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Union/Rivera 12-20-01
INTHEMATTEROFANARBITRATION BETWEEN: SENECACOLLEGE (The"Employer") -and ONTARIOPUBLICSERVICEEMPLOYEESUNION,LOCAL560 (The"Union") ANDINTHEMATTEROFTHECLASSIFICATIONGRIEVANCEOFJANETRIVERA BOARDOFARBITRATION DavidK.L.Starkman SherillMurray JohnPodmore APPEARANCESFORTHEEMPLOYER DanielMichaluk KellieGamble BarbWeisfeld APPEARANCESFORTHEUNION SheilaRiddell JaniceHagan LaurenceOlivo Chair UnionNominee EmployerNominee Counsel LabourRelationsOfficer Manager,LearningCentres Counsel President,OPSEULocal561 Vice-PresidentOPSEULocal560 AHearinginthismatterwasheldonSeptember14,October20,2010andJanuary17, March10,22,July14,November1,and11,2011atToronto,Ontario. FINALAWARD ThisdecisionconcernsaUnionpolicygrievanceandtheindividualgrievanceofJanet RiverabothallegingthatthepositionofAssistiveTechnologist,whichispresentlyinthe supportstaffbargainingunit,isproperlywithinthescopeoftheacademicbargaining unit.AtthecommencementofthehearingtheEmployermadeapreliminarymotion thattheBoardofArbitrationonlyhadjurisdictiontoheartheUnionpolicygrievanceand thattheindividualgrievanceshouldbedismissedbecauseanindividualsuchasthe grievorwhowasinthesupportstaffbargainingunitcouldnotbringagrievanceunder theprovisionsoftheacademicbargainingunit.TheBoardheardsubmissionsfrom boththeEmployerandtheUnionconcerningthisissueandreserveditsdecisiononthe motionuntiltheendofthehearing. ThegrievortestifiedthatshebeganworkingfulltimeattheCollegeinJune,2005asan AssistiveTechnologistinthesupportstaffbargainingunit.Atthattimeshehada AssistiveTechnologyCertificatefromCambrianCollegewhichsheobtainedin2005. HerjobatSenecaCollegeinvolvedidentifyingcomputerhardwareandsoftwareand otherequipmentthatwouldimprovethecapabilitiesofstudentswithdisabilities.More specificallysheselectedtheappropriateapparatusortoolwhichwouldassiststudents inimprovingtheirreading,writing,spelling,ororganizationalskills.Inthisroleshe assistedstudentswithamyriadofdifferentandperhapsoverlappingmentalhealthand cognitiveissues. ThegrievorstatedthattheCollegealsoemploysLearningStrategists,whoareinthe academicbargainingunit.TheseStrategistsmeetwithstudentswithlearning disabilitiesandprovidemethodsandapproachesforimprovementinareassuchas studyskills,reading,notetaking,timemanagement,planning,organization,testtaking andexampreparation.ShestatedthatanAssistiveTechnologisthassimilarjob functionswithrespecttotheidentificationanduseofcomputersoftwareandhardware toassiststudentswithreading,writing,organization,timemanagement,planning, organization,concentrationandfocus,andinherevidencethegrievordescribedin considerabledetailseveraloftheprogrammesthatareavailableandhowsuch programsprovideassistancetostudents. ThegrievorhadinputintothedevelopmentofthePositionDescriptionForm(PDF)for theAssistiveTechnologistpositionwhichwasfinalizedinMay,2007.ThePDF summaryprovidesasfollows: TheAssistiveTechnologistisresponsiblefortheprescriptionand instructionofassistivetechnologiesthatstudentswithdisabilitiesrequire tosupporttheiracademicactivitiesatSeneca.TheAssistiveTechnologist meetsinone-to-onesessionstoworkonspecificskillswithstudents,and generateprogressreportsforthestudentandtheircounsellor.The incumbentmustresearchandmaintainknowledgeofthemostcurrent assistivetechnologiesavailabletoassiststudents.Theincumbentmust beproficientinusingvarioustechnologiesforstudentswithphysical, visualandhearingimpairments,andlearningdisabilitiesinordertobe abletoinstructstudentsintheiruse.Inadditiontheincumbentmustbe abletoproblemsolvewhentechnologydoesnotmeetstudentneedsor 4 malfunctions. TheDutiesandResponsibilitiessectionofthePDFindicatesthefollowing: