June 1999
Volume 13, Number 6

New Mexico bargaining law lapsing amid litigation

New Mexico's public employee bargaining law will be no more July 1 unless judicial intervention saves it. A lawsuit by the International Association of Fire Fighters, AFL-CIO, the Fraternal Order of Police, and a host of other public sector unions is asking for court help to revive the seven-year-old statute. The unions are seeking to convince the New Mexico Supreme Court that Republican Governor Gary Johnson unconstitutionally used his line item veto power to allow the law to lapse.

Passed in the 1992, the law requires public employers to negotiate contracts with workers who are legally unionized. The statute contains a sunset provision of July 1, 1999. The recent session of the legislature twice voted to extend the law until 2005 but Governor Johnson vetoed the proposals. When the legislature met in special session, the lawmakers once again included the extension in the proposed state budget. Johnson vetoed the extension.

The lawsuit is based on a claim by state employees that they were at impasse in negotiations

when the legislative session ended. The bargaining law requires impasses to be resolved by the appropriations process. Thus, the lawsuit argues, the Governor exceeded his authority by striking the matter from the appropriations bill. Attorneys for the unions contend that the legislature, not the Governor, holds the power to resolve impasses in negotiations and that the Governor should not be allowed to unilaterally resolve a contract dispute by failing to renew the law. A court ruling adverse to the Governor's position would likely reinstate the law for both state and local government workers.

Prior to the law's enactment, New Mexico operated under a system of permissive bargaining. Labor contracts existed in a half-dozen cities and a few counties. Other local governmental entities simply refused to bargain with employee unions. If the litigation fails, presumably contracts currently in force would remain valid but state and local governments would no longer be obligated to negotiate future contracts.

Fire fighter deaths decline again

For the fourth consecutive year, the total number of on-duty fire fighter fatalities in the country fell below 100, according to a report released last month by the nonprofit National Fire Protection Association (NFPA). The 1998 total of 91 deaths was one of the lowest ever. Stress and overexertion, usually resulting in heart attacks, continued to be the leading cause of fatal injury for on-duty U.S. fire fighters, followed by vehicle crashes. 

"There has been great progress in reducing the number of U.S. on-duty fire fighter fatalities, but that progress isn't always steady," says Rita Fahy, NFPA manager of fire databases and systems and a co-author of the report. "We've seen the number of

fatalities in the last several years plateau just under 100, averaging about 97. This is nearly 25 percent lower than the average death tolls of the 1980s - which averaged just under 130 - marking a tremendous improvement in safety and reduction in risk. But it's not nearly good enough, when fire fighters continue to die from causes we understand and know how to address - persistent problems like heart attacks and vehicle crashes." 

NFPA's report shows that the annual number of fatal on-duty heart attacks has dropped by more than a third since 1977 (when NFPA began tracking on-duty fire fighter fatalities), but heart attacks still account for 40 to 50 percent of the deaths each year.


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In 1998, 39 fire fighters died of heart attacks. Fahy says that careful screening of fire service applicants, fitness requirements, supporting diet and exercise programs, and annual health testing are essential tools in assuring the readiness of the fire service for the stress of duty and reducing the number of on-duty heart attack deaths. 

Vehicle crashes comprise the other major category of fire fighter fatalities, with 17 deaths in 1998. The report says that vehicle crashes have accounted for 13 percent of all fire fighter deaths over the past 10 years. "Unlike heart attacks, vehicle crashes have not shown any significant decrease in fatalities over the last ten years, and yet so often these deaths are preventable," says Dr. John Hall, NFPA's assistant vice president of fire analysis and research. Some of the most commonly reported factors in the fatal vehicle crashes cited in the report are exceeding the speed limit, driving too fast for

road conditions, failure to yield, failure to stop, and failure to use seatbelts. "Better training and driver education are ways to address this problem," says Gary Tokle, a former fire chief and NFPA's assistant vice president for public fire protection. "We need to work harder to reverse detrimental behaviors by stressing the importance of wearing seatbelts and obeying the rules of the road." 

Of the 35 deaths not involving heart attacks or vehicle crashes, 22 fire fighters were fatally injured at the scene of fires, and 16 of those 22 deaths occurred inside or on the roofs of burning buildings. The causes of death in those cases included asphyxiation, burns, and crushing injuries. NFPA has tracked and analyzed U.S. on-duty fire fighter fatalities for more than 20 years. The report is updated annually, and will appear in its entirety in the July/August issue of NFPA's member magazine, NFPA Journal.

