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Employment & Labor Law for Public Safety Agencies
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Resignations and Constructive Discharge
An African-American
male who worked as a public safety officer for a city for 23 years claimed
that he was subjected to heightened scrutiny, selectively enforced policies,
and harassment and discrimination by various individuals which the employer
was complicit in, all on the basis of either his race or his complaints
about discrimination. He pointed to a performance evaluation downgrade,
denials of a request to attend outside training, and tampering with an
"Obama screensaver" on his computer. After he filed two EEOC
charges, he was involved in a conflict with other officers at an event
at which President Obama was present. After information about the incident
appeared in the press, he resigned, but claimed that he was constructively
discharged. A federal appeals court found that he failed to show that he
had been constructively discharged, defeating his race discrimination claim.
It also ruled, however, as to his Title VII retaliation claim, that the
requirement that he show a "materially adverse action" for retaliation
was substantially different than the "adverse employment action"
element in a Title VII race discrimination claim, so the fact that he could
not show that he was constructively discharged did not dispose of his retaliation
claim, given the presence of evidence of other adverse employment actions.
For retaliation, he only needed to show that an action might have dissuaded
a reasonable employee from asserting or supporting a discrimination charge.
The appeals court rejected a First Amendment retaliation claim, since there
was no evidence that he had complained about a purported illegal activity.
Laster v. City of Kalamazoo, #13-1640,2014 U.S. App. Lexis 4700, 2014 Fed
App. 48P (6th Cir.).
When a federal agency
contractually agrees to provide an employee with a clean record, that precludes
the agency's disclosure of contrary information. An employee or former
employee need not show actual harm to establish that the agency's disclosure
constituted a material breach. Doe v. Dept. of the Army, #CH-0752-08-0412-C-1,
2011 MSPB 45.
Georgia firefighter was not coerced into
offering his resignation. He was given advance notice of a hearing, was
informed of the alleged violations, the intent to terminate him, and an
opportunity to defend against the accusations. Ross v. City of Perry, #09-15392,
2010 U.S. App. Lexis 19662 (11th Cir.).
A decision to resign or retire, rather than
risk an unfavorable civil service board decision, with loss of pension
benefits, does not make a resignation involuntary. Palka v. Shelton, #08-4245,
2010 U.S. App. Lexis 20708 (7th Cir.).
A federal employee's voluntary resignation
is not reviewable by the Merit Systems Personnel Board, but the Board has
jurisdiction when a resignation is involuntary. "A resignation is
involuntary if the agency made misleading statements on which the employee
reasonably relied to her detriment ... [and] a threat of adverse action
is coercive if the agency knows or should know that it cannot be substantiated."
Costa v. M.S.P.B. (Dept. of Justice), #2010-3054, 2010 U.S. App. Lexis
21247 (Unpub. Fed. Cir.).
Eleventh Circuit declines to overturn an
allegedly coerced resignation of a sheriff's detective for untruthfulness
and conduct unbecoming. She sued, claiming sexual harassment and retaliation
for reporting the harassment. However, fifteen witnesses observed her engage
in sexually inappropriate behavior while off duty at a retirement party.
She was not coerced; she resigned to avoid a blemish on her employment
record, and her choice was made with the assistance of counsel and a union
representative. Rademakers v. Scott, #09-11076, 2009 U.S. App. Lexis 23735
(Unpub. 11th Cir.).
In adjudicating claims of coerced resignations,
a party must show that he or she was deprived of free choice and had no
option but to resign. To prevail, a party needs to prove (1) the resignation
or retirement was based on threats of adverse action; or (2) the resignation
or retirement was based on “alleged misinformation and deception;” or (3)
the resignation or retirement was coerced through “working conditions so
intolerable” that the employee was forced to leave. Russell v. M.S.P.B.,
#2008-3265, 2008 U.S. App. Lexis 24504 (Unpub. Fed. Cir.).
A sergeant was not constructively discharged
when he resigned to protest his transfer out from a patrol position; an
alleged death threat he received on his voice mail was incoherent and was
made by unidentifiable caller. Potts v. Davis County, #07-4139, 2009 U.S.
App. Lexis 40 (10th Cir.).
Federal appeals court rejects the constructive
discharge suit filed by a sheriff’s officer who quit, following his reinstatement
(after challenging his termination). He was reassigned to court security
duties instead of patrol duties, and lost the opportunity to earn differential
pay. He was not entitled to be restored to his former assignment as a patrol
officer or to receive preferential pay. Potts v. Davis County, #07-4139,
2009 U.S. App. Lexis 40 (10th Cir.).
Arbitrator follows the "unanimous conclusion"
of other arbitrators that a resignation may not be revoked after the employer
has hired a replacement worker. American Standard and United Steel L-1538,
FMCS Case No. 07/04608, 124 LA (BNA) 1537, (Franckiewicz, 2008).
