WORCESTER – Northwestern Assistant District Attorney Stephen Gagne and New England Police Benevolent Association (NEPBA) Local 911 President Thomas Duffy II met multiple times leading up to the trial of former Worcester City Councilor Etel Haxhiaj, according to an Assistant District Attorney within the Northwestern District Attorney’s Office.
Prior to Haxhiaj’s trial, Gagne made a plea offer to both Haxhiaj and Ashley Spring to end the criminal cases they faced in connection with the arrest of a woman by federal agents on Eureka Street on May 8. The offer included the unusual requirement that Haxhiaj and Spring sign a joint press release alongside Gagne.
According to the same Assistant District Attorney within the Northwestern District Attorney’s Office, Duffy had a significant influence over the text of the joint press release Gagne required both women to sign alongside him as part of the plea offer. The ADA also says Gagne and Duffy met on multiple occasions.
The NEPBA Local 911 represents the patrol officers within the Worcester Police Department. Another union represents law enforcement holding ranks of sergeant and above.
Worcester County District Attorney Joe Early Jr. recused his office from the case. The office of Northwestern District Attorney David Sullivan led the prosecution.
After a hearing in Haxhiaj’s case in September, Gange told This Week in Worcester, “have no interest in the case and do not know any of the parties. Whether the result makes the defendants upset or the WPD upset, I will be back to work in Northampton.”
Haxhiaj rejected the offer and elected to go to trial. Spring accepted a plea offer that leaves her facing pre-trial probation that expires on the one-year anniversary of the incident on May 8, 2026. A jury convicted Haxhiaj of assault and battery on a public official and acquitted her on a charge of interference with police. Both women will complete community service.
The director of communications for the Northwestern District Attorney’s Office said, “we have no comment at this time” in response to inquiries by This Week in Worcester. about the relationship and meetings between Gagne and Duffy. The office also declined an interview request with Northwestern District Attorney David Sullivan.
The Worcester Police Department and the office of City Manager Eric Batista did not respond to inquiries by This Week in Worcester.
Elizabeth Holloran, Haxhiaj’s attorney, attempted to call Duffy as a witness in Haxhiaj’s trial. In response to Gagne’s objection, Judge Zachary Hillman prohibited Duffy’s testimony.
Halloran offered the following statement in response to an inquiry by This Week in Worcester:
“In her role on the city council, Etel called for change within the WPD in the wake of the DOJ report. Thomas Duffy utilized the public platform afforded to him as the union president to make statements asserting his disdain for Etel. The union issued a statement regarding the incident on Eureka Street the day prior to the filing of an application for criminal complaint. This did not appear to be a coincidence, particularly given that the role of chief was being held in an interim capacity at the time. The purpose for including him on the witness list was to elicit testimony to provide that information and context to the jury.”
Halloran included that she felt Judge Hillman was fair throughout the trial.
Timeline
Duffy has previously called some members of the city council “anti-police activists” during the council’s last term. City Councilor At-Large Khrystian King and Haxhiaj were the two most outspoken councilors calling for additional police oversight mechanisms after the release of the U.S. Department of Justice summary report of its pattern and practice investigation into the Worcester Police Department.
Haxhiaj won reelection in 2023 after being challenged by now-Councilor Rivera. Officials of the NEPBA Local 911 strongly supported Rivera for election.
On May 9, the day after the incident on Eureka Street that led to charges against Haxhiaj and Spring, the NEPBA Local 911 issued a press release that included a statement by Duffy calling for an ethics investigation of Haxhiaj. It that statement, Duffy said, “Of particular concern in this case, one of our elected policy makers and someone who has created this difficult task for the police, District 5 City Councilor, Etel Haxhiaj, incited aggression towards the police during the incident.”
The Worcester Police Department filed an application for criminal charges against Haxhiaj, with Officer Shauna McGuirk as the complaining witness, on May 12. A magistrate approved those charges in June.
As This Week in Worcester previously reported, according to multiple sources within the Worcester Police Department, between May 8 and the charges against Haxhiaj being filed on May 12, Duffy confronted Worcester Chief of Police Paul Saucier in a common area outside the chief’s office within the police department headquarters. Those sources say Duffy screamed at Saucier during the confrontation, which drew the attention of several nearby people.
Several additional sources have confirmed the confrontation since the time of publication.
The Worcester Police Department used a Facebook post to deny that the confrontation took place. All four deputy chiefs and some captains signed on to the statement. Some captains declined the request to sign on.
Duffy filed a civil lawsuit alleging defamation against the principal of This Week in Worcester, Tom Marino.
As This Week in Worcester previously reported, before a hearing related Haxhiaj’s case in September, Duffy entered the courtroom prior to its being open to the public and conversed with Gagne.
The NEPBA Local 911 issued formal endorsements of candidates for city council in 2025, unlike in recent election years, and actively campaigned for its endorsements. The union again strongly supported Rivera.
Despite several meetings between Gagne and Duffy, the relationship between the two and the extent of Duffy’s impact on the case are unclear. The determination of violations of applicable laws and rules of professional conduct standards would require a formal investigation.