Houston chief suspended over dispatching delay

Houston Fire Chief Lester Tyra was suspended for seven days without pay this month for what the city's mayor termed "lack of judgment" in handling a fire dispatcher who claimed to be hard of hearing. The suspension followed an investigation into the circumstances surrounding a slow response time to the May 19 shooting death of a city police officer. Ambulances took more than 18 minutes to reach the mortally wounded officer who was shot while trying to arrest an auto theft suspect. 

The first ambulance was dispatched to the wrong location and ten minutes passed before dispatchers discovered the error. When police called a second time, the dispatcher missed the correct address, failed to verbally repeat it, and did not order a change in the ambulance's destination. Medical personnel subsequently concluded that a more rapid response would not have saved the life of officer Troy Blando.

The dispatcher who handled the original call for assistance, Fire Captain Donald Clark, claimed

hearing problems were to blame for his misunderstanding the address. He had reported the hearing deficiency a year ago, prior to being transferred from the records division to dispatch. Tyra reportedly met with Clark at the time and told him to provide medical documentation of his condition and to follow union grievance procedures if he wished to contest the transfer. Apparently, documentation was not forthcoming and no formal grievance was filed.

Clark told city investigators that he and Tyra had been on opposite sides of union issues in the past. He said he believed the Fire Chief was trying to punish him when he was originally transferred to dispatch.

In suspending Chief Tyra, Mayor Lee P. Brown said the chief violated no department policies in the actions involving Clark's condition but exercised poor judgment in allowing an individual with a possible hearing impairment to remain assigned to dispatch. Brown said that Tyra's job performance to date kept him from receiving a stiffer



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punishment. The mayor credited Tyra with making significant progress in improving the department.

Clark and the second dispatcher, David Whittington, were found to have violated department procedures in not verifying the location where the ambulance was to be sent. Clark has received a 15-

day suspension while Whittington has been suspended for 10 days. Both are expected to appeal.

Tyra served several terms as president of the Houston Professional Fire Fighters Association, IAFF, AFL-CIO, prior to being named Fire Chief just over a year ago.

Boston union leader ousted while under investigation

Members of the Boston fire fighters' union last month ousted president Neal Santangelo after an investigation was launched over alleged use of a union credit card for personal expenses. Jack McKenna, a 28-year veteran, defeated Santangelo by a vote of 1,005 to 601 in the race to lead Local 718 of the International Association of Fire Fighters, AFL-CIO. Other current officers ran unopposed and were reelected.

A special review conducted by outside counsel hired by the union's executive committee found that Santangelo, without authorization, had applied for a business credit card which he used for his own expenses. Additionally, the veteran union

leader is accused of writing two checks for cash from the election committee account but never reimbursing the fund. 

In a written statement to investigators, Santangelo contended that at the time he completed the application he had a personal need for a line of credit and that he paid the monthly bill with his own money.

"I want to emphasize to you, that in neither case described above, was there any use of union funds or payment made out of the union treasury," Santangelo told the Boston Globe newspaper. "Anyone who states or insinuates otherwise is either mistaken or lying."

Concert tickets cost fire fighter disciplinary transfer

A Newark, New Jersey, fire fighter, purporting to be conducting a fire inspection, set off an alarm with his superiors after cutting in front of a long line of patrons seeking tickets to a Bruce Springsteen concert minutes before the tickets went on sale. Last month, Captain Joseph D'Alise was transferred from a rescue unit to a post supervising the repair of fire apparatus for using his position to gain the front of the ticket line.

Fans of Springsteen had lined up in front of a Ticketmaster outlet, hoping for a chance to purchase tickets for one of the New Jersey native's 15 shows to be held this summer. More than 300,000 tickets to the various concerts were subsequently sold within hours of being put on sale, a concert industry record. 

Reportedly, minutes before the tickets went on sale a fire engine pulled up and D'Alise and three other fire fighters went inside the building.

According to an eyewitness, patrons asked what was going on and were told that the fire fighters were on official business conducting an inspection. Patrons became angry when they observed the fire fighters purchase four tickets while they were still locked out. The fire fighters were jeered as they exited the facility. A witness claimed that one fire fighter said, "This is one of the perks of the job."

D'Alise reportedly told investigators that he was the only one to purchase tickets, at a cost of $67.50 each. The other crew members received no disciplinary action. An officer of the local fire fighters' union suggested that D'Alise's punishment was excessive and not in the best interest of the department because the rescue unit was reduced to only two captains by the action. 

By the way, D'Alise was required to give the tickets to the city, which will probably donate them to charity.



