19
CIR 191 (2017)
NEBRASKA
COMMISSION OF INDUSTRIAL RELATIONS
INTERNATIONAL
BROTHERHOOD OF ELECTRICAL WORKERS, IBEW LOCAL 1536, Petitioner, v. LINCOLN
ELECTRIC SYSTEM, a division of the City of Lincoln, a municipal corporation
and political subdivision of the state of Nebraska,
Respondent. |
) ) ) ) ) ) ) ) ) ) ) ) ) |
|
Case No. 1427 FINDINGS
AND ORDER |
Filed
March 6, 2017
APPEARANCES:
For Petitioner: John
E. Corrigan
Dowd,
Howard & Corrigan, LLC
1411
Harney Street, Suite 100
Omaha,
NE 68102
For
Respondent: Richard
C. Grabow
Lincoln
Electric System
P.O.
Box 80869
Lincoln,
NE 68501
Before
Commissioners Pillen, Spray and Carlson
PILLEN,
Commissioner
NATURE OF THE CASE
On September 26, 2016, the International
Brotherhood of Electrical Workers, IBEW Local 1536 (“Union” or “Petitioner”)
filed this action with the Commission, alleging that Lincoln Electric System (“LES”
or “Respondent”) committed a prohibited practice in violation of the Nebraska
Industrial Relations Act (“Act”), Neb. Rev. Stat. § 48-824(1) when Respondent unilaterally
imposed mandatory random drug testing for certain employees without first
bargaining with the Union. Commissioner Sarah S. Pillen presided over a trial
on December 8, 2016. The parties then submitted post-trial briefs.
FACTS
The
Commission accepts the following as true pursuant to the Joint Stipulation
entered into by the parties. (Ex. 14). The
Petitioner is a labor organization as defined in Neb. Rev. Stat. §48-801(7) and
is the duly recognized Collective Bargaining representative for a unit of
employees employed by Respondent. LES is a division of operations of city government
of the City of Lincoln and is an employer pursuant to Neb. Rev. Stat.
§48-801(12). The Petitioner and the Respondent engaged in collective bargaining
in 2015 and ultimately entered into an agreement which is effective from March
1, 2015 to March 1, 2018. During the negotiation of that Collective Bargaining
Agreement (CBA), Respondent proposed a company-wide random drug and alcohol
testing program. The CBA in effect as of March 1, 2015 provided for a drug free
workplace pursuant to Section V of Article III and states in pertinent part:
"All
employees are subject to the provisions of LES Policy 402 - Drug and Alcohol
Testing and Substance Abuse and Associated Programs. When reasonable suspicion
exists that an employee is working impaired or is using drugs or alcohol while
on duty in violation of Policy 402 and associated programs, such employee shall
be subject to testing and all other provisions of the policy"
(Ex.
13, pg. 33).
On
or about May 11, 2015, Administrator and Chief Executive Officer Kevin G. Wailes
of LES executed Company Policy 402, which superseded a previous policy known as
Policy Number 54 dated August 28, 2006. Policy Number 54 did not contain a
provision allowing for company-wide random drug testing but did provide for
pre-employment testing, reasonable suspicion testing and post-accident
training. Policy Number 402, approved by Mr. Wailes on May 11, 2015, allowed
for pre-employment testing, random drug and alcohol testing, reasonable
suspicion drug and alcohol testing, and subsequent drug and alcohol testing. Program
Number 402.02 was approved by Mr. Wailes on May 11, 2015. (Ex. 6). This policy
called for all employees to be subject to quarterly drug and alcohol testing.
On or about June 28, 2016, Mr. Wailes issued a superseding Program Number
402.02 providing that all LES employees whose positions have been identified as
having a safety sensitive nature or can directly affect the safety of other employees
will be subject to quarterly drug and alcohol testing. (Ex. 9). On or about July 28, 2016, Jim Rigg,
Manager of Safety and Physical Security for LES, issued a memorandum to Mike
Spadt, IBEW Local 1536 Unit Chair, wherein Rigg advised that LES "will begin
conducting random drug and alcohol testing for those employees whose positions
have been identified as having a safety sensitive nature or can directly affect
the safety of other employees." (Ex. 12). Mr. Rigg also stated that there
were 49 positions that would be affected by the random drug testing policy for
safety sensitive positions of which the IBEW Local 1536 has 23 represented
employees. On or about September 13, 2016, the Union, through counsel, made a
demand that the Respondent cease and desist from making a unilateral alteration
in the wages and terms and conditions of employment by implementing a random
drug testing policy in conflict with the policy communicated to the Union by
management at the bargaining table in the 2015 contract negotiations. The Union
also demanded to bargain over the issue. LES did not agree to voluntarily cease
and desist implementation of this program. LES did not agree to enter into
collective bargaining with Petitioner over this issue and subsequently a
petition was filed with the Nebraska Commission of Industrial Relations which
is the operative petition in this matter.
