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HomeMy WebLinkAbout07-579 IsenbergJohn R. Isenberg 214 Hickory St. Hollidaysburg, PA 16648 ADVICE OF COUNSEL August 31, 2007 07 -579 Dear Mr. Isenberg: This responds to your letter of July 28, 2007, by which you requested advice from the State Ethics Commission. Issue: Whether the Public Official and Employee Ethics Act ( "Ethics Act "), 65 Pa. .S. § 1101 et seq., would present any restrictions upon employment of a Transportation Construction Inspector Supervisor following termination of service with the Commonwealth of Pennsylvania, Department of Transportation ( "PennDOT "). Facts: You request an advisory from the State Ethics Commission regarding the post- employment restrictions of the Ethics Act. You have submitted facts that may be fairly summarized as follows. On June 29, 2007, you retired from Commonwealth employment as a Transportation Construction Inspector Supervisor in PennDOT Engineering District 9 -0 ( "District 9 -0 "). You have submitted a copy of the job classification specifications for your former position (job code 10630), which is incorporated herein by reference. A copy of your official position description has been obtained from PennDOT and is also incorporated herein by reference. Per your position description and job classification specifications, you worked as either the Inspector -in- Charge or as assistant to the Inspector -in- Charge of PennDOT highway construction projects. You supervised transportation construction inspectors in the inspection of materials and workmanship for compliance with contractual requirements and PennDOT standards and specifications. You were authorized to serve as project administrator. You interviewed prospective employees and recommended employee selection or ranked applicants in terms of preference for employment. You state that your current employer, Innovative Consulting Group, Inc. ( "the Firm "), hopes to be selected to provide consultant inspection for PennDOT highway construction projects. The Firm would like to submit to PennDOT a letter of interest containing your name and qualifications. You state that if the Firm would be selected to work on PennDOT projects, you would be doing the same work that you did prior to Isen�ber 07 -579 August 31, 2007 Page 2 your retirement from PennDOT. You state that the spring construction season of 2008 would be the soonest that you would work on a PennDOT project. You state that during your employment with PennDOT, you were never part of a consultant selection committee, and you never worked with anyone employed by the Firm. You request guidance as to whether the Ethics Act would impose any restrictions upon you in your employment with the Firm. Discussion: It is initially noted that pursuant to Sections 1107(10) and 1107(11) of the Ethics Act, 65 Pa.C.S. §§ 1107(10), (11), advisories are issued to the requester based upon the facts that the requester has submitted. In issuing the advisory based upon the facts that the requester has submitted, the Commission does not engage in an independent investigation of the facts, nor does it speculate as to facts that have not been submitted. It is the burden of the requester to truthfully disclose all of the material facts relevant to the inquiry. 65 Pa.C.S. §§ 1107(10), (11). An advisory only affords a defense to the extent the requester has truthfully disclosed all of the material facts. It is further initially noted that, pursuant to the same aforesaid Sections of the Ethics Act, an advisory opinion may be given only as to prospective (future) conduct. To the extent that your inquiry relates to conduct that has already occurred, such past conduct may not be addressed in the context of an advisory opinion. However, to the extent your inquiry relates to future conduct, your inquiry may and shall be addressed. In the former capacity as a Transportation Construction Inspector Supervisor for PennDOT, you would be considered a "public employee" subject to the Ethics Act and the Regulations of the State Ethics Commission. See, 65 Pa.C.S. § 1102; 51 Pa. Code § 11.1. This conclusion is based upon the position description and the job classification specifications, which when reviewed on an objective basis, indicate clearly that the power exists to take or recommend official action of a non - ministerial nature with respect to one or more of the following: contracting; procurement; planning; inspecting; administering or monitoring grants; leasing; regulating; auditing; or other activities where the economic impact is greater than de minimis on the interests of another person. Cf., Stanisic, Opinion 98 -004; Lytle, Advice 07 -568; Varner, Advice 04 -507. Consequently, upon termination of public service, you became a "former public employee" subject to Section 1103(g) of the Ethics Act. While Section 1103(g) does not prohibit a former public official /public employee from accepting a position of employment, it does restrict the former public official /public employee with regard to "representing" a "person" before the governmental body with which he has been associated ": § 1103. Restricted activities (g) Former official or employee. - -No former public official or public employee shall represent a person, with promised or actual compensation, on any matter before the governmental body with which he has been associated for one year after he leaves that body. 65 Pa.C.S. § 1103(g) (Emphasis added). The terms "represent," "person," and "governmental body with which a public official or public employee is or has been associated" are specifically defined in the Ethics Act as follows: Isen�ber 07 -579 August 31, 2007 Page 3 § 1102. Definitions "Represent." To act on behalf of any other person in any activity which includes, but is not limited to, the following: personal appearances, negotiations, lobbying and submitting bid or contract proposals which are signed by or contain the name of a former public official or public employee. "Person." A business, governmental body, individual, corporation, union, association, firm, partnership, committee, club or other organization or group of persons. "Governmental body with which a public official or public employee is or has been associated." The governmental body within State government or a political subdivision by which the public official or employee is or has been employed or to which the public official or employee is or has been appointed or elected and subdivisions and offices within that governmental body. 65 Pa. C. S. § 1102. The term "Person" is very broadly defined. It includes, inter alia, corporations and other businesses. It also includes the former public employee himself, Confidential Opinion, 93 -005, as well as a new governmental employer. Ledebur, Opinion 95 -007. The term "representation" is also broadly defined to prohibit acting on behalf of any person in any activity. Examples of prohibited representation include: (1) personal appearances before the former governmental body or bodies; (2) attempts to influence; (3) submission of bid or contract proposals which are signed by or contain the name of the former public official /public employee; (4) participating in any matters before the former governmental body as to acting on behalf of a person; and (5) lobbying. Popovich, Opinion 89 -005. Listing one's name as the person who will provide technical assistance on a proposal, document, or bid, if submitted to or reviewed by the former governmental body, constitutes an attempt to influence the former governmental body. Section 1103 (g) also generally prohibits the inclusion of the name of a former public official/ public employee on invoices submitted by his new employer to the former governmental body, even if the invoices pertain to a contract that existed prior to termination of service with such governmental body. Shay, Opinion 91 -012. However, if such a pre- existing contract does not involve the unit where the former public employee worked, the name of the former public employee may appear on routine invoices if required by the regulations of the agency to which the billing is being submitted. Abrams/Webster, Opinion 95 -011. A former public official /public employee may assist in the preparation of any documents presented to his former governmental body. However, the former ublic official /public employee may not be identified on documents submitted to the former governmental body. The former public official /public employee may also counsel any person regarding that person's appearance before his former governmental body. Once again, however, the activity in this respect should not be revealed to the former governmental body. The Ethics Act would not prohibit or preclude making general informational inquiries to the former governmental body to secure information which is available to the general public, but this must not be done in an effort to indirectly Isen�ber 07 -579 August 31, 2007 Page 4 influence the former governmental body or to otherwise make known to that body the representation of, or work for the new employer. Section 1103(g) only restricts the former public official /public employee with regard to representation before his former governmental body. The former public official /public employee is not restricted as to representation before other agencies or entities. However, the "governmental body with which a public official /public employee is or has been associated" is not limited to the particular subdivision of the agency or other governmental body where the public official /public employee had influence or control but extends to the entire body. See, Legislative Journal of House, 1989 Session, No. 15 at 290, 291; Sirolli, Opinion 90 -006; Sharp, Opinion 90- 009 -R. The governmental body with which you are deemed to have been associated upon termination of public service is PennDOT in its entirety, including but not limited to District 9 -0. Therefore, for the first year following termination of service with PennDOT, Section 1103(g) of the Ethics Act would apply and restrict "representation" of "persons" before PennDOT. Having set forth the restrictions of Section 1103(g) of the Ethics Act, your specific inquiry shall be