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Litigation employees will serve a probationary period of 15 months and shall have no seniority rights and may be terminated without recourse to the grievance procedure, but shall be subject to all other provisions of the contract. A second section provides that the employer agrees that employees may be disciplined and discharged only for cause. Ertl argues that the plain language of the contract reads that probationary employees enjoy all protections under the pact except the grievance procedure on questions of seniority. The city argues that the "for cause" requirement does not apply to probationary employees. The role of the court in this case is to interpret the contract. When interpreting a contract, the court must interpret it in accordance with the plain and obvious meaning of the words used. Here, the collective bargaining agreement refers to "employees." "Employees" are defined as all active full-time employees of the fire department who hold certificates of appointment. Clearly, Ertl fit within this definition. Thus, the plain language of the collective bargaining agreement demonstrates that the disciplinary procedures apply to him. Parties to the contract specifically agreed to definition of the word "employees." But defining it in such a way that all workers are included, the parties must abide by their definition of the term. The city cannot now assert that the collective bargaining agreement does not specifically include probationary employees in its disciplinary procedures. Here, the collective bargaining agreement's definition of "employee" and its statement that all provisions of the agreement, exclusive of grievances about seniority, apply to probationary employees provides a clear statement that there was an intention to alter the at-will status of probationary employees. Reversed for former fire fighter with an order of reinstatement. [Ertl v. City of Dekalb, 708 N.E.2d 574 (Ill. App. 2 Dist. 1999)]

Cases of interest

Dismissal procedures

Ertl was hired by the city as a fire fighter. He had been on the job about seven months when he was arrested and charged with unlawful use of weapons and disorderly conduct. Two days later the city terminated his employment without explanation. The fire chief later notified the board of fire and police commissioners that Ertl had been arrested and that on the day of his arrest he had failed to report for his assigned work. The board refused to conduct any hearing on the matter taking the position that Ertl was a probationary employee. Former fire fighter sued arguing that the city had breached the collective bargaining agreement as well as Illinois statute when he was terminated. Trial court awarded damages to Ertl. He appeals arguing he should have been reinstated to his position.

HELD: Before a governmental agency deprives an individual of liberty or property, it must provide that individual with the procedural due process guaranteed by the Fourteenth Amendment. A person has a property interest in his job if he has a legitimate expectation of continued employment. To show that he has a legitimate expectation of continued employment, an individual must point to a specific ordinance, state law, contract, or understanding limiting the ability of the employer to discharge him. Illinois statute provides fire fighters with a property interest in their job. However, the statute does not apply to probationary employees. Ertl admits that he was a probationary employee, and therefore, the statute does not afford him protection. However, a municipality may afford greater protection to probationary employees than is required by state law. Ertl asserts that he has a property interest in his job based on the collective bargaining agreement between the city and the fire fighters' union. He specifically points to two provisions of the contract. One states that new

Disability eligibility

Branson served for 15 years as a fire fighter. He ceased working due to swelling and pain in his left knee. Various physicians examined Branson and


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essentially determined that he suffeed from an arthritic condition due to long-term "wear and tear." The fire fighter sought accidental disability retirement benefits from the city. The retirement board concluded that he was incapacitated from working, but granted only ordinary disability benefits. Former fire fighter sought judicial review of that determination. Trial court ruled that substantial evidence supported the conclusion that he was not entitled to an accidental disability retirement pension. Fire fighter appeals.

HELD: Under Iowa law, an accidental disability benefit is greater in amount paid than an award of ordinary disability. To receive an accidental disability benefit, however, a fire fighter must be permanently incapacitated for duty as a result of an injury that occurred "by the actual performance of duty at some definite time and place." The question presented in this case is whether a cumulative, progressing injury or an aggravation of a condition not caused by some specific incident entitles a disabled fire fighter to accidental disability retirement benefits. While the general rule is that laws creating pension rights are to be liberally construed to promote their legislative purpose and objective, a court is not free to ignore the plain language of a statute or consider what should be provided. A review of the relevant law shows it to be clear and unambiguous. The statute plainly requires that a member's incapacitating disability be attributable to a specific event or incident in order to qualify for accidental disability retirement. The court must enforce the language of the statute as written. Branson's disability is not attributable to any specific incident or event. The legislature has chosen to make the requirements for accidental disability retirement benefits more stringent than those required for ordinary disability benefits. The most obvious rationale is that the legislature recognizes that fire fighters endure an extraordinary amount of stress upon their body, which accumulates as they age. The accident requirement is an effort by the legislature to distinguish between those public servants whose careers are cut short due to an event

beyond their control and those whose careers end after many years of voluntarily accepted wear and tear. Such a motivation appears to be both rational and justified. Affirmed for retirement board denying accidental disability retirement benefits. [Branson v. Municipal Fire and Police Retirement System of Iowa, 591 N.W.2d 193 (Iowa 199)]
Settlements

