Teresa Karsney v. City of Burton

CourtMichigan Court of Appeals
DecidedDecember 21, 2023
Docket364511
StatusUnpublished

This text of Teresa Karsney v. City of Burton (Teresa Karsney v. City of Burton) is published on Counsel Stack Legal Research, covering Michigan Court of Appeals primary law. Counsel Stack provides free access to over 12 million legal documents including statutes, case law, regulations, and constitutions.

Bluebook
Teresa Karsney v. City of Burton, (Mich. Ct. App. 2023).

Opinion

If this opinion indicates that it is “FOR PUBLICATION,” it is subject to revision until final publication in the Michigan Appeals Reports.

STATE OF MICHIGAN

COURT OF APPEALS

TERESA KARSNEY, UNPUBLISHED December 21, 2023 Plaintiff-Appellant,

v No. 364511 Genesee Circuit Court CITY OF BURTON, PAULA ZELENKO, and SUE LC No. 17-110278-NO WARREN,

Defendants-Appellees.

Before: BORRELLO, P.J., and SWARTZLE and PATEL, JJ.

PER CURIAM.

Plaintiff appeals as of right the circuit court’s opinion and order granting summary disposition to defendants under MCR 2.116(C)(10) on plaintiff’s claim for retaliatory discharge under the Whistleblowers’ Protection Act (WPA), MCL 15.369 et seq. We affirm.

I. BACKGROUND

Defendant city of Burton (the City) hired plaintiff as city clerk in October 2013. As part of her job duties, plaintiff was required to notarize certain documents. Plaintiff admitted that she knew that she was not to notarize documents unless the persons signing the documents did so in front of her. Further, plaintiff attested in her notary application that she had read the notary laws of Michigan.

In the first several years of her employment, plaintiff did not receive any formal written discipline. But those initial years were not entirely free from conflict. For example, plaintiff had “some issues” with another employee and defendant Sue Warren, the human resources director, spoke to plaintiff about it “a couple times.”

Plaintiff also had multiple clashes with the City’s mayor, defendant Paula Zelenko. In late 2014, plaintiff reported to several city council members that defendant Zelenko was misappropriating funds by paying another employee from the funds of various department rather than directly from the mayor’s office. Plaintiff told defendant Zelenko that it was not appropriate to spread funds across the departments. In response, defendant Zelenko “seemed unhappy” with

-1- plaintiff. In 2014 and 2016, plaintiff told defendant Zelenko that defendant Zelenko was signing contracts in violation of the City Charter because the contracts did not have the required signatures. Defendant Zelenko denied that the contracts were in violation of the law or indicated she could do what she wanted with them, but did not discipline plaintiff. Defendant Zelenko, again, appeared “displeased” with plaintiff. In May 2016, when plaintiff told defendant Zelenko that she intended to testify at a budget meeting, defendant Zelenko expressed displeasure and scheduled the meeting on a date that she knew plaintiff could not attend. Sometime in 2016 or 2017, plaintiff told defendant Zelenko that she thought it was wrong that defendant Zelenko postdated official documents. Plaintiff was not reprimanded; however, defendant Zelenko “seemed mad” at plaintiff. Finally, sometime in 2016, plaintiff expressed to defendant Zelenko that plaintiff thought it was wrong for defendant Zelenko to carry a handgun without a concealed carry permit. In response, defendant Zelenko “seemed displeased” with plaintiff.

In October 2016, plaintiff received her first formal written discipline after she sent an accusatory e-mail to defendant Zelenko and the entire city council regarding updates to the retirement plan. Plaintiff “requested something in writing” regarding the changes, indicating she had been unable to get answers and asked why the plan was backdated.1 Ten days later, plaintiff was issued a written “employee warning notice” for “inappropriate behavior,” “insubordination,” and “violation of . . . procedures.” The warning indicated that plaintiff had sent an e-mail that “bypassed the chain of command, misstated the truth and was unprofessional and disrespectful.” The warning further stated, “[plaintiff’s] actions demonstrated insolence and insubordination.” The warning cited several city policies that plaintiff violated.

Approximately nine months later, in July 2017, the Michigan State Police opened an investigation into defendant Zelenko. The investigation was prompted by a complaint filed by a city council member alleging that defendant Zelenko forged and submitted an altered teamsters’ union contract and violated her oath of office by not accepting the city council’s amendments to the budget. Michigan State Police Detective Sergeant Brian Reece was assigned to the investigation. As part of his investigation, Sergeant Reece visited the city clerk’s office on August 8, 2017, where he spoke with plaintiff and made a Freedom of Information Act (“FOIA”), MCL 15.231 et seq., request to plaintiff for the teamsters’ union contract. Plaintiff provided the requested document and informed Sergeant Reece that defendant Zelenko’s office had initially

1 The full text of plaintiff’s e-mail provided: Paula & City Council: I would like something in writing from the City of Burton about my retirement. I want to know when the change is taking affect, what the changes are, have I lost my defined benefit completely. I want everything spelled out. I was told that Paula and Mr. Hefner were going to seat [sic] down with me and that didn’t happen. I can’t get any answers from MERS because they tell me to talk to my employer. Yesterday I was at lunch, I found out that Rachel was asked to sign the contract to set up the Defined contribution plan that was back dated to August 4, 2016. It wasn’t even signed until 10/3/2016. Why was it back dated? I have been very patient but I need answers.

-2- retained the document in the mayor’s office. Afterwards, plaintiff notified defendant Zelenko via e-mail of the FOIA request. Defendant Zelenko became “very upset” and verbally reprimanded plaintiff for not speaking with defendant Zelenko before responding to the request.

Approximately a month later, on September 20, 2017, a city resident, Michael Domanski, filed a complaint with the Burton Police Department, alleging fraud and forgery with regards to a quitclaim deed (hereinafter, the Domanski investigation). Domanski told Lieutenant Michael Odette that he had entered into a land contract with plaintiff’s coemployee, deputy clerk Racheal Boggs, for the sale of property for $1,500. Boggs paid a total of $1,000 to Domanski. When Domanski could not secure the remaining $500 from Boggs, he discovered that Boggs had paid the taxes on the property. He also learned that his signature was forged on a quitclaim deed conveying the property to Boggs, and the deed was filed with the Genesee County Register of Deeds. The signatures on the deed were notarized by plaintiff. Domanski was adamant that he never signed the quit claim deed and that he never appeared at the city clerk’s office to have plaintiff notarize the deed.

Two days later, on September 22, 2017, Lieutenant Odette interviewed Boggs. Boggs maintained that the agreed upon price for the land contract was $1,000, which she stated she had paid in full. She asserted that Domanski signed the quitclaim deed the same day that he signed the land contract. Boggs admitted that she had never seen Domanski at city hall. But Boggs could not explain how plaintiff notarized the signatures on the deed when Domanski had never been to city hall. Boggs, who is also a notary, admitted that it was improper to notarize a document if all parties do not sign the document before the notary. During her second interview on September 26, 2017, Boggs admitted that she brought the quitclaim deed to plaintiff, who stamped it and notarized it without all of the parties present. Boggs also admitted that it was common practice in the city’s clerk’s office to notarize documents without the persons signing the documents in the presence of the notary. She stated that she and plaintiff had notarized documents for each other without following the proper procedures and requirements under the Michigan Notary Public Act, MCL 55.561 et seq.

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Bluebook (online)
Teresa Karsney v. City of Burton, Counsel Stack Legal Research, https://law.counselstack.com/opinion/teresa-karsney-v-city-of-burton-michctapp-2023.