Approximate %oftime Annually In-depthreviewtounderstandstudentsneedsbasedondocumentation suchaspsycho-educationalreports,medicalreports,individualeducation plans(IEP)etc. 3% Meetstudentsandprescribeassistivetechnologiesbasedondocumented disability. Conductongoingresearchcurrentandevolvingtechnologiesfor studentswithdisabilities Preparereportsforstudentandcounsellorwithrespecttoprescriptionof assistivetechnologyandinstructionsgiventostudents. Instructstudentsontheuseofassistivetechnologybyinstructingthemon allfeaturesandfunctionalityofassistivesoftwareprograms,hardware, andequipmentavailabletothem. 20% 45% 10% 5% Ongoinglearningofnewassistivetechnologiesandsoftwaretodetermine applicationviability,andtoinstructstudentsontheiruse. Problemsolvestechnologymalfunctionorproblems Correspondsandconsultswithstudents,counsellorsandotherson variousissues. 3% 6% 5% Assistswithplanningandconductingofworkshopsforstudents,faculty andothers. 2% ConsultswithfinancialaidoverapplicationsforBursaryforStudentswith Disabilities 2% Thegrievortestifiedthatstudentsarereferredtoherbycounsellorsandtheyarrivewith afilewhichmayormaynotcontainrecommendationsforassistivetechnologies.The 5 grievorinterviewsthestudentstodeterminewhatkindofsoftware/hardwarewouldbest suitthemandthengeneratesanassistivetechnologyreportthatcontainstherationale forarrivingataparticularrecommendation.Oncetheappropriatetechnologyis identifiedthegrievorproceedstoinstructthestudentshowtousethetechnology.The grievorgetsfeedbackfromcounsellorsastohowthestudentsareprogressing.She conductsoneononeinterviewsofuptosixstudentsperdayforbetweenfiftyminutes andonehoureach.Theweeksatthebeginningofeachsemesterarethebusiest. Thegrievortestifiedthatsheoftenattendedconferencesandworkshopsmanyofwhich dealtwithlearningstrategies,andtherewasconsiderableevidenceaboutthenumber ofconferencesattendedandtheagendaoftheconferences. ThegrievordescribedthedutiesofaLearningStrategistasinvolvingthetestingand evaluatingofstudents,anddevisingstrategiestoassistthemwiththeirpersonal, educationalandvocationaldevelopment.TheLearningStrategistsconsultwiththe administration,facultyandstaffwithrespecttotheproblemsofindividualstudents, assistwithorientation,conductworkshopsandperformteachingdutiesasassigned. Thegrievortestifiedthat,whenemployedasanAssistiveTechnologist,she neverthelessdeliveredLearningStrategyworkshopsincludingtimemanagementand studyskillsandexampreparationstrategiesand,overthecourseofthehearing,there wasconsiderableevidenceaboutthenatureoftheworkshopspresentedbythegrievor. 6 CommencinginJanuary,2008thegrievorbegantakingLearningStrategycoursesfrom CambrianCollege,andasofthefallof2011shewasclosetocompletingthe programme.InSeptember,2008thegrievorbeganaoneyearsecondmentasa LearningStrategistatSenecaCollegeandduringthe2008-2009academicyearthe grievorsuccessfullycarriedoutallthedutiesofaLearningStrategist. InOctober,2009thegrievorreturnedtoherformerpositionasanAssistive Technologist.ShetestifiedthatherdutiesinSeptember,2009werethesameasher dutiesduringthesecondment.Studentscontinuedtobereferredtoherandshe continuedtodoLearningStrategyworkshopsuntiltheendofOctober,2009whenher managerinstructedhernottodoanyfurtherLearningStrategyworkshopsandto restrictherselftotheassistivetechnologyfunctionssetoutinherPositionDescription Form. Thegrievertestifiedthatinherviewtheusefulnessofassistivetechnologyisimproved ifyoucombineitwithlearningstrategies.Shestatedthatshedidnotfeelcomfortable doingoneononeworkwithstudentsbecauseshecouldnotbreakapartlearning strategiesandassistivetechnology.Shestatedthatshehasalongerrelationshipwith