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Conflict Prevention and Resolution
Reference
Guide and Mediation Plan
2004
Section 3 Incentives for Using ADR Strategies
Section 4 Ensuring Internal Neutrality
Section 5 Labor/Management Partnership
Section 6 Implementation and Procedures
6.1 Selection and Appointment of Agency Mediators
Section 7 Roles of Participants in the Mediation Program
Section 8 Monitoring and Evaluating the Mediation Process
The Conflict Prevention and Resolution (CPR) program was created as an alternative resource to existing formal grievance and EEO complaint processes to address work-related issues. One of the primary goals of CPR is to provide employees with an impartial, confidential avenue to resolve disputes in order to minimize the escalation of disputes to the formal grievance process.
The CPR Specialists offer FDA employees and managers the following resources:
CPR Specialists are trained in all statutory regulations for filing formal grievances (negotiated and administrative), EEO and appeals to the MSPB. All mandated timeframes are strictly adhered to in accordance with the specific statutes. For example, a union grievance must be filed within 30 days of the alleged incident. EEO complaints must be filed within 45 days of the point of incident. Specialists help employees to candidly discuss issues and explore options. They then work to assist the parties to achieve fair and equitable solutions as well as triaging to other available resources. If the employee files an EEO complaint and elects mediation during the pre-complaint stage, management is required to participate in the process. Both management and the employee are entitled to representation during the mediation session. If an employee has not filed a formal grievance/EEO complaint, he/she can request informal ADR assistance (facilitation, counseling, coaching, etc.). A facilitated meeting must take place with the concurrence of both parties, and is intended to informally resolve issues in conflict without moving into a formal arena. Although the facilitated sessions are informal and representation is not typically a part of this process, if any party requests representation, the CPR Specialist will be informed in advance.
If facilitation, mediation, etc. is requested, the unit making the request will be responsible for travel and lodging expenses, if necessary.
The Food and Drug Administration (FDA) Office of Equal Employment Opportunity and Diversity Management (OEEODM)/Conflict Prevention and Resolution (CPR), has designed an Alternative Dispute Resolution (ADR) program for informal and non-adversarial resolution of complaints of employment discrimination, and as an alternative to litigation or administrative adjudication. The Equal Employment Opportunity Commission (EEOC) urges all Federal government agencies to attempt resolution of complaints of discrimination at the earliest possible stage of the EEO complaint process. EEOC's Federal Sector Equal Employment Opportunity regulations at 29 CFR Part 1614.102(b)(2) require that Federal agencies "...establish or make available an alternative dispute resolution program. Such a program must be available for both the pre-complaint and formal complaint process." Under this regulation, during the EEO counseling period the aggrieved party is given the option of pursuing his/her claim through traditional counseling or engaging in ADR. The pre-complaint counseling period for individuals involved in ADR is 90 days. The ADR process however, is not a substitute for any formal procedure for resolving complaints of discrimination (e.g., those contained in 29 CFR 1614 or the negotiated grievance procedure under the collective bargaining agreement). If complaint is not resolved via CPR, then complaint may proceed through the established process.
The ADR process is offered in order to facilitate resolution of work place conflicts, to restore some control in the management of conflict to the disputing parties themselves, to generate increases in the workability of remedies, to decrease costs and delays in resolution, and to minimize formal complaints. The ADR process is comprised of a variety of alternatives to the traditional methods for resolving disputes through litigation and are generally characterized by informality, flexibility, and control by the parties to the dispute. The FDA has chosen Mediation, the most widely used ADR process in the Federal Sector, as the ADR method of resolving employment discrimination disputes. Mediation is an integral part of EEO complaints processing under 29 CFR Part 1614.
The CPR program utilizes the following ADR strategies in resolving work place disputes informally: facilitation, consultation, training, coaching, early neutral evaluation and counseling.
Mediation is the classic form of assisted resolution where a neutral third party (the mediator) assists the disputing parties to achieve a mutually acceptable agreement. The decision-making authority always rests with the disputing parties. The role of the mediator is to assist the disputing parties in identifying the essential nature of the dispute and in exploring possible avenues for resolution. The mediator cannot force or make binding decisions on behalf of either party. Rather, the objective of the mediator is to bridge the gap in communication between the disputing parties and assist them in reaching a voluntary agreement of their own. All communications between the mediator and the disputing parties are held as confidential to the maximum extent possible except in cases of fraud, abuse, or criminal activity.
