STATE OF MAINE MAINE LABOR RELATIONS BOARD Case No. 02-UD-05 Issued: June 12, 2002 __________________________ ) ROCKPORT POLICE OFFICERS ) ASSOCIATION, ) ) Petitioner, ) ) and ) UNIT DETERMINATION REPORT ) TOWN OF ROCKPORT, ) ) Respondent. ) __________________________) PROCEDURAL HISTORY This unit determination proceeding was initiated on February 27, 2002, when Michael Jarrett for the Rockport Police Officers Association filed a petition for unit determination and bargaining agent election with the Maine Labor Relations Board ("Board"). The petition sought a determination whether a unit consisting of all full-time, non-salaried police officers and non-salaried police administrators employed by the Rockport Police Department should be created. In the petition, the prospective bargaining agent for this unit was identified as the Rockport Police Officers Association ("RPOA"). The Town of Rockport ("town" or "employer") filed a timely response to the petition, agreeing to a unit consisting of full-time police patrolmen, but arguing that the administrative assistant should be excluded as a confidential employee within the meaning of 26 M.R.S.A. 962(6)(C) and that the patrol sergeant should be excluded as a supervisor within the meaning of 26 M.R.S.A. 966(1). A unit determination hearing notice was issued on April 10, 2002, and was posted for the benefit of affected employees. The hearing was conducted on May 15, 2002. The RPOA was represented [-1-] _________________________________________________________________ by Daniel Felkel, Esq. The town was represented by labor consultant Roger Kelley. The parties were afforded full opportunity to examine and cross-examine witnesses, to present evidence and to make argument. The following witnesses were presented: for the Petitioner/RPOA: Patrolman Michael Jarrett and Patrol Sergeant Paul Pinkham; for the town: Police Chief Mark Kelley and Town Manager Kenneth Smith. The parties presented oral argument at the conclusion of the hearing. JURISDICTION The jurisdiction of the hearing examiner to hear this matter and to make an appropriate unit determination lies in 26 M.R.S.A. 966. STIPULATIONS 1. The Rockport Police Officers Association ("RPOA") is the petitioner and is the prospective bargaining agent for Rockport police bargaining unit. 2. The Town of Rockport is a public employer within the meaning of 26 M.R.S.A. 962(7). 3. There is neither a contract bar nor an election bar to the RPOA's petition. 4. The parties agree that the following positions share a community of interest and therefore comprise an appropriate unit for purposes of collective bargaining: full-time police officers below the rank of sergeant and the administrative assistant. 5. The only issue raised by this case is whether the position of sergeant should be excluded from the bargaining unit. 6. In the event that the position of sergeant is placed in -2- _________________________________________________________________ its own supervisory bargaining unit, the RPOA wishes to participate in an election for that unit. EXHIBITS The following exhibits were admitted without objection: Association No. 1 Paul Pinkham performance evaluation, January 19, 2001 Association No. 2 Paul Pinkham performance evaluation, May 1, 2002 Employer No. 1 Performance evaluation form (blank) Employer No. 2 Job description, patrolman Employer No. 3 Job description, patrol sergeant FINDINGS OF FACT 1. The Town of Rockport employs approximately 27 employees. There is currently no bargaining agent recognized or certified for any bargaining unit in the town. 2. The head of the town's police department is the Police Chief. The remainder of the department consists of six employees: one patrol sergeant, four patrolmen, and one administrative assistant. The police department also employs three part-time patrolmen, but they are not employed on a regularly-scheduled basis (and are not involved in this petition). 3. One of the patrolmen is a "school resource officer," hired under a special federal grant. This person is supervised directly by the Police Chief, in coordination with local school officials. During the school year, the school resource officer works in and around the schools. In the summer, the school resource officer functions like the other patrolmen. -3- _________________________________________________________________ 4. The department operates 24 hours per day, on a three- shift per day system which has long been in place. The police chief works during the day, Monday through Friday, although he works many additional hours and might stop by the department at various hours at any time. The patrol sergeant works during the day, Tuesday through Saturday. The other patrolmen work the remaining evening and night shifts, on a regularly-scheduled basis that rotates every two months. One patrolman works alone on each of the evening and night shifts. 5. The current police chief has served in this capacity since 1996. The current patrol sergeant was hired in 1995 as a patrolman, and was promoted to patrol sergeant in 1997. 6. The position of patrol sergeant was created in about 1996. The present police chief first held the position briefly before becoming the police chief. 