[ v05 p610 ]
05:0610(85)RO
The decision of the Authority follows:
5 FLRA No. 85 DEFENSE MAPPING AGENCY INTER-AMERICAN GEODETIC SURVEY Activity and PANAMA DOD EMPLOYEES COALITION, AFL-CIO, CTRP (AMERICAN FEDERATION OF GOVERNMENT EMPLOYEES, LOCAL 14, AFL-CIO) Petitioner and NATIONAL MARITIME UNION OF AMERICA, AFL-CIO Intervenor Case No. 6-RO-60 DECISION AND DIRECTION OF ELECTION UPON A PETITION DULY FILED WITH THE FEDERAL LABOR RELATIONS AUTHORITY UNDER SECTION 7111(B) OF THE FEDERAL SERVICE LABOR-MANAGEMENT RELATIONS STATUTE, A HEARING WAS HELD BEFORE A HEARING OFFICER OF THE AUTHORITY. THE AUTHORITY HAS REVIEWED THE HEARING OFFICER'S RULINGS MADE AT THE HEARING AND FINDS THAT THEY ARE FREE FROM PREJUDICIAL ERROR. THE RULINGS ARE HEREBY AFFIRMED. AT THE HEARING THE PETITIONER, AMERICAN FEDERATION OF GOVERNMENT EMPLOYEES, LOCAL 14, AFL-CIO (AFGE LOCAL 14), MOVED TO AMEND ITS PETITION TO CHANGE THE NAME OF THE PETITIONER TO PANAMA DOD EMPLOYEES COALITION, AFL-CIO, CTRP (THE COALITION). THE COALITION, WHICH WAS ESTABLISHED AFTER THE FILING OF THE INITIAL PETITION BUT BEFORE THE HEARING, IS COMPOSED OF THREE SEPARATE AND DISTINCT AFL-CIO AFFILIATED "LABOR ORGANIZATIONS" WITHIN THE MEANING OF SECTION 7103(A)(4) OF THE STATUTE WHICH CONTINUE TO EXIST AS SEPARATE ENTITIES, EACH WITH ITS OWN ELECTED OFFICERS, CONSTITUTION, AND BYLAWS, AND EACH HAVING HISTORICALLY REPRESENTED DEPARTMENT OF DEFENSE EMPLOYEES IN THE CANAL ZONE. THE THREE ARE AFGE LOCAL 14; AMERICAN FEDERATION OF GOVERNMENT EMPLOYEES, LOCAL 1805, AFL-CIO (AFGE LOCAL 1805); AND LOCAL 907, AMERICAN FEDERATION OF STATE, COUNTY AND MUNICIPAL EMPLOYEES, AFL-CIO (AFSCME LOCAL 907). THE STATED PURPOSE OF THE COALITION IS TO SECURE COLLECTIVE BARGAINING RIGHTS FOR ALL EMPLOYEES OF DOD AGENCIES OPERATING IN THE REPUBLIC OF PANAMA AND TO IMPROVE THEIR WAGES, HOURS, AND CONDITIONS OF EMPLOYMENT. THE AUTHORITY VIEWS AFGE LOCAL 14'S MOTION AS A PRE-ELECTION STATEMENT OF INTENT TO PERMIT TWO OTHER AFL-CIO UNIONS TO JOINTLY SEEK CERTIFICATION WITH IT. UNDER THESE CIRCUMSTANCES, THE MOTION OF AFGE LOCAL 14 TO CHANGE THE NAME OF THE PETITIONER IS GRANTED. IN GRANTING THE MOTION, HOWEVER, THE AUTHORITY ORDERS THAT, BEFORE ELECTIONS MAY BE HELD IN THE UNIT OR UNITS FOUND APPROPRIATE INFRA, THERE MUST BE A NEW POSTING OF NOTICE OF PETITION PURSUANT TO SECTION 2422.4(A) OF THE AUTHORITY'S RULES AND REGULATIONS IN ORDER TO INFORM EMPLOYEES OF THE CHANGE IN THE IDENTITY OF THE PETITIONER. THUS, THE EMPLOYEES WILL HAVE