January 2000
Volume 14, Number 1

ADEA unenforceable against state employers

In a complex opinion that only a law professor could love, the Supreme Court earlier this month cast doubt upon the enforceability of the Age Discrimination in Employment Act (ADEA) against governmental employers. In rendering its decision on somewhat abstract Constitutional grounds, the justices reinforced their current trend of limiting the ability of individuals to use federal statutes to sue their governmental employers. 

In a five to four decision, the justices ruled that Congress exceeded its constitutional authority when it authorized state workers over 40 years old to sue their employers for age bias. In a two-part ruling, Justice Sandra Day O'Connor, writing for the majority, said that the Constitution bars states from being sued for money damages unless Congress specifically authorizes such suits. The justice then ruled that Congress lacks the constitutional authority to authorize such suits for age discrimination. 

The opinion, Kimel v. Florida Board of Regents, No. 98-791, marks the latest in a string of rulings in which the justices have struck down federal laws giving individuals the right to sue the states. Last term, the court ruled that probation officers could not maintain personal suits against the state for violation of the Fair Labor Standards Act (FLSA). Such suits are barred by Eleventh Amendment sovereign immunity, the court has ruled. The court noted, however, that aggrieved parties are not without a remedy because almost every state has its own statute prohibiting age discrimination. 

In her opinion, Justice O'Connor observed that old age is different than other worker classifications because all workers will experience it. She noted that it was constitutionally permissible

for a state employer to discriminate on the basis of age if the age classification is rationally related to a legitimate state interest. It is not unconstitutional for a state to rely on age as a proxy for other characteristics and set cut-off ages for hiring or forced retirement.

While the opinion is unlikely to have a major impact on public safety personnel due to a 1996 change in the ADEA that generally exempts fire fighters and police officers, the decision is important in a broader constitutional sense. Unclear from the decision is whether the same constitutional reasoning applies to local governmental entities. For many years the Supreme Court has held that subdivisions of the state do not enjoy sovereign immunity in federal court. However, broad verbiage in the opinion does not appear to maintain this distinction. If the Supreme Court is poised to extend Eleventh Amendment sovereign immunity to county and city governments, the continued viability of individual enforcement of statutorily-created worker's rights, such as equal employment laws and the FLSA, may be called into question. 

In a surprise move one week after the Kimel decision, the Supreme Court ordered two lower courts to restudy rulings that said states must abide by the Equal Pay Act. The order was surprising because the court had emphasized in Kimel that age bias is not subject to the same level of judicial scrutiny as race and sex bias.

How broadly the justices are inclined to interpret the concept of sovereign immunity may become clearer next month when the court hears oral arguments in Christensen v. Harris County, Texas, No. 98-1167, a case challenging the county's method of implementation of the compensatory time provisions of the FLSA. 


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Volume 14, Number 1

Fire fighters doing time refuse to resign

Two Madison, Wisconsin, fire fighters serving jail time have refused to resign from the fire department prompting the chief to seek their dismissals. The refusal is apparently a strategy to preserve their salaries and benefits as long as possible.

Terry Rice and Michael Merkle pleaded guilty to misdemeanor drug charges following an investigation last year into a California-based cocaine ring. Merkle is serving a 30-day sentence at a minimum security federal prison while Rice is doing 15 days at a county corrections facility.

Earlier this month Fire Chief Debra Amesqua filed administrative charges with the city's Police and Fire Commission seeking to terminate

the fire fighters' employment. Commission deliberations have been known to last for more than one year. The fire fighters will continue to be paid during the proceedings and will likely be free before a decision is made about their fates. 

The attorney for Merkle called the termination unfair because his client had never used drugs on the job. Wisconsin law is unclear on the question of whether off duty drug use that does not affect job performance is sufficient grounds for termination of a fire fighter.

Merkle and Rice are the fourth and fifth Madison fire fighters the chief has sought to terminate in her four-year tenure. No fire fighters had been terminated in the previous 25 years.

In Chicago call the big red taxi

Four Chicago fire fighters are facing disciplinary action for using fire apparatus as a taxicab for partygoers who claimed they were too drunk to drive home. Charges ranging from conduct unbecoming a fire fighter to permitting civilians aboard fire apparatus and in quarters after hours have been lodged against the fire fighters. 

