Rockland Board of Health Chair Faces Indefinite Town Hall Ban Following Investigation of Abusive Conduct
ROCKLAND - November 4 - The Rockland Select Board voted unanimously Tuesday night to indefinitely extend Board of Health Chairman Robert Stephens’ ban from Town Hall and limit him to remote meeting participation following an investigation that found he engaged in a pattern of rude, discriminatory, and hostile conduct toward town employees and fellow board members—though Stephens, who was invited to attend the meeting and defend himself, chose not to appear.
The Full Story
The investigation, conducted by Town Counsel Attorney John Clifford, was initiated after tensions between Board of Health members and town employees escalated to “a pretty ugly confrontation right outside of town hall” in June, just before a Select Board meeting. The incident, combined with other allegations from employees, prompted Town Administrator Doug Lapp to direct a formal investigation.
According to Attorney Clifford, the investigation revealed that Stephens, while aware of the town’s adopted standards of conduct for boards and committees, “really chose not to adhere to those expectations in his treatment of town employees, in his treatment of fellow board members, and really just the way that he approaches the job.”
The investigation documented inappropriate statements Stephens made about other town officials and employees on his personal podcast, as well as behavior that created a hostile environment. “The Board of Health, like all of our other boards and committees, has important work to be done,” Clifford told the board. “I think part of the investigation makes it clear that the important work for the Board of Health isn’t getting done because of really the way business is being conducted primarily by Mr. Stephens.”
Select Board Chair Michael O’Loughlin reported that he, Attorney Clifford, and the investigator met with Stephens last week to walk through the specific findings and explain the consequences. Stephens was explicitly told about Tuesday’s meeting and his opportunity to be heard, but elected not to attend.
O’Loughlin described the previous meeting with Stephens as “somewhat productive,” noting that Stephens had asked for his phone number and requested guidance on how to conduct meetings and assemble agendas. The board had recommended Stephens make his Board of Health meetings more accessible by appearing physically on screen during remote participation and suggested he establish regular video conference calls with Health Agent Delshaune Flipp to address concerns without violating the access restrictions.
However, O’Loughlin said Stephens’ most recent correspondence showed no contrition, and “this continuing abusive behavior has continued.” O’Loughlin emphasized that while the restrictions could be reconsidered if Stephens demonstrates a pattern of changed behavior, the current situation warranted immediate action.
Select Board member Steve O’Donnell reinforced the seriousness of the situation: “Honor and integrity at the heart of leadership should not be taking a leadership position in anything you do in life without those two things in mind. Mr. Stephens has a lot to learn about those two ideas.” O’Donnell added he would be open to rescinding the trespass order if Stephens takes recommended training and shows contrition, “but to date, there is a pattern showing otherwise.”
Attorney Clifford explained that the investigation concluded Stephens’ conduct was “rude and discriminatory hostile conduct” that “doesn’t put the town in a good light, and it certainly doesn’t advance the mission of the board of health.” The behavior escalated to the point where it “was almost a violent confrontation” and “was really getting to the point where it was completely out of control.”
The board adopted several recommendations from the investigation, including arranging one-on-one training in workplace conflict resolution and civility for all parties involved, and issuing a written notice to Stephens advising him that continued improper treatment of town employees or representatives may expose him to personal liability. Clifford explained that while the town indemnifies officials and employees, that protection does not extend to those acting beyond the scope of their authority or violating civil rights.
The board also voted to release an executive summary of the investigation as a public statement and ensure it is posted on the town’s website. Under the restrictions, Stephens can continue serving on the Board of Health but must participate in meetings remotely and cannot enter Town Hall except for the specific purpose of attending board meetings.
Superintendent Alan Cron Announces Retirement After 14 Years
In another development for the evening, Superintendent of Schools Dr. Alan Cron announced he will retire at the end of the 2025-2026 school year after 14 years serving Rockland and 31 years in public education. Cron will be relocating to Indiana to get married.
“When I arrived in 2012 as high school principal, I was only the third person to hold that role since the 1950s,” Cron told the board. “Rockland is old school, steady, loyal, and built for the long haul. We’ve been through a lot together, and I will always be grateful for an incredible career and the privilege of serving this town, and Rockland will always feel like my home.”
