International Communication Agency (Agency/Joint Petitioner) and National Federation of Federal Employees, Local 1418 (Labor Organization/Joint Petitioner); International Communication Agency (Agency/Joint Petitioner) and American Federation of Government Employees, Local 1812 (Labor Organization/Joint Petitioner) 



[ v05 p97 ]
05:0097(19)CU
The decision of the Authority follows:


 5 FLRA No. 19
 
 INTERNATIONAL COMMUNICATION AGENCY
 Agency/Joint Petitioner
 
 and
 
 NATIONAL FEDERATION OF FEDERAL EMPLOYEES,
 LOCAL 1418
 Labor Organization/Joint Petitioner
 
                                            Case No. 3-CU-32
 
 
 INTERNATIONAL COMMUNICATION AGENCY
 Agency/Joint Petitioner
 
 and
 
 AMERICAN FEDERATION OF GOVERNMENT EMPLOYEES,
 LOCAL 1812
 Labor Organization/Joint Petitioner
 
                                            Case No. 3-CU-33
 
                    DECISION AND ORDER CLARIFYING UNITS
 
    UPON PETITIONS DULY FILED WITH THE FEDERAL LABOR RELATIONS AUTHORITY
 UNDER SECTION 7111(B)(2) OF THE FEDERAL SERVICE LABOR-MANAGEMENT
 RELATIONS STATUTE, A CONSOLIDATED HEARING WAS HELD BEFORE A HEARING
 OFFICER OF THE AUTHORITY.  THE HEARING OFFICER'S RULINGS MADE AT THE
 HEARING ARE FREE FROM PREJUDICIAL ERROR AND ARE HEREBY AFFIRMED.
 
    UPON THE ENTIRE RECORD IN THE CONSOLIDATED CASES, THE AUTHORITY
 FINDS:  THE LABOR ORGANIZATIONS INVOLVED CLAIM TO REPRESENT CERTAIN
 EMPLOYEES OF THE AGENCY.  BY MEANS OF THE CONSOLIDATED PETITIONS, THE
 JOINT PETITIONERS SEEK TO SEVER FROM THE EXISTING NATIONWIDE UNIT
 EXCLUSIVELY REPRESENTED BY LOCAL 1812, AMERICAN FEDERATION OF GOVERNMENT
 EMPLOYEES (AFGE), THE NONSUPERVISORY RADIO BROADCAST TECHNICIANS, WHOSE
 WORK LOCATION IS NEW YORK CITY, AND TO ACCRETE THESE EMPLOYEES TO THE
 EXISTING UNIT OF RADIO BROADCAST TECHNICIANS IN WASHINGTON, D.C.,
 REPRESENTED BY LOCAL 1418, NATIONAL FEDERATION OF FEDERAL EMPLOYEES
 (NFFE).  THE JOINT PETITIONERS CONTEND THAT THE PETITIONED-FOR SEVERANCE
 AND ACCRETION WILL ELIMINATE AN UNFORTUNATE AND INEQUITABLE PAY
 DIFFERENTIAL THAT CURRENTLY EXISTS BETWEEN THOSE RADIO BROADCAST
 TECHNICIANS IN NEW YORK CITY AND THOSE IN WASHINGTON, D.C.
 
