Linn-Benton-Lincoln Education Ass'n/OEA/NEA v. Linn-Benton-Lincoln ESD

954 P.2d 815, 152 Or. App. 439, 159 L.R.R.M. (BNA) 2507, 1998 Ore. App. LEXIS 126
CourtCourt of Appeals of Oregon
DecidedFebruary 11, 1998
DocketUC-22-96; CA A97730
StatusPublished

This text of 954 P.2d 815 (Linn-Benton-Lincoln Education Ass'n/OEA/NEA v. Linn-Benton-Lincoln ESD) is published on Counsel Stack Legal Research, covering Court of Appeals of Oregon primary law. Counsel Stack provides free access to over 12 million legal documents including statutes, case law, regulations, and constitutions.

Bluebook
Linn-Benton-Lincoln Education Ass'n/OEA/NEA v. Linn-Benton-Lincoln ESD, 954 P.2d 815, 152 Or. App. 439, 159 L.R.R.M. (BNA) 2507, 1998 Ore. App. LEXIS 126 (Or. Ct. App. 1998).

Opinion

HASELTON, J.

Linn-Benton-Lincoln Education Service District (employer) seeks judicial review of an Employment Relations Board order certifying the results of a “self-determination” election in which a majority of a group of preschool workers voted to be included in an already existing bargaining unit represented by the Linn-Benton-Lincoln Education Association (Union). Union moves to dismiss review, asserting that ERB’s post-election certification order is not a “final order” within the meaning of ORS 183.480. We conclude that, unlike pre-election certification orders, the post-election certification order here is a “final order.” Accordingly, we deny the motion to dismiss.

In April 1996, Union petitioned ERB for a unit clarification adding a group of preschool workers known as “Early Childhood Interventionists” to an already existing bargaining unit represented by Union. ORS 243.682(2)(a).1 ERB initially denied the petition in February 1997. However, in April 1997, the Board issued an order on reconsideration, determining that it was appropriate, pending a self-determination election, to add the interventionists to Union’s bargaining unit: “Consequently, interventionists must be included in Petitioner’s bargaining unit if they choose, through a self-determination election, to be represented for purposes of collective bargaining.”

A “unit clarification election” was then conducted under ERB’s auspices, ORS 243.686, with a majority favoring representation by Union. On June 2,1997, ERB issued a “certification of unit clarification results” pursuant to ORS 243.686(4),2 which stated: “IT IS HEREBY CERTIFIED THAT the INTERVENTIONALISTS [sic] are added to the [442]*442existing unit represented by [Union].” Employer seeks review of that June 2,1997, post-election certification order.

Union moves to dismiss, asserting that an election certification order is not reviewable because it is not a “final order” within the meaning of ORS 183.480(1). Invoking certain language in Klamath Co. v. Laborers Inter. Union, 21 Or App 281, 534 P2d 1169 (1975), Union contends that employer cannot challenge the certification order directly, but can only do so collaterally, in the context of an unfair labor practice proceeding; that is, in Union’s view, employer must first refuse to bargain with the certified representative, “inviting” an unfair labor practice complaint, and, only by litigating that complaint, can employer challenge the certification order.

Employer counters that our discussion in Klamath County generally supports its view that the certification order is reviewable and that those portions of Klamath County that Union cites are inapposite to the issue of finality in this case. Employer further notes, correctly, that we have consistently accepted review of post-election ERB orders as “final orders.” See, e.g., Welches School Dist. v. Welches Education Assn., 116 Or App 564, 567, 842 P2d 437 (1992), rev den 316 Or 529 (1993); Eugene School Dist. v. Sub. Teacher Org., 31 Or App 1255, 1257, 572 P2d 650 (1977). See also DSLEA v. Division of State Lands, 72 Or App 559, 563, 696 P2d 578 (1985) (noting authority).