studentswhenlearningstrategiesandassistivetechnologyarecombined.Nottodoso involvesreferringstudentsbacktoalearningstrategisteachtimetheyhaveaquestion aboutlearningstrategiesandtheymightwaituptoaweekforanappointment. Thegrievortestifiedthatbeforethesecondmentshehadamoremechanicalapproach 7 toinstructingstudentsandwasincorporatingonlybitsandpiecesoflearningstrategies whereasafterthesecondmentsheismorecompletelyincorporatingstudytechniques andtechnology,andifshedoesnotdoso,theinstructionisnotasusefultothe students. Thegrieverreviewedtheclassdefinitionofcounsellorfoundintheacademiccollective agreementandwhichprovidesasfollows: CLASSDEFINITION COUNSELLOR ACounsellorisresponsibleforassistingstudentsandpotentialstudents tofunctioneffectivelyaslearnersandasindividualsbyhelpingthem understand,preventorovercomepersonal,socialoreducational problemsthatmayhinderlearningortheirabilitytocopewitheveryday living.Thecounsellor'sdutiesinclude: a)Developingandmaintainingappropriatecounsellingprograms. b)Interviewingindividualsbyappointment,toexplorepersonalor socialdifficultiesorvocational/educationaldecisionmaking, including: referringstudentsasappropriatetoproperprofessionalhelp; facilitatingdiscussion/dialoguebetweenstudents,facultyand administration; participatinginpre-admissioninterviewingandtestingasrequired; c)Groupcounsellingasanon-instructionalactivity. d)Testingandevaluationofindividualstoassistthemintheir personal,educational/vocationaldevelopment. 8 e)Assistingadministration,facultyandstaff,inaconsultativerolein identifyingstudentproblems,dealingwithstudentproblems,and relationshipproblemsamongstudents. f)Providingeducational/vocationalinformationtostudentsor directingthemtoavailablesources. g)ParticipatingintheorientationofnewstudentstotheCollege. h)Teachingasassigned. Inaddition,thecounsellormay,fromtimetotime,becalleduponto contributetootherareasancillarytotheCounsellor'srole,suchasstudent recruitmentandselection,studentemployment,liaisonwithcommunity serviceprogramsandagencies,professionaldevelopmentandcontrolof suppliesanequipment. Thegrievortestifiedthatshefitwithintheclassdefinitionbecausesheassisted studentstoovercomeproblems,focussedoneducationalissues,assessedneedsand foundsolutionstoaddresslearningissues.Shestatedthatassistivetechnologyispart ofacounsellingprogrammethatassistsstudentswithsounddecisionmaking.She statedthatbygivingstudentstherighttechnologiestheyarebetterabletocopewith theirissues.Shestatedthatshewantedtohelpstudentssucceedandthatiswhyshe providedlearningstrategiesandassistivetechnologytogether.Thegrievortestified thatshecollaboratedwithcounsellorsandeducatedthemwithrespecttoassistive technologiesonadailybasis. MsSherriParkins,theAssistiveTechnologyLearningStrategist(ATLS)Coordinator andProfessor,statedthatsheistheonlyfulltimeATLSandtherearethreepart-time ATLSpositions.TheATLSmeetmonthlytodiscussissuesandthegrievorispartof 9 suchmeetings.MsParkinsstatedthatshedidnotmakeadistinctionbetweenlearning strategiesandassistivetechnologieswhensheishelpingastudent.Shestatedthat,in herview,learningstrategiesareembeddedinthetechnology,andinthatsensethey areinseparable. Withrespecttotheworkshops,shenotedthatatonetimethegrievortaughttime managementbutdoesnotdosoanymorebecauselearningstrategiesareembeddedin them.Shestatedthatmanagementknewthegrievorwasteachingtheselearning strategyworkshops.InresponsetoquestionsfromcounselfortheCollegeMsParkins acknowledgedthatitispossibletoteachassistivetechnologyseparatefromlearning strategies,butnotedthat,inherview,itwasnotthebestforthestudents.Shenoted thatlearningstrategiescanbetaughttoallstudentsincludingstudentswithdisabilities