IN THE MATTER OF BELLEVILLE EDUCATION ASSOCIATION AND BELLEVILLE BOARD OF EDUCATION BELLEVILLE EDUCATION ASSOCIATION VS. BELLEVILLE BOARD OF EDUCATION (PUBLIC EMPLOYMENT RELATIONS COMMISSION, AND L-7237-15, ESSEX COUNTY AND STATEWIDE)(CONSOLIDATED) ( 2018 )


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  •                 NOT FOR PUBLICATION WITHOUT THE
    APPROVAL OF THE APPELLATE DIVISION
    SUPERIOR COURT OF NEW JERSEY
    APPELLATE DIVISION
    DOCKET NO. A-5104-14T3
    A-2956-15T3
    IN THE MATTER OF BELLEVILLE
    EDUCATION ASSOCIATION and BELLEVILLE
    BOARD OF EDUCATION.
    ____________________________________
    APPROVED FOR PUBLICATION
    BELLEVILLE EDUCATION ASSOCIATION,
    July 16, 2018
    Plaintiff-Appellant,                      APPELLATE DIVISION
    v.
    BELLEVILLE BOARD OF EDUCATION,
    Defendant-Respondent.
    _____________________________________
    Argued September 13, 2017 – Decided July 16, 2018
    Before Judges Fuentes, Koblitz, and Suter.
    On appeal from the Public Employment Relations
    Commission, Docket No. CO-2014-149, and
    Superior Court of New Jersey, Law Division,
    Essex County, Docket No. L-7237-15.
    Stephen J. Edelstein argued the cause for
    appellant/cross-respondent Belleville Board
    of Education (in A-5104-14) (Schwartz Simon
    Edelstein & Celso, LLC, attorneys; Stephen J.
    Edelstein, of counsel and on the brief; Joshua
    I. Savitz and Aimee S. Weiner, on the brief).
    Sanford R. Oxfeld argued the           cause for
    appellant (in A-2956-15) (Oxfeld       Cohen, PC,
    attorneys; Sanford R. Oxfeld, of      counsel and
    on the brief; Samuel B. Wenocur, on   the brief).
    Sanford R. Oxfeld, argued the cause for
    respondent/cross-appellant        Belleville
    Education Association (in A-5104-14) (Oxfeld
    Cohen, PC, attorneys; Sanford R. Oxfeld, of
    counsel and on the brief; Samuel B. Wenocur,
    on the brief).
    Stephen J. Edelstein argued the cause for
    respondent (in A-2956-15) (Schwartz Simon
    Edelstein & Celso, LLC, attorneys; Stephen J.
    Edelstein, of counsel and on the brief; Joshua
    I. Savitz, Aimee S. Weiner and Vanessa E.
    Pena, on the brief).
    Christine Lucarelli, Deputy General Counsel,
    argued the cause for amicus curiae New Jersey
    Public Employment Relations Commission (in
    A-2956-15) and respondent (in A-5104-14)
    (Robin T. McMahon, General Counsel, attorney;
    Christine Lucarelli, on the briefs).
    The opinion of the court was delivered by
    FUENTES, P.J.A.D.
    This opinion involves two separate, but interrelated cases
    arising from the same core of operative facts.               In the appeal
    filed by the local board of education under Docket Number A-5104-
    14, this court upholds the decision of the Public Employment
    Relations Commission (PERC) to assert its exclusive jurisdiction
    to   decide    complaints   arising   under   the   New   Jersey   Employer-
    Employee Relations Act (EERA), N.J.S.A. 34:13A-1 to -43, even when
    raised in the context of tenure charges.            Applying the Supreme
    Court's holding in In re Local 195, IFPTE, 
    88 N.J. 393
    (1982),
    this court also upholds the union's right to engage in good faith
    2                              A-5104-14T3
    negotiations to ascertain the impact the installation of exposed
    cameras with both audio and video capabilities would have on the
    terms and conditions of employment for the employees.
    In the separate, but related appeal filed by the union under
    Docket Number A-2956-15, this court holds the Law Division does
    not have jurisdiction under Rule 4:67-6 to enforce an order entered
    by PERC.   Adhering to the Supreme Court's holding in Galloway Twp.
    Bd. of Educ. v. Galloway Twp. Educ. Ass'n, 
    78 N.J. 25
    (1978), we
    hold that only PERC may file a motion before the Appellate Division
    to enforce its own order under the EERA.     A prevailing party in
    a PERC proceeding only has the right to request that PERC enforce
    its own order.
    The simplest and most direct way to address the issues raised
    by the parties in these appeals is to proceed chronologically.
    I
    A-5104-14
    On January 13, 2014, the Belleville Education Association
    (BEA) filed an unfair practice charge with PERC alleging that the
    Belleville Board of Education (Board) had violated the EERA.     The
    BEA alleged the Board unilaterally implemented a policy that
    requires staff to wear radio frequency identification cards (RFID)
    and, in the guise of upgrading the security system in the schools,
    placed exposed cameras "with both video and audio capabilities"
    3                          A-5104-14T3
    in virtually all areas of the schools, leaving staff without a
    private space to congregate and express concerns to BEA officers.
    The BEA argued that these material alterations of the school
    environment      affected    their    members'      terms   and    conditions      of
    employment and were therefore subject to good faith negotiation.
    The   BEA   also    alleged    the   Board    retaliated      against     its
    President, Michael Mignone, by filing tenure charges against him
    when he openly advocated against these policies.                  The BEA claimed
    the Board's actions violated N.J.S.A. 34:13A-5.4(a)(1),(2),(3) and
    (5).    The BEA sought interim injunctive relief prohibiting the
    Board from implementing the security measures and staying the
    prosecution of the tenure charges against Mignone.