7. The patrolmen spend most of their shifts in a patrol car, driving patrol and responding to calls as needed. Dispatch calls are primarily forwarded from the county 911 system. The patrolmen might spend one hour per shift at the police department office, doing paperwork, making telephone calls, and performing other administrative tasks. 8. The patrol sergeant functions as the primary patrolman on the day shifts on which he is scheduled to work. He spends the majority of his time in a patrol car or at the police department office, performing the same tasks as other patrolmen. 9. The police chief also spends some time performing the functions of a patrolman on the day shifts on which he is scheduled to work. However, the town manager and selectmen would like the police chief to reduce his patrol work even more than he does, and spend even more time as an administrator and "public -4- _________________________________________________________________ relations" person for the department and the town. 10. In addition to patrol functions, the patrol sergeant is assigned to certain supervisory functions pertaining to the patrolmen. The patrol sergeant has relatively limited contact with the patrolmen (mostly during the shift changes). The patrol sergeant reviews some reports generated by the patrolmen, and reviews logs which show the 911 activity during evening and night shifts. 11. The patrol cars are equipped with video and audio equipment. The patrolmen are required to video tape all traffic stops. In addition, the patrolmen may elect to video or audio tape other transactions during their shifts. The patrol sergeant spends some time (perhaps two hours per month) reviewing the tapes generated by the patrolmen, especially if there is a complaint. 12. The patrol sergeant writes the yearly performance evaluations for the patrolmen. The police chief reviews the performance evaluations and has the authority to change the evaluations, but has not found the need to do so. The police chief writes the performance evaluations for the patrol sergeant. 13. The patrol sergeant is empowered to given oral or written discipline to the patrolmen. He has needed to use this authority very infrequently. The patrol sergeant has issued approximately one written warning to a patrolman in the last five years. The patrol sergeant would consult with the police chief before giving such a warning. 14. The job descriptions for the patrolmen and the patrol sergeant indicate that both positions "report to" the police chief. -5- _________________________________________________________________ 15. The patrol sergeant handles scheduling for the police department. This is a fairly perfunctory task of assigning the patrolmen to the set shift schedule. Patrolmen generally contact the patrol sergeant about vacations and other schedule changes. 16. The patrolmen work in an independent fashion on their respective shifts, with little direct supervision. Work is not generally "assigned" to them. Either the police chief or the patrol sergeant may question a patrolman about the conduct of an investigation or other on-going work. 17. The patrol sergeant spends the majority of his time performing patrol work. He spends approximately 15 to 20 percent of his time performing supervisory tasks that are unlike the patrolmen (like reviewing reports and video tapes, scheduling, and writing evaluations). 18. If a citizen complains about the conduct of a police officer, they are asked to complete a written complaint form. In the past five years, about ten complaint forms have been requested, but only one has been completed and returned. When the police chief or the patrol sergeant learns of a written complaint that might be submitted, they generally talk to the patrolman and the citizens involved and resolve matters informally. 19. If a written complaint form is submitted, the patrol sergeant has been active in doing the initial investigation of the complaint. The information is then given to the police chief for action. 20. In one unusual case in 2001, the patrol sergeant recommended to the police chief that one patrolman (who has since left the force), be given a seven-day suspension or perhaps discharged following his investigation of a citizen complaint. -6- _________________________________________________________________ The police chief chose to give the patrolman a shorter suspension and a six-month probationary period. The patrolman involved grieved the discipline under the town personnel policies. The matter was then handled by the police chief, the town manager and the selectmen. 21. This case was an aberration, however. The patrolmen are generally self-directing and receive limited amounts of supervision or discipline. A patrolman might see the patrol sergeant on average of once per week. 22. As town employees, the police department employees are subject to the town personnel policies. Any employment grievances are first handled by the police chief. The patrol sergeant is not involved in adjusting employee grievances. 23. The police chief establishes all operating procedures for the police department, as well as performance standards not outlined in the town personnel policies. 24. The patrol sergeant is not directly involved in hiring, firing or promoting of police department employees. 25. The police chief approves all staff training for which a fee must be paid. 26. The patrol sergeant and the patrolmen are paid hourly and have similar benefits, hours of work and other terms and conditions of employment. 