Assistant Superintendent Jane Hackett will assume the superintendency as of July 1, 2026. “The town is truly fortunate to have her leadership as it looks ahead,” Cron said.
Cron and Hackett presented a comprehensive update on the state of Rockland Public Schools, highlighting steady academic growth across the district. Recent MCAS results show gains in middle school math and encouraging progress in early literacy at Phelps and Esten Elementary Schools, where targeted reading interventions and early screenings are producing strong results.
Rockland High School was recognized by the College Board last spring for both high participation and exceptional success rates on Advanced Placement exams. The district has also expanded career and technical programming through the Pathways Initiative in partnership with the Department of Education and local employers, connecting classroom learning to real-world opportunities and internships.
The district’s Bridges program for students with complex learning profiles continues to meet needs locally rather than requiring costly out-of-district placements. At the middle school, a revised schedule has expanded opportunities in arts and electives, with 170 students currently participating in band and chorus—an “astounding number as compared to years past,” according to Cron. Enrollment has also grown in world languages and STEAM.
Cron reported the district has completed four consecutive years of independent audits with no findings, “a testament to our strong internal controls and sound fiscal practices.” Select Board Chair O’Loughlin praised this achievement, noting that “across the state, that’s not a thing that happens” frequently in public schools.
The district’s FY25 budget remains “tightly aligned with our strategic priorities, maintaining small class sizes, supporting academic recovery, and promoting student well-being,” despite a challenging funding environment. Cron acknowledged the strong collaboration with the Town Administrator’s Office and finance team, calling the partnership “essential to keeping Rockland fiscally healthy and focused squarely on student success.”
This year’s district theme is “Bulldog Pride, One Community, One Purpose.” More than half of Rockland High School seniors participate in at least one varsity sport during their time at the school. The cheerleading, volleyball, soccer, and football teams were all headed for strong postseason runs as of the meeting date.
Select Board member Steve O’Donnell thanked Cron and Hackett for their leadership: “We are in a stronger position because of your leadership. I agree with what you’re saying about leadership in this town coming together to put the schools in a positive position, especially coming out of the COVID pandemic, and I attribute it to both of your leadership.”
O’Loughlin reflected on the improved relationship between town government and the school department: “It hasn’t always been this easy. The relationship that used to be over there and over here... the walk between the two buildings seemed like it was a marathon, the distance between the two. And I just appreciate your willingness over the years to really dig in and work well with the board and with the town administrator’s office.”
Remote Work Policy Adopted
The board unanimously adopted a new remote work and telecommuting policy after a presentation by Human Resources Director Lori Taylor. The policy formalizes occasional and scheduled hybrid remote work arrangements for eligible town employees, with management maintaining strict control over approvals.
Town Administrator Doug Lapp emphasized his conservative approach to remote work, noting that “we’ve not been early adopters, we’re really kind of lagging behind the private sector and much of state and federal government and other municipalities too.” However, he said the COVID-19 pandemic forced the town to work remotely and demonstrated that technology like Zoom had made such arrangements more feasible.
Taylor explained that the policy keeps management control at its center, requiring a formal approval process involving department heads, the HR director, and the town administrator. Each remote work arrangement requires a written agreement and can be revoked at any time if issues arise.
Eligibility is limited to employees who have been in their role for at least six months and are in good standing. The policy does not establish permanent remote work schedules but allows occasional remote work—such as a single Friday or one day every other week—when circumstances warrant.
Taylor cited research showing that remote work flexibility is associated with higher job satisfaction, lower stress levels, and no harm to performance. The Society for Human Resources Management reports that 63% of employers in 2023 determined that flexibility should be a mainstream benefit for applicants to compare when weighing employment options.
“If our employees are happy, then that impacts their performance positively, and it can improve client services as well,” Taylor said. The policy also serves the town’s recruitment and retention efforts in tight labor markets where private sector employers routinely offer remote work options.
Lapp noted a practical example: most department heads on the first floor of Town Hall don’t have private offices and work in small spaces with other staff and customers. “A common request I’ve had is a department head’s working on a particular project. It might be sensitive, or it might be they just need a quiet space for 8 or 15 hours to do something, and this kind of thing would help with that.”