    The     Board   argued   it    had    a     non-negotiable     managerial
    prerogative to unilaterally implement these security measures to
    protect the safety of the students and staff, especially in
    response to the recent surge of school shootings.                  The Board also
    stated the issues related to the retaliation charges were moot
    because it had withdrawn its complaint against Mignone.                    However,
    even if the charges were pending, the Board argued PERC did not
    have jurisdiction over this matter.              In response, the BEA disputed
    that the charges against Mignone had been dismissed.
    After    considering     the    arguments      of    the    parties,      the
    Commission      Designee    denied    the   BEA's    application     for   interim
    4                                   A-5104-14T3
    injunctive       relief.          The         Designee      found     that      the
    surveillance/security system and RFID employee cards were a "more
    pervasive type of system, with newer technology, [that] has never
    been considered by the Commission."               Under these circumstances,
    the Designee concluded that "[a]n interim relief proceeding is not
    the appropriate application for creating new law . . . ."                      With
    respect    to   the    tenure   charges       against    Mignone,   the   Designee
    rejected the Board's jurisdiction argument, holding that PERC "has
    [the] authority to decide whether the charges were brought against
    the individual for an inappropriate reason that may constitute a
    violation of the [EERA]."        However, the Designee declined to grant
    any interim relief because there were material factual issues in
    dispute.
    On May 16, 2014, PERC issued a Complaint and Notice of
    Prehearing.      The parties thereafter presented their case to an
    arbitrator.     On July 28, 2014, the arbitrator issued a decision
    in favor of the BEA and awarded remedies specifically tailored to
    the issues at hand.        The arbitrator's comprehensive opinion found
    insufficient evidence to support the charges against Mignone, with
    one exception.        The exception related to Charge II, Count 5 of the
    complaint, which alleged that Mignone inappropriately allowed a
    BEA representative to listen surreptitiously during a telephone
    conversation with a parent of a student.
    5                                A-5104-14T3
    The   arbitrator   found   the       evidence   proved   that   Mignone
    "engaged in substantial misconduct by having an undisclosed BEA
    representative present during a conference call with the [p]arent
    of one of his students and the Guidance Counselor."            The presence
    of the third party during this parent-teacher conference call
    "posed the potential violation of the privacy of the [p]arent and
    student despite the fact that nothing detrimental was revealed in
    the conversation."
    The arbitrator dismissed the remaining charges and ordered a
    one-month suspension without pay as the appropriate penalty for
    the sustained charge.    The arbitrator also ordered the Board to
    reinstate Mignone to his former position and "be made whole for
    the loss of compensation, if any, beyond the one-month suspension
    without pay imposed herein."      By mutual agreement, both parties
    moved for summary judgment before PERC.
    On June 25, 2015, PERC issued its written decision on the
    parties' summary judgment motions.           With respect to whether the
    Board had the authority to install the audio-video surveillance
    system, PERC found:
    In the instant matter, the Board has installed
    exposed cameras with both audio and video
    capabilities in all classrooms, hallways,
    cafeterias, kitchens, gymnasiums, faculty
    lounges, most stairwells, some closets and
    other public spaces as well as the exterior
    of the buildings. Cameras are not installed
    6                              A-5104-14T3
    in restrooms, locker rooms and nurses'
    offices.    Audio recordings will only be
    triggered in the event of an emergency or
    security issue. Each classroom will also have
    a telephone that will allow teachers to
    quickly communicate with [School] District
    officials and the police in the event of a
    crisis. The Bellville Police Department will
    have the ability to tap into the audio and
    video feeds in the event of an emergency, but
    will not be continuously monitoring the
    [School] District.
    . . . .
    [T]he installation of exposed cameras for the
    purpose of protecting people and property is
    a significant government interest which places
    the   issue   outside   of   the   domain   of
    negotiability.
    . . . .
    The [School] District has a prerogative, and
    responsibility, to take the measures it deems
    appropriate to protect the safety of its
    students and staff, particularly in light of
    the numerous incidences of public violence in
    our schools nationwide in recent past.
    PERC reached a similar conclusion with respect to the RFID
    employee identity cards:
    [W]e consider the use of RFID cards as part
    of the security system implemented by the
    Board. The RFID cards can locate staff when
    they are on school grounds or a school bus and
    in proximity to a card reader. The [School]
    District has determined that the use of these
    cards is an important part of security for its
    schools.    The cards have a panic button
    feature that could be critical in instantly
    alerting the administration and police in the
    event of a crisis.    The [School] District's
    7                          A-5104-14T3
    interests in security in this area are
    substantial, in contrast to employees who
    cannot claim an interest in concealing their
    location during work hours, on school grounds
    and buses.
    Despite these findings, PERC found the BEA had raised "many
    of the valid concerns" that favor the negotiability of these
    "impact issues."   These issues include, but are not limited to:
    (1) the placement of cameras in the faculty lounges; (2) the
    designation of areas where cameras would not be installed to permit
    teachers to meet with BEA officers "to discuss sensitive or
    confidential matters;" (3) the establishment of notice protocols
    if data collected from RFID or audio-video recordings is used to
    support disciplinary charges, and procedures for accessing such
    data; (4) policies for retaining audio or video recordings and
    data collected from RFID cards; and (5) procedures for notifying
    staff if the Board planned to make significant changes to the
    cameras or the RFID cards.