DISCUSSION
Petitioners
allege that the Respondent committed a prohibited practice in violation of Neb.
Rev. Stat. § 48-824 when Respondent unilaterally implemented a new random drug
testing program for safety sensitive positions. Respondent then refused
Petitioner’s demand to cease and desist and refused to enter into collective
bargaining over the matter. Respondent argues that it was not under an
obligation to bargain and asserts that the parties have negotiated the subject
of random drug and alcohol testing and the obligations of the parties when
there is a conflict between the terms of the CBA and the law.
Jurisdiction
The Commission has been
given jurisdiction to adjudicate alleged violations of the Act by virtue of
Neb. Rev. Stat. §§ 48-824 and 48-825. Respondent contends that the Commission
lacks jurisdiction, as the claim amounts to a breach of contract claim which
requires the Commission to interpret and apply terms and conditions of an
existing CBA. It is true that the Commission does not have subject matter
jurisdiction over a breach of contract claim. However, the Commission has
jurisdiction over prohibited practice claims even if the same facts constitute
a breach of contract claim. See, Lamb v.
Fraternal Order of Police Lodge, 293 Neb. 138 (2016); Nebraska Ass'n of Public Employees. Local 61 v. State of Nebraska Dep't of Correctional Services,
19 CIR 13 (2014); South Sioux City Educ.
Ass’n v. South Sioux City Public Schools, 16 CIR 12 (2008), aff’d 278 Neb.
572 (2009); Ewing Educ. Ass’n v. Ewing
Public Schools, 12 CIR 242 (1996). The facts in this case constitute a
viable prohibited practice claim. Therefore, the Petitioner has invoked the
jurisdiction of the Commission.
Prohibited
Practice Allegations
There is no dispute
between the parties that random drug testing is a mandatory subject of
bargaining. At the time of negotiations, random drug and alcohol testing was
discussed in the context of all employees being subject to the random testing.
The issue of what constitutes a “safety sensitive” position and defining which
selected positions are to be subject to the random testing was not collectively
bargained. (Testimony of Michael Spadt). The CBA has no provision regarding
mandatory random drug and alcohol testing for safety sensitive positions.
Further LES Policy 402, did not provide for mandatory random drug and alcohol
testing at the time the CBA was ratified.
Neb.
Rev. Stat. § 48-824(1) states that it is a prohibited practice for any public
employer to refuse to negotiate in good faith with respect to a mandatory
subject of bargaining. Mandatory subjects of bargaining are not just topics for
discussion during negotiations. Unless clearly waived, mandatory subjects must
be bargained for before, during, and after the expiration of a collective
bargaining agreement. Omaha Police Union
Local 101 v. City of Omaha, 15 CIR 292 (2007). In NLRB v. Katz, the U.S. Supreme Court held that unilateral changes
to mandatory subjects of bargaining before impasse are per se violations of the
party’s duty to bargain in good faith. 369 U.S. 736, 737 (1962).
“The Commission
determined that an employer may lawfully implement changes in terms and
conditions of employment which are mandatory topics of bargaining only when three
conditions have been met: (1) the parties have bargained to impasse, (2) the
terms and conditions implemented were contained in a final offer, and (3) the
implementation occurred before a petition regarding the year in dispute is
filed with the Commission.(internal citations omitted) If any of these three
conditions are not met, then the employer’s unilateral implementation of
changes in mandatory bargaining topics is a per se violation of the duty to
bargain in good faith.”
Communication
Workers of America, AFL-CIO v. County of Hall, Nebraska, 15 CIR 95 (2005).
See also Service Employees International
Union (AFL-CIO) Local 226 v. Douglas County School District 001, 286 Neb.
755 (2013).
