondentarguesfurtherthatitwasrelievedofanybargainingobligationbecausetheUnionsubmittedproposalsthat,Respondentcontends,wereallnonnegotiable.WhileboththeGeneralCounselandtheChargingPartysubmitthattheproposalssubmitted(oratleastsomeofthem)werenegotiable,ImustfirstdecidewhetheritisnecessarytoreachthatissueinordertodeterminewhetherornotRespondentcommittedtheallegedunfairlaborpractice(s).  InDepartmentoftheAirForce,Headquarters,AirForce    LogisticsCommand,WrightPattersonAirForceBase,Ohio,    М25FLRA541(1987)(WrightPatterson),JudgeArrigorejected   thecontentionthatthecomplaintallegingarefusaltobargainshouldbedismissedbecausetheunionsproposalswerenotnegotiable.JudgeArrigonotedthatmanagementhadrefusedtonegotiateforotherreasonsandhadnotmadeanyreference,atthetimeofitsrefusal,tothenegotiabilityoftheproposals.Heobservedthat [p]roposalsfrequently :F changeduringthebargainingprocess,dependinguponavarietyoffactors,andsincenobargainingoccurred,itisnotpossibletoascertainatthistimewhattheUnionsultimateproposalswouldhavebeenorindeed,whatRespondentmighthaveacceptedifbargainingcommenced.Id.at555.The  Authorityagreed: X XFinally,inagreementwiththeJudgeandforthereasonsstatedbyhim,werejecttheRespondentsargumentsthattheUnionwaiveditsbargainingrightsandthattheRespondenthadnobargainingobligationbecausetheproposalssubmittedbytheUnionwerenonnegotiable. Xl XlId.at545.SeealsoBlueGrassArmyDepot,Richmond,    Kentucky,50FLRA643,65253(1995). !!   Respondentwouldhaveitotherwise,notingtheAuthoritysstatementinanotherdecisionthat anagencys L$X $ implementationofachangedoesnotviolatetheStatuteifallofaunionsproposalsregardingthechangearenonnegotiable.NationalWeatherServiceEmployeesOrganiza & #' tionandU.S.DepartmentofCommerce,NationalOceanicandAtmosphericAdministration,NationalWeatherService,37FLRA ($) 392,396(1990),citingDepartmentofHealthandHuman )%* Services,SocialSecurityAdministration,Baltimore,Maryland, *&+ 31FLRA651,656(1988)(SSA,Baltimore).Theapparent |+', conflictbetweenthisstatementandtheholdinginWright b,n(- h@     Pattersondemandsresolutionnotonlyforpurposesofthe  instantcasebutbecausepartiesandjudgesareentitledtoknowinwhatcircumstancesitisnecessaryto litigate  negotiabilityissuesinunfairlaborpracticeproceedings.  IbelievethattheapparentconflictmayberesolvedbyanexaminationoftheAuthorityssubsequentapplicationsofthepropositionderivedfromSSA,Baltimore.Thus,ina > J representativestatementofanagencysresponsibilitieswhenmakingchangesinconditionsofemployment,theAuthorityhasexplainedthat: X X Whereabargainingobligationarisesbyvirtueofanagencychangingconditionsofemployment,theAgencyisrequiredtobargainonlyovernegotiableproposalsaddressingthosechanges.See,for nz  example,[SSA,Baltimore].Whereaunionsubmits T` bargainingproposalsandanagencyrefusestobargainoverthembasedonthecontentionthattheyarenonnegotiable,however,theagencyactsatitsperilifitthenimplementstheproposedchangeinconditionsofemployment.Iftheunion'sproposalisheldtobenegotiable,theagencywillbefoundtohaveviolatedsection7116(a)(1)and(5)oftheStatutebyimplementingthechangewithoutbargainingoverthenegotiableproposal. X XU.S.DepartmentofHealthandHumanServices,SocialSecurity 6B Administration,Baltimore,Maryland,39FLRA258,26263 ( (1991).Accord:U.S.DepartmentofHealthandHumanServices,  SocialSecurityAdministration,Baltimore,MarylandandSocialSecurityAdministration,HartfordDistrictOffice,Hartford,Connecticut,41FLRA1309,1317(1991).      