PRE-ELECTION KNOWLEDGE OF THE PETITIONER'S INTENTION REGARDING JOINT CERTIFICATION AND WILL BE ABLE TO VOTE ACCORDINGLY. THE COALITION, IN ITS PETITION AS AMENDED, SEEKS TO REPRESENT A RESIDUAL UNIT OF "ALL PROFESSIONAL AND NON-PROFESSIONAL EMPLOYEES AND TECHNICIANS SERVED BY INTER-AMERICAN GEODETIC SURVEY HEADQUARTERS LOCATED IN PANAMA," EXCLUDING MANAGEMENT OFFICIALS, SUPERVISORS, PERSONNEL OFFICERS, AND EMPLOYEES DESCRIBED IN SECTION 7112(B)(2),(3),(4),(6) AND (7) OF THE STATUTE. ALL OF THE PARTIES ARE IN AGREEMENT, AND THE AUTHORITY FINDS, SUBJECT TO THE RESULT OF THE SELF DETERMINATION ELECTION ORDERED INFRA, THAT THIS UNIT IS APPROPRIATE. /1/ HOWEVER, THE COALITION, IN ITS POST HEARING BRIEF, CONTENDS THAT TEMPORARY (SOMETIMES REFERRED TO BY THE PARTIES AS CASUAL) EMPLOYEES SHOULD BE EXCLUDED FROM THE UNIT BECAUSE THEY HAVE NO EXPECTANCY OF CONTINUED EMPLOYMENT AND THUS DO NOT SHARE A COMMUNITY OF INTEREST WITH OTHER EMPLOYEES COVERED BY THE PETITION. /2/ WITH REGARD TO TEMPORARY EMPLOYEES, THE RECORD INDICATES THAT THE ACTIVITY MAINTAINS A ROSTER OF A LARGE NUMBER OF TEMPORARY LABORERS AND DRIVERS WHO ARE USED AT VARIOUS TIMES DURING THE YEAR TO SUPPORT THE ACTIVITIES OF THE CARTOGRAPHIC SCHOOL, ONE OF THE ACTIVITY'S COMPONENTS IN PANAMA. THESE INDIVIDUALS ARE HIRED IN SENIORITY ORDER ONLY FOR BRIEF AND SPECIFIC PERIODS OF FROM LESS THAN 10 BUT NOT MORE THAN 60 DAYS. AT ANY GIVEN TIME, THE NUMBER OF TEMPORARIES HIRED MAY VARY FROM FOUR TO 25 DEPENDING UPON THE ACTIVITY'S NEED FOR THEIR SERVICES. THE RECORD FURTHER REVEALS THAT SUCH EMPLOYEES HAVE NO OPPORTUNITY FOR PERMANENT EMPLOYMENT WITH THE ACTIVITY AND RECEIVE BENEFITS (SUCH AS LIFE INSURANCE, RETIREMENT AND PAID LEAVE) NOT FROM THE UNITED STATES GOVERNMENT BUT ONLY FROM THE GOVERNMENT OF PANAMA WITH WHICH THEY MUST BE REGISTERED. UNDER THESE CIRCUMSTANCES, THE AUTHORITY FINDS THAT THE TEMPORARY EMPLOYEES HAVE NO COMMUNITY OF INTEREST WITH THE EMPLOYEES WITHIN THE STIPULATED UNIT, AND MUST BE EXCLUDED. ACCORDINGLY, BASED ON ALL OF THE FOREGOING, THE AUTHORITY FINDS, SUBJECT TO THE RESULT OF THE SELF DETERMINATION ELECTION ORDERED INFRA, THE FOLLOWING UNIT TO BE APPROPRIATE FOR THE PURPOSE OF EXCLUSIVE RECOGNITION UNDER THE STATUTE: ALL PROFESSIONAL AND NON-PROFESSIONAL EMPLOYEES AND TECHNICIANS SERVED BY INTER-AMERICAN GEODETIC SURVEY HEADQUARTERS LOCATED IN PANAMA, EXCLUDING ALL TEMPORARY EMPLOYEES, MANAGEMENT OFFICIALS /3/ ,SUPERVISORS /4/ , PERSONNEL OFFICERS /5/ , AND EMPLOYEES AS DESCRIBED