CITYOFNEWYORK OFFICEOFCOLLECTIVEBARGAINING BOARDOFCOLLECTIVEBARGAINING CaseNo. 1-3-09 IntheMatteroftheImpasseProceeding -between-CommunicationWorkersofAmerica, Local1180 Petitioner, IMPASSEPANEL REPORT -and-AND RECOMMENDATION CityofNewYork, Mayor'sOfficeofLaborRelations Respondent, BEFORE: _AlanR. Viani, ImpassePanel APPEARANCES: FortheCommunicationWorkers ofAmerica: MirkinandGordon, P.C. By: Joel Spivak, Esq., OfCounsel AlsoPresent: ArthurCheliotes, President, Local 1180 For TheCityofNewYork: Mayor'sOfficeofLaborRelation, MayraBell Esq., General Counsel By: VictorLevy, Esq., DeputyGeneral Counsel DATESOFHEARING: September 27,2010, October 1, 2010 OnJanuary 21,20I0, theundersignedwasdulydesignatedbytheNewYorkCityOffice ofCollectiveBargainingpursuant totheRules oftheNewYorkCityCollectiveBargainingLaw (hereinafter "NYCCBL") toserveasImpartial ChairmanofanImpassePanel tohear anddecide termsandconditions ofemployment for thepositionofAdministrativeJobOpportunity Specialist, LevelsIandIIemployedbytheCity ofNewYork, HumanResourcesAdministration
-2-(hereinafter"City") whoarerepresentedbyLocal 1180, CommunicationWorkersofAmerica (hereinafter"Union"). InaccordancewiththeRules oftheNewYorkCityOfficeofCollectiveBargaining, the instant proceedingwasconductedtoresolveacollectivebargainingimpassebetweentheCity andtheUnionconcerningtheestablishment ofminimumandmaximumsalaryrates for AdministrativeJobOpportunitySpecialists, Levels IandIIandthedates that theseminimum andmaximumsalariesshouldbeeffective. . Hearingsinthis matterwereheldonSeptember 27,2010andOctober 1,2010at the offices oftheOfficeofCollectiveBargaining, NewYork, NY. Thepartieshadafull opportunitytoexamineandcross-examinewitnesses, tosubmit documentationandmakewritten argument insupport oftheirrespectivepositions. Inthecourseofthehearing, theparties submitted12Joint Exhibit, 10CityExhibits, andOneUnionExhibit. Thepartieselectedtosubmit writtenpre-hearingbriefsandwrittenpost-hearing argument, whichwerereceivedonJanuary9, 2011and, therefore, therecordinthis matter was closedonJanuary9, 201L Thepartiesareadvisedthat all matters ofrecord, whilenot necessarilycitedorreferredto herein, havebeenconsideredintheformulation ofthis Report andRecommendation. STANDARDSOFREVIEWREQUIREDBYLAW TheNYCCBLrequiresthat indeterminingtermsandconditionsofemploymentan ImpassePanel shall considerwhereverrelevant thefollowingstandardsinmakingits recommendationsfor terms ofsettlement: (i) comparison ofthewages, hours, fringebenefits, conditionsandcharacteristicsof employment ofthepublicemployeesinvolvedintheimpasseproceedingwiththe wages, hours, fringebenefits, conditionsandcharacteristics ofemployment ofother employeesperformingsimilarworkandotheremployeesgenerallyinpublicor privateemployment inNewYorkCityorcomparablecommunities;
-' j " -(ii) theoverall compensationpaidtotheemployeesinvolvedintheimpasseproceeding, including direct wagecompensation, overtimeandpremiumpay, vacations, holidays andotherexcusedtime, insurance, pensions, medical andhospitalizationbenefits, foodandapparel furnished, andall otherbenefitsreceived; (iii) changesin theaverageconsumerpricesfor goodsandservices, commonlyknownas thecost ofliving; (iv) theinterest andwelfareofthepublic; (v) such otherfactorsasarenormallyandcustomarilyconsideredinthedeterminationof wages, hours, fringebenefits, andotherworkingconditionsincollectivebargaining or in impassepanel proceedings. BACKGROUND TheclassificationofAdministrativeJobOpportunitySpecialist, Levels1andIIwas createdonJanuary15,2001byamendment tothe ClassifiedServiceoftheCityofNewYorkby theCity'sDepartment ofCitywideAdministrativeServices(Joint Exhibit D).I Thegenesisoftheseclassifications(jobtitles) arosefromachangeinnational policy underwhichanemphasiswasplacedonworkrequirementsfor publicassistancerecipientsasa condition ofreceivingfinancial assistance. Inexploringthehistoryofthecreationofthesetitles, theOfficeofCollectiveBargaining(initsDecisionNo. 4-2005) (Joint Exhibit J) wrotea description ofthehistoryoftheseclassificationsas follows.' "Until about 1998, HRA[NewYorkCityHumanResourcesAdministration] administered government assistanceprogramsthroughtheIncomeSupport Program("IS Program"), whichprovidedwelfare[financial assistance] andfoodstampsat IncomeSupport Centers("ISCenters") throughout theCity. EachISCentercontainedapproximately100-150 employees. EmployeesinthetitleEligibilitySpecialist Level III ("ESIII") establishedinitial eligibilityfor public assistanceor verifiedcontinuingeligibilityfor welfarerecipients. Principal I Onthesamedatethe Department ofCitywideAdministrativeServicesalsocreatedtheclassificationsof JobOpportunitySpecialist andAssociateJobOpportunitySpecialist. 2Editedfor brevityandclarity.
