Final FLRA Rule, effective August 29, 2025, introduces significant changes
The Federal Labor Relations Authority (FLRA) oversees labor-management relations in the federal government by resolving disputes, adjudicating cases, and ensuring compliance with federal labor law. The FLRA has implemented significant changes to its regulations and operations to eliminate non-statutory functions, in compliance with Executive Order 14210.
According to the notice published in the Federal Register, the adjustment “ensures compliance with the law while optimizing operational efficiency without compromising the essential services it provides.”
Here are the major changes affecting the FLRA and its users.
First, the FLRA will close its Chicago Regional Office due to a reduction in staff and the expiration of the lease in December 2025.
Currently, there is only one remote employee based outside the Chicago area. As a result of these adjustments, the responsibilities previously handled by the Chicago office will be distributed among the Atlanta, Denver, San Francisco, and Washington, DC Regional Directors.
The changes in the new rule, published in the Federal Register, reflect the closure of the Chicago Regional Office, as well as adjustments to the geographical jurisdictions of the Atlanta, Denver, San Francisco, and Washington, DC Regional Directors.
Second, the addresses and geographic areas associated with the Chicago office will be updated. Appendix A to 5 CFR chapter XIV will reflect modifications to eliminate any references to the Chicago office. Additionally, the areas previously handled by other regional offices will be redefined in light of the closure.
Third, the FLRA will eliminate its Collaboration and Alternative Dispute Resolution Office (CADRO). CADRO was a unit responsible for facilitating the voluntary use of alternative dispute resolution (ADR) services. While these services were not mandated by law, the office was an attempt to reduce the time spent bargaining between agencies and unions which were often lengthy and delayed implementing changes in agencies.
In accordance with Executive Order 14210, issued on February 11, 2025, the elimination of CADRO will result in a reduction in non-mandatory tasks, aligning with the FLRA’s workforce optimization initiative.
Furthermore, the FLRA will implement changes to its case handling procedures, particularly in parts 2424, 2425, and 2473. These modifications will eliminate any references to CADRO and the voluntary utilization of its services.
What Was CADRO?
CADRO, the Collaboration and Alternative Dispute Resolution Office, was an office within the FLRA that provided mediation, training, facilitation, and workplace-relationship services to federal agencies and unions to resolve disputes and prevent litigation. It focused on resolving disputes before they escalated to formal cases by offering Alternative Dispute Resolution (ADR) services in negotiability and unfair labor practice cases.
Key Points
Regional Realignment: The FLRA’s Chicago office is closed. Before filing a case with the FLRA, it will be necessary to determine which Regional Director in another jurisdiction will handle the case.
Alternative Dispute Resolution (ADR) Resource Changes: ADR remains available, but the dedicated CADRO office is closed.
These changes are integral to FLRA’s initiatives to enhance efficiency and adhere to regulatory requirements.
Here is a summary of FLRA’s rule modifications:
| Topic | Change |
| Chicago Regional Office | Closed as of August 29, 2025; jurisdiction redistributed to other offices |
| Regional Addresses | Chicago office removed; contact info revised in 5 CFR Appendix A |
| Geographic Jurisdictions | Redefined boundaries for Atlanta, Denver, San Francisco, and Washington, DC Regional Directors |
| CADRO Office | Eliminated; no longer referenced in case-handling regulations |
| Case-Handling Procedures | Removal of CADRO from negotiability petitions and arbitration-award review provisions |
| ADR Practice | ADR still available—just not via CADRO |
Status of the FLRA
The changes now being made to the FLRA reflect the requirements of an Executive Order. Other Orders have also been issued that have essentially excluded most of the federal workforce from being represented by a union. Cases on these issues are currently in court and are likely to be decided by the US Supreme Court if appeals continue as expected.
This article citing OPM Director Scott Kupor encapsulates the philosophy of why federal employee unions contributed to an ineffective, inefficient federal government and why the administration wants to change this mindset.
In the past, some of the court cases would have been handled as unfair labor practice (ULP) charges. The FLRA last issued Unfair Labor Practice (ULP) complaints in November 2017, just before then-General Counsel Julia Akins Clark’s term expired in January 2017, and her authority to prosecute cases lapsed shortly afterward.
Unfair labor practices were a major portion of the work handled by the FLRA. Obviously, that has not been the case since late 2017. Currently, there is no nominee pending for the FLRA General Counsel position.
Effectively, the role of the FLRA has significantly diminished. The role of unions has substantially altered, and, in all likelihood, their future existence is in question. Their financial status has likely been severely impacted by the suspension of dues withholding for many federal employees.
Court cases can take a long time to resolve. By the time a case gets to the US Supreme Court, it may have been a year or more since the case was originally filed.
The approach taken by President Trump in his first term ignited considerable litigation. Ultimately, many of the changes he made were revoked early in the Biden administration. President Biden worked hard to enhance the strength and presence of unions in the federal government and had some success.
But turnabout is fair play. Shortly after President Trump began his second term, he took actions that seriously weakened the role of unions in the federal government.
To solidify these changes into more permanent ones, Congress will need to enact legislation. That may happen after the mid-term elections. Or, if another Republican succeeds President Trump in the White House, the changes affecting federal employee unions will be more lasting.
The changes at the FLRA reflect the events occurring in federal labor relations. It is unlikely an FLRA General Counsel will be nominated, as this cuts off the ability of unions to pursue unfair labor practices. Filing a ULP is often less expensive than the legal fees incurred by going to court, and the issues raised will often be different.
More developments will be forthcoming in federal labor relations. These may be in the form of court decisions upholding or overturning executive orders, guidance from OPM, and new executive orders. To date, the trend is working against the unions.
The final outcome of the efforts of the Trump administration to drastically reduce the role of unions and optimize operation of the federal government remains to be seen.
