NOT FOR PUBLICATION WITHOUT THE

APPROVAL OF THE APPELLATE DIVISION

SUPERIOR COURT OF NEW JERSEY

APPELLATE DIVISION

DOCKET NO. A-1664-20

MATHEW T. SULLIVAN,

Appellant,

v.

BOARD OF REVIEW, 

DEPARTMENT OF LABOR,

and TURTLE AND THE 

WOLF, LLC,

Respondents.

__________________________

Submitted February 2, 2022 – Decided March 7, 2022

Before Judges Whipple, Geiger, and Susswein.

On appeal from the Board of Review, Department of 

Labor, Docket No. 219767.

Mathew T. Sullivan, appellant pro se.

Andrew J. Bruck, Acting Attorney General, attorney 

for respondent Board of Review (Jane C. Schuster,

Assistant Attorney General, of counsel; Roger 

Castillo, Deputy Attorney General, on the brief).

The opinion of the court was delivered by 

WHIPPLE, J.A.D.

APPROVED FOR PUBLICATION

March 7, 2022

APPELLATE DIVISION
A-1664-20 2

Petitioner Mathew T. Sullivan appeals from a February 9, 2021 decision 

by the Board of Review, Department of Labor and Workforce Development 

(Board). Because petitioner was not qualified to receive the New Jersey 

unemployment benefits he received during the COVID-19 pandemic through 

the Coronavirus Aid, Relief, and Economic Security (CARES) Act, 15 U.S.C. 

§§ 9001 to 9141,1 he must refund $5,584, and we affirm. 

Petitioner worked as a chef for Turtle and the Wolf, LLC, a restaurant in 

Montclair, from September 2016 to October 20, 2019. He voluntarily left the 

job because he wanted additional compensation from his employer and had 

moved from Bloomfield to Clinton, which involved a longer commute. 

On April 26, 2020, during the COVID-19 pandemic, petitioner filed a 

claim for unemployment benefits, establishing a weekly benefit rate of $698. 

He received $5,584 in benefits for eight weeks, from May 2, 2020, through 

June 20, 2020. On June 19, 2020, petitioner started work for a new employer 

and did not file for benefits past the week ending on June 20, 2020. 

1

 Signed into law on March 27, 2020, the CARES Act, 15 U.S.C. §§ 9001 to 

9141, "create[d] a new temporary federal program called Pandemic 

Unemployment Assistance (PUA) that in general provides up to [thirty-nine]

weeks of unemployment benefits, and provides funding to states for the 

administration of the program." U.S. DEP'T OF LABOR, UNEMPLOYMENT 

INSURANCE PROGRAM LETTER No. 16-20 at 1 (2020), 

https://wdr.doleta.gov/directives/attach/UIPL/UIPL_16-20.pdf.
A-1664-20 3

By letter dated July 15, 2020, the Division of Unemployment and 

Temporary Disability Insurance (Division), Department of Labor and 

Workforce Development, notified petitioner:

You are disqualified for benefits from [October 20, 

2019] and will continue to be disqualified until you 

have worked eight or more weeks in employment and 

have earned at least ten times your weekly benefit 

rate. 

You left work voluntarily on [October 20, 2019]. 

Your last day of work was [October 20, 2019]. You 

resigned because you were seeking a better job with 

benefits. You are not unemployed due to one of the 

qualifying reasons identified under the CARES Act. 

You are therefore ineligible for Pandemic 

Unemployment Assistance (PUA) benefits. 

Therefore, your reason for leaving does not constitute 

good cause attributable to the work. You are 

disqualified for benefits. 

On the same date, the Division sent petitioner a Request for Refund imposing a 

liability to refund $5,584. He appealed both and the Appeal Tribunal held a 

telephonic appeal hearing during which petitioner participated pro se. The 

Appeal Tribunal affirmed the Division's findings of fact and legal 

determination that petitioner had left work voluntarily and had not evidenced 

good cause for leaving attributable to the job and was disqualified for 

unemployment benefits as of October 20, 2019, under unemployment 

compensation law, N.J.S.A. 43:21-5(a).
A-1664-20 4

On September 28, 2020, petitioner appealed to the Board. The Board 

affirmed the Appeal Tribunal's decision on February 9, 2021 by stating: 

The [f]indings of [f]act and [o]pinion as developed by 

the Appeal Tribunal and the allegations of the 

appellant have been carefully examined. 