ThisreadingofSSA,Baltimoreplacesitinthecontext "" ofabroaderunderstandingofanagencysobligationwhenfacedwithbargainingdemandsandproposals.Thus,althoughanagencyneednotrefrainfrommakingproposedchangeswhenpresentedwithnonnegotiableproposals,firstitmustaffordtheunionanopportunityeithertomodifyitsproposals,iftheirnegotiabilityisbeingchallenged,ortoappealthe agencysallegationofnonnegotiabilitythroughtheexpedited ($) procedureprovidedbysection7117(c)oftheStatute.k 4  3  /    ׀   AffordingthefirstoptionharmonizestheagencysactionwithWrightPatterson.Therequirementtoaffordthesecondoption  wouldappeartofollowfromthepropositionthataunionhastheoptionofusingeitherthenegotiabilityortheunfair7h@     7,h@     ,laborpracticeproceduretoobtainreviewofanallegationofnonnegotiability.SeeInterpretationandGuidance,15FLRA X d 564,56768(1984),affirmedsubnom.AmericanFederationof > J GovernmentEmployees,AFLCIOv.FLRA,778F.2d850(D.C.Cir. $ 0 1985).Ineithercase,unionsneedatimelyindicationthat    theiragenciesconsidertheirproposalstobenonnegotiable.m 4  4  /          TopermitRespondenttoescapeitsbargainingobligationonthebasisoftheallegednonnegotiabilityoftheUnionsproposalswouldbeparticularlyinappropriateandprejudicialintheinstantcase.Attheoutset,Respondentneitherofferedtheopportunitytonegotiatenorinvitedproposals.Thus,whentheUnionsubmittedproposals,itwasnotinapositiontoanticipateRespondentsviewoftheissuesthatwerenegotiable.Then,theUnionspecificallyinformedRespondentthatitsproposalswere notallinclusiveandwere   subjecttorevisionand/oraugmentationasnegotiations  progressed,butRespondentgavetheUnionnoindicationthatitconsidereditsproposalstobenonnegotiable.Asfarastherecordhereshows(Tr.95100),Respondentfirstraisedtheissueofnegotiabilityonlyattheunfairlaborpracticehearing.ItwouldhavebeenunreasonabletohaveexpectedCounselfortheGeneralCounseltobepreparedatthatpointto litigatetheissueofnegotiability. (   3. PrivilegetoImplementDefenses     a. Highestdegreeofinsulation;noagreementto       restrictexerciseofmanagementright̀  Respondentalsoadvancesabatteryofargumentsthat f#r# jr     purporttoshowthat,evenassumingthatitsnondeadlyforcepolicyfallswithinthestatutoryterm, conditionsofemploy  ment,Respondentwasprivilegedtoimplementthepolicy  unilaterally.Thefirstargumentbeginswiththeassertionthatthematterscoveredbythepolicyconcerntheagencysinternalsecuritypracticesanditsmission,andthereforeoccupyaplacewithinthe categoryofcoremanagementrights X d thatentitlethemto thehighestdegreeofinsulationfrom > J outsideinterferenceundertheStatute(Br.at15). $ 0   Ifindthis,thefirstpremiseoftheargument,tobeunpersuasive.Determinationsofanagencysmissionandofitsinternalsecuritypracticesaresimplyexamplesofthemanagementrightsaccordedbysection7106(a)oftheStatute.Theyoccupynoexceptionalstatuswithrespecttotheirbeingsubjecttosubsection(b)ofsection7106,whichsubsectionhasbeeninterpretedtorequireI&Ibargaining.  