Fraternal Order of Police, Lodge No. 5 Ex Rel. Costello v. City of Philadelphia

725 A.2d 206, 160 L.R.R.M. (BNA) 2377, 1999 Pa. Commw. LEXIS 44
CourtCommonwealth Court of Pennsylvania
DecidedJanuary 28, 1999
StatusPublished
Cited by14 cases

This text of 725 A.2d 206 (Fraternal Order of Police, Lodge No. 5 Ex Rel. Costello v. City of Philadelphia) is published on Counsel Stack Legal Research, covering Commonwealth Court of Pennsylvania primary law. Counsel Stack provides free access to over 12 million legal documents including statutes, case law, regulations, and constitutions.

Bluebook
Fraternal Order of Police, Lodge No. 5 Ex Rel. Costello v. City of Philadelphia, 725 A.2d 206, 160 L.R.R.M. (BNA) 2377, 1999 Pa. Commw. LEXIS 44 (Pa. Ct. App. 1999).

Opinions

LEADBETTER, Judge.

The Fraternal Order of Police, Lodge No. 5(FOP) appeals from an order of the Court of Common Pleas of Philadelphia County (trial court) denying its petition to vacate or modify an interest arbitration award.

The facts, as found by the trial court, are as follows. The FOP is the exclusive bargaining representative for certain employees of the City of Philadelphia (City) who work in the Sheriffs Department and the office of the Register of Wills. Following the June 30, 1992 expiration of the collective bargaining agreement for these employees, the City and the FOP were unsuccessful in negotiating a successor agreement. In October 1995, the FOP declared an impasse and initiated interest arbitration1 under Section 805 of the Public Employe Relations Act,2 commonly known as “Act 195,” 43 P.S. § 1101.805.3 Following hearings, the arbitration panel (two party-appointed arbitrators and one [208]*208“neutral”) issued an award, over the dissent of the FOP’s arbitrator, that set forth the terms and conditions of employment for the affected City employees for the period commencing July 1, 1996 and ending June 30, 2000.4

The FOP petitioned to vacate or modify the award, asserting that there was insufficient testimonial evidence in the record to support six of its provisions.5 The trial court concluded that the City presented ample evidence to support the arbitrators’ findings concerning the challenged award provisions and denied the petition. This appeal followed. On appeal, the FOP again asserts insufficiency in the evidence to support the challenged provisions of the award.

The scope of review of an Act 195 interest arbitration award is an issue of first impression.6 The FOP asserts that we should review the award under the “essence test,” as did the trial court. Under the essence test, applied in reviewing grievance awards under Act 195, we will uphold an award as long as it draws its essence from the collective bargaining agreement in force. Crawford County v. AFSCME Dist. Council 85 Local Union No. 2643, 693 A.2d 1385, 1388 (Pa.Cmwlth.1997). We find the essence test singularly inappropriate, however, for review of an interest arbitration award. In interest arbitration, there is no collective bargaining agreement for the arbitrators to interpret. Indeed, the point and goal of interest arbitration is for the arbitrators to for-muíate an agreement because the parties have been unable to do so. Thus, review of whether an interest award draws its essence from a nonexistent agreement would be oxy-moronic.

Presumably realizing that the essence test as universally defined sets forth an impossible framework for reviewing an interest award, the FOP suggests that we rewrite the test to provide that, an interest award must be vacated where it is not supported by the evidence presented to the arbitrators. Appellant suggests that an award must be supported by “record evidence or there is a denial of due process.” In this regard, appellant cites a series of federal decisions, all of which arise in the context of grievance arbitration awards. The flaw in appellant’s argument is that it ignores the fundamental distinction between the two types of proceedings. Grievance arbitration is essentially a factfinding process. In many eases, the arbitrator(s) must determine whether a violation of the collective bargaining agreement has occurred and, if so, fashion a remedy under the terms of that agreement. In other cases, the arbitrator(s) must resolve a dispute over the proper interpretation of the agreement. This, too, is a factfinding exercise. See Community College of Beaver County v. Community College of Beaver County, Soc’y of the Faculty (PSEA/NEA), 473 Pa. 576, 592, 375 A.2d 1267, 1275 (1977). A reviewing court can readily determine whether there is sup[209]*209port in the evidence and the agreement for the findings and the ultimate award.

On the other hand, interest arbitration involves fashioning a new contract by compromising the competing interests and desires of opposing parties who simply cannot agree. We are at a loss to determine how a reviewing court could measure the sufficiency of “evidence” to support the award of a contract provision propounded by one side and resisted by the other.

Even if we were not persuaded by such pragmatic considerations, we would still conclude that the proper scope of review is narrow certiorari, utilized by our courts in reviewing interest awards under Act 111.7 In light of the similarity between mandatory interest arbitration pursuant to Act 111 and mandatory interest arbitration pursuant to Act 195, and the history and caselaw interpreting the statutory language, we believe that the same scope of review is applicable under both provisions.

In 1968, Act 111 conferred upon police and firefighters the right to bargain collectively, but withheld the right to strike because of the crucial services they perform. To resolve bargaining impasses, Act 111 mandated that employers submit to binding interest arbitration pursuant to the procedures specified therein. Township of Moon v. Police Officers of Township of Moon, 508 Pa. 495, 503, 498 A.2d 1305, 1309 (1985). Two years later, Act 195 conferred the right to bargain collectively on the remaining public employees. Because them services were not as critical to public safety and welfare, the legislature conferred a limited right to strike and provided a voluntary interest arbitration procedure, with the exception of mental hospital and prison guards and court employees.8 Because the services of guards and court employees, like those of Act 111 employees, are critical to public safety and welfare, the legislature withheld the right to strike from these groups and mandated binding interest arbitration in the case of an impasse in contract negotiations. It is with these groups that we are here concerned.

In Washington Arbitration Case, 436 Pa. 168, 174, 259 A.2d 437, 441 (1969), our Supreme Court determined that interest arbitration awards are appealable only pursuant to a narrow certiorari scope of review. Quoting Keystone Raceway Corp. v. State Harness Racing Comm’n, 405 Pa. 1, 5-6, 173 A.2d 97, 99 (1961), the court noted:

If an appeal is prohibited by an Act, or the decision of the Agency is stated to be final or conclusive, the law is well settled that an appeal will lie to the Courts in the nature of a narrow certiorari and this Court will review only (1) the question of jurisdiction; (2) the regularity of the proceedings before the Agency; (3) questions of excess in exercise of powers; and (4) constitutional questions.

436 Pa. at 174, 259 A.2d at 441.9

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Fraternal Order of Police, Lodge No. 5 Ex Rel. Costello v. City of Philadelphia
725 A.2d 206 (Commonwealth Court of Pennsylvania, 1999)

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725 A.2d 206, 160 L.R.R.M. (BNA) 2377, 1999 Pa. Commw. LEXIS 44, Counsel Stack Legal Research, https://law.counselstack.com/opinion/fraternal-order-of-police-lodge-no-5-ex-rel-costello-v-city-of-pacommwct-1999.