DeLeire v. Contributory Retirement Appeal Board

605 N.E.2d 313, 34 Mass. App. Ct. 1, 1993 Mass. App. LEXIS 2
Massachusetts Appeals Court·Decided January 8, 1993·No. No. 91-P-981·Published·Cited by 4 cases

Opinion

Fine, J.

Former Revere Police Chief John A. DeLeire was convicted of conspiracy in a Federal court based upon his purchase of an advance copy of the promotional examination for the chiefs position. This appeal concerns his right to a superannuation retirement pension. Both the Revere retirement board and the Contributory Retirement Appeal Board (CRAB) ruled against DeLeire, but a Superior Court judge, upon a review of the CRAB decision, ruled in DeLeire’s favor, remanding the case to CRAB to provide the pension. In the circumstances, we conclude that DeLeire has not established his right to the pension.

The essential facts are undisputed. DeLeire joined the Revere police force in 1960. He was appointed chief on March 8, 1980, after being the top performer on a promotional examination given on August 4, 1979. On July 31, 1986, a Federal grand jury indicted DeLeire for conspiracy in violation of 18 U.S.C. § 371 (1976), alleging that before he took the examination he had purchased a stolen copy of it. On the same day, he was suspended in accordance with G. L. c. 268A, § 25.1 On May 7, 1987, DeLeire was found guilty of [3] the conspiracy charge, and, on June 12, 1987, he was sentenced to four years in Federal prison. On May 17, 1988, as a result of the conviction, the Personnel Administrator invalidated DeLeire’s promotion to police chief. On February 1, 1989, the conviction was affirmed on appeal. On February 6, 1989, DeLeire, fifty-six years of age at the time, applied to the Revere retirement board for superannuation retirement under G. L. c. 32, § 5; the application was denied on March 30, 1989. One day earlier, on March 29, 1989, he had written the following letter to the mayor of Revere: “I hereby resign my position as Police Chief effective immediately.”

CRAB ruled that DeLeire’s “resignation” was ineffective in terminating his suspension and denied his right to a pension in accordance with G. L. c. 268A, § 25, which, provides that “[no] person who retires from service while under such suspension [shall] be entitled to any pension or retirement benefits, notwithstanding any contrary provisions of law. . . .” The Superior Court judge, on the other hand, ruled that DeLeire’s “resignation” was effective to terminate the suspension, and that, while the result was unfortunate in light of the betrayal of the public trust, no other statute authorized [4] forfeiture of the pension rights to which DeLeire was otherwise entitled.

On appeal, CRAB presses its argument that DeLeire’s “resignation” did not terminate his suspension under G. L. c. 268A, § 25. Alternatively, CRAB contends that under G. L. c. 279, § 30, upon his conviction and sentencing, DeLeire was discharged from his position as police officer by operation of law and that, because the discharge was with moral turpitude, under G. L. c. 32, § 10(1), he is ineligible to receive his retirement benefits. We discuss the issue of the effect of the “resignation,” which was the focus of the earlier proceedings, although, in view of our acceptance of CRAB’s alternative argument, our resolution of the case does not turn on the issue.

1. The effect of the “resignation” on the suspension. General Laws c. 268A, § 25, precludes payment of retirement benefits to county, municipal, and district employees while under suspension. See Indorato v. Contributory Retirement Appeal Bd., 20 Mass. App. Ct. 935, 936 (1985)(construing G. L. c. 30, § 59, which uses identical language with respect to State employees). Compare Massachusetts Bay Transp. Authy. v. Massachusetts Bay Transp Authy. Retirement Bd., 397 Mass. 734, 739 (1986). Immediately upon his indictment, DeLeire was notified in writing that he was being suspended in accordance with G. L. c. 268A, § 25, and that, as the statute provides, the suspension would last until notification of its removal in writing. There is no indication that he had ever received such notification. The term of his office had not expired, compare Brown v. Taunton, 16 Mass. App. Ct. 614, 619 (1983), and he had not been formally discharged, compare Massachusetts Bay Transp. Authy. v. Massachusetts Bay Transp. Authy. Retirement Bd., 397 Mass, at 738.

Putting aside for the moment the question whether DeLeire may have been removed or discharged by operation of law as a result of his conviction under G. L. c. 279, § 30, we come to the question whether DeLeire’s letter of “resignation” terminated the suspension. We agree with CRAB [5] that it did not. First, the letter was not a clear and unequivocal statement of DeLeire’s intent to resign as a Revere police officer. DeLeire stated that he was resigning only as police chief, a position from which he had been formally demoted almost a year earlier. The letter was, at best, ambiguous as to his intention and, for that reason, ineffective. In addition, as a unilateral effort on DeLeire’s part to save his pension in the face of his conviction, it was ineffective for the intended purpose. This is because, generally, resignation from public office is ineffective without acceptance. See Warner v. Selectmen of Amherst, 326 Mass. 435, 438 (1950); Campbell v. Boston, 337 Mass. 676, 678 (1958); Jones v. Wayland, 4 Mass. App. Ct. 725, 735 (1976). In Caples v. Secretary of the Commonwealth, 350 Mass. 638 (1966), on which the Superior Court judge relied, the resignation to which effect was given had been accepted by the Governor. Whereas it may ordinarily be assumed that a resignation is accepted if it is received and receipt is not followed by a reasonably prompt objection, that assumption would not apply in these circumstances. It is also apparent that DeLeire’s only purpose in tendering his “resignation” was to obtain the retirement benefits, which, as a result of his conviction, were in jeopardy, and to defeat the evident purpose of G. L. c. 268A, § 25. One day after he sent the letter to the mayor, the Revere retirement board denied his application for retirement benefits. In these circumstances, an inference that his “resignation” was accepted is not warranted.

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DeLeire v. Contributory Retirement Appeal Board, 605 N.E.2d 313, 34 Mass. App. Ct. 1, 1993 Mass. App. LEXIS 2 (Mass. Ct. App. 1993).

605 N.E.2d 313 (DeLeire v. Contributory Retirement Appeal Board) — published by Counsel Stack Legal Research, free access to 12M+ legal documents.

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