The
Nebraska Supreme Court, in Douglas Cty. Health Ctr. Sec. Union
v. Douglas Cty., 284 Neb. 109, (2012),
adopted the “contract coverage standard”
to determine whether a topic is “covered by” a CBA. The contract coverage rule
treats the issue of whether there has been a failure to bargain as a simple matter
of contract interpretation; if the issue was covered by the CBA, then the
parties have no further obligation to bargain the issue.
“[T]he
"covered by" and "waiver" inquiries . . . are analytically
distinct. A waiver occurs when a union knowingly and voluntarily relinquishes
its right to bargain about a matter; but where the matter is covered by the
collective bargaining agreement, the union has exercised its bargaining right
and the question of waiver is irrelevant. . . .
Where
the contract fully defines the parties' rights as to what would otherwise be a
mandatory subject of bargaining, it is incorrect to say the union has 'waived'
its statutory right to bargain; rather, the contract will control and the
'clear and unmistakable' intent standard is irrelevant."
Douglas Cty. Health Ctr. Sec. Union v. Douglas Cty., 284 Neb. 109, 116, (2012) (citing Dep't of Navy v. FLRA, 962 F.2d 48 (D.C.
Cir. 1992)).
Applying
this standard, the Commission must address the threshold question of whether the
issues are "covered by" the CBA by
examining whether it "fully defines the parties' rights" as to the topics.
Id. The Commission finds
that random drug and alcohol testing for safety sensitive positions was not “covered
by” the CBA, as Section II of the CBA does not fully define the rights of the
parties as to how the CBA is to be modified in the event that a conflict arises
between provisions of the CBA and the law. The Commission finds that LES
Program 402.02 (Ex. 9) unilaterally implemented by Respondents would “vitally
affect” the terms and conditions of employment. Therefore, the Commission
agrees with the parties that drug testing is a mandatory subject of bargaining.
Respondents had a duty to bargain in good faith with Petitioner regarding
implementation of a random drug and alcohol testing policy that applies only to
safety sensitive positions.
Article
II of the CBA states that when there is a conflict between the law and the CBA,
"It is agreed that should any of the above circumstances occur, this
document shall be modified to the extent necessary to comply with the law…” (Ex
13, pg. 8). Respondent’s assertion that a general provision stating laws will
take precedence over conflicting CBA provisions negates the duty to bargain
over mandatory subjects of bargaining completely without merit. The Respondent did not argue, nor provide evidence,
that the Petitioner waived its right to bargain over potential modifications
that may arise due to a conflict between provisions of the CBA and the
law. Instead, Respondent asserted that since the
CBA allows for modification in the case of a conflict, they can modify as they
see fit. As the Commission has previously stated:
“The Commission
will not be persuaded by vague, all-inclusive statements in bargaining
agreements that employers may do whatever they please, which if taken to their
logical conclusion under the Respondents’ arguments, would negate the entire
agreement and the bargaining process established by the Industrial Relations
Act. Broad statements to the effect that the public employer maintains the
right to manage all operations of that entity and maintains the right to change
or discontinue any regulations or procedures do not override the requirement of
bargaining in good faith regarding subjects of mandatory bargaining.”
Omaha Police Union Local 101 v. City
of Omaha, 15 CIR 292, 300 (2007).
Therefore,
Respondent’s failure to bargain with Petitioner regarding the Program is a per
se violation of the Industrial Relations Act and a prohibited practice.
REMEDIAL AUTHORITY
The Commission has the authority to
issue cease and desist orders following findings of prohibited practices and
has done so in the past. See Local Union 571 International Union of
Operating Engineers v. County of Douglas, 15 CIR 75 (2005); Ewing
Education Ass’n v. Holt County School District No. 29, 12 CIR 242 (1996)(en
banc). In
the present case, the Commission finds that the Respondent has committed a
prohibited practice under the Nebraska Industrial Relations Act. Therefore, an
order requiring that the Respondent cease and desist from committing the
prohibited practice is clearly within the authority of the Commission and will
be ordered.
IT
IS THEREFORE ORDERED that Respondent shall:
1. Cease
and desist from failing to bargain in good faith with the International
Brotherhood of Electrical Workers, IBEW Local 1536 regarding mandatory subjects
of bargaining.
2. Cease
and desist from unilaterally implementing its random drug and alcohol testing
program without first bargaining to impasse.
All
Panel Commissioners join in the entry of this Order.