BRENNAN, J. (dissenting).
Plaintiffs are retired policemen and firemen of the city of Dearborn. Their suit is for payment of retirement benefits alleged to be due.
The Dearborn city charter provides (chap 21, §§ 21.8, 21.28, 21.37):
"Section 21.8. `Average Final Compensation' shall mean the average annual salary or wages paid to a member by the city for service rendered as a policeman or fireman during his last 5 years of service preceding...
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