AdministrativeAssociatesLevelsI, II, andIII("PAAs"), AdministrativeManagerLevel I, orDeputyDirector, thedailyrunning oftheISCenter. AnAdministrativeManagerLevel chargedwiththeoverall operation oftheISCenter. TheOffice ofEmployment Services("OES"), assistancerecipientstotheWorkExperienceProgram("WEP") programssuchasEnglishasasecondlanguageclassesandGEDprograms. ofBeginEmployment, GainIndependenceNowoffices("BEGINoffices"), employment issuesfor familiesreceivingpublicassistance, that dealt withsingleadultswhodidnot havefamilies. Caseworkers("CWs")whoevaluatedpublicassistanceclientsfor referredthemtotrainingorworkprograms. The Managershadoverall responsibilityfortheOESoffices. Inthe1990s, newfederal welfarelawsimposedatimelimitationonwelfarebenefits mandatedcertainworkrequirementsasaconditionfor thosechanges, HRAdecidedtomergetheISProgramandOESintooneoperationcalledthe FamilyIndependenceAdministration("FIA"). FIA's recipientsingainingindependencebyhelpingthemget Centers, each ofwhichhasapproximately100-150employees. handledall eligibilityissuesintheJobCenters, andtheCWs employment for applicantsandrecipients. Inearly2001, HRAcreatedseveral newtitlestoworkexclusivelyintheJobCenters handlingbotheligibilityandemployment issuesfor TheESIllsandthe CWsweregiventhechoiceofremainingintheirtitleorofconvertingtothe newtitle ofJobOpportunitySpecialist; employeesfromthePAAtitleandfromtheSupervisor titlecouldconvert tothenewtitleAssociateJobOpportunitySpecialist -4-supervisedgroupsofESIlls. An supervisedPAAsandwasresponsiblefor II, or CenterDirector, was anotherHRAprogram, assignedpublic for jobtrainingandeducational OESwascomprised whichdealt with andaHome Reliefcentral office, TheOESofficeswerestaffedby employment capabilityand CWsweresupervisedbySupervisors. Site and receivingbenefits. Inordertoimplement primarygoal istoassist publicassistance paidwork. FIAiscomprised ofJob Initially, theESIlls andPAAs andSupervisorshandledworkand publicassistanceapplicantsandrecipients. ("AJOS"). TheDeputy
-5-DirectorsandJobCenterDirectors, manyofwhomwereAdministrativeManagers, couldchoose toconvert tothenewtitleAdministrativeJobOpportunitySpecialist LevelsIandII, respectively. As ofApril 2002, FIAhadapproximately30JobCenters, includingSpecialtyCenters, in sevenregions: Bronx, Brooklyn, StatenIsland, Manhattan, Queens, Special Needs, andHousing &HomelessServices. TheJobCenterDirectorisultimatelyresponsiblefortheJobCenter, andisassistedby theDeputyDirectorwhosharesmost oftheDirector'sduties andundertakestheminthe Director'sabsence. TheJobCenterDirectorreportstoaDeputyRegional ManagerorRegional Manager. TheRegional Managersreport toAssistant DeputyCommissioners, whointurnreport totheDeputyCommissioner. TheDeputyCommissionerreportstotheExecutiveDeputy Commissionerwhooverseesall theJobCentersandtheentireFIAFieldOperations. Thegeneral jobdescriptionforAdministrativeJobOpportunitySpecialist provides, in relevant part: All personnel performworkmanagingtheprovision oftemporaryfinancial assistanceandemployment/workrelatedservicestopersonsinneed, topromote individual andfamilyself-sufficiency, inaccordancewithagencypolicies/ proceduresandfederaIlstateregulations. Developspoliciesdesignedtoaid programparticipantsinreachingself-sufficiencyandemphasizesWorkFirst employment philosophyandprograms; designstrackingandmonitoringdevices toensurethat all participantsaremovingtowardsself-sufficiencyefficiently/ effectivelybyutilizingemployment andotherrelatedservices...." TheDeputyDirectorsareincharge ofthedailyoperationsoftheJobCenter. Inthe Director'sabsence, theyact asDirectors. Amongtheir duties, DeputyDirectorsassignor temporarilytransferemployeeswithinthecenterinconjunctionwiththeDirector; assess workflow; holdmeetingswith staffregardingperformance; andinitiatedisciplinaryproceedings inconsultationwiththeDirector. DeputyDirectorsoverseeall theemployment functions at the JobCenterandtheincomesupport process. TheysuperviseAssociateJobOpportunity SpecialistsLevel IIwho, intum, overseethreeor four JobOpportunitySpecialistsforatotal of
-6-25-30employees. Theyact asliaisontoHRA's central officeonemployment issues. Onadaily basis, theyfieldquestionsfromemployeesmanagingcases. JobCenterDirectorsultimatelyareresponsiblefortheoverall performance oftheJob Center, andimplement policygoals andproceduresprovidedbythecentral office. Directorsare responsiblefor dealingwithcommunityboards, electedofficialsandadvocacygroupsintheir vicinity, andinteractingwithadministrativebodieswithinHRA. Theyrecommendemployees for promotionandinitiatedisciplinaryproceedingsafter consultingwiththeOffice ofLegal AffairsandthePersonnel Office. Theyaretheprimarycontact for informationneededto respondtoStepIgrievancesfiledbyemployeesintheCenter. Theyattendlabor-management meetingsat HRA'scentral office. TheDirectorsordinarilyattendmanagers' meetingswiththe