Select Board member Steve O’Donnell raised concerns about document retention and confidentiality, particularly for department heads dealing with sensitive information. IT Director Geno confirmed that the town’s Office 365 platform would support remote work, with rule sets controlling who can access information and when. O’Donnell recommended adding a provision mandating that any paperwork be digitized before being used for remote work, preventing documents from physically leaving town premises.
The policy includes security requirements: employees must follow IT and records rules, protect town data, maintain safe ergonomic workspaces, and return any town equipment when arrangements end. During building closures or storms, remote work may be directed if feasible.
For union employees, the town must engage in impact bargaining before implementation. Department heads will receive training on managing remote workers before the policy takes effect. The HR department will monitor service levels and usage in communication with the town administrator.
Select Board member Lori Childs welcomed the policy: “The town is moving forward in so many ways, with Union Point, the new school, so this policy kind of reflects that as well.”
Opioid Settlement Funds Update
Assistant Town Administrator Courtney Bjorgaard provided an update on the use of opioid settlement funds, which had originally been on the agenda for matching grant applications. However, Bjorgaard reported that two community organizations the town was working with to secure RISE Mosaic municipal matching fund grants decided to take a step back this year and look at fiscal year 2027 instead.
“I think given the timing of the grant and the limits to the bandwidth for implementation of some of the programming, they have kind of decided to take a step back this year,” Bjorgaard explained. The grant deadline was Friday, and waiting until next year “will give us an opportunity to also think about what our gaps are from this first year of the operation of the funds.”
Bjorgaard outlined how opioid settlement funds are being allocated. A portion will fund a mental health co-responder position at the police department. “We’ve had a few candidates. We’ll be continuing to interview a few candidates and hopeful that we’ll be able to make a selection to add to the team at some point this year, maybe by the end of this year,” she said.
The town has met with three community partners identified in the internal planning process: Plymouth County Outreach, Rockland Cares, and High Point Treatment Center (also known as the Brockton Area Prevention Collaborative). Grant agreements with these organizations should be executed by mid-November.
These partners will focus on community engagement and outreach, including presence at events like the holiday stroll. They will provide training, including Narcan training, and some partners expressed interest in working more with schools through a dedicated school liaison. The funding will also support existing programs like a recovery support scholarship that Rockland Cares offers.
Bjorgaard said she wants to invite these entities to an upcoming Select Board meeting to share more about their work and available resources. She also plans to work with them and Sergeant McDonald to produce a WRPS video series “to talk about some of those resources too so that we’re being transparent about how these funds are being used.”
Select Board member Lori Childs asked about the FY27 timeline, and Bjorgaard explained that RISE Mosaic will issue another call for municipal matching grant funds next fall. “So we’ll plan to be engaged in that process next year,” she said. The delay allows the town to gather community feedback on gaps in service throughout the next year “so that we can think about programmatically what these kinds of funds could support moving forward.”
Pleasant Street Landfill Redevelopment Advances
Town Administrator Doug Lapp reported that the town received four proposals for the Pleasant Street landfill cap and redevelopment project, which he described as “a good number” that provides competition without being overwhelming to review.
“These are four legitimate firms that have done their due diligence. So I’m excited about that,” Lapp said. An internal review team consisting of Lapp, Assistant Town Administrator Courtney Bjorgaard, the town planner, and the highway superintendent is evaluating the proposals along with engineering consultant CDM Smith, which has been conducting quarterly landfill monitoring reports and “knows the landfill better than anybody.”
CDM Smith will also conduct reference checks using their technical expertise to ask appropriate technical questions. Land use counsel Bob Galvin will also be consulted on the complicated land use issues involved.
Lapp recommended that the review team provide the Select Board with either a short list of candidates for public interviews or, if all are equal, recommend interviewing all four. “I’m just sort of assuming that fewer would be better. Maybe two could be a good number,” Lapp said, though he indicated he was open to input.
When the recommendation comes forward, the board will receive a detailed memo explaining the rankings and all four proposals for review. Town Counsel reminded the board that as a request for proposals (RFP) rather than a request for bids, the town is not required to select the highest financial offer and can choose the best overall value based on qualifications and fit.