To assist in understanding ADR in general and mediation in particular, and to promote its use, where appropriate, the following benefits of its use have been identified:
The process:
The mediation process must be fair, non-discriminatory, confidential and non-threatening. It must be based on criteria and standards of fairness which are clear and understandable. It is a process that is easily accessible to everybody, regardless of position, grade or status. The mediation process must be conducted by neutral parties who have no stake in the outcome of the dispute. No party involved in the mediation process will be coerced into signing a settlement agreement.
The FDA is committed to implementing a CPR program that will best serve all FDA employees. When a person is employed by an agency subject to 5 U.S.C. 7121(d) and is covered by the collective bargaining agreement that permits allegations of discrimination to be raised in a negotiated grievance procedure, a person wishing to file a complaint on a matter of alleged employment discrimination must elect to raise the matter under either 29 CFR Part 1614 or the negotiated grievance procedure, but not both. However, the CPR program provides early intervention strategies to assist in possible resolution of issues before they are raised in a formal grievance or EEO complaint process.
The CPR Staff is comprised of full time, certified mediators. However, contract and collateral-duty mediators are also utilized. FDA collateral-duty mediators are selected through a competitive process and trained on an ongoing basis. Subsequently, collateral-duty mediators are appointed by the Director, CPR to serve for one-year collateral-duty assignments, as third-party neutrals to assist in the resolution of employment disputes.
Information is made available to all employees to raise awareness/knowledge of the alternative dispute resolution process and procedures through briefings, orientation sessions and informational material. The CPR program is responsible for the implementation and monitoring of all information/educational activities and training. Internal training programs are conducted by CPR staff and private consultants to train collateral-duty mediators. Additionally, a mentoring program has been established to assist new mediators through co-mediation assignments and through the Department of Health and Human Services' Sharing Neutrals.
The FDA has chosen Mediation as the ADR method of resolving employment discrimination complaints. However, many workplace issues are not found to be EEO related. When this is the case, the following ADR strategies are recommended (facilitation, coaching, counseling, etc.) in addition to Mediation.
When an employee/manager is confronted with a non-EEO related issue, he/she can contact the CPR office for assistance.
The following is a summary of the procedures to be followed in scheduling mediations within the EEO complaint process:
STEP 1: At the pre-complaint counseling stage, the aggrieved party is given the option by an EEO Counselor to go through mediation or to pursue traditional EEO counseling to resolve disputes. Requests for mediation are referred by OEEODM EEO Counselor to CPR Program Coordinator for processing (see Appendix 1 for Referral Form to Mediate ).
STEP 2: CPR Program Coordinator will oversee and coordinate all activities related to the process, i.e., assignment of a mediator(s), providing guidance and support to the mediator(s) and coordinating all logistical needs.
STEP 3: Prior to the first session, the designated mediator(s) will make initial contact with the parties to the dispute. This provides an opportunity for the mediator(s) to get acquainted with the parties and to briefly explain the mediation process.
STEP 4: A commitment to participate in the mediation process will be secured from the aggrieved person and the management official(s) (see Appendix 2 for Agreement to Mediate ). If an aggrieved party elects to mediate, in lieu of traditional counseling, management will participate.
STEP 5: The CPR Program Coordinator(s) and the mediator(s) will make all necessary arrangements for conducting the mediation session(s).
STEP 6: The mediator(s) will conduct the mediation session(s), and have sole authority over the process. They will also ensure confidentiality, including the destruction of all written materials generated during the mediation session(s).
STEP 7: If the mediation process results in a resolution, the terms of agreement are reduced to writing using the Memorandum of Agreement used in any EEO case (see Appendix 3 for Memorandum of Agreement ). The draft agreement will be initialed by the aggrieved person/complainant, management/ settlement official(s) and transmitted to the appropriate individuals for review and approval.
STEP 8: The agreement becomes final once signed by the Director, OEEODM.
STEP 9: If either or both parties request that mediation cease, or if the mediator(s) recommends that mediation be terminated, a Request to Discontinue Mediation must be completed (see Appendix 4 Request to Discontinue Mediation ). Copies of the signed request are given to the disputing parties and the original signed copy is sent to the CPR Program Coordinator(s).
STEP 10: If theparties discontinue mediation or if they are unable to reach an agreement, the matter is referred to the CPR Program Coordinator. The Coordinator will inform the OEEODM EEO Counselor to proceed with the completion of the Final Counseling Report and issuance of the Notice of Final Interview and Right to File a Discrimination Complaint.