The unauthorized rides took place last October after Engine 55 was dispatched to an automobile fire near the Chicago Yacht Club. The fire turned out only to be a steaming radiator hose. However, a crowd of partygoers surrounded the engine. Reportedly, at the request of several of the revelers who were concerned that their driver was too intoxicated to operate an automobile, fire fighters agreed to transport two women and a man. After

depositing the trio some blocks away, the engine returned to the firehouse. Several hours later, after midnight, the citizens themselves came to the firehouse to thank the fire fighters.

The charges brought a reaction from Bill Kugelman, president of Chicago Fire Fighters Union, Local 2. "It was just a good neighbor policy. They were taking them out of harm's way. I've done it many times myself. My God, you've got coppers the other day who were delivering Christmas presents in squad cars," Kugleman said.

The incident is the first disciplinary action for new Fire Commissioner James Joyce. His predecessor stepped down last year after becoming involved in a feud concerning the investigation of a raucous 1990 firehouse party.

Sick policy challenged on FLSA grounds

Many fire departments and law enforcement agencies grant to their employees unlimited sick leave. To prevent abuse of this generous sick leave system, however, ailing employees often are required to remain at their residences except to receive medical treatment. Such is the policy of the New York Police Department (NYPD). The policy requires the officers to remain home even during off-duty hours and scheduled days off. A specialized unit of the NYPD monitors compliance with the policy. The Latino Officers Association (LOA) thinks this policy violates the federal Fair Labor Standards Act (FLSA) and is trying to do something about it.


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A group of 100 active and former officers, with the backing of the LOA, filed a lawsuit last month seeking compensation for the time they are required to remain home after their normal eight-hour shifts.

Robert Goodstein, attorney for the group, said, "We are not asking the court to overturn the policy, but just pay the officers for time the agency

is demanding they are at a certain location, which under the federal law is considered work."

The LOA is seeking $100 million in lost wages and damages for a three-year period beginning in 1996. New York City correctional officers filed a similar suit in 1995. A federal judge refused to grant them relief and the matter is now on appeal. 

More Internet woes for fire fighters

The Internet continues to create discipline problems for fire fighters. The latest report concerns five members of the Tacoma, Washington, Fire Department, including a training captain, who have been disciplined after transmitting nude pictures through the city's e-mail system. Each fire fighter received a written reprimand and a two-day suspension. In addition, a fire lieutenant received a two-day suspension for inappropriate use of the department's computer-aided dispatch system.

In recent months eleven other Tacoma fire service employees have been reprimanded for improper or personal use of the e-mail system. These workers used their e-mail accounts to transmit jokes, poems, and, in one incident, a pumpkin pie recipe.

An internal investigation began after an employee sent the fire chief a copy of a 10-second video clip of a topless woman washing a window at a car wash. Other incidents involved a photo of a nude, overweight woman, and a picture of a dozen skydivers, one of whom was a nude male. 

Department investigators searched each fire fighter's Internet browser during the inquiry. Access to the city's e-mail via department computers is available only to supervisors and support personnel. 

Department policy restricts e-mail messages to work-related matters. "If it isn't related to business, don't do it," Fire Chief Robert Moore said. 

The fire fighters' union is not disputing the sanctions, reportedly accepting the view that the computers and their content are city property.

Litigation
In that position one of his duties was to respond to the concerns and requests of union members. A few months after his election, McMenemy was called to the office of the fire chief. The chief allegedly told him that he would be promoted to fire captain the following spring. At the time of the alleged statement no position was open but one was anticipated due to a pending retirement. A few months later the secretary for the union spoke to McMenemy and complained that the union president had sexually assaulted her. McMenemy conducted his own investigation of the matter and made contact with the Equal Employment Opportunity Commission. He also informed the deputy fire chief

Supreme Court update

Earlier this month justices chose not to review Fioriglio v. City of Atlantic City, New Jersey, No. 99-651. This leaves intact a lower court ruling rejecting a fire fighter's claim that he was passed over for promotion because he had run for mayor against the incumbent. 

Cases of interest

Promotion procedures

McMenemy was a veteran fire fighter who was elected to the position of treasurer of the union.


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Volume 14, Number 1

of the allegations. Subsequently, the fire chief told McMenemy that he should have reported the secretary's complaint to him first so that the chief could have suspended the union president and conducted a formal investigation. Three days after this conversation the captain's promotion list was posted and McMenemy's name was not on it. McMenemy alleges that part of the reason for the chief not promoting him was that the chief was a friend of the union president. Ultimately, the fire chief was removed from his position for improper conduct. Nonetheless, McMenemy failed to be promoted to captain in two subsequent promotion series. Finally, McMenemy filed a federal civil rights suit alleging that the city had violated its promise to promote him to captain and that the procedure it used in the subsequent promotion processes were unconstitutional. Specifically, McMenemy alleged that both his substantive and procedural due process rights were violated. City moves for summary judgement.