Respondentsargumentgoesontourge,ifIunderstanditcorrectly,thatbeingsubjecttosubsection(b)restrictsamanagementrightonlytotheextentthatbargainingresultsinanagreementtorestrictthatright.Subsection(b)thusdoesnotrestricttheexerciseofamanagementrightpendingtheoutcomeofbargaining.Whateverintrinsicmeritthisdistinctionmaypossess,RespondentappearsultimatelytoconcedethattheAuthoritydoesnotrecognizeit(Br.at1820).Concededornot,theAuthoritydoesnormallyrequiremaintenanceofthestatusquopendingtheoutcomeof 6B negotiations.DepartmentoftheAirForce,ScottAirForce ( Base,Illinois,5FLRA9(1981).Asdiscussedbelow,the  Authoritydoes,however,takeaccountofunusualcircumstancesinwhichadelayofimplementationwhilenegotiationsruntheircoursewouldadverselyaffecttheagencysoperations.   &  b.Permissionbycontract  Arelatedargumentappearstobethatunilateralimplementationofthenondeadlyforcepolicywasauthorized'"bythestillapplicablemanagementrightsprovisionsofthepartiesexpiredcollectivebargainingagreement.Theexpiredagreementwasexecutedin1976(precedingenactmentoftheStatute)and,asdescribedinitspreamble inaccordancewith ($) ExecutiveOrder11491,asamended,andDepartmentofJusticeOrder1711.1C.Thefirstsetofcontractualmanagement *&+ rightsprovisionscitedbyRespondentisfoundinArticle4.C,whichcontainspreciselythosemanagementrightsprovisions b,n(- requiredbysection12ofExecutiveOrder11491.Thesecondexcerptcited,Article5.Aoftheagreement,virtuallytracksthelanguageofsection11(b)ofExecutiveOrder11491.NothingintheseprovisionspurportstorelieveRespondentofanyobligation,towhichitotherwisewouldbesubject,tonegotiateovertheI&Iofchangesmadepursuanttoitsmanagementrights,andtheAuthorityhasnotsoconstruedsuchprovisions.SeeAmericanFederationofGovernmentEmployees, > J Local217andVeteransAdministrationMedicalCenter,August,Georgia,21FLRA62,6465(1986).Ithereforerejectthis    argumentaswell.o 4  5  /           c. Necessaryforfunctioningofagency     StillanotherbasisassertedforpermittingRespondentto7jr     7,jr     ,implementthepolicyinadvanceofbargainingisthattheactionwas necessaryforthefunctioningoftheagency(Br. T` at2427).Respondentconcedesthatanagencymustbepreparedtoprovideaffirmativesupportforsuchanassertion.YetitarguesthattheAuthorityshouldassumeadeferentialposturewithrespecttosuchanassertion,andtoemployonlythelimitedscrutinyconsistentwitha rationalbasistest.  This,however,hasnotbeentheAuthoritysapproach.Rather,theAuthorityhasappliedaratherdemandingstandardforestablishingthekindofnecessitythatisassertedhere,requiring evidencethatanoverridingexigencyexistedwhich jv requiredimmediateimplementation.U.S.Departmentofthe P\ AirForce,832DCombatSupportGroup,LukeAirForceBase,Arizona,36FLRA289,300(1990);accordOLAMSouthwestAir ( DefenseSector(TAC),PointArenaAirForceStation,PointArena,California,51FLRA797,82627(1996);Defense  LogisticsAgency,DefenseIndustrialPlantEquipmentCenter, Memphis,Tennessee,44FLRA599,61518(1992).q 4  6  /    Noristhe    choiceofa rationalbasistestsupportedbydecisionssuch  asPatelv.I.N.S.,638F.2d1199(5thCir.1981),whichdeal  withthedeferenceduetoanagencysformaladjudications.      Necessityis,inthiscontext,atermofart.  