The opinion
SILBERMAN, Senior Circuit Judge,
concurring in part.
I join the panel opinion with one exception. Counsel for the FLRA explicitly stated at oral argument that an impasse panel would not be able to order the petitioner to actually do anything regarding the “should” clause. I think that statement would certainly constitute an “unusual circumstance” providing grounds for review of a wayward impasse panel decision, and we should accept the Authority’s assurance. That makes the dispute over the “should” clause a tempest in a teapot.