    In a footnote, PERC noted that the Board did not identify a
    particular need for monitoring areas where teachers and other
    staff congregate on school property.   PERC acknowledged that the
    traditional teachers' lounge may be the only location in a school
    building where teachers are entitled to expect a measure of
    privacy:
    8                          A-5104-14T3
    In a school setting, teachers generally do not
    have individual offices . . . [and] have no
    privacy in classrooms because they are engaged
    with students for the majority of the day, and
    also because classrooms are monitored by
    cameras.    Faculty lounges should be areas
    where staff can go to during break to engage
    in   conversations   with   colleagues   about
    professional or personal matters without a
    concern of being monitored or overhead by a
    camera.
    Finally, PERC found the arbitrator's decision to sustain
    certain tenure charges against BEA President Mignone, as well as
    the imposition of a one-month suspension without pay as a sanction,
    violated Mignone's rights under N.J.S.A. 34:13A-5.4(a) of the
    EERA.   PERC also rejected the Board's argument challenging its
    jurisdiction to review this matter.          Citing N.J.S.A. 34:13A-
    5.4(c), PERC held: "This agency has exclusive jurisdiction over
    unfair practice claims arising under the [EERA]."
    PERC found that Mignone "engaged in protected activity" under
    EERA when he met with the Superintendent of Schools in September
    2013 to "express his concerns about the security system" and when
    the   BEA   disseminated   information   disclosing   the   cost   of   the
    proposed surveillance system and encouraging BEA members to attend
    the Board meeting in October 2013.
    PERC found the evidence showed the Board had "dual motives"
    for sending Mignone letters of reprimand, for suspending him, and
    for ultimately filing tenure charges against him. PERC also found:
    9                               A-5104-14T3
    The record supports that Mignone engaged in
    misconduct   when   he   participated   in   a
    conversation with his students about the
    security system and did not advise a mother
    of his student that [a BEA] representative was
    present listening in on their telephone call.
    However, the discipline that was imposed is
    notably disproportionate to the misconduct,
    particularly in light of Mignone's clean
    disciplinary record in his fourteen years of
    teaching in the [School] District prior to
    becoming [BEA] President.
    PERC concluded that the punitive nature of the charges the
    Board filed against Mignone, coupled with the "timing" of these
    charges, are important factors in assessing the Board's motivation
    and "give rise to an inference that a personnel action was taken
    in retaliation for protected activity."              PERC thus ordered the
    Board   "to    cease   and   desist   from   .   .   .   [i]nterfering     with,
    restraining or coercing employees in their exercise of the rights
    guaranteed to them by the [EERA] . . . ."            PERC specifically cited
    the disciplinary actions the Board took against Mignone as an
    example of the type of retaliation prohibited by the EERA.                   PERC
    also restrained the Board from discriminating "in regard to hire
    or tenure of employment or any term or condition of employment to
    encourage or discourage employees in the exercise of the rights
    guaranteed to by the [EERA] . . . ."
    PERC also found the Board violated the EERA by "[r]efusing
    to negotiate in good faith with the [BEA], particularly with regard
    10                                 A-5104-14T3
    to the severable impact on the staff from implementation of
    security cameras and use of RFID cards."    PERC ordered the Board
    to apprise all staff of this decision by posting "in all places
    where notices to employees are customarily posted," a "Notice to
    Employees,"1 attached as Appendix A to its June 25, 2015 final
    order and decision.
    The Board appealed PERC's decision to this court on July 14,
    2015.   The matter came for oral argument on September 13, 2017.
    In response to our request during oral argument, counsel for the
    Board submitted a certification2 in which he described the action
    and measures the School District has taken, as described by Dr.
    Richard D. Tomko, the Superintendent of Schools for the Bellville
    School District:
    5. Dr. Tomko became the Superintendent in
    February 2015.
    6. According to Dr. Tomko, at that time,[3] the
    District was in the process of removing those
    security cameras from District property that
    were not operational.
    1
    We include a copy of PERC's "Notice to Employees" as an Appendix
    to this opinion.
    2
    The certification contains eighteen numbered sections.      We
    include here only those sections that are relevant to the issues
    related to PERC's decision and order.
    3
    Because counsel's certification is dated September 18, 2017, we
    construe the phrase "at that time" to refer to the conditions that
    existed and the actions that were taken as of September 2017.
    11                           A-5104-14T3
    7. Dr. Tomko advises that thereafter he
    continued   to   remove   all   cameras  from
    classrooms and faculty spaces, excluding
    hallways,   laboratories,    gymnasiums,  and
    auditoriums.
    8. Dr. Tomko further advises that he notified
    the [BEA] of his actions in one or more of the
    regular weekly meetings which he holds with
    [BEA] leadership and worked with BEA President
    Micheal Mignone in determining whether any
    cameras remained.
    9. Cameras which were disconnected, but still
    physically present in rooms, were then removed
    at the [BEA's] request.
    10. As of some point in 2015, the exact date
    of which is unknown to Dr. Tomko, all cameras
    were removed from District Property.
    . . . .
    12. Dr. Tomko further advises that since his
    arrival in February 2015, there have not been
    any      operational     Radio      Frequency
    Identification ("RFID") cards utilized within
    the District.
    13. The District does not maintain the
    requisite server of software to operate the
    tracking feature of the RFID cards.
    14. Although faculty members still have
    identification cards which may include RFID
    hardware inside the card, there is no software
    to monitor the hardware.
    15. Moreover, the battery component of any
    such   hardware,   which  was   intact   in
    approximately 2014, would have long expired
    at this time.