Four Major Capital Projects Underway
Lapp updated the board on four significant capital projects currently in progress: the fire station building project (including demolition and construction), the Bicentennial Track project, the Pleasant Street landfill cap and redevelopment, and the Phelps Elementary School rooftop solar project.
“That’s a lot on top of going into budget season and everything else,” Lapp said, noting that managing these projects requires reprioritizing other initiatives. As a result, the planned move of recreation and daycare programs from McKinley School to Esten Elementary has been moved down the priority list. “We can keep treading water at McKinley while we kind of make some progress on these because we’re really kind of at staffing capacity right now with these four things.”
Select Board member Lori Childs asked about safety concerns at McKinley School. Lapp explained that while the building is currently safe for occupancy and receives regular inspections from the building inspector, “we know we need to get out of that building” in the long term.
“If the building was unsafe, it would be closed. We would shut it down if it’s ever in a truly unsafe situation,” Lapp said. Recreation Director Jeanne Blaney constantly monitors the facility and immediately reports any concerning issues to Bjorgaard and Lapp. Current work includes roofing repairs, and the town is hiring a building envelope consultant to analyze the brick exterior.
“It’s a long way of saying the building is safe to be occupied,” Lapp said. “But we know we’re on borrowed time and we need to relocate to Esten with a newer structure.”
The town faces challenges managing facilities without a dedicated facilities department, requiring department heads to handle building maintenance issues largely on their own with some assistance from the schools’ facilities director.
Community Responds to SNAP Benefits Crisis
Multiple Select Board members addressed the federal government shutdown’s impact on SNAP (Supplemental Nutrition Assistance Program) benefits, which have largely ceased across the country. The board emphasized the community’s need to support the Rockland Emergency Food Pantry during this crisis.
Select Board member Steve O’Donnell noted that state data shows approximately 2,300 Rockland residents—about 13% of the town’s population—receive SNAP benefits, a number similar to the enrollment in Rockland Public Schools. “You walk around Fall Fest, you walk around the holiday stroll, every 10th person you see represents someone that are on food assistance,” O’Donnell said.
O’Donnell praised the community’s initial response to the crisis but warned against allowing support to die off: “I want folks to remember as we go through this holiday season, if we don’t see a big change, that we continue to support our local food pantries.” He noted that the Holbrook Dispatch Center is running a program allowing food donations to be dropped at the fire station, with Lapp adding that the police station lobby also accepts donations.
Select Board member Tiffanie Needham reported that she attended a state-provided webinar with the town administrator on the shutdown and met with Food Pantry Director Maria Zona. On November 8, Needham and WRPS will film a tour of the food pantry to help community members understand what’s available and how to access services.
Zona is exploring expanded hours to accommodate increased demand. High-demand items include cereal, rice, pasta, and canned goods. Needham emphasized that monetary donations are particularly valuable because the food pantry can purchase food at wholesale prices.
“At any point, should someone be hungry, please feel free to even contact me. I’m here to help, and we as a town, everyone cares about the well-being of all of us,” Needham said.
The Boy Scouts are conducting a townwide food drive on November 8, collecting non-perishable goods left on porches. Information about needed items is available on the Rockland Emergency Food Pantry Facebook page.
Select Board member Lori Childs emphasized the long-term nature of the crisis: “SNAP benefits will probably be provided through the courts for November, but what about December, January, February? We’ve got to take care of each other.” She shared that she organized a community effort to create “meals in a bag”—non-perishable items in gallon Ziploc bags with recipe cards—and received enough donations to create 70 bags for the food pantry, considering making it a monthly effort.
Childs also addressed misconceptions about SNAP recipients: “I heard a few different comments about people on Snap, you know, why should our tax dollars go to that? And can’t these people get jobs? Well, most people that get Snap have jobs. So, and sometimes two. So that’s how serious it is in the United States of America.”
Select Board Chair O’Loughlin noted that he has advocated for the food pantry for years through several fundraising events. The Bellini Brunch raised $15,000 for the food pantry this past year, and a recent golf tournament raised another $20,000. The Bellini Brunch will benefit the food pantry again next year.
Other Business
The board approved Julie Sneed for appointment to the Rent Control Board, which will create a quorum enabling the board to begin negotiating more reasonable rent rates for seniors and other residents at Leisure Woods, Hillcrest, and Live Oaks mobile home communities.