Respondentpresentedevidencethatonitsfaceshoweda need r~ forthenewpolicy,butwhetheranydelayinimplementingthepolicywouldhaveseriouslyhamperedtheagencyisanothermatter.Respondentisinadisadvantageouspositioninseekingtodemonstratethis necessitybecause(1)itnever    gavetheUniontheopportunityeventobeginnegotiations    priortoimplementationand(2)morethansevenmonthselapsedbetweentheissuanceofthefirstandthefinalversionsofthepolicy.Thus,Respondentisunabletoshowthatthepaceofnegotiationswarrantedthefearofalongdelaybeforecompletion.Itisalsounabletosupport,byitsownactions,itsassertedbeliefintheurgencyofimplementingthesechanges.WhileitmaybeunfairtoconcludethatRespondentdidnothingtoadvancetheprocessofimplementingthepolicyduringthosesevenmonths,itisafactthatthefinalversiondifferedonlymarginallyfromthefirstversion.Asitis,thereislittlebasisforfindingareasonableexpectationthatprovidingtheUnionwithanopportunitytonegotiatepriortoimplementationwouldhaveresultedinanysubstantialfurtherdelay.Ithereforeconcludethatthe necessary  functioningdefensehasnotbeenestablished. jv @  UltimateConclusionandRemedy (    BargainingObligationtobeEnforced    HavingrejectedallofRespondentsdefenses,IconcludethatRespondentviolatedsections7116(a)(1)and(5)oftheStatutebymakingchangesinconditionsofemploymentthataffectedemployeesinanappropriateunitwithoutgivingtheirexclusiverepresentativeanopportunitytobargainaboutanyaspectofthosechanges.SincethechangeswereimplementedbeforegivingtheUnionanyopportunitytobargain,itwasnot &$"& necessarytodecide,uptonow,whetherthebargainingobligationincludedtheobligationtobargainoverthesubstanceofthechangesorwaslimitedtobargainingovertheirI&I.Inordertofashionanappropriatebargainingorder,however,thisissuemustnowbeaddressed.  |+',   Allpartiesapparentlyconcurthatthematterscoveredby theNonDeadlyForcepolicyfallwithinsection7106(b)(1)oftheStatuteandthusarenegotiable,astosubstance,onlyattheelectionoftheagencyunlesstheelectivenatureofthesematters,forstatutorypurposes,hasbeenchangedbyExecutiveOrder(E.O.)12871.SeveralofmycolleagueshavedealtwiththequestionoftheeffectofE.O.12871.Iagreewiththeresulttheyreachedonthisissuebutshallnotrehashtheprocessbywhichtheyarrivedatthatresult.AsIstandontheshouldersofgiants,Ineednottreadintheirfootsteps.  OriginallyproposedbytheGeneralCounsel,buthereadvancedonlybytheUnion,theargumentforanexpandedstatutoryobligationarisingfromtheoperationofE.O.12871isthat,byorderingtheagencyheadsto negotiateover   subjectssetforthin[section]7106(b)(1),andinstructsubordinateofficialstodothesame,thePresidenthas T` elected,onbehalfoftheagencies,tonegotiateoverthosesubjects.SomehaveconcludedthattheAuthorityrejectedthisargumentinitsdecisioninNationalAssociationof  GovernmentEmployees,LocalR5184andU.S.DepartmentofVeteransAffairsMedicalCenter,Lexington,Kentucky,51FLRA  386,39394andn.12(1995)(VAMC,Lexington).Ifthe  Authorityhasspokenonthisissue,nothingremainsforme.However,anystatementinVAMCLexingtonwithrespecttothe  meritsoftheE.O.12871argumenthaseludedme.FederalServiceImpassesPanelMemberGee,actingasanarbitratorinDepartmentoftheArmy,ArmyCorpsofEngineers,Portland 6B District,Portland,OregonandLocal7,NationalFederationofFederalEmployees,CaseNo.95FSIP169(April12,1966),  PanelReleaseNo.386,wassimilarlyunenlightenedbyVAMC  Lexington.    