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HomeMy WebLinkAbout1990-2017.Butters et al.92-08-11 ONTARIO EMPLOYES DE LA COURONNE CROWN EMPLOYEES DE ~.'ONTARtO GRIEVANCE C,OMMISSION DE SETTLEMENT REGLEMENT BOARD DES GRIEFS f$o DUNDAS STREET WEST', SUITE 2100, TORONTO ONTARIO, MSG 180, RUE DUNDAS OUEST, BUREAU 2100, TORONTO {ONTARIO), MSG 1Z8 FACSI~LE/T~LECOPIE ,' (416) ~26- ~396 20Z7/90, 2018/90, 20[9/90, ~0~0/90 IN THE ~TTER OF ~ ~IT~TION. Under ~E C~ EMP~YEES COL~CTI~ B~G~INING. ACT Before THE GRIEV~CE SETTLE~ BO~ BE~EN OPSEU (Butters et al) ~r~evor The Cro~ in ~ight of Ontario (Minist~ of Health/Po~ Colborne and District ~ulance Se~ice) Employer BEFO~: B. Kir~ood Vice-Chai~erson J. Car~thers Me,er F. Collict M~er FOR THE R. Wells GRIEVOR Counsel Gowling, Strathy & Henderson Barristers & Solicitors FOR THE P. Whalen EMPLOYER Counsel Shibley, Righton 'Barristers & Solicitors HEARING October 28, 1991 January 21, 1992 Page 2 INTERIM DECISION In April 1, 1986, 677700 Ontario Limited, purchased the services of the Port Colborne and District Ambulance Service from Mr. Twerdohlib. The new.owner/operator was Mr. Roberts. The four grievors are ambulance officers, who were employed by the predecessor employer and continue to be employed by the new owner. The union alleged that Mr. Roberts wrongfully calculated the grievors' sick leave credits by failing to recognize the sick leave credits accumulated by the grievors prior to the purchase of the service, for the period between 1977 and March 31, 1986. The union filed the grievances on November 5, 1990, after receiving notice of the accumulated sick leave credits for the period from April 1, 1986 to October 30, 1990. Employer's counsel raised a preliminary objection and contested the union's ability to proceed with the grievance. Employer's counsel argued the board ought to dismiss the grievances as the grievances were filed significantly outside the mandatory time limits set out in the collective agreement. Employer's counsel argued that the union had notice of the dispute in April 1986, but the union did nothing until it filed the grievances in April 1990. The delay was substantial. The grievances were filed four and a half years after the union had notice of the dispute and relates to a period of thirteen to nine years prior to the filing of the grievances. Employer's counsel argued that there was no reasonable explanation given for this delay. Employer's counsel argued that the lengthy and undue delay in filing the grievances will result in substantial prejudice to the employer, if the grievances were to proceed through arbitration. The employer has no ability to defend the action. M~. Roberts had attempted to obtain the.previous owner's records, but was t°ld by Mr. Twerdohlib Page 3 that any records that he had, have been destroyed. Employer's counsel argued that a party cannot advance a grievance in face of undue delay, where a fair hearing cannot occur, because of the unavailability of witnesses, the dim recollection of witnesses or unavailability of records. Union's counsel admitted that both parties knew that there was a dispute over the sick days since 1986, but he argued that both parties also knew Mr. Roberts was investigating the issue. Mr. Butters spoke to Mr. Roberts at least four times about the accumulated sick leave days. Mr. Roberts and Mr. Butters discussed the matter in April 1986, in the 1986 negotiations, in July 1987 at the 1987 negotiations and at the 1990 negotiations. The union did not file a grievance initially, as it did not want to harm its relationship with its new employer, and later, did not file a grievance, as the employer was attempting to obtain the records from the previous owner. Union's counsel argued that the time limits set out in the grievance procedure are not mandatOry, and a grievance may be filed at any time, subject to the discretion of the employer. The employer however, has to exercise its discretion reasonably. The employer exercised no discretion. Where the employer did not advise the union until 1990 that it cannot obtain the records, it would be an unreasonable exercise of discretion for the employer to claim that the time limits have now passed and deny processing the grievance. Union's counsel submitted any prejudice to the employer was not caused by the union's delay and the union ought not to be precluded from pressing on with these grievances. The union accepts that Mr. Roberts did as complete investigation as he could, but was obstructed by Mr. Page 4 Twerdohlib's refusal to co-operate. .The union ought not to be prejudiced by the delay of a third party. Alternatively, union's counsel argued that sick days are accumulated on a continuous