Anaheim City School District, et al. (PERB 0349E)

STATE OF CALIFORNIA
DECISION OF THE
PUBLIC EMPLOYMENT RELATIONS BOARD
ANAHEIM
CITY
SCHOOL DISTRICT, Employer, and ANAHEIM
ELEMENTARY EDUCATION ASSOCIATION,
CTA/NEA, Employee Organization,
a n
d TEACHERS UNITED UNISERV UNIT, CTA/NEA,
Employee Organization.
STATEOFCALIFORNIADECISIONOFTHE PUBLICEMPLOYMENTRELATIONS
BOARD
PERB Decision No. 349
September 30, 1983
Case No. LA-AC-6
(LA-R-159)
CENTRALIA SCHOOL DISTRICT,
Employer,
a n
d CENTRALIA EDUCATION ASSOCIATION,
CTA/NEA,
Employee Organization,
a n
d TEACHERS UNITED UNISERV UNIT, CTA/NEA,
Employee Organization.
Case No. LA-AC-7
LA-R-160
MAGNOLIA SCHOOL DISTRICT,
Employer
,
and MAGNOLIA EDUCATOR'S ASSOCIATION,
CTA/NEA,
Employee Organization,
a n
d TEACHERS UNITED UNISERV UNIT, CTA/NEA,
Employee Organization.
Case No. LA-AC-8
(LA-R-199)

SAVANNA SCHOOL DISTRICT,
Employer,
a n
d SAVANNA DISTRICT TEACHERS
ASSOCIATION, CTA/NEA
Employee Organization,
a n
d TEACHERS UNITED UNISERV UNIT, CTA/NEA,
Employee Organization.
Case No. LA-AC-9
(LA-R-110)
ANAHEIM UNION HIGH SCHOOL DISTRICT,
Employer,
a n
d ANAHEIM SECONDARY TEACHERS
ASSOCIATION, INC., CTA/NEA,
Employee Organization,
a n
d TEACHERS UNITED UNISERV UNIT, CTA/NEA,
Employee Organization.
Case No. LA-AC-10
(LA-R-94A)
Appearances: A. Eugene Huguenin, Jr., Attorney (California
Teachers Association) for Anaheim Elementary Education
Association, CTA/NEA, Centralia Education Association, CTA/NEA,
Magnolia Educator's Association, CTA/NEA, Savanna District
Teachers Association, CTA/NEA, Anaheim Secondary Teachers
Association, Inc., CTA/NEA and Teachers United Uniserv Unit,
CTA/NEA; David G. Miller, Attorney for Anaheim City School
District; Kyle D. Brown, Attorney (Hill, Farrerd Burrill) for
Anaheim Union High School District; Steven J. Andelson
(Atkinson, Andelson, Loya, Ruud & Romo) for Centralia School
District, Magnolia School District and Savanna School District.
Before Gluck, Chairperson; Jaeger and Morgenstern, Members.

DECISION
Gluck, Chairperson: The Districts 1 and the respective
exclusive representatives of their certificated employees, each
a chapter of the California Teachers Association, except to an
administrative law judge's (ALJ) denial of the Chapters'
individual petitions to establish the Teachers United Uniserv
Unit, CTA/NEA (TU) as the exclusive representative in their
place. The ALJ's proposed decision is attached hereto.
THE PARTIES' EXCEPTIONS
The Districts do not except to the dismissal of the
petitions, but do challenge some of the ALJ's findings and
conclusions, principally, his failure to: (1) require that
nonmembers be eligible to vote on the question of the proposed
transfer of jurisdiction and that such an election be conducted
by the Public Employment Relations Board (PERB); (2) find that
the in-house elections conducted among chapter members were
predicated on misleading and inaccurate information furnished
by the chapters to the voters; (3) find that the petitions
unlawfully seek the creation of a multi-District bargaining
unit without the approval of the employees; and (4) find that
the ambiguity of the "opt-out" provision of the agreement with
TU was fatal to the petition.
1 By "Districts" we refer to the five districts which are
parties to this proceeding.

The chapters except to the dismissal of their petitions and
the ALJ's findings: (1) that TU may not remain the exclusive
representative of employees belonging to chapters which opt-out
of the agreement; (2) that the action of the chapters was an
"affiliation" with TU and, therefore, not covered by the phrase
"transfer of jurisdiction" found in subsection 3541.3(m) of the
Educational Employment Relations Act (EERA)2 and (3) that
their petitions must be conditioned upon pertinent amendments
to the chapters' respective bylaws.
DISCUSSION
PERB's jurisdiction in this case is necessarily predicated
on a finding that the attempted arrangement between each of the
local chapters and TU constitutes a "merger, amalgamation, or
transfer of jurisdiction" between the organizations. The word
"affiliation" — certainly known to the Legislature — does not
appear in subsection 3541.3(m). But, we do not find this
omission an impediment to out resolution of the issues raised
2 The EERA is codified at Government Code section 3540 et
seq. Unless otherwise noted, all statutory references are to
the Government Code.
Subsection 3541.3(m) which sets out powers of the Board
reads:
(m) To consider and decide issues relating to rights,
privileges, and duties of an employee organization in
the event of a merger, amalgamation, or transfer of
jurisdiction between two or more employee
organizations.

here. To the contrary, we find it germane to the conclusions
we reach.
"Affiliation"3 does not necessarily imply or entail any
significant alteration of the identity or character of the
affiliating organization. Thus, the mere act of affiliation
does not raise, per se, any legal question as to whether the
organization is still the one previously chosen by the
employees as their representative and therefore entitled to
continued certification. The omission of the word
"affiliation" thus arguably reflects the legislative view that
such action is a matter of private concern to the members of
the affected organizations best left to their discretion and
control.
However, the merger or amalgamation4 of the exclusive
representative and another organization necessarily results in
3 "'Affiliate with' is defined as to receive on friendly
terms; to associate with; to be intimate with; to sympathize
with; to consort with; and to connect and to associate with.
Wolck v. Weedin, C.C.A. Wash., 58 F.2d 928, 930. But
'affiliated' does not bear construction that an affiliated
organization is identical with or covered by parent
organization with which affiliated. People v. Horiuchi, 114
Cal. App. 415." Black's Law Dictionary (Revised 4th Ed. 1968),
p. 80.
4 "Merger" is defined as the fusion or absorption of the
thing into another where the least important ceases to have
independent existence. Black's Law Dictionary, supra, p. 1140.
"Amalgamation" is defined as the joinder for a single body
of two or more associations, organizations, or corporations as
to form a homogeneous whole or new body. Black's Law
Dictionary, supra, p. 104.

the termination of the former's existence and the creation of a
new organization which may never have been considered by the
unit employees as its future bargaining agent and has never
been chosen by them for that purpose. That the new
organization may retain certain characteristics of the
incumbent may be of significance in deciding the issue of
certification, but his does not alter the fact that an
organizational change has taken place.
One need not look for a specific definition of the phrase
"transfer of jurisdiction" to understand its meaning in the
context of these proceedings. Certainly, the Legislature did
not intend that PERB assert its regulatory authority over an
organization's internal decisions which have no necessary
bearing on rights or obligations established by the Act.5
For example, a decision by a national organization to transfer
from one affiliated local to another the jurisdiction to
organize a particular group of workers is well beyond the range
of PERB's powers of intervention. Similarly, the desire to the
members of the exclusive representative to transfer its
representational jurisdiction to the organization with which it
affiliated is a matter over which we normally have no direct or
immediate say. However, that desire, even when expressed
through the members' decision to effect such a transfer, cannot
5 Los Angeles Community College District (Jules Kimmett)
(10/19/79) PERB Decision No. 106.

itself dissolve existing statutory bargaining rights or create
new ones. It is by the request for a PERB-ordered change of
certification arising out of that transfer of jurisdiction that
subsection 354.3(m) is called into play and PERB's authority
to consider and decide the "rights, privileges, and duties of
an employee organization" becomes operative.
Ultimately, then, disposition of these petitions rests on
the answers to three questions:
1. Is TU "an employee organization which includes
employees of a public school employer and which has as one of
its primary purposes representing such employees in their
relationship with the school employer"?6
2. If so, may PERB, in light of the current exclusive
representative status of each chapter, certify TU as the
exclusive representative of the Districts' employees except in
accordance with EERA policy governing timeliness of
decertification proceedings?7
3. It yes, should PERB certify TU under the circumstances
here?
6 EERA subsection 3540.1(d).
7 EERA subsection 3544.7(b) requires PERB to dismiss
petitions for decertification where there is a collective
bargaining agreement in effect unless filed within the stated
"window period" or when recognition of the incumbent was
granted by the public school employer within the previous 12
months

TU's identity: TU's bylaws provide that members of the
various locals, as well as the locals themselves, can have
membership in the new organization. There is nothing in the
record to indicate that the bylaws include restrictions or
limitations on membership which might arguably remove TU from
coverage of EERA's definition of an employee organization.
There is no dispute, nor could there be, that TU has its
primary purpose, the representation of public school employees
in their relationship with their public school employers. We
conclude, accordingly, the TU is an employee organization
within the meaning of the Act.
Does EERA policy applicable to decertification petitions
apply? Normally, a change of exclusive representative occurs
as a consequence of a decertification proceeding and employee
election.8 However, the existence of subsection 3541.3(m)
mages it clear that the Legislature did not intend that
decertification be the sole means by which a change in
representation can be accomplished.
PERB has adopted no rule or regulation prescribing when
"issues relating to rights, privileges and duties of an
employee organization in the event of a . . . transfer of
jurisdiction"9 may be raised. By its restraints against
8 Though not relevant to the facts here, a change may also
result from a properly filed and approved severance petition,
although EERA does not specifically refer to such a process.
9 EERA subsection 3541.3(m), supra.

attempts to remove an incumbent, the Act seeks to minimize the
possibility of a destabilization of the existing bargaining
relationship and its attendant potential for harsh
confrontation between employer and employees.10 But the
nature of the jurisdictional changes contemplated by subsection
3541.3(m) is readily distinguishable from that involved in
decertifications and is pertinent to the matter of when such
petitions may be filed. In subsection 3541.3(m) cass, there
is necessarily an affinity between the incumbent organization
and its proposed successor. There may be substantial overlap
in the leadership or members. There is unlikely to be, if
ever, the rivalry or hostility that characterizes the
relationship between an incumbent and an organization seeking
decertification or severance and which can lead to the
conditions which the Act's time bars are designed to prevent.
Where there is agreement between the incumbent and the intended
successor to seek a transfer of certification and where some
continuity in the character of representation may be
anticipated, similar concerns seem unnecessary.11 We
10 Bassett United School District (1/30/79) PERB Order
No. Ad-57, vacated ny the Board on reconsideration for other
reasons. See Bassett Unified School District (3/23/79) PERB
Order No. Ad-63.
11 Here, for example, the arrangement between TU and
the various locals provides for substantial continuity of those
conditions which impact on the stability of current
management-employee relationships. Local members will belong
to TU and will serve on its governing body and bargaining

c o n c l u d e t h a t p e t i t i o n s a r i s i n g o u t o f s u b s e c t i o n 3 5 4 1 .3
( m ) n e e d n o t b e s u b j e c t t o t h e t i m e l i m i t a t i o n s a p p l i c a b l e
t o p e t i t i o n s f o r d e c e r t i f i c a t i o n o r s e v e r a n c e a n d , i t
c o n s i d e r a t i o n o f t h e f a c t s h e r e , w e f i n d t h a t t h e p e t i t i o n s
w e r e tim e ly file d .
S h o u ld T U b e c e r t if ie d ?
W e f i n d t h e D i s t r i c t ’s c o n t e n t i o n t h a t n o n m e m b e r s m u s t
b e a l l o w e d t o v o t e o n a c h a n g e i n c e r t i f i c a t i o n i n
a P E R B - c o n d u c t e d e l e c t i o n t o b e m e r i t o r i o u s . A l t h o u g h
w e a c k n o w l e d g e t h e t h r e a d o f o r g a n i z a t i o n a l c o n t i n u i t y t h a t
w i n d s t h r o u g h t h e p r o p o s e d a r r a n g e m e n t b e t w e e n T U a n d
t h e c h a p t e r s , t h e o p p o r t u n it y o f n o n m e m b e r s t o p a r t ic ip a t e ( o r
voluntarily not to participate) in the change of their exclusive
r e p r e s e n t a t i v e i s s o f u n d a m e n t a l i n t h e E E R A s c h e m e t h a t w e
c a n p r e s e n tly e n v is io n n o a c c e p ta b le p r o c e s s w h ic h fo r e c lo s e s its
e x e r c is e . N o n m e m b e r s c a n a n d d o v o t e in r e p r e s e n t a t io n
e l e c t i o n s a n d u n d o u b t e d ly s o m e v o t e f o r r e p r e s e n t a t i o n . T o
a s s u m e t h e y h a v e n o i n t e r e s t i n a t r a n s f e r o f b a r g a i n i n g r i g h t s
i s u n w a r r a n t e d . T h e L e g i s l a t u r e , i n d e a l i n g w i t h t h e m a t t e r
o f " f r e e r i d e r s " , l i m i t e d i t s e l f t o p r o v i d i n g f o r t h e n e g o t i a t i o n
c o m m it t e e s . E a c h u n i t 's b a r g a i n in g p o li c y w o u ld b e f o r m u la t e d
b y a s i x - m e m b e r c o m m i t t e e o f w h i c h t h r e e m e m b e r s w o u l d
b e f r o m t h a t u n i t . U l t i m a t e l y , e a c h l o c a l ' s m e m b e r s w o u l d
r a t i f y o r r e j e c t p r o p o s e d a g r e e m e n t s a n d o n l y t h e l o c a l s
c o u l d c a l l s t r i k e s . B y o u r r e f e r e n c e t o t h i s p r o v i s i o n , w e d o
n o t in t e n d t o im p ly t h a t s t r ik e s a r e la w f u l o r u n la w f u l ; it is m a d e
so le ly in th e co n te x t o f o u r d iscu ssio n o f co n tin u ity .

o f service fee s. 1 2 It h as n o t called fo r fo rfeitu re o f n o n m em b ers'
s t a t u t o r y r i g h t t o p a r t i c i p a t e i n r e p r e s e n t a t i o n
e l e c t i o n s . C e r t a i n l y , t h a t r i g h t c a n n o t b e d e f e a t e d b y t h e
a c t io n o f c o w o r k e r s s im p ly b e c a u s e t h e y h a v e c h o s e n t o b e c o m e
m e m b e r s o f th e in c u m b e n t r e p r e s e n ta t iv e .
F u r t h e r , w e d o n o t c o n s i d e r i t a p p r o p r i a t e t h a t a q u e s t i o n
o f c e r t i f i c a t i o n b e r e s o l v e d t h r o u g h e l e c t i o n s c o n d u c t e d
b y p a r t i e s t o t h e p r o c e e d i n g s a n d p a r t i c u l a r l y b y t h o s e
w i t h s o d i r e c t a n d v i t a l a n i n t e r e s t i n t h e o u t c o m e a s i s
t h e c a s e h e r e . T h e c o n d u c t o f a n e le c t io n t o d e t e r m in e
w h ic h o r g a n iz a t io n , if a n y , s h a ll r e p r e s e n t t h e e m p lo y e e s in
a n e s t a b lis h e d b a r g a in in g u n it is r e s e r v e d e x c lu s iv e ly t o t h e
Board.13
T h e D i s t r i c t a l s o c o n t e n d s t h a t t h e e f f e c t o f t h e p r o v i s i o n
p e r m i t t i n g a n y c h a p t e r t o " o p t o u t " o f i t s r e l a t i o n s h i p t o T U
w a s m i s r e p r e s e n t e d t o t h e v o t e r s , t h u s i n v a l i d a t i n g t h e
e l e c t i o n r e s u l t s .1 4 W e f i n d t h e D i s t r i c t w i t h o u t s t a n d i n g t o
1 2 E E R A s u b s e c t io n s 3 5 4 0 .1 ( h ) a n d 3 5 4 0 .1 ( i) a n d s e c t io n
3 5 4 6 . S e e a l s o K i n g C i t y J o i n t U n i o n H i g h S c h o o l D i s t r i c t
(3 / 3 / 8 2 ) P E R B D e cisio n N o . 1 9 7 .
1 3 E E R A s u b s e c t i o n 3 5 4 1 . 3 ( c ) a n d s e c t i o n 3 5 4 4 . 7 .
1 4 P e t i t i o n e r s c l a im t h a t t h e p r o v i s i o n i s in t e n d e d o n l y
t o p e r m i t a c h a p t e r t o w i t h d r a w f r o m i t s r e l a t i o n s h i p w i t h
T U a n d t h a t t h e e x e r c is e o f t h e o p t i o n w o u ld n o t i t s e lf e f f e c t
c e r t i f i c a t i o n . T h e A L J w a s c o n c e r n e d t h a t t h e p r o v i s i o n

r a is e t h is is s u e . I n C a lifo r n ia S c h o o l E m p lo y e e s A s s o c ia t io n a n d
i t s S h a s t a C o l l e g e C h a p t e r # 3 8 1 ( P a r i s o t ) ( 1 / 3 1 / 8 3 ) P E R B
D e c i s i o n N o . 2 8 0 , w e d i s t i n g u i s h e d K i m m e t t , s u p r a , f n . 5 , f r o m
t h e s i t u a t i o n i n w h i c h t h e o r g a n i z a t i o n 's i n t e r n a l o p e r a t i o n s
a r g u a b ly im p in g e d o n a n e m p lo y e e 's r ig h t s g r a n t e d b y E E R A ,
h o ld i n g t h a t i n s u c h e v e n t P E R B w a s o b li g a t e d t o a c c e p t
j u r i s d i c t i o n , B u t t h e r i g h t s w e r e f e r r e d t o w e r e t h o s e g r a n t e d
t o e m p l o y e e s b y s e c t i o n 3 5 4 3 t o p a r t i c i p a t e i n o r g a n i z a t i o n a l
a c t i v i t i e s o f t h e i r o w n c h o o s i n g f o r p u r p o s e s o f r e p r e s e n t a t i o n
o r t o r e f r a i n f r o m s o d o i n g . T h e e m p l o y e r , o f c o u r s e , e n j o y s
n o s u c h r i g h t . N o r m a y i t a c t a s t h e s e l f - a p p o i n t e d
" p r o t e c t o r " o f t h o s e e m p l o y e e r i g h t s . I n d e e d , t o a t t e m p t t o
a c t i n t h a t m a n n e r m i g h t w e l l c o n s t i t u t e a v i o l a t i o n o f i t s
i m p l i e d d u t y t o r e f r a i n f r o m t h o s e a c t i o n s m a d e u n l a w f u l
by subsection 3543.5(d).15
T h e D i s t r i c t s ' c o n t e n t i o n t h a t t h e c h a n g e s i n c e r t i f i c a t i o n
w o u l d , i n e f f e c t , c r e a t e a m u l t i - e m p l o y e r b a r g a i n i n g u n i t i s
c a r r i e s t h e p o t e n t i a l f o r c o n f u s i o n a s t o b a r g a i n i n g r i g h t s a n d
o b l i g a t io n s in t h e e v e n t o f it s i m p l e m e n t a t i o n a n d s o m u d d ie s
t h e c o n c e p t o f e x c l u s i v i t y a s t o b e i n c o m p a t i b l e w i t h E E R A 's
p rin cip le s.
1 5 S u b se ctio n 3 5 4 3 .5 (d ) re a d s :
I t s h a l l b e u n l a w f u l f o r a p u b l i c s c h o o l
employer to: . .
. . . . . . . . . . . . . . . . . . . D o m in a te o r in te r fe r e w ith
th e fo r m a tio n o f a d m in is tr a tio n o f a n y e m p lo y e e
o r g a n iz a t io n , o r c o n t r ib u t e fin a n c ia l o r o t h e r
support to it, or in any way encourage em ployees
t o jo in a n y o r g a n iz a t io n in p r e fe r e n c e t o
an other.

s i m p l y n o t s u p p o r t e d b y t h e r e c o r d . T U d e n i e s t h a t i t i n t e n d s
s u c h a r e s u l t , b u t i t i s n o t n e c e s s a r y t o a c c e p t i t s t e s t i m o n y
a s c o n c l u s i v e . T h e p e t i t i o n s s e e k s e p a r a t e c e r t i f i c a t i o n o f T U
in e a c h u n it . H o w T U w o u ld c o n d u c t it s e lf it t h e p e t it io n s w e r e
g r a n t e d i s a m a t t e r o f i t s c o m p l i a n c e w i t h t h e g o o d - f a i t h
r e s p o n s ib ilit ie s im p o s e d b y s u b s e c t io n 3 5 4 3 .6 ( c ) .
T h e D i s t r i c t s ; a r g u m e n t t h a t a n y c h a p t e r m a y d o m i n a t e
t h e o t h e r s t h r o u g h T U i s s p e c u l a t i v e a n d a t t e m p t s t o
a d d r e s s t h e le g a li t y o f T U 's f u t u r e n e g o t ia t in g p r a c t ic e r a t h e r
th an its legal right to act in that capacity.
T h e D i s t r i c t s ' e x c e p t i o n s t o t h e i n - h o u s e e l e c t i o n w h i c h
h a v e n o t b e e n s p e c if i c a lly a d d r e s s e d a r e m o o t e d s i n c e b y o u r
O r d e r w e v a c a t e t h e A L J 's p r o p o s e d d e c i s io n in i t s e n t i r e t y .
B e c a u s e w e f i n d t h a t t h e p e t i t i o n s h e r e s e e k t h e t r a n s f e r
o f c e r t i f i c a t i o n s t o a d i f f e r e n t o r g a n i z a t i o n a n d b e c a u s e
n o n m e m b e r s , a s w e ll a s c h a p t e r m e m b e r s , h a v e n o t h a d t h e
o p p o r t u n it y t o v o t e in a P E R B - c o n d u c t e d r e p r e s e n t a t io n e le c t io n
a s i s t h e i r r i g h t , w e d e c l i n e t o c e r t i f y T U a s t h e e x c l u s i v e
r e p r e s e n t a t iv e o f e m p lo y e e s in a n y o f t h e D is t r ic t s m a d e p a r t y t o
t h e s e p r o c e e d in g s . B e c a u s e t h e p e t it io n s b e fo r e u s r e q u e s t d ir e c t
c e r t i f i c a t i o n o f T e a c h e r s U n i t e d U n i s e r v U n i t , C T A / N E A , a n d
fa il t o r e q u e s t t h a t P E R B c o n d u c t r e p r e s e n t a t io n e le c t io n s a m o n g
t h e v a r i o u s u n i t e m p lo y e e s , w e d is m i s s t h e m , b u t w i t h le a v e
t o a m e n d i n a c c o r d a n c e w i t h o u t f i n d i n g s a n d c o n c l u s i o n s .

ORDER
U p o n th e fo r e g o in g D e c is io n a n d th e e n tir e r e c o r d in th is c a s e ,
t h e p e t it io n s f ile d in C a s e N o s . L A - A C - 6 ( L A - R - 1 5 9 ) ; L A - A C - 7
( L A -R -1 6 0 ) ; L A -C A -8 (L A -R -1 9 9 ) ; L A -A C -9 (L A -R -1 1 0 ); a n d L A -A C -1 0
( L A - R - 9 4 A ) a r e h e r e b y D I S M I S S E D , w i t h l e a v e t o a m e n d .
M e m b e r s J a e g e r a n d M o r g e n s t e r n jo in e d in t h is D e c is io n .

STATE OF CALIFORNIA
PUBLIC EMPLOYMENT RELATIONS BOARD
ANAHEIM CITY SCHOOL DISTRICT,
Em ployer,
and
ANAHEIM ELEMENTARY EDUCATION ASSN.,
CTA/NEA
, E m p lo y ee O rga n izatio n ,
and
TEACHERS UNITED UNISERV UNIT/CTA/NEA,
E m p lo y e e O r g a n iz a tio n .
C a s e N o . L A -R -1 5 9
AC-6
CENTRALIA SCHOOL DISTRICT,
Em ployer,
and
CENTRALIA EDUCATION ASSN., CTA/NEA,
E m p lo y e e O r g a n iz a tio n ,
and
TEACHERS UNITED UNISERV UNIT/CTA/NEA,
E m p lo y e e O rga n iza tio n .
C a s e N o . L A -R -1 5 9
AC-7
MAGNOLIA SCHOOL DISTRICT,
Em ployer,
and
M AGNOLIA EDUCATOR'S ASSN., CTA/NEA,
E m p lo y e e O r g a n iz a tio n ,
and
TEACHERS UNITED UNISERV UNIT/CTA/NEA,
E m p lo y e e O r g a n iz a tio n .
C a s e N o . L A -R -1 6 0
AC-8

SAVANNA SCHOOL DISTRICT,
Em ployer,
and
SAVANNA DISTRICT TEACHERS ASSN., CTA/NEA, Employee
O r g a n iz a tio n ,
and
TEACHERS UNITED UNISERV UNIT/CTA/NEA,
E m p lo y ee O rga n izatio n .
C a s e N o . L A -R -1 1 0
AC-9
ANAHEIM UNION HIGH SCHOOL DISTRICT,
Em ployer,
and
ANAHEIM SECONDARY TEACHERS ASSN., INC.,
CTA/NEA
, E m p lo yee O rgan izatio n ,
and
TEACHERS UNITED UNISERV UNIT/CTA/NEA,
E m p lo y e e O r g a n iz a tio n .
C a se N o . L A -R -9 4 A
AC-10
PROPOSED DECISION
ON PETITION FOR
TRANSFER OF
JURISDICTION
(5/24/82)
A p p e a r a n c e s : A . E u g e n e H u g u e n in , A t t o r n e y a t L a w , fo r A n a h e im
E le m e n t a r y E d u c a t io n A s s o c ia t io n , C T A / N E A , C e n t r a lia E d u c a t io n
A s s o c ia t io n , C T A / N E A , M a g n o lia E d u c a t o r 's A s s o c ia t io n , C T A / N E A ,
S a v a n n a D is t r ic t T e a c h e r s A s s o c ia t io n , C T A / N E A , A n a h e im
S e c o n d a r y T e a c h e r s A s s o c ia t io n , I n c ., C T A / N E A , a n d T e a c h e r s
U n it e d U n iS e r v U n it , C T A / N E A ; S t e v e n J . A n d e ls o n , A t t o r n e y a t
L a w , A t k in s o n , A n d e ls o n , L o y a , R u u d a n d R o m o f o r C e n t r a lia ,
M a g n o l i a a n d S a v a n n a S c h o o l D i s t r i c t s ; D a v i d G . M i l l e r , E s q .,
fo r A n a h e im C it y S c h o o l D is t r ic t ; a n d K y le D . B r o w n , A t t o r n e y a t
L a w , H i l l , F a r r e r & B u r r i l l f o r A n a h e i m U n i o n H i g h S c h o o l
D is tr ic t.
B e f o r e , G a r y M . G a l l e r y , A d m in i s t r a t i v e L a w J u d g e .