Regional Managers, Assistant DeputyCommissioners, andtheExecutiveDeputyCommissioner. At thesemeetings, theyaddresswhat isexpected oftheDirectors, securityat theJobCenters, andissuesaffectingpublicassistancerecipients. OnMay 18,2001, Local 1180oftheCommunicationWorkersofAmericafiledapetition withtheNYCOffice ofCollectiveBargaining("OCB")torepresent employeesofthesenewly createdclassifications. The Union'spetitionwascontestedbytheCityongroundsthat because ofincreasedresponsibilities, employeesintheseclassificationsshouldbeconsideredmanagerial and/orconfidential withinthedefinitions ofthelawestablishedbytheOCB'sBoardof Certificationand, therefore, ineligibleforUnionrepresentationandcollectivebargainingrights. Notwithstandingthe City'sposition, onJuly28, 2005, theBoardofCertificationofthe OCBfoundmost oftheemployeesinthesetitleseligiblefor collectivebargainingandUnion representation(Joint Exhibit J). Initsdecision, theBoardofCertificationopined: Wefindthat employeesinthetitleAdmin. JOSLevelsIandII, withcertain exceptions, arenot managerial and/orconfidential employeesbecausetheyarenot significantlyinvolvedinpolicy-makinganddonot engageinbudget formulation, laborrelations, orcollectivebargainingon behalfofHRA. Further, theydonot assist oract inaconfidential capacitytomanagerial employeesresponsiblefor
-7-laborrelationsorpersonnel functions. Therefore, employeesinthetitleAdmin. JOSLevels IandIIwhoholdthepositionsJobCenterDirector, DeputyDirector andExecutiveAssistant toaRegional Manager, areeligibleforcollective bargaining. Aspart ofitsorder, theBoardofCertificationamendedtheUnion'sCertification41-73 anddeterminedthat employeesinthesetitlesshouldbe"subject toexistingcontracts, ifany." Thereafter, theCityandtheUnionenteredintocollectivebargainingandarrivedat an agreement fortheperiodSeptember 6,2006throughOctober5, 2008whichprovidedforwage increases, andothereconomicbenefits, aswell asnon-economictermsandconditions of employment (Joint Exhibit C). However, thepartieswereunablearriveat agreement astothe appropriateminimumandmaximumsalaries forthesetitlesand, instead, deferredadecisionon thismatter(TBD "ToBeDecided"). Theparties next negotiatedasuccessoragreement tothe2006-2008agreement forthe periodOctober6, 2008throughOctober5, 2010. Again, theparties agreedonwageincreaseand othereconomictermsandconditions ofemployment forthesetitles and, again, wereunableto reachagreement onappropriateminimumandmaximumsalaryrates forthesepositions(Joint Exhibit B). Theagreement providedthat theminimumandmaximumratesforthesetitleswere tobedecided. Inthe2006-2008agreement, wageincreaseswereprovidedonOctober 6,2006and April 6, 2007. Inthe2008-2010agreement, wageincreaseswereprovidedonOctober 6,2008, October6, 2009. Unabletoreachagreement ontheeffectivedatesandamounts ofanyadjustment in minimumandmaximumsalaryrates, onSeptember 10,2009theUnioninitiateditsrequest for theappointment ofanImpassePanel (Joint Exhibit A).
POSITIONOFTHEPARTIES TheUnion Theissuebeforethepanel istheminimum/maximumsalariesintheCivil AdministrativeJobOpportunitySpecialist ("AdministrativeJOS") theNewYorkCityHumanResourcesAdministration. DirectorsandDeputyDirectors ofJobCenterswhichadministersocial employment servicestoeligibleindividualsandfamilies. TheAdministrativeJobOpportunitySpecialisttitlewascreatedbycombiningthejob duties ofAdministrativeManagersandAdministrativeDirectorsofSocial classificationbecamenecessarywhenthe jobfunctionsofincomesupport servicesweremerged. Consequently, employeesfillingthenewpositionrequiredadditional trainingthat entailedhigher jobqualifications, greaterautonomy, communityandworkingintheneighborhoodtoresolveissues ExecutiveDeputyCommissionerfortheFamilyIndependenceAdministration, ResourcesAdministrationandJacquelineFlaum, Local 1180, OCBDecisionNo. 4-2005, hearingonmanagerial/confidential TheAdministrativeJOSisinadirect lineofpromotionfromtheAssociatelOSandJOS titles, whichleads directlytothecompensationissue, assignment levels, withcorrespondingsalaryranges. JOSoverlapsthat oftheAdmin. JOS, especiallyat compressionexistsandthedifferencesbetweensupervisoryandsubordinatesalariesdonot adequatelyreflect aproperrelationshipAdministrativelOS'sandsubordinatetitles. Thereareapproximately25JobCenters, Bronx, Brooklyn, StatenIsland, Manhattan, Queens, 3Excerptedfromtheparties' post-hearingbriefs -8-3 Servicetitle, Levels IandIIemployedby Thesetitlesessentiallycomprise welfareprogramsand Services, Thisnew andemployment morepresenceinthe accordingtoSethDiamond, Human Assistant DeputyCommissioner(SeeCWA status). sincetheAssociateJOStitlehasthree Currentlythesalaryrange oftheAssociate Level III, totheextent that serioussalary includingSpecialtyCenters, insevenregions: Special NeedsandHousing &Homeless andeditedfor brevity, continuity, andattribution.