    THE AGENCY, THE INTERNATIONAL COMMUNICATION AGENCY (ICA), IS ONE OF
 THE FOREIGN SERVICE AGENCIES LINKED WITH THE DEPARTMENT OF STATE AND THE
 AGENCY FOR INTERNATIONAL DEVELOPMENT.  THE PRIMARY MISSION OF THE ICA IS
 TO TELL THE PEOPLE OF THE WORLD ABOUT THE PEOPLE, CULTURE, AND POLICIES
 OF THE UNITED STATES, AND TO TELL THE PEOPLE OF THE UNITED STATES ABOUT
 THE WORLD.  THE MOST IMPORTANT ASPECT OF THE ICA'S OPERATIONS IS ITS
 OVERSEAS OPERATIONS, WITH ITS OPERATIONS IN WASHINGTON, D.C., SERVING A
 SUPPORT FUNCTION.  UNDER THE ICA'S OFFICE OF THE DIRECTOR, THE MAJOR
 FUNCTIONS OF THE AGENCY ARE CARRIED OUT BY THE FOUR ASSOCIATE
 DIRECTORATES FOR BROADCASTING, PROGRAMS, EDUCATIONAL AND CULTURAL
 AFFAIRS, AND MANAGEMENT.  IN ADDITION, THERE ARE FIVE DIRECTORATES OF
 GEOGRAPHIC AREAS IN THE WORLD WHICH SUPERVISE THE ACTIVITIES OF THE
 AGENCY'S FILED ORGANIZATION OF OVERSEAS POSTS IN OVER 100 COUNTRIES
 THROUGHOUT THE WORLD.  WITHIN THE CONTINENTAL UNITED STATES, THE ICA HAS
 EMPLOYEES IN A NUMBER OF LOCATIONS;  HOWEVER, THE MAIN BODY OF EMPLOYEES
 IS LOCATED IN WASHINGTON, D.C.
 
    THE RADIO BROADCAST TECHNICIANS WHO ARE THE SUBJECT OF THE INSTANT
 CONSOLIDATED PETITIONS ARE ALL WAGE BOARD EMPLOYEES ASSIGNED TO THE
 ASSOCIATE DIRECTORATE FOR BROADCASTING, ALSO KNOWN AS THE VOICE OF
 AMERICA.  THE VOICE OF AMERICA IS ORGANIZED INTO THREE MAJOR OFFICES:
 ADMINISTRATION, PROGRAMS, AND ENGINEERING AND TECHNICAL OPERATIONS.  IN
 TURN, ENGINEERING AND TECHNICAL OPERATIONS IS MADE UP OF THREE MAJOR
 DIVISIONS:  FREQUENCY, SPECIAL PROJECTS, AND OPERATIONS.  EXCEPT FOR
 FOUR POSITIONS SLOTTED FOR NEW YORK CITY, ALL THE APPROXIMATELY 135
 RADIO BROADCAST TECHNICIAN POSITIONS OF THE ICA ARE ASSIGNED TO THE
 WASHINGTON PLANT BRANCH OF THE OPERATIONS DIVISION.  THE WASHINGTON
 PLANT BRANCH IS THE MAJOR TECHNICAL ELEMENT OF THE VOICE OF AMERICA IN
 WASHINGTON, D.C.  THE FOUR RADIO BROADCAST TECHNICIAN POSITIONS IN NEW
 YORK CITY ARE ASSIGNED TO THE NEW YORK PROGRAM CENTER WHICH IS A
 SATELLITE OF THE WASHINGTON-BASED VOICE OF AMERICA.  ALTHOUGH THE NEW
 YORK PROGRAM CENTER IS UNDER THE PROGRAMS OFFICE OF THE VOICE OF AMERICA
 AND THE WASHINGTON PLANT BRANCH IS UNDER ENGINEERING AND TECHNICAL
 OPERATIONS, THE RECORD SHOWS THE FUNCTIONS OF BOTH GROUPS OF RADIO
 BROADCAST TECHNICIANS ARE ESSENTIALLY IDENTICAL.
 