Arbitrator holds that a state worker "resigned"
when she took off the lanyard that held her ID and key card and then threw
them on the supervisor's desk saying "I'm out of here." Ohio
Lottery Commission and Ohio Civ. Serv. Employees Assn., Grievance #22-01-20060825-007-01-14,
124 LA (BNA) 691 (Murphy, 2007).
Although an employee may feel compelled to
resign because of employer actions that are perceived of as unfair, subjective
feelings do not establish that a reasonable person would feel compelled
to resign. Management's demands that an employee produce quality work and
comply with agency policies are proper and would not prompt a reasonable
person to resign. Shelborne v. Merit Systems Protection Board, #2007-3003,
2007 U.S. App. Lexis 11177 (Unpub. Fed. Cir.).
A resignation may not be rescinded after
it has been accepted. The employee admitted violating a workplace violence
policy and a refusal to allow him to withdraw his resignation did not constitute
an abuse of discretion. Pishotti v. N.Y. State Thruway Auth., #501387,
2007 NY Slip Op 02459, 2007 N.Y. App. Div. Lexis 3655.
"An employee-initiated action, such
as a resignation, is presumed to be voluntary, and thus outside the Board's
jurisdiction, unless the employee presents sufficient evidence to establish
that the action was obtained through duress or coercion or shows that a
reasonable person would have been misled by the agency." The Merit
Systems Protection Board lacks jurisdiction over the an allegation that
management coerced his resignation in retaliation for his alleged whistleblower
activities. Neice v. Dept. of Homeland Security, #SF-0752-06-0030-I-1,
2007 MSPB 85.
A GSA employee's demotion from a probationary
GS-14 position to GS-13 would not have coerced a reasonable employee to
resign, and does not constitute a constructive discharge. Moody v. MSPB,
#06-3432, 2007 U.S. App. Lexis 3051 (Unpub. Fed. Cir. 2007), affirming
2006 MSPB Lexis 4655 (2006).
Although a deputy's actions should be interpreted
as a resignation, it was not effective because the sheriff never accepted
it. The sheriff's action in terminating her could therefore be appealed.
Gallagher v. Ross County Sheriff, #06AP-942, 2007-Ohio-847, 2007 Ohio App.
Lexis 729 (10th App. Dist.).
After a Sheriff's Dept. employee was denied
a transfer, he quit and sued for constructive discharge. There was no proof
that the conditions of his work environment were so intolerable that the
conditions compelled resignation, and the action was dismissed. Dixon v.
Bradshaw, #06-10332, 2007 U.S. App. Lexis 5 (Unpub. 11th Cir.). [N/R]
Arbitrator holds that a police officer, who
exhausted his extended sick leave after being accused of rape, abandoned
his job when he failed to return to work and was not entitled to reinstatement.
His stress defense failed because he voluntarily canceled therapy visits.
City of Newark and FOP Ohio, FMCS #050809-05133-8 (Byrne, 2006). [2006
FP Oct]
Arizona appellate court holds that a merit or civil
service commission has jurisdiction to hear the claim of a former employee
who alleges that his or her resignation was coerced and was a constructive
discharge. LaWall v. Pima County Merit Sys. Cmsn., #2 CA-CV 2005-0140,
2006 Ariz. App. Lexis 34. {N/R}
During a confrontation with a superior, a
deputy handed her keys to the sheriff and left the building. Arbitrator
upholds management's interpretation of her actions as a resignation. Auglaize
County Sheriff and Ohio Patrolmen's Benev. Assn., 121 LA (BNA) 311, FMCS
Case #05/50289-8 (Goldberg, 2005). [2005 FP Nov]
Federal appeals court rejects a claim that
a police officer's resignation, in lieu of facing disciplinary charges
which could lead to her termination, was a constructive discharge, even
if she alleged claims of gender bias and retaliation. Driggers v. City
of Owensboro, #02-6527, 110 Fed. Appx. 499, 2004 U.S. App. Lexis 18185
(Unpub. 6th Cir. 2004). {N/R}
"An early retirement request, initiated
by an employee, is presumed to be a voluntary act, and where an employee
is faced merely with the unpleasant alternatives of resigning or being
subject to removal for cause, such limited choices do not make the resulting
resignation an involuntary act." Keyes v. Dist. of Columbia, #03-7155,
372 F.3d 434, 2004 U.S. App. Lexis 12851 (D.C. Cir. 2004). {N/R}
U.S. Supreme Court declines to review an
Oklahoma appeals court ruling that concluded that a public employee's angry
phone call to superiors, where she said she had "quit playing ball"
and they could find another "flunky to pick on" could be interpreted
as an oral resignation, and that she forfeited any further rights of due
process. Burkhardt v. Oklahoma ex rel. Dept .of Rehab. Serv. (Unpub. Okla.