Since the appellant was given a full and impartial 

hearing and a complete opportunity to offer any and 

all evidence, there is no valid ground for a further 

hearing. 

On the basis of the record below, we agree with the 

decision reached. 

This appeal followed. Petitioner argues that the Division is estopped 

from seeking a refund because it erroneously paid the amounts and should not 

benefit from that mistake. We are sympathetic to the hardship many people, 

including petitioner, endured during the 2020 lockdown as a result of the 

COVID-19 pandemic. However, we consider it necessary to explain what the 

CARES Act permitted and what it did not permit within the context of New 

Jersey's unemployment compensation laws.

New Jersey statute, N.J.S.A. 43:21-5, provides, in pertinent part: 

An individual shall be disqualified for benefits:

(a) For the week in which the individual 

has left work voluntarily without good 

cause attributable to such work, and for 

each week thereafter until the individual 

becomes reemployed and works eight 

weeks in employment, which may include 
A-1664-20 5

employment for the federal government, 

and has earned in employment at least ten 

times the individual's weekly benefit rate, 

as determined in each case. . . .

N.J.S.A. 43:21-16(d)(1) provides, in pertinent part: 

When it is determined by a representative or 

representatives designated by the Director of the 

Division of Unemployment and Temporary Disability 

Insurance of the Department of Labor and Workforce 

Development of the State of New Jersey that any 

person . . . has received any sum as benefits under this 

chapter . . . while any conditions for the receipt of 

benefits imposed by this chapter . . . were not fulfilled 

in his [or her] case, or while he [or she] was 

disqualified from receiving benefits, or while 

otherwise not entitled to receive such sum as benefits, 

such person . . . shall be liable to repay those benefits 

in full. . . . Such person shall be promptly notified of 

the determination and the reasons therefor. The 

determination shall be final unless the person files an 

appeal of the determination within seven calendar 

days after the delivery of the determination, or within 

[ten] calendar days after such notification was mailed 

to his [or her] last-known address . . . .

[(internal citations omitted).]

The CARES Act expanded eligibility, under the PUA program, for 

payment of benefits for certain categories of individuals. Thus, when 

petitioner was determined to be disqualified for state benefits for the relevant 

time period, the Division had determined whether he was a covered individual 

under the PUA even if he was not unemployed for an expanded reason through 

the CARES Act. The Division determined, however, that petitioner left work 
A-1664-20 6

voluntarily without good cause attributable, which disqualifies him under the 

PUA.

Under the CARES Act, the Secretary of Labor "shall provide to any 

covered individual unemployment benefit assistance while such individual is 

unemployed, partially unemployed, or unable to work for the weeks of such 

unemployment with respect to which the individual is not entitled to any other 

unemployment compensation. . . ." 15 U.S.C. § 9021(b). 

A "covered individual" is an individual who:

(i) is not eligible for regular compensation or extended

benefits under State or Federal law or pandemic

emergency unemployment compensation under section

9025 . . . including an individual who has exhausted

all rights to regular unemployment or extended

benefits under State or Federal law or pandemic

emergency unemployment compensation under section

9025 . . . ;

(ii) provides self-certification that the individual—

(I) is otherwise able to work and available for

work within the meaning of applicable State

law, except the individual is unemployed,

partially unemployed, or unable or unavailable

to work because—

(aa) the individual has been diagnosed

with COVID-19 or is experiencing

symptoms of COVID-19 and seeking a

medical diagnosis;
A-1664-20 7

(bb) a member of the individual's

household has been diagnosed with

COVID-19;

(cc) the individual is providing care for a

family member or a member of the

individual's household who has been

diagnosed with COVID-19;