Idonotcursethedarkness,butmerelyacknowledgeit.ThusIgotoencountertherealityofthegloomandtoassisttheforgingofaresolutiontothisissue.Asitturnsout,theE.O.12871argumenthasaliteraryforerunner,flowingfromthepenofthegreatsatiristandcollaboratorofcomposerSirArthurSullivan,W.S.Gilbert.ForinthatclassicG&Sopus,TheMikado(1885),thefollowingoccurs. & #' Ѐ  Koko, acheaptailor,is(byasetofcuriouschances) ($) appointedbytheMikadototherankofLordHighExecutioner,describedbyKoKohimselfasaheightthatfewcanscale(savebylongandwearydances).Soonafterward,theMikadodemandsthatsomeonebebeheadedwithinamonth.Kokothinks b,n(- hewillhavenotroubleinfindingasuitablebeheadee.(Hesgotalittlelist./s//n/ 4  7  /    כ)Abettedbyaseriesofeventsalmostas  complicatedastheproceduraloptionsavailabletopartiestonegotiabilitydisputes,Kokoconspirestosimulatethe  executionofayoungman.Theformertailorandhiscoconspiratorsfabricate(outofwholecloth,sotospeak)anelaboratedescriptionofthebeheading,whereuponitisdiscoveredthatthefauxcorpseis/wasthesonoftheMikado.He,therefore,mustpromptlybe,andis,broughtbacktolife.  Nowcomestherelevantpart.Thesonsreappearanceelicitsademandforanexplanationofthedeceit.Kokoprovidesit:  Whenyourmajestysays, Letathingbedone,its     asgoodasdonebecauseyourMajestyswordis  law.YourMajestysays, Killagentleman,anda T`   gentlemanistoldofftobekilled.Consequently,  thatgentlemanisasgoodasdeadpractically,  heisdeadandifheisdead,whynotsayso?  TheMikadoresponds: Isee.Nothingcouldpossiblybemore  satisfactory.u 4  8  /    ׀HereImustpartcompanywiththeMikado,  withtheUnion,andwithPanelMemberGee,whoopinedthatthePresident,byhisdirectiveinE.O.12871,hadexercisedtheagencys rightofelectionundersection7106(b)(1). jv   Inmyview,thePresidentdidnosuchthing.Hemerelysaid,toparaphraseW.S.Gilbert, Letthethingbedone. ( Thisisadirectivetotheagencytonegotiate.ItisnotastatementthatthePresident electstonegotiate,onbehalf  oftheagency,forsection7106(b)(1)purposes.The thingin  questionwasnotdone;itwasnoteven practicallydone.I    neednotspeculateonthemannerinwhicharecalcitrant !! agencymaybecompelledtoobeythedirective.Itissufficienttonote,asothershave,thatsection3ofE.O.12871specificallynegatestheinferencethattheOrdercreates anyrighttoadministrativeorjudicialreview  enforceableagainstanagency.WhowouldarguethatthismeanssomethingotherthanwhatitappearstomeanthattheAuthority,amongothers,lacksjurisdictiontoenforcethedutytonegotiateoversection7106(b)(1)subjectsmustatleastexplainwhatotherpurposesection3serves.Iconclude,therefore,andconsistentwiththemainthrustoftheGeneralCounselsargumentonthemeritshere,thatRespondentsbargainingobligationwaslimitedtotheI&Iofthechanges.  