HOUSE BILL REPORT
HB 1557
BYRepresentatives Vekich, Patrick, Belcher, Sayan, Winsley, R. King, Ebersole, R. Meyers, Walk, Braddock, Phillips, Fraser, Holland, Jacobsen, Anderson, Heavey, Basich, Nelson, Appelwick, Morris, Jones, Todd, P. King, Wineberry, Sprenkle and Dorn
Providing for state employee collective bargaining.
House Committe on Commerce & Labor
Majority Report: The substitute bill be substituted therefor and the substitute bill do pass. (7)
Signed by Representatives Vekich, Chair; Cole, Vice Chair; Patrick, Ranking Republican Member; Jones, R. King, Leonard and Prentice.
Minority Report: Do not pass. (3)
Signed by Representatives Smith, Walker and Wolfe.
House Staff:Chris Cordes (786-7117)
Rereferred House Committee on Appropriations
Majority Report: The substitute bill by Committee on Commerce & Labor be substituted therefor and the substitute bill do pass. (16)
Signed by Representatives Locke, Chair; Grant, Vice Chair; H. Sommers, Vice Chair; Appelwick, Belcher, Braddock, Brekke, Bristow, Dorn, Ebersole, Hine, Sayan, Spanel, Valle, Wang and Wineberry.
Minority Report: Do not pass. (6)
Signed by Representatives Silver, Ranking Republican Member; Brough, May, McLean, Nealey and Padden.
House Staff: Randy Acker (786-7136)
AS REPORTED BY COMMITTEE ON APPROPRIATIONS MARCH 4, 1989
BACKGROUND:
Under the state civil service system and the higher education personnel law, classified employees have the right to collectively bargain on grievance procedures and personnel matters over which the agency or institution may "lawfully exercise discretion." Because state civil service and the higher education personnel law provide rules for most major personnel functions (recruitment, hiring, discipline, sick leave, vacations, salary schedules, etc.), collective bargaining for these classified employees is limited.
A typical bargaining agreement might contain provisions dealing with bargaining unit procedures and union activity rules, management and employee rights, labor-management committees, procedures for communicating impacts of changes in civil service rules, provisions supplementing civil services rules, such as vacation scheduling or education and training opportunities, and items specific to the work of the bargaining unit, such as uniforms and clothing, safety rules, and duty stations.
SUMMARY:
SUBSTITUTE BILL: Collective bargaining for classified state employees is expanded to include bargaining over wages, hours, and terms and conditions of employment. Bargaining is authorized for all employees classified under a consolidated civil service system that includes employees under both the state civil service and the higher education personnel law. Contract bargaining, except for supplemental agreements, takes place with the Governor's office. The agreements are effective for two years from July 1, 1991, to June 30, 1993, and each succeeding fiscal biennium. The right to strike is granted for all employees except for "essential employees."
COLLECTIVE BARGAINING.
Rights of employees. Classified state employees have the right to self-organization, to join employee organizations, to bargain collectively, and to engage in other lawful concerted activities for mutual aid and protection, or to refrain from such activities except for a fee requirement under a union security provision.
Management rights. The employer has the right to carry out the statutory mandates and goals of an agency and is not required to bargain over matters of inherent managerial policy.
Scope of bargaining. Collective bargaining is authorized over wages, hours, and other terms and conditions of employment, and the negotiation of any question arising under an agreement, but may not include matters pertaining to (1) recruitment and rating of candidates for employment or (2) retirement benefits. The parties may not agree to any provision that is inconsistent with the principle of comparable worth.
In case of any conflict with civil service law or administrative rules or with a health insurance issue as adopted by the State Health Care Authority, the provisions of the collective bargaining law or agreement prevail.
Grievances. Agreements must provide for final and binding arbitration of grievances arising under the agreement. An employee who has the right to contest a disciplinary action or termination under either the civil service system or the collective bargaining agreement must elect one of these dispute resolution procedures.
Representation. Certification of exclusive bargaining representatives and representation elections are conducted by the State Employees' Relations Commission (SERC). The commission must certify an employee organization as the exclusive bargaining representative when the organization shows proof that it represents a majority of the employees and the proof is not contested by the agency, the director, or any other interested party. The commission may require an election if proof of representation is not satisfactory to the commission. Elections are also required if an employee organization shows proof of at least 30 percent representation in the bargaining unit.