HELD: McMenemy contends that the fire chief's statement promising him a promotion created a constitutional right to the rank of captain. Additionally McMenemy argues that Fourteenth Amendment due process guarantees the right to a fair and competitive civil service examination process. These claims are asserted under the concept of substantive due process. Substantive due process covers the fundamental rights protected by the Fourteenth Amendment. The due process clause guarantees more than a fair process. It also provides heightened protection against government interference with certain fundamental rights. Prior case law has identified fundamental rights to include the right to marry, to have children, to marital privacy, to bodily integrity, and to use contraception. No case has established the right to the rank of fire captain or the right to competitive promotional exams. Not every wrong committed by a municipality rises to the level of a constitutional violation. The Constitution is not intended to supplant traditional tort law. Thus, whatever rights McMenemy may have had in the promotion process

do not rise to the level of substantive due process under the Constitution. Similarly, no procedural due process violation occurred in this case. To assert a procedural due process violation McMenemy must first establish that state procedural remedies are inadequate. A review of New York law reveals an extensive process for review of civil service commission promotion decisions. Assuming McMenemy has an interest in a fair and competitive examination process, his state remedies are adequate to protect against any procedural due process violation. Summary judgment for city on grounds that claims do not rise to constitutional level. [McMenemy v. City of Rochester, New York, 63 F. Supp.2d 309 (W.D.N.Y. 1999)]

Open records

Iowa's Open Records Act provides that personal information in confidential personnel records shall be kept confidential. However, neither the term "personal information" nor the phrase "confidential personnel records" are defined by the statute. A local newspaper requested from the city information about individual city employees' sick leave compensation and usage. Various city labor groups, including the fire fighters union, filed suit to prevent the city from disclosing the information. Trial court held that the newspaper was not entitled to individual sick leave records but could gain access to aggregated data. Newspaper appeals.

HELD: The city maintains that personnel files containing employee compensation information, date of birth, gender, address, job title, payments for vacation time and sick leave are confidential. The newspaper claims entitlement to all of the information in the personnel files. The parties agree that the newspaper and the public at large are entitled to know the names of city employees plus general information concerning their departmental assignments and annual compensation. The unions argue, however, that the worker's right of privacy requires that individual sick leave usage as well as birth date, gender, and address be precluded from disclosure. The newspaper counters



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that if the public is entitled to know what the city pays an employee for working, then the public is also entitled to know what public servants are paid for not working, i.e. while on sick leave. Several fundamental principles guide the court's resolution of the controversy over what is an open record. First, the Iowa law invites public scrutiny of the government's work, recognizing that its activities should be open to the public on whose behalf it acts. Disclosure of public information is the rule and one seeking the protection of one of the statute's exemptions bears the burden of demonstrating the exemption's applicability. Iowa law, like most states' open records laws, contains a privacy exemption. Unfortunately, the exemption does not articulate precisely which records are considered private and not subject to disclosure. Consequently, the court must use a balancing test to weigh the public's interest in access to the records against the employee's privacy interest. A review of prior case law reveals no cases directly addressing the disclosure of a public employee's address, birth date, or gender in the context of a search for information about leave practices. But the basic theme emerging from the case decisions dealing with disclosure of public employee addresses is that such information does not serve the core purpose of freedom of information statutes—to enlighten the public about the operation or activities of the government. Put another way, a public employee has a substantial privacy interest in his or her address that outweighs the public's interest in disclosure. On the other hand, there is an obvious relationship between disclosure of leave records and the public's right to know how its money is spent. The newspaper's inquiry legitimately pertains to individual as well as generalized employee practices. It would be impractical for the public to decipher from an aggregate pool of sick leave data whether an individual is misusing or abusing sick leave. The mere fact that reporting of compensated sick days might cause embarrassment to an individual employee is not a controlling consideration. The compensation allocated to and used by individual public employees, whether for salary, sick leave, or vacation is a matter of legitimate concern to the public. So long as the information disclosed does not reveal personal medical conditions or professional evaluations, the public has a right to examine it. The same is not true for gender, address, and birth date information. The gravity of the invasion into an employee's personal privacy with this information far exceeds the revelation of sick pay details. Employees serving in the public sector have a legitimate interest in avoiding unwanted contacts at their homes by protecting this information from public dissemination. Trial court judgment modified to permit newspaper to receive individual sick leave pay information. [Clymer v. City of Cedar Rapids, 601 N.W.2d 42 (Iowa 1999)]