StatusQuoAnte    ,   CounselfortheGeneralCounselandtheChargingPartycontendthatthebargainingordershouldbecoupledwitharestorationofthestatusquoantepursuanttothefactorsset  , forthinFederalCorrectionalInstitute,8FLRA604,606  (1982)(FCI).AmongthefamiliarFCIfactors,theUnionwas  givennoticeofRespondentsintentiontoimplementthepolicy,butwasnotinvitedtonegotiate.Infact,althoughtheUnionsubmittedatimelyrequesttonegotiate,Respondentfailedtorespondand,afteralongdelay,implementedthepolicy,withminorchanges.Further,IfindRespondentsfailuretodischargeitsbargainingobligationtohavebeenwillful,notwithstandingitsbareassertionthatitacted in 6B goodfaith,albeiterroneous,relianceontheuntimelinessofthe[U]nionsresponsetothenotice.And,whilelittle  evidencewaspresentedastothenatureandextentoftheactualimpactexperiencedbyadverselyaffectedemployees,  certainnewrequirements,particularlythoseconcerningthereportingofincidentsandtheresponsibilityforinsuringmedicalattentioncarrywiththemaconsiderablepotentialityfordisciplinaryactionaswellasforincreasingworkload.    ThefinalFCIfactor,thepotentialdisruptiveeffectof 2%>!% astatusquoanteremedy,presentsanoveltwistinthe &$"& circumstancesofthiscase.3w33r3 4  9  /    ׀Underordinarycircumstances, & #' restorationofthestatusquoanteherewouldmeanrescission '#( ofthenondeadlyforcepolicythatwasimplementedin1994andthatsuperseded,tosomeextent,thesidehandlebatonprogram.Thus,thesidehandlebatonprogram,totheextentthatitwaspreviouslyapplicable,wouldgobackintoeffect.However,inCaseNo.DACA30370,notedabove,thereiscurrentlybeforetheAuthoritytherecommendedorderofJudgeDevaneythatdirectsRespondenttorescindtheSidehandleBatonTrainingProgram,whichincludesaspectsoftheuseofthatbatontranscendingemployeetraining.So,inmakingajudgmentabouttheeffectsofastatusquoanteremedyinthe    instantcase,whereshouldoneassumethatsucharemedywouldleavetheparties?Thatis,amItoanticipatetheeffectsofarestorationofthesidehandlebatonprogramorofarestorationofthepoliciesthatprecededit?AndwhereamItoseekhelpindealingwiththeseunusualcircumstances?  WhileIdonotregardthisasanidealroutetothesolutiontothisproblem,ultimatelyIrelyonthelackofacredibleworstcasescenario,depictingtheeffectsofastatusquoanteremedy,thatissopersuasiveastooutweigh  thosefactorsthatarguablymakestatusquoanterelief  appropriate.Thus,Respondentsargumentagainstsuchrelieffocusesontheexposureoftheagencyanditsemployeestocivilliabilityifthepreviouspoliciesarerestored,onaconstitutionalrequirementforminimumguidelinestogovernlawenforcement,andontheagencysbeliefthatimplementationofthenewpolicywasnecessaryforthefunctioningoftheagency.Sidesteppingthemerelyconclusionaryaspectsofthisargument,Ifind,first,thattheargumentingeneralisunderminedbythelongdelaybetweenRespondentsdevelopmentofthenearfinalformofthispolicyanditsimplementation.Further,rescissionofthepolicytotheextentthatitoperatestoaffectconditionsofemploymentdoesnotnecessarilyprecludethetemporaryuseofitsmostessentialfeaturesasguidelinesforhandlingofthekindsofsituationsthepolicyaddresses,aslongasfailuretoadheretothoseguidelinescarriesnoriskofemploymentrelateddiscipline.  Suchastateofaffairsmaybeobjectedtoasbeingconfusingandinvitingoffurtherlabordisputes.This,ofcourse,wouldbeunfortunate.However,itmustbeemphasizedthatstatusquoanteisatemporarysolutiontotheproblemof ($) facilitatingnegotiationswhenonepartyhashadtobeforcedtothebargainingtable.Suchfacilitationmaynotoccurif eitherpartyfeelstoocomfortablewiththestatusquo.In |+', thecaseoftheseparties,theremaybeaparticularneedfor  encouragementtoseekanendtothistemporarysituation.   