Federal Sector Subjects and Scope of Collective Bargaining Chart | Practical Law

Federal Sector Subjects and Scope of Collective Bargaining Chart | Practical Law

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Federal Sector Subjects and Scope of Collective Bargaining Chart

Practical Law Checklist w-015-0447 (Approx. 20 pages)

Federal Sector Subjects and Scope of Collective Bargaining Chart

by Practical Law Labor & Employment
Maintained • USA (National/Federal)
A Chart setting out various subjects often raised in collective bargaining negotiations that the Federal Labor Relations Authority (FLRA) and the federal courts have addressed through the negotiability process. The Federal Service Labor-Management Relations Statute (FSLMRS) identifies the category to which a subject is assigned (mandatory, permissive, or prohibited) to determine what position a party may take, and what obligations a party has, in bargaining about the subject.
The Federal Service Labor-Management Relations Statute (FSLMRS) (5 U.S.C. §§ 7105 to 7135) requires that a federal agency bargain collectively with a union representing its employees about conditions of employment, including:
  • Personnel policies.
  • Personnel practices.
  • Matters affecting working conditions.
(5 U.S.C. § 7103(a)(14).)
Conditions of employment do not include policies, practices, and matters related to:
  • Political activities.
  • Classification of any position.
  • Matters covered by federal statute.
(5 U.S.C. § 7103(a)(14).)
The FSLMRS classifies potential subjects of collective bargaining into three basic categories:
  • Mandatory subjects. On the union's request, an agency must bargain about:
    (See Mandatory Subjects of Bargaining.)
  • Permissive subjects. At its election an agency may bargain about:
    • numbers, types and grades of employees, or positions assigned to an organizational subdivision, work project, or tour of duty;
    • technology; or
    • methods and means of performing work.
    (5 U.S.C. § 7106(b)(1); see Permissive Subjects of Bargaining.)
  • Prohibited subjects. An agency is prohibited from bargaining subjects that are prohibited by law or interfere with the exercise of management rights to:
    • determine the agency's mission;
    • determine the agency's budget;
    • determine its organization;
    • determine the number of employees necessary to carry out its mission;
    • hire employees;
    • assign employees;
    • direct employees;
    • lay-off employees;
    • retain employees;
    • suspend employees;
    • remove employees;
    • reduce employees grade and pay;
    • discipline employees;
    • assign work;
    • contract-out work;
    • determine necessary personnel;
    • make selections to fill positions; and
    • carry-out its mission in emergencies.
    (5 U.S.C. § 7106(a); see Prohibited Subjects of Bargaining.)
For more information about the FLRA, see Practice Note, Federal Labor Relations Authority.
The federal courts have noted that 5 U.S.C. Section 7106(a) ensures that the collective bargaining system established by the FSLMRS does not undermine the government's effectiveness through unwarranted intrusion on management prerogatives (U.S. Dep't of Health & Human Servs. v. FLRA, 844 F.2d 1087, 1090 (4th Cir. 1988)). However, at the same time, 5 U.S.C. Section 7106(b) does not preclude an agency and union from negotiating the procedures the agency will observe when exercising its rights. An agency must bargain about:
  • Procedures, sometimes referred to as impact and implementation (I&I) bargaining (5 U.S.C. § 7106(b)(2)).
  • Appropriate arrangements for employees adversely affected by the exercise of management rights (5 U.S.C. § 7106(b)(3)).
Agencies must exercise their management rights under 5 U.S.C. Section 7106(a)(2) but not their rights under 5 U.S.C. Section 7106(a)(1), in a manner that complies with applicable laws (5 U.S.C. § 7106(a)(2)).
Due to the limitation on the scope of bargaining in the federal sector, the Federal Labor Relations Authority (FLRA) has identified specific tests to determine the negotiability of union proposals. When addressing a negotiability dispute, the FLRA considers whether the proposal:
  • Relates to a condition of employment.
  • Is covered or barred by federal statute.
  • Is covered or barred by government-wide regulation.
  • Is covered or barred by an agency compelling need regulation.
If the proposal survives the initial test, the FLRA considers whether the proposal is negotiable.
For more information on the FLRA's framework for resolving negotiability disputes, see Practice Note, Federal Labor Relations Authority: Reviewing and Addressing Negotiability Disputes and FLRA Negotiability Process Flowchart.
The tables below list the subjects of federal sector collective bargaining with a citation to FLRA or federal court precedent determining the negotiability of proposals as mandatory, permissive, or prohibited subjects of bargaining. Agency management can use this Chart to:
  • Determine subjects affecting union-represented employees that it typically can and cannot change without bargaining to impasse with a union.
  • Design collective bargaining strategies and proposals that comply with the scope of bargaining in the federal sector.
  • Understand the specific tests the FLRA applies when addressing negotiability disputes that arise during collective bargaining.
  • Determine whether it has an obligation to bargain about a subject raised by a union.
  • Supply citations to precedent during bargaining supporting its refusal to bargain about certain subjects in a union's proposals.