PROCEDURAL HISTORY
T h i s c a s e e x a m i n e s p e t i t i o n s f o r " t r a n s f e r o f j u r i s d i c t i o n "
b y f iv e s e p a r a t e e x c l u s iv e r e p r e s e n t a t i v e s r e q u e s t i n g
c e r t ific a t io n o f T e a c h e r s U n it e d U n is e r v U n it / C T A / N E A
( h e r e a f t e r T e a c h e r s U n it e d ) a s t h e n e w e x c lu s iv e r e p r e s e n t a t iv e
i n t h e f i v e r e s p e c t i v e s c h o o l d i s t r i c t s .
O v e r t h e s i g n a t u r e s o f e a c h o f t h e f i v e c h a p t e r p r e s i d e n t s
a n d W i l l i a m H a r j u , e x e c u t i v e d i r e c t o r o f T e a c h e r s U n i t e d , f i v e
s e p a r a t e r e q u e s t s f o r t r a n s f e r o f j u r i s d i c t i o n t o T e a c h e r s
U n i t e d w e r e f ile d in M a r c h o f 1 9 8 1 w it h t h e L o s A n g e le s
R e g i o n a l O f f i c e . P u r s u a n t t o P E R B r e g u l a t i o n s n o t i c e o f t h e
p e t i t i o n s w e r e g i v e n t o t h e r e s p e c t i v e e m p l o y e r D i s t r i c t s
w h o in t u r n f ile d s u n d r y o b je c t io n s t o t h e p e t it io n s . S e t t le m e n t
c o n fe r e n c e s w e r e h e ld o n Ju n e 3 a n d 1 2 , 1 9 8 1 w it h o u t s u c c e s s . A
f o r m a l h e a r i n g w a s c o n d u c t e d o n O c t o b e r 5 , 6 , 7 , a n d
N o v e m b e r 6 , 1 9 8 1 . F i li n g o f p o s t - h e a r i n g b r ie f s w a s c o m p l e t e d
F e b r u a r y 4 , 9 8 2 a n d t h e m a t t e r s t o o d s u b m it t e d .
FINDINGS OF FACT
E a c h o f t h e f i v e s c h o o l d i s t r i c t s i s a n e m p l o y e r w i t h i n t h e
m e a n in g o f th e E d u c a tio n a l E m p lo y m e n t R e la t io n s A c t1
( h e r e a f t e r E E R A ) . A t a l l t i m e s r e l e v a n t t h e r e t o , t h e f i v e l o c a l
1 G o v e r n m e n t C o d e s e c t io n 3 5 4 0 e t s e q . A ll r e f e r e n c e s a r e
t o t h e G o v e r n m e n t C o d e u n le s s o t h e r w is e n o t e d .

chapters Anaheim Elementary Education Association, CTA/NEA
(hereafter AE EA); Centralia Education Association CTA/NEA
(hereafte r CE A); M agnolia Educa to r's Associa tion, CTA/NEA
(hereafter M EA); S avanna District Teach ers A ssociation, C TA/NE A
(hereafter SDTA); and Anaheim Secondary Teachers Associa tion,
CTA/ NEA (hereafter ASTA) have been and are employee
o r g a n i z a t i o n s w i t h i n t h e m e a n i n g o f E E R A . S i n c e 1 9 7 6 , e a c h h a s
b e e n r e c o g n i z e d a s t h e e x c l u s i v e r e p r e s e n t a t i v e o f c e r t i f i c a t e d
e m p l o y e e s a t e a c h o f t h e f i v e d i s t r i c t s . 2
E a c h o f t h e C h a p t e r s h a v e c o l le c t i v e b a r g a i n i n g a g r e e m e n t s
w i t h t h e r e s p e c t i v e e m p l o y e r s . 3 A l l c o n t r a c t s r e c o g n i z e t h e
l o c a l c h a p t e r a s t h e e x c l u s i v e r e p r e s e n t a t i v e o f u n i t m e m b e r s .
A l l o f t h e D i s t r i c t s , s a v e f o r A n a h e i m U n i o n H i g h S c h o o l
D i s t r i c t , a r e e l e m e n t a r y d i s t r i c t s ( k i n d e r g a r t e n t h r o u g h s i x t h
g r a d e ) a n d v a r y i n s i z e , n u m b e r o f s c h o o l s a n d s t u d e n t s .
A n a h e i m C i t y h a s 2 1 s c h o o l s a n d 1 1 , 4 0 0 s t u d e n t s ; C e n t r a li a h a s
t e n s c h o o l s ( t w o c l o s e d ) w i t h a n a v e r a g e d a i l y a t t e n d a n c e o f
3 8 0 9 ; M a g n o l i a h a s n i n e s c h o o l s ( o n e c l o s e ) w i t h a n A D A o f
2 A l l t h e a s s o c i a t i o n s w e r e v o l u n t a r i l y r e c o g n i z e d b y t h e
r e s p e c t i v e e m p l o y e r s c h o o l d i s t r i c t s a t d i f f e r e n t t i m e s i n 1 9 7 6 .
3 T he con tract h istory is:
A n a h e i m U n io n H ig h S c h o o l D is t r i c t ; 1 9 7 8 - 1 9 8 1 , f o u r 1 - y e a r
c o n t r a c t s ; 1 9 8 1 - 1 9 8 4 ( t h r e e - y e a r c o n t r a c t ) ; A n a h e i m C i t y
S c h o o l s D i s t r i c t , 1 9 7 6 - 1 9 8 1 , f i v e 1 - y e a r c o n t r a c t s ; 1 9 8 1 - 1 9 8 4
( 3 y e a r c o n t r a c t ) C e n t r a l i a S c h o o l D i s t r i c t , 1 9 7 6 - 1 9 8 0 , f o u r
1 - y e a r c o n t r a c t s ; 1 9 8 0 - 1 9 8 3 ( t h r e e - y e a r c o n t r a c t ) ; M a g n o l i a ,
1 9 7 6 - 1 9 8 1 , f i v e 1 - y e a r c o n t r a c t s , 1 9 8 1 - 1 9 8 4 ( t h r e e - y e a r
c o n t r a c t ) ; S a v a n n a , 1 9 7 6 - 1 9 8 1 , 1 - y e a r ( 1 9 7 6 - 7 7 ) , 3 y e a r
1977-1980, 1 year 1980-1981.

1 7 3 3 s t u d e n t s . t h e A n a h e im U n i o n H i g h S c h o o l D i s t r ic t h a s
e i g h t h i g h s c h o o l s ( 9 - 1 2 ) , e i g h t j u n i o r h i g h s c h o o l s ( 7 - 9 ) , a
c o n t i n u a t i o n h i g h s c h o o l a n d a s p e c i a l e d u c a t i o n h i g h s c h o o l .
I t s c u r r e n t e n r o llm e n t is a p p r o x im a t e ly 2 4 ,1 7 3 s t u d e n t s .
T h e c h a p t e r s a r e s i m i l a r i n o r g a n i z a t i o n a l s t r u c t u r e i n
t h a t t h e b a s i c g o v e r n a n c e b o d y c o n s i s t s o f a r e p r e s e n t a t i v e
c o u n c i l ( o r A s s e m b l y ) m a d e u p o f m e m b e r s o f t h e b o a r d
o f d i r e c t o r s ( o r e x e c u t i v e b o a r d ) a n d r e p r e s e n t a t i v e s f r o m e a c h
o f t h e b u i l d i n g s i t e s w i t h i n t h e d i s t r i c t . T h e b o a r d o f d i r e c t o r s
( o r e x e c u t i v e b o a r d ) i s m a d e u p o f t h e o f f i c e r s ( p r e s i d e n t ,
v i c e p r e s i d e n t , s e c r e t a r y a n d t r e a s u r e r ) p l u s d i r e c t o r s a t
l a r g e a n d / o r t h e C T A s t a t e r e p r e s e n t a t i v e . t h e o f f i c e r s a n d
s t a t e r e p r e s e n t a t i v e s a r e e l e c t e d a t l a r g e w i t h i n e a c h c h a p t e r
w h i l e t h e b u i l d i n g o r f a c u l t y r e p r e s e n t a t i v e s a r e c h o s e n a t t h e
building level.
W h i l e t h e c h a p t e r b y l a w s v a r y i n c o n t e n t a n d d e t a i l , t h e y
d o , i n a d d i t i o n t o p r o v i d i n g t h e f o r e g o i n g , p r o v i d e f o r
negotiating committee or bargaining team member appointment
w i t h r a t i f i c a t i o n b y t h e e x e c u t i v e b o a r d o r t h e r e p r e s e n t a t i v e
c o u n c i l . A g r i e v a n c e c o m m i t t e e i s a l s o p r o v i d e d w i t h s i m i l a r
appointment provisions.
E a c h o f t h e c h a p t e r s h a s , a t a l l t i m e s m a t e r i a l h e r e t o ,
b e e n a f f i l i a t e d w i t h t h e C a l i f o r n i a T e a c h e r s A s s o c i a t i o n
( h e r e a ft e r C T A ) a n d th e N a tio n a l E d u ca tio n A s s o c ia t io n
( h e r e a ft e r N E A ). T h e c h a p t e r s , C T A a n d N E A e a c h s e t t h e ir

r e s p e c t i v e d u e s . P a y w a r r a n t d e d u c t i o n s a r e f o r w a r d e d d i r e c t l y
t o C T A w h o i n t u r n d i s t r ib u t e s t o N E A a n d t h e c h a p t e r s t h e ir
entitlements.
S o m e tim e p r io r t o 1 9 7 3 , A S T A e s t a b lis h e d a U n is e rv u n it
w i t h i n t h e c h a p t e r . 4 I n 1 9 7 3 , W i l l i a m H a r j u b e c a m e e x e c u t i v e
d i r e c t o r o f t h e A S T A U n i S e r v u n i t . I n 1 9 7 4 , a U n i s e r v u n i t ,
c a l l e d t u c a m s , 5 r e p r e s e n t i n g t h e a s s o c i a t i o n s a t t h e
C e n tr a lia , A n a h e im , M a g n o lia , a n d S a v a n n a S c h o o l D is tr ict s w a s
f o r m e d . C h a r l e n e E v a n s s e r v e d a s e x e c u t i v e d i r e c t o r o f
TUCAMS. ASTA and TUCAMS began to share office space.
S e rvic es r endered b y H a rju and E vans w ere b argaining
a s sis t a n ce , d e v e lo p in g a n d im p le m e n t in g t r a in in g p r o g r a m s ,
d e v e l o p i n g a n d a s s i s t i n g i m p l e m e n t a t i o n o f p o l i t i c a l a c t i o n ,
p u b l i c r e l a t i o n s , g r i e v a n c e t r a i n i n g a n d p r o c e s s i n g ( b o t h
i n f o r m a l a n d f o r m a l) , a n d l o b b y in g a c t iv i t y .
F r o m 1 9 7 4 f o r w a r d t h e r e w a s a p r o g r e s s i o n o f c o o r d i n a t e d
a c t i v i t y b e t w e e n t h e r e p r e s e n t a t i v e s o f A S T A a n d T U C A M S ,
i n p a r t , s i m p l y b e c a u s e o f t h e s h a r i n g o f o f f i c e s . T h e r e c a m e t o
4 U n i s e r v i s a p r o j e c t i m p l e m e n t e d i n 1 9 7 0 b y N E A
t o p r o v i d e a s s i s t a n c e t o l o c a l c h a p t e r s i n m a t t e r s o f
e m p l o y e r - e m p l o y e e r e l a t i o n s . C h a p t e r s o r g r o u p s o f c h a p t e r s
h a v in g 1 2 0 0 o r m o re m e m b e rs m a y o b ta in fin a n cia l a s s is ta n ce
f r o m b o t h t h e N E A a n d t h e C T A t o s u p p o r t t h e c o s t o f s t a f f .
U n d e r t h e p r o j e c t , t h e s t a f f p e r s o n c o u l d b e a s s i g n e d u p t o
2 0 da y s fo r N A o r C T A a s s ig n m e n ts .
5A n acronym for T eachers U nite d, Centralia , Anaheim ,
Magnolia and Savanna.

b e j o i n t t r a i n i n g s e s s i o n s o f t h o s e p e r s o n s w h o w e r e g o i n g t o
s e r v e o n c h a p t e r n e g o t i a t in g t e a m s , a n d o f p e r s o n s w h o w e r e
going to do grievances.
P r i o r t o 1 9 7 8 , e a c h c h a p t e r b a r g a i n i n g t e a m m e t s e p a r a t e l y
a n d w o r k e d i n d e p e n d e n t o f o n e a n o t h e r . 6 T h e y d e v e l o p e d t h e i r
o w n s u r v e y s , h e l d h e a r i n g s , d e v e l o p e d t h e i r o w n i n i t i a l
p r o p o s a l s a n d c o u n t e r p r o p o s a l s . A f t e r t h e n e g o t i a t i n g t e a m h a d
d e v e l o p e d t h e p r o p o s a l i t w o u l d g o t o t h e r e p r e s e n t a t i v e
c o u n c i l o r t h e e x e c u t i v e b o a r d f o r a p p r o v a l b e f o r e b e i n g
s u b m it t e d t o t h e e m p l o y e r s c h o o l d i s t r i c t .
A s n o t e d e a r l i e r , i n 1 9 7 6 , A S T A b e c a m e t h e e x c l u s i v e
r e p r e s e n t a t i v e o f t h e A n a h e i m U n i o n H i g h S c h o o l D i s t r i c t . T h e
l o c a l c h a p t e r s , C E A , A E E A , M E A a n d S D T A l i k e w i s e b e c a m e
t h e e x c lu s iv e r e p r e s e n t a t iv e in t h e ir r e s p e c t iv e d is t r i c t s t h a t
s a m e y e a r . T U C A M S , h o w e v e r , c o n t in u e d t o e x i s t a s a u n is e r v
u n i t f o r t h e f o u r c h a p t e r s .
6 A t e a c h c h a p t e r l e v e l , a n n u a l n e g o t i a t i n g s e s s i o n s
c o m m e n c e d w it h t h e s e le c t i o n o f t h e m e m b e r s o f t h e n e g o t i a t in g
t e a m . In S e p t e m b e r o r O c t o b e r t e a m m e m b e r s w o u ld b e id e n t ifie d
a n d o r i e n t a t io n w o u ld t a k e p l a c e . I n N o v e m b e r , D e c e m b e r , a n d
J a n u a r y t h e t e a m w o u l d c o n d u c t s u r v e y s a n d h o l d h e a r i n g s
t o o b t a i n i n p u t o n i s s u e s o f c o n c e r n . T h e r e s u l t s o f t h e s u r v e y
w o u l d b e t a b u l a t e d . I n J a n u a r y a n d F e b r u a r y , t h e d r a f t i n g
p h a s e w o u l d t a k e p l a c e . H a r j u d r a f t e d p r o p o s a l s f o r A S T A a n d
E v a n s d r a f t e d t h e p r o p o s a l s f o r e a c h e le m e n t a r y c h a p t e r .
B e c a u s e t h e r e w a s a n d i s a t i m e l a g i n t h e t i m e o f a c t u a l
n e g o t i a t i o n s a f t e r t h e i n i t i a l p r o p o s a l i s a d v a n c e d , t h e
chapters u ndertook a second survey which summ arized the
p r o p o s a l s a n d a t t e m p t e d t o g e t p r i o r i t y p r e f e r e n c e s f r o m t h e
t e a c h e r s t o g i v e d i r e c t i o n t o t h e b a r g a i n i n g t e a m m e m b e r s a s t o
t h e i m p o r t a n c e o f t h e i s s u e s .

E a r ly in 1 9 7 8 , th e A S T A a n d T U C A M S b o a r d s e s t a b lis h e d
a j o i n t c o m m i t t e e t o s t u d y s t a f f r e c o m m e n d a t i o n f o r a m e r g e r
o f t h e t w o U n i s e r v u n i t s . B y l a w s w e r e f o r m u l a t e d a n d
w e r e a p p r o v e d b y t h e r e s p e c t i v e b o a r d s . I n t h e s p r i n g
th e repr esentativ e councils in each of th e chapte rs vote d on and
a p p r o v e d th e p r o p o s e d m e rg e r .7 C h a p te r m e m b e rs d id n o t v o t e
o n t h e m e r g e r . A s a r e s u l t o f t h e m e r g e r , b o t h A S T A ( U n i s e r v )
a n d T U C A M S w e r e r e p l a c e d b y T e a c h e r s U n it e d , a n d c e a s e d
to exist as Uniserv units.8 Both CTA and NEA were notified and
t h e a n n u a l c o n t r a c t s b e t w e e n t h o s e r e s p e c t iv e b o d i e s w e r e
c h a n g e d to re fle c t t h e n e w U n is e rv u n it.
7S ta ted a s pu r pos es in t he b y la w s of t he T U w er e:
a . S p e c i f i c t o p r o v i d e s t a f f a n d r e l a t e d
o f f i c e s e r v i c e s f o r t h e b e n e f i t o f t h e
m e m b e r a s s o c ia t io n s in co n ju n c t io n w it h
C a li f o r n i a T e a c h e r s A s s c ia t i o n a n d t h e
National Education Association.
b . G e n e r a l t o p r o m o t e t h e a d v a n c e m e n t o f
e d u c a t i o n ; t o f u r t h e r t h e e d u c a t i o n a l
i n t e r e s t s o f t h e m e m b e r a s s o c i a t i o n ; t o
s e c u r e a n d m a in t a i n f o r t h e t e a c h in g
p r o f e s s i o n i n p u b l i c s c h o o l s i t s t r u e
r a n k a m o n g t h e p r o f e s s io n a l o f t h e S t a t e
o f C a l i f o r n i a ; a n d t o f u r n i s h a
p r a c t i c a l b a s i s f o r t h e u n i t e d a c t i o n
d e v o t e d t o t h e c a u s e o f e d u c a t i o n w i t h i n
t h e p u b l i c s c h o o l d i s t r i c t s e m p l o y i n g
teachers represented by the member
a ssociation.
8 A S T A c o n t in u e d a s t h e e x c l u s i v e r e p r e s e n t a t i v e a t t h e
Anaheim Union High School District.

A s w it h it s p r e d e c e s s o r s , m e m b e r s h ip in T e a c h e r s U n it e d
( h e r e a f t e r T U ) w a s l i m i t e d t o a s s o c i a t i o n s , n o t i n d i v i d u a l s .
T h e T U b o a rd h a d o n e g o v e r n a n c e s t r u c t u r e . E a c h
p a r t i c i p a t i n g c h a p t e r h a d r e p r e s e n t a t i v e s o n t h e b o a r d , w i t h
A S T A ha vin g fou r votes, A E E A tw o votes an d t he rem ainin g t hree
c h a p t e r s e a c h h a v i n g o n e v o t e . 9 T h e a l l o c a t i o n w a s
p r e d i c a t e d o n n u m b e r s o f m e m b e r s .1 0 H a r j u r e p o r t e d t o t h i s
b o a r d . I n t h e s u m m e r o f 1 9 7 8 , S h a r o n S c o t t w a s h i r e d t o t a k e
t h e p l a c e o f E v a n s w h o h a d r e t i r e d . T h e t w o s t a f f p e r s o n s
a llo ca t e d t h e m s e lv e s w o r k a m o n g t h e s e v e r a l c h a p t e r s .
I n A u g u s t o f 1 9 7 8 , t h e T U b o a r d c o n s i d e r e d s t a f f
r e c o m m e n d a t i o n s t h a t in c l u d e d c o n s o l id a t e d e f f o r t s o n
bargaining and grievance procedures.
A t t h a t t i m e , T U f o r m e d a b a r g a i n in g c o u n c il c o m p o s e d o f
th e 30 o r 4 0 p e rs o n s w h o w e re th e b a rg a in in g t e a m m e m b e rs o f
t h e m e m b e r c h a p t e r s . T h e c o u n c i l s e l e c t e d i t s o w n c h a i r p e r s o n ,
d e v e l o p e d a p p r o a c h e s t o c o l l e c t i n f o r m a t i o n a n d d a t a a n d
u n d e r t o o k t h e t r a d i t i o n a l s u r v e y t o d e v e l o p p r o p o s a l s f o r
s u b m i s s i o n t o t h e D i s t r i c t s . 1 1 T h e b a r g a i n i n g c o u n c i l
9Los Alamitos jointed TU in 1979.
1 0 D u e s t o T U w e r e s e t b y t h e T U B o a r d s u b je c t t o a p p r o v a l
b y t h e ch a p t e r r e p r e s e n t a t iv e co u n c ils .
1 1 T w o o f t h e q u e s t i o n s i n t h e 1 9 7 8 s u r v e y c o n d u c t e d b y
t h e T U B a r g a i n i n g C o u n c i l a d d r e s s e d t e a c h e r s ' p o s i t i o n o n a
s i n g l e b a r g a i n i n g a g e n t a n d w i t h h o l d i n g s e t t l e m e n t o n s t r i k i n g
i n s u p p o r t o f t e a c h e r s o f a n o t h e r d i s t r i c t .

d r a f t e d a c o m m o n p r o p o s a l t h a t w a s p u t o n t h e t a b l e i n a l l f i v e
d i s t r i c t s . T h a t y e a r a n d i n 1 9 7 9 t h e y h e l d j o i n t m e e t i n g
f o l l o w e d b y c h a p t e r c a u c u s e s t o d i s c u s s i s s u e s t h a t m i g h t
b e p a r t i c u l a r t o t h e i r d i s t r i c t . H a r j u d r a f t e d a n i n i t i a l
p r o p o s a l i n J a n u a r y a n d t h e n i n l a t e J a n u a r y o r e a r l y F e b r u a r y
t h e b a r g a i n i n g c o u n c i l m e t a s a d e l i b e r a t i v e b o d y a n d a p p r o v e d
i t . T h e r e a f t e r , t h e c h a p t e r s ' t e a m s r e c e i v e d a n d m a d e s e p a r a t e
a d j u s t m e n t s t o t h e p r o p o s a l s t o f i t t h e i r c i r c u m s t a n c e s . T h e
p r o p o s a l s w e r e t h e n s u b m i t t e d t o e a c h o f t h e r e p r e s e n t a t i v e
c o u n c i l s f o r a p p r o v a l a n d t h e n o n t o t h e r e s p e c t i v e s c h o o l
d i s t r i c t f o r b a r g a i n i n g . B a r g a i n i n g t o o k p l a c e w i t h t h e
cha pt e r te a m m e m b e r s a n d, o f co u rse , H a rju o r S co tt.
T h e re w a s a ls o fo rm e d in 1 9 7 8 a T U g rie v a n ce co m m itt e e w ith
r e p r e s e n t a t i v e s f r o m e a c h o f t h e c h a p t e r s . A l t h o u g h , s a i d
H a r j u , t h i s c o m m i t t e e w a s a n " i n t e r n a l c o m m i t t e e " i t s c r e a t i o n
c a u s e d t h e c h a p t e r g r i e v a n c e c o m m i t t e e s , e x c e p t f o r M a g n o l i a ,
t o c e a s e t o e x i s t . 1 2 A t n o t i m e p r i o r t o 1 9 8 1 d i d a m e m b e r
o f t h e T U g r i e v a n c e c o m m i t t e e p r o c e s s a g r i e v a n c e o u t s i d e o f
i t s o w n d i s t r i c t . H a r j u d i d n o t t e l l t h e d i s t r i c t s w h e n h e w a s
p r o c e s s i n g a g r i e v a n c e t h a t i t w a s b e i n g p r o c e s s e d b y t h e T U
g r i e v a n c e c o m m i t t e e a s o p p o s e d t o t h e l o c a l g r i e v a n c e
c o m m i t t e e . H e t e s t i f i e d , h o w e v e r , t h a t t h e s t a f f s t o p p e d
1 2 N o c h a p te r , h o w e v e r , a m e n d e d it s b y la w s t o e lim in a te
the designated grievance committees.

referring to the old U niserv u nits (ASTA and TUCAM S) and
r e fe r r e d t o t h e m s e lv e s a s T U s t a f f a n d u s e d t h e n e w T U
letterhead.13
F r o m t h e b e g in n in g o f m e e t in g s o f t h e T U B o a r d , w r it t e n
m a t e r ia l s u p p l i e d t o t h e m e m p h a s iz e d t h e s i n g l e b a r g a i n i n g
a g e n t a p p r o a c h . I n A u g u s t o f 1 9 7 8 , H a r j u r e c o m m e n d e d t o t h e
B o a r d , a n d t h e y a d o p t e d , a 1 9 7 8 - 7 9 p r o g r a m t h a t h a d a m o n g
i t s g o a l s f o r c o l l e c t i v e b a r g a in in g " t o e x p e r i m e n t w it h a v a r ie t y
o f t e c h n i q u e s d e s i g n e d t o b u i l d a b a r g a i n i n g c o m m i t m e n t
t o ' T e a c h e r s U n i t e d ' a s a u n i t . " F o r g r i e v a n c e s , a g o a l w a s " t o
d e v e l o p a ' c a d r e ' " o f 2 5 t e a c h e r s w h o a r e c a p a b l e o f p r o c e s s i n g
a g r i e v a n c e u p t o t h e a r b i t r a t i o n l e v e l i n a n y o f t h e f i v e
d i s t r i c t s . I n A u g u s t o f 1 9 7 9 , i n o u t l i n i n g t h e 1 9 7 9 - 8 0
p r o g r a m , H a r ju r e p o r te d to th e T U B o a rd th a t t h e T e a c h e r s
United Bargaining Council and Grievance Committee would
c o n t in u e " w it h a s t r o n g e m p h a s is t h a t t h e m e m b e rs o f T e a c h e rs
U n i t e d m o v e t o t h e s in g le A g e n t b a r g a in in g a p p r o a c h ."
In early S e p t e m b e r 1 9 8 0 , H a r ju p re s e nt e d to t he T U B o a rd
th e "Tea chers U nited Unis erv Unit 19 80-8 1 Tea chers U nited
B a r g a i n i n g P r o j e c t . " I t w a s t h e n a d o p t e d b y t h e B o a r d a n d
p r e s e n t e d t o t h e c h a p t e r r e p r e s e n t a t i v e c o u n c i l s i n O c t o b e r
13 S h aro n S c o tt le ft e m p lo ym e nt o f T U in S e pt e m b e r o f 1 9 8 0
a n d H a r j u t o o k o v e r t h e p r o c e s s i n g o f g r i e v a n c e s i n a l l s i x o f
the member chapters.