(dd) a child or other person in the

household for which the individual has

primary caregiving responsibility is

unable to attend school or another facility

that is closed as a direct result of the

COVID-19 public health emergency and

such school or facility care is required for

the individual to work;

(ee) the individual is unable to reach the

place of employment because of a

quarantine imposed as a direct result of

the COVID-19 public health emergency;

(ff) the individual is unable to reach the

place of employment because the

individual has been advised by a health

care provider to self-quarantine due to

concerns related to COVID-19;

(gg) the individual was scheduled to

commence employment and does not have

a job or is unable to reach the job as a

direct result of the COVID-19 public

health emergency;

(hh) the individual has become the

breadwinner or major support for a

household because the head of the

household has died as a direct result of

COVID-19;
A-1664-20 8

(ii) the individual has to quit his or her job

as a direct result of COVID-19;

(jj) the individual's place of employment

is closed as a direct result of the COVID19 public health emergency; or

(kk) the individual meets any additional

criteria established by the Secretary for

unemployment assistance under this

section; or

(II) is self-employed, is seeking part-time

employment, does not have sufficient work

history, or otherwise would not qualify for

regular unemployment or extended benefits

under State or Federal law or pandemic

emergency unemployment compensation under

section 9025 . . . and meets the requirements of

subclause (I); and

(iii) provides documentation to substantiate

employment or self-employment or the planned

commencement of employment or self-employment

not later than [twenty-one] days after the later of the

date on which the individual submits an application

for pandemic unemployment assistance under this

section or the date on which an individual is directed

by the State Agency to submit such documentation in

accordance with [20 C.F.R. 625.6(e)], or any

successor thereto, except that such deadline may be

extended if the individual has shown good cause under

applicable State law for failing to submit such

documentation. . . .

[15 U.S.C. § 9021(a)(3)(A).]

A "covered individual" does not include:
A-1664-20 9

(i) an individual who has the ability to telework with

pay; or

(ii) an individual who is receiving paid sick leave or

other paid leave benefits, regardless of whether the

individual meets a qualification described in items

(aa) through (kk) of subparagraph (A)(i)(I).

[15 U.S.C. § 9021(a)(3)(B).]

Under 42 U.S.C. § 502, states must ensure that federal funds are used for 

the "proper and efficient administration" of unemployment compensation laws.

Because petitioner did not fall into any of these delineated CARES Act 

categories or qualify for the PUA program otherwise, the Division, acting for 

the State, determined he was required to refund the payments he received. 

Petitioner does not argue that he falls into one of these categories; he does not 

assert erroneous findings of fact as to his circumstances nor for an expansive 

interpretation of one of these categories to include his circumstances. Rather, 

petitioner argues that because the Division awarded the funds at one point, it 

should be estopped from seeking the refund. His argument fails because the 

Division must seek repayment for improperly awarded benefits, and we discern 

no error in the Division seeking such repayment, nor in the subsequent

decisions from the Appeal Tribunal and Board, because of petitioner's 

ineligibility for such benefits.
A-1664-20 10

"N.J.S.A. 43:21-16(d) requires the full repayment of unemployment 

benefits received by an individual who, for any reason, regardless of good 

faith, was not actually entitled to those benefits." Bannan v. Bd. of Rev., 299 

N.J. Super. 671, 674 (1997). "The Division shall issue a demand for refund of 

unemployment benefits in each case when a determination of overpayment is 

made. Except in the case of fraud, an individual shall be notified of the 

demand for refund within four years after benefits were received. . . ." 

N.J.A.C. 12:17-14.1. 

Our scope of review is narrow. As a general matter, we will disturb an 

agency's adjudicatory decision only upon a finding that the decision is 

"arbitrary, capricious or unreasonable," or is unsupported "by substantial 

credible evidence in the record as a whole." Henry v. Rahway State Prison, 81 

N.J. 571, 579–80 (1980) (citing Campbell v. Dep't of Civ. Serv., 39 N.J. 556, 

562 (1963)). In determining whether agency action is arbitrary, capricious, or 

unreasonable, a reviewing court must examine:

(1) [W]hether the agency's action violates express or 

implied legislative policies, that is, did the agency 

follow the law; 

(2) whether the record contains substantial evidence to 

support the findings on which the agency based its 

action; and 

(3) whether in applying the legislative policies to the 

facts, the agency clearly erred in reaching a 
A-1664-20 11

conclusion that could not reasonably have been made 

on a showing of the relevant factors.