The board approved a one-day liquor license for a folk and Americana music performance at 83 East Water Street (the Sandpaper Factory) on November 15 from 6 to 10 p.m. Performer Rob Hendrickson explained that fourth-floor artists are trying to bring live music into the space to attract more people to the building. Attendees are encouraged to bring non-perishable goods for the Rockland Food Pantry, and a portion of ticket proceeds will be donated to the pantry. The event runs from 7 to 9 p.m., with doors opening at 6 p.m.
Lapp announced that a new Veterans Day celebration will be held November 9 from noon to 3 p.m. at the Whitman VFW, replacing the traditional tri-town Veterans Day parade. The “quad town” event (adding Hanson as a fourth participating community) will feature a meet-and-greet with veterans, veterans agents available to answer benefit questions, food service, and children’s activities including bouncy houses, outdoor games, and music. The event will rotate locations each year.
At the meeting’s opening, the board held a moment of silence for Officer Hugh Donnelly, who passed away that morning after serving the Town of Rockland for over 30 years. Donnelly is the father of Board of Health member Michelle Kennedy.
Why It Matters
The indefinite ban of Board of Health Chairman Robert Stephens from Town Hall represents a significant escalation in the Select Board’s efforts to enforce standards of conduct for volunteer officials. While Stephens can continue serving on the Board of Health remotely, the restrictions aim to protect town employees from documented patterns of abusive behavior while allowing essential public health work to continue. The decision demonstrates that volunteer board members who violate conduct standards and create hostile work environments will face consequences, including potential personal liability if behavior continues. For residents who interact with the Board of Health—whether for septic permits, food establishment licenses, or other public health matters—the changes may improve the functioning of a board that the investigation found was unable to complete important work due to the chairman’s conduct. The release of the investigation’s executive summary provides transparency about how town officials are held accountable for their actions toward employees and fellow board members.
Meeting Minutes
Key Motions & Votes
Motion: Approve minutes from October 21, 2025. Outcome: Approved. Vote: Unanimous. (Timestamp: 04:36)
Motion: Appoint Julie Sneed to the Rent Control Board. Outcome: Approved. Vote: Unanimous. (Timestamp: 06:23)
Motion: Approve one-day liquor license for folk and Americana music performance at 83 East Water Street on November 15, 2025, 6-10 p.m. Outcome: Approved. Vote: Unanimous. (Timestamp: 08:57)
Motion: Adopt remote work telecommuting policy with provisions for document security and digitization requirements. Outcome: Approved. Vote: Unanimous. (Timestamp: 39:57)
Motion: Accept results of Board of Health investigation, accept recommendations, indefinitely extend Robert Stephens’ ban from Town Hall, limit him to remote participation in Board of Health meetings, and release executive summary to the public. Outcome: Approved. Vote: Unanimous. (Timestamp: 58:06)
Motion: Adjourn into Executive Session per M.G.L. Chapter 30A, Section 21(a)(2) for contract negotiations with non-union personnel (Town Administrator), not to reconvene. Outcome: Approved. Vote: Unanimous (roll call: Childs-yes, Needham-yes, O’Donnell-yes, O’Loughlin-yes). (Timestamp: 1:14:04)
Public Comment
No public comment period was held during this meeting.
What’s Next
The Select Board will receive recommendations on Pleasant Street landfill redevelopment proposals, potentially including a short list of two candidates for public interviews, with a detailed memo explaining rankings. Grant agreements with three community partners for opioid settlement funds (Plymouth County Outreach, Rockland Cares, and High Point Treatment Center/Brockton Area Prevention Collaborative) are expected to be executed by mid-November. Those organizations will be invited to a future Select Board meeting to present their work and available resources. A WRPS video series on opioid resources and services will be produced. The HR Department will implement the remote work policy after training department heads and will monitor its effectiveness through regular communication with the town administrator. Jane Hackett will assume the role of Superintendent of Schools effective July 1, 2026, following Dr. Alan Cron’s retirement. Town Hall will be closed Tuesday, November 11 for Veterans Day.
Clear. This type of accountability is so important for public roles. It's frustrating when people in power refuse to engage even when given the chance to defend themselfs.