Mandatory Subjects of Bargaining

Bargaining Subject
Citation
Conditions of Employment
Policies, practices, and matters affecting working conditions.
U.S. DHS, U.S. Customs & Border Prot., El Paso, Tex., 70 F.L.R.A. 501 (2018).
5 U.S.C. Section 7106(b)(2) (Procedures) 
Agencies and unions are not precluded from negotiating the procedures management will observe in exercising management rights. Agencies must bargain over procedures despite the effect on management rights.
Negotiable Procedures
Advanced notice of agency actions or specific events.
AFGE, Local 12, 61 F.L.R.A. 209, 220 (2005).
Selection of employees for assignments preserving management's right to determine qualifications.
U.S. Dep't Transp., FAA, 63 F.L.R.A. 502, 503 (2009).
Requiring management to take certain actions without identifying the person or position responsible for taking the action.
AFGE Council 220, 65 F.L.R.A. 726, 728 (2011).
Establishing advisory committees not integral to management decision-making.
Nat'l Ass'n of Indep. Labor, 62 F.L.R.A. 1, 3 (2007).
Delaying the exercise of management rights pending the completion of bargaining.
Antilles Consol. Educ. Ass'n, 61 F.L.R.A. 327, 331-33 (2005).
Developing and implementing performance standards.
AFGE, Council 220, 65 F.L.R.A. 726, 728 (2011).
Announcing and filling vacancies.
AFGE, Local 3354, 54 F.L.R.A. 807, 814-15 (1998).
Maintaining and showing employees certain documentation.
Patent Office Prof'l Ass'n, 48 F.L.R.A. 129, 154, 157-58 (1993) (POPA).
Requiring the completion of disciplinary action timely without restricting management's right to take the action.
NFFE, Local 1438, 47 F.L.R.A. 812, 816-18 (1993).
Requiring the evaluation of employee work product at time of completion.
 Patent Office Prof'l Ass'n, 47 F.L.R.A. 10, 54 (1993) (POPA II).
Drug testing procedures.
NTEU, Chapters 243 & 245, 45 F.L.R.A. 270, 279-80 (1992).
Requiring consistency between position descriptions and performance standards, while allowing management the discretion to amend the standards.
United Power Trades Org., 44 F.L.R.A. 1145, 1155-56 (1992).
Requiring the agency to refer candidates from one source, without restricting concurrent solicitation from other sources.
National Treasury Employees Union, 43 F.L.R.A. 1279, 1287-88 (1992).
Non-Negotiable Procedures
Precluding management from exercising rights until other events (excluding completion of bargaining) occur.
 Antilles Consol. Educ. Ass'n, 61 F.L.R.A. 327, 331 (2005).
Delaying implementation of management action necessary for agency functioning.
 Antilles Consol. Educ. Ass'n, 61 F.L.R.A. 327, 332 (2005).
Conditioning the exercise of management rights on the agreement of employees or the union.
AFGE, Local 3529, 57 F.L.R.A. 172, 175 (2001).
Requiring the agency to give advance notice of investigative interviews.
AFGE, Local 701, Council of Prison Locals 33, 58 F.L.R.A. 128, 134 (2002).
Preventing the agency from determining employee qualifications.
Fed. Emps. Metal Trades Council of Charleston, 44 F.L.R.A. 683, 687-89 (1992).
