On appeal from a Final Decision of the Civil Service Commission.
Matthews, Pressler and Petrella. The opinion of the court was delivered by Matthews, P.J.A.D.
This is an appeal from a final determination by the Civil Service Commission returning James Ware to the position of Director, Division of Unemployment and Disability Insurance in the New Jersey Department of Labor and Industry (hereinafter "Director, UDI").
On December 16, 1975 Ware, a state employee of long-standing, was permanently appointed to the classified position of Director, UDI. He served in that capacity until April 26, 1976 when he was granted a leave of absence without pay to serve an unclassified appointment as Assistant Commissioner, Income Security. Prior to accepting leave Ware had received a copy of a letter from the Department of Civil Service which explained that "the employee who has been granted a leave shall have a right to that class title and when necessary, may displace an employee who has been appointed at that title in the interim."
On July 5, 1976 Joseph Viviani was provisionally appointed to the position of Director, UDI, the position from which Ware had been granted leave. He was subsequently notified that he had attained permanent status in that position effective February 24, 1977. As a result of that appointment John Sullivan replaced Viviani as Assistant Director and Harry Morris replaced Sullivan as District Supervisor. Both were subsequently notified that they had attained permanent status in those positions.
Ware, meanwhile, on October 2, 1978 was granted a leave of absence with pay from his position as Assistant Commissioner, Income Security, to serve as Regional Administrator, Employment and Training, for the Federal Government pursuant to the Government Employee Interchange Act of 1967, N.J.S.A. 52:14-6.10 et seq. and the Intergovernmental Personnel Act of 1970, 5 U.S.C.A. 3371 et seq. Though Ware had believed that his leave was for a two-year period, he was later advised that pursuant to N.J.S.A. 52:14-6.14(a)*fn1 he could not serve under the exchange program for a term exceeding 12 months. He was further advised that he could remain in his current position by obtaining a leave of absence without pay. On September 20, 1979 Ware instead requested the Commissioner of the Department of Labor and Industry (Commissioner) to enter into a Letter of Agreement with the Regional Office pursuant to which he would be detailed to the Regional Office for 90 days. That detail, approved by the Commissioner, was orally extended thereafter for a period of 60 days.
On January 9, 1980 Ware sought the Commissioner's approval under the Intergovernmental Personnel Act to accept a federal appointment to the Executive Resources Board for the Employment and Training Administration. The request was disapproved by Civil Service because of the restrictions contained in N.J.S.A. 52:14-6.14(a). Consequently, on May 2, 1980 Ware requested and received a one-year leave of absence without pay to accept the federal appointment. For purposes of effectuating this leave, since such leaves may only be granted from classified titles, Ware was returned on paper to his classified position as
Director, UDI. His leave from this position was extended for an additional year to expire May 14, 1982.
The instant dispute arose on October 14, 1981 when Ware informed the Commissioner that he intended to return to his position as Director, UDI, beginning November 30, 1981. Because Viviani had attained permanent status in that position, the Commissioner requested advice from Civil Service as to the rights and status of the parties involved. On November 6, 1981, the Commissioner was informed by Civil Service that Ware had a right to resume his duties as Director, UDI, and, although Viviani had attained permanent status in that position, that "such status must at all times be considered conditional pending Mr. Ware's leave of absence." Consequently, the letter concluded, "upon any resumption of the Director's position by Mr. Ware, this other employee may be returned to his lower-level permanent Civil Service title which could also require the movement of other employees who had occupied appointments conditional on Mr. Ware's leave."
On November 10, 1981 Viviani appealed this determination to the Civil Service Commission, also requesting a stay of any personnel action which would return Ware to the Director's title. The application for the stay was denied and, consequently, effective January 18, 1982, Ware replaced Viviani as Director.
A hearing was held before the full Civil Service Commission on February 2, 1982. At the hearing the Director of Classification and Compensation for Civil Service testified that pursuant to long-standing Civil Service practice, a leave of absence without pay from a classified title is treated as if it creates a vacancy in that title which may be permanently filled by the appointing authority. He also explained, however, that a leave of absence also embraces an entitlement to be reinstated to the class title from which the leave was granted. Under ordinary circumstances, the department from which the ...