Am. Sub. S.B. 5

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UPDATED CORRECTED VERSION*

Ohio Legislative Service CommissionFinal Analysis Julie A. Rishel and other LSC staff

Am. Sub. S.B. 5129th General Assembly

(As Passed by the General Assembly)

Sen. Jones

Effective date:**

ACT SUMMARY

The Public Employees' Collective Bargaining Law

Strikes

Prohibitspublicemployeesfromstriking.

Requires the public employer to deduct from the compensation of a striking

employeeanamountequaltotwicetheemployeesdailyrateofpayforeachdayor

partthereofthattheemployeeengagedinastrike.

Ability to bargain

Expands thedefinitionof supervisorwith respect tomembersofa fireorpolice

department.

Expands the definition of supervisor and management level employee with

respecttofacultyofastateinstitutionofhighereducationtoincludethoseinvolved

incertaindecisions.

Prohibitsemployeesofcommunityschoolsfromcollectivelybargaining,exceptfor

conversioncommunityschools.

*RemovesanincorrectreferenceregardingtheGovernorandotherelectedexecutivebranchofficialsand

performancebasedpay.

**Referendumpetitionfiledagainstact.Itstakingeffectwilldependontheoutcomeofthereferendum.

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Legislative Service Commission -2- Am. Sub. S.B. 5

Allows the governing authority of a conversion community school to opt out of

collectivelybargainingwiththecommunityschoolsemployees. Limits the ability of specified other employees to collectivelybargain with their

publicemployers,includingregionalcouncilofgovernmentemployeesandcertain

membersoftheunclassifiedcivilservice,toallowtheemployeestobargainonlyif

thepublicemployerelectstodoso.

Right to bargain

Removescontinuation,modification,ordeletionofanexistingcollectivebargaining

agreementfromthesubjectofcollectivebargaining.Bargaining units and exclusive representatives

Changes the time limitationswithinwhich theStateEmploymentRelationsBoard

mustactuponarequestforrecognition.

Prohibitsanappropriateunitof firefighters from includingrankand filemembers

withmemberswhoareoftheranklieutenantandabove. Revisesrecognitionprocedures. Permitscertaingroupstofileadecertificationpetitiondemonstratingthat30%ofthe

employeesinthedescribedbargainingunitsupportthepetition.Subjects of collective bargaining

Expandsthelistofsubjectsthatareinappropriateforcollectivebargaining.

Permitspublicemployerstonotbargainonanysubjectreservedtothemanagement

anddirectionofthegovernmentalunit,evenifthesubjectaffectswages,hours,and

termsandconditionsofemployment.

Prohibits an existing provision of a collective bargaining agreement that was

modified,renewed,orextendedthatdoesnotconcernwages,hours,andtermsand

conditionsfrombeingamandatorysubjectofcollectivebargaining.

Allowsapublicemployertoengageinspecifiedemploymentrelatedactionsatthe

employersdiscretionunlessthepublicemployerspecificallyagreesotherwiseinan

express written provision of a collective bargaining agreement, with certain

exceptionsconcerningequipment.

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Provisions of a collective bargaining agreement

Prohibits a public employer that is a school district, educational service center, a

conversion community school that collectively bargains, or STEM school from

entering intoacollectivebargainingagreement thatdoes specified things, suchas

establishingamaximumnumberofstudentswhomaybeassignedtoaclassroomor

teacher.

Requirescollectivebargainingagreementsbetweensuchaneducationrelatedpublic

employerandpublicemployeestocomplywithallapplicablestateorlocallawsor

ordinances regarding wages, hours, and terms and conditions of employment,

unlesstheconflictingprovisionestablishesbenefitsthatarelessthanprovidedinthe

laworordinance. Prohibitsacollectivebargainingagreementfromprohibitingapublicemployerthat

isinastateoffiscalemergencyfromservingawrittennoticetoterminate,modify,

ornegotiatetheagreement.

Prohibitsacollectivebargainingagreementfromprohibitingapublicemployerthat

is in a state of fiscal watch from serving a written notice to modify a collective

bargainingagreementsothatsalaryorbenefitincreases,orboth,aresuspended.

Prohibitsanagreementfromcontainingaprovisionthatrequiresasaconditionof

employment that the nonmembers of the employee organization pay to the

employeeorganizationafairsharefee.

Prohibitsacollective

bargaining

agreement

entered

into

or

renewed

on

or

after

the

actseffectivedatefromcontainingprovisionslimitingapublicemployersabilityto

privatizeoperations.

Prohibitsacollectivebargainingagreemententeredintoorrenewedonorafterthe

acts effectivedate from containingprovisions for certain typesof leave to accrue

above listed amounts or to pay out for sick leave at a rate higher than specified

amounts.

Prohibitsacollectivebargainingagreemententeredintoorrenewedonorafterthe

actseffective

date

from

containing

certain

provisions

regarding

the

deferred

retirementoptionplan.

Limits thepreviously requiredgrievanceprocedure tounresolvedgrievances that

arebasedonthedisputedinterpretationsofthewrittenprovisionsoftheagreement.

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Dispute resolution

Eliminates theabilityof theparties to submitdisputes toanagreedupondispute

resolutionprocedure.

Extendsthetimelinesinvolvedinthedisputeresolutionprocess.

Expands the list of factors a factfinder must consider in resolving disputes, and

requiresthefactfindertoconsiderastheprimaryfactortheinterestsandwelfareof

thepublicandtheabilityofthepublicemployertofinanceandadministertheissues

proposed.

Eliminatesthefinaloffersettlementprocedure.

Requiresthelegislativebodyofthepublicemployertobethefinaldecisionmaker

withrespecttoanydisputethat isunresolvedduringthefactfindingprocess,and

prescribes

procedures

and

requirements

for

the

legislative

body

to

make

a

determination.

Requiresanyagreementdeterminedbythelegislativebodytobeineffectforthree

years.

Requires,ifthelegislativebodyfailstoselectalastbestoffer,thepublicemployers

lastbestoffertobecometheagreementbetweentheparties.

Allows,forcertainpublicemployers,ifthelegislativebodyselectsthelastbestoffer

that costs more and the chief financial officer of the legislativebody determines

insufficient funds exist or refuses to determine whether sufficient funds exist to

covertheagreement,thelastbestofferstobesubmittedtothevotersforselection.

Prescribesprocedurestoplacethelastbestoffersontheballotandforthatelection.

Unfair labor practices

Expands the listofunfair laborpractices thatmaybe committedbyanemployee

organization,itsagents,orpublicemployeesandtheremediesthatmaybeapplied

forunfairlaborpracticescommittedbythoseentities.

Revisestheproceduresregardinghearingsonunfairlaborpracticecharges.

Miscellaneous changes in the Public Employee Collective Bargaining Law

Requiresapublicemployertoreportcertain informationaboutcompensationpaid

topublicemployeesunderacollectivebargainingagreement.

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Repeals theprovisionrequiring thePublicEmployeeCollectiveBargainingLaw to

beliberallyconstrued.

Public employee pay

Generallyeliminatesstatutorysalaryschedulesandsteps.

Requiresperformancebasedpay formostpublic employees, includingboardand

commissionmembers,andmakesother,relatedchanges.

Requires performancebased pay for teachers based, in part, on evaluations

conductedunderapolicythatisbasedonaframeworkforteacherevaluationsthat

hasbeenrecommendedbytheSuperintendentofPublicInstructionandadoptedby

theStateBoardofEducation.

Public employee benefits

Limitspublicemployercontributionstowardhealthcarebenefitcoststo85%.

Requires health carebenefits provided to management level employees tobe the

same as anyhealth carebenefitsprovided toother employeesof the samepublic

employer.

Requireshealthcarebenefitsprovidedthroughajointlyadministeredtrustfundto

bethesameasthehealthcarebenefitsprovidedtootherpublicemployees.

Requiresboardsofeducationtoadoptpoliciestoprovideleavewithpayforschool

employeesandabolishesstatutorilyprovidedleaveforthoseemployees.

Abolishescontinuingcontractsforteachers,exceptforthosecontinuingcontractsin

existencepriortotheeffectivedateoftheactandrevisesthelawrelatingtolimited

contracts.

Prohibitsapublicemployerfrompayingemployeecontributionstothefivepublic

employeeretirementsystems.

RequiresdeathbenefitspaidunderthePoliceandFirePensionFundtobepaid in

accordancewith

salary

schedules

and

increases

that

were

in

existence

prior

to

the

effectivedateoftheact.

Caps vacation leave for certain public employees at 7.7 hours perbiweekly pay

period and limits total accrual for those public employees currently accruing 9.2

hoursperpayperiod.

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Reducessickleaveaccrualformostpublicemployeesfrom4.6hoursto3.1hoursper

biweeklypayperiod.

Reduction in force

Removesconsiderationof seniorityand lengthof service,by itself, fromdecisions

regardingareduction

in

work

force

of

certain

public

employees.

Ohio Commission for Excellence in Public Service

CreatestheOhioCommissionforExcellenceinPublicServicetoestablishandguide

programsthatfosterbestpracticesinpublicserviceworkplaces.

