Parris v. Sheriff of Suffolk County
Parris v. Sheriff of Suffolk County
Opinion
*459 The Wage Act, G. L. c. 149, §§ 148 and 150, generally requires that all public and private employers in the Commonwealth pay their employees' wages no more than seven days after the end of the pay period in which the wages were earned. Employees whose wages are detained longer than the Wage Act permits are entitled, after filing a complaint with the Attorney General, to initiate civil actions for injunctive relief, damages including lost wages, mandatory treble damages, and attorney's fees. The defendant sheriff of Suffolk County (sheriff), as a State employer, is required to make payments in accordance with the Wage Act to "every mechanic, workman and laborer" he employs and to "every person employed in any other capacity by [him] in any penal or charitable institution ... unless such mechanic, workman, laborer or employee requests in writing to be paid in a different manner " (emphasis supplied). G. L. c. 149, § 148, as appearing in St. 1960, c. 416.
In this case we must determine whether a provision in the collective bargaining agreements (CBAs) between the sheriff and the unions representing his employees amounts to a valid "request[ ] in writing" by the employees "to be paid in a different manner."
Background . The facts, as presented in the parties' cross motions for summary judgment, are not in dispute. The individual plaintiffs all work or worked for the sheriff at the Nashua Street jail between January, 2010, and July 25, 2015. 3 All of the employees are members of State collective bargaining units. Plaintiff Jail Officers and Employees Association of Suffolk County (union) is the exclusive bargaining *460 representative for most of the employees; two other unions represent the remaining employees. The sheriff recognized these unions as the exclusive representatives of their members for the purpose of collective bargaining. See G. L. c. 150E, § 4.
The sheriff and the unions entered into a series of CBAs relevant to this litigation. 4 These CBAs contained an identical provision (art. X, § 7) reflecting the parties' agreement concerning the timing of overtime payments: "Employees shall be paid for overtime service within twenty-five (25) working days following the month in which such service is performed." At all relevant times the sheriff paid the employees their overtime wages under the CBA twenty-five-day provision rather than under the Wage Act's seven-day period. In some instances the sheriff detained overtime wages beyond the twenty-five-day time frame permitted in the CBAs. 5
After obtaining authorization from the Attorney General, 6 the lead plaintiffs commenced this action on behalf of themselves and other similarly situated employees. They alleged that the sheriff violated the Wage Act by, among other actions, failing to pay overtime wages within seven days. 7 Acting on cross motions for summary judgment, a judge of the Superior Court held that the employees, "having approved a written request in the CBA that they be paid in a different manner, have waived their right to enforce the schedule set out in the Wage Act." On the plaintiffs' timely motion for reconsideration, the judge further concluded that to the extent the sheriff exceeded the twenty-five-day time limit, the plaintiffs were required to exhaust the CBA's grievance procedures. Judgment entered for the sheriff, the plaintiff's complaint was dismissed, and this appeal ensued.
Discussion
. 1.
Request to deviate from Wage Act payment schedule
. "The purpose of G. L. c. 149, § 148, is to prevent the evil of the 'unreasonable detention of wages [by employers].' "
Newton
v.
Commissioner of the Dept. of Youth Servs.
,
The fundamental public policy against forfeiture of Wage Act protections is rooted in the "special contract" provision of the statute, originally inserted in 1896, Melia , supra , which states, "No person shall by a special contract with an employee or by any other means exempt himself from this section or from [ G. L. c. 149, § 150 ]." G. L. c. 149, § 148, as appearing in St. 1956, c. 259. Public employees, however, have long been explicitly granted the ability to make written requests to alter the manner of their payments. The ability to make this election predates the special contract provision. Indeed, as early at 1887, city employees were entitled to payment of wages every seven days, "unless such employee shall request in writing to be paid in some different manner." St. 1887, c. 399, § 1.