w	hereitgotapprovalbyavoicevote.(L	osA	lam	itosdidnotapproveoftheproject.)T	heprojectw	asthenpresentedtothebuildingrepresentativesattheirO	ctober1980leadershipconference.Inw	rittenform	,theprojectdescribedthattheT	U	bylaw	sw	ouldberew	rittensothatT	U	w	ouldtakechargeofthebargainingprocessforallsixchapters.T	U	'sstatedpurposesw	ouldbeam	endedtoincludereferencetoacquiringandm	aintainingthecollectivebargainingandcontractadm	inistrationrightsineachdistrict;provideforindividualm	em	bershipinT	U	;provideforfuturebylaw	sam	endm	entbytheT	U	representativecouncilratherthantherepresentativecouncilofm	em	berassociations;theestablishm	entofarepresentativecouncil(onerepresentativefrom	eachbuildingplusoneforeach25orm	orem	em	bers),andexecutiveboard(fourofficerselectedatlargepluspresidentsofeachofthem	em	berassociations).T	herew	ouldbeacollectivebargainingcom	m	ittee(threepersonsfrom	eachchapter),andbargainingteam	(tw	operm	anentteachers,theexecutivedirector(nonvoting)andthreeteachersfrom	andselectedbyeachchaptertoserveonlyontheteam	fornegotiationsw	iththerespectiveem	ployer.T	hebylaw	sw	ouldprovidefortheestablishm	entoforadoptionofgoalsandm	inim	um	settlem	entstandardsforallcontractsbytherepresentativecouncil;im	pow	eringthebargainingcom	m	itteetom	onitorandapprovealltentativeagreem	entsandprovidethatnotentativeagreem	ent

m i g h t b e r e a c h e d t h a t f a i le d t o m e e t t h e g o a ls o r m in im u m
s t a n d a rd s u n le ss a p p ro v e d b y th e b a r g a in in g co m m it te e .
A p p r o v a l o f t e n t a t i v e a g r e e m e n t s b y t h e b a r g a in i n g c o m m i t t e e
w o u ld b e r e q u ir e d b e fo r e s u b m is s io n t o t h e c h a p t e r m e m b e r s h ip
f o r r a t i f i c a t i o n . C o n t r a c t a d m i n i s t r a t i o n w o u l d b e t h e
r e s p o n s i b i l i t y o f a T U g r i e v a n c e c o m m i t t e e . P r o v i s i o n s f o r
w i t h h o l d i n g o f s e r v i c e s e i t h e r b y a c h a p t e r o r b y t h e m e m b e r
associations th roughout TU wou ld be in cluded.14
T h e p r o j e c t d o c u m e n t f u r t h e r d e s c r i b e d w h a t l e g a l p r o c e s s
w o u l d b e e n t a i l e d ( r e q u e s t f o r v o l u n t a r y r e c o g n i t i o n , u n i t
m o d i f i c a t i o n p e t i t i o n ) a n d a d d i t i o n a l m a t e r i a l o n a m e m b e r s h i p
education campaign.
T e a c h e r s w e r e f i r s t e x p o s e d t o t h e p r o j e c t f o l l o w i n g t h e
O c t o b e r l e a d e r s h i p c o n f e r e n c e i n 1 9 8 0 . M a t e r i a l s w e r e g i v e n t o
t h e b u i l d i n g r e p r e s e n t a t i v e s a t t h e c o n f e r e n c e w i t h
i n s t r u c t i o n s t o h a v e m e e t i n g s w i t h a n d d i s t r i b u t e t h e m a t e r i a l
t o t e a c h e r s a n d t o g e t t h e i r i n p u t o n t h e b a r g a i n i n g p r o j e c t .
T h e m a t e r i a l s i n c l u d e d a c o v e r l e t t e r d a t e d N o v e m b e r 1 , 1 9 8 0 ,
t o a l l t e a c h e r s a n d a p a m p h l e t w h i c h d e s c r i b e d t h e T e a c h e r s
U n i t e d B a r g a i n i n g P r o j e c t . T h e c o v e r l e t t e r e x t o l l e d t h e
b e n e f i t o f t h e T e a c h e r s U n i t e d c o o r d i n a t e d b a r g a i n i n g e f f o r t i n
o b t a in in g h ig h e r s a la r y s e t t le m e n t fo r 1 9 8 0 -8 1 in O r a n g e
1 4 T h e r e p r o v i s i o n s o n w i t h h o l d i n g o f s e r v i c e s w e r e a s a r e
s e t f o r t h i n t h e b y l a w s a s a d o p t e d s e e p a g e 3 0 , i n f r a .

C o u n t y , e x p l a i n e d a t i m e l i n e f o r t e a c h e r s ' c o n s i d e r a t i o n o f t h e
p r o p o s e d b a r g a i n i n g p r o j e c t i n c l u d i n g d r a f t i n g o f b y l a w s ,
m e e t in g s w i t h t e a c h e r s , a n d e le c t i o n f o r a m e n d m e n t o f b y la w s t o
achieve the project.15
T h e p a m p h l e t c o n t a i n e d t h e f o l l o w i n g : i t b e g a n w i t h a n
i n t r o d u c t i o n s t a t in g :
INTRODUCTION
The T ea ch er s U n ited B a rg a in in g P roject,
w h i c h w i l l b e v o t e d u p o n b y a l l o f t h e
m e m b e r s i n a l l o f t h e s i x c h a p t e r s i n
F e b r u a r y , 1 9 8 1 , c o n t a in s t h r e e m a jo r
e l e m e n t s a s s e t f o r t h b e l o w . D u r i n g t h e
n e x t s e v e r a l w e e k s , y o u a r e u r g e d t o d i s c u s s
t h e p r o j e c t , c r i t i c i z e t h e p r o j e c t , a n d
s u g g e s t c h a n g e s t o t h e p r o j e c t . A f i n a l
d r a f t w i l l b e p r e s e n t e d t o y o u i n J a n u a r y ,
1 9 8 1 f o r c o n s i d e r a t i o n p r i o r t o t h e a c t u a l
e le c t io n i n F e b r u a r y .
T h e p a m p h l e t d e s c r i b e d t h e g o v e r n a n c e s t r u c t u r e o f t h e
p r o p o s e d o r g a n i z a t i o n ( a s d e s c r i b e d b e f o r e ) . I t f u r t h e r
d e s c r i b e d t h e B a r g a in i n g C o m m i t t e e a n d it s d u t i e s , a n d t h e
b a r g a i n i n g t e a m . T h e p a m p h l e t w e n t o n t o d e s c r i b e " g o a l s a n d
s e t t le m e n t s t a n d a r d s " a d o p t e d b y t h e T U r e p r e s e n t a t iv e c o u n c i l
b a s e d u p o n t h e s u r v e y s t a k e n a n d p r o v id e d t h a t w h e n a n y o f t h e
s i x c h a p t e r s w e r e c l o s e t o s e t t l e m e n t , t h e b a r g a i n i n g c o m m i t t e e
w o u l d c o n v e n e t o r e v i e w t h e t e n t a t i v e a g r e e m e n t t o i n s u r e i t
1 5 N o t e d w a s t h e t im in g fo r m e e t in g s t o b e h e ld
J a n u a r y 5 - F e b r u a r y 1 5 i n a l l 6 9 b u i l d i n g s w i t h i n T e a c h e r s
U n it e d - q u e s t io n s a n s w e r e d , m a t e r ia ls re v ie w e d , a n d B y la w s
e l e c t i o n s t o b e h e l d o n t h e a d o p t i n g o f t h e T e a c h e r s U n i t e d
Bargain in g Project between February 15 - Feb ru ary 28.

m e t t h e s e t t l e m e n t s t a n d a r d s . A p p r o v a l o f t h e c o m m i t t e e w o u l d
b e r e q u i r e d b e f o r e t h e t e n t a t i v e a g r e e m e n t c o u l d b e s u b m i t t e d
t o t h e m e m b e r s h i p f o r r a t i f i c a t i o n .
The p a m p hlet d esc ribed a con cep t " C h ap ter O p tion " an d
stated:
U n d e r t h e p r o j e c t , a c h a p t e r w o u l d b e
p e r m i t t e d , o n a n a n n u a l b a s i s , t o " o p t " i n
a n d o u t o f t h e b a r g a i n i n g a s p e c t s o f t h e n e w
T e a c h e r s U n i t e d s t r u c t u r e . A c h a p t e r o p t i n g
o u t o f t h e B a r g a i n i n g a s p e c t s w o u l d r e c e i v e
o t h e r s e r v i c e s a n d w o u l d p a r t i c i p a t e i n
o t h e r p r o g r a m s , i n a c c o r d a n c e w i t h p o l i c i e s
adopted by the Teachers United
Representative Council.
F i n a l l y , t h e p a m p h l e t s t f o r t h t h e f o l l o w i n g :
l e g a l b a r g a i n i n g a g e n t s t a t u s
• W h e n t h e B y l a w s a r e a p p r o v e d i n
F e b r u a r y , t h e n e x t s t e p w i l l b e t o f i l e
a p p r o p r i a t e d o c u m e n t s , f i r s t w i t h t h e
S c h o o l D i s t r i c t s r e q u e s t i n g a v o l u n t a r y
r e c o g n i t i o n o f T e a c h e r s U n i t e d a s t h e
b a r g a i n i n g a g e n t . I f v o l u n t a r y
r e c o g n i t i o n i s n o t f o r t h c o m i n g ,
a p p r o pria te d o cu m e n ts w o u ld b e file d
with the Public Employment R elations
Board—PERB.
• P E R B , u p o n r e c e i p t o f t h e p e t i t i o n ,
c o n d u c t s a n i n v e s t i g a t i o n a n d , w i t h i n
1 - 2 m o n t h s , i s s u e s a r u l i n g w h i c h c o u l d
t h e n b e a p p e a l e d b y t h e D i s t r i c t o r b y
th e A sso cia tio n.
• B a r g a i n i n g , h o w e v e r , c o u l d c o n t i n u e
u nd er the revised Teachers U nit ed
S t r u c t u r e , e v e n w h i l e t h e l i t i g a t i o n i s
being pursued through the PERB process.
H a r j u s a i d t h e b u i l d i n g r e p r e s e n t a t i v e s w e r e e n c o u r a g e d
t o h o l d a t l e a s t t w o m e e t i n g s w i t h t e a c h e s t o d i s t r i b u t e t h e

m a t e r i a l a n d d i s c u s s t h e p r o j e c t . H e t e s t i f i e d t h a t s o m e o f
t h e b u i l d i n g r e p r e s e n t a t i v e s h a d t o l d h i m t h e y d i d h o l d t w o
meetings.
A n a l m o s t w e e k l y p u b l ic a t io n o f T U is t h e T e a c h e r s U n it e d
T o d a y . M a i l e d i n p a c k e t s t o t h e b u i l d i n g r e p r e s e n t a t i v e s a t
e a c h b u i l d i n g s i t e , t h e n e w s l e t t e r i s t h e r e a f t e r p l a c e d i n
t e a c h e r s ' m a i l b o x e s . P r i o r t o 1 9 8 0 , T U w o u l d p r i n t a n d
d i s t r i b u t e t o e a c h c h a p t e r t h e i r o w n l o c a l p u b l i c a t i o n s . I n t h e
s u m m e r o f 1 9 8 0 , t h e p u b l i c a t i o n s w e r e c o n s o l i d a t e d i n t o t h e
T U T o d a y w i t h e v e r y f o u r t h e d i t i o n c o n t a i n i n g l o c a l c h a p t e r
news as requested.
N o t i c e o f l o c a l e l e c t i o n s w e r e g e n e r a l l y p u b l i s h e d i n t h e
l o c a l n e w s l e t t e r i n t h e f o r m o f e l e c t i o n s c h e d u l e s , u s u a l l y i n
c o n j u n c t i o n w i t h e l e c t i o n o f o f f i c e r s a n d s e e k i n g n o m i n a t i o n s
t h e r e f o r e . I t w a s n o t c u s t o m a r y t o p o s t a f o r m a l n o t i c e o f
e l e c t i o n b y t h e c h a p t e r s .
I n a n u n d a t e d , b u t a p p a r e n t l y t i m e l y t o t h e m o n t h
o f N o v e m b e r , 1 9 8 0 , t h e T e a c h e r s U n i t e d T o d a y r e f e r r e d t o t h e
T U 's activit ie s w ith r e g a r d t o t he b a rg a in in g pro je ct. W hile n o t
r e f e r r i n g t o t h e c o n c e p t o f b a r g a i n i n g a g e n t c h a n g e , t h e
a r t i c l e d i d d e s c r i b e t h e g o v e r n a n c e s t r u c t u r e a n d b a r g a i n i n g
t e a m m a k e u p c o n t e m p l a t e d b y t h e p r o j e c t . I t r e f e r r e d t o t h e
p a m p h l e t b e i n g d i s t r i b u t e d d e s c r i b i n g t h e p r o j e c t a n d s o l i c i t e d
t e a c h e r i n p u t o n t h e p r o j e c t . A D e c e m b e r 1 8 , 1 9 8 0 p u b l i c a t i o n

o f T e a c h e r s U n i t e d T o d a y l i s t e d a r e a s o f c o n c e r n t h a t h a d b e e n
obtained from teachers input.16
A l s o l i s t e d w a s a t i m e l i n e o n t h e f i n a l c o n s i d e r a t i o n o f
t h e b a r g a in in g p r o j e c t .
J a n u a r y 1 - 1 5 : T U B o a r d d i s c u s s e s a n d a d o p t s
a f i n a l v e r s i o n o f t h e b a r g a i n i n g p r o j e c t .
J a n u a r y 1 5 - F e b r u a r y 1 5 : M a t e r i a l s
d is t r i b u t e d t o a ll T e a c h e r s U n it e d m e m b e r s .
B u i l d i n g m e e t i n g s h e l d t o d i s c u s s p r o j e c t ,
a n d to a n s w e r t e a c h e rs q u e s t io n s .
16 Those concerns were:
L o c a l b a r g a i n i n g t e a m s h o u l d b e a b l e t o
c o n t r o l f l o w o f p r o p o s a l s / c o u n t e r p r o p o s a l s .
L o c a l b a r g a i n i n g t e a m s h o u l d b e s u b j e c t t o
recommendation/advice from TU bargaining
c o m m i t t e e , b u t n o t c o n t r o l .
K e e p t h e re p r e s e n t a t iv e co u n cil m a n a g e a b le
i n s i z e .
O n l y d i s t r i c t s w h o v o t e " y e s " o n u n i t - w i d e
s t r i k e s h o u l d p a r t i c i p a t e .
A s m u c h p r o t e c t i o n o f " l o c a l a u t o n o m y " a s
p o s s i b l e s h o u l d b e w r i t t e n i n t o b y l a w s .
M a k e c e r t a i n t h a t e a c h l o c a l ' s u n i q u e n e e d s "
c a n b e m e t a t t h e t a b l e .
R a t i f i c a t i o n o f t h i s p r o j e c t s h o u l d b e b y
s e c r e t b a l l o t , w i t h o n l y m e m b e r s v o t i n g .
P e o p l e w h o r u n f o r T U o f f i c e n e e d t o g e t o u t
t o m e e t th e m e m b e r s . T h e y n e e d to b e k n o w n .
C h a p t e r s s h o u l d b e a b l e t o o p t o u t o f t h e
b a r g a in i n g p r o j e c t , a n d n e w c h a p t e r s s h o u l d
be able to be added.

F e b r u a r y 1 5 - 2 7 : E l e c t i o n a c t i v i t i e s ,
election, results a nnounced.
A J a n u a r y 6 , 1 9 8 1 e d i t i o n o f T e a c h e r s U n it e d T o d a y
s o l i c i t e d t e a c h e r s t o a s s i s t i n w r i t i n g p r o a n d c o n a r g u m e n t s
o f t h e p r o j e c t . A J a n u a r y 2 7 , 1 9 8 1 e d i t i o n n o t e d t h a t t h e T U
b o a r d h a d a d o p t e d a r e v i s e d s e t o f T U b y l a w s w h i c h w e r e t o
b e s u b m i t t e d t o e v e r y m e m b e r o f T e a c h e r s U n i t e d o n F e b r u a r y
2 5 a n d 2 6 , 1 9 8 1 . 1 7 T h e b y l a w s , i f a d o p t e d , s t a t e d t h e i t e m ,
w o u l d r e s u l t i n t h e i m p l e m e n t a t i o n o f t h e T e a c h e r s U n i t e d
b a r g a i n i n g p r o j e c t . A l s o n o t e d w a s n o t i c e o f t h e b u i l d i n g s i t e
v is it s b y t h e T U B o a r d a n d b a r g a in in g c o u n c il t o t h e 6 9 b u ild in g s
for the purp ose of p rovid in g all m em bers w ith a ns w ers to
t h e ir q u e s t io n s r e g a r d in g t h e p r o je c t a n d f o r d is t r i b u t i o n
o f m a t e r i a l s r e l a t e d t h e r e t o . T e a c h e r s w e r e u r g e d t o a t t e n d
t o b e c o m e f u l l y i n f o r m e d o f t h e p r o j e c t p r i o r t o t h e e l e c t i o n .
In m id-Decem ber, 1980, th e m em bers of th e T U Board and the
b a r g a i n i n g c o u n c i l h a d " r a p s e s s i o n s " w i t h b u i l d i n g
r e p r e s e n t a t i v e s . T h e s e s e s s i o n s w e r e t o e x c h a n g e i n f o r m a t i o n
r e g a r d i n g t h e p r o p o s e d b a r g a i n i n g p r o j e c t . T h e d i s c u s s i o n s l e d
t o t h e p r o m u l g a t i o n i n l a t e J a n u a r y o r e a r l y F e b r u a r y 1 9 8 1 , o f
a s e c o n d p a m p h l e t c a ll e d " W e 'v e L is t e n e d t o Y o u " .
1 7 H a r ju a d m it t e d o n c r o s s e x a m in a t io n t h a t it s h o u ld h a v e
sta ted th a t a vot e on th e b y la w s a m en d m en t w ou ld b e su b m it ted
to the members of TU.

T h is p a m p h le t c o n t a in e d a s u m m a ry o f t h e r e v is io n s s o u g h t
b y the bylaw s am endm ent inclu din g t he E xecutive B oa rd of T U ,
th e r e p r e s e n t a t iv e c o u n c il m a k e u p , t h e B a rg a in in g C o m m it t e e ,
a n d B a r g a i n i n g T e a m , e s t a b l is h m e n t o f g o a l s a n d o b j e c t i v e s ,
a s s u r a n c e t h a t l o c a l a u t o n o m y w o u l d b e p r o t e c t e d , a n d f i n a l l y ,
e x p r e s s r e f e r e n c e t o t h e " m o d i f i c a t i o n o f B a r g a i n i n g A g e n t
S t a t u s " f r o m t h e c h a p t e r t o T e a c h e r s U n i t e d t h r o u g h a p e t i t i o n
f o r t r a n s f e r o f j u r i s d i c t i o n t h r o u g h P E R B . T h e p a m p h l e t w e n t
o n t o f u r t h e r n o t e t h a t b e c a u s e o f c o n c e r n s o f t e a c h e r s
e x p r e s s e d d u r i n g t h e " r a p " s e s s i o n s , t h e p r o p o s e d b y l a w s w e r e
b e in g a m e n d e d t o i n s u r e t h a t t h e l o c a l b a r g a i n i n g t e a m w o u l d
h a v e f i n a l a u t h o r i t y o n t e n t a t i v e a g r e e m e n t s r a t h e r t h a n t h e
T e a c h e r s U n i t e d b a r g a i n i n g c o m m i t t e e ; t h a t l o c a l o r c h a p t e r
r e p r e s e n t a t i v e b o d i e s w o u l d c o n t i n u e t o e x i s t ; t h a t o n l y
c h a p t e r s w h o v o t e t o p a r t i c i p a t e i n a " u n i t w i d e " s t r i k e s h o u l d
b e a s k e d t o j o i n s u c h s t r i k e ; t h a t a n y c h a p t e r w o u l d b e a b l e t o
r e p l a c e m e m b e r s o f t h e i r b a r g a i n i n g t e a m w h o b e c o m e a m e m b e r
o f t h e u n i t w i d e t e a m ; t h e v o t e o n r a t i f i c a t i o n o f t h e b y l a w s
s h o u ld b e b y s e c r e t b a ll o t a n d o n l y m e m b e r s w o u l d b e p e r m i t t e d
t o v o t e , a n d t h a t c h a p t e r s s h o u l d b e a b l e t o p u l l o u t o f t h e
p r o j e c t a n d o t h e r s w o u l d b e a b l e t o j o i n t h e p r o j e c t . O t h e r
c h a n g e s w e r e n o t e d a n d e i t h e r i n c o r p o r a t e d o r r e j e c t e d w i t h
a n e x p la n a t i o n . T h e p a m p h l e t a l s o n o t e d q u e s t io n s t h a t f e l l i n t o
g e n e r a l c a t e g o r i e s ; i t s t a t e d :

I . H o w i s o u r " l o c a l a u t o n o m y " p r o t e c t e d ?
1 ) Y o u r c h a p t e r c o n t r o l s t h e f l o w o f
bargaining.
2 ) Y o u r c h a p t e r h a s t h e a b i l i t y t o a d d t o
o r t o s u b t r a c t f r o m t h e T e a c h e r s U n i t e d
initial pr op osal;
3 ) Y o u r c h a p t e r h a s t h e a b i l i t y t o " o p t
o u t " o f t h e B a r g a i n i n g A s p e c t s o f t h e
program annually;
4 ) U l t i m a t e l y , y o u r c h a p t e r c a n w i t h d r a w
from Teachers United.
. . . . . . . . . . . . . . . . . . .
T h e p r o p o s e d b y l a w a m e n d m e n t s t h e m s e l v e s w e r e n o t g i v e n
t o t h e in d iv i d u a l t e a c h e r s b u t r a t h e r d i s t r i b u t e d t o t h e b u i l d i n g
r e p r e s e n t a t i v e s a t e a c h o f t h e b u i l d i n g s i t e s w h o w e r e
i n s t r u c t e d t o p o s t t h e m . 1 8 T h e y w e r e n o t g i v e n t o t h e
i n d i v i d u a l t e a c h e r s , s a i d H a r j u , b e c a u s e o f t h e c o s t o f
r e p r o d u c t i o n a n d t h e l i k e l i h o o d t h a t t h e t e a c h e r s w o u l d n o t
actually read them.
M e m b e r s o f t h e T U b o a r d , t h e b a r g a i n i n g c o m m i t t e e a n d
H a r j u i n t e a m s o f 2 o r 3 , v i s i t e d e a c h o f t h e 6 9 b u i l d i n g s i n
th e la s t h a lf o f J a n u a ry a n d t h e firs t h a lf o f F e b ru a r y t o m e e t
w i t h t e a c h e r s t o e x p l a i n t h e p r o j e c t a n d a n s w e r q u e s t i o n s
r e g a r d i n g t h e p r o j e c t . T h e " W e ' v e L i s t e n e d t o Y o u " p a m p h l e t
w a s d i s t r i b u t e d t o t h e t e a c h e r s p r e s e n t , a n d e x t r a s w e r e g i v e n
1 8 T w o c o p i e s w e r e g iv e n t o e a c h e le m e n t a r y s c h o o l , t h r e e
t o t h e j u n i o r h i g h a n d f i v e t o t h e h i g h s c h o o l b u i l d i n g
r epresentatives.

t o t h e b u i l d i n g r e p r e s e n t a t i v e s w h o w e r e t o d i s t r i b u t e t h e m
subsequently.
A d d i t i o n a l m a t e r i a l s e n t t o t h e t e a c h e r s i n c l u d e d a l e a f l e t
s e t t i n g f o r t h a r g u m e n t s i n f a v o r o f t h e b y l a w s a m e n d m e n t a n d
a s e p a r a t e l e a f l e t s e t t i n g f o r t h a r g u m e n t s a g a i n s t t h e p r o j e c t .
T h e s e m a t e r i a l s w e r e d i s t r i b u t e d i n p a c k e t s t o t h e b u i l d i n g
r e p r e s e n t a t i v e s w h o , i n t u r n , p l a c e d t h e m i n t e a c h e r
mailboxes.19
F i n a l l y , a o n e - p a g e l e a f l e t l i s t i n g b o t h t h e p r o a n d c o n
a r g u m e n t s w i t h r e b u t t a l w a s s e n t t o t h e b u i ld i n g
r e p r e s e n t a t i v e s f o r d i s t r i b u t i o n a b o u t a w e e k b e f o r e t h e
election.
T U d i d n o t m a k e a p o i n t o f d i s t r i b u t i o n o f a n y m a t e r i a l s t o
t e a c h e r s w h o w e r e n o t a s s o c i a t i o n m e m b e r s . R a t h e r , T U d e f e r r e d
t o w h a t e v e r p r a c t i c e p r e v a i l e d w i t h i n t h e i n d i v i d u a l c h a p t e r .
S o m e c h a p t e r s , s u ch a s M a g n o lia , s a id H a r ju , w e re q u it e a d a m a n t
t h a t o n l y m e m b e r s o f t h e a s s o c i a t i o n r e c e i v e a s s o c i a t i o n
materials.
W h i l e t h e T U B o a r d w a s i n f a v o r o f t h e p r o j e c t , i t d i d n o t
e n d o r s e , a s a b o a r d , t h e p r o a r g u m e n t s . O n e m e m b e r o f t h e
b o a r d w a s a g a i n s t t h e p r o j e c t a n d , i n f a c t , a m e m b e r o f t h e
c o m m i t t e e e s t a b li s h e d t o w r i t e t h e c o n a r g u m e n t s .
1 9 T h e " c o n " a r g u m e n t s a d d r e s s e d c o n c e r n f o r l o s s o f l o c a l
c o n t r o l , m a k i n g t h e e x e c u t i v e d i r e c t o r a c z a r , c a u s i n g t h e
e m p l o y e r s t o u n i f y , f i n a n c i n g , b i g g e r v e r s u s s m a l l e r a n d
t h e l e g a l d i f f i c u l t i e s i n t h e p r o j e c t . T h e " p r o " d o c u m e n t
a d d r e s s e d , i n r e f u t a t i o n f o r m , t h e s a m e i s s u e s .