    AS A MATTER OF ORGANIZATIONAL AND BARGAINING HISTORY, PRIOR TO 1953,
 THE VOICE OF AMERICA WAS PART OF THE DEPARTMENT OF STATE AND LOCATED IN
 NEW YORK CITY WITH A VERY SMALL TOP ADMINISTRATIVE STAFF IN WASHINGTON,
 D.C.  IN 1953, THE VOICE OF AMERICA WAS TAKEN FROM THE DEPARTMENT OF
 STATE AND PLACED IN A NEW ORGANIZATION CALLED THE UNITED STATES
 INFORMATION AGENCY (USIA).  AT THAT TIME, ALL 1,200 VOICE OF AMERICA
 EMPLOYEES IN NEW YORK CITY, EXCEPT FOR A SMALL GROUP NUMBERING ABOUT 50
 PEOPLE, WERE TRANSFERRED TO WASHINGTON, D.C.  IN 1965, LOCAL 1418 OF THE
 NATIONAL FEDERATION OF FEDERAL EMPLOYEES WAS CERTIFIED AS THE EXCLUSIVE
 REPRESENTATIVE OF A UNIT OF WASHINGTON-BASED RADIO BROADCAST TECHNICIANS
 WHICH HAD ITS DESCRIPTION AMENDED IN 1978 TO REFLECT A REORGANIZATION
 AND THE AGENCY'S NAME CHANGE FROM USIA TO ICA:  "ALL NON-SUPERVISORY
 RADIO BROADCAST TECHNICIANS IN THE MASTER CONTROL, TRAFFIC, STUDIO,
 RECORDING, AND TECHNICAL SUPPORT SECTIONS OF THE WASHINGTON PLANT
 BRANCH." IN 1971, LOCAL 1812 OF THE AMERICAN FEDERATION OF GOVERNMENT
 EMPLOYEES WAS CERTIFIED AS THE EXCLUSIVE REPRESENTATIVE OF A UNIT WHICH
 HAD ITS DESCRIPTION AMENDED AND CLARIFIED IN 1978 TO REFLECT A
 REORGANIZATION AND THE AGENCY'S NAME CHANGE FROM USIA TO ICA:
 
    INCLUDED:  ALL NON-PROFESSIONAL AND PROFESSIONAL NON-SUPERVISORY
 DOMESTIC GENERAL SCHEDULE
 
    (GS & GG) AND WAGE SYSTEM EMPLOYEES OF THE INTERNATIONAL
 COMMUNICATION AGENCY, NATIONWIDE.
 
    EXCLUDED:  MANAGEMENT OFFICIALS, SUPERVISORS, EMPLOYEES ENGAGED IN
 FEDERAL PERSONNEL WORK
 
    OTHER THAN A PURELY CLERICAL CAPACITY, GUARDS, AND THOSE EMPLOYEES
 COVERED BY EXISTING
 
    EXCLUSIVE RECOGNITION GRANTED TO ANOTHER LABOR ORGANIZATION
 (NON-SUPERVISORY RADIO BROADCAST
 
    TECHNICIANS IN WASHINGTON, D.C.) AND FOREIGN SERVICE EMPLOYEES.
 