basis. Each day there is an incorrect balance, provides a continuing right to grieve. He further argued that the annual notification of the sick leave credits provides an event that triggers the right to .grieve, if there is a dispute'. As no notice of sick leave credits had been provided by Mr. Roberts until November 2, 1990, the letter of November 2, 1990 provided that triggering event, when it did not show any sick days prior April 1, 1986. The grievances were then filed within three days of this letter and within the time limits set out in the collective agreement. The right to accumulated sick days arises from the first collective agreement between the predecessor employer and the predecessor union in Article 18.02 of the collective agreement. This article has been retained by the parties in all subsequent agreements, including the collective agreement that these grievances are filed under. Article 18.02 states: Employees shall earn one and a half (11/2) days of sick credit for each month of employment. A deduction shall be made from accumulated sick leave of all working days (exclusive of holidays) absent from sick leave. The unused portion' of an employees sick leave shall accrue for his future benefits. Notification of accumulated sick leave credits shall be made not later than March of any year. There shall be an attached letter of clarification. In the collective agreemen~ expiring on December 31, 1976, the parties provided for a Payout of an employee's accumulated sick leave on the employee's retirement or severance in Article 18.04. In the succeeding collective Page5 agreement, the parties deleted Article 18.04 and the employer agreed to pay 50 percent of the value of the accumulated sick leave credits as of December 31, 1976, to all bargaining unit employees in the service of the company on November 1, 1977. The balance of the accumulated sick days could be used by the employees in the event of future illness. This position was set out in a letter of clarification which was appended to' the collective agreement. The union relies on these provisions to support their claim for inclusion of sick leave credits prior to April 1, 1986, in their sick leave bank. The issue between this union and this employer over sick leave credits arose since shortly after Mr. Roberts bought the service from Mr. Twerdohlib. Early in April 1986, Mr. Roberts told Mr. Butters that he had bought the licence to operate the service and the agreement to purchase the licence did not include taking on any of the former owner's liabilities. Mr. Roberts told him that any liabilities incurred by the previous owner would be the responsibility of the previous owner. Mr. Butters met formally with Mr. Roberts on April 7, 1986, to discuss the new employer's ongoing obligations. Mr. Butters made notes of the issues that he wanted to raise and later added Mr. Roberts' responses. The issue of the number of sick days to be carried over from the old employer to the new employer was discussed, as were other issues that related to ongoing obligations, such as vacations, benefits, and seniority lists. They discussed the liability for the accumulated sick days. Mr. Butters told Mr. Roberts that he was responsible for the sick days as a successor employer. Mr. Butters testified that Mr. Roberts said he had a hard time getting the records from Mr. Twerdohlib, but he would look into the. issue and get back to him. Mr. Roberts did not recollect this particular conversation. · Page 6 The issue of sick days was discussed later that year at the first meeting of the 1986 negotiations. Mr. Roberts said that he was trying to get the records and would then discuss them when he received them. Mr. Butters and Mr. Roberts testified that the issue of the sick leave credits were discussed again at the 1987 negotiations. Mr. Roberts said he still did not have any records from Mr. Twerdohlib and did not have any understanding of the liabilities that the union raised. He admitted in his testimony that he told Mr. Butters that he would try to get the records and get an accounting. There was no evidence by Mr. Butters or Mr. Roberts of any specific conversations on this topic until September or October 1990. Neither witness clarified the date of the conversation. However, Mr. Butters stated that the matter of sick days would have been brought up at each year's negotiating sessions for the following collective agreement, as it was his practice to review all outstanding issues. In the 1990 discussion, Mr. Butters testified that Mr. Roberts said that he had done all the he could, and the union had to proceed to do whatever it,deemed necessary. Mr. Butters then asked for a letter setting out~ the sick leave credits. Mr. Roberts testified that he would give the employees a letter, advising them of their sick leave credits. Mr. Roberts then advised the grievors by letter dated November 2, 1990 that they had the following balance of sick leave credits for the period .of April 1, 1986 to November 1, 1990: Mr. Young owes 38 hours. Mr. Fretz has 92 hours credit. Mr. Caldwell has 394 hours credit. Mr. Butters has 470 hours credit. Page 7 On November 5, 1990, the grievors filed their grievances contesting the amount in the sick leave bank. There was no dispute over the amounts accumulated since April 1, 1986. The Union claimed at the time of the payout in 1977, Mr. Butters had accumulated 42 sick days, and Mr. Young had accumulated nine days. Mr. Fretz and Mr. Caldwell were employed after the payout day and had different balances in their sick leave bank. The Union did not specify the number of sick days sought for Mr. Fretz and Mr. Caldwell. The collective agreement sets out the grievance procedure as follows: ARTICLE 8 GRIEVANCE PROCEDURE 8.01 The parties to his Agreement are agreed that it is of utmost importance to adjust complaints and grievances concerning the interpretation or alleged violation of the Agreement as quickly as possible. 8.02 The Company may, however, at its discretion, decline to consider any grievance which is lodged more than seven (7) calendar days after the cause of the grievance should have become known to the employee. 8.03 Nothing.contained in this Agreement shall be deemed to deprive any employee of his right to negotiate any grievance without the assistance of the Union if he so desires. Grievances properly arising under this Agreement shall be adjusted and settled as follows: Step No. 1: The aggrieved employee shall, with or without his steward, present his grievance in writing to his supervisor. Where his supervisor is absent, the grievance shall be presented to Management and be accepted. The supervisor shall give his decision within seven (7) calendar days following the presentation of the grievance to him, If the supervisor's decision is not satisfactory to the employee concerned, then the grievance may be presented as follows: Page $ Step No. 2: Within seven (7) calendar days after the decision is given at Step No. 1, the aggrieved employee may, with or without his steward, present in writing the grievance to the Operations Manager, who shall consider it in the presence of the person or persons Presenting the same and the supervisor will rendered (sic) his decision in writing within seven (7) calendar days following the presentation of the grievance to him. If a settlement satisfactory to the employee is not reached, then the grievance may be presented as follows: Step No. 3. Within seven (7) calendar days after the decision is given under Step No. 2, the aggrieved employee submit his grievance to the General Manager and the employee and his steward shall meet as promptly as possible with such persons as Management may desire, to consider the grievance. At this stage they may be accompanied by a full-time representative of the Union if his presence is requested by either party. The General Manager will render his decision in writing within ten (10) calendar days following such meeting. 8.04 If final settlement of the grievance is not reached at Step No. 3, and if the grievance is one which concerns the interpretation or alleged violation of the Agreement, then the grievance may be referred in writing by either party to a Board of Arbitration as provided in Article 9 below, at anytime within ten (10) calendar days after the decision us given under Step No. 3 and if no such written request for arbitration'is received within the time limit then it shall deemed to .be abandoned. 8.05 By mutual agreement of the Company and the Union, the time limits stated in the grievance procedure may be extended. Under this agreement, the date for the grievance to be filed, without relying on the employer's discretion, is "seven (7) calendar days after the cause of the grievance should have become known to the employee." Union's counsel admitted that the grievors knew that there was an issue over sick leave credits in 1986. This is apparent as Mr. Butters and Mr. Roberts set out their Page 9 respective positions in April. Mr. Butters took the position that the grievors had accumulated sick leave credits and Mr. Roberts was liable for. the sick days as a successor employer. Mr. Roberts took the position that he had no continuing liabilities that arose from the service under its operation under Mr. Twerdohlib. However, although there was an issue, the cause of a grievance had not yet occurred. Although Mr. Roberts did