Harrison v. Judge

• Decision Date: 10 June 1992
• Docket Number: No. 91-1106,AFL-CIO,91-1106
• Citation: 591 N.E.2d 704,63 Ohio St.3d 766
• Parties: , 1992 SERB 4-79 HARRISON Health Commissioner, et al., Appellees, v. JUDGE, Mayor, et al., Appellees; Ohio Council 8, American Federation of State, County and Municipal Employees,et al., Appellants.
• Court: Ohio Supreme Court

Page 766

63 Ohio St.3d 766

591 N.E.2d 704, 1992 SERB 4-79

HARRISON Health Commissioner, et al., Appellees, v. JUDGE, Mayor, et al., Appellees; Ohio Council 8, American Federation of State, County and Municipal Employees, AFL-CIO et al., Appellants.

No. 91-1106.

Supreme Court of Ohio.

Submitted April 28, 1992.

Decided June 10, 1992.

Blakemore, Meeker, Varian, Looney & Bowler Co., L.P.A., and Donald S. Varian, Jr., Akron, for appellees Joseph R. Harrison, Health Commissioner of the city of Barberton, et al.

Johnson, Balazs & Angelo and James A. Budzik, Cleveland, for appellees William Judge, Mayor, and city of Barberton.

Ronald H. Janetzke, Columbus, for appellants Ohio Council 8, American Federation of State, County and Mun. Employees, AFL-CIO, and Local 265, American Federation of State, County and Mun. Employees, AFL-CIO.

Livingston, Sell, Johnston & Kemmer and A. Melvin Kemmer, Troy, urging affirmance for amicus curiae, Ass'n of Ohio Health Com'rs and Ohio Ass'n of Boards of Health.

[1992 SERB 4-79] The cause is affirmed on authority of the court of appeals' opinion below, rendered April 10, 1991, and attached as an appendix to this entry.

MOYER, C.J., and SWEENEY, HOLMES, DOUGLAS, WRIGHT, HERBERT R. BROWN and RESNICK, JJ., concur.

APPENDIX

QUILLIN, Presiding Judge.

The city of Barberton ("Barberton") is a charter city. By charter amendment, Barberton created a board of health ("board").

On May 17, 1987, Joseph Harrison, Health Commissioner of the city of Barberton, filed a taxpayer's action requesting declaratory judgment on behalf of the board against Barberton and various public officials[1992 SERB 4-80] in the city of Barberton. Ohio Council 8, American Federation of State, County and Municipal Employees, AFL-CIO ("AFSCME"), subsequently intervened in the action as an interested party. The trial court determined that Section 6.04(a) of the Charter of the city of Barberton was unconstitutional. This issue was immediately appealed. In Harrison v. Judge (1989), 49 Ohio App.3d 125, 128, 550 N.E.2d 982, 984, we held that Section 6.04(a) of the Charter of the city of Barberton was constitutional and remanded the case for further proceedings.

The remaining issues on remand were submitted to the trial court on stipulated facts and briefs of counsel. The trial court found that the board and Barberton are separate political entities, and the board may choose to negotiate with employees under its control separate from Barberton, join in the labor contract previously entered into by Barberton on April 24, 1987, or conduct joint labor negotiations with Barberton. The trial court, however, refused to void the April 24, 1987 agreement on equitable grounds, as the loss to AFSCME and the employees would be substantial compared to the benefit gained through the voiding of the labor contract.

The trial court also determined that AFSCME is the certified bargaining unit representative of both Barberton employees and the board employees, and will continue in the relationship until changed by the State Employment Relations Board ("SERB"). In addition, the trial court denied attorney fees to Harrison for legal fees incurred in bringing the taxpayer's action. Both the board and AFSCME now appeal from the trial court's order, and Barberton cross-appeals.

AFSCME's Assignments of Error

"I. The lower court erred in concluding the BBH [Barberton Board of Health] employees are not employees of the City.

"II. The lower court erred in concluding there are two (2) units."

The trial court correctly determined that the board and Barberton are separate entities. In Harrison, supra, we held that pursuant to R.C. 3709.05, Barberton may create a board different in structure from the structure set forth in R.C. 3709.05 under its home rule authority in the Ohio Constitution. Id. at 127-128, 550 N.E.2d at 984. Nevertheless, Barberton's home rule authority extends only to powers the state legislature allows. Id. at 127, 550 N.E.2d at 984; see Ohio Assn. of Pub. School Emp., Chapter No. 471 v. Twinsburg (1988), 36 Ohio St.3d 180, 182, 522 N.E.2d 532, 534-535.