    OF THE APPROXIMATELY 1,850 CIVIL SERVICE EMPLOYEES INCLUDED IN THE
 AFGE UNIT, 3 ARE RADIO BROADCAST TECHNICIANS (ONE OF THE 4 ESTABLISHED
 POSITIONS IS VACANT) ASSIGNED TO THE NEW YORK PROGRAM CENTER.  THE NFFE
 UNIT CONSISTS ENTIRELY OF THE APPROXIMATELY 130 RADIO BROADCAST
 TECHNICIANS ASSIGNED TO THE WASHINGTON PLANT BRANCH.  BOTH UNITS ARE
 COVERED BY NEGOTIATED AGREEMENTS WITH THE ICA.  SINCE 1968, THE NFFE'S
 NEGOTIATED AGREEMENTS HAVE ESTABLISHED A SYSTEM FOR SETTING THE HOURLY
 RATES OF PAY FOR THE RADIO BROADCAST TECHNICIANS WHO CONSTITUTE ITS UNIT
 AND WHO ARE ALL WAGE BOARD EMPLOYEES.  THIS NEGOTIATED PAY SETTING
 PROCEDURE WAS CONFIRMED BY THE COMPTROLLER GENERAL IN HIS DECISION
 MATTER OF:  UNITED STATES INFORMATION AGENCY-- ENTITLEMENT OF PREVAILING
 RATE EMPLOYEES WHO NEGOTIATE THEIR WAGES, B-188094, FEBRUARY 11, 1977,
 WHICH HELD IN ESSENCE THAT THE RADIO BROADCAST TECHNICIANS COVERED BY
 NFFE'S NEGOTIATED AGREEMENTS ARE EXEMPTED BY THE TERMS OF SECTION 9(B)
 OF PUB. L. 92-392 FROM THE PREVAILING RATE STATUTE, 5 U.S.C., SUBCHAPTER
 IV, CHAPTER 53, BECAUSE THE NEGOTIATED AGREEMENT CONTAINED WAGE SETTING
 PROVISIONS AND WAS IN EFFECT ON AUGUST 19, 1972.  AN IMPORTANT
 CONSEQUENCE OF NFFE'S CONTRACTUAL PAY SETTING PROVISIONS IS THAT RATES
 OF PAY GENERATED THEREFROM CANNOT BE LIMITED BY LEGISLATIVE OR EXECUTIVE
 PAY CAPS.  PRIOR TO SEPTEMBER OF 1975, AFGE HAD REPRESENTATION ON AN
 AGENCYWIDE WAGE COUNCIL AND THE WAGE RATES FOR RADIO BROADCAST
 TECHNICIANS IN WASHINGTON, D.C., WERE APPLIED TO THE RADIO BROADCAST
 TECHNICIANS IN NEW YORK CITY.  WHEN THE AGENCYWIDE WAGE COUNCIL WAS
 ABOLISHED IN 1975, AN ADMINISTRATIVE ARRANGEMENT WAS WORKED OUT SO THAT
 THE WAGE RATES FOR RADIO BROADCAST TECHNICIANS IN WASHINGTON, D.C.,
 WOULD CONTINUE TO BE APPLIED TO THE RADIO BROADCAST TECHNICIANS IN NEW
 YORK CITY.  HOWEVER, IT WAS LATER DETERMINED THAT SUCH AN ADMINISTRATIVE
 ARRANGEMENT COULD NOT DEFEAT THE 1978 AND 1979 LEGISLATIVE AND EXECUTIVE
 PAY CAPS VIS-A-VIS THE RADIO BROADCAST TECHNICIANS IN NEW YORK CITY
 BECAUSE THEY WERE NOT PART OF THE NFFE BARGAINING UNIT AND, THEREFORE,
 NOT COVERED BY THE NEGOTIATED AGREEMENT EXCEPTION TO THE PREVAILING RATE
 STATUTE.  AS A RESULT, FOR THE WAGE SCHEDULES EFFECTIVE JANUARY 27,
 1980, A WG-2, STEP 3 RADIO BROADCAST TECHNICIAN AT THE WASHINGTON PLANT
 BRANCH WILL EARN $14.87 PER HOUR WHILE A RADIO BROADCAST TECHNICIAN AT
 THE SAME GRADE LEVEL AT THE NEW YORK PROGRAM CENTER WILL EARN $.41 LESS
 FOR THE SAME WORK.  THE JOINT PETITIONERS CONTEND THAT THE ONLY WAY TO
 BRING THE NEW YORK RADIO BROADCAST TECHNICIANS WITHIN THE NEGOTIATED
 AGREEMENT EXCEPTION TO THE PREVAILING RATE STATUTE IS THE PETITIONED-FOR
 SEVERANCE AND ACCRETION.
 
    SECTION 7112(A)(1) OF THE STATUTE CHARGES THE AUTHORITY WITH THE
 RESPONSIBILITY TO DETERMINE THE APPROPRIATENESS OF ANY UNIT.  WHEN
 DECIDING QUESTIONS CONCERNING SEVERANCE OR ACCRETION, THE AUTHORITY IS
 BOUND BY THE THREE CRITERIA FOR DETERMINING THE APPROPRIATENESS OF ANY
 UNIT AS MANDATED BY SECTION 7112(A)(1);  THAT IS, THE AUTHORITY SHALL
 DETERMINE ANY UNIT TO BE AN APPROPRIATE UNIT ONLY IF THE DETERMINATION
 WILL ENSURE A CLEAR AND IDENTIFIABLE COMMUNITY OF INTEREST AMONG THE
 EMPLOYEES IN THE UNIT AND WILL PROMOTE EFFECTIVE DEALINGS WITH, AND
 EFFICIENCY OF THE OPERATIONS OF, THE AGENCY INVOLVED.
 
