44:1218(99)AR - - GSA, Region 9 and AFGE Council 236 - - 1992 FLRAdec AR - - v44 p1218
[ v44 p1218 ]
The decision of the Authority follows:
44 FLRA No. 99
FEDERAL LABOR RELATIONS AUTHORITY
GENERAL SERVICES ADMINISTRATION
AMERICAN FEDERATION OF GOVERNMENT EMPLOYEES
May 13, 1992
Before Chairman McKee and Members Talkin and Armendariz.
I. Statement of the Case
This matter is before the Authority on exceptions to an award of Arbitrator Thomas Angelo filed by the Union under section 7122(a) of the Federal Service Labor-Management Relations Statute (the Statute) and part 2425 of the Authority's Rules and Regulations. The Agency did not file an opposition to the exceptions.
A grievance was filed alleging that the Agency failed to qualify the grievant for the highest previous pay rate when he was competitively selected for the position of GS-11 Contracting Specialist. The Arbitrator denied the grievance. For the following reasons, we conclude that the Union has not demonstrated that the award is deficient. Accordingly, we will deny the exceptions.
II. Background and Arbitrator's Award
In April 1991, the grievant was selected for the position of GS-11 Contracting Specialist. When the grievant received his notice of pay rate, he inquired as to his eligibility for an increase in pay based on the Agency's "highest previous rate" rule. Award at 3. That rule provides:
The GSA rule in pay setting cases is to give credit to employees for recent and directly related work experience which will clearly and favorably impact performance in the new position. However . . . if the use of the highest previous rate (HPR) is inappropriate, a step can be selected which is allowable by law or regulation and is more than step 1 . . . . In some situations, step 1 is appropriate; for example, the work experience for which the HPR was earned is over three years old . . . Also, the Personnel Officer shall review the rate to be set in light of . . . supply of quality applicants . . . .
Id. (quoting Joint Exhibit 2).
The grievant contended that he had performed qualifying higher-graded duties while stationed in Fairbanks, Alaska during 1981-83. According to the grievant, those duties constituted GS-11 contracting work that was applicable under the highest previous rate regulation. The Agency refused to give the grievant a higher rate of pay.
The Union filed a grievance on July 12, 1991. In denying the grievance on the merits, the Agency relied "on the stale nature of the [g]rievant's experience, contended that the cited experience was only incidental in nature and took no more that 10% of his time, and the work was not of the GS-11 level in any event." Id. at 6.
The grievance was not resolved and was submitted to arbitration. The parties stipulated to the following issues:
Is the grievance timely[?]
If so, did the Agency violate OAD P 5410.1 in denying 'highest previous rate' to [the grievant][?]
If so, what should the remedy be[?]
Id. at 2.
The Arbitrator determined that the grievance was timely filed. In addressing whether the grievant was entitled to a higher rate of pay under the highest previous rate rule, the Arbitrator first noted that the highest previous rate rule is defined by Agency regulation OAD P 5410.1 and not the parties' collective bargaining agreement. The Arbitrator stated that the terms of the regulation would be "afforded their reasonable, plain meaning[.]" Id. at 8-9. Noting the requirement in the Agency's regulation that work experience be "recent," the Arbitrator stated that "[t]he Agency has defined this element to mean experience within the prior three years, and I lack authority to override or ignore this requirement." Id. at 9. The Arbitrator found that "because the [g]rievant's experience took place in 1981-3, it [was] not 'recent' within the meaning of the regulation." Id. Therefore, the Arbitrator found that the grievant's prior experience "does not satisfy the Agency's requirements in OAD P 5410.1." Id. at 10. Further, with respect to the Agency's argument that the grievant did not qualify for the highest previous rate because his work experience in Alas