27. Of the police department employees, the police chief and the patrol sergeant have the most interchange, as they work four overlapping shifts. The patrol sergeant and the patrolmen have a limited amount of interchange, at shift changes and at other department functions. -7- _________________________________________________________________ 28. The positions of patrol sergeant and patrolman have the same basic educational requirements--high school degree and completion of basic law enforcement course from the Maine Criminal Justice Academy ("MCJA"). 29. To be offered the patrol sergeant position, a candidate is expected to have supervisory experience or, if no experience, to take supervisory classes at the MCJA. 30. A police department bargaining unit was formed by agreement of the Town of Rockport and Teamsters Local Union No. 48 signed on March 8, 1985. The positions in the unit at that time were the police officers, the sergeant/dispatcher, and the police dispatchers. The Teamsters were certified as the bargaining agent for this unit following an election conducted April 2, 1985. The Teamsters disclaimed interest in representing the unit in 1993, and the Board revoked the certification of the Teamsters as bargaining agent on March 5, 1993. 31. All of the patrolmen, the patrol sergeant, and the administrative assistant desire the creation of a bargaining unit which includes the patrolmen, the patrol sergeant, and the administrative assistant. 32. Other Knox County towns with organized police departments (Camden, Rockland and Thomaston) have bargaining units with sergeants in the same bargaining units as the patrol officers. DISCUSSION The sole issue presented by this case is whether the patrol sergeant position exercises sufficient supervisory authority over the patrolmen, as defined in 26 M.R.S.A. 966(1), that he should -8- _________________________________________________________________ be excluded from a bargaining unit consisting of the patrolmen and the administrative assistant. In addition, the hearing examiner will consider whether a community of interest exists among the employees in the proposed unit. Unlike the National Labor Relations Act, the Municipal Public Employees Labor Relations Law ("MPELRL") grants supervisors collective bargaining rights and permits the inclusion of supervisors in bargaining units of subordinate employees in certain circumstances. In Penobscot Valley Hospital and Maine Federation of Nurses and Health Care Professionals, No. 85-A-01, slip op. at 8 (MLRB Feb. 6, 1985), the Board stated: Section 966(1) does not require the exclusion of supervisory employees from bargaining units composed of the employees whom they supervise but relegates the decision of the supervisory employee's unit status to the sound discretion of the hearing examiner. MSAD No. 14 and East Grand Teachers Association, MLRB No. 83-A-09, at 12 (Aug. 24, 1983). Except in instances where the resulting one- or two-member supervisory unit would contravene our policy of discouraging the proliferation, through fragmentation, of small bargaining units, we have approved the creation of such separate supervisory units. . . . The purpose of creating separate supervisory employee bargaining units is to minimize potential conflicts of interest within bargaining units, between supervisors and their subordinate employees, as well as to lessen conflicts of loyalty for supervisors between duty to their employer and allegiance to fellow unit employees. Section 966(1) gives guidance to the hearing examiner in identifying situations where conflicting interests and loyalties may arise. The relevant portion of 966(1) states: In determining whether a supervisory position should be excluded from the proposed bargaining unit, the executive director or his designee shall consider, among other criteria, if the principal functions of the position are characterized by performing such management control duties as scheduling, assigning or -9- _________________________________________________________________ overseeing and reviewing the work of subordinate employees, or performing such duties as are distinct and dissimilar from those performed by the employees supervised, or exercising judgment in adjusting grievances, applying other established personnel policies and procedures and in enforcing a collective bargaining agreement or establishing or participating in the establishment of performance standards for subordinate employees and taking corrective measures to implement those standards. The focus of this three-part test is to determine whether the supervisor exercises a level of control over employment-related issues that would likely result in a conflict of interest. See Richmond Employees Ass'n and Town of Richmond, No. 94-UD-09, slip op. at 30 (MLRB Apr. 26, 1994). Under the first portion of the test outlined in 966(1), the hearing examiner must evaluate whether the principal functions of the patrol sergeant position involve scheduling, assigning, overseeing or reviewing the work of the patrolmen. The patrol sergeant is the person in the department primarily in charge of scheduling the patrolmen. This is, by and large, a perfunctory task utilizing a long-standing schedule. The patrol sergeant is also in charge of approving shift-swapping and covering vacant shifts during vacations and sick time. The