While the Wage Act has consistently given the individual public employee the ability to make a written request for a different manner of payment, the statute does not expressly permit an employee's collective bargaining representative to make such a written request on the employee's behalf. The first question we must decide, therefore, is whether a collective bargaining representative has the authority to exercise the individual employees' election through collective bargaining.
An interpretation of the Wage Act requiring individual employees personally to make this election would create a conflict with the public employee labor relations law, G. L. c. 150E. Under c. 150E, the relevant unions are the employees' "exclusive representative of all the employees ... for the purpose of collective bargaining," G. L. c. 150E, § 4, inserted by St. 1973, c. 1078, § 2, and are empowered to act on the employees' behalf "with respect to wages, hours, standards or productivity and performance, and any other terms and conditions of employment," G. L. c. 150E, § 6, inserted by St. 1973, c. 1078, § 2. The employees' status as union members limits the sheriff's ability to deal directly with them. Rather, the unions possess the right to speak exclusively for all the employees on mandatory subjects of collective bargaining. See
Service Employees Intl. Union, AFL-CIO, Local 509
v.
Labor Relations Commn.
,
Public employee collective bargaining was first authorized by statute long after the Wage Act was in place. See
Somerville
v.
Commonwealth Employment Relations Bd.
,
To harmonize the Wage Act with c. 150E, we hold that the unions may act on behalf of their members to exercise the employees' election under the Wage Act to alter the timing of the overtime payments. We emphasize that the provision of the CBAs at issue here did not represent a waiver of individual rights under the Wage Act. Rather, the provision represents a negotiated version of a different time period for payment, elected by the employees as permitted by the terms of the Wage Act, through their collective bargaining representatives. Accordingly, to the extent that the sheriff paid the employees' overtime wages within twenty-five days of the end of the month in which they were earned, the sheriff was in compliance with what the unions, on behalf of the employees, agreed was timely payment under the Wage Act.
2.
Judicial remedies
. Having held that the parties validly negotiated for the employees to be paid according to a different schedule than the Wage Act provides, we must determine whether the CBAs preclude the employees from judicial enforcement of their right to prompt payment under the negotiated Wage Act schedule. We conclude that they do not. "[T]he prompt payment of wages statute creates an independent statutory right that can be enforced judicially even when a collective bargaining agreement addresses the subject matter of compensation."
Newton
,
Unlike the exercise of the Wage Act election to be paid in a different manner, we deal here with the purported waiver of an individual statutory right. "Although a union has the power to waive statutory rights related to collective activity, rights ... which are of a personal, and not merely economic, nature are beyond the union's ability to bargain away."
Blanchette
v.
School Comm. of Westwood
,
No Massachusetts appellate decision has ever upheld the waiver of individual statutory rights through a CBA. In
Newton
, even though the CBA included
*463
provisions concerning overtime, call-back, stand-by pay, and a grievance procedure "relating to the interpretation and application of the terms of the agreement," we held that the agreement did not waive the plaintiffs' "right to the timely payment of wages" under the Wage Act.
Ibid.
"While an individual may waive the requirements of the statute by a writing, the record does not disclose that the plaintiffs did so. Nor does their collective bargaining agreement include any reference to G. L. c. 149, § 148, or to the time when wages must be paid."
Id.
at 345,
The United States Supreme Court, in
Barrentine
v.
Arkansas-Best Freight Sys.
,
More recently, in a sharply divided decision, the United States Supreme Court held for the first time that Federal law permits enforcement of a provision in a CBA that compels arbitration of individual employees' statutory age discrimination claims, but only by way of "a provision ... that clearly and unmistakably requires union members to arbitrate claims arising under the Age Discrimination in Employment Act of 1967."
14 Penn Plaza LLC
v.
Pyett
,
We need not determine whether Massachusetts law permits a union to waive represented employees' rights and remedies under the Wage Act
9
because we conclude that the CBAs before us do not include such a waiver. The Commonwealth's fundamental public policy "to provide strong statutory protection for employees and their right to wages,"
Crocker
,
The case of
Warfield
v.