-9-Services. FIAhasabout 56employeeswhowereAdministrativeJOSLevelsIandIIinthe followingpositions: 42Admin. JOSSLevel IinthepositionDeputyDirector, 24Admin. JOS servingasDirector. Thereareapproximately14additional Admin. JOSLevel IandIIservingin otherfunctioningtitles. TheJobCenterDirectorisultimatelyresponsiblefortheJobCenter, andisassistedby theDeputyDirectorwhosharesmost oftheDirector'sduties andundertakestheminthe Director'sabsence. TheJobCenterDirectorreportstoaDeputyRegional Manageror Regional Manager. TheRegional Managersreport toAssistant DeputyCommissioners, whointurnreport totheDeputyCommissioner. TheDeputyDirectorisincharge ofthedailyoperationsoftheJobCenter. Inthe Director'sabsence, theyact asDirector. Amongotherduties, aDeputyDirectorcanassignor temporarilytransferemployeeswithinthecenterinconjunctionwiththeDirector; assesswork flow; holdmeetingswith staffregardingperformance; andinitiatedisciplinaryproceedingsin consultationwiththeDirector. DeputyDirectorsoverseeall theemployment functionsat theJobCenterandtheincome support process. TheysuperviseAdministrativeJobOpportunitySpecialist Level IIwho, in turn, overseethreeor four groupsforatotal of25-30employeesandactsasaliaisontoHRA's central officeonemployment issues. Onadailybasis, theyfieldquestionsfromemployees managmgcases. Theyhandleemployment relatedcomplaintsfromsourcesoutsidetheJobCenter suchas Legal Aid. Theyalsoaddressproblemsandcomplaintsconcerningprivateemployment vendors usedbyHRA. Astheoverall supervisor ofemployeeswhoprovideday-careassistancefor publicassistancerecipients, theydeal withproblemssuchaspaymentstoday-careproviders. TheUnionarguesthat it isfundamental that (a)thecurrent minimum ofAdmin. JOS salaryartificiallyisdepressed; and(b)thenewminimumwagemust reflect theirincreasedwork
andresponsibilityabovethebaseestablishedfor substantiallybehigherthanthe AlaStheysupervise. TheUnionmaintainsthattheminimumsalaryrates suppressed. It pointsout that thePayPlanfor Management salaryfor Managers, althoughmanywerepaidgreaterthantheminimumbasedupontheir experienceandpriorsalaryhistory, asarecruitment maximumsalariesintheManagement PayPlan, resultedinpayrangeswhichdidnot reflect thedevelopingdutiesandresponsibilitiesassignedto AdministrativeManagers. Inthiscase, most AdministrativelOSwereAdministrativeManagers. that theminimumsshouldbebaseduponthePayPlanminimumforManagers, that argument onthesuppressedminimumandnot 2000 -2005, initial newhiresfortheAdministrativelOStitlewerehiredat Management PayPlan (Tr, 81-82, U.Ex. 1). However, certifiedtoLocal 1180for collectivebargainingonMay10, werehiredat salarieslowerthanthe2000-2005newhires(U. thereisnodisputethat since2000, nosalaryadjustmentsweremadetothesalaries appointedAdministrative lOS(mostlyAdministrativeManagers)despitetheirconsiderable additional work ofmanagingandsupervisingboththeincomesupport services. Accordingly, because ofall theforegoing, purposestocalculatetheincreasesartificiallyislow(Tr. TheUnionnotesthat theUnionwhichrepresentssubordinatecategories intoanImpasseAgreement underwhichthefollowingminimumsalaryadjustmentsweremade individualsappointedfromformerPrincipal AdministrativeAssociatepositionstotheimmediately subordinatetitletoAdministrative lOS.-10-themasAdministrativeManagerand for Administrative lOSareartificially Employeessets forththeminimum tool. Overtheyears, whiletheCityraised it left theminimumsalariesunadjLIsted. This Thus, byarguing theCityisbasing thetrueminimumsalaries. Inaddition, from rateshigherthanthe after theAdministrativelOStitlewas 2005, newincumbentstothat title Ex. 1). Compoundingthisinjustice, ofthenewly functionandemployment theminimumhirerates uponwhichtheCity 85-87). oflOShasentered for