Civil liability

Doyle was a volunteer fire fighter who was operating a fire truck owned by the volunteer fire department. While in route to an emergency Doyle's truck was involved in a motor vehicle accident. Apparently Doyle applied the fire truck's brakes in an attempt to avoid ramming the rear of a passenger car some 200 feet in front of him. The truck slowed but nonetheless skidded into the rear of the car. One of the parties in the car was injured and subsequently filed suit against Doyle and the volunteer fire department alleging that both were negligent in the operation of the truck. Doyle was found to be immune from suit because of a New York statute. The volunteer fire department moves for summary judgment also on the grounds of statutory immunity.

HELD: The plaintiff in this case solely alleges liability on the part of the department based on the doctrine of vicarious liability for Doyle's conduct. Under New York statute, however, for Doyle to be civilly liable he must have acted with reckless disregard for the safety of others. New York traffic laws permit an authorized emergency vehicle to disregard various traffic laws, providing the operator does not act with reckless disregard for the safety of others. It is evident from the facts of this case that Doyle did not overstep his statutorily



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qualified privilege. Any negligence on his part does not rise to the level of a reckless disregard. The volunteer fire department argues that since Doyle is not civilly liable, it also is not civilly liable. Certainly, a New York statute provides that members of volunteer fire companies are not civilly liable for any acts done in the performance of their duty, except for willful negligence. However, the same law states that the liability imposed upon towns and fire districts for the negligence of volunteer fire fighters is not affected. In trying to reconcile the language of the motor vehicle law with that of the fire fighter immunity law the intent of the legislature must be considered. A review of legislative history reveals that while the legislature intended to immunize individual volunteer fire fighters for their simple negligence, it clearly did not intend to relieve the fire districts from liability. The law takes the liability entirely off the shoulders of the volunteer fire fighter but ensures that an injured party shall have a right to recover against governmental entities such as fire districts. The motion to dismiss the case against the district is denied. [Tobacco v. North Babylon Volunteer Fire Department, 696 N.Y.S.2d 340 (Sup. 1999)] lawfully do that which has the tendency to injure the public welfare. Assuming a contract existed between Lampert and Marsh, the purpose of the contract was to ensure promotion of a subordinate by inducing the early retirement of a superior. This is clearly contrary to Ohio law and public policy. Ohio civil service statutes provide that no applicant for promotion may pay or promise to pay any consideration for obtaining the promotion. Similarly, ethics laws prohibit any public employee from accepting anything of value as an incentive to retire in order that a subordinate may be promoted. The law similarly forbids the subordinate from paying such incentive. The alleged contract was illegal and void and, therefore, unenforceable. Affirmed for officer. [Marsh v. Lampert, 718 N.E.2d 997 (Ohio App. 12 Dist. 1998)]
Settlements

New Orleans, Louisiana

fire fighters
Like other employees of the Crescent City, New Orleans fire fighters received a 5 percent wage boost on January 1. Salary for a first-year fire fighter goes to $21,945. Fire fighters could see an additional raise of about 7.5 percent if the city alters the overtime policy. The mayor is considering a proposal to drop from 212 hours to 204 hours the amount of time to be worked per month before overtime kicks in. Additionally, the mayor's proposal would guarantee each fire fighter 60 hours of overtime every three months. Currently, each fire fighter is guaranteed 36 hours of overtime quarterly.

Promotion procedures

Lampert was number one on the list for promotion to police sergeant. In 1996, he allegedly entered into an oral agreement whereby he would pay Marsh, a sergeant on the department, $4,000 if Marsh would retire before the expiration of the sergeant's promotion list. Marsh's retirement would leave the position vacant for Lampert who would then be promoted. Marsh indeed retired before the list expired but when he demanded the $4,000, Lampert refused to pay. Marsh filed suit arguing a breach of contract. Trial court granted summary judgment for Lampert and retired sergeant appeals.

HELD: It is well-settled law in Ohio that a valid contract cannot be made if its purpose or performance is contrary to statute. Similarly, a contract may be void if it violates public policy, the legal principle that declares that one may not

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