IN SECTION 7112(B)(2),(3),(4), (6) AND (7) OF THE STATUTE. IT IS NOTED THAT THIS UNIT INCLUDES PROFESSIONAL EMPLOYEES. THE PARTIES STIPULATED THAT ALL EMPLOYEES IN THE CARTOGRAPHIC SERIES 1370 AND 1372, WITH THE EXCEPTION OF ONE CARTOGRAPHIC/GEODETIC INSTRUCTOR 1370 NAMED WITTINGHAM, ARE PROFESSIONAL EMPLOYEES WITHIN THE MEANING OF SECTION 7103(A)(15) OF THE STATUTE. /6/ THE COALITION AND THE ACTIVITY FURTHER AGREE THAT THE INCUMBENTS IN THE CLASSIFICATION OF INTERPRETER 1047, DHOO ARE NOT PROFESSIONAL EMPLOYEES WITHIN THE MEANING OF SECTION 7103(A)(15) OF THE STATUTE, BUT THE INTERVENOR NATIONAL MARITIME UNION OF AMERICA, AFL-CIO, CONTENDS THAT THE AUTHORITY SHOULD RULE ON THE STATUS OF THESE EMPLOYEES. THE RECORD INDICATES THAT THE JOB OF INTERPRETER INVOLVES A SIMULTANEOUS TRANSLATION AND INTERPRETATION OF THE CLASSES BEING HELD AT THE CARTOGRAPHIC SCHOOL INTO THE NATIVE LANGUAGE OF THE STUDENTS INVOLVED. WHILE THERE IS A REQUIREMENT THAT THE INTERPRETERS HAVE SOME KNOWLEDGE OF THE COURSES BEING TAUGHT AS WELL AS NUMEROUS YEARS OF STUDYING A PARTICULAR LANGUAGE, A COLLEGE DEGREE IS NOT REQUIRED. ACCORDINGLY, THE AUTHORITY FINDS THAT THE EMPLOYEES IN THE CLASSIFICATION OF INTERPRETER 1047, DHOO ARE NOT PROFESSIONAL EMPLOYEES WITHIN THE MEANING OF SECTION 7103(1)(15)(A)(I) OF THE STATUE. AS PRESCRIBED BY SECTION 7112(B)(5) OF THE STATUTE, THE AUTHORITY IS PROHIBITED FROM INCLUDING PROFESSIONAL EMPLOYEES IN A UNIT WITH NON-PROFESSIONAL EMPLOYEES UNLESS A MAJORITY OF THE PROFESSIONAL EMPLOYEES VOTE FOR INCLUSION IN SUCH A UNIT. ACCORDINGLY, THE DESIRE OF THE PROFESSIONAL EMPLOYEES AS TO INCLUSION IN A UNIT WITH NON-PROFESSIONAL EMPLOYEES MUST BE ASCERTAINED BY A SELF DETERMINATION ELECTION. THE AUTHORITY THEREFORE, DIRECTS SEPARATE ELECTIONS IN THE FOLLOWING GROUPS: VOTING GROUP (A): ALL PROFESSIONAL EMPLOYEES SERVED BY INTER-AMERICAN GEODETIC SURVEY HEADQUARTERS LOCATED IN PANAMA, EXCLUDING ALL NON-PROFESSIONAL EMPLOYEES AND TECHNICIANS, TEMPORARY EMPLOYEES, MANAGEMENT OFFICIALS, SUPERVISORS, PERSONNEL OFFICERS, AND EMPLOYEES AS DESCRIBED IN SECTION 7112(B)(2),(3),(4),(6) AND (7) OF THE STATUTE. VOTING GROUP (B): ALL NON-PROFESSIONAL EMPLOYEES AND TECHNICIANS SERVED BY INTER-AMERICAN GEODETIC SURVEY HEADQUARTERS LOCATED IN PANAMA, EXCLUDING ALL PROFESSIONAL EMPLOYEES, TEMPORARY EMPLOYEES, MANAGEMENT OFFICIALS, SUPERVISORS, PERSONNEL OFFICERS, AND EMPLOYEES AS DESCRIBED IN SECTION 7112(B)(2),(3),(4),(6), AND (7) OF THE STATUTE. THE EMPLOYEES IN THE