police chief made clear in his testimony that he wanted the patrolmen to seek out the patrol sergeant on these scheduling issues, not the police chief, in order to eliminate any confusion in the schedule. However, there seemed little doubt that the police chief would have the last word on scheduling conflicts, if a conflict could not otherwise be resolved. The patrol sergeant has a minimal role in assigning or even overseeing work, due to the fact that the patrolmen work quite independently on their respective shifts. Each patrolman performs the work of his shift alone, performing the tasks that come his way during the shift, plus any follow-up work. The fact that the patrolmen work with -10- _________________________________________________________________ such independence is a relevant factor in evaluating the first prong of 966(1). See Ellsworth Fire Fighters Ass'n and City of Ellsworth, No. 91-UD-19 (MLRB Aug. 2, 1991) (deputy fire chief and lieutenant included in the same bargaining unit as subordinate fire fighters; fire fighters functioned independently). The patrol sergeant spends some time directly overseeing the work of patrolmen when he reviews video tapes generated in the patrol cars, or reviews reports written by the patrolmen. The patrol sergeant writes and signs the annual evaluations for the patrolmen. The police chief reviews the evaluations but has never exercised his authority to change any of the evaluations. It is noteworthy that despite the supervisory functions that the patrol sergeant exercises, the job description for the patrolmen states that the position "reports to" the police chief. The patrol sergeant exercises some of the kinds of supervisory authority mentioned in the first prong of 966(1), all of which may lead to conflicts between the patrol sergeant and the patrolmen. However, the issue remains whether these supervisory duties constitute the principal function of the patrol sergeant position. The parties spent considerable time in estimating how much time the patrol sergeant spent performing supervisory duties as opposed to duties that are like the other patrolmen. On this issue, the hearing examiner gave considerable weight to the testimony of the patrol sergeant, as the hours he testified that he spent performing specific supervisory tasks was commensurate with the percentage of time that he estimated spending overall on such tasks--perhaps 15 to 20 percent of his time in total. Other hearing examiners have used the percentage of work hours devoted to performing tasks as a gauge to determine whether those tasks are the "principal" or "primary" functions of -11- _________________________________________________________________ a position.[fn]1 This hearing examiner does not believe that the time spent on supervisory tasks can be the sole gauge of whether supervisory tasks are the principal function of a position; for example, if the fact that the patrol sergeant writes the patrolmen's yearly evaluations can generate the sort of conflict that should require his exclusion from the bargaining unit, it makes little difference that he only spends four hours per year writing those evaluations. On the other hand, the more time a supervisor spends actively assigning and overseeing work of subordinates, the more likely it is that conflicts may arise. In this case, while the patrol sergeant performs some important supervisory functions with limited oversight by the police chief, he spends a significant portion of his work hours performing the same job as the patrolmen. He spends little time actively supervising the patrolmen. He is, in some respects, like a "line foreman" or "working foreman," which the Board has long found may be included in the same bargaining unit as subordinates.[fn]2 __________________ 1 See, e.g., Richmond Employees Ass'n and Town of Richmond, No. 94-UD-09, slip op. at 31 (MLRB Apr. 26, 1994) (highway foreman performs duties similar to subordinates during "majority of his workday"); AFSCME Council 93 and City of Saco, No. 93-UC-02, slip op. at 19 (MLRB Dec. 10, 1992) (recycling foreman spends eighty percent of workday performing work identical to subordinates); Teamsters Local No. 48 and Van Buren Light and Power District, No. 85-UD-14, slip op. at 8-9 (MLRB Jan. 25, 1985) (line foreman's job content not distinct and dissimilar for the "substantial portion of his working hours"); Council 74, AFSCME and Rockland Waste Water Treatment Facility, No. 82-UD-03, slip op. at 3-4 (MLRB Aug. 12, 1981) (head mechanic spends one-half of his time operating lathe machine tool); and Teamsters Local No. 48 and Town of Pittsfield, No. 81-UD-09, slip op. at 2 (MLRB Jan. 15, 1981) ("vast majority" of police sergeant's time devoted to regular patrol work). 