Beth Israel Deaconess Med. Center, Inc.
,
*464
Warfield
,
supra
at 395,
Nonetheless, relying on the Commonwealth's "overriding governmental policy proscribing various types of discrimination, set forth in G. L. c. 151B,"
Warfield
,
supra
at 398,
Similarly in
Blanchette
,
Finally, in
Crocker
,
Thus, even if Massachusetts were to allow a provision of a CBA to waive represented employees' individual rights and remedies under the Wage Act, the fundamental public policy to prevent employees' unwitting waiver of their individual rights would require "establishing a relatively narrow channel through which waiver of Wage Act claims can be accomplished,"
id. at 15,
With respect to the grievance procedure, the CBAs state in art. VII, "Only matters involving the question whether the [sheriff] is complying with the written provisions of this Agreement shall constitute grievances under this Article." This provision does not even mention, let alone clearly and unmistakably state, that the employees have waived their rights to judicial enforcement of Wage Act violations. See
Wright
v.
Universal Maritime Serv. Corp.
,
Even though the unions agreed to an extended period for the timely payment of wages under the Wage Act, the unions did not waive the employees' Wage Act remedies with respect to payments withheld longer than the negotiated standard permits. The twenty-five-day payment window is both a provision of the CBAs and a requirement that the sheriff must meet to comply with the Wage Act.
11
"[I]t is ... well-established that there are certain personal, statutory rights that can be enforced judicially even though they are incorporated into a collective bargaining agreement. The mere fact that those rights may be created both by contract and by statute and may be violated by the same factual occurrence does not vitiate their distinct and separate nature."
Newton
,
The cases of
Machado
v.
System4 LLC
,
Moreover, both cases reasoned that the arbitration provisions at issue did not implicate the employees' substantive rights under the Wage Act or "exempt" the employer from the Wage Act's operation, "but solely dictate[d] the forum in which the plaintiffs' right to recovery will be determined."
Machado
,
supra
at 217-218,
Conclusion . The plaintiff employees' election, through the CBAs and authorized by the Wage Act, that payment of overtime wages would be considered timely if made "within twenty-five (25) working days following the month in which such service is performed" is effective to supplant the Wage Act's seven-day requirement. The plaintiffs did not waive their Wage Act remedies for payment of wages beyond the twenty-five-day period. Accordingly, we vacate the judgment dismissing the plaintiffs' complaint. The plaintiffs may proceed to enforce their claims for late payment in the Superior Court under G. L. c. 149, § 150.
So ordered .
I agree with the majority that the provision of the collective bargaining agreement (CBA) setting forth a twenty-five-day time limit for the payment of overtime wages, rather than a seven-day time limit as set forth in the Wage Act, is enforceable as a "request[ ] in writing to be paid in a different manner," exercised by the unions on behalf of the employees. G. L. c. 149, § 148, as appearing in St. 1960, c. 416. It follows therefore that any dispute arising out of this provision of the CBA must first be pursued within the grievance procedure provided for in the CBA. See
Azzi
v.
Western Elec. Co.
,
The CBA provides that "matters involving the question whether the [sheriff of Suffolk County (sheriff) ] is complying with the written provisions of this Agreement shall constitute grievances" and sets out a detailed grievance procedure to be followed,
*467
ultimately concluding in binding arbitration. The employees' claim to have not been paid overtime wages within twenty-five days as required by the CBA unquestionably falls within the definition of a grievance. The employees were therefore required to pursue and to exhaust their contractual remedies through the grievance procedure; election of a judicial remedy in the first instance was not permissible. See
Malden Police Patrolman's Assn.
v.
Malden
,
Relying primarily on cases involving claims of employment discrimination,
1
the majority contends that the CBA must state in "clear and unmistakable" terms that employees waive the right to bring a Wage Act claim in court for claims arising out of the CBA provision requiring overtime wages to be paid within twenty-five days.