Thefollowingchart reflectsthese increases: AssociateJobOpportunitySpecialist Hire Level I $40,435 IncreasefrompriorPAAtitle 13% Level II $47,39I IncreasefrompriorPAAtitle 22% Level III $52,229 Increasefromprior PAAtitle 22.84% Thenewsalaryratesfor theAssociateJOStitleasset 12.10%abovethewagepatternincreasesforthepredecessortitles. Level IIIminimumsalarywas$48,896, theAssociateJOSLevel for adifference of$11,167or 22.84%. Consideringthe titlefromJulyI, 2005, throughApril 6, 2007, leavesat Inadditiontotheforegoing, theminimumratefor considerationtheintegration oftheduties oftitlesofAdministrativeManagerandAdministrative Director ofSocial Services, thehighereducational responsibilities oftheAdministrativeJOStitlerequiredbytheintegrationoffinancial employment functions. Inaddition, theArbitratormust precedent establishedintheCity'sImpasseAgreement AssociateJOSLevelsI, II, andIII. Consideringsalaries ofcurrent incumbents, 12.10%tothecurrent minimumbasedonthemode(theminimumsalarymost for thetitlepriortocertificationtoLocal 1180)andmedian(thesum certificationtoLocal 1180dividedbythenumber lOSLevel IandIIsalariestoestablishafair andequitablesalarystructureasfollows(Tr. 98-102):-11-Minimum Maximum $46,500 $63,989 14% 24% $54,500 $71,120 22% 27% $60,063 $76,773 22.84% 18.15% bytheImpasseAgreement are For example, wherethePAA IIIminimumwasset at $60,063 10.74%insalaryincreasesforthePAA 12.10%difference. thenewtitlemust takeinto requirementsandcompounded and considerthesubstantial minimumwage withLocal 371for thesubordinatetitles CWALocal 1180proposesapplyingthis frequentlypaid ofall salariesprior to ofemployees) salariesfor theAdministrative 87-92,
AdministrativelobOpportunitySpecialist Local 1180'sproposedminimumsalaryrateincreaseisbaseduponthetruecurrent minimumsandconstitutesafairandequitableminimumsalaryforAdministrativelOS. newminimumswouldbebaseduponthelevel ofresponsibilityanddifficultyofthe Administrative lOStitle. Italsowouldtakeintoaccount that must exist betweenAdministrative lOSandtheirAssociatelOSsubordinates, qualificationsandeducational requirements ofAdministrativelOS, incommunity. Italsowouldprovidetherequiredmoraleandmotivationtoadvancetothe Administrative lOStitle. TheCity TheCityarguesthat it iscritical tounderstandthesharplydefinedparametersofwhat this caseisandisnot about. Theinstant impassehearingshouldnot members ofthebargainingunit withacross-the-boardwageincreases. contentions, theappropriateness ofthecompensationpackagereceivedbyAdministrativelob OpportunitySpecialists(hereinafter"AdministrativelOS") thereisnodisputethat theseemployeesperformimportant accordingtothecivilianpatternhavebeenmutuallyagreed-uponthroughseveral contract negotiations. Theonlyissueintheinstant maximumsalaryfor the jobtitle. TheCitysubmitsthat salaryisafair andequitableproposal consideringthesalaries theworkperformed.-12-MinRate Current Proposed Level I 62,466 71,863 Level II 73,312 84,309 The asalaryrelationshipanddifferential theadditional andtheirautonomyandwork beaforumforprovidingall DespitetheUnion's isnot at issueinthis case. While andvaluedwork, wageincreases rounds of caseistheappropriateminimumand itsproposedminimumandmaximum ofothertitlesandthesubstanceof
Basedonthetestimonyadducedat hearing, bargainingunit employees, JobCenterDirectorandJobCenterDeputyDirector, essentiallythesamesinceJobCenterswerecreatedintheHumanResourcesAdministrationin thelate1990sandcertainlyhavenot changedsinceunionizationin2005. Thefirst JobCenterswereopenedinthespring createdtohandleeligibilityandemployment functionsinasinglefacility; wereall locatedat thephysical facilitieswhichwereformerlyknownasIncomeSupport (T162). In1998, AngelaJohnsonwasassignedasaJobCenterDeputyDirector; servicetitlewasAdministrativeManager, Level includedbotheligibilityandemployment staff andtheDirectorandDeputyDirectorwere responsiblefor supervisingbotheligibilityandemployment principle, JamesFieldstestifiedthat asanAdministrativeManagerin1999, employeeswhowereperformingbotheligibilityandemployment In2001, theJOStitleserieswascreated, performedbotheligibilityandemployment functions. movingintotheJOSserieshadafar biggeradjustment actuallyhadtoperformnewfunctions, whilethemanagerscontinuedtosuperviseemployment andeligibilityastheyhadsince1998(T189). Forthat DirectorandDeputyDirector isessentiallythesameasit creation oftheJOStitleseriesin200I andthecertificationoftheAdministrativeJOStitlein2005 didnot comewithanychangeinthebasicduties 182-183). TheCitysubmitsthat adoptionoftheUnion'svastlyinflatedminimumsalaryproposal wouldprovidebargainingunit employeeswithasubstantial pattern. Indeed, anadjustment oftheminimumsalaryaccordingtotheunionproposal result in69out of71bargainingunit members"goingfor -13-it iscrystal clearthat theprimaryfunctionsof haveremained of1998(T168-169). JobCenterswere theinitial JobCenters Centers her civil M-l (T185). Beginningin1998, JobCenters (T187). Consistent withthis hewasoverseeing work(T50-51). whichmeant that asingleemployeenow Thelower-level employeeswhowere withthetitlechange, becausethey reason, thebasic jobofaJobCenter was in1998(T167-J68; J89). The ofJobCenterDirectorsandDeputyDirectors (T additional raiseoverandabovethe would aride"andreceivinganimmediate