    THE MISSION OF THE WASHINGTON PLANT BRANCH AND THE RADIO BROADCAST
 TECHNICIANS ASSIGNED TO THE NEW YORK PROGRAM CENTER IS IDENTICAL:  BOTH
 GROUPS PROVIDE TECHNICAL SUPPORT TO THE PROGRAMMING REQUIREMENTS OF THE
 VOICE OF AMERICA.  THE REASON WHY THE NEW YORK PROGRAM CENTER IS UNDER
 THE DIRECTOR OF PROGRAMS INSTEAD OF THE DIRECTOR OF ENGINEERING AND
 TECHNICAL OPERATIONS, AS IS THE WASHINGTON PLANT BRANCH, IS BECAUSE THE
 SUPERVISORY HIERARCHY ABOVE THE RADIO BROADCAST TECHNICIANS IS
 COMPRESSED AS A FUNCTION OF THE NEW YORK PROGRAM CENTER'S SMALL SIZE.
 THE NEW YORK PROGRAM CENTER IS A MINI-VERSION OF THE ENTIRE VOICE OF
 AMERICA OPERATION HEADQUARTERED IN WASHINGTON, D.C., AND EXISTS BECAUSE
 THE NEW YORK CITY AREA REQUIRES A TREMENDOUS LEVEL OF PROGRAM COVERAGE,
 WHICH OTHERWISE WOULD HAVE TO BE PROVIDED OUT OF WASHINGTON, D.C.
 
    THE FIRST-LINE SUPERVISORY STRUCTURE OVER RADIO BROADCAST TECHNICIANS
 WHETHER IN NEW YORK OR WASHINGTON IS THE SAME.  THE SUPERVISORY RADIO
 BROADCAST TECHNICIAN POSITION IN THE NEW YORK PROGRAM CENTER IS
 CLASSIFIED AS A GS-12 (THE POSITION CURRENTLY IS VACANT) AND REPORTS
 DIRECTLY TO THE CHIEF OF THE NEW YORK PROGRAM CENTER.  THE WASHINGTON
 PLANT BRANCH IS DIVIDED INTO FOUR MAJOR TECHNICAL SUBELEMENTS:  STUDIOS
 (TECHNICAL OPERATION OF BROADCAST STUDIOS);  MASTER CONTROL (ALL THE
 STUDIOS' BROADCASTING OUTPUT IS CHANNELED TOGETHER INTO ONE MASTER
 CONTROL COMPLEX, WHICH IN TURN FEEDS IT TO THE VARIOUS RELAY STATION
 NETWORKS AROUND THE WORLD);  RECORDING (TAPE DUPLICATION);  AND
 TECHNICAL SUPPORT (MAINTENANCE AND FIELD COVERAGE).  THE CHIEF OF THE
 WASHINGTON PLANT BRANCH IS A GS-14 COMMUNICATIONS MANAGER.  EACH OF THE
 FOUR MAJOR TECHNICAL SUBELEMENTS IS HEADED BY A GS-13 RADIO BROADCAST
 SUPERVISOR, AND THERE ARE 13 RADIO BROADCAST SHIFT SUPERVISORS AT THE
 GS-12 LEVEL WHO ARE THE FIRST-LINE SUPERVISORS OF THE RADIO BROADCAST
 TECHNICIANS IN THE TECHNICAL SUPPORT, STUDIOS, AND RECORDING OPERATIONS.
  THE GS-13 IN CHARGE OF THE MASTER CONTROL OPERATION DIRECTLY SUPERVISES
 A COMPLEMENT OF RADIO MASTER CONTROL TECHNICIANS WHO ARE NOT PART OF THE
 NFFE UNIT.
 
    ALL THE RADIO BROADCAST TECHNICIANS IN THE ICA ARE THE SUBJECT OF THE
 INSTANT CONSOLIDATED PETITIONS.  THE RECORD SHOWS THAT ALL THESE RADIO
 BROADCAST TECHNICIANS HAVE IDENTICAL POSITION TITLES;  ARE CLASSIFIED IN
 THE SAME WAGE BOARD SERIES;  HAVE ESSENTIALLY THE SAME POSITION
 DESCRIPTIONS, IMMEDIATE WORK ENVIRONMENT REGARDLESS OF THEIR JOB
 LOCATIONS, JOB CONTACTS WITH THE SAME TYPE OF OTHER EMPLOYEES;  ARE
 SUBJECT TO OVERTIME AND VARYING WORK SCHEDULES AND SHIFT ASSIGNMENTS AS
 A FUNCTION OF THEIR PROGRAMMING SUPPORT RESPONSIBILITIES;  HAVE THE SAME
 DUTIES, RESPONSIBILITIES, QUALIFICATIONS;  HAVE INTERCHANGED BETWEEN
 TECHNICAL SUB-ELEMENTS AND JOB LOCATIONS;  BUT ARE NOT INTERCHANGEABLE
 WITH ICA EMPLOYEES IN ANY OTHER TECHNICAL JOB CLASSIFICATION.
 