2 See Teamsters Local Union No. 48 and Van Buren Light and Power District, supra (duties of line foreman who assigns, oversees and reviews work of employees determined as a whole not to be so distinct and dissimilar from those performed by supervised employees to warrant exclusion from proposed unit); Teamsters Local Union No. 48 and Town of Pittsfield, supra (sergeant position found to be "working supervisor" where supervisory duties were limited and undemanding and where majority of time was devoted to regular patrol work). -12- __________________________________________________________________________ Considering both the type of supervisory functions the patrol sergeant performs and the amount of time he spends performing them, the principal function of the position is not the performing of supervisory tasks as outlined in the first prong of 966(1). The second prong of the test in 966(1) requires that the hearing examiner evaluate whether the patrol sergeant performs duties that are "distinct and dissimilar" from the duties performed by the employees that he supervises. This requirement has been described as: [D]uties contemplated by the 'distinct and dissimilar' criterion include those in connection with hiring (or making recommendations), transfers, layoffs and recalls, and promotions - duties that substantially align the interests of the supervisor with the interests of the employer and cause conflicts of interest [with other employees]. State of Maine and MSEA, No. 91-UC-04, slip op. at 15 (MLRB Apr. 17, 1991). The patrol sergeant does not have significant authority in any of these areas--hiring, promoting, transferring and the like. All authority in these areas, as well as the authority to suspend, discharge or lay off, is held by the police chief and the town manager. As to the third prong of the test outlined in 966(1), the patrol sergeant has no role in adjusting grievances or establishing performance standards. The patrol sergeant plays a role in taking corrective measures to implement the performance standards set by the police chief and the town. The patrol sergeant is authorized to give the patrolmen both oral and written reprimands. He has rarely used his authority, in fact. His discipline generally consists of such things as reminding a patrolman to clean up his patrol car. Perhaps due to the fact that discipline has been needed infrequently, the police sergeant testified that he would consult with the police chief before -13- _________________________________________________________________ giving a patrolman any written discipline. The fact that discipline has been infrequently needed is a testament to the quality of the patrolmen, the patrol sergeant and the police chief in the town. However, the incident involving the patrolman who was suspended in 2001 and then left the force underlines the fact that the patrol sergeant has disciplinary authority, even though he needs to use it infrequently. The patrol sergeant investigates citizen complaints regarding the patrolmen. While this authority could lead to supervisory conflict, such conflict is minimized by the fact that the police chief ultimately determines how a patrolman should be disciplined following the investigation. In summary, an evaluation of the criteria of 966(1) shows that the patrol sergeant position exercises some supervisory authority that could place him in conflict with the patrolmen, particularly his authority to write annual evaluations of the patrolmen, to discipline the patrolmen (to a point), and to conduct internal affairs investigations. On the other hand, he spends comparatively little time performing these functions. He exercises little or no authority in many other areas (such as hiring, discharging, adjusting grievances) that would similarly lead to conflict. The patrolmen function quite independently on their shifts and the patrol sergeant has limited opportunity to oversee and supervise their work in any fashion that could lead to conflict. Therefore, while this is a somewhat "closer case" than some Board precedent involving the placement of supervisors, the hearing examiner concludes that the patrol sergeant does not exert such extensive supervisory authority to warrant his placement in a separate bargaining unit. This conclusion is supported strongly by the Board's policy against the proliferation of small bargaining units, particularly the formation of one- and two-member supervisory units. The Board's policy has rather been to "include supervisor positions -14- _________________________________________________________________ in rank-and-file units rather than establish small, separate supervisory bargaining units." MSAD No. 43 and MSAD No. 43 Teachers Ass'n, No. 84-A-05, slip op. at 4 (MLRB May 30, 1984). The rationale underlying the Board's policy against non- proliferation is as follows: Small bargaining units must be bargained for and serviced just as do large bargaining units. The State is obligated to provide under 26 M.R.S.A. 965 the same mediation and arbitration services for small units as are provided for large units. The formation of small bargaining units among employees in the same department can thus result in the employer, the union, and the State expending an amount of time, energy and money all out of proportion to the number of persons served. MSAD No. 43, slip op. at 4, 5. The Board has also found that the " . . . creation of a single-member bargaining unit may well impede the individual, placed therein, from securing the free exercise of his collective bargaining rights, in contravention of the spirit and intent of Section 963 of the Act." MSAD No. 14 and East Grand Teachers Ass'n, No. 83-A-09, slip op. at 13 (MLRB Aug. 24, 1983), citing Town of Sabattus and Teamsters Local Union No. 48, No. 82-A-01, slip op. at 4 (MLRB Sept. 17, 1981). Based upon this non-proliferation policy, supervisors have been included in a bargaining unit with their subordinates who exercise greater supervisory functions than the patrol sergeant here exercises.