    16. According to Dr. Tomko . . . the District
    did not circulate any documents or memoranda
    12                          A-5104-14T3
    regarding the cameras or RFID cards since his
    arrival.
    17. None of the above was memorialized in any
    Board action.
    [(Emphasis added).]
    The BEA did not respond to or otherwise refute the facts described
    in this certification.
    II
    PERC    is    an    administrative   agency    designated       by   the
    Legislature to interpret, implement, and enforce the EERA.            PERC's
    interpretation of the EERA is therefore entitled to substantial
    deference.    Commc'ns Workers of Am., Local 1034 v. N.J. State
    Policemen's Benev. Ass'n., Local 203, 
    412 N.J. Super. 286
    , 291
    (App. Div. 2010).       The EERA guarantees employees "a vast array of
    rights, including the ability to appoint a majority representative
    to represent their interests and negotiate agreements on their
    behalf with an employer."       In re Cty. of Atl., 
    230 N.J. 237
    , 252
    (2017)   (citing   N.J.S.A.    34:13A-5.3).    It   prohibits    a    public
    employer from "interfering with, restraining or coercing employees
    in the exercise of their rights" under the EERA, "[d]iscriminating
    in regard to . . . tenure of employment or any term or condition
    of employment to . . . discourage employees in the exercise of the
    rights guaranteed to them by this act[,]" and "[r]efusing to
    13                               A-5104-14T3
    negotiate in good faith" the terms and conditions of employment.
    N.J.S.A. 34:13A-5.4(a)(1), (2), (3), (5), and (7).
    Here, PERC concluded that the Board's installation of exposed
    cameras, equipped with audio and video recording capability, for
    the purpose of protecting staff, students, and other people and
    property is a significant government interest which places the
    issue outside of the domain of negotiability.               PERC reached the
    same conclusion with respect to the RFID employee identity cards.
    However, PERC also found that the BEA had raised many valid
    concerns that favored the negotiability of these "impact issues."
    In the seminal case of Local 
    195, 88 N.J. at 403-05
    , our
    Supreme Court established the test for determining whether a
    subject is mandatorily negotiable between public employers and
    employees.     The Court held that to be negotiable, "the subject
    matter must: (1) be an 'item [that] intimately and directly affects
    the work and welfare of public employees'; (2) be a topic that
    'has    not   been   fully   or    partially    preempted    by   statute    or
    regulation'; and (3) involve a matter where 'a negotiated agreement
    would   not   significantly       interfere    with   the   determination    of
    governmental policy.'"       Cty. of 
    Atl., 230 N.J. at 253
    (alteration
    in original) (quoting Local 
    195, 88 N.J. at 404-05
    ).
    Before we apply the Local 195 test to the issues at hand, we
    are bound to determine whether the Board's counsel's September
    14                              A-5104-14T3
    2017 certification attesting to the actions taken by the School
    District's Superintendent, Dr. Tomko, to abandon and remove the
    security camera surveillance initiative as well as the RFID staff
    identification badges, without formal approval by the Board, has
    any bearing of the continued legal viability of these issues.
    Stated more directly: are these issues now moot?     Furthermore,
    even if these issues are now technically moot, we are entitled to
    assert our jurisdiction over them if they involve matters of
    substantial public importance and are capable of repetition. Brady
    v. Dep't of Pers., 
    149 N.J. 244
    , 253-254 (1997) (citing In re
    J.I.S. Indus. Serv. Co. Landfill, 
    110 N.J. 101
    , 104-05 (1988)).
    We conclude these issues are not moot.   The Board's counsel
    made clear in his certification that the Superintendent's actions
    have not been memorialized in a resolution formally approved by
    the Board.   PERC's order directed the Board to engage in good
    faith negotiations with the BEA over the impact these measures
    would have on the terms and conditions of its members' employment.
    The Superintendent's unilateral actions to de facto abandon these
    surveillance projects do not constitute compliance with PERC's
    order.
    PERC also ordered the Board to post the specific Notice to
    Employees that we have attached as an Appendix to this opinion.
    The Board's counsel's certification does not address this issue.
    15                          A-5104-14T3
    Finally, the Board's legal challenge to PERC's jurisdiction to
    address and adjudicate the retaliation charge filed by the BEA's
    President was not within the scope of this court's request to the
    Board's counsel.       Thus, it is not covered by the certification.
    "The Legislature has vested PERC with 'the power and duty,
    upon the request of any public employer or majority representative,
    to make a determination as to whether a matter in dispute is within
    the scope of collective negotiations.'"         City of Jersey City v.
    Jersey City Police Officers Benevolent Ass'n, 
    154 N.J. 555
    , 567-
    68 (1998) (quoting N.J.S.A. 34:13A-5.4(d)).             "The standard of
    review of a PERC decision concerning the scope of negotiations is
    thoroughly settled.       The administrative determination will stand
    unless it is clearly demonstrated to be arbitrary or capricious."
    
    Id. at 568
    (citations and internal quotations omitted).
    "Questions   concerning    whether    subjects    are    mandatorily
    negotiable should be made on a case-by-case basis."                 Troy v.