Prescribing or precluding assignments to particular individuals.
AFGE, Council 220, 65 F.L.R.A. 726, 728-29 (2011).
Requiring management to assign employees certain duties.
AFGE, Local 1020, 47 F.L.R.A. 258, 263 (1993).
Requiring management to reassign employees to work sites designated by employees.
National Labor Relations Board, 60 F.L.R.A. 576, 579 (2005).
Requiring agencies to use competitive procedures to fill vacancies.
U.S. DOD, Def. Contract Audit Agency, Cent. Region, 47 F.L.R.A. 512, 520 (1993).
Limiting the evidence agencies can use to support disciplinary action.
AFGE, Local 1827, 58 F.L.R.A. 344, 352 (2005).
Limiting agency discretion to restrict overtime assignments to unit employees.
AFGE, Local 1827, 58 F.L.R.A. 344, 353 (2005).
Substantively limiting management's right to determine the content of performance standards.
AFGE, Local 225, 56 F.L.R.A. 686 (2000).
Preventing management from holding employees accountable for performance of work assignments.
AFGE, Local 3529, 57 F.L.R.A. 172, 179 (2001).
Requiring agency to fill positions.
AFGE, Local 3354, 54 F.L.R.A. 807, 814-15 (1998).
Preventing the agency from controlling access to its facilities.
AFGE, AFL-CIO, Local 2782, 49 F.L.R.A. 470, 474 (1994).
Restricting management actions based on survey results.
AFGE, Local 1923, 44 F.L.R.A. 1405, 1437 (1992).
Restricting management from using particular methods of monitoring work performance.
NFFE, Local 1482, 44 F.L.R.A. 637, 668-69 (1992).
Precluding management from rating and ranking candidates until after a preliminary placement process is complete.
National Treasury Employees Union, 43 F.L.R.A. 1279, 1287 (1992).
Requiring management to approve an employee request to use sick leave or advanced sick leave.
NFFE, Local 405, 42 F.L.R.A. 1112, 1127 (1991).
Infringing on Management's sole and exclusive discretion to establish and apply compensation systems.
Dept. of Energy, WAPA and AFGE Local 3824, 71 FLRA 111 (2019).
5 U.S.C. Section 7106(b)(3) (Appropriate Arrangements)
Agencies and unions are not precluded from negotiating appropriate arrangements for employees adversely affected by the exercise of management rights. Agencies must bargain over appropriate arrangements despite the effect on management rights.
Appropriate Arrangements
Employees adversely affected by the exercise of any management right.
AFGE, Council of Prison Locals 33, Local 506, 66 F.L.R.A. 929, 940-41 (2012).
Intended as an arrangement for adversely affected employees.
U.S. Dep't of the Treasury, IRS v. FLRA, 739 F.3d 13, 19 (2014).
Must seek to mitigate adverse effects flowing from the exercise of a protected management right.
Nat'l Ass'n of Indep. Labor, Local 5, 67 F.L.R.A. 85, 87 (2012).
Speculative or hypothetical concerns are not appropriate arrangements.
Nat'l Ass'n of Indep. Labor, Local 5, 67 F.L.R.A. 85, 87 (2012).
Elimination of the possibility of adverse effect.
U.S. Dep't of Justice, Fed. BOP, Corr. Complex, Coleman, Fla., 737 F.3d 779, 788 (2013).