not remember the particular conversation, we accept Mr. Butters' testimony, that Mr. Roberts told Mr. Butters that he would try to get'the records. This testimony is consistent with Mr. Roberts' testimony of the conversations in 1987. Mr. Roberts admitted he told Mr. Butters in July 1987, that he would try to get the records and get an accounting. Although Mr. Roberts said he had no liability for the sick days, he also represented that his liability was contingent upon his making an accounting and reaching a conclusion. It is a most basic principle in employment law, that a successor employer is bound by the .terms of the collective agreement between the preceding employer and the union. The collective agreement is the contract between the employer and the bargaining unit employees and sets out the rights and obligations of the parties, irrespective of 'any agreement between the preceding and successor emPloyers. The collective agreement clearly stated that~the employees had a right to accumulate sick days. Therefore, to search for records is consistent with the employer's need to ascertain, what if any~liability, he had for accumulated sick ~eave days for the employees. This is also consistent with the position put to Mr. Roberts by the union, that Mr. Roberts' position was all along, that he had no liability until he saw the records. In face of the basic rights of the employees to accumulated sick days, as set out in the collective agreement, the only issue that could be left would be an accounting. Therefore, we accept the union's position that Page 10 it was waiting until M~. Roberts found the records and satisfied himself as to the number of sick days that he believed each employee had accumulated. If Mr. Roberts was truly saying that he had no liability to the employees for accumulated sick days, regardless of what the records contained, he had an obligation to communicate that position to the union clearly. The union could then have grieved it. To say he had no liability and yet search of the records, creates a mixed message. We cannot accept the employer's counsel position that Mr. Roberts was looking for the records as a gratuitous gesture on behalf of the employees. Mr. Roberts agreed to include Article 18.02 in the succeeding collective agreement. ~e had an obligation to notify the employees annually of the sick leave credits. Mr. Roberts did not notify them until November 2, 1990. This is consistent with his inability to reach a conclusion, until he satisfied himself of the credits that he had to attribute to each employee. Therefore, we find there was no issue and cause of grievance for the union to grieve until Mr. Roberts made his position clear. Mr. Roberts did not respond to the union until the fall of 1990, when he told Mr. Butters that he had done all that he could and that it was up to the union to do as it sees fit. Mr. Roberts agreed to send out a letter setting out the accumulated sick leave credits. It was not until the letters of November 2, 1990, were received by the girevors that the grievors knew the number of days attributed to each of their sick leave banks, and the issu~ Crystallized and a cause of grievance arose. The grievances were then filed within the time limits set out in the collective agreement. Pagell Undue delay is a ground for dismissing a grievance when the delay causes irreparable harm to the party objecting. Often this is the case where witnesses can no longer be found or material documents are no longer available. However, the party objecting, cannot be responsible for the delay. The employer cannot by its actions or inactions, create a delay and then rely on the delay to claim that it is irreparably harmed. Mr. Roberts knew from April 1986, that the union was concerned with the previous sick leave credits. He said that he would look into it. It was brought up at least annually, and each time the response was the Same. ~e would try to obtain the records. If the employer fails to obtain records in a timely fashion and prejudices himself, the employer cannot successfully argue delay by the union caused the employer harm. If the employer further failed to notify the employees of their sick leave credits, as he was required to do under Article 18.02 of the collective agreement, his failure to notify them does not deprive the grievous of their substantive right to the sick leave credits, which are provided in the agreement, it merely delays raising the issue and the cause of a grievance. Therefore, we dismiss the preliminary objections made by the employer. The hearing of these grievances on Page 12 their merits, shall be heard on dates to be set by the Registrar. Dated at Toronto, this llth day of August, 1992. B.A. Kirkwood, Vice-Chairperson /J. Carruthers,. Union Member "! Dissent" (dissent attached) F. Collict, Employer Member DISSENT RE: BUTTERS ET AL (GSB ~2017/90) in the view of this Member, the issue in this case relative to the preliminary objection is as foIIows: 1. 