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HomeMy WebLinkAbout08-584 ConfidentailADVICE OF COUNSEL October 15, 2008 08 -584 This responds to your letter of September 7, 2008, by which you requested a confidential advisory from the Pennsylvania State Ethics Commission. Issue: Whether the Public Official and Employee Ethics Act ( "Ethics Act "), 65 Pa. .S. § 1101 et seq., would impose any restrictions upon employment of an A following termination of service with Commonwealth Agency B. Facts: You request a confidential advisory from the Pennsylvania State Ethics Commission regarding the post- employment restrictions of the Ethics Act. You have submitted facts that may be fairly summarized as follows. You were employed with Commonwealth Agency B in Unit C from [month, year] through [date]. During the final year of your employment with Commonwealth Agency B, you served as an A. You have submitted copies of your official Commonwealth Agency B position description and an organizational chart for Unit C, which documents are incorporated herein by reference. A copy of the job classification specifications for the position of A (job code [number]) has been obtained and is also incorporated herein by reference. You state that as an A for Unit C, you were responsible for overseeing Ds performing the E of various [types of projects] and ensuring that the E projects were completed on time and within the budgeted amount. Your day -to -day duties included [list of duties]. In addition to the aforementioned duties, you served as the administrative supervisor to Unit C's F Unit and as a G. You also served as a member of Unit C's H Committee for various projects that you were managing. As part of the H Committee, you reviewed proposals from various E Ds and were a voting member of the team that selected the D to perform the project E. You state that you have been a member of Organization I from [year] until the present. Organization I is comprised of members from the [type of industry], including both private and public entities. Organization I routinely holds monthly meetings to share information between entities and holds social functions such as golf outings during the year. Confidential Advice, 08 -584 October 15, 2008 Page 2 You state that beginning on [date], you will be employed by a private [type of firm] that provides [type of services] for a range of clients, including state, local, and private organizations. Based upon the above submitted facts, you seek guidance as to whether you would be subject to the restrictions of Section 1103(g) of the Ethics Act based upon your previous employment with Commonwealth Agency B in Unit C. You pose the following three additional, specific inquiries to be addressed if you would be subject to the restrictions of Section 1103(g) of the Ethics Act: 1. Whether the restrictions imposed upon you by Section 1103(g) of the Ethics Act would apply as to Commonwealth Agency B in its entirety or only as to Unit C; 2. Whether you would be prohibited from working on J projects as part of a K's team, where such would involve working as an L to a K that is bidding to E or M a [type of project] for the Commonwealth; and 3. Whether you would be prohibited from participating in trade organizations such as Organization I. 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. As an A for Commonwealth Agency B, 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; administering or monitoring grants or subsidies; planning or zoning; inspecting; licensing; regulating; auditing; or other activity(ies) where the economic impact is greater than de minimis on the interests of another person. 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. Confidential Advice, 08 -584 October 15, 2008 Page 3 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: § 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 though the invoices pertain to a contract that existed prior to termination of service. 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 Confidential Advice, 08 -584 October 15, 2008 Page 4 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 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 Commonwealth Agency B in its entirety, including but not limited to Unit C. Therefore, for the first year following termination of your service with Commonwealth Agency B, Section 1103(g) of the Ethics Act would apply and restrict "representation" of "persons" before Commonwealth Agency B. Turning to your specific inquiries, you are advised as follows. Your first specific inquiry has been addressed above. In response to your second specific inquiry, you are advised that Section 1103(g) of the Ethics Act would prohibit you from working on J projects as part of a K's team, where such would involve working as an L to a K that is bidding to E or M a [type of project] for the Commonwealth, to the extent that such activity(ies) would involve prohibited representation before Commonwealth Agency B as delineated above. With regard to your third specific inquiry, you are advised as follows. Section 1103(g) of the Ethics Act would not prohibit you from participating in trade organizations such as Organization I. However, where employee(s) of Commonwealth Agency B would have involvement with such trade organization(s), you would have to exercise caution to ensure that you would not engage in prohibited representation before Commonwealth Agency B. 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 or give 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. Specifically not addressed herein is the applicability of the N. Confidential Advice, 08 -584 October 15, 2008 Page 5 Conclusion: As an A for Commonwealth Agency B, 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 Commonwealth Agency B, you became a "former public employee" subject to Section 1103(g) of the Ethics Act. The former governmental body is Commonwealth Agency B in its entirety, including but not limited to Unit C. Section 1103(g) of the Ethics Act would restrict you from engaging in any activity that would constitute prohibited representation before Commonwealth Agency B for one year following termination of Commonwealth employment. The restrictions as to representation outlined above must be followed. Lastly, the propriety of the proposed conduct has only been addressed under the Ethics Act. Pursuant to Section 1107(11) of the Ethics Act, 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