O n o r a b o u t F e b r u a r y 2 3 , 1 9 8 1 , a l l b u i l d i n g r e p r e s e n t a t i v e s
w e r e p r o v i d e d w i t h a p a c k e t r e l a t i n g t o t h e f o r t h c o m i n g
e l e c t i o n . t h e y w e r e i n s t r u c t e d t o h o l d t h e e l e c t i o n o n e i t h e r
t h e 2 5 t h o r 2 6 t h o f F e b r u a r y . T h e y w e r e p r o v i d e d w i t h a b a l l o t
f o r e a c h m e m b e r , a l i s t o f t h e m e m b e r s i n t h e r e s p e c t i v e
b u i l d i n g , a t a l l y s h e e t f o r r e c o r d i n g a n d c e r t i f y i n g t h e
r e s u l t s o f t h e e l e c t i o n . I n c l u d e d w e r e s u g g e s t e d m e t h o d s
i n c l u d i n g a d v i c e n o t t o p l a c e b a l l o t s i n t e a c h e r s ' m a i l b o x e s b u t
r a t h e r p e r s o n a l l y h a n d t h e b a l l o t t o t h e t e a c h e r s a n d t o
s i m u l t a n e o u s l y m a r k t h e b a l l o t ; t o p r o v i d e a b a l l o t b o x o r
b a l l o t e n v e l o p e a n d m a k e p r o v i s i o n f o r t e a c h e r s t o m a r k t h e
t a l l y l i s t w h e n t h e v o t e r h a d d e p o s i t e d t h e i r b a l l o t ; t o c o u n t
t h e b a l l o t s u p o n t h e c l o s i n g o f t h e e l e c t i o n d a y a n d t o n o t i f y
T U a n d t o p o s t o n e t a l l y s h e e t f o r t h e f a c u l t y , a n d t o m a i l t h e
b a l l o t s a n d t h e t a l l y s h e e t t o T U . 2 0
T h e b a l l o t c o n s i s t e d o f t h e s i n g l e q u e s t i o n " S h a l l t h e
R e v is e d B y la w s o f T e a ch e rs U n it e d b e A d o p t e d a s P re s e n te d ? "
w it h a b o x m a r k e d " Y e s " a n d a s e p a r a t e b o x m a r k e d " N o " fo r
checking by the voter.
T h e D i s t r i c t p r e s e n t e d f o u r w i t n e s s e s w h o s e r v e d a s
e l e c t i o n p e r s o n s a t f o u r d i f f e r e n t s c h o o l s i t e s f o r t h e
F e b r u a r y 2 5 - 2 6 e l e c t i o n . T h r e e o t h e r s t e s t i f i e d f o r t h e
2 0 T o p a s s , a c c o r d in g to th e n o t ic e , th e a m e n d m e n t
r e q u i r e d 1 ) a m a j o r i t y o f a l l m e m b e r s v o t i n g t o a p p r o v e ; a n d
2 ) a m a j o r i t y o f a l l m e m b e r s v o t i n g i n a t l e a s t 4 o f t h e 6
Teachers United Chapters.

p e t i t i o n e r s . E a c h t e s t i f i e d a s t o t h e p r o c e d u r e u s e d b y t h e m
i n c o n d u c t i n g t h e e l e c t i o n . E a c h h a d o b t a i n e d t h e e l e c t i o n
i n s t r u c t i o n s a n d b a l l o t s i n s u f f i c i e n t q u a n t i t y t o p r e s e n t t o
m e m b e r s o f t h e a s s o c i a t i o n a t t h e i r r e s p e c t i v e b u i l d i n g , a
m e m b e r s h i p l i s t , a n d a n e n v e l o p e f o r h o l d i n g t h e b a l l o t s c a s t .
F r o m t h e t e s t i m o n y o f t h e v a r i o u s b u i l d i n g r e p r e s e n t a t i v e s
w h o c o n d u c t e d t h e e l e c t i o n , i t a p p e a r s t h a t s o m e b u i l d i n g
r e p r e s e n t a t i v e s d i d n o t p r o v i d e a d v a n c e n o t i c e o f t h e e l e c t i o n
a t t h e i r b u i l d i n g . 2 1 T h e y e i t h e r p l a c e d t h e b a l l o t s i n t h e
m a i l b o x o f i n d i v i d u a l t e a c h e r s , i n t h e m a i l r o o m , 2 2 o r t h e y
h a n d e d t h e b a l l o t s d i r e c t l y t o t h e t e a c h e r s w i t h a r e q u e s t t h a t
t h e y b e r e t u r n e d t o t h e b u i l d i n g r e p r e s e n t a t i v e . I n a l l
i n s t a n c e s , b a l l o t i n g t o o k p l a c e w i t h o u t b e n e f i t o f a v o t i n g
b o o t h a n d m o s t v o t i n g t o o k p l a c e i n t h e p r e s e n c e o f o t h e r s ,
i n c l u d i n g t h e b u i l d i n g r e p r e s e n t a t i v e . I n s o m e c a s e s t e a c h e r s
s a t a t t h e s a m e t a b l e a n d m a r k e d t h e i r b a l l o t s . T h e r e w e r e
i n s t a n c e s w h e r e , d u r i n g v o t i n g , t e a c h e r s w o u l d a s k q u e s t i o n s o f
2 1 T w o t e s t i f i e d t h a t t h e y e i t h e r p o s t e d o r p l a c e d n o t i c e
i n a n e w s l e t t e r t h e d a y b e f o r e t h e e l e c t i o n .
2 2 T h e t w o b u il d in g r e p r e s e n t a t i v e s w h o p l a c e d t h e b a l lo t s
i n t h e m a i l b o x e s e m p l o y e d a c h e c k o f f t o i n s u r e t h e a u t h o r i z e d
v o t e r g o t t h e b a l l o t . O n e b u i l d i n g r e p r e s e n t a t i v e t e s t i f i e d
t h a t h e m a r k e d t h e b a l l o t w i t h a n u m b e r c o r r e s p o n d i n g t o
a u m b e r o p p o s i t e t h e m e m b e r 's n a m e o n t h e v o t e r l is t . H e
t e s t i f i e d t h a t w h e n h e w a s c h e c k i n g t h e n u m b e r o f f a f t e r t h e
b a l l o t h a d b e e n c a s t , h e d i d n o t l o o k t o s e e h o w t h e p e r s o n h a d
v o t e d . T h e o t h e r c h e c k e d o n t h e v o t e r n a m e a s h e s a w t h e
t e a c h e r r e m o v e t h e b a l l o t f r o m t h e m a i l b o x .

the building representative about the issues. Building
representatives Kinney and Sorenson testified that there were a
couple of questions asked about how they felt and they replied
that they would have to decide for themselves. McGowan
testified that three or four voters asked what they were voting
on and he replied that it was the election for the change in
bylaws. Schiels testified that two or three asked what the
issue was. He told them that the Executive Board had
recommended a yes vote, but it was their decision to make at
the time. In all cases, the building representative collected
and counted the ballots, posted the tally in their respective
school sites, called TU with the results, and mailed the
ballots with their personal tally to the TU office.
Two of the building representatives conducted the election
on both the 25th and the 26th. Those who conducted the
election on the 25th phoned the results to TU and posted their
tallies at the end of that school day.
Those building representatives who had conducted prior
elections said that the February election was conducted in the
same manner.
On March 11, 1981, the TU Elections Committee reported to
the TU Board the results of the election. 	This report was
drafted by Harju for the committee from data they had given him
after meeting two or three times in Harju's office following
the election. Harju said that unless the tally showed a close
24
the 	building 	representative 	about 	the 	issues. 	Building
representatives 	Kinney 	and 	Sorenson 	testified 	that 	there 	were 	a
couple 	of 	questions 	asked 	about 	how 	they 	felt 	and 	they 	replied
that 	they 	would 	have 	to 	decide 	for 	themselves. 	McGowan
testified 	that 	three 	or 	four 	voters 	asked 	what 	they 	were 	voting
on 	and 	he 	replied 	that 	it 	was 	the 	election 	for 	the 	change 	in
bylaws. 	Schiels 	testified 	that 	two 	or 	three 	asked 	what 	the
issue 	was. 	He 	told 	them 	that 	the 	Executive 	Board 	had
recommended 	a 	yes 	vote, 	but 	it 	was 	their 	decision 	to make 	at
the 	time. 	In 	all 	cases, 	the 	building 	representative 	collected
and 	counted 	the 	ballots, 	posted 	the 	tally 	in 	their 	respective
school 	sites, 	called 	TU with 	the 	results, 	and 	mailed 	the
ballots 	with 	their 	personal 	tally 	to 	the TU 	office.
Two 	of 	the 	building 	representatives 	conducted 	the 	election
on 	both 	the 	25th 	and 	the 	26th. 	Those 	who 	conducted 	the
election 	on 	the 	25th 	phoned 	the 	results 	to 	TU 	and 	posted 	their
tallies 	at 	the 	end 	of 	that 	school 	day.
Those 	building 	representatives 	who 	had 	conducted 	prior
elections 	said 	that 	the 	February 	election 	was 	conducted 	in 	the
same 	manner.
On March 	11, 	1981, 	the 	TU Elections 	Committee 	reported 	to
the TU Board 	the 	results 	of 	the 	election. 	This 	report 	was
drafted 	by 	Harju 	for 	the 	committee 	from 	data 	they 	had 	given 	him
after 	meeting 	two 	or 	three 	times 	in Harju's 	office 	following
the 	election. 	Harju 	said 	that 	unless 	the 	tally 	showed 	a 	close
24

count, the elections committee, as far as he knew, did not
recount the ballots, but relied upon the tally sheet submitted
by the building representative. The committee report indicated
the elections result as follows:
No	Yes	Chapter
AEEA 	219 	132
ASTA 	394 	133
CEA 	142 	30
LAEA 	55 	106
MEA 	78 	75
SDTA 	58
TOTAL : 	946 	484
Chapter 	Yes 	No
AEEA 	219 	132
ASTA 	394 	133
CEA 	142 	30
LAEA 	55 	106
MEA 	78 	75
SOTA 	58 	8
TOTAL: 	946 	484
The committee noted that ballots had been returned from all
units except the Centralia District office. Harju testified
that that District office had perhaps four voters located there.
At the time of the election in February of 1981, the
Anaheim Union High School District unit represented by ASTA had
1017 employees of which 715 were members of ASTA. The Anaheim
City School District had 474 employees in the unit of which 406
were members of AEEA. Centrailia had 237 employees in the unit
with 182 members of CEA. Magnolia had 223 in the unit with 164
members of MEA. 	Savanna had 80 employees in the unit of which
68 were members of SDTA.
23
A contemporary edition of the TU Today recorded the
election results with a difference of some 20 votes from that
reported by the committee. Harju said the TU Today version was
23By stipulation of the parties.
25
count, 	the 	elections 	committee, 	as 	far 	as 	he 	knew, 	did 	not
recount 	the 	ballots, 	but 	relied 	upon 	the 	tally 	sheet 	submitted
by 	the 	building 	representative. 	The 	committee 	report 	indicated
the 	elections 	result 	as 	follows:
The 	committee 	noted 	that 	ballots 	had 	been 	returned 	from 	all
units 	except 	the 	Centralia District 	office. 	Harju 	testified
that that 	District 	office 	had 	perhaps 	four 	voters 	located 	there.
At 	the 	time 	of 	the 	electiort•ih February 	of 	1981, 	the
Anaheim Union High 	School 	District 	unit 	represented 	by ASTA 	had
1017 	employees 	of 	which 	715 	were 	members 	of ASTA. 	The Anaheim
City 	School 	District 	had 	474 	employees 	in 	the 	unit 	of 	which 	406
were 	members 	of AEEA. 	Centrailia 	had 	237 	employees 	in 	the 	unit
with 	182 members 	of 	CEA. 	Magnolia 	had 	223 	in 	the 	unit 	with 	164
members 	of MEA. 	Savanna 	had 	80 	employees 	in 	the 	unit 	of 	which
68 	were 	members 	of SDTA.
A contemporary 	edition 	of 	the 	TU Today 	recorded 	the
election 	results 	with 	a 	difference 	of 	some 	20 	votes 	from 	that
reported 	by 	the 	committee. 	Harju 	said 	the 	TU Today 	version 	was
By23 stipulation 	of 	the 	parties.
25

based upon the telephone report by the individual building
representatives and that probably there was a building missing
in that report.
The TU Board adopted the report of the elections committee.
The 1981 bylaws amendment procedure did not follow the
procedures outlined in the existing TU bylaws, 24 24said Harju,
The Bylaws of TU as of 1978 provided for amendment as
follows:
24
3-3. Amendments Amendments to these Bylaws
shall be adopted by means of the
following processes:
a. 	PROPOSAL By majority vote, the
Executive Board may propose an
amendment at any meeting.
Amendments may also be proposed by
the policymaking body of any member
association.
b. 	NOTICE The proposed amendments
shall be transmitted to all member
associations not less than 30 days
prior to the meeting of the
Executive Board at which enrollment
is to be considered.
C. 	RATIFICATION The proposed
amendment must be approved for
ratification by vote of approval of
the policymaking body of all member
associations, to be effective
either immediately or at such later
time as is specified in Provisos
attached to the amendment.
d. 	ENROLLMENT Following the
ratification process, official
enrollment of an amendment shall
require an action of the Executive
Board.
26
based 	upon 	the 	telephone 	report 	by 	the 	individual 	building
representatives 	and 	that 	probably 	there 	was 	a 	building 	missing
in 	that 	report.
The 	TU Board 	adopted 	the 	report 	of 	the 	elections 	committee.
The 	1981 	bylaws 	amendment procedure 	did 	not 	follow 	the
procedures 	outlined 	in 	the 	existing 	TU 	bylaws, 	said Harju,
The	24 	Bylaws 	of TU 	as 	of 	1978 	provided 	for 	amendment 	as
follows:
3-3. 	Amendments 	Amendments 	to 	these 	Bylaws
shall 	be 	adopted 	by means 	of 	the
following 	processes:
a. 	PROPOSAL 	By majority 	vote, 	the
Executive 	Board 	may 	propose 	an
amendment 	at 	any 	meeting.
Amendments 	may 	also 	be 	proposed 	by
the 	policymaking 	body 	of 	any member
association.
b. 	NOTICE 	The 	proposed 	amendments
shall 	be 	transmitted 	to 	all 	member
associations 	not 	less 	than 	30 	days
prior 	to 	the 	meeting 	of 	the
Executive 	Board 	at 	which 	enrollment
is 	to 	be 	considered.
c. 	RATIFICATION 	The 	proposed
amendment 	must 	be 	approved 	for
ratification 	by 	vote 	of 	approval 	of
the 	policymaking 	body 	of 	all 	member
associations, 	to 	be 	effective
either 	immediately 	or 	at 	such 	later
time 	as 	is 	specified 	in Provisos
attached 	to 	the 	amendment.
d. 	ENROLLMENT 	Following 	the
ratification 	process, 	official
enrollment 	of 	an 	amendment 	shall
require 	an 	action 	of 	the 	Executive
Board.
26

because those "bylaws had to do with a completely different
type of governance in the sense that under the previous bylaws
Teachers United was a coalition of 5 chapters and was
really--in that sense was not a member ship organization and so
the members didn't have the right to vote with Teachers United
or other previous by laws. "
The revised bylaws contain a revised statement of purpose
of the organization to "acquire and maintain the collective
bargaining and contract administration rights and to otherwise
represent its members in their employment relations with
employer school districts, " (Section 1.2). As noted,
member ship in the association was expanded to include
individual members of the associations as well as retaining
association membership25 	(Section 	2.1).
The revised bylaws contain (as did the original TU bylaws)
a provision for withdrawal from TU (Section 2.3). It requires
thirty days notice to the TU executive board before submitting
the question of withdrawal to its members and there must be 120
days lapsing between the action of the members of the
association and the end of the current fiscal year.
association membership25 (Section 2.1) .
The new bylaws vest policy making responsibility in a TU
representative council composed of one representative from each
building within the six districts plus one for each additional
The revised bylaws require two thirds majority of the
representative council for amendment.
27
because 	those 	"bylaws 	had 	to 	do with 	a 	completely 	different
type 	of 	governance 	in 	the 	sense 	that 	under 	the 	previous 	bylaws
Teachers 	United 	was 	a 	coalition 	of 	5 	chapters 	and 	was
really--in 	that 	sense 	was 	not 	a 	membership 	organization 	and 	so
the members 	didn't 	have 	the 	right 	to 	vote 	with 	Teachers 	United
or 	other 	previous 	bylaws."
The 	revised 	bylaws 	contain 	a 	revised 	statement of 	purpose
of 	the 	organization 	to 	"acquire 	and 	maintain 	the 	collective
bargaining 	and 	contract 	administration 	rights 	and 	to 	otherwise
represent 	its 	members 	in 	their 	employment 	relations 	with
employer 	school districts," 	(Section 	1. 2). 	As 	noted,
membership 	in 	the 	association 	was 	expanded 	to 	include
individual 	members 	of 	the 	associations 	as 	well 	as 	retaining
The 	revised 	bylaws 	contain 	(as 	did 	the 	original 	TU 	bylaws)
a 	provision 	for 	withdrawal 	from TU 	(Section 	2.3). 	It 	requires
thirty days 	notice 	to 	the 	TU 	executive 	board 	before 	submitting
the question 	of 	withdrawal 	to 	its 	members 	and 	there 	must 	be 	120
days 	lapsing 	between 	the 	action of 	the 	members 	of 	the
association 	and 	the 	end 	of 	the 	current 	fiscal 	year.
The 	new 	bylaws 	vest 	policy 	making 	responsibility 	in 	a 	TU
representative 	council composed 	of 	one 	representative 	from 	each
building 	within 	the 	six 	districts 	plus 	one 	for 	each 	additional
The	2525 revised 	bylaws 	require 	two 	thirds 	majority 	of 	the
representative 	council 	for 	amendment.
27

25 members, and the members of the executive board. The
executive board is composed of four officers (president,
vice president, secretary, and treasurer) elected at large
among the members associations and the president (or designee)
of each of the member associations. The executive board is
charged with the policy administration function (Section 4) .
A provision of the bylaws expresses the intent not to
supplant or replace similar member association governance
bodies (Section 4.2).
Under a provision on "Collective Bargaining Procedures,"
member associations are given an opportunity to "opt out" of
participating in the collective bargaining procedures.
However, the provision requires notice of and action to opt out
prior to December 1 of any given year and then such exercise is
only effective for the next second succeeding year
(Section 8). Absent such option, the association is bound to
participate in the collective bargaining procedures described
below.
The bylaws provide that TU shall be the exclusive
representative (except for those who opt out) . By the
affirmative vote of the members of the association in passing
on the question of amending the bylaws, the member associations
agree to petition PERB for a transfer of jurisdiction of the
28
25 	members, 	and 	the 	members 	of 	the 	executive 	board. 	The
executive 	board 	is 	composed 	of 	four 	officers 	(president,
vice 	president, 	secretary, 	and 	treasurer) 	elected 	at 	large
among 	the 	members 	associations 	and 	the 	president 	(or 	designee)
of 	each of 	the 	member 	associations. 	The 	executive 	board 	is
charged 	with 	the 	policy 	administration 	function 	(Section 	4).
A provision of 	the 	bylaws 	expresses 	the 	intent 	not 	to
supplant 	or 	replace 	similar 	member 	association 	governance
bodies 	(Section 	4.2).
Under 	a 	provision 	on 	"Collective 	Bargaining 	Procedures,"
member 	associations 	are 	given 	an 	opportunity 	to 	"opt 	out" 	of
participating 	in 	the 	collective 	bargaining 	procedures.
However, 	the 	provision 	requires 	notice 	of 	and 	action 	to 	opt 	out
prior 	to 	December 	1 of 	any 	given 	year 	and 	then 	such 	exercise 	is
only 	effective 	for 	the 	next 	second 	succeeding 	year
(Section 	8). 	Absent 	such 	option, 	the 	association 	is 	bound 	to
participate 	in 	the 	collective 	bargaining 	procedures 	described
below.
The 	bylaws 	provide 	that 	TU 	shall 	be 	the 	exclusive
representative 	(except 	for 	those 	who 	opt 	out). 	By 	the
affirmative 	vote 	of 	the 	members 	of 	the 	association 	in passing
on 	the 	question 	of 	amending 	the 	bylaws, 	the 	member 	associations
agree 	to 	petition PERB 	for 	a 	transfer 	of 	j-urisdiction 	of 	the
28

exclusive representative status from the member association to
TU26	26 	(Section 8.2) .
The collective bargaining procedures call for each member
association to appoint three members to a TU Collective
Bargaining Committee for a one-year term. 	That committee is to
conduct surveys and hearings for negotiations, draft the TU
annual initial proposal (which may include proposals requested
by member associations) for submission to and approval of the
TU representative council; develop recommendations for the
representative council and annual TU bargaining goals, minimum
settlement standards, and procedures for monitoring of
bargaining; and to annually select, subject to Representative
Council ratification, two of its members to serve on the TU
bargaining team. 	.27	27
The TU wide bargaining team is a three-member team composed
of the two permanent voting members (teachers), Harju
(nonvoting) and three members of the local association who are
designated under association procedures as members of the
negotiation team for the district (Section 8.4) . 	The
26	260r in the case of a new member, by virtue of a vote of
the members to affiliate with TU.
27	27 Under the bylaws, the committee is to select those
persons who "best fit the following criteria", bargaining
experience and training, commitment to the goals and objectives
of TU, ability to articulate and calmness under stress.
29
exclusive 	representative 	status 	from 	the 	member 	association 	to
Tu 	(Section 	8.2).
The 	collective 	bargaining 	procedures 	call 	for 	each 	member
association 	to 	appoint 	three 	members 	to 	a 	TU 	Collective
Bargaining 	Committee 	for 	a 	one-year 	term. 	That 	committee 	is 	to
conduct 	surveys 	and 	hearings 	for 	negotiations, 	draft 	the 	TU
annual 	initial 	proposal 	(which 	may 	include 	proposals 	requested
by member 	associations) 	for 	submission 	to 	and 	approval 	of 	the
TU 	representative 	council; 	develop 	recommendations 	for 	the
representative 	council 	and 	annual 	TU 	bargaining 	goals, 	minimum
settlement 	standards, 	and 	procedures 	for 	monitoring 	of
bargaining; 	and 	to 	annually 	select, 	subject 	to 	Representative
Council 	ratification, 	two 	of 	its 	members 	to 	serve 	on 	the 	TU
bargaining 	team
The 	TU wide 	bargaining 	team 	is 	a 	three-member 	team composed
of 	the 	two 	permanent 	voting members 	(teachers), 	Harju
(nonvoting) 	and 	three 	members 	of 	the 	local 	association 	who 	are
designated 	under 	association procedures 	as 	members 	of 	the
negotiation 	team 	for 	the 	district 	(Section 	8.4). 	The
or 	in 	the 	case 	of 	a 	new 	member, 	by 	virtue 	of 	a 	vote 	of
the 	members 	to 	affiliate 	with 	TU.
under 	the 	bylaws, 	the 	committee 	is 	to 	select 	those
persons 	who 	"best 	fit 	the 	following 	criteria", 	bargaining
experience 	and 	training, 	commitment 	to 	the 	goals 	and 	objectives
of 	TU, 	ability 	to 	articulate 	and 	calmness 	under 	stress.
29

collective bargaining team is charged, subject to the
directions established by the Representative Council, the
member association and the TU Bargaining Committee, to
negotiate an agreement in each member association of TU
(Section 8.4).
An additional section provides that, subject to the Bylaws
and such policies as the Representative Council might
establish, the Collective Bargaining Committee is to "monitor
the progress of bargaining in each member association, and "to
recommend approval or disapproval of a tentative agreement
prior to the submission of the tentative agreement to the
member association for its ratification," (Section 8.3) .
The bylaws establish a TU Contract Administration/Grievance
Committee selected annually by the Executive Board. This
committee is charged to work with the members' associations to
continually educate members of contract rights, provide
training for grievance representatives, and assist in the
processing of grievances (Section 9) .
A provision on "Withholding of Services" provides that
individual member associations may withhold services if the
collective bargaining team recommends it to the member
association executive board and the Collective Bargaining
Committee of TU concur, and the members of the association
concur by a secret vote with 2/3 in favor of withholding
services (Section 10.1) .
30
collective 	bargaining 	team 	is 	charged, 	subject 	to 	the
directions 	established 	by 	the 	Representative 	Council, 	the
member 	association 	and 	the 	TU Bargaining 	Committee, 	to
negotiate 	an 	agreement 	in 	each 	member 	association 	of TU
(Section 8 .4).
An 	additional 	section provides 	that, 	subject 	to 	the 	Bylaws
and 	such 	policies 	as 	the 	Representative 	Council 	might
establish, 	the 	Collective 	Bargaining 	Committee 	is 	to 	"monitor
the 	progress 	of 	bargaining 	in 	each 	member 	association, 	and 	"to
recommend 	approval or 	disapproval 	of 	a 	tentative 	agreement
prior 	to 	the 	submission 	of 	the 	tentative 	agreement 	to 	the
member 	association 	for 	its 	ratification," 	(Section 	8.3).
The 	bylaws 	establish 	a 	TU 	Contract Administration/Grievance
Committee 	selected 	annually 	by 	the 	Executive 	Board. 	This
committee 	is 	charged 	to 	work 	with 	the 	members'associations 	to
continually educate 	members 	of 	contract 	rights, 	provide
training 	for 	grievance 	representatives, 	and 	assist 	in 	the
processing 	of 	grievances 	(Section 	9).
A provision 	on 	"Withholding 	of 	Services" 	provides 	that
individual member 	associations 	may 	withhold 	services 	if 	the
collective 	bargaining 	team 	recommends 	it 	to 	the 	member
association 	executive 	board 	and 	the 	Collective 	Bargaining
Committee 	of TU 	concur, 	and 	the 	members 	of 	the 	association
concur 	by 	a 	secret 	vote 	with 	2/3 	in 	favor 	of 	withholding
services 	(Section 	10.1).
30