whereasyouhavetobereferredtoreceiveassistivetechnologyservicesandtheonly peoplereferredatSenecaCollegearestudentswithdisabilities. Mr.KevinReinhart,currentlythecoordinatorofATLS,testifiedthatinhisopinionthe roleofaLearningStrategistandtheroleofanAssistiveTechnologistareintegrated because thenatureofthetechnologiesrequirethemtobeintegrated.Hestatedthat theroleofanAssistiveTechnologististodeterminetheappropriatetechnologyand thentoinstructindividualsintheuseofthetechnology,andtheroleofaLearning Strategististoassiststudentswiththeirapproachtoleaningtoimprovelearning outcomes.Mr.Reinhartmadereferencetoanarticleentitled"Powertothelearner! Integratingassistivetechnologywithlearningstrategies-readingPart1waspublished 10 intheApril/May2008issueofclosingtheGap,Vol.27No.1,andPart2waspublished intheJune/JulyissueofClosingtheGapVol.27No.2.Ingeneralthesearticles discussthebenefitsofintegratingassistivetechnologywithlearningstrategies. Mr.Reinhardstatedthatheworkedcloselywiththegrievorandbelievedshewas employedinanLSATposition.Hestatedthatthenatureoftheassistivetechnologies requirethemtobeintegratedwithlearningstrategies,andthatonecouldnotbetaught withouttheother.Hestatedthathebelievedthegrievorwasbeinggroomedfora LSATpositionwhichiswhymanagementletherattendlearningstrategyconferences andconductlearningstrategyworkshops. MsBarbaraWeisfeld,theManageroftheLearningCentreandthegrievor'ssupervisor, statedthatshewasresponsibleforthecreationofthegrievor'sPositionDescription Form.Shestatedthatthegrievordidnotexpressanydifficultiesperformingthe assistivetechnologydutiesindependentofthelearningstrategyduties. Withrespecttotheworkshops,MsWeisfeldstatedthatsheshouldhavelookedintothe mattermorecarefullypriortothegrievor'ssecondment,butshejustassumedthe grievorwasdoingworkshopsthatalignedwithherPDF,anddidnotunderstandor appreciateshewasengagedinlearningstrategyworkshops.ShestatedthatfromMay, 2007untilAugust,2008thegdevordidnotsayshecouldnotdothejobasdefined,and Mr.ReinhartwhohadinputintothePDFdidnotsaythejobwasnotfeasibleasoutlined inthePDF.Withrespecttolearningstrategyworkshopsattendedbythegrievor,Ms 11 WeisfeldstatedthattheCollegehadnoobjectiontopersonsattendingworkshops outsideoftheareaoftheiremploymentwiththeCollege. SUBMISSIONSOFTHEPARTIES TheUnionsubmittedtheevidencewasclearthatyoucouldnotprovideassistive technologyserviceswithoutalsoprovidinglearningstrategies,andgiventhetechnology itwasnotpossibletoseparatethetwoaslearningstrategieswereimbeddedinthe technology.TheUnionalsomadereferencetothelearningstrategycoursestaughtby thegrievor,whichitsubmittedwasdonewiththeknowledgeofmanagement,and pointedtothelearningstrategyconferencesattendedbythegrievorovertheyears. TheUnionsubmittedthattheAssistiveTechnologypositionshouldbeincludedinthe academicbargainingunitandthatthegrievorshouldbeplacedintothepositionand shouldbecompensatedaccordingtotheacademicwagegrid.Inthealternativethe Unionsubmittedthatthegrievorshouldbecompensatedattherateofpayofthe academicbargainingunitforthetimeshespentteachingthelearningstrategy workshops,andreferredtothedecisioninOntarioHydroandOntarioHydro Employees'Union,Local1000(DriscololGrievance),198311LA.C.