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When Mr. Schaefer ogled a female staffer at a board meeting and forced her to walk by him in a crowded room, then refused to apologize, many said Mr. Schaefer should leave office.

After he retired from public life, Mr. Schaefer made few public appearances. In recent years, his health declined. He was admitted for five days earlier this month to a Baltimore hospital, where he was treated for pneumonia.

c Joseph Weber contributed to this report.