Petrella v. Siegel

843 F.2d 87, 1988 WL 26673
CourtCourt of Appeals for the Second Circuit
DecidedMarch 28, 1988
DocketNo. 484, Docket 87-7649
StatusPublished
Cited by22 cases

This text of 843 F.2d 87 (Petrella v. Siegel) is published on Counsel Stack Legal Research, covering Court of Appeals for the Second Circuit primary law. Counsel Stack provides free access to over 12 million legal documents including statutes, case law, regulations, and constitutions.

Bluebook
Petrella v. Siegel, 843 F.2d 87, 1988 WL 26673 (2d Cir. 1988).

Opinion

GEORGE C. PRATT, Circuit Judge:

We are faced on this appeal with a relatively straightforward due process claim made complicated by the unusual context surrounding the alleged deprivation of property without due process. Joseph Pe-trella’s claim that he was terminated without due process from his position as superintendent of Community School District 28 (“the district”) in Forest Hills, New York, was dismissed because, in the district court’s view, the school board’s defense— that Petrella was not dismissed, but had resigned — made the issue one of state contract law rather than of federal due process. We disagree and reverse.

BACKGROUND

Joseph Petrella became the superintendent of the district on February 1, 1985, under a contract that expired on June 30, 1987. Early in 1987, Petrella and the board entered into an extension contract, under which his employment was extended for three years through June 30, 1990.

Shortly thereafter, Petrella and the board became locked in a dispute, ostensibly centering on Petrella’s having tried to create a position of “director of curriculum”, an action rejected by the board. The board claims that Petrella tendered his resignation, apparently orally, on May 4, 1987, because he believed the board no longer shared his “vision” of how the district should be operated. The board sought to accept the “resignation” on May 7th, by a letter sent to Petrella by board president Rita Siegel.

Petrella responded by informing Siegel that he intended to honor the extension contract, and that “[y]our letter is completely in error” in assuming that Petrella had resigned.

The board then scheduled a special meeting for May 21, at which it would consider a resolution “that the employment of Joseph Petrella * * * is terminated as of June 30, 1987”. Petrella brought this suit on May 20, and sought an injunction preventing the board from taking any action to terminate his employment. He requested a temporary restraining order to block the May 21st board meeting.

Judge McLaughlin denied the TRO, but by order to show cause directed the defendants to justify their termination of Petrella at the meeting “if such termination takes place”. The next night, the board adopted a resolution accepting Petrella’s purported resignation and thereby terminated his employment as of June 30.

Petrella then moved for an injunction preventing his termination, and the board cross-moved to dismiss the complaint under Fed.R.Civ.P. 12(b). The court denied Pe-trella’s motion on the ground that he had not shown the necessary irreparable harm, but reserved decision on the defendants’ cross-motion for dismissal.

On July 9, 1987, the district court granted the cross-motion and dismissed Petrel-la’s complaint. It reasoned that on no version of the facts would Petrella have been entitled to a due process, pre-termination hearing. If the board was correct that Petrella had resigned, then the board was within its rights to accept his resignation, and no hearing was required. If Petrella had not resigned, then the appropriate relief would be reinstatement and damages for breach of the extension contract, rather than a hearing, since the board conceded that absent a resignation the termination was wrongful. The court therefore characterized the claim as a simple state law contract dispute revolving around the single issue of whether Petrella’s conduct constituted a resignation. Since the state-law issue would control the ultimate outcome and indeed was the only real point of dispute, the district court concluded that no federal claim for relief was presented. Pe-trella appeals.

With his federal action dismissed and with time running out on his possible state-court remedies, Petrella brought an Article 78 proceeding in the Queens County Supreme Court, and that proceeding was pending at the time of argument of this appeal.

[89]*89After oral argument, we were informed that Petrella’s Article 78 petition was granted and that he had been ordered reinstated as superintendent with back pay. The state court held that as a “public officer”, Petrella could resign only in writing under Public Officers Law § 31. Since his “resignation” was not in writing, there had been no resignation as a matter of law, and the board could not terminate Petrella without adhering to the removal procedures contained in his contract. The city represents that it intends to appeal that decision. We discuss the impact of the state court’s determination below.

DISCUSSION

Much of what is normally the subject of civil rights employment disputes based on due process claims is here agreed to by the parties. There is no claim of any misconduct by Petrella; nor is there a claim that the board’s actions satisfied the due process that would have to accompany any deprivation of Petrella’s property rights under the extension contract. In short, the board concedes that if Petrella did not resign, then he was wrongfully terminated in violation of his contract. The board argues, and the district court agreed, that this circumstance renders the case solely one of state contract law, and that it therefore raised no federal due process implications. This position is without merit.

It is well settled that when a governmental employee has tenure or a contract right to continued employment, that right constitutes “property” that is protected by the fourteenth amendment’s due process clause. See Board of Regents of State Colleges v. Roth, 408 U.S. 564, 576-77, 92 S.Ct. 2701, 2708-09, 33 L.Ed.2d 548 (1972). Regardless of possible state law remedies, interference with such a right without due process protections is a violation of the fourteenth amendment subject to redress under 42 U.S.C. § 1983.

The district court decided that no due process issue was presented by analyzing the case in terms of the relief to which Petrella would be entitled if, as he alleges, he did not resign. Judge McLaughlin said, “If plaintiff has not resigned * defendants’ rescission is wrongful; then plaintiff's remedy is specific performance and damages. * * * [Wjhichever way the fact issue [is resolved], no hearing is required because no removal from office is involved.”

This analysis approaches the issue from the wrong direction. Whether plaintiff suffered a constitutional deprivation is not determined by whether a hearing would be appropriate relief; reinstatement with back pay is often appropriate relief where the property deprived was a right to continued employment. See, e.g., Loudermill v. Cleveland Board of Education, 721 F.2d 550, 553 (6th Cir.1983) (remedy sought for deprivation of property right to continued employment was reinstatement with back pay), aff'd, 470 U.S. 532, 105 S.Ct. 1487, 84 L.Ed.2d 494 (1985). Although that relief may be available in state-court review proceedings, it is also available under § 1983, along with additional remedies such as compensatory damages, possible punitive damages, Carlson v. Green, 446 U.S. 14

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Petrella v. Siegel
843 F.2d 87 (Second Circuit, 1988)

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Bluebook (online)
843 F.2d 87, 1988 WL 26673, Counsel Stack Legal Research, https://law.counselstack.com/opinion/petrella-v-siegel-ca2-1988.