The EEO Counselor will advise the aggrieved party of the availability of the Mediation process, provide information on the timeframes involved in the Mediation process, and inform them of their rights and responsibilities. The EEO Counselor will inform the CPR Specialist (Program Coordinator) when the aggrieved party has chosen to mediate a dispute. Once the aggrieved party has opted to participate in the mediation process, the EEO Counselor is precluded from attempting to resolve the matter. If the mediation, however, does not result in resolution of the dispute, the EEO Counselor will prepare a Final Counseling Report and issue a Notice of Final Interview and Right to File a Discrimination Complaint.
Agency policy commits Management's participation in the mediation process when an aggrieved party is in the pre-complaint stage of the EEO process. Participation in mediation of formal cases is voluntary. Management/Settlement Official(s) to be involved in the mediation process must have the authority to enter a settlement agreement. Where delegation of authority limits a designee from exercising authority to settle a matter, the appropriate Management/Settlement Official(s) with settlement authority, will be involved in the process.
Management/Settlement Official(s) involved in the mediation process must:
The Aggrieved person is an individual who is an employee, former employee or an applicant for employment who has made allegation(s) of employment discrimination. The aggrieved person is afforded the opportunity to seek resolution for such claims through the EEO complaints process. The aggrieved must:
The aggrieved person has the right to choose to be accompanied in mediation by the advisor of his/her choice in order to assist and lend support. While it is not necessary to have an attorney or other representative in order to participate in FDA's Mediation Program, either party may choose to have one. The mediator will decide what role the attorney or representative will play during the mediation. The mediator may ask or provide advice and counsel, but not speak for the party. If a party plans to bring an attorney or other representative to the mediation session(s), he or she must discuss this with the Mediation Program Coordinator prior to the start of the mediation process. The Management Official may elect to have representation during the mediation process (e.g., Employee Relations, Personnel Specialist, Office of General Counsel Representative, etc.).
Mediation session(s) held during the course of formal complaints are considered formal discussions. Thus, according to the provisions of the Collective Bargaining Agreement between FDA and the National Treasury Employees Union (NTEU), the Union has the right to be present during the mediation session(s), whether selected by the aggrieved person or not. They are bound by the same confidentiality requirement as the parties.
The CPR Staff is responsible for ongoing monitoring of the mediation process and the annual evaluation of the program. Evaluation forms (see Appendix 5 for Evaluation Forms )will be distributed to the parties involved in mediation. The data collected in the evaluations specifically relate to processing not to the substance of a dispute. Such data are used to make improvements and modifications to the FDA Mediation Process.
Appendix 1 Referral Form to Mediate
Appendix 2 Agreement to Mediate
Appendix 3 Memorandum of Agreement
Appendix 4 Request to Discontinue Mediation
Appendix 5 FDA Mediation Evaluation Forms
Appendix 6 Mediator Debriefing Form
Mediation Request Date: ____________ |
Case #: _________________ |
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Center/Office/District Office: _________________________ |
Date of Initial Contact: _____________ |
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Informal: ________ |
Formal:______ |
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Bargaining Unit: Yes_____ No_______ |
Commissioned Corps: Yes_____ No_____ |
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Name of Aggrieved/Complainant:__________________________ |
Telephone:_________________ |
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Basis:__________________________________________ |
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Issue:__________________________________________ |
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Work Address:________________________________________________________________ |
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Mailing Symbol:_________ |
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Name Representative/Attorney: (if applicable)_____________________________________ |
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Address:_____________________________________________________________________ |
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Telephone #:_______________________ |
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Name of Management/Settlement Official:________________________________________ |
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Title:____________________________________ Telephone #:_______________________ |
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Work Address:____________________________ |
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Form Completed By:____________________________________ Date:___________ |
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Telephone # : ____________________________________ |
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Other Cases Pending: Informal/Formal/Grievance/MSPB
Appeal? If so, list case numbers: |
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Date Received by CPR:_________________ |
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Date of Request Confirmation:______________ |
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Date of Mediation Notice: __________________ |
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Name of Mediator:_______________________________ |
Telephone #:_________________ |
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Employee Relations Specialist: _________________________ |
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Union Representative:_________________________________ Pic-tel: _____________________ Conference Room #: _____________________ |
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Date of Mediation:__________________ |
The parties agree to engage in mediation to try to resolve issues raised during the alleged employment discrimination complaint process. The parties agree to participate in the mediation process in good faith. The parties understand that mediation may be ended at any time by any of the parties. If an employee elects mediation during the pre-complaint stage, management is required to participate. Both management and the employee are entitled to representation during the mediation process.