NON-PROFESSIONAL VOTING GROUP (B) WILL BE POLLED AS TO WHETHER THEY DESIRE TO BE REPRESENTED BY THE PANAMA DOD EMPLOYEES COALITION, AFL-CIO, CTRP; BY THE NATIONAL MARITIME UNION OF AMERICA, AFL-CIO; OR BY NEITHER. THE EMPLOYEES IN THE PROFESSIONAL VOTING GROUP (A) WILL BE ASKED TWO QUESTIONS ON THEIR BALLOTS: (1) WHETHER THEY WISH TO BE INCLUDED WITH THE NON-PROFESSIONAL EMPLOYEES FOR THE PURPOSE OF EXCLUSIVE RECOGNITION, AND (2) WHETHER THEY WISH TO BE REPRESENTED FOR THE PURPOSE OF EXCLUSIVE RECOGNITION BY THE PANAMA DOD EMPLOYEES COALITION, AFL-CIO, OF EXCLUSIVE RECOGNITION BY THE PANAMA DOD EMPLOYEES COALITION, AFL-CIO, CTRP; BY THE NATIONAL MARITIME UNION OF AMERICA, AFL-CIO; OR BY NEITHER. IN THE EVENT THAT A MAJORITY OF THE VALID VOTES IN VOTING GROUP (A) IS CAST IN FAVOR OF INCLUSION IN THE SAME UNIT WITH THE NON-PROFESSIONAL EMPLOYEES, THE BALLOTS OF VOTING GROUP (A) SHALL BE COMBINED WITH THOSE OF VOTING GROUP (B). UNLESS A MAJORITY OF THE VALID VOTES OF VOTING GROUP (A) IS CAST FOR INCLUSION IN THE UNIT WITH NON-PROFESSIONAL EMPLOYEES, THEY WILL BE TAKEN TO HAVE INDICATED THEIR DESIRE TO CONSTITUTE A SEPARATE UNIT, AND AN APPROPRIATE CERTIFICATION WILL BE ISSUED INDICATING THEIR CHOICE FOR THE PURPOSE OF EXCLUSIVE RECOGNITION BY THE PANAMA DOD EMPLOYEES COALITION, AFL-CIO, CTRP; BY THE NATIONAL MARITIME UNION OF AMERICA, AFL-CIO; OR BY NEITHER. THUS, THE UNIT DETERMINATION IN THIS CASE IS BASED IN PART UPON THE RESULT OF THE ELECTION AMONG THE PROFESSIONAL EMPLOYEES. IN THIS REGARD, THE AUTHORITY MAKES THE FOLLOWING FINDINGS WITH REGARD TO THE APPROPRIATE UNIT: 1. IF A MAJORITY OF THE PROFESSIONAL EMPLOYEES VOTE FOR INCLUSION IN THE UNIT WITH NON-PROFESSIONAL EMPLOYEES, THE FOLLOWING EMPLOYEES CONSTITUTE A UNIT APPROPRIATE FOR THE PURPOSE OF EXCLUSIVE RECOGNITION WITHIN THE MEANING SECTION 7112 OF THE STATUTE: ALL PROFESSIONAL AND NON-PROFESSIONAL EMPLOYEES AND TECHNICIANS SERVED BY INTER-AMERICAN GEODETIC SURVEY HEADQUARTERS LOCATED IN PANAMA, EXCLUDING ALL TEMPORARY EMPLOYEES, MANAGEMENT OFFICIALS, SUPERVISORS, PERSONNEL OFFICERS, AND EMPLOYEES AS AS DESCRIBED IN SECTION 7112(B)(2),(3),(4),(6), AND (7) OF THE STATUTE. 