    Rutgers, 
    168 N.J. 354
    , 383 (2001) (citing City of Jersey 
    City, 154 N.J. at 574
    ).    The Supreme Court has established a three-part test
    for scope of negotiations determinations.         Local 
    195, 88 N.J. at 403
    .     A   subject    between   public   employers    and    employees    is
    negotiable when:
    (1) the item intimately and directly affects
    the work and welfare of public employees; (2)
    the subject has not been fully or partially
    16                               A-5104-14T3
    preempted by statute or regulation; and (3) a
    negotiated agreement would not significantly
    interfere    with   the    determination    of
    governmental policy. To decide whether a
    negotiated   agreement   would   significantly
    interfere    with   the    determination    of
    governmental policy, it is necessary to
    balance the interests of the public employees
    and the public employer. When the dominant
    concern   is   the   government's   managerial
    prerogative to determine policy, a subject may
    not be included in collective negotiations
    even   though   it   may   intimately   affect
    employees' working conditions.
    [Id. at 404-05.]
    In our view, PERC's thoughtful decision properly applied the
    Local 195 test to strike a proper balance between the Board's
    managerial prerogative and obligation to ensure the safety of
    students and staff, and the BEA's right to advocate and negotiate
    for the interests of its members.      The issues PERC addressed
    include, but are not limited to, good faith negotiations concerning
    the designation of zones of privacy where cameras would not be
    installed. A designation of a place like the traditional teachers'
    lounge would allow staff to discuss personal matters, including
    union issues, without fear of electronic eavesdropping by school
    administrators.   The same principles of privacy and unwarranted
    intrusion would animate the negotiation involving the RFID staff
    identification badges.
    17                           A-5104-14T3
    As PERC noted, the BEA and the Board can negotiate the
    establishment of notice protocols if data collected from RFID
    badges are used to support disciplinary charges.     This is but a
    small sampling of the universe of issues associated with this
    multifaceted security/tracking system.     As the Court recently
    reaffirmed, through the enactment of the EERA, the Legislature
    "recognized that the unilateral imposition of working conditions
    is the antithesis of its goal that the terms and conditions of
    public employment be established through bilateral negotiation."
    Cty. of 
    Atl., 230 N.J. at 252
    (quoting Galloway Twp. Bd. of Educ.
    v. Galloway Twp. Educ. Ass'n, 
    78 N.J. 25
    , 48 (1978)).
    III
    The Board argues that PERC lacks jurisdiction over the tenure
    charges it brought against Mignone.   As PERC explained, the focus
    of the charge brought by the BEA was directed at the motivation
    for the Board's actions against Mignone. The BEA argued the tenure
    charges were pretextual, a ruse to conceal the Board's retaliatory
    motive to punish Mignone for engaging in protected conduct in the
    form of speaking out against the installation of the security
    system.   PERC concluded it has "exclusive jurisdiction over unfair
    practice claims arising under [the EERA]" pursuant to N.J.S.A.
    34:13A-5.4(c).
    18                          A-5104-14T3
    We agree with PERC.   The EERA prohibits "[p]ublic employers,
    their representatives or agents" from:
    (1) Interfering with, restraining or coercing
    employees in the exercise of the rights
    guaranteed to them by this act.
    (2) Dominating or interfering with the
    formation, existence or administration of any
    employee organization.
    (3) Discriminating in regard to hire or tenure
    of employment or any term or condition of
    employment   to   encourage    or   discourage
    employees in the exercise of the rights
    guaranteed to them by this act.
    [N.J.S.A. 34:13A-5.4(a).]
    In adopting the EERA, the Legislature bestowed upon PERC the:
    exclusive power as hereinafter provided to
    prevent anyone from engaging in any unfair
    practice listed in [N.J.S.A. 34:13A-5.4(a) and
    (b)].
    Whenever it is charged that anyone has engaged
    or is engaging in any such unfair practice,
    the commission, or any designated agent
    thereof, shall have authority to issue and
    cause to be served upon such party a complaint
    stating the specific unfair practice charged
    and including a notice of hearing containing
    the date and place of hearing before the
    commission or any designated agent thereof
    . . . .
    [N.J.S.A. 34:13A-5.4(c) (emphasis added).]
    The rules governing proceedings brought in the Office of
    Administrative Law (OAL) provide:
    19                         A-5104-14T3
    As soon as circumstances meriting such action
    are discovered, an agency head, any party or
    the judge may move to consolidate a case which
    has been transmitted to the Office of
    Administrative Law with any other contested
    case involving common questions of fact or law
    between identical parties or between any party
    to the filed case and any other person, entity
    or agency.
    [N.J.A.C. 1:1-17.1(a).]
    This procedural paradigm requires the Administrative Law
    Judge (ALJ) assigned to a case to "hear and rule upon the motion
    to consolidate."   N.J.A.C. 1:1-17.1(c).   Acceptance of the Board's
    argument would have required an ALJ to consolidate the tenure
    charges complaint filed by the Board against Mignone with the
    retaliation complaint Mignone filed against the Board under the
    EERA.   However, Title 18A tenure charges are no longer referred
    to the OAL for hearing.    The Legislature's enactment of TEACHNJ
    in August 2012 radically changed the disciplinary process for
    tenure teachers.   As we explained in Pugliese v. State-Operated
    School Dist. of City of Newark, 
    440 N.J. Super. 501
    (App. Div.
    2015), under the Tenure Employees Hearing Law, N.J.S.A. 18A:6-10
    to -18.1, the OAL no longer has any role to play in this process.
    Any charge against a tenured employee "shall
    be filed with the secretary of the board [of
    education] in writing, and a written statement
    of evidence under oath to support such a
    charge shall be presented . . . ." N.J.S.A.
    18A:6-11. If "the board finds that such
    probable cause exists and that the charge, if
    20                           A-5104-14T3
    credited, is sufficient to warrant a dismissal
    . . . then it shall forward such written charge
    to the commissioner for a hearing pursuant to
    N.J.S.[A.]    18A:6-16,    together    with   a
    certificate of such determination." 