TABLE OF CONTENTS

The Public Employees' Collective Bargaining Law ....................................................................... 7Prohibition against strikes ......................................................................................................... 7

Penalties for striking .............................................................................................................. 9Objections by employee ........................................................................................................ 9Injunctions to stop strikes and notification of chief legal officer ........................................... 10

Ability to bargain ..................................................................................................................... 11Supervisors and management level employees ................................................................. 11Charter school employees .................................................................................................. 12Other employees ................................................................................................................. 12

Rights of public employees under the PECBL ........................................................................ 13Bargaining units and exclusive representatives ...................................................................... 13

Bargaining unit .................................................................................................................... 13Recognition procedures ...................................................................................................... 14

Subjects for collective bargaining............................................................................................ 16

Mandatory subjects of collective bargaining ....................................................................... 16Rights reserved to the public employer ............................................................................... 17Considerations during negotiations ..................................................................................... 18

Provisions in and approval of agreements .............................................................................. 19Education provisions ........................................................................................................... 19Fiscal watch or emergency ................................................................................................. 20Fair share fees .................................................................................................................... 21Grievance procedures, automatic deductions, and layoffs ................................................. 21Privatization ......................................................................................................................... 22Leave accrual and pay out .................................................................................................. 22Restrictions for DROP participants ..................................................................................... 23Other provisions .................................................................................................................. 24

Agreement approval ............................................................................................................ 25Supervisor pay .................................................................................................................... 25

Dispute resolution procedures ................................................................................................ 25Duty to bargain .................................................................................................................... 25Mediation ............................................................................................................................. 26Fact-finding ......................................................................................................................... 27Final resolution .................................................................................................................... 28Voter approval ..................................................................................................................... 30Publication requirements ..................................................................................................... 31

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Unfair labor practices .............................................................................................................. 32Self-interest ............................................................................................................................. 34Employee compensation reports............................................................................................. 34Liberally construe .................................................................................................................... 36Effect on existing contracts ..................................................................................................... 36

Public employee pay ................................................................................................................... 36Performance-based pay and elimination of steps ................................................................... 36

Pay supplements for certain state employees ........................................................................ 38Teacher pay ............................................................................................................................ 38Performance-based pay ...................................................................................................... 38Performance evaluations .................................................................................................... 39

Public employee benefits ............................................................................................................ 43Health care benefits ................................................................................................................ 43

All public employees ........................................................................................................... 43Jointly administered trust funds ........................................................................................... 43School district employees ................................................................................................... 44

Employee contributions to public employee retirement systems ............................................ 44Police and Fire Pension Fund ................................................................................................. 45Board of education employee leaves ...................................................................................... 45

Continuing contracts for teachers ........................................................................................... 48Vacation and sick leave .......................................................................................................... 48Reductions in the public sector work force ................................................................................. 49

State and county employees ................................................................................................... 49School district employees ....................................................................................................... 50Township firefighters ............................................................................................................... 50Retention points ...................................................................................................................... 51Discrimination ......................................................................................................................... 51Ohio Commission for Excellence in Public Service................................................................. 51

Other ........................................................................................................................................... 53Background employees who are not permitted to strike .......................................................... 53

CONTENT AND OPERATION

The Public Employees' Collective Bargaining Law

Prohibition against strikes

The act prohibits public employees (see Ability to bargain,below, for a

definitionofpublicemployee)andemployeeorganizations(essentially,unions)from

striking and prescribes penalties for violating this prohibition. Under the act, an

employeewho isabsent fromworkwithoutpermissionorwhoabstainswhollyor in

part from the full performance of the employees duties in the employees normalmannerwithoutpermission,on thedatewhen a strikeoccurs,mustbepresumed to

haveengagedinthestrikeonthatdate.1

1R.C.4117.01(B),4117.15(A),(C),and(L),and4117.18(C).

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Previously, certainpublicemployees could strikeunder limited circumstances.

Ifanunauthorizedstrikeoccurred(essentially,thosepublicemployeesstruckoutsideof

those circumstances, or if other public employees under the Public Employees

CollectiveBargainingLaw(PECBL)whowerenotpermittedtostrikeactuallystruck),

theemployeeswere subject topenalties. Additionally,previouslyapublicemployer

couldobtainaninjunctiontostopastrike.2

Theactalsoprohibitsanypublicemployeeoranyemployeeorganizationfrom

causing,instigating,encouraging,orcondoningastrike.Additionally,theactprohibits

anypersonexercisingonbehalfofanypublicemployeranyauthority,supervision,or

direction over any public employee from having the power to authorize, approve,

condone, or consent to a strike, or the engaging in a strike,by one or more public

employees,andtheactprohibitsthatpersonfromauthorizing,approving,condoning,

orconsentingtothestrikeorengagement.3

Undertheact,intheeventthat itappearsthataviolationofthe(1)prohibition

againststrikes,(2)prohibitionagainstcausing,instigating,encouraging,orcondoninga

strike,or (3)prohibitionagainstcertainpersonsauthorizingorcondoningaperson to

strikeorengageinastrikemayhaveoccurred,thechiefexecutiveofficerofthepublic

employer involved must, on thebasis of an investigation and affidavits as the chief

executive officer may deem appropriate, determine whether or not a violation has

occurredandthedatesoftheviolation. Ifthechiefexecutiveofficerdeterminesthata

violationhasoccurred,thechiefexecutiveofficermustalsodetermine,onthebasisof

any further investigation and affidavits as the chief executive officer may deem

appropriate, the names of employees who committed the violation and the dates

thereof.Thedeterminationisnotfinaluntilthecompletionoftheproceduresprovidedforintheact.

Next,thechiefexecutiveofficermustimmediatelynotifyeachemployeethatthe

chiefexecutiveofficerhasbeenfoundtohavecommittedtheviolation,thedatesofthe

violation, and that the employee has the right to object to the determination as

describedunderObjections by employeebelow.Noticetoeachemployeemustbe

by personal service orby certified mail to the employees last address filedby the

employeewiththeemployer.Also,thechiefexecutiveofficermustalsonotifythechief

fiscalofficerof thepublicemployerof thenamesofall theemployeesdetermined to

2R.C.4117.01(I),4117.14(D),4117.15,4117.16(repealed),and4117.23(repealed).

3R.C.4117.15(A)and(D).

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haveviolatedtheseprohibitionsandofthetotalnumberofdays,orportionsthereof,on

whichithasbeendeterminedthattheviolationoccurred.4

Penalties for striking

Under the act, anypersonwhoviolates theprohibitionagainst strikingor the

prohibitionagainst

causing,

instigating,

encouraging,

or

condoning

astrike

may

be

subjecttoremovalorotherdisciplinaryactionprovidedbylawformisconduct,which

issimilartothepriorlawpenaltiesforunauthorizedstrikes.Undercontinuinglaw,no

publicemployee isentitled topayorcompensation from thepublicemployer for the

periodengagedinanystrike.

Additionally, under the act, not earlier than 30 days or later than 90 days

following the date of the determination made that a person has violated any of the

prohibitionsdescribedin(1)to(3)underProhibition against strikesabove,thechief

fiscalofficerof thepublicemployer involvedmustdeduct from thecompensationof

eachsuchpublicemployeeanamountequaltotwicetheemployeesdailyrateofpayfor each day or part thereof that the chief executive officer determined that the

employeecommittedaviolation.Thispenaltyissimilartooneofthepenaltiesassessed

under prior law for unauthorized strikes. The employees daily rate of pay is the

employees rateofpayat the timeof theviolation. In computing thededuction, the

chieffiscalofficermustallowcreditforamountsalreadywithheldfromanemployees

compensationonaccountoftheemployeesabsencefromworkorotherwithholdingof

servicesonthedatesoftheviolation.Incomputingthe30dayto90dayperiodoftime

following the determination of a violation if the employees annual compensation is

paid

over

a

period

of

time

that

is

less

than

52

weeks,

the

chief

fiscal

officer

must

not

count that period of time between the last day of the last payroll period of the

employmentterminwhichtheviolationoccurredandthefirstdayofthefirstpayroll

periodofthenextsucceedingemploymentterm.5

Objections by employee

Within 20 days after the date on which notice was served or mailed to an

employee,theemployeedeterminedtohavecommittedtheviolationmayobjecttothe

determinationbyfilingwiththechiefexecutiveofficertheemployeesswornaffidavit,

whichmustcontainashortandplainstatementofthefactsuponwhichtheemployee

relies to show that thedeterminationwas incorrectandwhichmustbesupportedby

availabledocumentaryproof. Anemployeewhosubmitsanaffidavitissubjecttothe

penaltiesofperjury.

4R.C.4117.15(E)and(F).

5R.C.4117.15(B),(G),and(K).

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Ifthechiefexecutiveofficerdetermines that theaffidavitandsupportingproof

establishesthattheemployeedidnotviolateanyoftheprohibitionsdescribedin(1)to

(3)underProhibition against strikesabove,thechiefexecutiveofficermustsustain

anddismisstheobjectionandsonotifytheemployee.