The provisions also provide for multi-member association
withholding of services, called for by the TU Executive Board
subject to the TU collective bargaining committee recommending
such action to the Executive Board, and that recommendation is
concurred in by the Executive Board and the Representative
Council. It further requires a determination by the members of
an affected member association, by a 60 percent vote including
60 percent of those voting in a majority of the affected
associations by secret ballot (Section 10.2).
The revised bylaws provided that the revised bylaws would
be considered ratified by the majority vote of members of TU
voting, plus a majority of at least four of the six members of
the TU (Section 11) .
be 	considered 	ratified 	by 	the 	majority 	vote 	of 	members
voting, 	plus 	a 	majority 	of at 	least 	four 	of 	the 	six 	me
the 	TU 	{Section 	11) •.
Finally, the bylaws provide that member associations would
by June 30, 1982 bring their bylaws into compliance with the
revised TU bylaws (Section 11.2).
Dues for the revised Teachers United are set by the TU
representative counsil and are not subject to approval of the
chapter representative councils.
The petitions for transfer of jurisdiction filed in March
of 1981 by the five associations are similar in substance but
vary in accordance with the separate identity of the employee
organizations. Using AREA as an example, the petition begin
with the following:
31
The 	provisions 	also 	provide 	for 	multi-member 	association
withholding 	of 	services, 	called 	for 	by 	the 	TU Executive Board
subject 	to 	the 	TU collective 	bargaining 	committee 	recommending
such 	action 	to 	the 	Executive 	Board, 	and 	that 	recommendation 	is
concurred 	in 	by 	the 	Executive 	Board 	and 	the 	Representative
Council. 	It 	further 	requires 	a 	determination 	by 	the 	members 	of
an 	affected 	member 	association, 	by 	a 	60 	percent 	vote 	including
60 	percent 	of 	those 	voting 	in a 	majority of 	the 	affected
associations 	by 	secret 	ballot 	{Section 	10.2).
The 	revised 	bylaws 	provided 	that 	the 	revised 	bylaws 	would
of 	TU
mbers 	of
Finally, 	the 	bylaws 	provide 	that member 	associations 	would
by 	June 	30, 	1982 	bring 	their 	bylaws 	into 	compliance with 	the
revised 	TU 	bylaws 	{Section 	11.2).
Dues 	for 	the 	revised 	Teachers 	United 	are 	set 	by 	the 	TU
representative 	counsil 	and 	are 	not 	subject 	to 	approval of 	the
chapter 	representative 	councils.
The 	petitions 	for 	transfer 	of 	jurisdiction 	filed 	in March
of 	1981 	by 	the 	five 	associations 	are 	similar 	in 	substance 	but
vary 	in 	accordance 	with 	the 	separate 	identity 	of 	the 	employee
organizations. 	Using 	AEEA as 	an 	example, 	the 	petition begin
with 	the 	following:
31

This letter constitutes a petition for a
transfer of jurisdiction from the Anaheim
Elementary Education Association to the
Teachers United UniServ Unit/CTA/NEA, filed
pursuant to PERB regulations, Section 32761,
on behalf of the members of the Certificated
Bargaining Unit of the Anaheim City School
District.
The petitions, in addition to containing other requirements
of section 32761 (b) , state the nature of the transfer of
jurisdiction as:
•••	. The nature of this transfer of
jurisdiction is to consolidate the
resources and services of the six local
associations of Teachers United, to
avoid duplication of services and to
engage in cooperative training, planning
and service while still assuring that
unit members in each of the six
certificated employee bargaining units
involved will maintain essential control
over the negotiations of their own
collective bargaining agreements.
Teachers United UniServ Unit/CTA/NEA
will represent the Bargaining Unit
formerly represented by the Anaheim
Elementary Education Association, and
continuity of representation is assured
as follows:
a ) 	Our Executive Director, William A.
Harju, will continue to provide
direct service and consultation at
the bargaining table, as has been
the case for the past several years.
b) 	Members of the Certificated
Bargaining Unit in the Anaheim City
School District will continue to
serve on the bargaining team.
c) 	Members of the Certificated
Bargaining Unit in the Anaheim City
School District will continue to
ratify their own collective
bargaining agreements.
32
This 	letter 	constitutes 	a 	petition 	for 	a
transfer 	of 	jurisdiction 	from 	the 	Anaheim
Elementary 	Education Association 	to 	the
Teachers 	United 	UniServ Unit/CTA/NEA, 	filed
pursuant 	to PERB 	regulations, 	Section 	32761,
on 	behalf 	of 	the 	members 	of 	the 	Certificated
Bargaining 	Unit 	of 	the 	Anaheim City 	School
District.
The petitions, 	in 	addition 	to 	containing 	other 	requirements
of 	section 	3276l(b), 	state 	the 	nature 	of 	the 	transfer 	of
jurisdiction 	as:
The 	nature 	of 	this 	transfer 	of
jurisdiction 	is 	to 	consolidate 	the
resources 	and 	services 	of 	the 	six 	local
associations 	of 	Teachers 	United, 	to
avoid 	duplication 	of 	services 	and 	to
engage 	in 	cooperative 	training, 	planning
and 	service 	while 	still 	assuring 	that
unit 	members 	in 	each 	of 	the 	six
certificated 	employee 	bargaining 	units
involved 	will 	maintain 	essential 	control
over 	the 	negotiations 	of 	their 	own
collective 	bargaining 	agreements.
Teachers 	United 	UniServ Unit/CTA/NEA
will 	represent 	the 	Bargaining 	Unit
formerly 	represented 	by 	the 	Anaheim
Elementary 	Education Association, 	and
continuity 	of 	representation 	is 	assured
as 	follows:
a) 	Our 	Executive 	Director, 	William A.
Harju, 	will 	continue 	to provide
direct 	service 	and 	consultation 	at
the 	bargaining 	table, 	as 	has 	been
the 	case 	for 	the 	past 	several 	years.
b) 	Members 	of 	the 	Certificated
Bargaining 	Unit 	in 	the 	Anaheim City
School 	District 	will 	continue 	to
serve 	on 	the 	bargaining 	team.
c) 	Members 	of 	the 	Certificated
Bargaining 	Unit 	in 	the 	Anaheim City
School 	District 	will 	continue 	to
ratify 	their 	own 	collective
bargaining 	agreements.
32

ISSUES
The issue in the case is whether the petitions for transfer
of jurisdiction (amendment of certification) requested by the
five exclusive representatives should be granted.
CONCUSIONS OF LAW
Under Government Code section 3541.3, the Public Employment
Relations Board (hereafter PERB) is empowered to "consider and
decide issues relating to rights, privileges, and duties of an
employee organization in the event of a merger, amalgamation,
or transfer of jurisdiction between two or more employee
organizations" (3541.3 (b) ) . Section 3543.3 (1) empowers the
board to "decide contested matters involving recognition,
certification, or decertification of employee organizations. "
PERB is empowered to adopt rules and regulations to "carry
out the provisions and effectuate the purposes and policies" of
the EERA (section 3543 (n) ) .
The PERB has adopted regulations (Article 3 commencing with
section 32760 of title 8 of the California Administrative Code)
which authorizes a recognized employee organization to file
with a PERB regional office "a request to reflect a change in
the identity of the exclusive representative in the event of a
merger, amalgamation, affiliation or transfer of jurisdiction
affecting said organization (section 32761(a)). After
specifying information required of the requesting party
(section 32761(b) ) , the employer school district is provided an
33
ISSUES
The 	issue 	in 	the 	case 	is 	whether 	the 	petitions 	for 	transfer
of 	jurisdiction 	(amendment 	of 	certification) 	requested 	by 	the
five 	exclusive 	representatives 	should 	be 	granted.
CONCUSIONS OF LAW
Under 	Government 	Code 	section 	3541.3, 	the 	Public 	Employment
Relations 	Board 	(hereafter 	PERB) 	is 	empowered 	to 	"consider 	and
decide 	issues 	relating 	to 	rights, 	privileges, 	and 	duties 	of 	an
employee 	organization 	in 	the 	event 	of 	a 	merger, 	amalgamation,
or 	transfer 	of 	jurisdiction between 	two 	or 	more 	employee
organizations" 	(3541.3(b)). 	Section 	3543.3 	(1) 	empowers 	the
board 	to 	"decide 	contested 	matters 	involving 	recognition,
certification, 	or 	decertification 	of 	employee 	organizations. I'
PERB 	is 	empowered 	to 	adopt 	rules 	and 	regulations 	to 	"carry
out 	the 	provisions 	and 	effectuate 	the 	purposes 	and 	policies" 	of
the 	EERA 	(section 	3543(n)).
The 	PERB 	has 	adopted 	regulations 	(Article 	3 commencing 	with
section 	32760 	of 	title 	8 of 	the 	California 	Administrative 	Code)
which 	authorizes 	a 	recognized 	employee 	organization 	to 	file
with 	a 	PERB 	regional 	office 	"a 	request 	to 	reflect 	a 	change 	in
the 	identity 	of 	the 	exclusive 	representative 	in 	the 	event 	of 	a
merger, 	amalgamation, 	affiliation 	or 	transfer 	of 	jurisdiction
affecting 	said 	organization 	(section 	3276l(a)). 	After
specifying 	information 	required 	of 	the 	requesting 	party
(section 	3276l(b)), 	the 	employer 	school district 	is 	provided 	an
33

o p p o r t u n i t y t o r e s p o n d ( s e c t i o n 3 2 7 6 2 ) . T h e r e a ft e r , t h e
r e g io n a l d ire c t o r is t o c o n d u c t s u c h in q u irie s a n d
i n v e s t i g a t i o n s o r h o l d s u c h h e a r in g s a s d e e m e d n e c e s s a r y
in order to decide the questions raised by the request (section
3 2 7 6 3 ( a ) ) . T h e r e g i o n a l d i r e c t o r m a y d i s m i s s t h e r e q u e s t
fo r la ck o f sta n d in g b y th e p etitio n er, if th e p etitio n is
im properly file d, or ba sed u pon th e in vestig atio n con du cted by
h i m o r h e r (s e c t io n 3 2 7 6 3 (b ) ). A p p r o v a l o f t h e re q u e s t s h a ll
r e s u l t i n t h e i s s u a n c e o f a n e w c e r t i f i c a t i o n r e f l e c t i n g t h e
n e w e x c l u s i v e r e p r e s e n t a t i v e . 2 9 D e c i s i o n s o f t h e r e g i o n a l
director may be appealed to the Board (section 32763 (d) ).
W h i l e t h e p e t i t i o n s f i l e d b y t h e r e s p e c t i v e a s s o c i a t i o n s
s p e c i f y a r e q u e s t t o " t r a n s f e r j u r i s d i c t i o n , " i t i s c l e a r t h a t
t h e r e g i o n a l d i r e c t o r ' s a u t h o r i t y i s t o a d d r e s s t h e q u e s t i o n o f
w h et h er a n ew certific atio n sho uld issue beca use o f th e
t r a n s f e r o f j u r i s d i c t i o n . B o t h t h e u n d e r l y i n g s t a t u t e a n d t h e
regulatio ns regardin g such t ran sfer assu m e the actio n of the
e x c l u s i v e r e p r e s e n t a t i v e t o h a v e t a k e n p l a c e . P E R B 's r e v i e w i s
lim it e d t o t h e q u e s t io n o f w h e t h e r a n e w c e r t ific a t io n s h o u ld
issue.
T h i s i s a c a s e o f f i r s t i m p r e s s i o n r e g a r d i n g t h e r e q u e s t
f o r n e w c e r t i f i c a t i o n b e c a u s e o f a " t r a n s f e r o f j u r i s d i c t i o n "
2 9 s u c h r e c e r t i f i c a t i o n d o e s n o t a f f e c t t i m e l i n e s f o r
purposes of window periods (section 32763 (a) ).

between tw o or more employee organizatio ns. Neith er the
s t a t u t e n o r t h e r e g u l a t i o n s s e t f o r t h c r i t e r i a f o r a s c e r t a i n i n g
th e a p p ro p ria ten ess o f gra n tin g o r d en yin g th e req u est fo r
c h a n g e o f c e r t i f i c a t i o n .
I n t h e i r i n i t i a l p o s t h e a r i n g b r i e f , p e t i t i o n e r s d e s c r i b e
t h e i r r e q u e s t a s a p e t i t i o n f o r " t r a n s f e r o f r e p r e s e n t a t i o n
j u r i s d i c t i o n " t o a " j o i n t e n t i t y . " N o a t t e m p t i s m a d e t o
d e fi n e o r d e s c r i b e t h e e s s e n c e o f t h e t r a n s i t i o n t h a t h a s
o c c u r re d . T h e y fo c u s u p o n a n d u r g e a s d o t h e D is t ric t s , t h e
u se of th o se c rite ria e m p lo y e d b y th e N a t io n a l L a bo r R e la tio n s
Board (hereafter NLRB) , discussed below, in reviewing mergers
o r affilia tio n s.
"Transfer of jurisdiction" does not describe the character of
c h a n g e, if a n y , b ro u g h t a b o u t b y th e b y la w s a m e n d m e n t.
Merger, amalgamation or affiliation30 each carry significance
30A merger is the absorption of one corporation by
an oth er w h ic h su rviv es, retain s its n am e an d corporate iden tity
to ge th er w ith th e a dd ed ca p ita l, fra n ch ise a n d p o w ers o f th e
merged corporation and continues their combined business.
Heating Equipment Mfg. Co. v. Franchise Tax Board (1964) 228
Ca. 2d 290, 39 Cal Rptr. 453.
An affiliation is the alignment or association of a union with
a national or parent organization. An affiliation does not create
a n e w o rg a n iz a tio n , n o r d o e s it r e s u lt in t h e d is s o lu tio n
of a n a lready existin g organization . T h e organiza tion s
p a r t i c i p a t i n g i n t h e a f f i l i a t i o n d e t e r m i n e w h e t h e r a n y
a d m i n i s t r a t i v e o r o r g a n i z a t i o n a l c h a n g e s a r e n e c e s s a r y
i n t h e a f f i l i a t i n g o r g a n i z a t i o n . A m o c o P r o d u c t i o n C o m p a n y
2 3 9 N L R B N o . 1 8 2 , 1 0 0 L R R M 1 1 2 7 ( 1 9 7 9 ) .
Amalgamation means to unite or combine into a uniform or
independent whole. Websters Third New International Dictionary.

o f l e g a l s t a t u s o f t h e e n t i t i e s i n v o l v e d w h e r e a s a t r a n s f e r o f
ju r is d ic t i o n w o u l d s e e m m o r e a p t l y d e s c r i p t i v e o f t h e e f f e c t o f
s u c h ch a n ge, i.e., ju risd ictio n o f th e ex clu sive rep resen ta tive is
changed beca use of som e other affecta tion of th e sta tus of th e
i n c u m b e n t e x c l u s i v e r e p r e s e n t a t i v e . 3 1
I t i s c l e a r t h a t w h a t h a s o c c u r r e d i s n o t a m e r g e r . A
m e r g e r w o u l d c a u s e o n e o f t h e m e r g i n g e n t i t i e s t o c e a s e
to exis t. A s is e v ide n t, e a c h o f th e c h a p te rs c o n tin u e s to
e x i s t . T h e a s s o c i a t i o n s , a s s e p a r a t e o r g a n i z a t i o n s , t h e i r
o ffic e r s , g o v e r n in g b o d ie s , a n d f u n c t io n s , e x c e p t a s m o d if ie d
b y th e n e w b y la w s , c o n tin u e in fo r c e a n d e ffe c t. W h a t h a s
o c c u r r e d , u n d e r ly in g t h e p e t it io n , is t h e t r a n s f o r m a t io n o f a n
in t e r m e d ia t e s e r v ic e u n it o f e x is t in g (a n d r e c o g n iz e d )
affil iates, C TA / NE A , in to an en h an ced su bsta n tive en tity, w ith
an elected governance body possessing some, but not all powers
o f t h e o r i g i n a l e x c l u s i v e r e p r e s e n t a t i v e .
W h i l e t h e n e w e n t it y , c r e a t e d b y t h e b y la w s a m e n d m e n t
o f 1 9 8 2 , is in v es te d w ith s o m e p o w e rs fo r m e r ly h e ld b y
t h e i n d i v i d u a l c h a p t e r s , t h e la t t e r s t ill r e t a in a ll in d ic ia o f
th eir p re-1 9 81 statu s. W h at h a s b een con veyed to th e TU is th e
appointing power of a portion of the bargaining team members,
t h e p o w e r t o a p p r o v e s t r ik e s , a n d a b s o lu t e d is c re t io n t o s e t
3 1 S e e B oa rd regu la tio n sectio n 33261 (b ) (c) au th orizin g
e m p lo y e r a n d e m p lo y e e o rg a n iz a tio n s to p e tit io n fo r tra n s fe r o f
classifications fro m one u nit to anoth er.

i t s o w n d u e s . O t h e r f u n c t i o n s , l i k e e s t a b l i s h i n g g o a l s a n d
s e ttle m en t s ta ndards, are dele gated to t he new entit y, h ow ever
t h e i r r e n d i t i o n o f t h e s e f u n c t i o n s a r e n o t o b l i g a t o r y u p o n t h e
individual chapters.
I t w o u l d a p p e a r t h a t t h i s i s m o r e o f a h y b r i d a f f i l i a t i o n ,
not unlike that existing between each of the Chapters and CTA
an d NEA. Th e creation o f th e m ore su bsta ntive TU a nd th e act
o f a f f i l i a t i o n h a v i n g t a k i n g p l a c e s i m u l t a n e o u s l y a t t h e
February election.
N o p r e c i s e d e f i n i t i o n o f " t r a n s f e r o f j u r i s d i c t i o n " a p p e a r s
a v a ila b le a n d th e p a rties u rg e n o rea so n s w h y th e tra n sitio n
e ffe c t e d h e re s h o u ld b e te st ed in a n y fa s h io n o t h e r th a n th o s e
employed by the Nation al Labor Relations Board, (hereafter
NLRB) in reviewing requ est for amendm ent of certification where
a m erger or a ffiliation occurred.
P r e f a t o r y t o s u c h d is c u s s io n , h o w e v e r , c e r t a in fe a t u r e s o f
th e cir cu m s ta n c es s u rro u n d in g th e p e titio n s fo r tra n s fe r o f
ju risdiction deserve comment before addressing the substantive
argu m en ts raised by t h e pa rties in th eir po st-h earin g briefs .
I n i t i a l l y , i t i s n o t e w o r t h y t h a t t h e r e i s n o e v i d e n c e t h a t
th e lo ca l c h a p te rs h a v e , in fa c t , a m e n d e d t h e ir b y la w s t o
a c c o m m o d a t e t h e s u c c e s s io n t o r e p r e s e n t a t iv e s t a t u s s o u g h t
by Teachers United. This point was not argued by the Districts.
W h ile th ere was argum ent advan ced th at th e am en dmen t to th e
TU bylaws did not conform to the provisions of chapter bylaw rules

o n a m e n d m e n t o f t h o s e b y l a w s , 3 2 s u c h a r g u m e n t h o w e v e r
fails to consider that the chapters bylaws themselves have not
yet been amended. In the context of designated specific provisions
o f t h o s e lo c a l b y la w s t h a t g o v e r n t h e r e s p e c t iv e c h a p t e r s
r e la t in g t o n e g o t ia t in g t e a m s , g r ie v a n c e s , d u e s s e t t in g , a n d
th e lik e, th ere sh ou ld b e a m en dm en t o f th ose byla w s to effect
th e ch a nge cla im ed to h ave occurred b y TU a s a result o f th e
February 1981 amendment of the TU bylaws.
For example, ASTA bylaws contain provision for a
Negotiating Committee with members appointed by the President
of th e Chapte r a nd confirmed by the Executive Board . The
p o lic ie s f o r t h e c o m m it t e e a r e s e t b y t h e R e p r e s e n t a t iv e
Assembly. Members of the Chapter bargaining team are selected
f r o m t h e N e g o t i a t i n g C o m m i t t e e . T h i s r u l e c o n f l i c t s w i t h t h a t
function of the TU bylaw as amended in 1981 which sets forth
the revised chapter bargaining team, its appointment and
c o n s t i t u t i o n , a s w e l l a s t h e s o u r c e o f p r o p o s a l s a n d p o l i c y
direction.33
32See the discussion on page 26 infra, relating to the TU
bylaws amendment.
3 3 T h e b y la w s o f A E E A h a s a s a n e x p r e ss s ta te d p u rp o se ,
to "represen t its employees." Among the duties of the president
a re to s er v e o n a U n is e r v b o a rd . M e m b er s o f t h e N e g o tia tin g
Team are appointed subject to confirmation by the
Represen ta tive C o u n cil. Th e n ego tia tin g tea m a n d a grieva n ce
committee are subject to operative Standing Rules.
T h e C e n t r a l ia C h a p t e r i s e x p r e s s l y a f fi l i a t e d w i t h
CTA/NEA. Its Board of Directors includes the negotiating team

T h e A S T A b y l a w s f u r t h e r c o n t a i n e x p r e s s r e f e r e n c e t o
ASTA affiliation with no reference to an affiliation with TU. The
A S TA ch apte r h a s fu rth er d eta iled "S ta n d in g R u le s " re la tin g to
t h e n e g o t ia tin g c o m m itte e a n d its te a m a s w e ll a s fo r a
grievance committee.
T h u s , i n t e g r a l p r o v i s i o n s o f t h e l o c a l s , i . e . ,
representative status, provision for affiliations to Uniserv units,
a n d / o r C T A / N E A ( w i t h n o n e t o T U ) , a p p o i n t m e n t o f a n d
constitution of negotiating team s and/or grievance committees,
rem ain u n ch an ged . T h eir con tin u ed effect con trad ict th e
supposedly operative provisions of TU.
s p o k e s p e r s o n . A m o n g d u t i e s o f t h e p r e s i d e n t a r e s e r v i n g o n
t h e U n is e r v B o a r d . T h e B o a r d o f D i r e c t o r s , a m o n g o t h e r d u t ie s ,
i s t o a d o p t s t a n d i n g r u l e s f o r t h e s e l e c t i o n o f t h e N e g o t ia t i n g
Team.
T h e M a g n o lia b y la w s e x p re s s ly re fe r t o C T A a n d N E A
as affiliates, and h as a purp ose to represent emplo yees. Its
Board of Directors includes the TUCAMS representative and
includes among its president's duties as a TUCAMS
representa tive as w ell as extra duties for the TUCAMS
r e p r e s e n t a t i v e . I t c o n t a i n s p r o v i s i o n f o r t h e B o a r d o f
Directors appointing the Negotiating Team (five members)
s u b j e c t t o a p p r o v a l o f t h e r e p r e s e n t a t i v e c o u n c i l . A n a r t i c l e
o n g r ie va n c e c o m m itte e p ro v id e s fo r s ele c tio n b y th e g en e ra l
membership and nominees must be from permanent teachers.
The Savanna local constitu tio n provid es as a purp ose to
" r e p r e s e n t t h e e m p l o y e e s ." T h e b y l a w s e x p r e s s l y r e f e r t o
TUCAMS and representation (president and another) on the TUCAMS
b o a r d . I n c l u d e d i n t h e b y l a w s a r e p r o v i s i o n s f o r a g r i e v a n c e
c o m m it t e e w it h s t a t e d d u t ie s a n d fo r a n e g o t ia t in g t e a m (fiv e
members) appointed by the Executive Board subject to
approval of the Representative Council. The provision further refers
to use of consultants from the Association, state and national
staff.