Permissive Subjects of Bargaining

Bargaining Subject
Citation
5 U.S.C. Section 7106(b)(1) (Permissive Bargaining)
Agencies may elect to bargain over numbers, types and grades of employees or positions assigned to any organizational subdivision, work project, or tour of duty, technology, or methods, and means of performing work.
Numbers
Numbers of employees or positions assigned to specific tours of duty.
Nat'l Ass'n of Argic. Emps., Branch 11, 57 F.L.R.A. 424, 426 (2001).
Total number of agency employees.
U.S. DOD, Def. Mapping Agency, Aerospace Ctr., St. Louis, Mo., 46 F.L.R.A. 298, 316-17 (1992).
Types
Distinguishable classes, kinds, groups, or categories of employees or positions that are relevant to establishing staffing patterns.
AFGE, Local 723, 66 F.L.R.A. 639, 645 (2012).
Employees distinguished by classification series.
NAGE, Local R5-184, 52 F.L.R.A. 1024, 1031-32 (1997).
Temporary employees are a distinguishable class.
NAGE, Local R5-184, 52 F.L.R.A. 1024, 1034 (1997).
Grades
Grades of employees or positions within the general schedule (GS) classification system.
NAGE, Local R-5-184, 52 F.L.R.A. 1024, 1032 n.11 (1997).
Entry-level positions.
AFGE, AFL-CIO, Council of Prison Locals, Local 1661, 29 F.L.R.A. 990, 1016, reconsid. denied, 30 F.L.R.A. 492 (1987).
Organizational Sub-Division
Sections of an agency assigned to perform specific agency functions.
NAGE, Local R-14-23, 54 F.L.R.A. 1302, 1306 (1998).
Organizational sub-division staffing.
AFGE, Local 1336, 52 F.L.R.A. 794, 802 (1996).
Work Project
Particular job or task.
Fed. BOP, Fed. Corr. Inst., Bastrop, Tex., 55 F.L.R.A. 848, 853 (1999), (quoting AFGE Local 3302, 37 F.L.R.A. 350, 355 (1990)).
Tour of Duty
Employee's regularly scheduled administrative work week.
Nat'l Ass'n of Argic. Emps., Branch 11, 57 F.L.R.A. 424, 426 (2001).
Technology
Technical methods furthering performance of the agency's work.
National Treasury Employees Union, 62 F.L.R.A. 321, 326 (2007) (quoting AFSCME, AFL-CIO, Local 2477, 7 F.L.R.A. 578, 582-83 (1982), enforced sub nom., Library of Cong. v. FLRA, 699 F.2d 1280 (D.C. Cir. 1983)). 
New technology.
AFGE, Local 3129, SSA Gen. Comm., 58 F.L.R.A. 273, 275 (2002).
Providing specific equipment used to perform work.
Fraternal Order of Police, Lodge 1F (R.I.) Fed., 32 F.L.R.A. 944, 958-59 (1988).
Methods and Means of Performing Work
Determining methods and means used to perform work.
AFGE, Local 723, 66 F.L.R.A. 639, 646 (2012).
Methods and means related to accomplishment of the agency's mission.
AFGE, Local 1164, 66 F.L.R.A. 112, 115 (2011).
Methods and means do not have to be indispensable.
Fed. BOP, Fed. Corr. Inst., Bastrop, Tex., 55 F.L.R.A. 848, 853 (1999) (discussing means).
Proposal concerning uniforms.
Ass'n of Civilian Technicians Ky. Long Rifle Chapter, 70 F.L.R.A. 968 (2018).