Ifthechiefexecutiveofficerdetermines that theaffidavitandsupportingproof

raisesaquestionoffactthat,ifresolvedinfavoroftheemployee,wouldestablishthatthe employee did not violate any of the prohibitions described in (1) to (3) under

Prohibition against strikesabove,thechiefexecutiveofficermustappointahearing

officertodeterminewhetherinfacttheemployeedidviolateanyofthoseprohibitions.

The employee bears the burden of proof at the hearing. If the hearing officer

determinesthattheemployeefailedtoestablishthattheemployeedidnotviolateany

ofthoseprohibitions,thechiefexecutiveofficermustsonotifytheemployee.

If the chief executive officer sustains an objection or the hearing officer

determinesonapreponderanceoftheevidencethattheemployeedidnotviolateanyof

theprohibitionsdescribedin(1)to(3)underProhibition against strikesabove,the

chiefexecutiveofficermust immediatelynotify thechief fiscalofficerwhomustcease

allfurtherdeductionsandrefundanydeductionspreviouslymadepursuanttotheact.

Thedeterminationsregardingwhetherapersonviolatedanyoftheprohibitions

described in (1) to (3) under Prohibition against strikes above are reviewable

pursuant to Ohios Administrative Procedure Act. The act prohibits any public

employer, the State Employment Relations Board (SERB), or any court of competent

jurisdictionfromwaivingthepenaltiesorfinesassessedregardingaviolationofanyof

thoseprohibitions

as

part

of

the

settlement

of

an

illegal

strike.

6

Thus,it

appears

that

thesepenaltiescouldbeinadditiontoanypenaltiespermittedundercontinuinglawfor

engaginginanunfairlaborpracticebyinducingorencouraginganindividualtostrike.7

Injunctions to stop strikes and notification of chief legal officer

Whenevera strikeoccurs, thepublicemployermay seekan injunctionagainst

the strike in the courtof common pleasof the county inwhich the strike is located.

Undercontinuinglaw,anunfairlaborpracticebyapublicemployerisnotadefenseto

theinjunctionproceeding.8

6R.C.4117.15(B),(H),and(I).

7R.C.4117.11(B)(5)and4117.12.

8R.C.4117.15(A)and(J).

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Whereitappearsthatpublicemployeesoranemployeeorganizationthreatenor

areabout toviolateanyof theprohibitionsdescribed in (1) to (3)under Prohibition

against strikes above by engaging in a strike, the chief executive officer must

immediatelynotifythechieflegalofficerofthepublicemployerinvolvedandprovide

thechieflegalofficerwithanyfacilities,assistance,ordataaswillenablethechieflegal

officertocarryoutthechieflegalofficersduties.9

Ability to bargain

Supervisors and management level employees

The act potentially restricts the ability of some people to collectivelybargain.

Undercontinuinglaw,publicemployeesunderthePECBLhavetherighttocollectively

bargain with their public employers, and those public employers mustbargain with

those employees. A public employee generally is any person holding a positionby

appointment or employment in the service of a public employer, but numerous

exceptionsexist.

Under

continuing

law,

apublic

employer

may

elect

to

bargain

with

a

groupthatfallsundertheseexceptions(otherthancountyboardofelectionemployees),

butisnotrequiredtobargain.Oneexceptionisthatpublicemployeedoesnotinclude

supervisors. Supervisorsgenerallyare individualswhohaveauthoritytotakecertain

actionsregardingthetermsandconditionsofemploymentofotherpublicemployees,if

theexerciseof thatauthority isnotofamerelyroutineorclericalnaturebutrequires

independentjudgment. Withregard tomembersofapoliceorfiredepartment,prior

law specified that no person couldbe deemed a supervisor except the chief of the

departmentor those individualswho, in theabsenceof thechief,wereauthorized to

exercise theauthorityandperform thedutiesof thechiefof thedepartment. Theact

removesthatlimitation,somorepeoplemaybedeemedsupervisorsunderthelaw,and

thuscannotcollectivelybargainwiththeirpublicemployerunlessthepublicemployer

electstodoso.Additionally,theactexpresslystatesthatthetermsupervisorincludes

firesupervisoryofficers.

Theactalsochangeswho isconsidereda supervisorora management level

employee with respect to faculty at a state institution of higher education. With

respect to facultymembers,headsofdepartmentsordivisionsare supervisorsunder

continuinglaw,andtheactaddsthatanyfacultymemberorgroupoffacultymembers

thatparticipate

in

decisions

with

respect

to

courses,

curriculum,

personnel,

or

other

matters of academic or institutional policy are supervisors or management level

employees. Previously, these faculty members were not considered supervisors or

managementlevelemployees.

9R.C.4117.27.

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Amanagementlevelemployee,undercontinuinglaw,generallyisanindividual

who formulatespolicyonbehalfof thepublicemployer,who responsiblydirects the

implementationofpolicy,orwhomayreasonablyberequiredonbehalfof thepublic

employer to assist in the preparation for the conduct of collective negotiations,

administer collectively negotiated agreements, or have a major role in personnel

administration. Likesupervisors,apublicemployermayelect,but isnotrequiredto,

collectivelybargainwithmanagementlevelemployees.Theactexpandsthedefinition

ofmanagementlevelemployeetoincludeanyfacultywho,individuallyorthrougha

facultysenateorlikeorganization,participateinthegovernanceoftheinstitution,are

involvedinpersonneldecisions,selectionorreviewofadministrators,planninganduse

of physical resources,budget preparation, and determination of educational policies

related to admissions curriculum, subject matter, and methods of instruction and

research.10

Charter school employees

Under the act, community (charter) school employees do not have collective

bargaining rights, and the act prohibits a community school from bargaining

collectivelywithitsemployees.Employeesofaconversioncommunityschoolcontinue

tohavecollectivebargainingrightsonly ifthecommunityschoolelectstocollectively

bargain under continuing law procedures. Previously, community schools were

requiredtobargainwiththeiremployees.11

Other employees

Theactaddsemployeesofaregionalcouncilofgovernmenttothelistofpublic

employeeswithwhomapublicemployermayelect,butisnotrequiredto,collectivelybargain. Additionally, the act expands that list of employees to include (1) certain

clericalandadministrativesupportemployeesintheunclassifiedcivilserviceforeach

of the elective state officers, for eachboard of county commissioners and one such

employeeforeachcountycommissioner,andforotherelectiveofficersandeachofthe

principalappointiveexecutiveofficers,boards,orcommissions,exceptforcivilservice

commissions, thatareauthorized toappoint suchclericalandadministrative support

employees and (2) certain state and county employees who have a fiduciary or

administrativerelationshipwiththeiremployer,ratherthanjustthosemembersofthe

unclassifiedcivil

service

who

act

in

afiduciary

capacity.

Theacteliminatesfromthedefinitionofpublicemployeeanypersonworking

pursuant to a contractbetween a public employer and a private employer and over

10R.C.4117.01(C)(10),(F),and(K).

11R.C.3314.10,4117.01(B)(1)(e)and(2),4117.03(B),and4117.06(C)(7).

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whomtheNationalLaborRelationsBoardhasdeclinedjurisdictiononthebasisthatthe

involved employees are employees of a public employer. The act removes this

inclusion, thus itappears that thisgroupofemployeeswillno longerhavecollective

bargainingrights.12

Rights of public employees under the PECBL

Theactremovestherightofpublicemployeestobargaincollectivelywiththeir

publicemployerstodeterminethecontinuation,modification,ordeletionofanexisting

provisionofacollectivebargainingagreement.Publicemployeesstillhavetherightto

bargain collectively to determine wages, hours, and terms and conditions of

employment and to enter into collective bargaining agreements.13 Previously, the

PECBL used various forms of the phrase of wages, hours, and terms and other

conditionsofemployment. Theact changes thephrase to wages,hours,and terms

andconditionsofemploymentthroughoutthatlaw.14

Undercontinuinglaw,apublicemployeehastherighttorefrainfromjoininganemployee organization, and a public employer is prohibited from agreeing to a

provision requiring that a public employee become a member of an employee

organizationasaconditionforsecuringorretainingemployment.Theactfurtherstates

thatanyagreementthatpurportsthatemployeesjoinanyexclusiverepresentative(the

unionselectedtorepresentagroupofemployees)isvoidandunenforceable.15

Bargaining units and exclusive representatives

Bargaining unit

Under continuing law, SERB decides in each case the unit of employees

appropriateforthepurposesofcollectivebargaining.TheactspecificallyrequiresSERB

todecidethemostappropriateunit,andeliminatesSERBsabilitytodetermineaunitto

betheappropriateunitinaparticularcase,eventhoughsomeotherunitmightalsobe

appropriate.

Continuing law contains restrictions with respect to SERBs bargaining unit

classifications. The act expands those restrictions to prohibit SERB, with respect to

membersofafiredepartment,fromdesignatingasappropriateaunitthatincludesrank

andfile

members

of

the

department

with

members

who

are

of

the

rank

of

lieutenant

or

12R.C.4117.01(C).