    Ibid. Importantly, pursuant to
      the   amendment
    contained in TEACHNJ, if the commissioner
    determines that the charge is sufficient to
    warrant dismissal, the case is referred to an
    arbitrator. N.J.S.A. 18A:6-16.
    . . . .
    "The arbitrator's determination shall be final
    and binding and may not be appealable to the
    commissioner or the State Board of Education.
    The determination shall be subject to judicial
    review and enforcement as provided pursuant
    to N.J.S.[A.] 2A:24-7 through N.J.S.[A.]
    2A:24-10." N.J.S.A. 18A:6-17.1(e).
    [Id. at 509-510 (emphasis added).]
    Our   Supreme   Court   has    recently   reaffirmed   the     basic
    principles of statutory construction:
    [T]he   starting   point   of   all  statutory
    interpretation must be the language used in
    the enactment.    We construe the words of a
    statute in context with related provisions so
    as to give sense to the legislation as a whole.
    If the plain language leads to a clear and
    unambiguous result, then our interpretative
    process is over.       We rely on extrinsic
    evidence of legislative intent only when the
    statute is ambiguous, the plain language leads
    to a result inconsistent with any legitimate
    public policy objective, or it is at odds with
    a general statutory scheme.
    21                             A-5104-14T3
    [Spade v. Select Comfort Corp., 
    232 N.J. 504
    ,
    515   (2018)   (emphasis   added)   (internal
    citations omitted).]
    The plain text in N.J.S.A. 34:13A-5.4(c) confers upon PERC
    the exclusive power to adjudicate any claims asserted by a public
    employee alleging the public employer has engaged in any unfair
    practice listed in N.J.S.A. 34:13A-5.4(a). The EERA also expressly
    gives PERC "the power and duty" to determine whether a matter is
    within the scope of collective negotiations.                N.J.S.A. 34:13A-
    5.4(d); see also In re Judges of Passaic Cty., 
    100 N.J. 352
    , 363
    (1985).    These    unambiguous    proclamations     of   PERC's   statutory
    authority by the Legislature leaves no room for doubt.              PERC had
    the power and duty to adjudicate Mignone's claims of retaliation
    under N.J.S.A. 34:13A-5.4(a).
    This court reviews final decisions of State administrative
    agencies pursuant to Rule 2:2-3(a)(2), mindful of the need to
    respect the action taken by such agencies pursuant to authority
    delegated by the Legislature.       In re Proposed Quest Acad. Charter
    Sch., 
    216 N.J. 370
    , 385 (2013).          Thus, we may reverse an agency's
    decision   only    if   its   decision    is   arbitrary,    capricious,    or
    unreasonable, or the decision is inconsistent with the agency's
    mandate.   
    Ibid. (citing In re
    Petition for Rulemaking, 
    117 N.J. 311
    , 325 (1989)).       In going about this task, our role
    22                               A-5104-14T3
    is generally restricted to three inquiries:
    (1) whether the agency's action violates
    express or implied legislative policies, that
    is, did the agency follow the law; (2) whether
    the record contains substantial evidence to
    support the findings on which the agency based
    its action; and (3) whether in applying the
    legislative policies to the facts, the agency
    clearly erred in reaching a conclusion that
    could not reasonably have been made on a
    showing of the relevant factors.
    [Id. at 386 (quoting Mazza v. Bd. of Trs., 
    143 N.J. 22
    , 25 (1995)).]
    Applying these long-settled standards of review, we discern
    no legal basis to interfere with PERC's decision finding the
    Board's disciplinary action against Mignone was retaliatory and
    punitive   in   nature,   and   consequently   violated   the    rights
    guaranteed to public employees under N.J.S.A. 34:13A-5.4.           PERC
    was entitled to focus on the timing of the disciplinary charges
    against Mignone to infer the Board's retaliatory motive.            PERC
    also found that under these circumstances, the Board's decision
    to file tenure charges against an employee with an unblemished
    thirteen-year record of service buttressed Mignone's claims of
    retaliation under the EERA.     We thus affirm PERC's decision to set
    aside the arbitrator's decision to impose a one-month suspension
    without pay against Mignone.
    23                            A-5104-14T3
    IV
    A-2956-15
    We now address the BEA's appeal from the order entered by
    Judge Vicki A. Citrino on February 19, 2016, denying its motion
    to reconsider the judge's January 5, 2016 order dismissing its
    verified complaint and order to show cause (OTSC) filed against
    the Board pursuant to Rule 4:67-6, seeking enforcement of PERC's
    June 25, 2015 order.         Inexplicably, the BEA opted not to appeal
    the   January   5,   2016    order,   which   directly   denied   the     BEA's
    enforcement action.         Judge Citrino correctly noted the standard
    for granting a motion for reconsideration in her statement of
    reasons in support of her decision.
    The decision to deny a motion for reconsideration falls
    "within the sound discretion of the [trial court], to be exercised
    in the interest of justice."          Cummings v. Bahr, 
    295 N.J. Super. 374
    , 384 (App. Div. 1996) (quoting D'Atria v. D'Atria, 242 N.J.
    Super. 392, 401 (Ch. Div. 1990)).          Reconsideration should only be
    used "for those cases which fall into that narrow corridor in
    which either (1) the [c]ourt has expressed its decision based upon
    a palpably incorrect or irrational basis, or (2) it is obvious
    that the [c]ourt either did not consider, or failed to appreciate
    the significance of probative, competent evidence."           