App. 2003); cert. den. 2004 U.S. Lexis 3868, 72 U.S.L.W. 3732 (2004). {N/R}
Arbitrator finds that a "resign or be
fired or prosecuted" ultimatum was a constructive discharge, and the
officer's prompt withdrawal of his resignation was binding on the agency.
Lucas Co. Sheriff and Ohio PBA, 118 LA (BNA) 1673, FMCS #03/01146 (Weisheit,
2003). [2003 FP Mar]
A divided federal appeals panel holds that
a Jehovah's Witness, who was a cadet with the Washington State Patrol,
was not constructively discharged for his unwillingness to salute the flag
or take an oath. He resigned before he was threatened with disciplinary
action. Lawson v. St. of Washington, #00-35458, 296 F.3d 799, 2002 U.S.
App. Lexis 14001, 89 FEP Cases (BNA) 385 (9th Cir. 2002). {N/R}
Former police officer could maintain a law
suit against the chief for false representations relating to rehiring him,
but not for breach of contract. The administrative review law precludes
the later. Ross v. City of Freeport #2-99-1445, 319 Ill. App.3d 835, 746
N.E.2d 1220, 2001 Ill. App. Lexis 223. {N/R}
A depressed detective, who resigned after
he was accused of misconduct, loses his ADA "hostile environment"
claim in the 10th Circuit. Anthony v. City of Clinton, #98-6188, 1999 U.S.
App. Lexis 13229 (10th Cir.). [1999 FP 169-170]
Sheriff was not legally required to allow
a deputy to withdraw his resignation. Haberer v. Woodbury Co., 360 N.W.2d
571 (Iowa 1997). [1998 FP 59]
Federal appeals court strikes down a resignation
and release form because employees were only given 24 hours to consider
their decisions. Puentes v. U.P.S., 86 F.3d 196, 71 FEP Cas. 106, 1996
U.S. App. Lexis 14861 (11th Cir.). [1996 FP 155-6]
Where an employee is told to quit or be fired,
such limited choices do not make the resulting resignation an involuntary
act. Hall v. DoJ, #97-3276, 1997 U.S. App. Lexis 29902 (Fed.Cir.). {N/R}
A public employee who voluntarily retires
has no right of appeal unless the retirement was involuntary and tantamount
to a forced removal. Mueller v. U.S. Postal Serv., 76 F.3d 1198, 1201 (Fed.
Cir. 1996). {N/R}
N.Y. appellate court rules that a "resign
or be fired" ultimatum was not duress or coercion. Mandel v. Mosca,
628 N.Y.S.2d 188 (A.D. 1995). [1996 FP 62]
Federal appeals court upholds voluntary nature
of a city employee's resignation, even though he was warned he would be
prosecuted if he did not immediately resign. Hargray v. City of Hallandale,
57 F.3d 1560 (11th Cir. 1995). [1996 FP 11]
Police officer's "irrevocable"
resignation could not be withdrawn because of an ADA claim of stress and
alcoholism. Graehling v. Vil. of Lombard, 58 F.3d 295 (7th Cir. 1995).
[1995 FP 172]
NY app. ct. upholds refusal of a public employer
to allow an employee to withdraw his resignation after it was accepted.
Schweit v. Abate, 606 N.Y.S.2d 670 (A.D. 1994). {N/R}
Federal court holds that a employee's resignation,
asked for by management, was not constructive discharge because an employee
can refuse to resign. Management had a right to ask for the resignation
because the employee had been arrested for male prostitution. Houston v.
Belk Store Services, 10 IER Cases (BNA) 921 (D.S.C. 1995). {N/R}
Federal appeals court rejects a suit for
falsely inducing the resignation of an at-will employee. Stromberger v.
3M Co., 990 F.2d 974 (7th Cir. 1993). [1994 FP 10]
NY appellate court orders reinstatement of
officer who resigned under investigation, so that he can defend himself
against allegations of misconduct. Davila v. N.Y.C. Housing Auth., 593
N.Y.S.2d 12 (A.D. 1993). [1993 FP 156]
An employee's resignation will not be set
aside unless it was coerced. Telling an employee he will be fired and a
dismissal might impair future employment opportunities is not coercion.
