The nonprofessional employees at the federal Government Services Administration Center are represented by the National Federation of Federal Employees Union, Local 144.

The depot had provided child-care services for both military and civilian employees through an on-site day-care center. The staff at the day-care center were members of Local 144, and many other union members sent their children to the day-care center.

In April 2009, the depot's director of personnel sent a letter to all employees informing them that the day-care center would be closed in three months.

The union then notified the director that it was requesting negotiations over the decision to close the day-care center. The director responded that the decision was not subject to bargaining under the Federal Service Labor-Management Relations Act.

The union then filed an unfair labor practice complaint with the FLRA. Was the refusal to bargain over the closure of the day-care center a violation of the FSLMRA? Explain.