FG 261 (Federal Labor Relations Council) (White House Central Files: Subject Files)


These Presidential historical materials are in the custody of the National Archives and Records Administration under the provisions of Title I of the Presidential Recordings and Materials Preservation Act of 1974 (44 U.S.C. 2111 note), and implementing regulations. In accordance with the act and regulations, archivists reviewed the file group to identify private or personal as well as non-historical items. Such items, if found, have been withdrawn for return to the individual with primary proprietary or commemorative interest in them.

Materials covered by this act have been archivally processed and are described in this finding aid. Items that are security classified or otherwise restricted under the act and regulations have been removed and placed in a closed file. A Document Withdrawal Record (NA Form 14021) has been placed in the front of each folder describing each withdrawn item. Employees of the National Archives will review periodically the unclassified portions of closed materials for the purpose of opening those which no longer require restrictions. Classified documents may be reviewed for declassification under authority of Executive Order 13526 in response to Mandatory Review Request (NA Form 14020) submitted by the researcher.

  • Linear measurement of materials:   1 in.
  • Number of pages:   200
Organizational Note

In reaction to the increased union representation of Federal employees, President Nixon signed Executive Order 11491, October 29, 1969,  making sweeping changes to the Federal labor-management relations program. Replacing Executive Order 10988, signed January 22, 1962, which established the first Federal labor-management policy, the directive sought to bring Federal labor-management relations more into line with practices in the private sector. The new order incorporated six major changes to the Federal labor-management program. First the order established the Federal Labor Relations Council as the central authority to administer the program and make final decisions on policy. Second, the order established the Federal Services Impasses Panel within the Federal  Labor Relations Council to resolve negotiation impasses. Third, the order provided for an election system for handling unit determinations and majority representation cases. Fourth, the order provided for a third-party arbitration process to resolve unfair labor practices, grievances, and standards of conduct. Fifth, it clarified the status of "supervisor" within Federal service. Sixth, the order established for government unions, election, bonding and financial reporting and disclosure requirements.

Scope and Content Note


In order to administer the provisions delineated in Executive Order 11491, the order created the Federal Labor Relations Council. The Federal Labor Relations Council interpreted and set forth rulings on the order's provisions, decided major policy issues, considered appeals from decisions on disputed matters, and issued appropriate regulations. The Council members consisted of the Chairman of the Civil Service Commission (Chairman), the Secretary of Labor, and an official in the President's Executive Office. 

The records consist of memorandums and correspondence. Primary correspondents include the President, Kenneth Cole, Ed Morgan, Charles Colson, and Noble Melencamp. Topics include appropriations and budget requests for operation of the Federal Labor Relations Council, the National Federation of Federal Employees, implementation of Executive Order 11491, and union dues withholdings.


The Federal Service Impasses Panel considered negotiation impasses, and settled impasses by appropriate action. The Panel consisted of at least three members appointed by the President. The records consist of memorandums, correspondence, resumes, biographical sketches, and press releases. Primary correspondents include the President, Harry Fleming, Charles Colson, and Daniel T. Kingsley.  Topics include appointments to the Panel

Corresponding oversized attachments for all file segments of FG 261 have been processed and integrated into the files.

The terms Executive and General are used before the code FG 261 generally to determine the source of the materials. Items designated Executive are communications among national, foreign, state and local governments and their agencies, Members of Congress, and other prominent people. Items designated General are communications between Government officials and private citizens, institutions, and other private interests. 

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