13R.C.4117.01(G),4117.03(A)(4),and4117.08(A).

14R.C.4117.01,4117.03,and4117.08.

15R.C.4117.03and4117.09(C).

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above. Any bargaining unit of a fire department that does not conform to this

requirement on the acts effective date ceases to be an appropriate unit upon the

expirationofthecollectivebargainingagreementcoveringthatunitthatisineffecton

theactseffectivedateorthreeyearsaftertheactseffectivedate,whichever isearlier.

Thereafter, SERB must designate the appropriate unit for the fire department in

accordancewiththeactsrequirements.16

Recognition procedures

Under continuing law, an employee organization becomes the exclusive

representativeofabargainingunitinoneofthefollowingways: (1)bybeingcertified

bySERBafteraSERBconductedelection,or(2)throughfilingarequestforrecognition.

Under theact, ifanemployerhas filedapetition forelection, theactprohibitsSERB

from certifying any exclusive representative without an election unless, under

continuing law, SERB determines that a free and untrammelled election cannotbe

conductedbecause of the employers unfair labor practices and that at one time the

employeeorganizationhadthesupportofthemajorityoftheemployeesintheunit.

TheactlimitsthepriorlawrestrictionthatSERBcouldnotconductanelectionin

anyappropriatebargainingunitwithinwhichaSERBconductedelectionwasheld in

thepreceding12monthperiod,norduringthetermofanylawfulcollectivebargaining

agreement, to those agreements entered into before the acts effective date.

Additionally,theactpermitsapetitionforelectiontobefiledwithSERBnosoonerthan

120daysbeforetheexpirationdateofanycollectivebargainingagreementorafterthe

expirationdate. Priorlawlimitedthefilingperiodtonosoonerthan120daysbutno

later

than

90

days

before

the

expiration

date.

The

act

also

removes

the

restriction

that

thepetition canonlybe filedafter the expirationdateuntil thepublic employerand

exclusiverepresentativeenterintoawrittenagreement.

Under the act,no collectivebargaining agreement entered intoonor after the

acts effective date canbar the conduct of an election or certification pursuant to a

petitionthatistimelyfiledinaccordancewiththeact.17

Withrespecttoarequestforrecognition,theactextendsthetimeperiodduring

which an employee canobject to the certificationof an employee organization as an

exclusive

representative

from

21

days

to

30

days.

The

act

also

requires

SERB

to

investigatearequestforrecognitiononthe31stdayfollowingtherequest,unlessbythe

16R.C.4117.06.

17R.C.4117.07.

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30thday(extendedfrom21daysunderpriorlaw)followingtherequestSERBreceives

anyofthefollowingundercontinuinglaw:

Apetitionforelectionfromthepublicemployer;

Substantial evidence based on, and in accordance with, SERB rules

demonstrating that a majority of the employees in the describedbargaining unit do not wish to be represented by the employee

organizationfilingtherequestforrecognition;

Substantialevidencebasedon,and inaccordancewith,SERBrules from

another employee organization demonstrating that at least 10% of the

employeesinthedescribedbargainingunitwishtoberepresentedbythe

otheremployeeorganization;

Substantial evidence based on, and in accordance with, SERB rules

indicatingthattheproposedunitisnotanappropriateunit.

Underprior law,SERBwas required to certify theemployeeorganization that

filedtherequestbythe22nddayaftertherequestwasfiledunlessSERBreceivedthe

petitionorevidencedescribedabove.

Regardless of the procedures described above, under continuing law a public

employercannotrecognizeanemployeeorganizationasanexclusiverepresentativeifa

lawful written agreement, contract, or memorandum of understanding exists on the

acts effective date (changed from the sections effective date under prior law)

recognizing another employee organization or if the employee organizationtraditionally is the only representative of the unit. Under the act, nonexclusive or

deemed certified recognition previously granted through an agreement or

memorandum of understanding does not preclude SERB from doing any of the

following:

Determininganappropriateunit;

If necessary, removing classifications from abargaining unit under an

existing nonexclusive contract, agreement, or memorandum of

understanding;

Holdinganelectiontodetermineanexclusiverepresentativeforallthose

employeesdeemedapartoftheappropriateunit.18

18R.C.4117.05.

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Theactallowsanotheremployeeorganization,employeescurrentlyrepresented

bytheemployeeorganization,orthepublicemployerofthepublicemployeestofilea

petition for decertification with theboard that is supportedby substantial evidence,

basedonand inaccordancewith rulesadoptedbySERB,demonstrating thatat least

30% of the employees in the describedbargaining unit support the petition. The

petitionmaybesubmittedatanytimesubsequentto120dayspriortotheexpirationof

thecollectivebargainingagreement.Undercontinuinglaw,ifapetitionisfiledbyany

employeeorgroupofemployees,oranyindividualoremployeeorganizationactingin

theirbehalf, asserting that the designated exclusive representative is no longer the

representative of the majority of employees in the unit, SERB must investigate the

petition,andifithasreasonablecausetobelievethataquestionofrepresentationexists,

provideforanappropriatehearinguponduenoticetotheparties. Ifafterthehearing

SERBdeterminesthataquestionofrepresentationexists,SERBconductsanelectionin

accordancewithcontinuinglawprocedures.19

Subjects for collective bargaining

Mandatory subjects of collective bargaining

AsdiscussedunderRights of public employees under the PECBLabove,the

acteliminatestherighttocollectivelybargainregardingthecontinuation,modification,

orterminationofanexistingprovisionofacollectivebargainingagreement.Underthe

act, any existing provision of a collectivebargaining agreement that was modified,

renewed, or extended from a prior collective bargaining agreement that does not

concernwages,hours,and termsandconditionsmustnotbeamandatory subjectof

collectivebargaining and must notbe subject to any impasseprocedure without the

mutual agreement of both the public employer and exclusive representative. The

inclusionofaprovisioninapreviouscollectivebargainingagreementcannotbeusedas

abasis for the provisionbeing determined to concern wages, hours, and terms and

conditions.

The act expands the subjects that are inappropriate subjects for collective

bargainingtoincludethefollowing:

(1)Employerpaid employee contributions to any of the five public employee

retirement systems (see Employee contributions to public employee retirement

systemsbelow);

(2)Health carebenefits, except for the amount of the premium for which a

publicemployerandthepublicemployeesofthepublicemployerpays.Theprovision

19R.C.4117.05(C)and4117.07.

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ofhealthcarebenefitsforwhichtheemployerisrequiredtopaymorethan85%ofthe

costisnotanappropriatesubjectforcollectivebargaining.(SeeHealth care benefits,

below.)

(3)The privatization of a public employers services or contracting out of the

publicemployerswork;

(4)The number of employees required to be on duty or employed in any

department,division,orfacilityofapublicemployer.

Withrespecttohealthcarebenefits,theactstatesthattheprovisionofhealthcare

benefitsforwhichtheemployerisrequiredtopaymorethan85%ofthecostisnotan

appropriate subject for collectivebargaining. The act prohibits any public employer

fromagreeingtoaprovisionthatrequiresthepublicemployertopaymorethan85%of

thecostpaidforhealthcarebenefits.Undertheact,anylawpertainingtotheprovision

of health care benefits to public employees prevails over conflicting collective

bargainingagreements.20

Rights reserved to the public employer

The act eliminates the requirement that a public employer must collectively

bargainonsubjectsreservedtothemanagementanddirectionofthegovernmentalunit

that affect wages, hours, terms and conditions of employment and the continuation,

modification,ordeletionofanexistingprovisioninacollectivebargainingagreement.

Underpriorlaw,unlessapublicemployeragreedotherwiseinacollectivebargaining

agreement,thePECBLdidnotimpairtherightofthepublicemployertotakespecified

actions. The act requires the public employer to specifically agree otherwise in anexpresswrittenprovisionofacollectivebargainingagreementtoimpairtherightofthe

publicemployertodoanyofthefollowing:

Hire, discharge, transfer, suspend, or discipline employees (similar to

priorlaw);

Determine the number of persons required tobe employed or laid off

(similartopriorlaw);

Determinethe

qualifications

of

employees;

Determine thestartingandquitting timeand thenumberofhours tobe

workedbyitsemployees;

20R.C.4117.08(A),(B),and(E)and4117.10,withconformingchangesinR.C.9.90and4117.03.

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Makeanyandallreasonablerulesandregulations;

Determinetheworkassignmentsofitsemployees;

Determinethebasisforselection,retention,andpromotionofemployees;

Determine

the

type

of

equipment

used

and

the

sequence

of

work

processes,exceptasprovidedbelow;

Determine the making of technological alterations by revising either

processorequipmentorboth,exceptasprovidedbelow;

Determine work standards and the quality and quantity of work tobe

produced;

Selectandlocatebuildingsandotherfacilities;

Establish,expand,transfer,orconsolidateworkprocessesandfacilities;

Transferorsubcontractwork;

Consolidate, merge, or otherwise transfer any or all of its facilities,

property,processes,orworkwithor toanyothermunicipalcorporation

orentityoreffectorchangeinanyrespectthelegalstatus,management,

orresponsibilityofsuchproperty,facilities,processes,orwork;

Terminateoreliminatealloranypartofitsworkorfacilities.21

Although the act limits the topics of collectivebargaining as described above,

under the act, equipment issues directly related to personal safety are subject to

collectivebargaining.22

Considerations during negotiations

Duringnegotiationsbetweenapublicemployerandanexclusiverepresentative,

theactrequires theparties toconsider, forpurposesofdetermining theabilityof the

publicemployertopayforanytermsagreedtoduringcollectivebargaining,onlythe

financialstatusofthepublicemployeratthetimeperiodsurroundingthenegotiations.