Ante
at ----, 110 N.E.3d at ----. Yet, there is a presumption of arbitrability in contracts containing arbitration clauses. See
Drywall Sys., Inc.
v.
ZVI Constr. Co.
,
In the employment discrimination cases, the courts were concerned that individual statutory rights to be free from discrimination may be unwittingly waived through general arbitration clauses in agreements making no mention of discrimination. See
Additionally, the rationale for not applying the presumption of arbitrability in employment discrimination cases has no applicability here. See
Wright
v.
Universal Maritime Serv. Corp.
,
*468
Moreover, the clear and unmistakable standard has never been required to permit Wage Act claims to be submitted to arbitration. To the contrary, in
Machado
v.
System4 LLC
,
Given that the provision of the CBA setting forth a twenty-five-day time limit for the payment of overtime wages is enforceable, any claim that the sheriff violated this provision must be resolved, in the first instance, through the mechanism provided for in the CBA. I would affirm the judgment in its entirety.
I, like my dissenting colleague, also agree with the majority that the twenty-five-day time limit for the payment of overtime wages is enforceable as a "request[ ] in writing to be paid in a different manner" than the seven-day payment requirement contained in the Wage Act. See G. L. c. 149, § 148, as appearing in St. 1960, c. 416. However, I do not believe it was necessary to "harmonize the Wage Act with c. 150E" as the majority holds. Ante at ----, 110 N.E.3d at ----. Collective bargaining agreements (CBAs) are not the kind of contracts from which the Wage Act was attempting to protect workers. 1 , 2
*469
See
Rooney
v.
Yarmouth
,
I dissent, however, from the majority holding that employees subject to the CBA may elect to enforce its provision for the payment of overtime wages by employing the judicial remedy contained in the Wage Act. Ante at ----, 110 N.E.3d at ----. The appropriate forum for the remedy is arbitration, as stated in the CBA.
In 1974, the town of Yarmouth (town) voted to accept the provisions of G. L. c. 41, § 108L (the Quinn Bill).
3
Rooney
,
supra
at 487,
"[ Section] 108L does not vest in [the employee] a personal, substantive, nonwaivable statutory guarantee that he is free to enforce judicially notwithstanding the incorporation of § 108L into the [CBA].... [The employee] plainly does not have in § 108L an independent statutory right that is unencompassed by the [CBA].... We conclude that, by agreeing to the incorporation of § 108L into the [CBA], the union effectively waived any right [the employee] may have had to judicial relief based on § 108L. [The employee's] exclusive remedy ... was through the grievance process provided in the agreement."
*470
Id.
at 492, 494,
The cases cited by the majority to support the proposition that this case represents a situation of a nonwaivable right are inapposite. See
Blanchette
v.
School Comm. of Westwood
,
And, finally, the majority misunderstands the holding in
Newton
v.
Commissioner of the Dept. of Youth Servs.
,
The Wage Act allowed the inclusion of the provision of the CBA at issue here, and the majority agrees with this. Ante at ----, 110 N.E.3d at ----. The twenty-five-day payment requirement contained in the CBA exists only in the CBA and not in the Wage Act. The CBA does not and cannot amend the Wage Act. The twenty-five-day payment requirement created by, and existing only in, the CBA can be enforced *471 only within the forum (i.e., arbitration) provided in the CBA.
The plaintiffs became State employees when the Legislature transferred the sheriff's department to the Commonwealth on January 1, 2010. See St. 2009, c. 61, §§ 3, 4, 26;
Sheriff of Suffolk County
v.
Jail Officers & Employees of Suffolk County
,
The record includes copies of the CBAs between the sheriff and the three unions for the periods July 1, 2009, to June 30, 3012; July 1, 2012, to June 30, 2014; and July 1, 2014, to June 30, 2017. In the agreements for 2009 through 2012, the employer was Suffolk County, "acting by and through the Sheriff of Suffolk County, hereinafter called 'the Municipal Employer.' " In the later CBAs, the employer was changed to the Commonwealth, reflecting the transfer of the sheriff's department to the Commonwealth. Nonetheless, the CBAs continued to refer to the sheriff as the "Municipal Employer."