Generally, a health district, and the board of health formed thereunder, are state agencies. Johnson's Markets, Inc. v. New Carlisle Dept. of Health (1991), 58 Ohio St.3d 28, 33, 567 N.E.2d 1018, 1023-1024; Bd. of Health of St. Bernard v. St. Bernard (1969), 19 Ohio St.2d 49, 48 O.O.2d 57, 249 N.E.2d 888, paragraph two of the syllabus. As employees of state agencies, the employees of the health district and board of health formed thereunder are governed by state law. State, ex rel. Mowrer, v. Underwood (1940), 137 Ohio St. 1, 17 O.O. 298, 27 N.E.2d 773.

We have previously held that R.C. 3709.05 allows Barberton to create the board pursuant to Barberton's home rule powers. However, in regard to negotiations with employees of the board, there is no legislative authority which allows Barberton to control the employees of the board. Therefore, the board is a separate entity from Barberton and the board's employees are subject to state law. See, e.g., R.C. 4117.10(D). Accordingly, the trial court did not err in determining that the board and Barberton are separate employer entities. AFSCME's first and second assignments of error are overruled.

AFSCME's Assignments of Error

"III. The lower court erred in concluding there are two (2) deemed certified unit [sic].

"IV. The lower court erred in concluding that AFSCME has represented two (2) units in the past.

"V. The lower court erred by allowing the BBH to determine whether it wished to negotiate separately or jointly with the City.

"VI. The lower court erred by allowing the City to determine whether it wished to negotiate separately or jointly with the BBH.

"VIII. The lower court erred in not dismissing paragraph[s] 21, 22, 23, 24, 26 and 27-35 of the complaint for failure to state a claim upon which relief may be granted."

Board of Health's Assignments of Error

"I. The trial court erred to the prejudice of plaintiffs-appellants in holding that the Barberton Board of Health, as an employer, does not have the right or the obligation to negotiate an agreement with its employees without interference from a second employer, the city of Barberton.

"A. This decision by the trial court violates the mandate of the legislature and public policy, as evidenced by Chapter 3709 of the Ohio Revised Code.

"B. This decision by the trial court creates a conflict of interest in violation of R.C. 4117.20.

"III. The trial court erred in ordering the board to choose from the three options outlined."

Barberton's Cross-Assignment of Error

"The trial court erred to the prejudice of defendants-cross-appellants William Judge and the city of Barberton by ordering the Barberton Board of Health, not a party to this action, to choose from the options stated in the judgment. All successor negotiations should take place in accordance with the practice of the City and Ohio Council 8, AFSCME and consistent with the City Charter's administration of the Barberton Board of Health. In all other respects, the trial court's judgment should be affirmed."

The trial court determined that the board has the option of (1) negotiating a new labor contract with its employees without participation from Barberton, (2) joining in the April 24, 1987 labor contract already negotiated by Barberton, or (3) entering into joint labor negotiations with Barberton. The board [1992 SERB 4-81] Barberton and AFSCME assert that the trial court's order allowing a choice of these three options is in error.

At the time of the filing of this action, the employees of both the board and Barberton were members of a single bargaining unit. In addition, AFSCME was the certified exclusive employee representative of this combined employee bargaining unit. AFSCME negotiated with Barberton without participation from the board and entered into the April 24, 1987 agreement.

R.C. 4117.06(A) provides:

"The state employment relations board shall decide in each case the unit appropriate for the purposes of collective bargaining. The determination is final and conclusive and not appealable to the court."

There are two methods in which the appropriate employee bargaining unit may be established. First, a petition for election or request for recognition may be filed with SERB by either the proposed exclusive employee representative or the employee unit which seeks to be represented. R.C. 4117.05; 4117.07. In such petition or request for recognition, the composition of the bargaining unit seeking representation must be set forth. Id. SERB must then determine if the proposed bargaining unit is the appropriate bargaining unit for that particular group of employees. R.C. 4117.06. Having determined that the proposed bargaining unit is appropriate,...