Decertification elections are required if no less than 30 percent of the employees in a bargaining unit petition to the commission. However, decertification elections may not be held if less than 12 months has elapsed since the last certification or election, or a valid collective bargaining agreement exists for the unit (except during the period between 60 and 90 days prior to the expiration of the agreement).
Bargaining units. Bargaining unit disputes will be determined by SERC, taking into consideration the duties, skills and working conditions of the employees and the history of organization and collective bargaining among the employees. No bargaining unit may contain (1) supervisors and non-supervisory employees; or (2) more than one institution of higher education. Employees from an old bargaining unit may not be included as part of a new bargaining unit unless the employees vote to be included. Procedures for the transition from old bargaining units to new bargaining units are prescribed.
Union security. Union shop fees are required as a condition of employment upon designation of an exclusive bargaining representative. However, bargaining representatives must establish a procedure for rebating that part of the fee that represents expenditures for purposes not germane to collective bargaining. Persons asserting a right of nonassociation may designate their fee for a program within the employee organization that is in harmony with their conscience.
Negotiations. The first round of negotiations under the new collective bargaining provisions commences on July 1, 1990, for an agreement to take effect July 1, 1991. Thereafter, negotiations will begin on July 1 of each even-numbered year for two year contracts, effective on July 1 of the odd-numbered year. Collective bargaining agreements, except for supplemental agreements, are negotiated with the Governor's office. Supplementary agreements on matters that uniquely affect employees in part of a bargaining unit may be negotiated with the agencies. The act does not prohibit cooperation and coordination of bargaining between two or more bargaining units. Compensation and fringe benefits may be negotiated for one year at a time.
Compensation and fringe benefit provisions must be submitted to the legislature for approval. The submission to the legislative is deemed approved if the legislature fails to act by March 31. If the legislature rejects the submission, either party may reopen all or part of the agreement. The agreement may be reopened for renegotiation if a significant revenue shortfall occurs.
Unfair labor practices. Unfair labor practices for employers and exclusive bargaining representatives are enumerated. Employers may not interfere with or coerce employees in the exercise of their collective bargaining rights; control or interfere with the exclusive bargaining representative; discriminate against an employee who has filed an unfair labor practice charge; or refuse to engage in collective bargaining. Exclusive bargaining representatives may not interfere with or coerce employees in the exercise of their collective bargaining rights; induce the employer to commit an unfair labor practice; discriminate against an employee who has filed an unfair labor practice; or refuse to engage in collective bargaining.
SERC is authorized to determine unfair labor practice complaints. Complaints must be filed within six months of the unfair labor practice.
Right to strike. The right to strike is granted, except for essential employees, if (1) the employees are represented by a certified exclusive bargaining representative; (2) the employer and the bargaining representative have not mutually agreed to submit the dispute to final and binding arbitration; (3) the parties have participated, in good faith mediation; and (4) the employees have given 10 days' notice of the strike.
Binding interest arbitration. Final and binding interest arbitration is authorized for essential employees (any employee performing functions so essential that the interruption of the function would constitute a clear and present danger to the health and safety of the state). Essential employees are not permitted to strike.
If essential employees have not reached agreement within 60 days of the commencement of negotiations, then either party may declare an impasse and submit the dispute to the commission for mediation. If the dispute has not been resolved after a reasonable period of negotiations, either party may request interest arbitration. The parties may agree to limit the arbitrator to selecting: (1) between the entire final offer of either party at the close of mediation; or (2) on each impasse item, between the final offers of the parties at the close of mediation.
Administration and enforcement. A new State Employees' Relations Commission is created to provide administration and adjudication of the collective bargaining provisions. The three member commission is appointed by the Governor. Commission members are compensated on a per diem basis.
The commission must appoint a director who will perform administrative functions and to whom the commission may delegate authority with respect to various commission duties, including representation elections, unfair labor practices, mediation and arbitration.
Unless otherwise provided, the act does not prohibit the parties from seeking to enforce collective bargaining rights in court.
CIVIL SERVICE.
The Higher Education Personnel Board and the State Personnel Appeals Board are abolished. All personnel functions for both state agency classified employment and higher education classified employment is consolidated under the Department of Personnel and the State Personnel Board.
The State Personnel Board is authorized to hear and determine personnel appeals.