The bylaw s amendments of February 1981, provided for
a tra n sit io n w hereby the lo cals w o uld a m end th eir bylaw s
to accommodate compliance with the provisions of
th e TU am ended by la w s. That accom m odation has
yet to take place. Consideration of the request for transfer of
jurisdiction (amendment of the certification) should be deferred
until at least the bylaws of the local chapter have been amended
to con fo rm to th e T U byla w s. This averts th e possibility of
granting th e am ended certification an d th en fin ding one or more
o f th e lo cals ha ve failed to acco m plis h am endm en t of their o w n
operative bylaws.
A second concern is the somewhat nebulous status assumed by
th e chapters upon th e p erfection of th eir o wn byla w
amendments. This concern does not focus upon that provision of
the new TU bylaws that addresses ultimate chapter withdrawal
from an orga n iza tio n a l rela tion sh ip w it h T U (see p a ge 2 7 h erein
f o r r e f e r e n c e t h e r e t o ) b u t r a t h e r u p o n t h e r e s e r v a t i o n b y
c h a p t e r s , e x p r e s s e d in t h o s e b y la w s , t o e x e r c is e o p t in g o u t o f
th e b a rga in in g p ro cess bu t n ot from T U , b y n otice given b efo re
Decem ber 1 of a ny g iv en year for the next succeeding year.
U n d e r t h e o p e r a t iv e p r o v is io n s o f t h e n e w T U b y la w s , s h o u ld
a chapter determin e to opt ou t of the "bargaining project",
c e r t i f i c a t i o n o f e x c l u s i v e r e p r e s e n t a t i o n w o u l d n o t
a u to m a tica lly revert to th e ch a p ter. R a th er, a n a m en d m en t o f
th e c e rt ific a t io n w o u ld h a v e t o o c c u r . U n d e r e x is t in g P E R B

regu la tio n s, h o w ever, o n ly th e ex clu sive rep resen tative m ay
s e ek a n a m e n d m e n t t o t h e c e r t ific a t io n . S h o u ld t h e p e t it io n
for am en dm ent o f certificatio n be g ra nted, T U w o uld be th e on ly
organization in standing to request an amendment to grant the
c h a p t e r i t s s t a n d i n g a s t h e e x c l u s i v e r e p r e s e n t a t i v e . T h i s
req u irem en t w o u ld le a v e th e c o m ple tio n o f th e e x e rcis e o f th e
o p t i o n o u t o f t h e b a r g a i n in g p r o c e s s t o t h e d i s c r e t i o n o f T U ,
not the chapter.
According to Harju, while TU would be the exclusive
representative, the chapter would have its own bargaining team,
advance its own proposals and seek its own contract with the
e m p l o y e r d i s t r i c t . T h e u n c e r t a i n t y o f t h i s p r o c e s s i s f u r t h e r
compounded by Harju's testimony that the option out only goes
to t he bargainin g process - that is the bargaining team m ak eup
- s o u r c e o f p r o p o s a l s f o r n e g o t i a t i o n s , p a r t i c i p a t i o n i n t h e
f o r m u l a t io n o f g o a ls a n d s e t t le m e n t s t a n d a r d s . T h u s , o n it s
f a c e , t h e o p t io n o u t p ro v is io n e n v is io n s a c h a n g e in t h e
b a rga in in g p r o c e s s , b u t n o t o f th e b a r g a in in g a g e n t. H o w e v e r ,
th at pro cess en vis io n s resu m p tion b y th e ch ap ter a s th e en tit y
w it h w i t h f u l l b a r g a i n i n g s t a t u r e w i t h t h e r e s p e c t i v e
employer . Unanswered in such a process is who is the employee
organiz a tion w it h w h o m th e em p loyer w ill co llectively b arga in ?
W it h w h om w ill th e emplo yer d ete rmin e its at im passe? W ho w ill
c o n s u m a t e a n a g r e e m e n t o n b e h a l f o f t h e e m p l o y e e s o f
the district? Who is the employer to look at for determination of

m a jo r it y s u p p o r t ? W h o is t h e e m p lo y e r t o fo c u s u p o n if t h e r e
i s a w i t h h o l d i n g o f s e r v i c e s ? I n d e a l i n g w i t h t h e c h a p t e r , t h e
e m p lo y e r is e x p o s e d t o t h e p o s s ib ilit y o f c o m m it t in g a n u n fa ir
p r a c t i c e b y f a i l i n g t o r e s p e c t t h e r i g h t s o f t h e e x c l u s i v e
r e p r e s e n t a t i v e (T U ) . T h e D i s t r i c t c a n n o t d e fe r t o t h e c h a p t e r
o n t h o s e m a t t e r s s t a t u t o r i l y o w e d t o T U . T h e p r i n c i p l e o f
exc lu s iv ity g ra n te d to a n e m p lo y ee o rg a n iza tio n b y re c o g n itio n
o r c e r t i f i c a t i o n b r i n g s a s m u c h c e r t a i n t y t o t h e e m p l o y e r a s t o
w h o to deal with in m atters o f em plo yer-emplo yee r ela tions as
it d o e s in p r o n o u n c in g th e s u p er io r p o s itio n o f t h e d e s ig n a te d
emplo yee organ izatio n over n on -design ated orga n izatio n s. Th is
" o p t i o n o u t " p r o c e s s r e n d e r s t h a t e x c l u s i v i t y u s e l e s s w h e n , i f
e x e r c is e d , t h e e n t it y w it h w h o m t h e e m p lo y e r is t o e x c lu s iv e ly
d e a l i s c h a n g e d d u r i n g t h e c e r t i f i c a t i o n p e r i o d . T h e r e t e n t i o n
o f t h is o p tio n to c h a p te rs , w ith th e re q u e s t fo r a m e n d m en t o f
c e r t i f i c a t i o n t o T U o n l y , i s i n c o m p a t i b l e w i t h t h e p r i n c i p l e o f
exclusive representation granted by the EERA.
These requests have been analyzed in the context of whether
t h e y c o n s t i t u t e a r e q u e s t f o r j o i n t r e p r e s e n t a t i o n . 3 4 T h e
c o n c e p t o f j o i n t e m p l o y e e o r g a n i z a t i o n c e r t i f i c a t i o n ( u s u a l l y
f l o w i n g f r o m j o i n t p e t i t i o n s f i l e d f o r c e r t i f i c a t i o n p r i o r t o
34PERB Regulation section 32700 (d) recognizes "a joint
petition may meet the required percentage by combining the
t o t a l o f t h e p r o o f s o f s u p p o r t f o r e a c h o f t h e e m p l o y e e
organizations which make up the joint petitioner.

conduct of election and where two employee organizations appear
a s o n e j o i n t e n t i t y o n t h e b a l l o t ) r e q u i r e s t h a t t h e j o i n t
e n t it y b e t h e b a r g a in in g a g e n t a n d t h a t n e it h e r e n t it y
c o m p r i s i n g t h e j o i n t v e n t u r e m a y t h e r e a f t e r i n s i s t o n
b a rga in in g w it h th e em plo yer alon e. M id-S ou th Packers, I nc.
(1958 ) 120 NLRB 495 [41 LRRM 1526], Suburban
Newspaper Publication, Inc. (1977) 230 NLRB No. 187 [95 LRRM
1 4 8 2 ]. A n e m p lo y e r d o e s n o t c o m m it a n u n fa ir p ra c t ic e in
refusing to bargain with either. A joint petition for certification
w ill b e d is m is s e d w h e re it is fo u n d t h a t t h e p e t it io n e r s d o
n o t i n t e n d t o b a r g a in jo in t ly . S u b u r b a n N e w s p a p e r , s u p r a . I n
t h e p r e s e n t c a s e , i t i s c l e a r t h a t t h e C h a p t e r s d o n o t i n t e n d
joint representation. In their request for "transfer of
ju r is d ic tio n " e a c h c h a p t er sp e c ifica lly re q u e st s a n a m e c h a n ge
to "Teachers United UniServ/CTA/NEA. " In each petition, the
ch apte r a s se rts th a t its m em b e rs "h a ve v o te d , by m a jo rit y v o te ,
t o t r a n s f e r j u r i s d i c t i o n f o r r e p r e s e n t a t i o n . . . t o T e a c h e r s
United UniServ Unit/CTA/NEA".
W h a t h a s b e e n e ffe c tu a t ed h e re is a n a ffilia tio n b et w e en
e a c h o f th e C h a p ters a n d TU . T h e b yla w s a m en d m en t
of February 1981 not only resu lted in the form ation of
a substantive employee organization, TU, as opposed to the former
s t a t u s a s a s e r v i c e u n i t o f C T A / N E A , b u t a l s o p r o d u c e d
an allignment of organizational affiliation between each of the
chapters and TU.

T h a t a li g n m e n t c o n t e m p l a t e s a p o t e n t ia l s h if t i n t h e m a k e u p
o f t h e b a r g a i n i n g t e a m a n d a r e s t r u c t u r i n g o f t h e c o n d i t i o n s b y
w h i c h w i t h h o l d i n g o f s e r v i c e s c a n t a k e p l a c e . T h e s e
m a t t e r s a r e i n t e r n a l t o t h e e m p l o y e e o r g a n i z a t i o n s a n d a r e
c o m p a t i b l e w i t h a n a f f i l i a t i o n r a t h e r t h a n a n a b s o l u t e c h a n g e
i n e x c l u s i v e r e p r e s e n t a t i v e d e s i g n a t i o n . S e e A m o c o P r o d u c t i o n
Company (1979) 239 NLRB No. 182, 100 LRRM 1127.
T h e c h a p t e r s s h o u l d a m e n d t h e i r r e q u e s t f o r a m e n d e d
c e r t i f i c a t i o n t o r e f l e c t t h e t r u e n a t u r e o f t h e i r r e l a t i o n s h i p
w i t h T U . U p o n a m e n d i n g t h e i r r e q u e s t t o r e f l e c t a n a f f i l i a t i o n
w i t h T U , a n d m e e t i n g o t h e r c o n d i t i o n s s e t f o r t h i n t h i s
p r o p o s e d d e c i s i o n , a m e n d m e n t o f c e r t i f i c a t i o n s h o u l d b e
granted.35
In su m m a ry, th e in com plete tra n sition r eflec ted b y t he y et to
be amended bylaws of the chapters and the uncertain status given
to th e ch ap ters by th eir exercise of th e o p t o u t provisions
s u g g e s t d e n ia l o f t h e p e t it io n s . D is m is s a l, w it h le a v e t o a m e n d
s h o u l d i s s u e , s u c h a m e n d m e n t d e m o n s t r a t i n g c h a p t e r
b y l a w s a m e n d m e n t t o c o n f o r m t o T U b y l a w s a s
c o n t e m p la t e d b y t h e p r o v is i o n s o f t h e T U b y l a w s a n d f u r t h e r
a m e n d m e n t r e q u e s t i n g c e r t i f i c a t i o n r e f l e c t i n g a f f i l i a t i o n w i t h
the TU UniServ Unit.
3 5 S u c h d e s i g n a t i o n w o u ld r e a d , f o r e x a m p le w i t h r e g a r d t o
ASTA, "ASTA/Teachers United UniServe Unit/CTA/NEA."

B e y o n d t h e s e c o n s i d e r a t i o n s , t h e p a r t i e s a r g u e a p p r o v a l o r
d is a p p r o v a l o f t h e p e t i t i o n s o n g r o u n d s e m p l o y e d b y t h e N L R B in
similar cases.
T h e N L R B a n d t h e f e d e r a l c o u r t s i n r e v i e w i n g d e c i s i o n s o f
t h e f o r m e r , h a v e a d d r e s s e d t h e q u e s t i o n o f m e r g e r s ,
a f f i l i a t i o n s a n d / o r c o n s o l i d a t i o n s i n t h e c o n t e x t o f a r e q u e s t
b y e m p l o y e e o r g a n i z a t i o n s f o r c h a n g e o f c e r t i f i c a t i o n 3 6 a n d
i n t h e c o n t e x t o f u n f a i r l a b o r c h a r g e s b r o u g h t u n d e r s e c t i o n
8 ( a ) ( 5 ) o f t h e N L R A a g a i n s t e m p lo y e r s f o r r e f u s a l t o
b a r g a i n . 3 7 T h e t e s t i s t h e s a m e ; i s t h e s u c c e s s o r e m p l o y e e
o r g a n i z a t i o n a c o n t i n u a t i o n o f t h e i n c u m b e n t o r g a n i z a t i o n o r i s
i t a s u b s t a n t i a l l y d i f f e r e n t e m p l o y e e o r g a n i z a t i o n .
Independent Drug Store Owners (1974) 211 NLRB 701 [86 LRRM
1 4 4 1 ] e n f o r c e d ( 9 t h C i r . 1 9 7 5 ) 5 2 8 F . 2 d 1 2 2 5 .
I n e i t h e r c a s e , t h e B o a r d ' s p r i m a r y c o n c e r n i s w e i g h i n g t h e
i n t e r e s t o f e m p l o y e e s t o f r e e l y s e l e c t t h e i r r e p r e s e n t a t i v e
u n d e r s e c t i o n 7 o f t h e N a t i o n a l L a b o r R e l a t i o n s A c t 3 8 a g a in s t
3 6 R egula tions of the N LR B p rovid e for em ployee
o r g a n i z a t i o n r e q u e s t t o a m e n d c e r t i f i c a t i o n . S e e N L R B R u l e s
and Regulations subpart C (commencing w ith section 102.60).
3 7 T h e c o n t e n t i o n o f t h e e m p l o y e r i n s u c h c a s e s i s t h a t
t h e r e i s n o d u t y t o b a r g a i n b e c a u s e t h e e m p l o y e e o r g a n i z a t i o n
d e m a n d i n g t o b a r g a in is n o t t h e e x c lu s i v e r e p r e s e n t a t i v e .
3 8 S e c t i o n 7 o f t h e N L R A ( 2 9 U . S . C . s e c t i o n 1 5 0 e t s e q .
provides:
E m p lo y e e s s h a l l h a v e t h e r ig h t t o
s e l f - o r g a n i z a t i o n , t o f o r m , j o i n o r a s s i s t

the broad policy of fostering stability of bargaining relationships
b r o u g h t a b o u t b y t h e c o n s u m m a t i o n a n d
enforcement of collective agreements reached through the processes
of collectiv e bargain in g. S ee Proctor and G am ble Manufactu ring
C o. v. N LR B (19 81 , 4 th C ir . ) No. 80 12 75 review in g 24 8 NLR B 11 9.
T h e s a m e p r i n c i p l e o f e m p l o y e e s ' c h o i c e o f t h e i r
r e p r e s e n t a t i v e i s e x p r e s s l y s e t f o r t h i n t h e E E R A . S e c t i o n
3 5 4 0 s t a t e s t h e l e g i s l a t i v e r e c o g n i t i o n o f ,
. . . t h e r i g h t o f p u b l i c s c h o o l e m p l o y e e s t o
j o i n o r g a n i z a t i o n s o f t h e i r o w n c h o i c e , t o
b e r e p r e s e n t e d b y s u c h o r g a n i z a t i o n s i n
their pro fessional and employm ent
r e l a t i o n s h i p s w i t h p u b l i c s c h o o l e m p l o y e r s ,
t o s e l e c t o n e e m p l o y e e o r g a n i z a t i o n a s t h e
e x c l u s i v e r e p r e s e n t a t i v e o f t h e e m p l o y e e s i n
a n a p p r o p r i a t e u n i t . . .
S e c t i o n 3 5 4 3 p r o v i d e s i n p a r t :
P u b l i c s c h o o l e m p l o y e e s s h a l l h a v e t h e r i g h t
t o f o r m , j o i n , a n d p a r t i c i p a t e i n t h e
a c t i v i t i e s o f e m p l o y e e o r g a n i z a t i o n s o f
t h e i r o w n c h o o s i n g f o r t h e p u r p o s e o f
r e p r e s e n t a t i o n o n a l l m a t t e r s o f
employer-employee relations.
l a b o r o r g a n i z a t i o n s , t o
bargain collectively through representatives
of their own choosing, and to engage in other
c o n c e r t e d a c t i v i t i e s f o r t h e p u r p o s e o f
c o l l e c t i v e b a r g a i n i n g o r o t h e r m u t u a l a i d o r
protection, and shall also have the right to refrain
from any or all of such activities except to the
e x t e n t t h a t s u c h r i g h t m a y b e a f f e c t e d b y a n
agreem en t requirin g m embership in a labor
o r g a n iz a t i o n a s a c o n d it io n o f e m p l o y m e n t a s
a u t h o r iz e d i n s e c t i o n 8 ( a ) ( 3 ) .

I n r e v i e w i n g a r e q u e s t f o r a m e n d e d c e r t i f i c a t i o n , t h e
N L R B 3 9 l o o k s t o t h e q u e s t i o n o f w h e t h e r t h e c e r t i f i e d u n i o n
d o e s n o t o p p o s e t h e a m e n d m e n t ; ( 2 ) t h e b a r g a i n i n g u n i t r e m a i n s
t h e s a m e ; a n d ( 3 ) t h e m e m b e r s o f t h e u n i o n a r e g i v e n a n
o p p o r t u n i t y t o c o n s i d e r a n d v o t e o n t h e q u e s t i o n o f a f f i l i a t i o n
t h r o u g h a d e m o c r a t i c p r o c e s s a n d i n a c c o r d a n c e w i t h t h e u n i o n 's
c o n s t it u t io n a n d b yla w s . A m e r ica n B rid g e C o . U .S . S t e e l C o r p . v .
N L R B ( 1 9 7 2 3 r d . C ir . ) 4 5 7 F .2 d 6 6 0 , 7 9 L R R M 2 8 7 7 .
W h i l e b o t h t h e t e s t f o r c h a n g e a n d t h e t e s t f o r d u e p r o c e s s
h a v e b e e n a c c e p te d a n d u s e d b y t h e c o u r ts in re v ie w in g N L R B
o r d e r s t h e c o u r t s h a v e o f t e n t i m e s d i f f e r e d w i t h t h e B o a r d o n
e i t h e r t h e c o n c l u s i o n o f w h e t h e r t h e r e w a s a s u b s t a n t i a l c h a n g e
o r w h e t h e r t h e r e w a s p r o c e d u r a l d u e p r o c e s s i n t h e e l e c t i o n
p r o c e d u r e s . S e e g e n e r a l l y , M o r r i s , t h e D e v e l o p i n g L a b o r L a w ,
C u m m u la t iv e S u p p le m e n t 1 9 7 1 -7 5 p p . 2 0 0 -2 0 1 , 1 9 7 6 S u p p
pp. 98-101, 1977 Supp. pp. 114-116, 1978 Supp. pp. 101-102.
T h e c o n t i n u i t y o f r e p r e s e n t a t i o n t e s t i s e s s e n t i a l l y a
f a c t u a l d e t e r m i n a t i o n o f w h e t h e r t h e n e w u n i o n i s a
c o n t i n u a t i o n o f t h e o l d u n i o n u n d e r a n e w n a m e o r a f f i l i a t i o n
39The P ublic Employment Relations Board will, w here
a p p r o p r i a t e , t a k e g u i d a n c e f r o m f e d e r a l l a b o r l a w p r e c e d e n t
w h e n a p p l i c a b l e t o p u b l i c s e c t o r l a b o r r e l a t i o n s i s s u e s .
S w e e tw a t e r U n io n H igh S ch o o l D istrict (1 1 /2 3 /7 6 ) E E R B D e cisio n
N o . 4 . , F i r e F i g h t e r s U n i o n , L o c a l 1 1 8 6 v . C i t y o f V a l l e j o
(1 9 7 4 ) 1 2 C a l. 3d 60 8 11 6 C a l. R eptr. 5 07 ; L os A n geles C ou n ty
C i v il S e r v i c e C o m m i s s i o n v . S u p e r i o r C o u r t (1 9 7 8 ) 2 3 C a l . 3 d 6 5
151 Cal. Rptr. 547.

o r i f i t i s a s u b s t a n t i a l l y d i f f e r e n t o r g a n i z a t i o n . N L R B v .
H arris-W oodson C o. (4 th C ir . 1 95 0) 17 9 F .2d 71 0 [25 L R R M 2 34 6] ;
A m oco Production Co. v. NLR B (5th Cir. 1980) [103 LRR M 2813].
I f t h e r e i s n o c o n t i n u i t y o f r e p r e s e n t a t i o n , m a n a g e m e n t n e e d
n o t b a r g a i n w i t h t h e n e w u n i o n u n t i l i t h a s e s t a b l i s h e d i t s
r i g h t s b y a n e l e c t i o n . 4 0 R e t a i l S t o r e E m p l o y e e s U n i o n , L o c a l
4 2 8 v . N L R B ( 9 t h C i r . 1 9 7 5 ) 5 2 8 F . 2 d 1 2 2 5 . I f t h e r e i s
c o n t i n u i t y o f r e p r e s e n t a t i o n , t h e r e i s n o r e q u i r e m e n t f o r a
B o a r d e l e c t i o n . N L R B v . C o m m e r c i a l L e t t e r , I n c . ( 3 r d C i r .
1972) 457 F. 2d 660, 663 [79 LRRM 2877].
T h e B o a r d a n d t h e c o u r t s w i l l l o o k t o v a r i o u s f a c t o r s t o
d e t e r m in e " w h e t h e r c h a n g e s h a v e o c c u r r e d in t h e r ig h t s a n d
o b l i g a t i o n s o f t h e u n i o n ' s l e a d e r s h i p a n d m e m b e r s h i p , a n d i n
r e l a t i o n s h i p s b e t w e e n t h e p u t a t i v e b a r g a i n i n g a g e n t , i t s
a f f i l i a t e , a n d t h e e m p l o y e r " A m o c o P r o d u c t i o n C o . v . N L R B ,
supra.
In Pearl Bookbinding Co. (1973) 200 NLRB 834 [84 LRRM 1640]
en forced (19 75 ) 5 17 F. 2 d 11 08 [89 LR RM 2 61 4] , the Fir st Circuit
4 0 A c o r r a l l a r y i s s u e r a i s e d b y t h e q u e s t i o n o f c o n t i n u i t y
o f r e p r e s e n t a t i o n i s t h e q u e s t i o n o f c o n t r a c t b a r r u l e s . A s
t h e d i s t r i c t s a s s e r t , t h e e x i s t e n c e o f c o n t r a c t s b e t w e e n s u c h
d i s t r i c t a n d t h e r e s p e c t i v e c h a p t e r s o t h e r w i s e b a r a n e l e c t i o n
s h o u l d t h e r e b e a q u e s t i o n o f r e p r e s e n t a t i o n . S e e P E R B
r e g u l a t i o n s s e c t i o n 3 3 2 3 7 ( b ) . H o w e v e r , i t h a s l o n g b e e n h e l d
b y t h e N L R B t h a t c e r t i f i c a t i o n a m e n d m e n t i s n o t a f f e c t e d b y a
c o n t r a c t b a r r u l e . H a m i l t o n T o o l C o . 1 9 0 N L R B 5 7 1 . E a s t B a y
Fa rm & Tool & Die Co. (1971) 190 N LRB 5 57, Ocean Syst ems, Inc.
(1976) 223 NLRB 857.

C o u r t e n f o r c e d t h e B o a r d o r d e r w h e r e t h e la t t e r h a d m a d e
f i n d i n g s t h a t t h e n e w l y a f f i l i a t e d l o c a l ' s " s t r u c t u r e .
a d m i n i s t r a t i o n , o f f i c e r s , a s s e t s , m e m b e r s h i p , a u t o n o m y , b y l a w s ,
s i z e , a n d t e r r i t o r i a l j u r i s d i c t i o n r e m a i n e d t h e s a m e ; a n d t h e
l o c a l c o n t i n u e d t o n e g o t i a t e c o n t r a c t s w i t h e m p l o y e r s o n b e h a l f
o f e m p l o y e e s i t r e p r e s e n t e d , a n d t o a d m i n i s t e r c o l l e c t i v e
b a r g a i n i n g a g r e e m e n t s t o w h i c h i t w a s a p a r t y . " S e e a l s o G o o d
Hope Industries a/b/a (1978) 230 NLRB 1132 [100 LRRM 1000 ] Fox
Memorial Hospital (1980) 247 NLRB No. 43 [103 LRRM 1153]
T h e T h i r d C i r c u i t C o u r t o f A p p e a l s h a s r e f u s e d e n f o r c e m e n t
o f N L R B o r d e r s i n a t l e a s t t h r e e s e p a r a t e c a s e s w h e r e t h e c o u r t
d is a g r e e d w i t h t h e N L R B d e t e r m i n a t i o n o f w h e t h e r t h e r e w a s
a "continuity" of representation
In A m e r ic a n B r id g e D iv is io n U .S . S t e e l C o rp . v . N L R B (1 9 7 2
3 r d C i r . ) 7 9 L R R M 2 8 7 7 t h e c o u r t d e t e r m i n e d t h a t w h e r e
b y v i r t u e o f t h e a f f i l i a t i o n , t h e l o c a l c o u l d n o t s t r i k e w i t h o u t
a p p r o v a l o f t h e i n t e r n a t i o n a l , g r i e v a n c e s w e r e f i l e d b y t h e
i n t e r n a t i o n a l , d u e s a r e h a n d l e d b y t h e i n t e r n a t i o n a l ,
b a r g a i n i n g w a s d o n e b y t h e i n t e r n a t i o n a l , a n d t h e i n t e r n a t i o n a l
w o u l d h a v e t h e p o w e r t o s t r i k e ; s a i d t h e c o u r t :
. . . t h e v e r y a c t o f a f f i l i a t i o n h e r e i s a
com m itm e n t t o ch a n g e in t h e fu lcru m o f u n io n
c o n t r o l a n d r e p r e s e n t a t i o n . T h e r e i s a
c l e a r d e p a r t u r e f r o m t h e f o r m e r s t a t u s o f a n
i n d e p e n d e n t u n i o n w h e r e l o c a l o f f i c e r s
n e g o t i a t e d t h e c o n t r a c t , s e t t l e d t h e t e r m s ,
han dled th e grievances and decided w hen and
when not to strike, and where em ployees in

t h e b a r g a i n i n g u n i t a l o n e f i x e d t h e i r d u e s ,
fin e s a n d a s s e s s m e n t s . I m p o r t a n t p o w e r s
t h u s h a v e b e e n t r a n s f e r r e d t o t h e o f f i c e r s
o f t h e I n t e r n a t i o n a l U n i o n w h o c a r r y
r e s p o n s ib ilit y fo r t h e o v e r a ll in t e r e s t s o f t h e
1 , 1 2 0 , 0 0 0 m e m b e r s o f t h e u n i o n a n d n o t
n e c e s s a r i l y t h e p r i m a r y i n t e r e s t s o f t h e 3 0 4
s a l a r i e d c l e r i c a l a n d t e c h n i c a l p e r s o n n e l a t
Ambridge.
T h e r e w a s , h e l d t h e C o u r t , a s i g n i f i c a n t c h a n g e i n t h e
i d e n t i t y o f t h e r e p r e s e n t a t i v e s a n d a d i m i n u t i o n i n t h e r i g h t s
of the bargaining unit's members.
I n N L R B v . B e r n a r d G l o e k e r N o r t h e a s t C o m p a n y ( 1 9 7 6
3 rd C ir.) 5 4 0 F . 2 d 1 97 [9 3 L R R M 20 43 ], aga in st a b ackgroun d o f
a n in t e rn a t io n a l's e ffo r t s t o o u s t t h e in c u m b e n t e x c lu s iv e
r e p r e s e n t a t i v e , t h e T h i r d C i r c u i t r e f u s e d t o e n f o r c e t h e N L R B ' s
o r d e r , a g a i n d i f f e r i n g w i t h t h e N L R B ' s c o n c l u s i o n s o n t h e t e s t
o f c o n t i n u i t y . R e l y i n g o n A m e r i c a n B r i d g e , s u p r a , t h e C o u r t
f o u n d t h e s u b s t a n t i a l c o n t r o l t h e i n t e r n a t i o n a l w o u l d h a v e o v e r
t h e l o c a l w i t h r e g a r d t o g r i e v a n c e s , s t r i k e d e t e r m i n a t i o n s a n d
f i n a n c i a l r e s o u r c e s a s w e l l a s s c o p e o f c o n c e r n s o f t h e
i n t e r n a t i o n a l v e r s u s t h a t o f t h e l o c a l , c o n s t i t u t e d a c h a n g e i n
t h e o r g a n i z a t i o n s u f f i c i e n t t o r a i s e a q u e s t i o n o f
representation.
I n S u n O il C o . o f P e n n s y l v a n ia v . N L R B ( 3 r d C i r . 1 9 7 8 ) 5 7 6
F .2 d 5 5 3 [9 8 L R R M 2 4 7 0 ], t h e s a m e C ir c u it C o u r t fo u n d t h a t t h e
i n t e r n a t i o n a l ' s c o n s t i t u t i o n a n d b y l a w s s u p e r s e d e d t h e l o c a l ' s
c o n t r o l o v e r s t r i k e s a n d s t r i k e b e n e f i t s , r e q u i r e d p e r c a p i t a
t a x p a y a b l e t o t h e I n t e r n a t i o n a l , a u t h o r i z a t i o n f o r t h e a u d i t

o f t h e l o c a l ' s f i n a n c i a l r e c o r d s b y t h e I n t e r n a t i o n a l a n d
m a n d a t o r y s u p p o r t b y t h e l o c a l o f a n y p o l i c y f o r m u l a t e d b y t h e
n a t i o n a l c o m m i t t e e w h i c h i s a p p r o v e d b y 7 5 p e r c e n t o f t h e
i n t e r n a t i o n a l ' s b a r g a i n i n g u n i t s . C o u p l e d w i t h t h e g r o w t h o f
i n t e r e s t a n d p o s i t i o n s o f n a t i o n a l s c o p e o f t h e s u c c e s s o r
u n i o n 's 2 0 0 ,0 0 0 m e m b e r s o v e r 3 0 m e m b e r s i n t h e lo c a l in d ic a t e d
t o t h e C o u r t t h a t t h e s u c c e s s o r w a s a d i s t i n c t a n d n e w
bargaining representative.
A s n o t e d b y t h e C a l i f o r n i a D i s t r i c t C o u r t o f A p p e a l i n
N orth S a n D iego C oun ty T ra n sit D evelop m en t B d . v. V ia l (1 9 8 1 )
1 1 7 C a l . A p p . 3 d 2 7 , n o t a l l f e d e r a l c o u r t s h a v e f o l l o w e d t h e
s t r i c t t e s t o f t h e T h i r d C i r c u i t . I n N o r t h S a n D i e g o , t h e
C o u r t n o t e d t h a t o t h e r c i r c u i t s p l a c e g r e a t e r e m p h a s i s o n
c o n t i n u i t y o f r e p r e s e n t a t i o n . T h e C o u r t , a d o p t i n g t h e t e s t o f
R e t a il S t o r e E m p lo y e e s U n io n , L o c a l 4 2 8 v . N L R B ( 9 t h C ir . 1 9 7 5 )
5 2 8 F . 2 d 1 2 2 5 , 1 2 2 8 [ 9 1 L R R M 2 0 0 1 ] , w e n t o n t o a d o p t
t h e r e a s o n i n g o f A m e r i c a n B r i d g e , s u p r a , s t a t i n g " i f t h e r e
i s c o n t i n u i t y o f r e p r e s e n t a t i o n , t h e r e i s l i t t l e l i k e l i h o o d t h e r e
w i l l b e a s c h i s m w i t h t h e o r i g i n a l u n i o n , a n d i n t e r n a l f a i r n e s s
w i l l b e a c h i e v e d b y t h e f e d e r a l p r a c t i c e . "
I n R e t a i l S t o r e E m p l o y e e s U n i o n , L o c a l 4 2 8 , s u p r a , t h e
C o u r t e m p h a s i z e d t h a t " w h e n a n i n d e p e n d e n t m e r g e s i n t o a
l o c a l o f a n i n t e r n a t i o n a l . . . r e t e n t i o n o f t h e s a m e o f f i c e r s [ i s ]
i m p o r t a n t . " s i n c e t h i s s u g g e s t s " c o n t i n u i t y w h e r e i t c o u n t s ,
i n a b a r g a i n i n g r e l a t i o n . . . . "