(3d)3(O.B. Shime)insupportoftheiralternateposition. TheEmployersubmittedthatmanagementhastherighttocreatepositionsandassign work,andthatthepositionofAssistiveTechnologistisaspecialistpositionwitha 12 narrowfocus,andreferencewasmadetoarticle6ofthecollectiveagreementwhich provides: MANAGEMENTFUNCTIONS 6.01ItistheexclusivefunctionoftheCollegesto: (I)maintainorder,disciplineandefficiency; (ii)hire,discharge,transfer,classify,assign,appoint,promote, demote,layoff,recallandsuspendorotherwisediscipline employeessubjecttotherighttolodgeagrievanceinthe mannerandtotheextentprovidedinthisAgreement. (iii)managetheCollegeand,withoutrestrictingthegeneralityof theforegoing,therighttoplan,directandcontroloperations, facilities,programs,courses,systemsandprocedures,direct itspersonnel,determinecomplement,organization,methods andthenumber,locationandclassificationofpersonnel requiredfromtimetotime,thenumberandlocationof campusesandfacilities,servicestobeperformed,the schedulingofassignmentsandwork,theextension, limitation,curtailment,orcessationofoperations,andall otherrightsandresponsibilitiesnotspecificallymodified elsewhereinthisAgreement. 6.02 TheCollegesagreethatthesefunctionswillbeexercisedina mannerconsistentwiththeprovisionsofthisAgreement. Itfurthersubmittedthatthearbitraljurisprudencebetweenthepartieswithrespectto theassignmentofworkisthatconsiderableattentionispaidtotheintentionofthe Employer,andwhenaCollegehasnotintendedtocreateapositionwithinthe academicbargainingunit,BoardsofArbitrationhavenotplaceddisputedpositionsinto theacademicbargainingunit,unlesstheevidenceclearlyestablishestheybelonginthe unit.InthisregardreferencewasmadetothedecisionsinFanshaweCollegeand 13 OntarioPublicServiceEmployeesUnion,unreported,November15,1989(H.D. Brown),OntarioPublicServiceEmployeesUnion,andGuelphGeneralHospital (BrooksGrievance),[2006]O.L.A.A.No.452(R.D.Howe),FanshaweCollegeand OntarioPublicServiceEmployeesUnion,unreported,April24,1989,(G.Brent),and LambtonCollegeandOntarioPublicServiceEmployeeUnion,unreported,June20, 2005(M.G.Mitchnick). TheEmployeralsoopposedthegrantingofanycompensationtothegrievorforthe workperformedteachinglearningstrategyworkshopsbecause,initsview,thatwasnot theissuebeinggrievedandreferredtothedecisioninReSquareDCo.CanadaLtd andUnited,Electrical,Radio&MachineWorkers,Local505,(1974)5L.A.C.(2d)428 (J.F.W.Weatherill). DECISION Managementhastheright,undertheprovisionsofthiscollectiveagreement,tocreate positions,andithaschosentocreatetheseparatepositionsofAssistiveTechnologist, inthesupportstaffbargainingunit,andLearningStrategist,intheacademicbargaining unit.ThegrievorwasabletocarryoutthepositionofAssistiveTechnologistfromher hiringin2005,andwasabletohelpMsWeisfeldcreatethePDFforAssistive Technologistin2007.AsdescribedinthePDF,thepositionisarelativelynarrowone andrequiresanincumbenttostaycurrentwiththeincreasingnumberandincreasing 14 sophisticationofassistivetechnologies,andforapproximatelytwentypercentoftheir workingtimetomeetwithstudentsandmakerecommendationsastowhattechnology ortechnologieswouldbeofthegreatestassistancetoparticularstudents.Forty-five percentoftheirworkingtimeisspentinstructingstudentsontheuseofthethe assistivetechnology,andtenpercentisspentpreparingreportsforstudentsand counsellorswithrespecttotheselectionanduseofthetechnology. Itmaybe,asassertedwitnessescalledbytheUnion,includingthegrievor,thatitis increasinglymoredifficulttoseparateassistivetechnologyfromlearningstrategies.It myalsobe,asassertedbythegrievorthatitispedagogicallyunsoundand/orwasteful oftheCollege'sresourcestoseparatelearningstrategiesfromassistivetechnology. ThathoweverisnottheissuebeforethisBoardofArbitration.Theissueiswhetherthe UnionhasdemonstratedthatthepositionofAssistiveTechnologistiswithinthe recognitionclauseoftheacademicbargainingunit,andultimatelythisBoardhas determinedthatithasnot.Thereisperhapssomeoverlapbetweenthepositionof AssistiveTechnologistandLearningStrategist,buttheCollegehaschosentohavethe positionsexistseparately,andthegrievorandMsParkinsacknowledgedthatthe positionscouldbeseparated,althoughtheybothbelieveditwasnotinthebest interestsofthestudentstodoso.TheBoardalsonotesthatCambrianCollege