Prohibited Subjects of Bargaining

Bargaining Subject
Citation
Applicable Laws, Rules, and Regulations 
Applicable laws.
Fed. Prof'l Nurses Ass'n, Local 2707, 43 F.L.R.A. 385, 390 (1991).
Agency regulations having the force and effect of law.
AFGE, Local 1441, 61 F.L.R.A. 201, 206 (2005).
The agency has sole and exclusive discretion over a matter.
 Patent Office Prof'l Ass'n, 59 F.L.R.A. 331, 346, 351 (2003).
Agency rules and regulations with a compelling need.
Nat'l Ass'n of Indep. Labor, Local 5, 67 F.L.R.A. 85, 89 (2012).
Management Rights 
The substance of management's decision to exercise management rights under the FSLMRS is non-negotiable, except regarding the procedures and appropriate arrangements that will be used to implement an agency's proposals.
5 U.S.C. Section 7106(a)(1) Rights
Mission
Determine the agency's mission.
United States Dep't of Energy, Rocky Flat Field Office, Golden, Colo., 59 F.L.R.A. 159, 163 (2003).
Work hours related to the agency's mission.
U.S. DOD, Fort Bragg Dependents Sch., Fort Bragg, N.C., 49 F.L.R.A. 333, 349 (1994).
Budget
Budget allocation.
United States DHS, U.S. CBP, 61 F.L.R.A. 113, 116 (2005).
Organizational level budget.
Nat'l Weather Serv. Emps. Org., 44 F.L.R.A. 18, 30 (2009).
Organization
Organizational structure.
U.S. Dep't of Educ., Wash., D.C., 61 F.L.R.A. 307, 310 (2005).
Division of organizational entities.
U.S. Dep't of Transp., FAA, 58 F.L.R.A. 175, 178 (2002).
Number of Agency Employees
Number of employees employed by an agency.
U.S. DOD, Def. Mapping Agency, Aerospace Ctr., St. Louis, Mo., 46 F.L.R.A. 298, 316 (1992).
Employees assigned to organizational subdivisions.
NFFE, Local 2148, 53 F.L.R.A. 427, 431 (1997).
Internal Security Practices
Agency's security policies and practices.
AFGE, Council of Prison Locals 33, Local 506, 66 F.L.R.A. 929, 931 (2012).
Agency internal security investigation techniques.
AFGE, Nat'l Border Patrol Council, 66 F.L.R.A. 96, 99 (2011).
Agency drug-testing programs.
AFGE, Local 723, 66 F.L.R.A. 639, 643-44 (2012).
Agency policy describing how the work is performed (requiring employees to stand while performing work).
National Treasury Employees Union, 70 F.L.R.A. 100, 103 (2016).
Agency computer security policies.
AFGE, Local 1712, 62 F.L.R.A. 15, 17 (2007).
5 U.S.C. Section 7106(a)(2) Rights
Hiring Employees
Filling vacancies.
AFGE, Local 3354, 54 F.L.R.A. 807, 812-13(1998).
Assigning Employees
Initial assignments.
 Fed. Corr. Inst., Marianna, Fla., 56 F.L.R.A. 467, 469 (2000).
Post-hiring decisions including reassignment, temporary assignments, and details.
AFGE, Local 1547, 65 F.L.R.A. 911, 913 (2011).
Assignment timeframes.
AFGE, Local 12, 61 F.L.R.A. 209, 218 (2005).
Establishing qualifications and skills.
U.S. Dep't of VA, VAMC St. Cloud, St. Cloud, Minn., 62 F.L.R.A. 508, 510 (2008).
Determine the geographic location for performing work.
AFGE, Local 3584, Council of Prison Locals C-33, 64 F.L.R.A. 316, 317 (2009).
Direct Employees
Supervising and determining quantity, quality, and timeliness of work.
National Employees Treasury Union, 65 F.L.R.A. 509, 511 (2011).
Establishing performance standards.
Nat'l Weather Serv. Emps. Org., 63 F.L.R.A. 450, 453 (2009).
Evaluating employee performance.
National Treasury Employees Union, 65 F.L.R.A. 509, 511 (2011).
Selecting methods of supervision.
AFGE, Local 1712, 62 F.L.R.A. 15, 17 (2007).
Requiring employee time-accounting.
AFGE, Council 224, 60 F.L.R.A. 278, 279 (2004).
Lay-Off Employees
Conducting reduction-in-force (RIF).
AFGE, Local 1547, 65 F.L.R.A. 911, 913 (2011).
Retain Employees
Establishing policies or practices that encourage or discourage continued employment.
U.S. Dep't of Commerce, PTO, 60 F.L.R.A. 839, 841-42 (2005).
Offering voluntary-separation incentive pay (VSIP).
Nat'l Assoc. of Indep. Labor, Local 5, 67 F.L.R.A. 85, 87 (2012).
Providing additional compensation (special-rate).