In S t V in cen t H osp ital v. N L R B (10 th C ir . 1 98 0) 10 4 L R R M
2289, the Court stated:
W h e n t h e s a m e p e r s o n s p a rt ic ip a te in
communications with the company with respect
t o g r i e v a n c e s , c o n t r a c t n e g o t i a t i o n s , a n d t h e
l i k e , c o n t i n u i t y i s l i k e l y t o b e p r e s e r v e d .
S i m i l a r l y i n C o n t i n e n t a l O i l C o . v . N L R B , 1 1 3
F . 2 d a t 4 7 7 , w h e r e w e h e l d t h a t t h e
c o n t in u it y o f o r g a n iz a t io n w a s p r e s e r v e d w h e n
a u n i o n s h i f t e d i t s a f f i l i a t i o n f r o m t h e
A m erica n Federation of Lab or to t he C om m ittee
f o r I n d u s t r i a l O r g a n i z a t i o n , w e s t r e s s e d t h a t
t h e o f f i c e r s o f t h e u n i o n r e m a i n e d t h e s a m e
a f t e r t h e t r a n s f e r o f a f f i l i a t i o n s .
( c it a t io n o m it t e d )
A t l e a s t t w o s t a t e s h a v e a d o p t e d t h e f o r e g o i n g t e s t f o r
p u b l i c e m p l o y e e s s u c c e s s o r u n i o n s . S e e L ' A n s e C r e u s e P u b l i c
S c h o o l. X V M E R C 6 0 7 (1 9 8 0 ) C a s e N o . 6 7 9 -B -4 7 ., T a y lo r C o u n t y
School Distr ic t (1 9 8 0 ) 6 F P E R 1 ill C a se N o. M S -0 0 5 , 8 0 M -0 8 3 .
I n L ' A n s e C r e u s e , s u p r a , a c a s e s i m i l a r t o t h e i n s t a n t
c a s e , a n i n d e p e n d e n t j o i n e d a n a m a l g a m a t i o n o f s e v e r a l o t h e r
lo ca l in d e p e n d e n t s . T h e M ic h ig a n C o m m is s io n a d o p t e d t h e A L J 's
d e t e r m i n a t i o n t h a t t h e e m p l o y e r ' s r e f u s a l t o b a r g a i n w i t h t h e
n e w e n t i t y w a s n o t a n u n f a i r p r a c t i c e b e c a u s e t h e e f f e c t e d
c h a n g e s h i f t e d t h e c o n t r o l f o r e s t a b l i s h i n g g o a l s , p o l i c y
m a k i n g c o n t r a c t n e g o t i a t i o n s a n d r a t i f i c a t i o n , a u t h o r i z i n g j o b
a c t i o n s o r w i t h h o l d i n g o f s e r v i c e s f r o m t h e i n d e p e n d e n t t o t h e
new entity.
A l l t h e d i s t r i c t s a t t a c k t h e p r o p o s e d a m e n d m e n t o n t h e
grounds of lack of continuity. From the foregoing evidence,
t h e m o s t s a l i e n t e v i d e n c e o f c h a n g e i s a s f o l l o w s :

A n e w g o v e r n a n c e s t r u c t u r e i s e s t a b l i s h e d , w h o s e o f f i c e r s
a n d g o v e r n i n g b o d y i s d i f f e r e n t t h a n t h e o f f i c e r s a n d p o l i c y
m a k i n g b o d y o f t h e r e s p e c t i v e c h a p t e r s . W h i l e t h e c h a p t e r
o f f i c e r s a n d p o l i c y m a k i n g b o d i e s r e m a i n i n e x i s t e n c e , 4 1 t h e y
w i l l n o t b e t h e o f f i c e r s a n d p o l i c y m a k i n g b o d y d e a l i n g w i t h
t h e r e s p e c t i v e e m p l o y e r d i s t r i c t s . S h o u l d t h e a m e n d m e n t
o f c e r t i f i c a t i o n b e g r a n t e d , t h e e m p l o y e r w o u l d b e r e q u i r e d
t o d e a l o n l y w i t h t h e T U b o a r d a n d o f f i c e r s . H o w e v e r ,
t h e e x e c u t i v e b o a r d i s m a d e u p o f t h e p r e s i d e n t s f r o m e a c h o f
t h e c h a p t e r s , t h e o f f i c e r s a r e e l e c t e d a t l a r g e , a n d t h e p o l i c y
m a k i n g b o d y o f t h e r e p r e s e n t a t i v e c o u n c i l i s m a d e u p o f t h e
b u i l d i n g r e p r e s e n t a t i v e s f r o m e a c h o f t h e c h a p t e r s . M o r e o v e r ,
t h e b a r g a i n i n g t e a m i s r e p r e s e n t a t i v e o f t h e c h a p t e r b y a
m a j o r i t y o f t h e m e m b e r s ( o f t h e f i v e v o t i n g t e a m m e m b e r s , t h r e e
a r e f r o m t h e c h a p t e r ) . T h e s e c h a n g e s d o n o t s u g g e s t a n
a l t e r a t i o n i n r e p r e s e n t a t i o n c o n d e m n e d e v e n i n t h e s t r i c t t e s t
a p p l i e d b y t h e f e d e r a l c o u r t i n t h e T h i r d D i s t r i c t .
T h e T U b o a r d n o w h a s t h e u n q u a l i f i e d a u t h o r i t y t o r e v i s e
t h e d u e s o w e d t o t h e m b y t h e i n d i v i d u a l c h a p t e r s . W h e r e a s
b e f o r e , t h e d u e s s e t b y t h e T U B o a r d w e r e s u b j e c t t o
r a t i f i c a t i o n b y t h e r e s p e c t i v e r e p r e s e n t a t i v e c o u n c i l s ,
f o llo w in g th e 1 9 8 1 a m e n d m e n t , th e T U b o a r d h a d t h e p o w e r to s e t
t h e d u e s w it h o u t a p p r o v a l o f t h e r e s p e c t iv e c h a p t e r s .
4 1 T h e b y la w s a s a m e n d e d , e x p r e s s ly in s u r e t h e ir c o n t in u e d
e x i s t e n c e t h a t T U i s n o t i n t e n d e d t o s u p p l a n t o r r e p l a c e
s im ila r m e m b e r a s s o cia tio n g o v e rn a n ce b o die s .

While it is true that TU gains complete autonomy to set
dues to be imposed upon the members of each chapter, that
differs little from the power of CTA or NEA to increase their
share of dues. 	Moreover, TU had the power to set dues from its
inception in 1978, subject only to the approval of the
representative councils of the chapters. The new TU
representative council is made up exactly as the chapter
representative councils, i.e. , composed primarily of the
building representatives. The chapters retain power to set
their own dues.
A third change is the composition of the bargaining teams
of each of the locals. Whereas prior to the amendment in 1981,
the bylaws of TU were silent on the matter, the 1981 TU bylaws
provide for the constitution, selection and establishing of
permanent members (two from the TU bargaining committee and
Harju) plus three selected by the local chapter. 	The existing
bylaws of each of the chapters provides for the constitution
and selection of members of the respective bargaining teams.
A fourth change is the required "recommendation" of the
bargaining team for withholding of services, approval of the
local executive board, and "concurrence" by the Bargaining
Committee. 42 The TU bylaws of 1978 did not address the
42There is also required the affirmative vote of 2/3 vote
of the members of the association seeking to withhold services.
54
42 There

question of withholding of services, but it is clear that the
associations were autonomous from each other and could, each on
their own, determine to withhold services without approval of
outside entities such as TU.
In addition, members of one association may be called upon
to withhold service, upon call of the TU executive board,
provided that 60 percent of the members of each vote43 and
60 percent of those voting in a majority of the affected
members association vote in favor of withholding services.
The districts complain of the power of the TU Bargaining
Committee to recommend approval or disapproval of a tentative
agreement prior to its submission to the member association for
ratification. It is clear from the change made by those
responsible for drafting the bylaws that the mandatory approval
as a condition precedent to ratification by the local chapter
was changed to a discretionary provision - that is the
recommendation of the Bargaining Committee is advisory only and
the local chapter is not bound by the position of the
Bargaining Committee. 	Thus, standing alone, the provision of
the revised bylaws do not reflect a substantive change.
Moreover, while the present bylaws provide authorization
for the TU Representative Council to adopt the initial TU
43Thus it requires less votes to get chapter approval to
withhold services on behalf of another chapter than for the
instant chapter.
55
43 Thus

Bargaining Proposal and to establish goals and minimum
settlement standards for TU contracts, and to develop
procedures for monitoring negotiations, and for assuring that
contracts reflect the adopted goals and settlement standards,
there is presently no provision of the amended bylaws that
require the chapters to accept either the initial proposals
adopted by the TU Representative Council, nor is there a means
provided for the enforcement of the goals or minimum settlement
standards.
The districts also complain about the establishment of the
Contract and Enforcement TU Contract Administration/Grievance
Committee in the new bylaws. As presently written, however,
that committee has no independent powers, but rather is charged
to "work with the member associations," not to supplant the
member associations standing with regard to contract
enforcement.
The districts complain that the revised TU Bylaws allow for
the possible domination by officers all from one member
association. While it might be possible for one member
association to have five votes on the Executive Board by
election, the president, vice president, secretary and
treasurer, plus the one representative from the chapter, that
still constitutes only half of the Executive Board. That is
not domination.
56

Thus, the overall change brought about by the transition
affected here relates to the local's selection of their own
total bargaining team, and the autonomy of calling their own
strike. 	These represent but a portion of the factors employed
by the NLRB and the courts to the test the continuity of
representation.
In all other respects, the chapters continue to elect their
own officers, process grievances, establish their own dues,
select a portion of the bargaining team members who constitute
a majority of the team and have ultimate authority over the
approval of contracts with their respective employers. Too,
the chapters will participate in the representation on the TU,
both the board (each chapter president is on the board by
virtue of office) and on the representative council (one from
each building within each district) . Given this retention of
continued chapter representation, it cannot be said that there
is a substantive change in representation.
The Elections
Numerous contentions are raised by the districts regarding
the conduct of the elections. Although other reasons compel
dismissing this petition, consideration of those contentions
should be given to provide TU some direction (as well as other
potential petitioners) as to what PERB might expect by way of
election procedures. 44
44Particularly here, where TU might file an amended
petition still relying on the election that took place on
February 25 and 26, 1981.
57

The NLRB's standard for review of affiliation/transfer
elections is set forth in Hamilton Tool Co. (1971) 190 NLRB 571
[77 LRRM 1257] .
While the election procedures . 	. may not
measure up to standards the Board demands
for its own elections, . 	: [they were not]
so lax or so substantially irregular as to
negate the validity of the election.
In Amoco, supra, (1978) 100 LRRM 1128, the Board explained
its rationale for this position.
Since we view an affiliation vote as
basically concerned with the organization
and structure of the union and not the
representational status of employees, it is
the sort of internal union matter into which
the Board does not ordinarily intrude. 	The
Board determines whether the vote was
conducted with adequate due process;
including, for example, proper notice to all
members, an orderly vote, and some
reasonable precautions to maintain the
secrecy of the ballot. However, we have
consistently held that "the strictures which
[ the Board] imposes on its own election
proceedings are not generally applicable in
proceedings to amend certification, or in
proceedings [like] this involving [union]
affiliation elections.
As with the question of continuity of representation the
federal courts have differed with the NLRB's determination of
propriety of elections. In NLRB v. A.W. Winchester Inc. (1978)
6th Cir. 100 LRRM 2971, the NLRB's efforts to enforce a section
8 (a) (5) violation for refusal to bargain after an affiliation
was denied on the Courts finding that NLRB's determination of
the validity of the election was in error. The court found
that employees were given no more than two days' notice of the
58
LRRM
~upra, 	LRRM
r

election, the election was conducted in an open room where
others could see and there was substantial employee unrest over
the affiliation decision.
In Bear Archery, (1977 6th Cir. ) 587 F.2d 912 [95 LRRM
3904], the Court, applying principles enunciated in American
Bridge, supra, concluded the Board's findings were in error and
held that there had not been an opportunity to collectively
discuss and consider the affiliation question, there was no
membership meeting, the voting followed immediately after a
presentation by the affiliating union and the balloting was not
secret, but rather done in an open room where votes were marked
at most eleven feet from observers.
In Fox Memorial Hospital (1980) 247 NLRB 11 [103 LRRM 1152]
the Board continued to test elections under a broad test.
Stated the Board:
The vote in favor of affiliation was
unanimous and conformed to the constitution
of the Union and registered the desires of
the members. 	Although the vote was not
secret, the procedure was not so
substantially irregular as to negate the
validity of the vote. 	The Board has
repeatedly held that the strictures which it
imposes upon its own election proceedings
are not generally applicable in proceedings
such as this involving employee affiliation
elections. What is important is giving
effect to the employees' desires as
evidenced by the unanimous vote.
Respondent's employees were kept informed
over a two-year period and did participate
to the extent that they wished or to the
extent that circumstances permitted. 	To
59

refuse to give effect to the desires of the
employees would amount to giving the
Employer a right to veto the employees'
choice of a bargaining representative. 	It
is significant that none of Respondent's
employees objected to the affiliation with
the S. E. I. U. As stated previously, an
affiliation vote is basically an internal
union matter and we adhere to the Board's
consistent policy of honoring the desires of
the employees pursuant to Section 7 of the
Act, which clearly grants them the "right to
bargain collectively through representatives
of their own choosing." The Board stated in
Newspaper, Inc., Publishers of the Austin
American and The Austin Statesman, 210 NLRB
8, 10, 86 LRRM 1123 (1974), enfd. 515 F. Id
334, 89 LRRM 2715 (5th Cir. 1975) 	An
Employer has no right of choice, either
affirmatively or negatively, as to who will
sit on the opposite side of the bargaining
table." There is no question here as to the
true desires of the employees and no
question that the affiliation
PERB's own elections will not be set aside unless it is
shown that there is serious irregularity in the conduct of the
election. 45 ERRB Rule 30076, Tamalpais Union High School
District (1976) 1 PERC 1 PERB Decision No. 1. The aim of
elections is to foster an environment in which a free election
can be conducted. San Ramon Valley Unified District (11/20/79)
PERB Decision No. 111, 3 PERC 10149.
45	45P	P ERB election procedures are set forth in title 8,
California Administrative Code section 32720 et seq. Included
therein are posting of notice of election in accordance with
times determined by the Regional Director (section 32724) .
Rule section 32738 provides that objections to Board conducted
elections will be entertained only on the grounds that the
conduct complained of is tantamount to an unfair practice or
there was serious irregularity in the conduct of the election.
60
..•.
ERB

In Jefferson Elementary School District (6/10/81) PERB
Decision No. 164, 5 PERC 12082, PERB noted that it would not in
every instance set aside an election on a charge of serious
irregularity. 	Said PERB: While the election misconduct itself
may be of a serious or weighty nature, it may not, under all
circumstances, evidence sufficient cause to disturb the results
of the election. Thus, as with objections based on conduct
tantamount to an unfair practice, it is necessary to examine
the alleged objectionable conduct and to determine if that
conduct had a probable impact on the employees' vote. As
recognized in San Ramon, supra, the objecting party is required
to satisfy its burden of establishing a prima facie case that
specific activities interfered with the election process to the
degree of certainty set forth above.
The Districts raise several contentions attacking the
validity of the election.
It's noted that the amendment of the TU bylaws was
accomplished by a vote of the members of the local chapters,
who were, at the time of the vote, not members of TU. The
initial bylaws adopted at the formation of TU established it as
an association of local associations and expressly provided for
amendment of its bylaws by approval "for ratification by vote
of approval of the policymaking body of all member
61

associations, to be effective either immediately or at such
later time as is specified. . . ."46
Harju testified that there was an approval of the new
bylaws by the representative councils in October and the TU
Board in January 1981 adopted the revised proposed amendments
flowing from teachers' input. 	This action was noted in the
January 27, 1982 edition of TU Today.
In the absence of contrary evidence (none was offered by
the Districts, nor was this point addressed in their post
hearing briefs) , it must be assumed that the rank and file vote
on the amendment was proper. Moreover, expression by the rank
and file teacher on the question of chapter alignment with TU
is more persuasive of the preferences of the organization
members than voting by the representative council of such
organization.
The Districts complain that there was inadequate or no
notice of the election given to teachers. While the evidence
shows limited instances of actual posting of notices at
building sites prior to the election, it is clear that such was
not the general practice. Rather notice was given by
publications issued either by the chapters or by TU. Here,
teachers were alerted to timelines in the materials distributed
to them regarding the project and given the specific dates of
46	46see 1978 TU Bylaws at page 26, footnote 24.
62
see

the election in the January 27 edition of the Teachers United
Today publication, nearly a month before the election. 	The
meetings between the building representatives in November and
December, and the TU board and TU Bargaining Council in late
January and early February further facilitated knowledge about
the forthcoming election. It is concluded that the teachers
were given adequate notice of the election.
The Districts complain that there was inadequate discussion
of the issue. 	There is ample evidence to controvert this
contention. 	The teachers were given materials outlining the
project in early November. They had meetings with the building
representatives. In December of 1980 and January of 1981
discussion continued and resulted in teacher concerns being
addressed by the TU. The board members and members of the
bargaining team visited each of the sites in late January and
early February to further afford teachers the opportunity to
discuss the issue. Finally, TU distributed pro and con
arguments addressing the issue. The foregoing shows ample
opportunity to discuss the issue.
The Districts complain that there was no secret balloting
provided. It is undisputed that there were no election booths
provided, but rather ballots were marked in the same room with
other voters or even with the building representatives. This
evidence alone, however, does not render the process infirm.
As was said in NLRB v. Commercial Letter Inc. 86 LRRM 2293, the
63

Board has yet to say that secret balloting is a required
process. 47 Here, while the balloting took place in the
presence of other teachers, the marking thereof was executed by
each teacher according to his or her insistence on privacy.
The ballots were folded before placement into the ballot
envelope and there is no suggestion that tampering thereafter
took place. Each of the building representatives maintained
reasonable security over the ballot envelope during the times
they possessed them. None of the building representatives who
testified nor did Harju, the executive director of TU, receive
any complaints about the manner in which the election was
conducted.
There is no evidence here that voters complained of the
balloting setting, or that the process impeded voters'
47 Compare American Bridge Division, U.S. Steel Corp. v.
NLRB, where the 6th Circuit applied the test of "secret ballot"
as equivalent to the board's union election process and to the
requirement of section 101 (a) (3) of the Labor Management
Reporting and Disclosure Act of 1959, 29 USC 411 (a) (3) ,
requiring a secret ballot to approve an increase in the dues
rate.
Said the Court, "Section 3 (b) of the Act, 29 USC section
402 (k) defines secret ballot as "the expressions . 	. of a
choice with respect to any election or vote taken upon any
matters, which is cast in such a manner that the person
expressing choice cannot be identified with the choice
expressed. The Department of Labor which is charged with
enforcing the same secret ballot provisions with regard to
internal union elections, has taken the position that the
definition in Section 3 (k) requires that there be no
possibility that any one would be able to determine how a
member's vote was cast.
64

e x p r e s s i o n o f t h e i r c h o i c e . 4 8 T h a t t h e r e h a v e b e e n o r a r e n o
c o m p la in t s a b o u t t h e e l e c t i o n b y p a r t i c i p a n t s h a s b e e n a f a c t o r b y
t h e N L R B . N L R B v . C o m m e r c ia l L e t t e r I n c. (3 rd C ir. 1 9 7 2 ) 4 5 7
F . 2 d 6 6 0 [ 8 6 L R R M 2 2 9 3 ] . A m o c o P r o d u c t i o n C o m p a n y ( 1 9 7 5 )
2 2 0 N L R B 8 6 1 [9 0 L R R M 1 4 3 4 ]; J . R a y M c D e r m o t t & C o . I n c .
v. NLRB (1978) 5th Cir. 98 LR RM 2191. The testimony of K inney
r e l a t i n g t o t h e n u m b e r i n g o f b a l l o t s i s c r e d i b l e t h a t h e d i d n o t
l o o k a t t h e v o t e m a r k i n g s o n t h e b a l l o t w h e n h e a s c e r t a i n e d t h e
n u m b e r . T h e n u m b e r i n g s y s t e m w a s e m p l o y e d o n l y t o e n s u r e
v e r a c i t y o f t h e b a l l o t . M o r e o v e r , t h e b a l l o t i n g p r o c e s s w a s
t h e s a m e a s h a d b e e n e m p l o y e d i n o t h e r c h a p t e r e l e c t i o n s ,
f o r o ffic e r a n d /o r c o n t r a ct r a t ifica tio n s .
T h e D i s t r i c t s c o m p l a i n t h a t t h e b a l l o t d i d n o t d e s c r i b e t h e
b a r g a in in g a g e n t c h a n g e a n d w a s t h e r e fo r e in a d e q u a te .
There was, however, sufficient notice to teachers that the bargaining
p r o je c t d id c o n t e m p la t e a m e n d m e n t o f t h e b y la w s a n d t h a t t h e
b a r g a i n i n g p r o j e c t i n c l u d e d a c h a n g e i n t h e b a r g a i n i n g a g e n t .
T h a t t h i s w a s u n d e r s t o o d i s r e f l e c t e d w i t h i n t h o s e
m o d i f i c a t i o n s m a d e b y T U a s a r e s u l t o f t e a c h e r s i n p u t i n
r e s p o n s e t o t h e i n i t i a l p r o m u l g a t i o n o f t h e p r o j e c t .
M o d i f i c a t i o n o f t h e p r o p o s e d b y l a w s , p r e s e r v i n g c h a p t e r s '
r a t i f ic a t io n a u t h o r i t y o v e r a g r e e m e n t s , t h a t e a c h c h a p t e r w o u l d
4 8 N o n e o f t h e c h a p t e r b y l a w s , r e q u i r i n g s e c r e t b a l l o t i n g ,
defines such procedure.

continue to exist and should be able to pull out of the project
indicate awareness of bargaining agent change. The wording of
the ballot did not alter the ramification of the amendment.
The Districts contend the TU election procedures did not
preclude electioneering by coworkers or building
representatives and that there were discussions by building
representatives.
In Jefferson, supra, the Board acknowledged that "last
minute electioneering is antithetical to the free and
untrammeled election choice 'absent a showing of serious
irregularity, ' the result of an election should not be lightly
disturbed or disregarded. " It noted:
The rule established by the National Labor
Relations Board (hereafter NLRB) in Milchem,
Inc. (1968) 170 NLRB 362 [67 LRRM 1395]
against such conversations, regardless of
the content, in order to avoid last minute
electioneering or pressure and unfair
advantage from prolonged conversations with
waiting voters. This rule was adopted in
the hopes of preserving the sanctity of the
final minutes before an employee casts his
or her vote. The NLRB also noted, however,
that the application of this rule "will be
informed by a sense of realism. " 	While the
content of the speaker's remarks will not be
of critical concern, any chance, isolated,
innocuous comment or inquiry "will not
necessarily void an election."
The evidence revealed in the present record is of
unsolicited inquiries by voters. Two or three voters asked one
building representative what the election was on and were told
that it was for the change in bylaws. Two or three voters

asked a building representative what the issue was and were
told that the Executive Board recommended a yes vote, but that
it was their decision to make. A couple of voters asked two
other building representatives how they felt, and were told
that they would have to decide for themselves. 	Such evidence
does not demonstrate electioneering within the meaning of
Milchem, supra, and constitutes, at most, brief responses to
unsolicited inquiries. 	The Districts have not shown that any
voters were affected by these responses, or that the conduct
interfered with the election process or had a probable impact
on the employee's vote.
The absence of rules promulgated by TU against
electioneering is not itself irregular conduct and, in the
absence of any showing of irregular conduct, such absence does
not establish an infirm election process.
The Districts complain that some building representative
posted results of the election prior to the end of the election
period. While it is true that three of the building
representatives conducted the election on Wednesday and posted
the results of that election at the end of that day and that
others held the election on both days (or on Thursday) , there
is no evidence that any persons at those buildings where the
election took place on Thursday received any information about
the results either from the sites of Wednesday elections or
from TU. Hence, no harm can be drawn from the foregoing facts.
67