wageincrease(SeeCityExhibit 10). Ontheother wouldresult in48out of71bargainingunit membersreceivinganimmediatewageincrease. DespitetheUnion'sbest efforts, this impasseproceedingisnot isacaseabout findinganequitableminimum/maximumsalaryforthis undisputedthat JobCenterDirectorsandDeputyDirectorshaveoverseenbotheligibilityand employmentfunctionssincethelate1990'swhenJobCenterswerecreated; witnessesagreedonthispoint (T50-51; 162-163; therecord, theremust benoweight giventotheUnion'srequest membersbaseduponitsalleged"highereducational responsibilities oftheAdministrativeJOStitlerequiredbytheintegrationoffinancial employment functions." SeeCWA'sPre-HearingBrief, occurredin1998and1999; totheextent that acompensationadjustment wouldhavebeendoneat that time, whiletheemployeesweremanagers. indutiessubsequent tothecreation ofthetitlewouldbethesubject betweenthepartiesandnot bargainingonaminimum/maximumsalary. Throughout theCity, thesimpleact ofunionizationhasnever ofanyjobtitle'sminimumandmaximumsalary. unionizationmust not serveasabasisforaradical instantcase, theCityhasofferedareasonableadjustment forthesolepurpose ofavoidingcompressionwiththesalaryofAssociateJobOpportunity Specialists. UndertheCity'soffer, theAdministrativeJOSLevel thantheminimumsalary ofAssociateJOS, Level Level IIwouldbe7.8%higherthantheminimumsalaryforAdministrativeJOSLevel CityExhibit 8). Inresponse, theUnionhasessentiallyrequestedwhat general wageincreasefor all unit members, whichwouldconstituteanincreaseintheminimum-14-hand, theCity's generousbut reasonableoffer Id. acaseabout wageincreases; this jobtitle. Itisessentially UnionandCity 182; 187). Withthisunrebuttedevidencein for awageincreaseforits requirementsandcompounded and at 7. Intruth, anysuchintegration wasappropriate, it Anyadditionorchange ofgeneral wagebargaining resultedinanadjustment Similarly, intheinstant case, thesimpleact of shift inthesalaryscaleforthistitle. Inthe oftheminimumandmaximumsalary Isalarywouldbe6.7%higher III, andthesalaryforAdministrativeJOS, I(See amountstoanadditional
salaryfor AdministrativelOSLevel Iof44%fromthepreviousminimumsalary, increaseintheminimumsalaryfor AdministrativelOSLevel Finally, as discussedabove, the onlyfactor salaryistheemployer'sneedtoavoidcompressionwiththeAssociatelOSsalaryandthe employer'sneedtoincentivizeemployeestoaccept ofthesefactors imputeanysort ofretroactivepayment. retroactivitygoingbacktothedatethetitlewascertified(July28,2005). adjustment oftheminimumsalarywouldcreateanunjustifiedwindfall beeninthejobtitlesincethat time, particularlyemployees be notedthat theUnion'sminimumsalaryoffer theactual minimumsalaryinplaceat the time, andthe Level II is21.2%higherthantheactual minimumsalaryinplaceat As aresult, anyretroactiveadjustment wouldpotentiallycausetheemployer employees' salarieswithout plausibleexplanation, fiscal andbudgetaryhardship. Therefore, any ImpasseAwardshouldestablishtheminimumand maximumsalaryas ofthedateoftheAward, anddenytheUnion'smisguidedrequest retroactiveadjustment. Additionally, theUnionis allegingthat underasocalled"JOSpattern,"Administrative lOS'sareentitledtoa15%increaseintheirminimumincumbent beappliedtothe"mode" salary-thesalarytheunionclaimsisreceivedbymost AdministrativeJOS's(T147); UnionExhibit 1. is 12.1 percent, andtheUnionarguesthat, giventhehigherlevel lOS's, theyareentitledtoanadditional 3percent undisputedrecordat thehearingclearlyestablished(1) pattern"that isapplicabletotheAdministrativelOStitle; calculatingtheaverageincreasereceivedbylOS'sandAssociatelOS'sis -15-andan II of21%(SeeCityExhibit 5). whichjustifiesanychangeat all inminimum apromotiontoAdministrativeJOS. Neither Yet, theUnionis requestingfull Anyretroactive for employees, whohave whohavesinceleft thetitle. It must for AdministrativeJOS, Level I is44.3%above Union'soffer for AdministrativeJOS, the time(SeeCityExhibit 5). tovastlyadjust at atimewhentheCityundergoinggreat for salaryandthat increaseshould TheUnion'sartificiallycalculated"JOSpattern" dutiesoftheAdministrative abovethe"lOSpattern" (Tr, 147). The that thereisnosuchthingas a"lOS (2) theUnion'smethodologyfor flawedandgrossly