    ALL RADIO BROADCAST TECHNICIANS REGARDLESS OF LOCATION SPEND MOST OF
 THEIR TIME PROVIDING TECHNICAL SUPPORT FOR THE RADIO BROADCAST STUDIO
 OPERATIONS OF THE VOICE OF AMERICA.  THE NEW YORK PROGRAM CENTER HAS 3
 STUDIOS IN ONE BUILDING, AND THE WASHINGTON PLANT BRANCH HAS 26 STUDIOS
 IN ONE BUILDING.  ALL THE SUBJECT RADIO BROADCAST TECHNICIANS HAVE THE
 SAME SKILL AND KNOWLEDGE FACTORS IN OPERATING AND MAINTAINING
 SOPHISTICATED ELECTRONIC RECORDING AND BROADCASTING EQUIPMENT, AND IN
 KNOWING RADIO PRODUCTION PRACTICES AND TECHNIQUES AND TECHNICAL RADIO
 BROADCASTING OPERATIONS.  THE RADIO BROADCAST TECHNICIANS WORK WITH
 PROGRAM PRODUCERS AND ANNOUNCERS WHO ARE CONCERNED WITH PROGRAM
 CONTENT.
  RADIO BROADCAST TECHNICIANS ARE RESPONSIBLE FOR INSURING THAT THE
 RECORDING OR BROADCAST OF THE PROGRAM IS OF ACCEPTABLE TECHNICAL
 QUALITY.  THEY WORK IN THE CONTROLLED ENVIRONMENT OF THE STUDIO CONTROL
 ROOM WHERE THEY SIT BEHIND SOUND-INSULATED WINDOWS AND A CONTROL
 CONSOLE, OPERATING AND MAINTAINING SOPHISTICATED RECORDING AND
 BROADCASTING EQUIPMENT.  ALSO, RADIO BROADCAST TECHNICIANS, WHETHER
 BASED IN NEW YORK CITY OR WASHINGTON, D.C., ACCOMPANY PROGRAM
 SPECIAL-EVENTS REPORTERS IN THE FIELD, CARRYING, OPERATING, AND
 MAINTAINING NECESSARY PORTABLE RECORDING AND COMMUNICATIONS EQUIPMENT IN
 ORDER TO PROVIDE LIVE COVERAGE OR TO RECORD PROGRAM MATERIAL FOR
 SUBSEQUENT BROADCAST.
 
    FURTHER, RADIO BROADCAST TECHNICIANS SHARE THE COMMON RESOURCE OF THE
 MASTER CONTROL FUNCTION LOCATED IN THE BUILDING HOUSING THE WASHINGTON
 PLANT BRANCH.  THE RADIO MASTER CONTROL TECHNICIANS IN WASHINGTON, D.C.,
 HAVE A DIRECT WORKING RELATIONSHIP WITH RADIO BROADCAST TECHNICIANS,
 WHETHER BASED IN NEW YORK CITY OR WASHINGTON, D.C.  THE PROGRAM MATERIAL
 WHICH RADIO BROADCAST TECHNICIANS WORK WITH IS CHANNELED THROUGH THE
 WASHINGTON PLANT BRANCH'S MASTER CONTROL FUNCTION.  THE ONLY DISTINCTION
 IS THAT WHILE THE TECHNICIAN COMMUNICATIONS LINK IS 200 MILES LONG FOR
 THE NEW YORK RADIO BROADCAST TECHNICIANS, IT IS WITHIN THE SAME BUILDING
 FOR THE WASHINGTON RADIO BROADCAST TECHNICIANS.
 