U.S. Dep't of Commerce, PTO, 60 F.L.R.A. 839, 841-42 (2005).
Suspend Employees
Cancelling previously imposed suspensions.
NTEU & NTEU Chapter 91, 19 F.L.R.A. 647, 650 (1985).
Remove Employees
Separating particular groups of employees before separating other groups of employees.
Federal Union of Scientists & Eng'rs, NAGE, Local R1-144, 23 F.L.R.A. 804, 805-06 (1986).
Vacating certain positions to make the positions available to certain categories of employees.
Ass'n of Civilian Technicians, N.Y. State Council, 11 F.L.R.A. 475, 482 (1983).
Taking disciplinary or performance-based actions against an employee.
National Treasury Employees Union, 53 F.L.R.A. 539, 579 (1997).
Reduce Employees in Grade and Pay
Taking action against an employee for a specific offense.
National Employees Treasury Union, 53 F.L.R.A. 539, 579 (1997).
Inability or unwillingness to perform duties.
NFFE, Local 1214, 40 F.L.R.A. 1181, 1200-01 (1991).
Discipline Employees
Performance-related and non-performance-related conduct.
AFGE, Council of Prison Locals 33, 65 F.L.R.A. 142, 145 (2010).
Disciplinary investigative techniques.
Nat'l Air Traffic Control Ass'n, 61 F.L.R.A. 341, 346 (2005).
Determining disciplinary penalties.
 Patent Office Prof'l Ass'n, 53 F.L.R.A. 625, 679 (1997).
Assign Work
Determining the frequency of telework and when eligible employees must report to the worksite.
Nat'l Treasury Employees Union v. FLRA, 1 F.4th 1120 (D.C. Cir. 2021).
Reporting to work location (reporting time)
U.S. DOD, Fort Bragg Dependents Sch., Fort Bragg, N.C., 49 F.L.R.A. 333, 349 (1994).
Location of performance of preparation and professional tasks (preparation time)
Dep't of Defense Domestic Dependent Elementary and Secondary Sch., Fort Buchannan, P.R., 72 F.L.R.A. 414 (2021).
Assigning duties (to who and how work is performed).
AFGE, Council of Prison Locals 33, Local 506, 66 F.L.R.A. 819, 823 (2012).
Establishing necessary qualifications.
Prof'l Airways Sys. Specialists, 61 F.L.R.A. 97, 99 (2005).
Establishing job requirements for levels of performance.
AFGE, Local 225, 56 F.L.R.A. 686, 687 (2000).
Determining content of performance standards.
Nat'l Weather Serv., Emps. Org., 63 F.L.R.A. 450, 453 (2009).
Supervising employees and determining the quantity, quality, and timeliness of work.
National Employees Treasury Union, 65 F.L.R.A. 509, 511 (2011).
Selecting methods of supervision.
AFGE, Local 1712, 62 F.L.R.A. 15, 17 (2007).
Enforcing established performance standards.
NTEU II, 65 F.L.R.A. 509, 511 (2011).
Evaluating employees (holding employees accountable).
NTEU II, 65 F.L.R.A. 509, 511 (2011).
Contracting Out
Contracting-out one function for a specified period.
AFGE, Local 12, 61 F.L.R.A. 209, 210 (2005).
Delaying contracting-out decisions.
U.S. Dep't of the Army, Corps of Eng'rs, NW. Div. & Portland Dist., 60 F.L.R.A. 595, 597 (2005).
Requiring a cost-study before contracting out.
AFGE, Local 1345, 48 F.L.R.A. 168, 204 (1993).
Determine Personnel
Determining which employees will be assigned work.
U.S. Dep't of VA, Med. Ctr., Detroit, Mich., 61 F.L.R.A. 371, 373 (2005).
Make Selections to Fill Positions
Determining qualifications, skills, and abilities necessary to perform the work.
National Treasury Employees Union, 61 F.L.R.A. 618, 622 (2006).
Selecting candidates from any appropriate source without restriction.
Ass'n of Civilian Technicians, Pa. State Council, 54 F.L.R.A. 552, 558 (1998).
Limiting agency recruitment sources.
U.S. Dep't of the Treasury, IRS, Wash. D.C., 61 F.L.R.A. 226, 229 (2005).
Carry-Out Mission in Emergencies
Assessing emergencies and determining necessary action.
U.S. Dep't of VA, VA Reg'l Office, St. Petersburg, Fla., 58 F.L.R.A. 549, 551 (2003).
Defining what is an emergency.
IBEW, Local 350, 55 F.L.R.A. 243, 245 (1999).
Taking action before a particular individual declares an emergency.
Tidewater Va. Fed. Emps. Metal Trades Council, AFL-CIO, 31 F.L.R.A. 131, 132 (1988).