The parties understand that the mediator(s) is a neutral third-party. As such, the mediator(s) has no authority to settle the dispute and is not acting as advocate or attorney for any party.
All communications between the mediator(s) and the disputing parties are held confidential to the maximum extent possible except in cases of fraud, abuse, or criminal activity. Any documents submitted to the mediator(s) and any statements made during the mediation are for resolution purposes only. The parties agree to maintain the information discussed or the documents presented confidential and the parties will also hold the fact that the mediation took place confidential. The parties agree not to subpoena the mediator(s) or any documents prepared by or submitted to the mediator(s). In no event will the mediator(s) voluntarily testify for any party or submit any type of report concerning this mediation. Confidentiality will not extend to threats of imminent physical harm.
No party is bound by anything said or done at the mediation session(s) unless an agreement is reached and executed by all parties. If an agreement is reached, it will be reduced to writing as a draft. It will become binding when signed by all parties and approved by the Director, Office of Equal Employment Opportunity and Diversity Management (OEEODM), FDA. The Director of OEEODM may have changes to be made to the draft and the parties may be required to approve and signed amended versions of the draft.
The parties agree that the mediator(s) has the right to end the mediation at any time if the mediator(s) feels that further discussions would not be helpful in resolving the dispute.
By signature below, we acknowledge that we have read, understand, and agree to this mediation process.
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Aggrieved Person/Complainant
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Representative
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Management/Settlement Official
__________________________________________________
Representative
__________________________________________________
Mediator
__________________________________________________
Co-Mediator
OEEDM
Revised 03/2004
The Negotiated Settlement, Release and Confidentiality Agreement, hereinafter referred to as "Agreement," is made and entered into by and between the Parties, hereinafter referred to as "Complainant" or "Aggrieved Party" and the Food and Drug Administration, Department of Health and Human Services, hereinafter referred to as "Agency" or "DHHS ." This agreement is the result of a mediation process that took place on________________, prior to the Complainant/Aggrieved Party filing an informal Complaint of Discrimination.
In exchange for the terms contained herein, the Agency and Complainant/Aggrieved Party voluntarily agree and stipulate as follows:
_____________________________________________
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___________________________________ ___________________________________
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I _________________________________ hereby request that mediation efforts be discontinued effective on (date)________________.
Signature of party requesting that mediation be discontinued:
_______________________________________________________________________
Aggrieved
Person/Complainant Date
_______________________________________________________________________
Management/Settlement
Official Date
_______________________________________________________________________
Mediator
Date
_______________________________________________________________________
Mediator
Date
(ALL PARTIES)
PURPOSE: It is our objective to present useful and effective services. You are the final authority on whether that objective has been met. Your completion of this form, therefore, will play an important part in our future planning and help us do a better job. Please do not feel bound to limit your remarks to questions on this form. Your pertinent comments on any aspect of the service will be appreciated.
I. Please answer Yes or No to the following:
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NO |
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Did the mediator define his/her role within the process? |
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Did the mediator(s) help generate realistic options for settling the dispute? |
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Were you able to fully present your case? If no, please explain. |
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Did the mediator(s) treat all parties equally? If no, please explain. |
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Did the mediator(s) understand the factual issues involved? If no, please explain. |
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Do you feel that the major issue(s) or problem(s) you presented were resolved? |
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Do you believe mediation was appropriate for this case? |
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If this was co-mediated, was it beneficial to have two mediators? |
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Would you use mediation again? |
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Would you recommend mediation to others? |
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II. Overview of Mediation:
Name of Mediator(s):_____________________________________________________________
Name of Participant:_____________________________________________________________
Date(s) of Mediation Session(s)_____________________________________________________
Outcome: Settled_______ Not Settled_________ Discontinued_____________
Please complete and fax back to (301) 827-9661.
We would like to know if this process was useful and valuable to you. Your evaluation can help us improve the quality of CPR's service and ensure that the service meets your needs. Your pertinent comments on any aspect of the service will be appreciated.
PLEASE COMMENT:
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COMMENTS
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Challenges during mediation
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Strengths of the process
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Weaknesses of the process
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If co-mediated, comment on interaction with other mediator
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Recommendations to improve the process |
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