When determining whether the employer can pay for those terms, the parties must

21R.C.4117.08(C).

22R.C.4117.08(F).

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consider theemployers inability topay. Thepartiesmaynotbase theabilityof the

publicemployertopayforthosetermsoneitherofthefollowing:

(1)Any potential future increase in the income of the public employer that

would onlybe possibleby the employer obtaining funding from an outside source,

includingthepassageofalevyorabondissue;

(2)Theemployersabilitytosellassets.23

Provisions in and approval of agreements

Education provisions

Theactprohibitsapublicemployerthatisaschooldistrict,educationalservice

center,aconversioncommunityschoolthatengagesincollectivebargaining,orSTEM

schoolfromenteringintoacollectivebargainingagreementonoraftertheactseffective

datethatdoesanyofthefollowing:

(1)Requires the public employer to employ a minimum number of total

personneloranycategoryofpersonnel;

(2)Restricts theauthorityof thepublicemployeroradistrictorservicecenter

superintendent to assign personnel to schoolbuildingsor restricts the authority of a

buildingprincipaltodesignatetheresponsibilitiesandworkloadsofpersonnelassigned

tothebuilding;

(3)Establishes a maximum number of students who may be assigned to a

classroomorteacher;

(4)Prohibits the public employer from making reductions in teachers or

nonteachingemployeesforspecifiedreasonsoradoptedinanauthorizedpolicy;

(5)Restricts the authority of the public employer, when making personnel

reductions,todeterminetheorderoflayoffs;

(6)Restricts the authority of the public employer to acquire noneducational

servicesfromanotherpublicorprivateentitythroughcompetitivebidding;

(7)Restricts the authority of the public employer to acquire any products,

programs,orservicesfromaneducationalservicecenterundercontinuinglaw;

23R.C.4117.08(D).

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(8)Otherwise relinquishes, impairs, or restricts the managerial rights and

responsibilitiesofthepublicemployer.

Theact requiresa collectivebargainingagreemententered intoonorafter the

acts effective datebetween a public employer that is a school district, educational

servicecenter,aconversioncommunityschoolthatengagesincollectivebargaining,or

STEMschoolandthatpublicemployersemployeestocomplywithallapplicablestateor local laws or ordinances regarding wages, hours, and terms and conditions of

employmentofpublicemployees,exceptthatthecollectivebargainingagreementmay

includeaprovisionthatconflictswithanapplicable laworordinance iftheprovision

establishesbenefitsthatarelessthanthebenefitsconferredbythelaworordinanceand

the law or ordinance has notbeen expressly deemed to prevail over the conflicting

provision.Theactdeclaresvoidanyprovisionoftheagreementthatconflictsandthat

doesnotfulfilltheexception.Undertheact,apublicemployerdescribedimmediatelyaboveisnotrequiredto,

and may refuse to bargain on the continuation, modification, or termination of a

provisionofanexistingcollectivebargainingagreement.24

Fiscal watch or emergency

Theactprohibitsanyagreemententered intounder thePECBLonorafter the

acts effective date from prohibiting a public employer that the Auditor of State has

declared tobe in a state of fiscal watch from serving a written notice to modify a

collective bargaining agreement so that salary or benefit increases, or both, are

suspended. Additionally, the act prohibits any agreement entered into under the

PECBLonorafter theactseffectivedate fromprohibitingapublicemployer that the

GovernororAuditorofStatehasdeclaredtobeinastateoffiscalemergencyorinthe

caseof a stateuniversityor college, that a conservatorhasbeen appointed for, from

serving a written notice to terminate, modify, or negotiate a collective bargaining

agreement. If the public employer sends either of these notices, the parties may

collectivelybargainandenter intoanewcollectivebargainingagreementpursuant to

theproceduresprescribedinthePECBL.

Theact requireseachagreemententered intounder thePECBLonorafter the

act

s

effective

date

to

contain

a

statement

that

the

agreement

may

be

terminated,

modified,ornegotiatedasdescribedimmediatelyabove.25

24R.C.4117.081.

25R.C.4117.104.

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Fair share fees

The actprohibits an agreement from containing aprovision that requires as a

conditionofemployment that theemployees in theunitwhoarenotmembersof the

employeeorganizationpaytotheemployeeorganizationafairsharefee.

Underprior

law,

acollective

bargaining

agreement

between

apublic

employer

and employee organization could require, as a condition of employment, that any

public employee whowas in thebargaining unitbutwhowas not a member of the

employeeorganizationpayafairsharefee.Thisfeewasautomaticallydeductedfrom

thepublicemployeespay,butpartscouldbe rebated forexpenditures in supportof

partisan politics or ideological causes not germane to the work of the employee

organization incollectivebargaining. Also, thosepublicemployeeswho,onreligious

grounds,objectedtojoiningorfinanciallysupportinganemployeeorganizationcould

payanamountofmoneyequaltothefairsharefeetoacharitablefundinlieuofthefair

sharefee.Becausenoemployeecanberequiredtopayafairsharefeeundertheact,the

actremovestheseprovisions.26

Grievance procedures, automatic deductions, and layoffs

The act limits the application of the grievance procedure required under

continuinglawtounresolvedgrievancesthatarebasedonthedisputedinterpretations

oftheexpresswrittenprovisionsoftheagreement.Previously,thegrievanceprocedure

addressedunresolvedgrievancesanddisputedinterpretationsofagreements.

Theactalso limitsthecontinuing lawrequirementthatanagreementcontaina

provisionto

authorize

the

public

employer

to

deduct

the

periodic

dues,

initiation

fees,

and assessments of members of the exclusive representative upon presentation of a

writtendeduction authorizationby the employee. The actpermits thisdeduction to

occuronly if the employeeorganizationhas filedandmaintained its financial report

outliningtheorganizationsexpendituresasrequiredundercontinuinglaw.

Undertheact,nopublicemployermayagreetoaprovisionthatprovidesforthe

payrolldeductionforanycontributionstoapoliticalactioncommitteeusinganyother

methodthanthemethodprescribedinOhiosCampaignFinanceLaw.Underthatlaw,

writtenauthorizationmustbeobtainedfromtheemployeebeforeautomaticdeductions

forcertainpoliticalcontributionsmaybemade.ThisisconsistentwiththecontinuingCampaignFinanceLawregardingthesedeductions,asthatlawalreadyprevailedover

conflictingagreements.

26R.C.4117.09(C),withconformingchangesinR.C.9.81and4117.11.

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Theactprohibitsapublicemployerfromagreeingtoaprovisioninacollective

bargainingagreement thatrequires thepublicemployer,whenareduction in force is

necessary, to use an employees length of service as the only factor to determine

whethertolayofftheemployee.27Privatization

AsdiscussedunderMandatory subjects of collective bargainingabove,the

act eliminates privatization of a public employers services or contracting out of the

public employers work as an appropriate subject of collectivebargaining. The act

furtherprohibitsanyagreemententeredintoorrenewedunderthePECBLonorafter

theactseffectivedatefromcontaininganyprovisionthatinanywayprohibitsapublic

employer fromentering intoacontractwithanotherpublicorprivatesectorentity to

privatizethepublicemployersservicesorthecontractingoutofthepublicemployers

work.Additionally,thatagreementcannotcontainanyprovisionsthatcausethepublic

employertodoanyofthefollowing:

Retain existing employees as employees of the public employer if their

workisprivatizedorsubcontractedtoanotherentity;

Pay any additional payments to employees who maybe laid off as the

result of such privatization or subcontracting, except for payments for

accumulated time or leave credits that would normallybe paidby the

publicemployer toanyotheremployeewho is laidoff forreasonsother

thanthesubcontractingorprivatizationoftheirwork.

Theactmakesanyprovision inconsistentwith theserequirementscontained inan agreement entered into or renewed on or after the acts effective date void and

unenforceable.28

Leave accrual and pay out

Theactprohibitsacollectivebargainingagreemententered intoorrenewedon

or after the acts effective date from containing any provision that allows accrual of

leavecreditsinexcessofthefollowing:

6

weeks

annually

of

paid

vacation

prior

to

20

years

of

service;

12paidholidaysannually;

27R.C.4117.09(B),(C),and(F),withreferencetoR.C.3517.082,3517.09,and3599.031.

28R.C.4117.105.