2. IF A MAJORITY OF THE PROFESSIONAL EMPLOYEES DO NOT VOTE FOR INCLUSION IN A UNIT WITH NON-PROFESSIONAL EMPLOYEES, THE FOLLOWING TWO GROUPS OF EMPLOYEES CONSTITUTE SEPARATE UNITS APPROPRIATE FOR THE PURPOSE OF EXCLUSIVE RECOGNITION WITHIN THE MEANING OF SECTION 7112 OF THE STATUTE: (A) ALL PROFESSIONAL EMPLOYEES SERVED BY INTER-AMERICAN GEODETIC SURVEY HEADQUARTERS LOCATED IN PANAMA, EXCLUDING ALL NON-PROFESSIONAL EMPLOYEES AND TECHNICIANS, TEMPORARY EMPLOYEES, MANAGEMENT OFFICIALS, SUPERVISORS, PERSONNEL OFFICERS, AND EMPLOYEES AS DESCRIBED IN SECTION 7112(B )(2),(3),(4),(6), AND (7) OF THE STATUTE. (B) ALL NON-PROFESSIONAL EMPLOYEES AND TECHNICIANS SERVED BY INTER-AMERICAN GEODETIC SURVEY HEADQUARTERS LOCATED IN PANAMA, EXCLUDING ALL PROFESSIONAL EMPLOYEES, TEMPORARY EMPLOYEES, MANAGEMENT OFFICIALS, SUPERVISORS, PERSONNEL OFFICERS, AND EMPLOYEES AS DESCRIBED IN SECTION 7112(B)(2),(3),(4),(6), AND (7) OF THE STATUTE. DIRECTION OF ELECTION SUBJECT TO THE PREREQUISITE THAT THE NOTICE OF PETITION HEREIN BE REPOSTED PURSUANT TO SECTION 2422.4(A) OF THE AUTHORITY'S RULES AND REGULATIONS, ELECTIONS BY SECRET BALLOT SHALL BE CONDUCTED AMONG EMPLOYEES IN THE VOTING GROUPS DESCRIBED ABOVE, AS EARLY AS POSSIBLE, BUT NOT LATER THAN 60 DAYS FROM THE CONCLUSION OF THE ABOVE-REFERENCED POSTING PERIOD. THE APPROPRIATE REGIONAL DIRECTOR SHALL SUPERVISE THE ELECTIONS, SUBJECT TO THE AUTHORITY'S RULES AND REGULATIONS. ELIGIBLE TO VOTE ARE THOSE IN THE VOTING GROUPS WHO WERE EMPLOYED DURING THE PAYROLL PERIOD IMMEDIATELY PRECEDING THE DATE BELOW, INCLUDING EMPLOYEES WHO DID NOT WORK DURING THE PERIOD BECAUSE THEY WERE OUT ILL, OR ON VACATION OR FURLOUGH, INCLUDING THOSE IN THE MILITARY SERVICE WHO APPEAR IN PERSON AT THE POLLS. INELIGIBLE TO VOTE ARE EMPLOYEES WHO HAVE QUIT OR WERE DISCHARGED FOR CAUSE SINCE THE DESIGNATED PAYROLL PERIOD AND WHO HAVE NOT BEEN REHIRED OR REINSTATED BEFORE THE ELECTION DATE. THOSE ELIGIBLE TO VOTE WITHIN THE APPROPRIATE UNIT OR UNITS SHALL VOTE WHETHER THEY DESIRE TO BE REPRESENTED FOR THE PURPOSE OF EXCLUSIVE RECOGNITION BY THE PANAMA DOD EMPLOYEES COALITION, AFL-CIO, CTRP; BY THE NATIONAL MARITIME UNION OF AMERICA, AFL-CIO; OR BY NEITHER. ISSUED, WASHINGTON, D.C.,MAY 15, 1981 RONALD W. HAUGHTON, CHAIRMAN HENRY B. FRAZIER III, MEMBER LEON B. APPLEWHAITE, MEMBER FEDERAL LABOR RELATIONS AUTHORITY --------------- FOOTNOTES$ --------------- /1/ IN THIS REGARD, THE AUTHORITY NOTES THAT THE PANAMA CANAL ACT OF 1979 SPECIFICALLY EXTENDED COVERAGE OF THE FEDERAL SERVICE LABOR-MANAGEMENT RELATIONS STATUTE TO, AMONG OTHERS, EMPLOYEES OF EXECUTIVE AGENCIES OPERATING IN THE AREA OF THE REPUBLIC OF PANAMA. /2/ SEC. 7112. DETERMINATION OF APPROPRIATE UNITS FOR LABOR ORGANIZATION REPRESENTATION (A)(1) THE AUTHORITY SHALL DETERMINE THE APPROPRIATENESS OF ANY UNIT. THE