    RADIO BROADCAST TECHNICIANS INTERCHANGE BACK AND FORTH BETWEEN NEW
 YORK CITY AND WASHINGTON, D.C., NOT ONLY IN TERMS OF PERMANENT CHANGES
 OF DUTY STATION, BUT ALSO IN TERMS OF TEMPORARY DUTY ASSIGNMENTS.  FOR
 EXAMPLE, WASHINGTON PLANT BRANCH RADIO BROADCAST TECHNICIANS WILL ASSIST
 NEW YORK PROGRAM CENTER RADIO BROADCAST TECHNICIANS IN MAINTAINING
 EQUIPMENT AND IN COVERING SPECIAL EVENTS.
 
    SECTION 7112(A)(1) OF THE STATUTE STATES IN PART THAT "THE AUTHORITY
 SHALL DETERMINE . . . WHETHER . . . THE APPROPRIATE UNIT SHOULD BE
 ESTABLISHED ON AN AGENCY, PLANT, INSTALLATION, FUNCTIONAL, OR OTHER
 BASIS . . . . " UNDER ALL THE FOREGOING CIRCUMSTANCES, THE AUTHORITY
 FINDS THAT THE AGENCY'S RADIO BROADCAST TECHNICIANS SHARE A CLEAR AND
 IDENTIFIABLE FUNCTIONAL COMMUNITY OF INTEREST.
 
    THE AUTHORITY FINDS THAT A SINGLE UNIT OF ALL THE ICA'S RADIO
 BROADCAST TECHNICIANS WILL PROMOTE EFFECTIVE DEALINGS WITH, AND
 EFFICIENCY OF THE OPERATIONS OF, THE AGENCY.  THE RECORD DISCLOSES THAT
 ALL EMPLOYEES OF THE ICA ARE SUBJECT TO THE SAME PERSONNEL POLICIES AND
 PRACTICES.  THE ICA HAS CENTRALIZED ITS ADMINISTRATIVE, PERSONNEL, AND
 LABOR RELATIONS SERVICES IN WASHINGTON, D.C.  THE SAME SERVICES ARE
 PROVIDED REGARDLESS OF WHERE AN EMPLOYEE IS PHYSICALLY LOCATED, WHETHER
 IN WASHINGTON, D.C., ELSEWHERE IN THE UNITED STATES, OR OVERSEAS.  THE
 RECORD SHOWS THAT A SINGLE UNIT OF RADIO BROADCAST TECHNICIANS WILL
 BETTER MELD WITH THE EXISTING ORGANIZATIONAL AND OPERATIONAL STRUCTURE
 OF THE VOICE OF AMERICA THAN THE EXISTING TWO UNITS THAT REPRESENT RADIO
 BROADCAST TECHNICIANS.  FOR EXAMPLE, EVEN THOUGH THE RADIO BROADCAST
 TECHNICIANS ASSIGNED TO THE NEW YORK PROGRAM CENTER ARE UNDER THE
 DIRECTOR OF PROGRAMS, THEY MUST SECURE APPROVAL FROM THE CHIEF OF THE
 WASHINGTON PLANT BRANCH FOR PROCUREMENT OF TECHNICAL BROADCAST SUPPLIES
 AND EQUIPMENT.  ADDITIONALLY, A SINGLE UNIT OF RADIO BROADCAST
 TECHNICIANS SUBJECT TO THE WAGE SETTING PROVISIONS OF NFFE'S NEGOTIATED
 AGREEMENT WOULD SAVE THE MANAGEMENT AND CLERICAL EXPENSE INVOLVED IN
 ADMINISTERING TWO SEPARATE WAGE SCHEDULES FOR THE SAME EMPLOYEE
 CLASSIFICATION, AND WOULD ELIMINATE THE DETRIMENTAL AFFECT ON THE
 MORALE, STAFFING, AND RECRUITMENT OF RADIO BROADCAST TECHNICIANS CAUSED
 BY DIFFERENT RATES OF PAY FOR THE SAME WORK AT THE SAME GRADE.
 MOREOVER, THE CLARIFICATION OF UNITS SOUGHT BY THE JOINT PETITIONERS
 WILL RESULT IN A SINGLE EXCLUSIVE REPRESENTATIVE (NFFE) REPRESENTING THE
 UNIQUE INTERESTS AND CONCERNS REGARDING MATTERS THAT AFFECT THE TERMS
 AND CONDITIONS OF EMPLOYMENT OF A SINGLE UNIT OF RADIO BROADCAST
 TECHNICIANS AND THUS, WILL, IN THE OPINION OF THE AUTHORITY, PROMOTE
 EFFECTIVE DEALINGS WITH THE AGENCY.  /1/
 