'Did the Union kn(~w that them was a diffem rice of opinion between the parties relative to the entitlement of sick leave credits for four employees for the period prior to April 1, 19867 2. Were repro sentations made to Buttem by Roberts that would lead. Buttem to believe that Roberts would change his position concerning the latter's liability for the sick leave cmdits? Re: Item 1 above It is clear from the evidence that them was a difference of opini~)n between the parties concerning the liability for sick leave cm dits. In direct evidence, Buttem answered counsel Wells~ questions, as follows: Q: Did he (Roberts) tell you what he bought from Farmer (Mr. Twerdohlib)? A: Roberts said he bought the licence, had worked out an agreement to purchase the licence and this did not include any of the former owner's liabilities. In cross examination of Roberts, counsel Wells posed the following questions: Q: So in '86 and '87 negotiations, you have an understanding, BUttem has an understanding, and these am different? 2 A: Yes. As to statutory holidays, vacations and sick benefits, my understanding was that it was all paid out. Vacations were paid out. We maintained all along that the matter of sick leave credits had been cfeared up. Q: At the July 9, 1987 negotiations, there was the differing opinions concerning liability - and you said you wouId engage in an undert .aking to try to get the records? A: Yes. We said this - but still maintained our position of no liability. .. From .the above, it is clear that there is a difference between the parties concerning the sick leave credit liability; Roberts unwaveringly maintains his non-liability position; Roberts does state that he'lt try to get the pre-1986 records. Re: Item 2 above In the context of the above differences, did Roberts make representation to Butters that he would change his position concerning his liability for the sick benefit credits? Roberts evidence in this respect was as follows:' a) He denied any pre-1986 liability. b) He stated that this lawyer and Farmer's lawyer had worked out the licence purchase and that he legally had no such liability; - that he had a "clean slate". c) He described how the Ministry of Health paid for ambulance services and that he could obtain funding to meet only his operations while he was the owner/operator (ie. after April 1, 1986); and that .this was the same for Farmer for the pre-1986 period. d) He stated that he had written to Farmer on two occasions to obtain records, with no results. 3 Applicable jurisprudence against which to contemplate COntinuing liability is in several G.S.B. cases, one of which is Mills, (G.S.B. #11~88). At pages 7 and 8, the following is Stated: ~Xaia~'~l~ ~la have aha e~tec~ ~iffo~~ ~ a~ly ~L~ ~e c~pla~ ~ a~~ to a~e a ~,_-.- - ~- .~ -- ~_ -, - ~ .... ~ _ - ~ ~ - . - .-_ --~ ~'.~ _ . ~. ~$eve~~ ~av~. ~. ~ "u~ a c~~ ~ie~e ~ro~ ~ ~ ~ to ~Xe it /ne~i~le ~or ~e 20 -. da~ ~J ~ .a~l~? ~ q view,' ~a evid~ce ~s ~e~ ~t ~' all of '~e ~Sio~ ~i niSg ~ ' issue o~ ~S ~2 rate ~ ~. ~a~t, ~. ~a~t*s repl2 .vas ~t ~ ~ ~ ~ paid .it ~s~ ~ ~m ~ where ~e ~-,_ -. - -_ ~ - · . . Or repres~U~ 1~ ~ ~levor ~ ~l~e ~ - _ . ~ _ /, . .~ ~ - -- - ..-- ~ -- · .. ~e ~te~r ~t ~ ~l~er..had ~ ~e'~te o~ ~$c ~ll~ ~, a~ ~0-20 day ~' ~ 4 As per Curnow and Nq (635/84) Samuels, cited in the above, it is clear that Roberts in our subject case did .not, "...actively try to rectify the subject of the complaint..." On only two occasions between 1986 and 1990 did Roberts write to Farmer to obtain the subject records. Moreover, as in Cannin.~ {558/84 (Samuels) cited above, Roberts or his representative had not, "...led the grievor or grievors by word or deed to believe that the parties were essentially ad idem and that the employer was seeking to remedy the complaint in the grievor's favour." It is very clear from the evidence that the parties were not of one mind (ad . idem) concerning the dispute and that Roberts was .not seeking to resolve the difference in favour of the grievor. Additionally, it would appear clear from the evidence that, as stated in ~ G.S.B. #12/88 (Low), cited above, Roberts gave no intention to Mr. Butters that he would "resile" from his non-liability position and, "...the Employer steadfastly maintained its position from beginning to end. "Clearly, Mr. Roberts was consistent; and in the opinion of this Member, his comment relative to any of Farmer's records was tantamount