AUTHORITY SHALL DETERMINE IN EACH CASE WHETHER, IN ORDER TO ENSURE EMPLOYEES THE FULLEST FREEDOM IN EXERCISING THE RIGHTS GUARANTEED UNDER THIS CHAPTER, THE APPROPRIATE UNIT SHOULD BE ESTABLISHED ON AN AGENCY, PLANT, INSTALLATION, FUNCTIONAL, OR OTHER BASIS AND SHALL DETERMINE ANY UNIT TO BE AN APPROPRIATE UNIT ONLY IF THE DETERMINATION WILL ENSURE A CLEAR AND IDENTIFIABLE COMMUNITY OF INTEREST AMONG THE EMPLOYEES IN THE UNIT AND WILL PROMOTE EFFECTIVE DEALINGS WITH, AND EFFICIENCY OF THE OPERATIONS OF, THE AGENCY INVOLVED. /3/ THE PARTIES STIPULATED THAT THE INCUMBENT IN THE CLASSIFICATION OF SUPERVISORY CARTOGRAPHIC GEODESIST 1370, 1 NM-13; SUPERVISORY CARTOGRAPHIC INSTRUCTOR 1370, 1 NM-13; SUPERVISORY ELECTRONIC TECHNICIAN 0856, 1 NM-12; AND SUPPORT SERVICES SUPERVISOR 0341, DHOO SHOULD BE EXCLUDED FROM THE UNIT BECAUSE THEY ARE SUPERVISORS WITHIN THE MEANING OF SECTION 7103(A)(10) OF THE STATUTE. /5/ THE PARTIES STIPULATED THAT THE INCUMBENT IN THE CLASSIFICATION OF PERSONNEL TECHNICIAN 0201, DHOO SHOULD BE EXCLUDED FROM THE UNIT AS HE IS ENGAGED IN PERSONNEL WORK IN OTHER THAN A PURELY CLERICAL CAPACITY WITHIN THE MEANING OF SECTION 7112(B)(3) OF THE STATUTE. /6/ SEC. 7103. DEFINITIONS; APPLICATION (A) FOR THE PURPOSE OF THIS CHAPTER -- (15) "PROFESSIONAL EMPLOYEE" MEANS -- (A) AN EMPLOYEE ENGAGED IN THE PERFORMANCE OF WORK- (I) REQUIRING KNOWLEDGE OF AN ADVANCED TYPE IN A FIELD OF SCIENCE OR LEARNING CUSTOMARILY ACQUIRED BY A PROLONGED COURSE OF SPECIALIZED INTELLECTUAL INSTRUCTION AND STUDY IN AN INSTITUTION OF HIGHER LEARNING OR A HOSPITAL (AS DISTINGUISHED FROM KNOWLEDGE ACQUIRED BY A GENERAL ACADEMIC EDUCATION, OR FROM AN APPRENTICESHIP, OR FROM TRAINING IN THE PERFORMANCE OF ROUTINE MENTAL, MANUAL, MECHANICAL, OR PHYSICAL ACTIVITIES); (II) REQUIRING THE CONSISTENT EXERCISE OF DISCRETION AND JUDGMENT IN ITS PERFORMANCE; (III) WHICH IS PREDOMINANTLY INTELLECTUAL AND VARIED IN CHARACTER (AS DISTINGUISHED FROM ROUTINE MENTAL, MANUAL, MECHANICAL, OR PHYSICAL WORK); AND (IV) WHICH IS OF SUCH CHARACTER THAT THE OUTPUT PRODUCED OR THE RESULT ACCOMPLISHED BY SUCH WORK CANNOT BE STANDARDIZED IN RELATION TO A GIVEN PERIOD TO TIME; OR (B) AN EMPLOYEE WHO HAS COMPLETED THE COURSES OF SPECIALIZED INTELLECTUAL INSTRUCTION AND STUDY DESCRIBED IN SUBPARAGRAPH (A) (I) OF THIS PARAGRAPH AND IS PERFORMING RELATED WORK UNDER APPROPRIATE DIRECTION OR GUIDANCE TO QUALIFY THE EMPLOYEE AS A PROFESSIONAL EMPLOYEE DESCRIBED IN SUBPARAGRAPH (A) OF THIS PARAGRAPH; . . .