-16-overstatestheactual salaryincreasesreceivedbyJOS's andAssociateJOS'sand(3)the"mode" concept hasnever beenthebasisfornegotiatingaminimumincumbent salarybytheCity of NewYorkwithanymunicipal unionandisnot consistent withthemannerinwhichaminimum salaryhasbeenorshouldbenegotiated. Moreover, OLRCommissionerJamesHanleytestifiedgenerallyregardingtheCity's bargainingprocesswiththevariousunionsrepresentingpublicemployees. Commissioner Hanleytestifiedthat minimumandmaximumsalariesarenot set throughpatternbargaining, and that patternbargainingappliesonlytothecost ofacontract settlement (T132). Commissioner Hanleyalsotestifiedthat inhis38years ofexperience, theCityhasneverusedthe"mode"asa basisor indexforsettinganytype ofsalary(T133-134). Forthesereasons, theCityurgesthat thePanel adopt anawardwhichconformstoits reasonableoffer, andreject theUnion'scontrarydemandforavastlyinflatedminimumand maximumsalary. DISCUSSION Inarrivingat mydeterminationswithrespect tothedemandsofthepartiesIhave attemptedtoarriveat arecommendationwhichaddresseswhat Ibelieveshouldbethesole considerationinthisdispute, towit, establishinganappropriatesalarydifferential betweenthe title ofAdministrativeJobOpportunitySpecialist andthesubordinatetitleofAssociateJob OpportunitySpecialist. Fundamentally, Iagreewiththeposition oftheCitythat thispanel'schargewasnot to recommendminimumsalaryratesbasedonpurportedincreasesintheduties andresponsibilities offormer AdministrativeManagerswhobecameAdministrativeJobOpportunitySpecialists. Essentially, theUnion'sproposal appears tobeanattempt tobootstrapincreasesinminimurn salaryrates intoanadditional across-the-boardwageincreaseover andabovethosenegotiatedby theparties, giventhat itsproposalswouldraisethesalaryrates ofvirtuallyeveryindividual
currentlyservinginthetitle. Thepartieshadtheopportunitytoaddressthequestion dutiesandresponsibilitiesintheirsalarynegotiations, futurenegotiations. Complicatingarrival at adeterminationinthis settlement that might providesomeguidancetothepanel. that minimumandmaximumsalariesarenot set bargainingappliesonlytothecost ofacontract matter ofconsistent practice, whenatitle(oroccupational collectivebargaining, that title(or occupational increaseinminimumsalaryandtheminimumsalaryratesare"simplythesalaries andhighest salariedemployeerespectively." Notwithstandingthis posture, uniquetothis inexistencefor asignificant period, that it wasstaffedwithemployeeswhomovedfromother titles, anddidnot haveclearlydefinedminimumandmaximumsalaryrates. AdministrativeJobOpportunitySpecialist positionwasanewtitle, anewoccupational group, whichconsolidatedthefunctionsofeligibility, social servicesintheHumanResourcesAdministration. createdbythe City'sDepartment ofGeneral Servicesthenewtitleswerethenpopulatedby incumbentsfromavariety ofdifferent classifications, eligibility, andadministrative/clerical positions. positionwasprimarilypopulatedbyindividualswhohadbeenservinginAdministrative Managerpositions." Almost immediately(lessthanfour monthsafterthecreation representationwas sought bytheUnion. WhiletheAdministrativeJobOpportunitySpecialist was placedundertheManagerial PayPlan, subordinatetitleswereeligiblefor 4Althoughsomehigher level social servicesemployees -17-ofincreased andwill beabletoaddressthisquestionin matteristheabsence ofanypatternof CommissionerHanleytestifiedthat throughpatternbargaining, andthat pattern settlement. However, theCityarguedthat asa group) isdeterminedtobeeligiblefor group) wouldnot normallybegrantedan ofthelowest disputeisthat thetitleat issueherewasnot Rather, the createdasanintegral part of employment, and Whentheoccupational groupwas includingemployeesfromsocial service, TheAdministrativeJobOpportunitySpecialist ofthenewtitle) collective werealsoplacedinthisnewposition.
