Am. Fed'n of State Cnty. & Mun. Emps. v. City of Leb.
Decision Date | 02 February 2017 |
Docket Number | CA A152059,No. 5,SC S062750,ERB UP1411,5 |
Citation | 360 Or 809 |
Court | Oregon Supreme Court |
Parties | AMERICAN FEDERATION OF STATE COUNTY AND MUNICIPAL EMPLOYEES, COUNCIL 75, LOCAL 2043, Petitioner on Review, v. CITY OF LEBANON, Respondent on Review. |
En Banc
On review from the Court of Appeals.*
Giles Gibson, Legal Counsel, Oregon AFSCME, Council 75, Portland, argued the cause and filed the brief for petitioner on review.
John E. Kennedy, The Morely Thomas Law Firm, Lebanon, argued the cause and filed the brief for respondent on review.
Elizabeth A. Joffe, McKanna Bishop Joffe, LLP, Portland, filed the brief on behalf of amici curiae Oregon AFL-CIO, Oregon Education Association, Oregon Public Employees Union, Oregon State Firefighters Council, and Service Employees International Union Local 503.
The decision of the Court of Appeals is reversed. The case is remanded to the Employment Relations Board for further proceedings.
This case requires us to consider whether the City of Lebanon (city) committed an unfair labor practice under Oregon's Public Employee Collective Bargaining Act (PECBA), ORS 243.650 - 243.782, when one of its council members, Campbell, wrote a letter to a local newspaper disparaging labor unions in general and calling for city employees to decertify their existing union. The Employment Relations Board (ERB or board) concluded that the city had engaged in an unfair labor practice based on Campbell's conduct. The Court of Appeals reversed, concluding that the city was not liable because Campbell had not acted as a "public employer or its designated representative" within the meaning of PECBA. AFSCME Council 75 v. City of Lebanon, 265 Or App 288, 336 P3d 519 (2014). For the reasons explained below, we reverse the decision of the Court of Appeals, and remand to ERB for further proceedings.
The undisputed facts, as summarized by the Court of Appeals, are:
City of Lebanon, 265 Or App at 289-91 (alterations in orginal).
As a result of Campbell's conduct, AFSCME Council 75 (union) filed an unfair labor practice complaint against the city, alleging that Campbell's comments were made in her official capacity as a council member. The parties submitted the case on stipulated facts directly to ERB. The board concluded that the city violated PECBA when Campbell, in her letter, advised city employees "to seek out the Department of Labor website where you can find instructions on how to de-certify your union captors."1 The board issued a cease-and-desist order and required the city to post an official notice of its wrongdoing. See ORS 243.676 ( ). The board reasoned that a "public employer [under the PECBA] is liable for the actions of its officials" and that, because Campbell "spoke as the City's representative, liability for her remarks is ascribed to the City." The board observed that Campbell was (Emphasis in original.) The board further noted that Campbell, "as a member of the council that is responsible for formulating all City policies and overseeing all City operations, is a public employer."2
In the Court of Appeals, the city assigned error to ERB's conclusion that Campbell acted as a public employer or its designated representative under PECBA when she submitted her letter to the newspaper.3 The Court of Appeals agreed with the city and reversed. The court concluded that Campbell was not the city's "designated representative" within the meaning of PECBA, because the record lacked any evidence that the city had "specifically designated" Campbell to act as its representative. City of Lebanon, 265 Or App at 295-96. Further, the court concluded that Campbell could not be a "public employer" under PECBA, because she was not acting as an agent when she submitted her letter to the local newspaper:
Id. at 297 (footnote omitted).
We accepted the union's petition for review to determine whether Campbell was either a "public employer" or a "designated representative" of the city under PECBA when she submitted her letter to the newspaper. On review, the city does not challenge ERB's conclusion that the portion of Campbell's letter urging city employees to decertify their union would constitute an unfair labor practice under ORS 243.672(1)(a) and (b) if committed by "a public employer or its designated representative." The only issue for us to resolve, therefore, is whether the city may be held liable for Campbell's actions because she was either a "public employer" or its "designated representative" within the meaning of PECBA.
We begin our analysis by briefly examining the legislature's purpose in enacting PECBA. This court has observed that, by enacting PECBA, first passed in 1973, "the legislature has provided a comprehensive statutory scheme authorizing and regulating collective bargaining between municipal and other public employers and employees, administered by ERB." City of Roseburg v. Roseburg City Firefighters, 292 Or 266, 268, 639 P2d 90 (1981). This court noted that PECBA was designed to improve relations between public employers and their employees:
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