continuestoofferseparatecertificatesforLearningStrategistsandAssistive Technologists. Partofthereasonforthegrievor'sbelieflearningstrategiesandassistivetechnologies 15 shouldbetaughtbythesamepersonmaybefoundinthegrievor'seducationaland workhistories.ShegraduatedfromCambrianCollegewithacertificateinassistive technology.ShestartedworkthatyearasanAssistiveTechnologistatSenecaCollege andcontinuedinthatroleuntilSeptember,2008whenshebegananapproximatelyone yearsecondmentasaLearningStrategist.Shealsobegantakinglearningstrategy coursesfromCambrianCollegeinJanuary,2008.Inourviewthecombinationof havingworkedforthreeyearsasanAssistiveTechnologistandincreasedknowledge fromthecoursesatCambrianCollegeandtheexperienceofworkingasaLearning Strategistmayhavedemonstratedtothegrievorthatitwastimeandcosteffective,and inherview,inthebestinterestsofthestudentstocombinelearningstrategieswith assistivetechnology. TheCollegemadeadecisiontoseparatelearningstrategiesfromassistive technologies.ThegrievorandtheotherUnionwitnessesmaybecorrectthatitisinthe bestinterestsofstudentstocombineassistivetechnologywithlearningstrategies,but inourviewtheevidencepresentedatthehearingdoesnotdemonstratethat,atthis timeitisimpossibletoseparateassistivetechnologyfromlearningstrategy.Thisis whattheCollegehaschosentodo,andthemanagementrightsclauseallowsthe Collegetomakethisdecision.WhilesomeaspectsoftheroleofanAssistive Technologistmaybesimilartotheresponsibilitiesofacounsellorassetoutinthe ClassDefinition,theroleofacounsellorassetoutthereinisbroadanddealswith assistingstudentsinunderstandinganddealingwiththeentirelyoftheirpersonal,social andeducationalproblems,whereastheroleofanAssistiveTechnologistassetoutin 16 thePDFisnarrowandprimarilyconfinedtoinstructingstudentsontheuseofassistive technology. ForthesereasonsthegrievancewithrespecttotheplacementoftheAssistive Technologypositionintheacademicbargainingunitisdismissed.Giventhis dispositiontheBoarddoesnothavetoresolvetheissueraisedbytheEmployer's preliminarymotion.Furtherhowever,theBoardnotesthattheevidencedisclosedthat thegrievortaughtanumberoflearningstrategyworkshopswhileemployedasan AssistiveTechnologistandtherewasconsiderableevidenceconcerningthenatureand numberoftheseworkshopsandwhilethisisnotawagegrievance,theBoardnotes thatthegrievor'sindividualgrievanceclearlyraisestheissueofpaymentofsalaryand benefitsduetoherworkasacounsellor.Whilethisclaimforreliefismadeinthe contextofarequesttohaveherjobreclassified,theBoardissatisfiedthattherewas sufficientevidencepresentedatthehearingabouttheseworkshopsandthattheclaim forreliefissufficientlyclearthattheBoardinstructstheCollegetocompensatethe grievor,attheLearningStrategistrateofpayforthehoursspentteachingthose workshopsandareasonablenumberofhoursofpreparation.TheBoardwillremain seizedshouldthepartiesbeunabletoagreewithrespecttotheremunerationowing. 17 DatedatMaberly,Ontariothis20thdayofJanuary,2012 DavidStarkman Chair "1concur-seeattachedAddendum" SherillMurray UnionNominee "1concur" JohnPodmore CollegeNominee Addendum TheUnionnomineereluctantlyagreeswiththereasoningofthemajorityhoweveritmustbenotedthatthe_penultimateIssuethatdlvldestheAssistlveTechnologlstfromtheLearnlngStrateglstIs(asstatedbyUnion Counse!)"WhenthestudentmcelvlngtheInstructlonfromMs.Rlveradarestoaskthequestion"why?"," ItIsatthlspointMs..RlverawouldexplalntothestudentthelearnlngstrategyImbeddedInthetechnology andwhythestudentwillbenefit. Itisapparentintheevidencethatbothpartiesrecognizethedepthandbreadthofknowledgeandexperience thatMs.RiverabringstothestudentsatSenecaCollege. AllofwhlchIsrespectfullysubmitted,SherrllMurray,UnlonNomlnee."