    UNDER ALL THE FOREGOING CIRCUMSTANCES, THE AUTHORITY FINDS THAT A
 SINGLE UNIT OF ALL THE AGENCY'S RADIO BROADCAST TECHNICIANS IS
 APPROPRIATE FOR EXCLUSIVE RECOGNITION WITHIN THE MEANING OF SECTION
 7112(A)(1) OF THE STATUTE AS THE FACTS SHOW THAT SEVERANCE OF RADIO
 BROADCAST TECHNICIANS ASSIGNED TO THE NEW YORK PROGRAM CENTER FROM THE
 AFGE LOCAL 1812 UNIT AND ACCRETION OF THESE SAME EMPLOYEES TO THE NFFE
 LOCAL 1418 UNIT WILL ENSURE A CLEAR AND IDENTIFIABLE FUNCTIONAL
 COMMUNITY OF INTEREST AMONG THE EMPLOYEES IN THE NFFE LOCAL 1418 UNIT
 AND WILL PROMOTE EFFECTIVE DEALINGS WITH, AND EFFICIENCY OF THE
 OPERATIONS OF, THE AGENCY.  ACCORDINGLY, THE PETITIONED-FOR
 CLARIFICATION OF UNITS SOUGHT BY THE JOINT PETITIONERS SHALL BE SO
 ORDERED BY THE AUTHORITY.
 
                                   ORDER
 
    IT IS HEREBY ORDERED THAT THE NATIONWIDE UNIT SOUGHT TO BE CLARIFIED
 BY CASE NO. 3-CU-33 HEREIN, FOR WHICH THE AMERICAN FEDERATION OF
 GOVERNMENT EMPLOYEES, LOCAL 1812, WAS CERTIFIED ON AUGUST 30, 1978, BE,
 AND IT HEREBY IS, CLARIFIED BY EXCLUDING FROM SAID UNIT ALL
 NONSUPERVISORY RADIO BROADCAST TECHNICIANS ASSIGNED TO THE NEW YORK
 PROGRAM CENTER.
 
    IT IS HEREBY ORDERED THAT THE UNIT AT THE WASHINGTON PLANT BRANCH
 SOUGHT TO BE CLARIFIED BY CASE NO. 3-CU-32 HEREIN, FOR WHICH THE
 NATIONAL FEDERATION OF FEDERAL EMPLOYEES, LOCAL 1418, WAS CERTIFIED ON
 AUGUST 9, 1978, BE, AND IT HEREBY IS, CLARIFIED BY INCLUDING IN SAID
 UNIT ALL NONSUPERVISORY RADIO BROADCAST TECHNICIANS ASSIGNED TO THE NEW
 YORK PROGRAM CENTER.
 
    ISSUED, WASHINGTON, D.C., FEBRUARY 11, 1981
 
                       RONALD W. HAUGHTON, CHAIRMAN
 
                       HENRY B. FRAZIER III, MEMBER
 
                        LEON B. APPLEWHAITE, MEMBER
 
                     FEDERAL LABOR RELATIONS AUTHORITY
 
 
 
 
 
 --------------- FOOTNOTES$ ---------------
 
 
    /1/ IN THIS REGARD, THE AUTHORITY NOTES THAT PRIOR TO OCTOBER 1974,
 WHEN IT BECAME APPARENT THAT THE NEW YORK PROGRAM CENTER RADIO
 BROADCAST
 TECHNICIANS WERE, IN FACT, PART OF THE AFGE LOCAL 1812 UNIT, THESE
 EMPLOYEES WERE ON DUES CHECK-OFF