The civil service rules of the Higher Education Personnel Board remain in effect until superseded by action of the State Personnel Board.
EFFECTIVE DATES.
The Governor must appoint the members of SERC by January 1, 1990. The new collective bargaining chapter takes effect January 1, 1990.
The elimination of the Higher Education Personnel Board and the State Personnel Appeals Board and the transfer of authority to the State Personnel Board occur on July 1, 1991.
Provisions are made for transitioning collective bargaining agreements that expire before and after July 1, 1991. All new agreements are effective beginning July 1, 1991.
SUBSTITUTE BILL COMPARED TO ORIGINAL: The substitute bill contains the following changes:
State employees' relations commission. The State Employees' Relations Board is changed to the State Employees' Relations Commission. The requirement is deleted that commission appointments be approved by the Senate. A person with labor contract negotiations experience may not serve as a member of the commission unless he or she has experience negotiating on behalf of both employers and employees. The commission is authorized to provide mediation services on its own motion, when in its judgment the dispute threatens a substantial disruption of the public welfare.
Management rights. A management rights clause is added. The employer has the right to carry out the statutory mandates and goals of an agency and is not required to bargain over matters of inherent managerial policy.
Conflict with other statutes. A section is added to the provisions governing the State Health Care Authority to clarify that in case of any conflict with a collective bargaining agreement on a health insurance issue, the provisions of the agreement prevail.
Bargaining units. Separate bargaining units are required for supervisors and non-supervisory employees. The requirement is deleted that essential employees and non-essential employees be in separate bargaining units. Employees from an old bargaining unit may not be included as part of a new bargaining unit unless the employees vote to be included.
Ratification of the agreement. Authority for negotiating collective bargaining agreements is clarified. For the purpose of negotiating collective bargaining agreements other than supplemental agreements, the employer is represented by the governor's office. For supplemental agreements, bargaining with agencies and institutions is authorized. The legislature is required to approve the cost items submitted for legislative approval by March 31, rather than within 30 days. If, after approval of the cost items, a significant revenue shortfall occurs, the agreement may be reopened for renegotiating all or part of the agreement.
Right to strike. The employees are required to give 10 days' notice before commencing a strike.
Definitions. For the purposes of the collective bargaining chapter, a definition of "institutions of higher education" is added. The definition of "employer" is changed to be the state of Washington and a definition of "agency" is added. Under the state civil service law, the definition of "agency" is amended to include the institutions of higher education, which are also defined in a new definition.
Civil service law. The exemptions from the higher education personnel law are added to the state civil service law.
Other minor and technical changes are made.
CHANGES PROPOSED BY COMMITTEE ON APPROPRIATIONS: None.
Effective Date:Sections 1 through 21 take effect January 1, 1990. The remainder of the bill takes effect July 1, 1991.
Fiscal Note: Available.
House Committee ‑ Testified For: (Commerce & Labor) Larry Kenney, Washington State Labor Council; Gary Moore, Washington Federation of State Employees; Don Wasserman, American Federation of State County and Municipal Employees; Bob Edie, University of Washington (with concerns); Barbara Green, Service Employees International Union; Bob Dilger, Washington State Construction and Building Trades Council; Joe Daniels, International Federation of Professional and Technical Engineers; and John Milton, Seventh Day Adventist Church (with concerns).
(Appropriations) Gary Moore, Washington Federation of State Employees.
House Committee - Testified Against: (Commerce & Labor) John Spitz, Higher Education Personnel Board; Paul Locke; Larry Lael, State Board for Community College Education; Eugene St. John, Washington Public Employees Association; and Jeff Parsons, Washington State Correction Employees Association.
(Appropriations) None Presented.
House Committee - Testimony For: (Commerce & Labor) The state's procedure for setting state salaries is not equitable or credible. By expanding the scope of collective bargaining for state employees, employees would have an opportunity to take part in the salary setting process. Eliminating the fragmented civil service system would be more efficient.
(Appropriations) The current salary setting process has lost credibility. State employees have no voice in the process. Collective bargaining would provide an opportunity to create greater equity and would make employees a part of the process.
House Committee - Testimony Against: (Commerce & Labor) Although expanding the scope of collective bargaining may be a remedy for the salary setting process, the proposed bill does not provide a workable solution.
(Appropriations) None Presented.