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3paidpersonaldaysannually.For purposes of these determinations, day means eight working hours and

weekmeans 40working hours for employees working a normally scheduled work

week. Thoseemployeesworking aworkweek that exceedsor is less than 40hours

musthavethenumberofhoursperdayorweekincreasedorreducedproportionately

basedon thedifference inhoursbetween theemployeesaverageworkweekand40hours.29

Theactalsoprovides thatnocollectivebargainingagreement that ismodified,

renewed,extended,orentered intoonorafter theactseffectivedate ispermitted to

providevacationleaveinanamountgreaterthanthatprovidedinstatute,whichcaps

vacation leave at 7.7 hours perbiweekly pay period for employees with 19 or more

yearsofservice(seeVacation and sick leave).30

Theactprohibitsacollectivebargainingagreemententered intoorrenewedon

oraftertheactseffectivedatefromcontainingaprovisionfortheexchangeorsellbackof apublic employeesaccumulatedpaid sick leavebalance at thepublic employees

final retirement or death that provides for a cash payment that exceeds 50% of the

public employees total sick leave accumulations and for accumulated sick leave in

excessof1,000hours.Thepaymentmustbebaseduponthepublicemployeeshourly

rateofpayat timeof final retirement,unless theemployee isamemberof theOhio

PoliceandFirePensionFundandparticipatesintheDeferredRetirementOptionPlan

(DROP). For that type of employee, the payment mustbebased upon the public

employeeshourlyrateineffectatthetimetheemployeeenteredDROP.

For purposes of this provision, final retirement means when an employee

retiresandisimmediatelyeligibletoreceivepensionbenefitsbysatisfyingthenormal

lengthofserviceandagequalificationsorasaresultofdisability.31

Restrictions for DROP participants

Theactalso includes limitationswith respect toDROPasadministeredby the

OhioPoliceandFirePensionFund. Theactprohibitsanyagreemententered intoor

renewed under the PECBL on or after the acts effective date from containing any

provisionsthatdoanyofthefollowing:

29R.C.4117.108.

30R.C.124.134(F).

31R.C.4117.109.

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Provide for any supplemental wage payments based on length of

employmenttoanyemployeeparticipatinginDROP;

Provideforanyannualpaidvacationleaveearninginexcessoffiveweeks

toanyemployeeparticipatinginDROP;

Provide for the ability of any employee participating in DROP to carryover vacation leave from one year to another that exceeds a total

accumulationoftheequivalentofthreeyearsvacationleave;

ProvidethebasisforthepaymenttoanyemployeeparticipatinginDROP

of any accumulated paid leave that isbased on an employees hourly

wagerategreaterthantheemployeeswagerateonthedatetheemployee

commencedparticipatinginDROP.

The act requires the Ohio Police and Fire Pension Fund to notify the public

employer of the respective employee of the date upon which the employee enteredDROPandtonotifythepublicemployerofthedateanyemployeeenteredDROPprior

totheactseffectivedate.32

Other provisions

Theactalsoprohibitsacollectivebargainingagreemententeredintoorrenewed

on or after the acts effective date from containing a provision that does any of the

following:

Limits a public employer in determining the number of employees it

employsorhasworkingatanytime, inanyfacility,building,classroom,

onanyworkshift,oronanypieceofequipmentorvehicle,exceptthatan

agreementmaycontainprovisionsregardingcertainequipment issues in

accordancewithRights reserved to the public employer,above;

Provides for the public employer to pay any portion of a public

employees state pension contributions or payments as described under

Mandatory subjects of collective bargaining,above;

Provides

for

an

hourly

overtime

payment

rate

that

exceeds

the

overtime

raterequiredbythefederalFairLaborStandardsAct.

32R.C.4117.107.

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Requires the public employer to adhere to, follow, or continue any

practices or benefits not specifically set forth in the specific written

provisionsoftheagreement.

Theactmakesanyprovisioninconsistentwiththerequirementslistedabovethat

iscontainedinanagreemententeredintoorrenewedonoraftertheactseffectivedate

voidandunenforceable.33

Agreement approval

Theactextendsthedatebywhichthepublicemployermustsubmitarequestfor

funds necessary to implement an agreement and for approval of any other matter

requiringtheapprovaloftheappropriatelegislativebodytothelegislativebodyto30

days after the agreement is finalized, rather than 14 days under prior law, unless

otherwisespecified.Iftheappropriatelegislativebodyisnotinsessionatthetime,then

under continuing law the public employers must submit the request within 14 days

afterthelegislativebodyconvenes.34

Supervisor pay

The act prohibits compensation of a supervisor who is not a member of an

employeeorganizationfrombeingautomaticallytiedtothecompensationnegotiatedin

acollectivebargainingagreementthatappliestootherpublicemployeesofthepublic

employerthatemploysthesupervisor.35

Dispute resolution procedures

Theactmakes severalchanges to theprocedures thatgovern thesettlementofdisputes between an exclusive representative and a public employer concerning

collectivebargainingagreements.

Duty to bargain

The act removes any requirement that the public employer and exclusive

representativecollectivelybargainonthecontinuation,modification,orterminationof

aprovisionofanexistingagreement.Theactspecificallyallowsthepartiestorefuseto

collectivelybargain on these issues under the same circumstances. Continuing law

requires the parties to enter into collectivebargaining under all other circumstances

33R.C.4117.106.

34R.C.4117.10(B).

35R.C.4117.10(D).

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upon receiving a written notice from the other party of the proposed termination,

modification,orsuccessoragreement.Theactalsoextendsthetimelinefor initialnegotiations. Undertheact,parties

negotiatinganinitialagreementmustoffertomeetforaperiodof120days,increased

from90daysunderpriorlaw,forpurposesofnegotiatinganagreement.

The act also specifically requires,with respect to parties thathave an existing

agreement, that the parties, not less than 105 days prior to the existing agreements

expiration date, offer tobargain collectively with the other party for the purpose of

modifyingorterminatinganyexistingagreementornegotiatingasuccessoragreement

andnotifySERBoftheofferbyservinguponSERBacopyofthewrittennoticetothe

otherparty and a copyof the existing collectivebargaining agreement. While these

actionsarerequiredundercontinuing law,prior lawdidnot includetimelinesforthe

actionstooccur.Theactalsorequiresthesepartiestocontinueinfullforceandeffect

allthetermsandconditionsofanyexistingcollectivebargainingagreementforaperiod

of105days,increasedfrom60daysunderpriorlaw,afterthepartygivesnoticeoruntil

theagreementsexpirationdate,whicheveroccurslater.36

Mediation

The act eliminates the ability of the parties to submit disputed issues to a

mutuallyagreedupondispute resolutionprocedure. Underprior law, ifatany time

prior to 45daysbefore an existing agreementexpired theparties couldnot reachan

agreement,thepartiescouldagreetosubmitthedisputetoagreedtodisputeresolution

proceduressuchasconventionalarbitrationoraconciliatorscouncil.

TheactalsochangesthepriorlawtimelinestorequestSERBtointerveneandfor

SERBtoappointamediator. Thus,undertheact,ifthepartiesareunabletoreachan

agreement75daysbeforethecollectivebargainingagreementexpires,changedfrom50

daysunderpriorlaw,anypartymayrequestSERBtointervene.Undercontinuinglaw

therequestmustsetforththenamesandaddressesoftheparties,theissuesinvolved,

and,ifapplicable,theexpirationdateofanyagreement.SERBthenmustinterveneand

investigate the dispute to determine whether the parties have engaged in collective

bargaining.Ifanimpasseexistsor70daysbeforetheexpirationdateoftheagreement,

changed

from

45

days

under

prior

law,

SERB

also

must

appoint

a

mediator

to

assist

the

partiesinthecollectivebargainingprocess.37

36R.C.4117.14(B).

37R.C.4117.14(C)and(E)(repealed).

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Fact-finding

Under the act, similar to prior law, any time after a mediator is appointed, a

party may request the appointment of a factfinder, instead of a factfinding panel

under prior law. The act also requires, if no agreement exists 45 daysbefore the

expirationofthecollectivebargainingagreement ifoneexists,SERBtoappointafact

finder. The act requires the factfinder to be appointed pursuant to the sameprocedures as a factfinding panelunderprior law, and the factfinder operates in a

similarmannerasafactfindingpanel,whichissimilartoadvisoryarbitration.

In making the factfinders findings of fact and recommendations, the act

requiresafactfindertotakeallofthefollowingfactorsintoaccount,manyofwhichare

the same factorsa factfindingpanelor conciliatorwas required to take intoaccount

underpriorlaw:

(1)Astheprimaryconsideration,theinterestsandwelfareofthepublicandthe

abilityofthepublicemployertopayforandadministertheissuesproposed,consistentwith therequirementsdescribedunder Considerations during negotiationsabove

(similartopriorlaw,exceptpriorlawdidnotrequirethistobetheprimaryfactoror

thoseconsiderationstobetakenintoaccount);

(2)Pastcollectivelybargainedagreements,ifany,betweentheparties(sameas

priorlaw);

(3)Comparisonoftheissuessubmittedtofactfindingrelativetotheemployees

in thebargainingunit involvedwith those issues related tootherpublic andprivate

employeesdoingcomparablework,givingconsiderationtofactorspeculiartotheareaandclassificationinvolved(sameaspriorlaw);

(4)Thelawfulauthorityofthepublicemployer(sameaspriorlaw);

(5)Thestipulationsoftheparties(sameaspriorlaw);

(6)The compensation paidby the public employer to the public employers

public employees who are not members of thebargaining unit representedby the

exclusive representative or who are members of that bargaining unit but are not

membersof

the

exclusive

representative;

(7)Theeffectoftherecommendationsonthepublicemployersemployerwide

collectivebargainingprogramandpractices,and thepotential increases incost to the

publicemployer;

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(8)Suchother factors,not confined to those listed in (1) to (7) above, thatare

normally or traditionally taken into consideration in the determination of the issues

submittedtofinaloffersettlementthroughvoluntarycollectivebargaining,mediation,

factfinding,orother impasseresolutionprocedures inthepublicserviceorinprivate

employment(sameaspriorlaw).

