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FRATERNAL ORDER POLICE v. HONORABLE MILTON J. SHAPP (12/09/75)

decided: December 9, 1975.

FRATERNAL ORDER OF POLICE, CONFERENCE OF PENNSYLVANIA LIQUOR CONTROL BOARD LODGES, BY JAMES J. LYNCH, PRESIDENT, AND NORMAN F. FORAN, SECRETARY, TRUSTEES AD LITEM, PLAINTIFF
v.
THE HONORABLE MILTON J. SHAPP, GOVERNOR OF THE COMMONWEALTH OF PENNSYLVANIA, THE HONORABLE FRANK S. BEAL, SECRETARY OF ADMINISTRATION, COMMONWEALTH OF PENNSYLVANIA, PENNSYLVANIA LIQUOR CONTROL BOARD, AND THE COMMONWEALTH OF PENNSYLVANIA, DEFENDANTS



Original jurisdiction in case of Fraternal Order of Police, Conference of Pennsylvania Liquor Control Board Lodges, by James J. Lynch, President, and Norman F. Foran, Secretary, Trustees ad litem, v. The Honorable Milton J. Shapp, Governor of the Commonwealth of Pennsylvania, The Honorable Frank S. Beal, Secretary of Administration, Commonwealth of Pennsylvania, Pennsylvania Liquor Control Board and the Commonwealth of Pennsylvania.

COUNSEL

Anthony P. Moses, for plaintiff.

Miles J. Gibbons, Jr., for defendants.

President Judge Bowman and Judges Crumlish, Jr., Kramer, Wilkinson, Jr., Mencer, Rogers and Blatt. Opinion by Judge Blatt.

Author: Blatt

[ 22 Pa. Commw. Page 268]

On May 3, 1971 the Fraternal Order of Police, Conference of Pennsylvania Liquor Control Board Lodges (FOP), the plaintiff herein, filed a representation petition before the Pennsylvania Labor Relations Board (PLRB) seeking certification as the exclusive bargaining representative of enforcement officers of the Pennsylvania Liquor Control Board pursuant to the Public Employe

[ 22 Pa. Commw. Page 269]

Relations Act,*fn1 43 P.S. ยง 1101.101 et seq. (Act 195). On December 15, 1971 the PLRB certified the plaintiff as requested, and thereafter the plaintiff entered into two successive bargaining agreements with the employer, the Commonwealth of Pennsylvania; the first for the term June 23, 1972 to June 30, 1973, and the second for the term July 1, 1973 to June 30, 1975. Then, on November 19, 1974 the plaintiff notified the Commonwealth and the other defendants herein of its intention to pursue collective bargaining with the defendants pursuant to Act 111*fn2 which accords separate collective bargaining rights to policemen and firemen. The defendants, however, refused to bargain with the plaintiff pursuant to Act 111 because of the outstanding certification of that group as the exclusive bargaining representative of its members under Act 195. As a result of this refusal and in spite of the prior certification, the plaintiff filed this action in mandamus to compel the defendants to bargain pursuant to Act 111. After answering the complaint and asserting new matter to which the plaintiff replied, the defendants have filed a motion for judgment on the pleadings. It is this motion which is now before us.

It is well established that "[m]andamus lies where a clear legal right exists in plaintiff, where a corresponding duty exists in the defendant and where there is want of any other appropriate and adequate remedy. Skock and Thurner v. Hoch, 3 Pa. Commonwealth Ct. 640, 641-42 (1971)." Venneri v. County of Allegheny, 5 Pa. Commonwealth Ct. 105, 108, 289 A.2d 523, 524 (1972). And in such cases judgment on the pleadings may be granted only where the material facts of the case are uncontroverted. Pennsylvania Gas and Water Company v. Kassab, 14 Pa. Commonwealth Ct. 564, 322 A.2d 775 (1974). We turn, therefore, to the facts of this case and the obligations of the parties which arise thereunder.

[ 22 Pa. Commw. Page 270]

The plaintiff here alleges and seeks to establish through evidentiary proceedings in an action in mandamus, that the enforcement officers whom it represents are policemen entitled to bargain under Act 111. It relies upon our decision in Venneri v. County of Allegheny, supra, in which we held that an action in mandamus was a proper method to determine in the first instance whether or not deputy sheriffs of Allegheny County were policemen under Act 111 thereby avoiding the necessity of any prior action before the PLRB to determine that they were not public employees under Act 195. See also Hartshorn v. Allegheny County, 9 Pa. Commonwealth Ct. 132, 304 A.2d 716 (1973). Bargaining rights under Act 195 and Act 111 are, of course, mutually exclusive and, therefore, some type of first instance determination of an employee's status is a necessary prerequisite to the initiation of bargaining procedures. In Venneri the first instance determination of the plaintiff's status was made by the action in mandamus. In this case the plaintiff's status as a bargaining representative has already been determined in a prior proceeding before the PLRB. The determination at that proceeding was that the plaintiff represented "public employees" and was, therefore, entitled to bargain under Act 195 which it proceeded to do. At the time of certification, however, the plaintiff attempted to reserve the right to seek a judicial determination as to whether or not its members were in fact policemen entitled to bargain under Act 111. It believed mandamus is the proper type of action by which to seek such a determination, and has filed the action now before this Court.

The defendants, on the other hand, argue that an action in mandamus is not the proper procedure and have, therefore, moved for judgment on the pleadings.

It is obvious that because bargaining rights under Act 195 and Act 111 are mutually exclusive a bargaining unit cannot bargain ...


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