Stafandel v. Sielaff, 575 N.Y.S.2d 304 (A.D. 1991). {N/R}
A resignation is not coerced if superiors
inform an employee that a termination could jeopardize future employment
opportunities. Stafandel v. Sielaff, 575 N.Y.S.2d 304 (A.D. 1991). [1992
FP 172]
An employee's resignation is presumed voluntary,
unless coercion is proved. Factors which bear on Vountariness include whether
the employee was given an alternative, understood the choice, was given
a reasonable time to make a decision, and was allowed to select the date
of resignation. The resignations in this case were not voluntary. Angarita
v. St. Louis Co., 981 F.2d 1537 (8th Cir. 1992). {N/R}
Employee has no "right" to withdraw
his resignation, even though he sought to do so before the effective date.
Employer need not provide a hearing before rejecting attempted rescission
of resignation. Smith v. Kunkel, 544 N.Y.S.2d (A.D. 1989).
Employment rule which states that unexcused
five-day absence from work constitutes an automatic “resignation” is valid.
Williams v. Dept. of Personnel Admin., 88 Daily App. Rep. 1078 (Cal.App.
1988). (The decision was appealed to the California Supreme Court, #88-44.)
Civil service commission can refuse an employee's
resignation, continue proceedings and terminate the employee. In Matter
of Larkin, 415 N.W.2d 79 (Minn. App. 1987).
If an employee can show that the agency knew
that the reason for the threatened removal could not be substantiated,
that action is coercive and makes a resignation involuntary. Schultz v.
U.S. Navy, 810 F.2d 1133, at 1136 (Fed. Cir. 1987). {N/R}
A retirement is deemed involuntary if it
resulted from misinformation or deception by the agency. Covington v. H.H.S.,
750 F.2d 937 (Fed. Cir. 1984). {N/R}
Fire chief's threat to expose lieutenant
to media for alcoholism and for using laughing gas was not duress; resignation
effective. Enslen v. Vil. of Lombard, 470 N.E.2d 1188 (Ill.App. 1984);
Britton v. City of Trinidad, 687 P.2d 523 (Colo. App. 1984).
Job stress excused retail theft; resignation
set aside on grounds employee would have been dismissed. Dept. of Public
Safety, Div. of State Police, 461 A.2d 98 (N.H. 1983).
Prompt withdrawal of letter of resignation
must be accepted. Wonderly v. Div. of N.Y. St. Police, 438 N.Y.S.2d 611
(A.D. 1981).
False threats of criminal prosecution unless
employee resigns violates federal rights of tenured employees. Bishop v.
Tice, 622 F.2d 349 (8th Cir. 1980).
Threats to file criminal charges unless subordinate
resigns is duress, where vested pension could be forfeited. Head v. Gadsen
Civil Serv. Bd., 380 So.2d 516 (Ala. App. 1980), cert. denied, 389 So.2d
520 (Ala. 1980).
Coerced resignation is equivalent to dismissal
of employee. Himmelbrand v. Harrison, 484 F.Supp. 803 (W.D. Va. 1980).
Agreement to let employee resign and not
to give unfavorable recommendations is enforceable; $100,000 jury verdict
ensued. Case to be retried due to trial error. Nadeau v. County of Ramsey,
277 N.W.2d 520 (Minn. 1979).
Delivery of resignation precludes later disciplinary
action. Stearns v. Bd. of Fire & Police Cmsnrs. of Carbondale, 375
N.E.2d 877 (Ill.App. 1978).
Resignation cannot be withdrawn before effective
date if already accepted. Civil Serv. Bd., City of Ft. Lauderdale v. Carter,
363 So.2d 858 (Fla. App. 1978).
Resignations are effective on delivery. Stearns
v. Bd. of Fire & Police Cmsnrs. of Carbondale, 375 N.E.2d 877 (Ill.App.
1978).
Allegations of "forced" resignations
must be timely filed. Badeaux v. Dept. of Police, 363 So.2d 1238 (La. App.
1978).
Right to withdraw resignation before effective
date qualified. Armistead v. State Personnel Bd., 149 Cal.Rptr. 1 (1978)
(prior decision at 140 Cal.Rptr. 227 vacated and reversed).
Resignation, based on one dollar and agreement
to not prosecute is insufficient to support officer's release of pay claims.
Murphy v. Rochford, 371 N.E.2d 260 (Ill.App. 1977).
No right to appeal for officers who resigned
rather than face misconduct charges. Hess v. Bennett, 554 S.W.2d 503 (Mo.App.
1977).
See also: Disciplinary
Offense; Political Activity; Vacation
Pay.