    Ibid. 24 A-5104-14T3 Whether
    as a matter of appellate strategy or inadvertent
    oversight, the BEA's decision to limit the scope of this appeal
    to Judge Citrino's reconsideration decision also limits the scope
    of our review.     As a threshold issue, the BEA has only provided
    us with the transcript of the oral argument session of the motion
    for reconsideration.      The appellate record does not include the
    transcript that contains the January 5, 2016 decision denying the
    BEA's OTSC and dismissing its verified complaint.4       Without this
    record, we cannot determine whether Judge Citrino's decision to
    deny    reconsideration   constituted   a   valid   exercise   of   her
    discretionary authority.
    However, given the great public importance of the issue before
    us, and recognizing that whether the Law Division has jurisdiction
    to enforce a final order of a State administrative agency is purely
    a question of law subject to de novo review, we have decided to
    address it.    Rule 4:67-6(a) provides the following mechanism for
    the enforcement of final orders:
    Applicability of Rule.         This rule is
    applicable to (1) all actions by a state
    administrative agency as defined by N.J.S.A.
    52:14B-2(a) brought to enforce a written order
    or determination entered by it, whether final
    or interlocutory, and whether the order to be
    enforced requires the payment of money or
    4
    In her January 5, 2016 order denying the BEA's enforcement
    pursuant to Rule 4:67-6, Judge Citrino wrote: "DENIED for the
    reasons set forth on the record."
    25                           A-5104-14T3
    imposes a non-monetary requirement or includes
    a combination of monetary and non-monetary
    remedies; and (2) all such enforcement actions
    brought by a party to the administrative
    proceeding in whose favor a written order or
    determination was entered affording that party
    specific relief.
    [(Emphasis added).]
    Rule 4:67-6(b)(1) provides:
    Actions pursuant to paragraph (a) of this rule
    shall be brought in accordance with [Rule]
    4:67 unless an applicable statute requires a
    plenary action in a specific matter. If the
    order sought to be enforced requires only the
    payment of money, it may be brought in the
    Superior Court, Law Division, or in any other
    court having statutory jurisdiction over the
    specific matter. If the order sought to be
    enforced provides in full or in part for a
    non-monetary remedy, the action shall be
    brought in a trial division of the Superior
    Court subject to motion pursuant to [Rule]
    4:3-1(b) for transfer to the other trial
    division.
    [(Emphasis added).]
    However, in her statement of reasons for denying the BEA's
    motion for reconsideration, Judge Citrino noted that in enacting
    the EERA, the Legislature expressly authorized PERC to enforce its
    decision by making a direct application to the Appellate Division.
    Accordingly, N.J.S.A. 34:13A-5.4(f) provides:
    The commission shall have the power to apply
    to the Appellate Division of the Superior
    Court for an appropriate order enforcing any
    order   of  the   commission  issued   under
    subsection c. or d. hereof, and its findings
    26                         A-5104-14T3
    of fact, if based upon substantial evidence
    on the record as a whole, shall not, in such
    action, be set aside or modified; any order
    for remedial or affirmative action, if
    reasonably designed to effectuate the purposes
    of this act, shall be affirmed and enforced
    in such proceeding.
    In light of this explicit grant of legislative authority, Judge
    Citrino concluded that the BEA had not met its burden of proving
    that her original decision was palpably incorrect.            
    Cummings, 295 N.J. Super. at 384-85
    .
    We start our analysis by noting that the BEA did not name
    PERC as a party.    By leave granted, PERC is participating in this
    appeal in an amicus curie capacity.          PERC acknowledges that the
    Legislature provided PERC with a mechanism to enforce its orders
    by applying to the Appellate Division under N.J.S.A. 34:13A-
    5.4(f).   However,    PERC   argues   that    the   process    for   seeking
    enforcement of its orders "changed in 1983 when [Rule 4:67-6] was
    adopted to provide a uniform procedure for the enforcement of
    orders issued by administrative agencies."           Without citing any
    competent legal authority, PERC claims: "The rule effectively
    nullified the portion of N.J.S.A. 34:13A-5.4(f) providing that
    jurisdiction to enforce PERC's orders would reside in the Appellate
    Division . . . ."
    What we find most troubling in PERC's legal position, however,
    is that it is based entirely on a 1984 unpublished opinion from
    27                                  A-5104-14T3
    this court, which purportedly states that "the enforcement of
    agency orders has been allocated to the trial division of the
    Superior Court."          By citing and relying on this unpublished
    opinion,     PERC   has    violated    an   important   principle   of    our
    jurisprudence:
    No unpublished opinion shall constitute
    precedent or be binding upon any court. Except
    for appellate opinions not approved for
    publication that have been reported in an
    authorized administrative law reporter, and
    except to the extent required by res judicata,
    collateral estoppel, the single controversy
    doctrine or any other similar principle of
    law, no unpublished opinion shall be cited by
    any court.
    [Rule 1:36-3 (emphasis added).]
    As a unanimous Supreme recently stated: "This rule has been
    affirmed time and again by this Court." Badiali v. N.J. Mfrs. Ins.
    Group, 
    220 N.J. 544
    , 559 (2015); see also Guido v. Duane Morris
    LLP, 
    202 N.J. 79
    , 91 n. 4, (2010); Mount Holly Twp. Bd. of Educ.
    v. Mount Holly Twp. Educ. Ass'n, 
    199 N.J. 319
    , 332 n. 2 (2009);
    In re Alleged Improper Practice, 
    194 N.J. 314
    , 330 n.10 (2008).