The act permits factfinding hearings tobe open to the public if either partyrequests. The factfinders finding of fact and recommendations on the unresolvedissuesmustbe sent to thepublicemployer, theemployeeorganization,andSERBno

later than 15 days prior to the date the collective bargaining agreement expires

(changedfrom14afterthepanelisappointedasunderpriorlaw).Theactrequiresthe

factfinder to includewith its findingsof fact and recommendations awritten report

explaininghoweachof the factorsdescribed in (1) to (8) immediatelyabove factored

intothepanelsfindingsandrecommendations.38Final resolution

The act changes the timeline for the parties to vote regarding the factfinders

findings of fact and recommendations from 7 to 15 days after the findings and

recommendations are sent or after the collective bargaining agreement expires,

whicheveroccursearlier. Theactdecreasestheamountofthevotenecessarytoreject

the findingsand recommendations toamajorityof themembershipof the legislative

body or the total membership of the employee organization from threefifths of the

respectivemembershipsunderpriorlaw.Undercontinuinglaw,ifneitherpartyrejects

the recommendations, the recommendations constitute the final resolution of the

disputed

issues

and

a

collective

bargaining

agreement

must

be

executed

between

the

parties.However,ifeitherpartyrejectsthefindingsandrecommendations,SERBmust

publicizethefindingsandrecommendations.

Ifeitherpartyrejectsthefindingsandrecommendations,thenpreviouslyatthis

point in the process, those parties who were permitted to strike could do so in

accordancewithprior lawprocedures. Thosewhowerenotpermitted to strike (see

Background employees who are not permitted to strike,below)wererequiredto

submitthedisputetofinaloffersettlementprocedure(commonlyreferredtoasbinding

arbitration), during which a conciliator chosebetween the issues submittedby the

parties. Theact,

however,

generally

prohibits

public

employees

from

striking

(see

Prohibition against strikes above) and also eliminates the final offer settlement

procedure.

38R.C.4117.14(C)(1)to(3)and4117.21,withconformingchangesinR.C.4117.02.

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Undertheact,ifthepartiesareunabletoreachagreementwithinfivedaysafter

the publication of findings and recommendations from the factfinder or within five

daysafterthecollectivebargainingagreement,ifoneexists,hasexpired,thenthechief

executiveofficerofthepublicemployerinvolvedmustsubmittothelegislativebodyof

thepublicemployeracopyof thepublicemployers lastbestoffer,and theexclusive

representativemustsubmittheexclusiverepresentativeslastbestoffer. Forpurposes

ofthisprovision,legislativebodymeansanyofthefollowing:

Withrespecttothestateoranyagency,authority,commission,orboardof

thestate,theControllingBoard;

With respect to a state institution of higher education, the board of

trusteesoftheinstitution;

Withrespecttopublicemployeeswhoaremembersofanexclusivenurses

unit and who are employedby a hospital, theboard of trustees of the

hospital.

After receiving the required submissions, the legislative body or a duly

authorizedcommitteeof the legislativebodymustconductahearing,within15days

afterthedatethecollectivebargainingagreementexpires,atwhichthepartiesmustbe

required toexplain theirpositionswithrespect to thereportof the factfinder. After

receiptofthesubmissionsandpriortothehearing,thelegislativebodymusthavethe

chieffinancialofficerofthelegislativebodydeterminewhichlastbestoffercostsmore.

Thechieffinancialofficermustcertifytheresultsofthedeterminationtothelegislative

body. The legislativebody must hold the hearing open to the public and must not

deemthehearinganexecutivesessionofthelegislativebody.Upontheconclusionof

thehearing,thelegislativebodymustvote,within15daysafterthedatethecollective

bargaining agreement expires, to accept either the last best offer of the exclusive

representative or the last best offer of the public employer. Similar to prior law,

increases in rates of compensation and other matters with cost implications maybe

effective only at the start of the fiscal year next commencing after the date of the

decisionofthelegislativebody;providedthatifanewfiscalyearhascommencedsince

the submission to the legislativebody for a decision, the awarded increases maybe

retroactive to the commencementof thenew fiscalyear. Thepartiesmust execute a

collective bargaining agreement that represents the last best offer chosen by thelegislativebodyandthatagreementmustbeeffectiveforatermofthreeyears.

If,byreasonofatievote,orforanyotherreason,thelegislativebodydoesnot

accept either lastbest offer within 15 days after the date the collectivebargaining

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agreement expires, then the public employers lastbest offerbecomes the agreement

betweentheparties,andthatagreementmustbeeffectiveforatermofthreeyears.39

Voter approval

With respect to an agreement involving a public employer that has a defined

geographicarea

located

within

Ohio

that

is

not

the

state,

astate

institution

of

higher

education,orapublicemployer thatdoesnothaveadefinedgeographicareawithin

Ohio,theactrequires,withinthreedaysafterthelegislativebodyselectsalastbestoffer

as described under Final resolution above or the public employers lastbest offer

becomestheagreementduetothefailureofthelegislativebodytomakeaselectionas

describedabove,asapplicable, thechief financialofficerof the legislativebodyofthe

publicemployertodeterminewhethersufficientrevenuesexisttocovertheagreement.

If the legislativebody selects the lastbest offer that the chief financial officer

determines costs more and if the chief financial officer determines that insufficient

funds exist or refuses tomake thedetermination required immediately above, eitherpartytotheagreementoranyconstituentwhoresideswithinthegeographicalareaof

thepublicemployerthatisapartytotheagreementmaysubmitthelastbestofferfrom

eachpartythatwassubmittedtothelegislativebodytotheelectorsinaccordancewith

theact.Thepartyorconstituentmustsubmittotheboardthesignaturesofeither5%of

the number of electors within that area that voted in the most recent gubernatorial

electionor100electorswhoreside in thegeographicarea,whichever isgreater. The

petition for collecting the signaturesmust include a summaryof each lastbestoffer.

The signatures must comply with the continuing law requirements concerning

petitions.

The

signatures

must

be

submitted

not

later

than

75

days

prior

to

the

date

of

theelectiondescribedbelow.Ifthepetitioncontainstherequirednumberofsignatures,

theboardmustsubmitthelastbestofferstotheelectors.

Duringthetimeperiodbetweenthedatethatthequestionisrequiredtoappear

ontheballotandthedatetheboardcertifiestheresultsoftheelection,thepartiesmust

implementtheprovisionsofthepublicemployerslastbestoffer.

Ifthe lastbestoffersarerequiredtobesubmitted totheelectorsundertheact,

theboardmustplacethefollowingquestionontheballotatthenextsucceedinggeneral

election

or

at

a

special

election

on

the

day

of

the

next

succeeding

primary

election

in

anyyearoccurringsubsequentto75daysafterthepetitionisfiled:

39R.C.4117.14(C)(4)and(D).

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Votefornotmorethanone:

Theunionslaborcontractproposal

The(nameofpublicemployer)laborcontractproposal

Theact

requires

each

party

to

the

agreement

to

prepare

asummary

of

their

respective lastbestoffers, and theboardmust include those summaries in theballot

language. The summaries mustbe filed with the appropriateboard of elections not

laterthan65daysbeforethedateoftheelection.Nosummaryispermittedtoexceed

300words.

Under the act, only electors who reside within thejurisdiction of the public

employerareeligibletovoteontheissue.Theboardmustplaceacopyofeachlastbest

offerateachpollinglocationatwhichtheelectorsvoteontheissue.Additionally,the

legislativebodymustposton thewebsiteof the legislativebody the full textofeach

lastbestoffersubmittedtothelegislativebody.

Theactrequiresnoticeoftheelectiontobepublishedinanewspaperofgeneral

circulationintheapplicablevotingareaonceaweekfortwoconsecutiveweekspriorto

the election, and if theboard of elections maintains a web site, theboard mustpost

noticeoftheelectiononthewebsitefor30dayspriortotheelection.Eachnoticemust

containthesummariespreparedbytheparties.

Under the act, the electionmustbe conducted, canvassed, and certified in the

samemannerasregularelections.Thelastbestofferreceivingamajorityofthevotes

cast in the election mustbecome the agreement of the parties. The act requires theparties to enter into the agreement in accordance with the last best offer upon

certificationby theboard of the results of the election. The public employer and

exclusiverepresentativemustbesubjecttothelastbestofferselectedbytheelectorsfor

threeyearsafterthedatetheresultsoftheelectionarecertified.

