Opinion ID: 883130
Heading Depth: 1
Heading Rank: 1

Heading: Do the city of Livingston's termination hearing procedures supersede statutory termination procedures for firefighters established by the state legislature?

Text: For clarity, we note at the outset that although Livingston has adopted the commission-manager form of government, Livingston's city commission refers to itself as the Livingston city council. Livingston's policy and procedures manual, which the Livingston city council adopted by resolution number 2175 on June 18, 1990, states that the city manager shall hold a termination hearing prior to any discharge, and that only the city manager may discharge an employee. This procedure conflicts with a Montana statute regarding the discharge of firefighters which provides: Suspension procedure. (1) In all cases of suspension the person suspended must be furnished with a copy of the charge against him, in writing, setting forth reasons for the suspension. Such charges must be presented to the next meeting of the council or commission and a hearing had thereon, when the suspended member of the fire department may appear in person or by counsel and make his defense to said charges. (2) Should the charges not be presented to the next meeting of the council or commission after the suspension or should the charges be found not proven by the council or commission, the suspended person shall be reinstated and be entitled to his usual compensation for the time so suspended. (3) If such charges are found proven by the council or commission, the council or commission, by a vote of a majority of the whole council or commission, may impose such penalty as it shall determine the offense warrants, either in the continuation of the suspension for a limited time or in the removal of the suspended person from the fire department. Section 7-33-4124, MCA, (emphasis added). We examined a city's attempt to supersede Montana statutes dealing with municipal fire departments in Billings Firefighters Local 521 v. City of Billings (1985), 214 Mont. 481, 694 P.2d 1335. In that case, the city of Billings passed an ordinance which purported to supersede almost all of Title 7, Chapter 33, Part 41, MCA, regarding municipal fire departments. Billings Firefighters, 694 P.2d at 1337. We examined § 7-1-114(f), MCA, which states that local government powers are limited by any law requiring local government to carry out a function or provide any service. Billings Firefighters, 694 P.2d at 1339-40. We held that the Billings ordinance was deficient because the ordinance did not require the city to provide an essential service; specifically, the ordinance did not provide for the mandatory creation of a municipal fire department which is required of every city in § 7-33-4101, MCA. Billings Firefighters, 694 P.2d at 1339-40. In reaching our conclusion that the Billings ordinance was void, we expressly noted that we were not ruling upon other possible conflicts between the ordinance, other sections of Title 7, Chapter 33, Part 41, MCA, and § 7-1-114(f), MCA. Billings Firefighters, 694 P.2d at 1340. We now have reason to make such a ruling regarding Livingston's policy and procedures manual. In the present case, Livingston attempted to supersede the statutory duty of the city council to hold a hearing before it decides to terminate a suspended firefighter. We hold that this violates § 7-1-114, MCA, which states in relevant part: (1) A local government with self-government powers is subject to the following provisions: ... (f) Any law directing or requiring a local government or any officer or employee of a local government to carry out any function or provide any service.... (2) These provisions are a prohibition on the self-government unit acting other than as provided. [Emphasis added.] Section 7-33-4124, MCA, clearly requires the Livingston city council to hold a hearing at its next meeting following the suspension of a municipal firefighter. The council failed to perform this function. Livingston's policy and procedures manual essentially has the city manager perform the council's function. As applied to firefighters, this policy violates the limitations placed on local governments' powers by § 7-1-114(f), MCA. Thus, as the policy is applied to city firefighters, it is void. Livingston argues that the termination procedures provided in the city manual validly supersede those provided in § 7-33-4124, MCA, because those termination procedures were included in Livingston's collective bargaining agreement with the union. In support of its position, Livingston cites § 39-31-306(3), MCA, which states in part: An agreement between the public employer and a labor organization must be valid and enforced under its terms when entered into in accordance with the provisions of this chapter.... Livingston also cites a Kansas case in support of its argument. In Gorham v. City of Kansas City (Kan. 1979), 590 P.2d 1051, 1056, the Kansas Supreme Court held that terminated policemen waived their due process rights to a pre-termination hearing because their union had entered into a collective bargaining agreement with a grievance procedure. We note that Phillips was provided with notice of the charges against him before the city manager conducted the termination hearing. However, the issue in this case does not involve the denial of constitutional due process. Gorham is distinguishable because there was no specific statutory right to a termination hearing at issue, and the bargaining agreement here is different from that in Gorham. We have not addressed the issue of whether a laborer waives the right to due process, or a statutorily mandated hearing, by entering into a collective bargaining agreement; nor do we need to today. A thorough examination of the collective bargaining agreement makes it possible to give effect to both § 7-33-4124, MCA, and § 39-31-306(3), MCA. Section 1-2-101, MCA, states in relevant part that [w]here there are several provisions or particulars, such construction is, if possible, to be adopted as will give effect to all. Livingston's policy and procedures manual provides that the city manager shall hold a termination hearing prior to any discharge, and that only the city manager may discharge an employee. Article V of the collective bargaining agreement is entitled Policy and Procedures. Section 5.1 of the agreement states: The Union agrees to adopt the City of Livingston[']s Policy and Procedures manuals where not in conflict with this Agreement. Article XIII of the collective bargaining agreement is entitled Discipline and Discharge. Section 13.3 states: The employer may suspend an employee with pay pending the final decision as to the appropriate discipline or the overturning of the discipline by the appropriate authority  (emphasis added). The appropriate authority for administering discipline in this case was the city council, pursuant to § 7-33-4124, MCA. Thus, the section of Livingston's policy and procedures manual which vests the city manager with the power to discharge firefighters conflicts with § 13.3 of the collective bargaining agreement. Therefore, in accordance with § 5.1 of the collective bargaining agreement, Phillips' union did not adopt Livingston's policy and procedures manual where it deals with discipline and discharge of city employees. We hold that the city of Livingston's termination hearing procedures do not validly supersede those procedures established by the state legislature for the termination of firefighters.