    Moreover, PERC's position in this respect is also directly
    undermined    by    our   Supreme   Court's   forty-year-old   decision    in
    Galloway Twp. Bd. of Educ.          As Justice Pashman wrote on behalf of
    the Court:
    In the event of noncompliance with its orders
    issued in unfair practice cases, PERC resumes
    28                           A-5104-14T3
    a prosecutorial role. PERC has been empowered
    to seek the aid of the courts in compelling
    compliance by applying to the Appellate
    Division for an appropriate judicial decree
    enforcing its order. N.J.S.A. 34:13A-5.4(f).
    . . . .
    The   decision   whether   to   initiate   an
    enforcement action in a given case is
    entrusted to PERC's sound discretion.     The
    statute authorizes, but does not require PERC
    to seek judicial assistance to enforce its
    orders.   See also N.J.A.C. 19:14-10.2(b).[5]
    It is noteworthy that while the party found
    by PERC to have committed an unfair practice
    may seek appellate review of PERC's decision
    and order pursuant to R. 2:2-3(a), the
    successful charging party may only request
    PERC to seek judicial enforcement of its
    order. See N.J.A.C. 19:14-10.3.[6] The lack
    of any statutory authorization for the
    charging party to seek enforcement of PERC's
    5
    N.J.A.C. 19:14-10.2(b) provides:   "The Commission may at any
    time in the exercise of its discretion institute proceedings for
    enforcement of its order pursuant to court rules."
    6
    N.J.A.C. 19:14-10.3 provides, in pertinent part:
    (a) Any party to the proceeding which resulted
    in the order for which compliance is sought
    may   request   that   the   Commission   seek
    compliance with and enforcement of any
    Commission order.
    (b) Such a request shall normally take the
    form of a motion addressed to the Chair and
    shall be accompanied by affidavits, as
    appropriate, setting forth the facts regarding
    the noncompliance of the party to whom the
    order was directed. An original and two copies
    of such request shall be filed with the
    Chairman, together with proof of service of a
    copy on all other parties.
    29                          A-5104-14T3
    orders is consistent with the legislative
    design that PERC's role in enforcing the
    public rights created by the Act is exclusive.
    [Galloway Twp. Bd. of 
    Educ., 78 N.J. at 34-35
                  (emphasis added).]
    In accordance with Galloway Twp. Bd. of Educ., we hold that
    the BEA did not have the legal authority to enforce PERC's order
    by   filing    a   verified    complaint   and     OTSC   under    Rule   4:67-6.
    Although PERC does not have the obligation to act, it has the
    exclusive     authority   to    enforce    its    own   orders    and   decisions
    pursuant to N.J.S.A. 34:13A-5.4(f).              A prevailing party, such as
    the BEA, may request PERC to seek enforcement of its decision in
    the form of a motion addressed to the Chair.                     N.J.A.C. 19:14-
    10.3(b).      The party to whom the order is directed, in this case
    the Board, may respond to the request within five days of service.
    See N.J.A.C. 19:14-10.3(c).
    V
    Summary
    In the appeal by the Board under Docket Number A-5104-14
    challenging the decision and order entered by PERC on June 25,
    2015, we affirm PERC's decision in all respects.                   In the appeal
    filed by the BEA under Docket Number A-2956-15, we affirm Judge
    Citrino's February 19, 2016 order denying the BEA's motion for
    reconsideration.        We hold that PERC had jurisdiction, pursuant
    30                                   A-5104-14T3
    to N.J.S.A. 34:13A-5.4(c), to determine whether the tenure charges
    the Board filed against the President of the BEA violated the
    EERA.   We further hold that the Law Division does not have
    jurisdiction to enforce an order entered by PERC under the summary
    enforcement proceedings available in Rule 4:67-6.
    Affirmed.   We do not retain jurisdiction.
    31                          A-5104-14T3
    NOTICE TO EMPLOYEES
    PURSUANT TO
    AN ORDER OF THE
    PUBLIC EMPLOYMENT RELATIONS COMMISSION
    AND IN ORDER TO EFFECTUATE THE POLICIES OF THE
    NEW JERSEY EMPLOYER-EMPLOYEE RELATIONS ACT,
    AS AMENDED,
    We hereby notify our employees that:
    WE WILL cease and desist interfering with, restraining or coercing employees
    in the exercise of the rights guaranteed to them by the Act, particularly
    by imposing discipline that was disproportionate to the misconduct of
    Michael Mignone in retaliation for him expressing the Association’s
    concerns about: the security system and by failing to negotiate with the
    Association regarding the severable impact on the staff from the
    implementation of the security cameras and RFID cards.
    WE WILL cease and desist from discriminating in regard to hire or tenure
    of employment or any term or condition of employment to encourage or
    discourage employees in the exercise of the rights guaranteed to them by
    the Act, particularly by imposing discipline that was disproportionate to
    the misconduct of Mignone in retaliation for him expressing the
    Association’s concerns about the security system.
    WE WILL cease and desist from refusing to negotiate in good faith with the
    Association, particularly with regard to the severable impact on the staff
    from the implementation of security cameras and use of RFID cards.
    Docket No.      CO-2014-149                                     BELLEVILLE BOARD OF EDUCATION
    (Public Employer)
    Date:   ______________________                     By: ______________________________
    This Notice must remain posted for 60 consecutive days from the date of posting, and must not be altered,
    defaced or covered by any other material.
    If employees have any question concerning this Notice or compliance with its provisions. they may communicate
    directly with the Public Employment Relations Commission, 495 West State Street, PO Box 429, Trenton, NJ
    08625-0429 (609) 984-7372
    APPENDIX "A"
    32                                         A-5104-14T3