addressed. During the first year following your retirement from PennDOT, Section 1103(g) of the Ethics Act would prohibit the inclusion of your name or any other information identifying you on a letter of interest submitted by the Firm to PennDOT. Additionally, during the one -year period of applicability of Section 1103(g), it would be impossible as a practical matter for you to work on PennDOT projects for the Firm, performing the same duties that you performed in your former position as a Transportation Construction Inspector Supervisor with PennDOT, without running afoul of the prohibitions of Section 1103(g) of the Ethics Act. Cf., Stanisic, supra; Long, Advice 97- 541 and Opinions 97 -010 and 97- 010 -R. For the first year following your retirement from PennDOT, Section 1103(g) of the Ethics Act would prohibit you from performing any job duties that would involve prohibited representation before PennDOT as delineated above. Based upon the facts that have been submitted, this Advice has addressed the applicability of Section 1103(g) only. It is expressly assumed that there has been no use of authority of office for a private pecuniary benefit as prohibited by Section 1103(a) of the Ethics Act. Further, you are advised that Sections 1103(b) and 1103(c) of the Ethics Act provide in part that no person shall offer to a public official /public employee and no public official /public employee shall solicit or accept anything of monetary value based upon the understanding that the vote, official action, or judgment of the public official /public employee would be influenced thereby. Reference is made to these provisions of the law not to imply that there has been or will be any transgression thereof but merely to provide a complete response to the question presented. Lastly, the propriety of the proposed conduct has only been addressed under the Ethics Act; the applicability of any other statute, code, ordinance, regulation or other code of conduct other than the Ethics Act has not been considered in that they do not involve an interpretation of the Ethics Act. Specifically not addressed herein is the applicability of the Governor's Code of Conduct. Conclusion: In the former capacity as a Transportation Construction Inspector Supervisor for the Commonwealth of Pennsylvania, Department of Transportation CPennDOT "), you would be considered a "public employee" subject to the Public Official and Employee Ethics Act ("Ethics Act "), 65 Pa.C.S. § 1101 et seq. Upon termination of service with PennDOT, you became a "former public employee' subject to Section 1103(g) of the Ethics Act. The former governmental body is PennDOT in its Isen�ber 07 -579 August 31, 2007 Page 5 entirety including, but not limited to, Engineering District 9 -0. The restrictions as to representation outlined above must be followed. During the first year following your retirement from PennDOT, Section 1103(g) of the Ethics Act would prohibit the inclusion of your name or any other information identifying you on a letter of interest submitted by your new employer, Innovative Consulting Group, Inc. ( "the Firm ") to PennDOT. During the one -year period of applicability of Section 1103(g), it would be impossible as a practical matter for you to work on PennDOT projects for the Firm, performing the same duties that you performed in your former position as a Transportation Construction Inspector Supervisor with PennDOT, without running afoul of the prohibitions of Section 1103(g) of the Ethics Act. For the first year following your retirement from PennDOT, Section 1103(g) of the Ethics Act would prohibit you from performing any job duties that would involve prohibited representation before PennDOT. The propriety of the proposed conduct has only been addressed under the Ethics Act. Further, since service has been terminated, as outlined above, the Ethics Act would require that a Statement of Financial Interests be filed by no later than May 1 of the year after termination of service. Pursuant to Section 1107(11), an Advice is a complete defense in any enforcement proceeding initiated by the Commission, and evidence of good faith conduct in any other civil or criminal proceeding, provided the requester has disclosed truthfully all the material facts and committed the acts complained of in reliance on the Advice given. This letter is a public record and will be made available as such. Finally, if you disagree with this Advice or if you have any reason to challenge same, you may appeal the Advice to the full Commission. A personal appearance before the Commission will be scheduled and a formal Opinion will be issued by the Commission. Any such appeal must be in writing and must be actually received at the Commission within thirty (30) days of the date of this Advice pursuant to 51 Pa. Code § 13.2(h). The appeal may be received at the Commission by hand delivery, United States mail, delivery service, or by FAX transmission (717 - 787 - 0806). Failure to file such an appeal at the Commission within thirty (30) days may result in the dismissal of the appeal. Sincerely, Robin M. Hittie Chief Counsel