to stating am right. I have no liability. Someone is going to have to show me I'm wrong". To respond in this fashion is simply a matter of good employee 5 relations; a, nd should not be taken as a commitment or a continuing liability on the part of the Employer. in view of the above, this Member 'is of the view that there was no re~)resentation made to Butters by Roberts that the sick leave credit matter was going to be positively pursued by Roberts. Butters knew that the difference between them existed. It was no surprise to Butters that Farmer was difficult to deal with and that cooperation would be minimal; for in his own eVidence in chief relative to 1987 negotiations he, ".,.recalled Robinson saying it's easier to get blood out of a stone than records from Farmer." Butters atso had been involved earlier, as Chief Union Steward, in a "long, bitter strike" with Farmer. Given the above, circumstances, and in the face of Roberts' contention of non- liability, Butters did nothing - with the exception of raising the sfck leave credit matter at 1986 and 1987 negotiations. As experienced negotiators are aware, a myriad of matters are placed, on the bargaining table and the majority "fall off". It is indeed perplexing as to why Butters did not pursue the subject matter at times other than negotiations, unless he believed that he had to negotiate the credits in c~uestion. Very clearly from the evidence, however, he did not raise the issue at any other times. Accordingly, the subject grievances are out of time in accordance with the provisions of article 8.02 of the collective agreement. With reference to the majority awardat page 10, this Member would disagree that the "message" given to the Union concerning sick leave credits was "mixed"; or that the issue between the parties did not "crystallize" until 6 notification of sick leave credits was given to the grlevors in the lette, rs of November 2, 1990. The evidence indicated that the matter in question was reised at several sets of negotiations over the years since 1986; and that Mr. Roberts denied any liability for the sick leave credits in question on each occasion that it was raised. In effect, Mr. Butters knew Mr. Roberts' position on the matter. Mr. Roberts had - "made his 0osition c~ear". Additionally, if indeed, the "message" Was "mixed" as stated at page 10 of the majority award, Mr. Butters had more'than four and one half years to "crystallize" the "message" which, - as both Messrs. Butters and Roberts stated in evidence - was a consistent response of no obli.aation for the subject sick leave credits whenever the matter was raised. Certainly, it strains the imagination to contemplate that Mr. Butters, · as Chief Union Steward for the local, · who was present at all collective agreement negotiations with the Union negotiator (Robinson) and Mr. Darling, the Area Representative of OPSEU (when the matter of sick leave credits was reised), · who knew the type of ~oor cooperation that the new Employer (Roberts) could expect'to receive from Farmer (Mr. Twerdohlib) ~ (and was in fact receiving no cooperation), · who, in evidence himself stated that he "...recalled Robinson saying it's easier to get blood out of a stone than records from FARMER.", · who had gone through a "long, bitter strike" with Farmer, · and who was receiving a consistent NO response from Mr. Roberts concerning the Union claim'for sick leave credits, received a "mixed message" (page 10 of award) from the Employer (Roberts) over a four and one half year period. 7 c]earIy, Mr. Butters received the "message". He failed to act upon his complaint within the time limits set out in Article 8.02 of the Collective Agreement. He "sat on his rights". He, therefore, is untimely in the filing of the subject grievance on behalf of himself and his colleagues. As a footnote to the question of sick leave credit accumUlation, it is curious that the matter was raised by the Union.only at the negotiation table. The question' of sick leave credits did not arise as a complaint or grievance during the "life" of any of the collective agreements betwaen the parties from 1986 to 1990; notwithstanding the fact that grievances on other matters were presented to the Employer on a periodic basis. Somewhat rhetorically, one might ask, - was this because the Union believed that it had to neqotiate the matter of sick leave credits? as opposed to the fact that it grieve the matter? If so, and once again, the claim is untimely. in summation of all of the above, including the applicable jurisprudence, this Member is of the opinion that the preliminary objection of timeliness shouId be upheld in this case and the grieVance'dismissed. " F.T. Collict ~ ' Date