Thus,thesepartieshaveanextraordinarilyrancorousbargaininghistory(note,forexample,theirchronicinabilitytoreplacetheexpired1976collectivebargainingagreement).Onebecome2s2afflictedwiththeimpressionthattheirmutualreluctancetogetonwiththebusinessofdealingwiththeissuesthatdividethemcomparestowhatoccurredattheParispeacetalks(toendthewarinVietnam)asth-e-.o.setalkscomparedtowhatoccursatafamilydiscussiontodecideonaneveningsentertainment.Astatusquoanteinwhichthereis   atleastsomedegreeofuncertaintyastowhatactionsarepermissiblemightnotbetheworstinterimsolutionhere.Ofcourse,asnotedabove,thiskindofremedyhasotherpointstorecommenditaswell.Cf.U.S.DepartmentofJustice, nz  ImmigrationandNaturalizationService,Washington,D.C., T` 44FLRA1065,1075(1992),enforcementdeniedinpartonother :F groundssubnom.U.S.DepartmentofJustice,ImmigrationandNaturalizationServicev.FLRA,995F.2d46(5thCir.1993)  (FCIfactorsappliedtodeterminethatstatusquoantewas  appropriateremedyastochangesinManualfirearmsprocedures).Accordingly,IrecommendthattheAuthorityissuethefollowingorder.@( ORDER  P\   Pursuanttosection2423.29oftheAuthoritysRulesandRegulationsandsection7118oftheStatute,theU.S.DepartmentofJustice,ImmigrationandNaturalizationService,shall:  1.Ceaseanddesistfrom:  (a)FailingandrefusingtobargainwithAmericanFederationofGovernmentEmployees,NationalBorderPatrolCouncil,AFLCIO(NBPCouncil),theexclusiverepresentativeofaunitofitsemployees,overtheimpactandimplementationofitsdecisiontoimplementanewnondeadlyforcepolicy.  (b)Inanylikeorrelatedmannerinterferingwith,restraining,orcoercingitsemployeesintheexerciseoftheirrightsassuredbytheStatute.  |+',   2. Takethefollowingaffirmativeactioninorderto   effectuatethepurposesandpoliciesoftheStatute:  (a)RescindtheNonDeadlyForcepolicyimplementedin1994totheextentthatitappliestoemployeesrepresentedbyNBPCouncil.  (b)Notifyand,uponrequest,bargainwithNBPCouncilovertheimpactandimplementationofanyneworrevisedpoliciesontheuseofnondeadlyforce.  (c)PostatitsfacilitieswhereverbargainingunitemployeesoftheUnitedStatesBorderPatrolarelocated,copiesoftheattachedNoticeonformstobefurnishedbytheFederallaborRelationsAuthority.Uponreceiptofsuchforms,theyshallbesignedbytheCommissioner,ImmigrationandNaturalizationService,andbepostedandmaintainedfor60consecutivedaysthereafter,inconspicuousplaces,includingallbulletinboardsandotherplaceswherenoticestoemployeesarecustomarilyposted.Reasonablestepsshallbetakentoinsurethatsuchnoticesarenotaltered,defaced,orcoveredbyanyothermaterial.  (d)Pursuanttosection2423.30oftheAuthority'sRulesandRegulations,notifytheRegionalDirector,WashingtonRegionalOffice,inwriting,within30daysfromthedateofthisOrder,astowhatstepshavebeentakentocomply.Issued,Washington,D.C.,August27,1996̀_________________________̀JESSEETELSOǸAdministrativeLawJudge  L$X $ z i 7GGXXdGXXd7@NOTICETOALLEMPLOYEES X @POSTEDBYORDEROFTHE@0 0 FEDERALLABORRELATIONSAUTHORITYTheFederalLaborRelationsAuthorityhasfoundthattheUnitedStatesDepartmentofJustice,ImmigrationandNaturalizationServiceviolatedtheFederalServiceLabor-ManagementRelationsStatuteandhasorderedustopostandabidebythisnotice.Weherebynotifyouremployeesthat:u[LL: #0= dl!#&t(*$-|/1,4684;=?