The plaintiffs allege that overtime payments were made "from one to eight months or more after the regular bi-weekly pay period ended." The sheriff admits "that there were a de minimus number of payments, representing a mere fraction of all of the payments in this case, that eclipsed the 25 day payment term."
Under G. L. c. 149, § 150, the Attorney General may institute civil or criminal actions to enforce § 148. In addition, individual employees aggrieved by Wage Act violations may file civil suits on their own behalf ninety days after filing a complaint with the Attorney General or sooner if the Attorney General gives her written assent.
The plaintiffs have voluntarily dismissed all claims except their claim for untimely payment of overtime wages.
Because claims under the Wage Act, like claims under the antidiscrimination law, concern individual rather than collective rights and are protected by a strong, statutorily expressed public policy, the case law concerning waiver of antidiscrimination claims is uniquely applicable here. These statutory rights are "unlike ... the right to receive a financial reward beyond his base salary for advancing his education and job training," at issue in
Rooney
v.
Yarmouth
,
In
Warfield
v.
Beth Israel Deaconess Med. Center, Inc.
,
To the extent our dissenting colleagues assert that the presumption of arbitrability overrides the need for a clear and unmistakable waiver, the Supreme Judicial Court considered that issue at length, see
Warfield
,
supra
at 397-401,
Our dissenting colleagues erroneously contend that the twenty-five-day provision is solely a creature of the CBAs. Post at ----, 110 N.E.3d at ----. To the contrary, it represents a "request[ ] in writing," made under the provisions of the Wage Act, "to be paid in a different manner." G. L. c. 149, § 148, as appearing in St. 1960, c. 416.
In
Dixon
,
supra
at 277 n.8,
Justice Singh, in her dissent, asserts that "[b]y agreeing to arbitrate a statutory claim, a party does not forgo the substantive rights afforded by the statute," quoting from
Mitsubishi Motors Corp.
v.
Soler Chrysler-Plymouth
,
See
Blanchette
v.
School Comm. of Westwood
,
Although the arbitration clause in
Machado
was contained within individual franchise agreements, as opposed to a CBA, "[n]othing in the law suggests a distinction between the status of arbitration agreements signed by an individual employee and those agreed to by a union representative."
14 Penn Plaza LLC
v.
Pyett
,
"By agreeing to arbitrate a statutory claim, a party does not forgo the substantive rights afforded by the statute; it only submits to their resolution in an arbitral, rather than a judicial, forum. It trades the procedures and opportunity for review of the courtroom for the simplicity, informality, and expedition of arbitration."
Mitsubishi Motors Corp.
v.
Soler Chrysler-Plymouth, Inc.
,
"During the period preceding World War I, in which [the Illinois version of the Wage Act] was originally enacted, many State legislatures outlawed and forbade certain and various kinds of individual contracts between the employer and individual employees in the belief that 'employers had an unfair economic advantage over individual wage earners because of their superior economic power, including the present control over the means of livelihood in an industrial system and took advantage of such wage earners' absolute necessity to make a living on any terms available."
Pullman Co.
v.
Cummins
,
"The national policy favoring collective bargaining and industrial self-government was first expressed in the National Labor Relations Act of 1935,
Section 108L established a career incentive pay program for police officers in the form of salary increases for officers who further their education.
Rooney
,
supra
at 487,
The CBA also incorporated a binding arbitration clause for all disputes arising out of the agreement.
Rooney
,
supra
at 486,
Significantly, both for the
Rooney
decision and our case here, a nonwaivable statutory right would include, for example, the right to the statutory minimum wage, the right to overtime pay (regardless of the timing of payment), or the right to equal employment opportunities. See, e.g.,
School Comm. of Brockton
v.
Massachusetts Commn. Against Discrimination
,
Case-law data current through December 31, 2025. Source: CourtListener bulk data.