The act requires any agreement entered intounder thePECBL onor after the

actseffectivedatebyapublicemployerthatissubjecttothevoterapprovalprocedure

tocontainaprovisionthatstatesthattheagreementmaybesubjecttoapprovalofthe

votersasdescribedabove.40

Publication requirements

TheactrequiresSERBandpublicemployerstopostinaconspicuouslocationon

theweb sitemaintainedbySERBor theemployer, respectively, the termsof the last

40R.C.4117.141.

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collectivebargainingagreementofferedbythepublicemployerandthetermsofthelast

collective bargaining agreement offered by the exclusive representative at specific

times. WhenSERBappointsamediator,thenSERBandtheemployermustpromptly

post.Ifafactfinderisappointed,thenSERBandtheemployermustpromptlypost.41Unfair labor practices

Theactexpandsthecontinuinglawlistofactionsthatconstituteanunfairlabor

practice by an employee organization, its agents, or representatives, or public

employeestoincludebothofthefollowing:

Inducingorencouraginganyindividualtoengageinasecondaryboycott

whether under the existing agreement or as part of another employee

organizationsconcertedactivity,whetherinthepublicorprivatesector;

Insistingthatapermissivesubjectofcollectivebargainingbebargainedto

impasse.

The act makes striking or other concerted refusal to work an unfair labor

practice.Previously,thoseactivitieswereanunfairlaborpracticeonlyiftheemployee

organizationorpublicemployeesfailedtoprovidetherequirednotice.

Under the act, expression of any views, argument, or opinion, or the

dissemination of any of those items, whether in written, printed, graphic, or visual

form, cannot constitute or be evidence of a public employers or an employee

organizations engagement in an unfair labor practice under the PECBL if the

expressioncontains

no

threat

of

reprisal

or

force

or

promise

of

benefit.42

A party may file a charge with SERB in the event of an unfair labor practice.

Undercontinuinglaw,thechargedpartymayfileananswertoanoriginaloramended

complaint. Under the act, the failure to file or timely file an answer must notbe

construed as any admission against the nonresponding party, and the party may

presentitsresponseorchallengetothechargeatanytimepriortothehearing.Theact

alsomakesthechargingpartyorthechargingpartysrepresentativeapartytoahearing

andallowsthechargingpartyorrepresentativetoappearorotherwisegiveevidence,in

additiontoSERBagentsandthepersonchargedundercontinuinglaw.

Under continuing law, a SERB member or administrative law judge who

conducts a hearing must issue a proposed decision and submit it to SERB. The act

41R.C.4117.14(C).

42R.C.4117.11(B)and(C).

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eliminates the requirement that if the parties file no exceptions within 20 days after

serviceof theproposeddecision, therecommendedorderbecomes theorderofSERB

effectiveasprescribed in thedecision. If theparties fileanexception,theactpermits

SERBtoconsideranyissuesraisedbyaparty.Undercontinuinglaw,SERBdetermines

based upon the preponderance of the evidence whether an unfair labor practice

occurredandifso,mayorderremedies.

In addition to continuing law remedies for an unfair labor practice, if SERB

determines thatanyof the followingunfair laborpracticeshaveoccurred,SERBmust

orderthesuspensionofthepaymentofduesorfeestotheemployeeorganizationfor

thegreaterof30daysortwotimesthedurationoftheillegalactivity:

An employee organization, its agents, or a public employee called,

instituted, maintained, or conducted a boycott against any public

employer, or picketed any place ofbusiness of a public employer, on

accountofanyjurisdictionalworkdispute.

An employee organization, its agents, or a public employee induced or

encouragedanyindividualtodoeitherofthefollowing:

o To engage ina strike inviolationof thePECBLor refusal tohandle

goodsorperformservices;

o To engage in a secondary boycott whether under the existing

agreement or as part of another employee organizations concerted

activity,whetherinthepublicorprivatesector.

An employee organization, its agents, or a public employee threatened,

coerced,orrestrainedanypersonwhereanobjectthereofwastoforceor

requireanypublicemployeetoceasedealingordoingbusinesswithany

other person, or force or require a public employer to recognize for

representationpurposesanemployeeorganizationnotcertifiedbySERB.

An employee organization, its agents, or a public employee induced or

encouragedanyindividualinconnectionwithalaborrelationsdisputeto

picket the residence or any place of private employment of any public

officialorrepresentativeofthepublicemployer.

An employeeorganization, its agents, or a public employee engaged in

anystrikingorotherconcertedrefusaltowork.

Oneofthecontinuinglawremediesforanunfairlaborpracticeisreinstatement.

However,apublicemployeecannotbereinstatedifthesuspensionordischargewasfor

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justcausenotrelatedtopublicemployeerightsunderthePECBL.Theactexpandsthis

prohibition to restrict reinstatement if the predominantbasis for the suspension or

dischargewasnotrelatedtopublicemployeerightsunderthePECBL.43

UndercontinuinglawanypersonaggrievedbyanySERBfinalordergrantingor

denyingthereliefsoughtmayappealtothecourtofcommonpleasofanycountywhere

theunfairlaborpracticeinquestionwasallegedtohavebeenengagedin,orwherethepersonresidesorprincipally(asaddedbytheact)transactsbusiness.Theactrequires

thecourt to immediately servea copyof thenoticeofappeal filed toallof theother

parties,notjusttoSERBasunderpriorlaw.44

Self-interest

Theactprohibitsapublicofficialoremployeefromparticipatingonbehalfofa

public employer in the collectivebargaining process with respect to any matter in

which the immediate family of the official or employee has a direct interest in the

outcome of the matter. Immediate family is a spouse residing in the personshouseholdandanydependentchild.45

Employee compensation reports

Beginningwiththefirstcollectivebargainingagreemententeredintoonorafter

theactseffectivedatebetweenapublicemployerandanexclusiverepresentative,and

foreachcollectivebargainingagreemententeredintoafterthattime,theactrequiresthe

public employer to submit a report to SERB concerning compensation paid to

employeesunder thecollectivebargainingagreement. The reportmust listallof the

following:

(1)Each provision in the collective bargaining agreement that affects the

compensationpaidbythepublicemployertoitspublicemployees;

(2)Adescriptionofthechangesincompensationpaidtothepublicemployers

publicemployeesthatarenotaddressedinthecollectivebargainingagreementbutwill

occurduringthetimeperiodthecollectivebargainingagreementisineffect;

(3)Anymaterialtermsoftheagreement.

43R.C.4117.12.

44R.C.4117.13.

45R.C.4117.20(B)andR.C.102.01(D),notintheact.

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Theactdefines compensation aswages, salary, andotherearningspaid toa

public employee by reason of employment. Compensation includes all of the

followingthatareprovidedbyapublicemployertoapublicemployee:(1)allowances

forfoodordrink,(2)allowancesorstipendsforclothing,(3)compensationinaddition

to base salary for labor performed or services rendered by the public employee,

includinganyadditionalcompensationpaidforattendinganeventthatoccursoutside

the public employees normal work schedule, (4) payments for length of service, (5)

allowancesfordrycleaningservices,(6)insurancecoverage,includinghealthinsurance,

vision insurance, dental insurance, disability insurance, or life insurance, and (7)

anythingofvaluegiventoapublicemployeebyapublicemployerforlaborperformed

orservicesrenderedbythepublicemployeethatisnotgenerallyofferedtoanyofthe

publicemployersemployeesthatarenotsubjecttoacollectivebargainingagreement,

unlesstheyaredeminimis.

The employer must submit the required report to SERB within 30 days after

enteringinto

the

collective

bargaining

agreement.

In

that

same

time,

the

employer

also

mustposta copyof the report ina conspicuousmanneron theemployersweb site.

SERBalsomustpostacopyofthereportinaconspicuousmanneronitswebsiteupon

receiptofthereport.

Ifapublicemployerdoesnotmaintainawebsite,thenthepublicemployermust

providecopiesofthereporttotwonewspapersofgeneralcirculation,inthecountyin

which thepublicemployer is located. If thepublicemployer is located inmore than

onecounty,thenthepublicemployermustprovidecopiesofthereporttonewspapers

ofgeneralcirculationinCincinnati,Cleveland,Columbus,andToledo.

If a change in compensation is to occur during the time period a collective

bargaining agreement is in effect and that change was not included in the report

submittedtoSERB,orifthepublicemployerandexclusiverepresentativeenterintoa

modifiedcollectivebargainingagreementduringthattimeperiod,thepublicemployer

mustsubmitanupdatedreporttoSERBnotlessthanfivedaysbeforethechangeisto

takeeffect.Theemployeralsomustposttheupdatedreportinaconspicuousmanner

onitswebsitenotlessthanfivedaysbeforethechangeistotakeeffect.Uponreceiving

theu

Am. Sub. S.B. 5

Documents

Transcript of Am. Sub. S.B. 5