[fn]3 In the present matter, the bargaining unit as proposed is __________________ 3 See, e.g., Lubec Education Association, MTA/NEA and MSAD No. 19 Board of Directors, No. 83-UD-17 (MLRB Apr. 13, 1983) where a head bus driver/custodian was included in the unit due to the Board's policy against over fragmentation of units, although the position's supervisory duties included scheduling, assigning, reviewing and overseeing work of employees, submitting a budget for salaries and supplies, ordering supplies up to $500, interviewing and participating in the hiring of subordinates, adjusting grievances, applying personnel policies and participating in the formulation of job descriptions and performance criteria. -15- _________________________________________________________________ already a small unit (six employees). It would clearly contravene the Board's non-proliferation policy to exclude the patrol sergeant, thus creating one unit consisting of five employees and one unit of consisting of one employee. Considering both the provisions of 966(1) and the Board's non- proliferation policy, the patrol sergeant should not be excluded from the bargaining unit consisting of the patrolmen and the administrative assistant. Finally, the issue of whether the patrol sergeant shares a community of interest with the patrolmen and the administrative assistant must be briefly addressed. The employer stipulated that the patrolmen and the administrative assistant share a community of interest, but would not stipulate, if the patrol sergeant was not placed in a separate supervisory unit, that this position shared a community of interest with the other positions in the unit. At the same time, the employer presented almost no evidence on the subject of community of interest. In determining whether employees share the requisite community of interest in matters subject to collective bargaining, the following factors, at a minimum, must be considered: (1) similarity in the kind of work performed; (2) common supervision and determination of labor relations policy; (3) similarity in the scale and manner of determining earnings; (4) similarity in employment benefits, hours of work and other terms and conditions of employment; (5) similarity in the qualifications, skills and training among the employees; (6) frequency of contact or interchange among the employees; (7) geographic proximity; (8) history of collective bargaining; (9) desires of the affected employees; (10) extent of union organization; and (11) the employer's organizational structure. See Chap. 11, 22(3) of the Board Rules. Bearing in mind that the employer has already stipulated that the patrolmen and the administrative assistant share a community of interest, it is -16- _________________________________________________________________ easily concluded that the patrol sergeant shares a community of interest with the unit as well. The patrol sergeant spends the majority of his time performing the same work as the other patrolmen. All of the positions in the proposed unit are ultimately supervised by the police chief. All positions are paid hourly, work on a shift basis, and are provided similar employment benefits. The patrol sergeant and patrolmen have similar initial qualifications, skill and training. The positions work in the same building and have at least some opportunity for interchange. The police officers (along with dispatchers) were previously organized as a bargaining unit, prior to the creation of the position of patrol sergeant. The patrol sergeant, patrolmen and the administrative assistant all desire to be in one unit. There are no other organized bargaining units in the town. No information was presented generally on the town's organizational structure, but the proposed unit encompasses all of the positions in the police department (other than the police chief), which appears to be a separate department of the town. For all of these reasons, the hearing examiner concludes that the patrol sergeant should be included in a bargaining unit with the patrolmen and the administrative assistant. CONCLUSION On the basis of the foregoing facts and discussion and pursuant to the provisions of 26 M.R.S.A. 966, the petition for unit determination filed on February 27, 2002, by Michael Jarrett on behalf of the Rockport Police Officers Association is granted. The following described unit is held to be appropriate for purposes of collective bargaining: -17- _________________________________________________________________ INCLUDED: Patrol sergeant, patrolmen and administrative assistant. EXCLUDED: Police chief and all other employees of the Town of Rockport. A bargaining agent election for this unit will be conducted forthwith. Dated at Augusta, Maine, this 12th day of June, 2002. MAINE LABOR RELATIONS BOARD /s/_________________________ Dyan M. Dyttmer Hearing Examiner The parties are hereby advised of their right, pursuant to 26 M.R.S.A. 968(4), to appeal this report to the Maine Labor Relations Board. To initiate such an appeal, the party seeking appellate review must file a notice of appeal with the Board within fifteen (15) days of the date of issuance of this report. See Chapter 10 and Chap. 11 30 of the Board Rules. -18- ______________________________________________________________________________