[In re Carter, 191 N.J. 474, 482-83 (2007) (quoting 

Mazza v. Bd. of Trs., 143 N.J. 22, 25 (1995)).]

Furthermore, we defer to an agency's expertise. See Murray v. State 

Health Benefits Comm'n, 337 N.J. Super. 435, 442 (App. Div. 2001) ("[W]here 

there is substantial evidence in the record to support more than one regulatory 

conclusion, it is the agency's choice which governs.") (internal quotation 

marks omitted) (quoting In re Vineland Chem. Co., 243 N.J. Super. 285, 307 

(App. Div. 1990)). Our review is not, however, "perfunctory," nor is "our 

function . . . to merely rubberstamp an agency's decision." Figueroa v. N.J. 

Dep't of Corr., 414 N.J. Super. 186, 191 (App. Div. 2010). Rather, we are 

constrained "to engage in a careful and principled consideration of the agency 

record and findings." Ibid. (internal quotation marks omitted) (quoting 

Williams v. Dep't of Corr., 330 N.J. Super. 197, 204 (App. Div. 2000)).

Based on our review of the record, the Division's determination, and the 

subsequent decisions on appeal, were not "arbitrary, capricious or 

unreasonable" and were amply supported "by substantial credible evidence in 

the record as a whole." Henry, 81 N.J. at 579–80. The record is undisputed 

that petitioner voluntarily left his job at Turtle and the Wolf for personal 

reasons, and he was not unemployed for reasons related to the COVID-19 
A-1664-20 12

pandemic as set forth in the CARES Act nor unemployed otherwise under the 

PUA. 

Petitioner focuses his argument on how the Division should be estopped 

from seeking the return of the benefits that the Division erroneously paid him 

because he "clearly relied [on the benefits to his] detriment and spent the 

money." We disagree and affirm because, for the reasons set forth above 

which petitioner did not specifically appeal or argue against, petitioner was not 

entitled to these benefits and the Division did not arbitrarily seek repayment, 

so petitioner has not suffered a manifest injustice in being required to refund 

the improper benefits. 

The doctrine of equitable estoppel "is designed to prevent a party's 

disavowal of previous conduct if such repudiation would not be responsive to 

the demands of justice and good conscience." Hirsch v. Amper Fin. Servs., 

LLC, 215 N.J. 174, 189 (2013) (quoting Heuer v. Heuer, 152 N.J. 226, 237 

(1998)). To establish equitable estoppel, the party seeking to invoke the 

doctrine must prove that an opposing party "engaged in conduct, either 

intentionally or under circumstances that induced reliance, and that [the 

moving party] acted or changed . . . position to [his or her] detriment." Knorr 

v. Smeal, 178 N.J. 169, 178 (2003). "Although the doctrine of equitable 

estoppel is rarely invoked against a governmental entity . . . [courts have] long 
A-1664-20 13

held that the prevention of manifest injustice provides an exception to the 

general rule." Aqua Beach Condo. Ass'n v. Dep't of Cmty. Affairs, Bureau of 

Homeowners Prot., New Home Warranty Program, 186 N.J. 5, 20 (2006) 

(quoting Casamasino v. City of Jersey City, 158 N.J. 333, 354 (1999)). But, 

"even-handed application of fairly adopted and clear regulations debunks any 

claim of 'manifest injustice.'" Ibid.

Petitioner did not demonstrate a "manifest injustice" that would justify 

invoking equitable estoppel against the State. Although the Division 

erroneously granted petitioner benefits, the State, through the Division and 

appeals process, even-handedly and reasonably applied federal and State laws 

and regulations to seek a refund of those benefits. See Aqua Beach Condo. 

Ass'n, 186 N.J. at 20. 

Affirmed.