In Klamath County, the employer sought review of an order by ERB’s predecessor, the Public Employee Relations Board, determining that certain employees in the Klamath County assessor’s office constituted an appropriate bargaining unit and ordering an election to determine whether those employees wished to be represented by the union. The union contended that review should be dismissed because the pre-election certification order was not a “final order” within the meaning of ORS 183.480. That statute provides, in part:

“(1) * * * [A]ny person adversely affected or aggrieved by an order or any party to an agency proceeding is entitled to judicial review of a final order, whether such order is affirmative or negative in form.
[443]*443ifc ‡ ‡ ‡
“(3) No action or suit shall be maintained as to the validity of any agency order except a final order as provided in this section [and other inapposite sections] or except upon showing that the agency is proceeding without probable cause, or that the party will suffer substantial and irreparable harm if interlocutory relief is not granted.”

The statute does not define “final order.” However, in Klamath County, we endorsed the following “definition” borrowed from other contexts as being specifically applicable to labor relations law:

“ ‘* * * One of the tests in determining whether a judgment or decree is final is: “If no further action of the court is required to dispose of the cause, it is final.” Other tests are: Is the order or decree one which determines the rights of the parties so that no further questions can arise before the court rendering it, except such as are necessary to be determined in carrying it into effect, or is the judgment or decree “one which concludes the parties as regards the subject-matter in controversy in the tribunal pronouncing it?” ’ ” 21 Or App at 287 (quoting Winters et al v. Grimes et al, 124 Or 214, 216-17, 264 P 359 (1928)).

See City of Hermiston v. ERB, 280 Or 291, 294-95, 570 P2d 663 (1977) (explicitly approving and applying Klamath County’s “final order” definition: ERB order directing a certification election was not “final order”); Lane Council Govts v. Emp. Assn., 277 Or 631, 637-38, 561 P2d 1012 (1977) (endorsing and applying Klamath County’s “final order” test: ERB order denying a motion to dismiss bargaining unit certification proceedings was not “final order” and did not fall within ORS 183.480(3) exceptions to finality requirement).

Applying that analysis, we proceeded in Klamath County to examine the statutory and administrative procedures for certifying a bargaining representative. 21 Or App at 284-86. We concluded:

“[I]t is evident that the designation of an appropriate bargaining unit is but one step in a procedure which requires many decisions by PERB, and by itself, the designation has no legal consequences. Only when an exclusive bargaining agent is certified does the designation of the bargaining [444]*444unit begin to affect the employer. If, for example, an election is never held because all of the proposed bargaining representatives withdraw * * * or if the majority of the employes in the proposed bargaining unit vote for no representation, the designation of the appropriate bargaining unit will have no effect on the employer or on future PERB actions. * * *

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Related

Division of State Lands Employes Ass'n v. Division of State Lands
696 P.2d 578 (Court of Appeals of Oregon, 1985)
Port of Portland v. Municipal Employees, Local 483
556 P.2d 692 (Court of Appeals of Oregon, 1976)
City of Hermiston v. Employment Relations Board
570 P.2d 663 (Oregon Supreme Court, 1977)
Klamath Cty. v. Laborers Int. U. of Na, Loc. No. 915
534 P.2d 1169 (Court of Appeals of Oregon, 1975)
Welches School District No. 13 v. Welches Education Ass'n
842 P.2d 437 (Court of Appeals of Oregon, 1992)
Reynolds School District v. Oregon School Employees Ass'n
650 P.2d 119 (Court of Appeals of Oregon, 1982)
Oregon State Employes Ass'n v. Deschutes County
595 P.2d 501 (Court of Appeals of Oregon, 1979)
Winters v. Grimes
264 P. 359 (Oregon Supreme Court, 1928)
Oregon Public Employees Union Local 503 v. Judicial Department
919 P.2d 1200 (Court of Appeals of Oregon, 1996)

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Bluebook (online)
954 P.2d 815, 152 Or. App. 439, 159 L.R.R.M. (BNA) 2507, 1998 Ore. App. LEXIS 126, Counsel Stack Legal Research, https://law.counselstack.com/opinion/linn-benton-lincoln-education-assnoeanea-v-linn-benton-lincoln-esd-orctapp-1998.