LIACOS, C.J.
The plaintiff, the Plymouth County Retirement Association (Plymouth board), and the intervener, the Brockton retirement board (Brockton board), sought and obtained a declaratory judgment against the Commissioner of Public Employee Retirement (commissioner) for exceeding "his statutory authority under G.L.c. 32, § 21 (1) (d) [1988 ed.] by remanding the boards' decisions to award death benefit
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