bargaining. However, for all practical purposes, AdministrativeJobOpportunitySpecialist position, (minimumandmaximum)establishedunder themanagerial individualswhowereplacedinthisnewtitlewereearningsalariessubstantiallyinexcess minimumsalaryestablishedundertheManagerial Essentially, thesalaries oftheseemployeesestablishedanimpreciseandsomewhat amorphous defactominimumsalaryrate, whichhasbeenreferredtobytheUnionasthe"mode" minimumsalaryrate. TheUnionseekstobuilditsminimumsalaryproposalsonthisso-called mode. Whilethismethodologymaynot bewhollyinvalid, ofdeterminingtheminimumsalaryrates forthenewpositionshouldfoundedonthedifferential betweentheAssociateJobOpportunitySpecialist OpportunitySpecialist position. IagreewiththeCityinthat salaryratesistoavoidcompressionwithlower categories reasonablepromotional incentivefor employeesinthesubordinatetitle. Ergo, theestablishment ofminimumsalaryratesfortheAJOSpositionhadtoawait establishment ofminimumandmaximumratesfor asettlement withtheUnionthat representstheAssociateJobOpportunitySpecialist's, minimumsalaryratefor subordinatetitles wasestablishedonFebruary wouldmakepractical andadministrativesensefor onApril 6, 2007, i.e., thedateofthesecondwageincreasenegotiatedbytheUnion. Astoanappropriatedifferential, Inotethat minimumsalaryisbasedonwhat ittermed"reasonablecompensationfor Howitarrivedat this characterizationisexplainedinitspost-hearingbriefwhereit examiningotherpromotional seriesintheCity, it generallyfallswithintherange ofthelower title."-18-aminimumsalaryratedidnot exist forthe except thegeneralizedsalaryrange payplan, but thevast majority of ofthe PayPlan. Ibelievethat themost validmethod IIIpositionandtheAdministrativeJob purpose ofestablishingminimum ofemployeesandtocreatea the theAssociateJobOpportunitySpecialist. In a 1,2007. Therefore, it theminimumfortheAJOStobeestablished the City'sargument for itsproposed theworkperformed." argued, "In isapparentthat thehighest salariedtitle
Nonetheless, Inotethatthepromotional District Council 37fortheJobOpportunitySpecialist revealssalaryandpercentagedifferentialsasfollowsas JobOpportunitySpecialist (Incumbent Rate) AssociateJobOpportunitySpecialistI AssociateJobOpportunitySpecialist II AssociateJobOpportunitySpecialist III Thepercentagedifferential establishedintheDistrict thesetitlesandlevels areasfollows: BetweenJobOpportunitySpecialistandAssociateJobOpportunitySpecialist BetweenAssociateJobOpportunitySpecialist BetweenAssociateJobOpportunitySpecialist WhileIagreethat nopatternexistsforestablishingminimumsalaryrates, percentagedifferential establishedbytheCityandDistrictCouncil indication, the City'sproposal falls short ofwhat betweentheminimum ofAssociateJobOpportunitySpecialist OpportunitySpecialist 1. Simplyput, theCity'sproposedminimumsaretosomeextent insufficient toavoidsalarycompressionorprovidesufficient AdministrativeJobOpportunitySpecialist. Accordingly, Ifindthat amodest adjustment theUnion'sproposal iswell beyondthebounds ofwhat differential betweentheAssociateJobOpportunitySpecialist OpportunitySpecialist 1. Iwill alsorecommendthat until expiration ofthecurrent agreementsinordertorationalizetheminimumsalariesforthe-19-differentialsestablishedinitssettlement with andAssociateJobOpportunitySpecialists ofFebruary1,2007: Minimum Maximum $38,000 $55.384 $46,500 $63.989 $54,500 $71,120 $60,063 $76,773 Council 37agreement between I 22% Levell andLevel ll-inexcessof17% Level IIandLevel III inexcessof9% iftheratesand 37agreement areany Iwouldconsideranappropriatedifferential IIIandAdministrativeJob salaryincentivefor promotionto oftheCity'sproposal iswarrantedandthat wouldtranslateintoareasonable IIIandAdministrativeJob thehiringratefor thetitlebesuspended
-20-few, ifany, AdministrativeJobOpportunitySpecialistswhomayhavebeenrecruitedfrom outside oftheHumanResourcesAdministration, Theserecommendationswill haveanegligibleimpact onthe City'sbudget inthat this recommendationonlyaffects71individuals. Therefore, Irecommendasfollows: RECOMMENDATION 1) EffectiveApril 6, 2007, theminimumsalaryrateforAdministrativeJob OpportunitySpecialist, Level Ishallbeestablishedat$65,469or9%abovethe minimumsalaryrate ofAssociateJobOpportunitySpecialist Level IIIasof February1,2007. Themaximumsalaryrateshall besetat $83,683. 2) EffectiveApril 6, 2007, theminimumsalaryrateforAdministrativeJob OpportunitySpecialist, Level IIshall beestablishedat $70,707or8%above theminimumsalaryrateforAdministrativeJobOpportunitySpecialistLevel I establishedinnumber 1above. Themaximumsalaryrateshall besetat $90,378. 3) Thereafter, theminimumsalaryratesshall beincreasedbythepercentage of thenegotiatedacrosstheboardwageincreasesonOctober 6,2008andOctober 6,2009. 4) Duringtheterm oftheagreements, thehiringrateshall besuspendedandany employeeseaminglessthantheminimumsalariesestablishedbythis recommendationshall havetheirsalaryratesadjustedtotherecommended rates. Dated: November 13,2011 AlanR. Viani, ImpassePanel
-21-AFFIRMATION StateofNewYork Countyof Westchester) ss: Theundersigned, underpenaltyofperjury, affirmsthat heistheImpassePanel inthewithin proceedingandsignedsameinaccordancewiththearbitrationlaw oftheStateofNewYork. Dated: November 13,2011
AlanR. Viani November 13,2011 Impartial ArbitratorandMediator 240JudsonAvenue DobbsFerry, NewYork10522 Phone/Fax(914)693-5638 Email: AlanJaney@Verizon.net Victor Levy, Esq. DeputyGeneral Counsel NYCOffice ofLaborRelations 40RectorStreet, 4 th Floor NewYork, NY10006 -and-Joel Spivak, Esq. Mirkin &Gordon, P.C. 98CutterMill Road Great Neck, NY11021 Re: CWALocal 1180andtheCityofNewYork. ImpasseCase1-30-09 DearMr. LevyandMr, Spivak: PleasefindenclosedmyReport andRecommendationintheabovereferencedmatter. Mybilling will besent underseparatecover. Verytrulyyours, cc: SusanPanepento, DeputyChair, OCB
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