The Districts complain that the election results cannot be
established because of the nature of the report offered by TU,
( the Committee's report to the TU board dated March 11, 1981)
and that the ballots were destroyed. The hearing officer
allowed introduction of the committee report only as reflection
of that report and not as substantial proof of the election
results. This ruling, however, does not mean that the position
regarding the election results is not acceptable. 	The TU board
adopted the report of the Committee. That action is all that
is necessary for TU to establish the outcome of the elections.
That TU destroyed the ballots has no bearing on the
veracity of the election results. They were destroyed, as
Harju credibly testified, because of the practice of destroying
documents during the summer . 49
The Districts complain that nonmembers were excluded from
the vote. It is undisputed that none of the chapters or TU
allowed non-local association members to vote in the 1981
elections. This fact should not invalidate the elections. 	AS
was stated in Amoco, supra, the question is one of an internal
union matter, and the question is one properly passed upon by
members only. 	In Amoco, the Board stated:
The issue is whether an employer is relieved
of its obligation to bargain with the union
certified to represent its employees
49The bylaws of two of the associations provide for
destruction of ballots after 90 days following an election.
68

following that union's affiliation with
another labor organization, if voting on the
question of affiliation is limited to union
members. The fact that union merger or
affiliation votes are basically internal,
organizational matters, coupled with the
employees' opportunity to exercise their
right to choose whether to participate or to
refrain from engaging in concerted activity,
persuades us to find that union affiliation
votes limited to union members are valid.
An affiliation is the alignment or
association of a union with a national or
parent organization. An affiliation does
not create a new organization, nor does it
result in the dissolution of an already
existing organization. The organizations
participating in the affiliation determine
whether any administrative or organizational
changes are necessary in the affiliating
organization. The reasons for affiliation
are diverse, but may include a smaller
union's desire for bargaining expertise or
financial support from a larger
organization, or a lack of leadership within
its own ranks. A larger organization should
welcome the addition of assets and members.
The motivation may be simply a belief in
"strength in numbers."
But whatever factors motivate affiliation,
affiliation does not directly involve the
employment relation. The status of wages,
working conditions, benefits, and grievance
procedures is unaffected by the affiliation
vote; the collective-bargaining agreement
between the union and the employer remains
effective until the stated expiration date.
Having no direct effect on the employment
relationship, affiliation vote procedures,
including the voting status of nonmembers,
are internal union matters. Nonmembers may
elect to retain their nonmember, nonvoting,
nonparticipatory status, or, if they are
sufficiently interested or concerned about
an upcoming affiliation vote, they may
become members and participate under normal
69

union rules. That the option to participate
in an affiliation election is not accorded
to nonmembers differs little from their
exclusion from other internal matters,
including strike votes and contract
ratification votes, and the selection of
officers, stewards, and negotiators. But we
have not found exclusion of nonmembers in
those instances unlawful or incapacitating.
The single case holding membership-only elections infirm,
Jasper Seating Co. , Inc. (1977) 231 NLRB 1025 cited by the
Districts, stands alone amidst contrary precedent and was
overruled in by the Board in Amoco Production Co. (1979) 239
NLRB 1195. No discernable rationale suggest a different
application of the Amoco rule to the EERA. Given the internal
nature of an affiliation vote, PERB's sensitivity to
noninvolvement in such matters, as discussed in Kimmet
(10/19/79) PERB Decision No. 106, it is appropriate to employ
the Amoco test. There were bi-annual drives to secure new
members and the dues authorization form was the only condition
precedent to membership and the right to vote. 	The se
circumstances further afforded all teachers the opportunity to
join the union and to express their views via the ballot.
The Districts complain of the alleged "mispresentation" as
described by the witness from Magnolia where Harju and the
chapter president described the "opting out" process.
This argument falls in the analysis of the witness'
testimony. She testified as to her impression of what they had
said. She acknowledged that her understanding was that TU
70

would remain the exclusive representative and that Harju would
still be at the table is consistent with Harju's testimony and
the workings of the new bylaws "opt out" procedures. This
evidence simply does not meet the magnitude of
mischaracterization that would justify setting aside the
election results.
The Districts complain that TU was in favor of the
project. The evidence shows clearly the board majority was in
favor, but it did take steps to prevent untoward publicity on
that fact by giving signatory to members of TU who supported
the project rather than to the whole board. As was stated in
J. Ray McDermott & Co. v. NLRB (1978 5th Cir. ) 98 LRRM 2194 the
fact that the leaders support the affiliation transfer does not
invalidate the results of the meeting they chaired. Said the
Court:
"The task of union leaders is to lead; they
cannot be faulted for sponsorship of a
particular program so long as their
leadership is fair and protective of the
union member rights. "
Another argument advanced by the employers is the increase
in the number of employees represented. A single employer in
the present case, for example in Savanna, deals with an
association with 68 members representing a unit consisting of
80 employees. Under TU, however, the combined unit represented
is 2017 unit members and the association (TU) has 1525
members. 	There is no effort on the part of TU however, to
71

change the unit in any district. As noted, there would be five
different contracts negotiated by TU, one for each district.
Moreover, while the Third District Court may be impressed with
the increase in size of employees represented by the successor
union, see American Bridge, supra and Bernard Cloecker, supra,
the NLRB is not influenced by such circumstances. 	See
Montgomery Ward (1971) 188 NLRB 551.
The Anaheim Union High School District argues that these
petitions seek to improperly merge the five presently certified
district bargaining units into one regional bargaining unit
without the consent of the affected districts, relying on Douds
v. International Longshoremen's Association, 241 F. 2d 278 (2d
Cir. 1957, 39 LRRM 2388. They assert the general rule that
neither a union nor an employer may expand the certified
bargaining unit without the consent of the other party. While
Douds does express that rule, its application thereof was to
facts different than the instant case. There, the union, upon
negotiations for a successor contract, was insisting that
single contract cover employees in different ports not
previously covered, but whose inclusion in the same unit had
been determined appropriate by the NLRB in representation
proceedings. In the present case, TU does not attempt to
negotiate a single contract with all five districts but will
continue to negotiate separate contracts with each of the five
72

districts, each contract addressing only the certificated
employees of each district.
Moreover, certification of the five locals pursuant to
their request will not result in a single unit represented by
TU. Rather, should each petition be granted, five separate
certifications would issue, one representing TU as the
exclusive agent in relation to a single employer school
district. The EERA simply does not envision multi-employer
bargaining units. 	Section 3540.1(e) defines the exclusive
representative as "the employee organization recognized or
certified as the exclusive negotiating representative of
certificated or classified employees in an appropriate unit of
a public school employer. " Section 3540.1(j) defines "public
School employer" or "employer" as the "governing board of a
school district, a school district, a county board of
education, or a county superintendent of schools." 	The se
definitional constraints as well as the underlying theme of
single employer as expressed in those provisions relating to
rights of employes (section 3543) employee organizations
(section 3543.1) , impasse procedures (section 3545 et seq) , and
arbitration (section 3548) permeating the EERA clearly embrace
the notation of a single employer-employee organization
relationship insofar as certification is concerned.
Recognizing the rights of the employee organizations to
engage in coordinated bargaining, including the discretion to
73

determine who sits at the bargaining table on behalf of the
union, (see General Electric Co. v. NLRB (2d Cir. 1969) 412
F. 2d 512), the District insists that those powers enjoyed by
the TU go beyond coordinated bargaining. In support of this
argument, the District relies on the TU Representative
Council's authority to establish common bargaining goals and
priorities, set minimum standards and determine ratification
procedures for all districts, coupled with the bargaining
committee review and approval of contracts before submission to
the chapters. The power of the Representative council is,
however, related to the source of proposals and expressly
includes recognition of the input of proposals by the
chapters. 50
Minimum standards established by the council are not
binding upon the chapters but advisory only. The provisions on
ratification procedures, contrary to the Districts' contention,
relate to ratification by the TU Bargaining Committee (still
advisory only) not to ratification procedures of the chapters.
Finally, the power of the TU Bargaining Committee to approve or
disapprove a contract is only the power to recommend. The
chapters are free to disregard the position of the TU
Bargaining Committee.
50 Indeed the bylaw provisons provide that the initial
proposal drafted by the TU "shall include such proposals as may
be requested/required by the member associations. 	(section
8.3 (c) ) .
74
determine 	who 	sits 	at 	the 	bargaining 	table 	on 	behalf 	of 	the
union, 	(see 	General 	Electric 	co. 	v. 	NLRB 	(2d 	Cir. 	1969) 	412
F.2d 	512), 	the 	District 	insists 	that 	those 	powers 	enjoyed 	by
the 	TU 	go 	beyond 	coordinated 	bargaining. 	In 	support 	of 	this
argument, 	the 	District 	relies 	on 	the 	TU 	Representative
Council's 	authority 	to 	establish 	common 	bargaining 	goals 	and
priorities, 	set 	minimum 	standards 	and 	determine 	ratification
procedures 	for 	all 	districts, 	coupled 	with 	the 	bargaining
committee 	review 	and 	approval 	of 	contracts 	before 	submission 	to
the 	chapters. 	The 	power 	of 	the 	Representative 	council 	is,
however, 	related 	to 	the 	source 	of 	proposals 	and 	expressly
includes 	recognition 	of 	the 	input of 	proposals 	by 	the
chapters.SO
Minimum 	standards 	established 	by 	the 	council 	are 	not
binding 	upon 	the 	chapters 	but 	advisory only. 	The 	provisions 	on
ratification 	procedures, 	contrary 	to 	the 	Districts' 	contention,
relate 	to 	ratification 	by 	the 	TU Bargaining 	Committee 	(still
advisory 	only) 	not 	to 	ratification 	procedures 	of 	the 	chapters.
Finally, 	the 	power 	of 	the 	TU Bargaining 	Committee 	to 	approve 	or
disapprove 	a 	contract 	is 	only 	the 	power 	to 	recommend. 	The
chapters 	are 	free 	to 	disregard 	the 	position 	of 	the 	TU
Bargaining 	Committee.
501ndeed 	the 	bylaw provisons 	provide 	that 	the 	initial
proposal drafted 	by 	the 	TU 	"shall 	include 	such 	proposals 	as 	may
be 	requested/required 	by 	the 	member 	associations. 	(section
8.3(c)).
74

The District further argues that the powers of TU to call a
general strike and the required approval of the TU bargaining
committee and bargaining team for a chapter to engage in strike
activity surpasses coordinated bargaining. The TU executive
board may call for the withholding of services in more than one
member association, but such action requires the recommendation
of the Collective Bargaining Committee, concurrence of the
Representative Council and approval by 60 percent of the
members of the affected chapter as well as 60 percent of those
voting in a majority of the affected member associations. The
chapters are represented on the executive board (each chapter
president is a member) and officers are elected at large, and
the representative council is made up of one person from each
building site plus one for each additional 25 members or more
at the site. The determination to call a TU wide strike is not
without each chapter having representation in the decision
making process and in the end still requires approval of 60
percent of the chapter members. Thus, each chapter determines
whether to participate in the withholding of services.
Moreover, the employer does not lose its right to preclude such
action either by contract prohibition (two of the existing
contracts contain no work stop provisions) nor its right to
pursue unfair practice charges where such activity is unrelated
to their district. That each chapter is required to have the
approval of the collective bargaining committee to undertake
75
The 	District 	further 	argues 	that 	the 	powers 	of 	TU 	to 	call 	a
general 	strike 	and 	the 	required 	approval of 	the 	TU 	bargaining
committee 	and 	bargaining 	team 	for 	a 	chapter 	to 	engage 	in 	strike
activity 	surpasses 	coordinated 	bargaining. 	The 	TU 	executive
board 	may 	call 	for 	the 	withholding of 	services 	in more 	than 	one
member 	association, 	but 	such 	action 	requires 	the 	recommendation
of 	the 	Collective 	Bargaining 	Committee, 	concurrence 	of 	the
Representative 	Council 	and 	approval 	by 	60 	percent 	of 	the
members 	of 	the 	affected 	chapter 	as 	well 	as 	60 	percent 	of 	those
voting 	in 	a 	majority 	of 	the 	affected 	member 	associa~ions. 	The
chapters 	are 	represented 	on 	the 	executive 	board 	(each 	chapter
president 	is 	a 	member) 	and 	officers 	are 	elected 	at 	large, 	and
the 	representative 	council 	is 	made 	up 	of 	one 	person 	from 	each
building 	site 	plus 	one 	for 	each 	additional 	25 	members or 	more
at 	the 	site. 	The 	determination 	to 	call 	a 	TU wide 	strike 	is 	not
without 	each 	chapter 	having 	representation 	in 	the 	decision
making 	process 	and 	in 	the 	end 	still 	requires 	approval 	of 	60
percent 	of 	the 	chapter 	members. 	Thus, 	each 	chapter 	determines
whether 	to 	participate 	in 	the 	withholding 	of 	services.
Moreover, 	the 	employer 	does 	not 	lose 	its 	right 	to 	preclude 	such
action 	either 	by contract prohibition 	(two of 	the 	existing
contracts 	contain 	no 	work 	stop 	provisions) 	nor 	its 	right 	to
pursue 	unfair 	practice 	charges 	where 	such 	activity 	is 	unrelated
to 	their 	district. 	That 	each 	chapter 	is 	required 	to 	have 	the
approval of 	the 	collective 	bargaining 	committee 	to 	undertake
75

withholding of services is no more of an internal decision to
reach that decision than a chapter determination to require
100 percent vote for such action. The District would have no
more say in the latter than it does in the former.
In sum, the chapters remain intact, in governance and
selection of officers. Their representatives on the
negotiating team constitute a majority of the team. 	Their
representative policy making body and the members retain final
approval of proposed contracts. Their representatives will
continue to process grievances. 	Whether the employer districts
wish to form together for the purpose of negotiating with TU is
left up to them, however the existing circumstances do not
require them to do so. They will be negotiating with TU, but
at the table only on issues demanded by the chapter, and
through representatives of the majority of whom are selected by
the chapter.
In summary, the Districts' objections to the amended
certification should be rejected. With regard to the
continuity of representation issue it has been found that the
only substantive change has been the power to name the entire
bargaining team member constitution, and the power to
independently call strikes. Even under the strict view of the
Third District courts, this change does not represent an
alteration of the fulcrum of control. With regard to the
conduct of the elections, employees had ample notice of the
76
withholding 	of 	services 	is 	no 	more 	of 	an 	internal 	decision 	to
reach 	that 	decision 	than 	a 	chapter 	determination 	to 	require
100 	percent 	vote 	for 	such 	action. 	The 	District 	would 	have 	no
more 	say 	in 	the 	latter 	than 	it 	does 	in 	the 	former.
In 	sum, 	the 	chapters 	remain 	intact, 	in 	governance 	and
selection 	of 	officers. 	Their 	representatives 	on 	the
negotiating 	team 	constitute 	a 	majority 	of 	the 	team. 	Their
representative 	policy 	making 	body 	and 	the 	members 	retain 	final
approval 	of 	proposed 	contracts. 	Their 	representatives 	will
continue 	to 	process 	grievances. 	Whether 	the 	employer 	districts
wish 	to 	form 	together 	for 	the 	purpose 	of 	negotiating 	with 	TU 	is
left 	up 	to 	them, 	however 	the 	existing 	circumstances 	do 	not
require 	them 	to 	do 	so. 	They 	will 	be 	negotiating 	with 	TU, 	but
at 	the 	table 	only 	on 	issues 	demanded 	by 	the 	chapter, 	and
through 	representatives 	of 	the 	majority 	of 	whom 	are 	selected 	by
the 	chapter.
In 	summary, 	the 	Districts' 	objections 	to 	the 	amended
certification 	should 	be 	rejected. 	With 	regard 	to 	the
continuity 	of 	representation 	issue 	it 	has 	been 	found 	that 	the
only 	substantive 	change 	has 	been 	the 	power 	to 	name 	the 	entire
bargaining 	team member 	constitution, 	and 	the 	power 	to
independently 	call 	strikes. 	Even 	under 	the 	strict 	view 	of 	the
Third 	District 	courts, 	this 	change 	does 	not 	represent 	an
alteration 	of 	the 	fulcrum 	of 	control. 	With 	regard 	to 	the
conduct 	of 	the 	elections, 	employees 	had 	ample 	notice 	of 	the
76

proposed bargaining agent change, ample discussion and
opportunity for change of the proposal (and effected such
change) and expressed their views on the matter in a setting
that did not give rise to serious irregularity. While this is
not to say that the conduct of the election would serve as a
model of future amendment of certification type elections, it
cannot be said to fall so short of a process of employees
expressing their views on the issue as to require PERB to
ignore that view.
In sum, under the test of American Bridge Co, supra, the
certified union does not oppose the amendment, indeed the
president of each has filed the petition for the amendment; it
has been found that the bargaining unit remains the same and
there is continuity of representation; and that the chapters
have (although local bylaws have yet to be amended) conducted
an election on the issue giving unit members an opportunity to
consider and vote on the question through a democratic process.
Disposition	Disposition
It has been found that petitioners' request for amended
certification is premature in that bylaws of the Chapters have
yet to be amended to conform to the provisions of the TU bylaws
as contemplated by the TU bylaws. It has been found that
petitioners have affected an affiliation by the proceedings
upon which their request is made. 	The petitions are thus
improperly filed within the meaning of PERB regulation section
77
proposed 	bargaining 	agent 	change, 	ample 	discussion 	and
opportunity 	for 	change 	of 	the 	proposal 	(and 	effected 	such
change) 	and 	expressed 	their 	views 	on 	the 	matter 	in 	a 	setting
that 	did 	not 	give 	rise 	to 	serious 	irregularity. 	While 	this 	is
not 	to 	say 	that 	the 	conduct 	of 	the 	election 	would 	serve 	as 	a
model 	of 	future 	amendment of 	certification 	type 	elections, 	it
cannot 	be 	said 	to 	fall 	so 	short 	of 	a 	process 	of 	employees
expressing 	their 	views 	on 	the 	issue 	as 	to 	require 	PERB 	to
ignore 	that 	view.
In 	sum, 	under 	the 	test 	of American 	Bridge Co, 	supra, 	the
certified 	union 	does 	not 	oppose 	the 	amendment, 	indeed 	the
president of 	each 	has 	filed 	the 	petition 	for 	the 	amendment; 	it
has 	been 	found 	that 	the 	bargaining 	unit 	remains 	the 	same 	and
there 	is 	continuity 	of 	representation; 	and 	that 	the 	chapters
have 	(although 	local 	bylaws 	have 	yet 	to 	be 	amended) 	conducted
an 	election on 	the 	issue 	giving 	unit 	members 	an 	opportunity 	to
consider 	and 	vote 	on 	the 	question 	through 	a 	democratic 	process.
It 	has 	been 	found 	that petitioners' 	request 	for 	amended
certification 	is 	premature 	in 	that 	bylaws 	of 	the 	Chapters 	have
yet 	to 	be 	amended 	to 	conform 	to 	the 	provisions 	of 	the 	TU 	bylaws
as 	contemplated 	by 	the 	TU 	bylaws. 	It 	has 	been 	found 	that
petitioners 	have 	affected 	an 	affiliation 	by 	the 	proceedings
upon 	which 	their 	request 	is 	made. 	The 	petitions 	are 	thus
improperly 	filed 	within 	the 	meaning 	of 	PERB 	regulation 	section
77

32763 (b) . It is appropriate to dismiss the petitions with
leave to amend said petitions to provide petitioners an
opportunity to complete elections for chapter by law
amendments. To afford petitioners an opportunity to complete
the chapter bylaws amendment it is appropriate to extend to
them a period not to exceed six months for such transaction.
Accordingly, petitioners shall have six (6) months from the
date this proposed decision becomes final to amend their
request for amended certification. Petitioner should further
amend their request to reflect an affiliation. Such amendment
should request that each chapter cetification state chapter/TU
UniServ Unit/CTA/NEA.
PROPOSED ORDER
The petitions for transfer of jurisdiction filed by the
Anaheim Elementary Education Association, CTA/NEA, Centralia
Education Association, CTA/NEA, Magnolia Educator's
Association, CTA/NEA, Savanna District Teachers Association,
CTA/NEA, and the Anaheim Secondary Teachers Association,
CTA/NEA, are hereby DISMISSED with leave to amend. Each of the
petitioners shall have six (6) months from the date this
proposed decision becomes final to file an amendment to their
respective petitions for transfer of jurisdiction which
amendment shall include the following:
1. Demonstration that such petitioner has, in accordance
with the provisions of its chapter bylaws for such amendment,
78
32763(b). 	It 	is 	appropriate 	to 	dismiss 	the 	petitions 	with
leave 	to 	amend 	said 	petitions 	to 	provide 	petitioners 	an
opportunity 	to 	complete 	elections 	for 	chapter 	bylaw
amendments. 	To 	afford 	petitioners 	an 	opportunity 	to 	complete
the 	chapter 	bylaws 	amendment 	it 	is 	appropriate 	to 	extend 	to
them a 	period 	not 	to 	exceed 	six 	months 	for 	such 	transaction.
Accordingly, 	petitioners 	shall 	have 	six 	(6) 	months 	from 	the
date 	this 	proposed 	decision 	becomes 	final 	to 	amend 	their
request 	for 	amended 	certification. 	Petitioner 	should 	further
amend 	their 	request 	to 	reflect 	an 	affiliation. 	Such 	amendment
should 	request 	that 	each 	chapter 	cetification 	state 	chapter/TU
UniServ 	Unit/CTA/NEA.
PROPOSED ORDER
The 	petitions 	for 	transfer 	of 	jurisdiction 	filed 	by 	the
Anaheim Elementary Education 	Association, 	CTA/NEA, 	Centralia
Education Association, 	CTA/NEA, 	Magnolia 	Educator's
Association, 	CTA/NEA, 	Savanna 	District 	Teachers 	Association,
CTA/NEA, 	and 	the 	Anaheim 	Secondary 	Teachers 	Association,
CTA/NEA, 	are 	hereby 	DISMISSED with 	leave 	to 	amend. 	Each 	of 	the
petitioners 	shall 	have 	six 	(6) 	months 	from 	the 	date 	this
proposed 	decision 	becomes 	final 	to 	file 	an 	amendment 	to 	their
respective 	petitions 	for 	transfer 	of 	jurisdiction which
amendment 	shall 	include 	the 	following:
1. 	Demonstration 	that 	such 	petitioner 	has, 	in 	accordance
with 	the 	provisions 	of 	its 	chapter 	bylaws 	for 	such 	amendment,
78

amended its bylaws to bring them into conformance with the
by laws of Teachers United UniServ Unit, and
2 .	2. 	The request for amendment of certification is to show
an affiliation of the employee organization with Teachers
United UniServ Unit as opposed to transfer of jurisdiction to
Teachers United UniServ Unit.
Pursuant to California Administrative Code, title 8,
part III, sections 32763 (d) , 32350(a) and 32305, this proposed
decision shall become final on June 14, 1982, unless a party
files a timely statement of exceptions. See California
Administrative Code, title 8, part III, section 32300. Any
statement of exceptions and supporting brief must be actually
received by the executive assistant to the Board itself at the
headquarters office in Sacramento before the close of business
(5:00 p.m. ) on June 14, 1982, in order to be timely filed. See
California Administrative Code, title 8, part III,
section 32135. Any statement of exceptions and supporting
brief must be served concurrently with its filing upon each
party to this proceeding. Proof of service shall be filed with
the PERB itself. See California Administrative Code, title 8,
part III, sections 32300 and 32305, as amended.
DATED: May 24, 1982 	F.A. Kreiling, Regional Director	F.A.
By
Cary M. Gallery
Administrative Law Judge
_
79
amended 	its 	bylaws 	to 	bring 	them 	into 	conformance 	with 	the
bylaws 	of 	Teachers 	United 	UniServ 	Unit, 	and
The 	request 	for 	amendment 	of 	certification 	is 	to 	show
an 	affiliation 	of 	the 	employee 	organization 	with 	Teachers
United 	UniServ 	Unit 	as 	opposed 	to 	transfer 	of 	jurisdiction 	to
Teachers 	United 	UniServ 	Unit.
Pursuant 	to 	California 	Administrative 	Code, 	title 	8,
part 	III, 	sections 	32763{d), 	32350{a) 	and 	32305, 	this 	proposed
decision 	shall 	become 	final 	on 	June 	14, 	1982, 	unless 	a 	party
files 	a 	timely 	statement 	of 	exceptions. 	See 	California
Administrative 	Code, 	title 	8, 	part 	III, 	section 	32300. 	Any
statement 	of 	exceptions 	and 	supporting 	brief 	must 	be 	actually
received 	by 	the 	executive 	assistant 	to 	the 	Board 	itself 	at 	the
headquarters 	office 	in 	Sacramento 	before 	the 	close 	of 	business
(5:00 	p.m.) 	on 	June 	14, 	1982, 	in 	order 	to 	be 	timely 	filed. 	See
California 	Administrative 	Code, 	title 	8, 	part 	III,
section 	32135. 	Any 	statement 	of 	exceptions 	and 	supporting
brief 	must 	be 	served 	concurrently 	with 	its 	filing 	upon 	each
party 	to 	this 	proceeding. 	Proof 	of 	service 	shall 	be 	filed 	with
the 	PERB 	itself. 	See 	California 	Administrative 	Code, 	title 	8,
part 	III, 	sectionq 	32300 	and 	32305, 	as 	amended.
DATED: 	May 	24, 	1982 	Kreiling, 	Regional 	Director
79