Hanover, Massachusetts

fire fighters
Education pay, common in police labor contracts but unusual in the fire service, highlights the benefits in a new pact between the Town of Hanover and its fire fighters. While the three-year agreement grants annual 3 percent across-the-board pay hikes, fire fighters with college degrees in public administration or fire science technology will be further rewarded. Beginning July 1, a fire fighter holding an associate's degree will receive a 5 percent increase in base pay. A bachelor's degree will be worth 10 percent and a master's 12.5 percent. Previous contracts provided flat payments for educational attainment. The fire fighter educational reward is 50 percent of what police officers received as the state funds half of the police benefit.

Lombard, Illinois

fire fighters
An arbitrator has sided with the Village of Lombard on most issues in a recently released award for fire fighters. Fire service personnel will now operate under a retroactive three-year pact that grants a pay hike of 3.5 percent for 1997 and 3.75 percent in 1998 and 1999. The fire fighters' union, Local 3009 of the International Association of Fire Fighters, AFL-CIO, had pushed for a 7 percent hike in the first year. In addition to siding with the village on salary, the arbitrator also forced fire fighters to accept the same health care coverage as other village workers. Under the new pact fire fighter salaries will range from $35,609 to $49,241. 


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Montgomery County, Maryland

fire fighters

Rensselaer, New York

fire fighters
A three-year contract has been signed between Montgomery County and Local 1664 of the International Association of Fire Fighters, AFL-CIO, which represents over 650 fire service personnel. Over the course of the pact, employees will receive cost of living adjustments of 8.9 percent in addition to a yearly 3.5 percent service increment. Fire fighter/paramedics will receive a 3.5 percent longevity step after completion of 20 years of service. The current retirement benefit of 50 percent after 25 years with no age requirement will change July 1 to 60 percent after 25 years with no minimum age. The possible maximum benefit becomes 76 percent after 31 years of service plus two years of unused sick leave. In addition to the monetary gains, the contract adds the heart/lung presumption for service connected disability. A joint county-union committee has been assigned the task of implementing the IAFF/IAFC Wellness-Fitness Initiative by February 1, 2000. After working without a contract for two years, members of Local 2643 of the International Association of Fire Fighters, AFL-CIO, and the City of Rensselaer have reached agreement on a new labor contract. Under the terms of the three-year deal, fire fighters will receive a 3 percent wage jump in the first year, 2.5 percent the second, and another 3 percent in the third. The city will continue to provide the same benefit package although the uniform allowance was increased slightly. The pact is retroactive to August 1, 1997. The city's 25 active volunteers are unaffected by the pact. The main gain for the city was contract language that will cut back on overtime costs.

West Warwick, Rhode Island

fire fighters
The Town of West Warwick and Local 1104 of the International Association of Fire Fighters, AFL-CIO, reached accord this month on a three-year labor pact. The contract, which goes into effect on July 1, calls for a 2 percent wage hike the first six months of the agreement followed by another 1.7 percent. In the agreement's second year, pay will rise by 3 percent. The final year of the contract will produce a wage gain of 2 percent in the first six months and another 2 percent in the final half year. Over the life of the agreement a fire private's base wage will move from $35,000 to nearly $39,000. The union agreed to shift to a less expensive health insurance plan while the town also gained the right to assign, with a physician's approval, to light duty injured fire fighters who are out more than 30 days. Inspections and fire prevention will serve as the light duty assignments. The parties agreed that all newly hired fire fighters must be certified emergency medical technicians. Additionally, the contract caps the amount the town will spend on fire fighter continuing education. About 65 fire fighters are covered by the pact. 

Niles, Michigan

fire fighters
Fire fighters who have worked for the department at least 25 years will be able to retire with full benefits at age 52 rather than 55 under the terms of a new labor contract. The six-year agreement with Local 2317 of the International Association of Fire Fighters, AFL-CIO, is retroactive to October 1997. Three percent annual wage hikes are provided for each of the first two years of the contract. In the third year no pay hike is granted but the city will pick up the cost of health insurance for spouses of retirees. Years four and five garner 3 percent wage bumps while the final year contains no change in compensation. The employees who retire between ages 52 and 56 will receive a $5,000 bonus. They may also buy up to five years of military time to put toward their retirements, at a cost of 5 percent of annual earnings for each year.