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HomeMy WebLinkAbout09-518 BaumerMatthew R. Baumer Assistant Professor Indiana University of Pennsylvania Music Dept., Cogswell Hall 422 S. 11 Street Indiana, PA 15705 Dear Mr. Baumer: ADVICE OF COUNSEL March 10, 2009 09 -518 This responds to your letter dated January 20, 2009, received January 26, 2009, by which you requested an advisory from the Pennsylvania State Ethics Commission. Issue: Whether, in your capacity as an Assistant Professor with the Music Department of Indiana University of Pennsylvania of the State System of Higher Education, you would be considered a "public employee" subject to the Public Official and Employee Ethics Act ( "the Ethics Act "), 65 Pa.C.S. § 1101 et seq., and the Regulations of the State Ethics Commission, and particularly, the requirements for filing Statements of Financial Interests. Facts: You seek a determination as to whether, in your capacity as an Assistant Professor with the Music Department ( "the Department ") of Indiana University of Pennsylvania ( "the University ") of the State System of Higher Education ( "SSHE" ), you are a "public employee" subject to the Ethics Act and the Regulations of the State Ethics Commission, and in particular, the requirements for filing Statements of Financial Interests ( "SFIs "). See, 65 Pa.C.S. § 1102; 51 Pa. Code § 11.1. You have submitted the following facts. You have been informed that you are required to file an SFI for calendar year 2007 with the University in your capacity as an Assistant Professor with the Department. You have submitted a copy of a Position Announcement for your current position, which document is incorporated herein by reference. You state that the Position Announcement is the only description of your position of which you are aware, and that the Position Announcement was approved by Human Resources prior to advertising the position. Per the Position Announcement, the responsibilities of an Assistant Professor with the Department include teaching undergraduate and graduate music history classes covering all historical periods, introduction to music, bibliography, and research methods, as well as specific subject areas such as, for example, Symphony, Opera, and Keyboard. Baumer, 09 -518 March 10, 2009 Page 2 You state that your activities are limited to teaching, and that you have no administrative authority in any capacity at the University. You further state that you make no purchasing decisions other than those related to travel. You state that the only "grant" you have received as an employee of the SSHE was one from the University Senate in the amount of $1,500.00 for travel to an overseas conference. You have submitted a copy of a letter to you dated February 12, 2007, from Michele S. Schwietz ( "Ms. Schwietz' ), Ph.D., Assistant Dean for Research. In said letter, Ms. Schwietz states that you have been awarded a "University Senate Research Committee Award" of $1,500.00 for your proposal. Ms. Schwietz further states that all expenditures are subject to University regulations and must be spent during fiscal year 2006/2007. Ms. Schwietz additionally states that travel expense limitations may not allow you to spend the full amount you anticipate for travel costs, that you must submit a travel voucher with receipts attached, and that the Chair of the Department must sign your travel voucher as the "Authorized Signature." 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 opinion /advice may be given only as to prospective (future) conduct. If the activity in question has already occurred, the Commission may not issue an opinion /advice but any person may then submit a signed and sworn complaint, which will be investigated by the Commission if there are allegations of Ethics Act violations by a person who is subject to the Ethics Act. 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 that your inquiry relates to future conduct, your inquiry may, and shall, be addressed. The Ethics Act defines the term "public employee" as follows: § 1102. Definitions "Public employee." Any individual employed by the Commonwealth or a political subdivision who is responsible for taking or recommending official action of a nonministerial nature with regard to: (1) contracting or procurement; (2) administering or monitoring grants or subsidies; (3) planning or zoning; (4) inspecting, licensing, regulating or auditing any person; or (5) any other activity where the official action has an economic impact of greater than a de minimis nature on the interests of any person. Baumer, 09 -518 March 10, 2009 Page 3 The term shall not include individuals who are employed by this Commonwealth or any political subdivision thereof in teaching as distinguished from administrative duties. 65 Pa. C. S. § 1102. The Regulations of the State Ethics Commission similarly define the term "public employee" and set forth the following additional criteria: (ii) The following criteria will be used, in part, to determine whether an individual is within the definition of "public employee ": (A) The individual normally performs his responsibility in the field without onsite supervision. (B) The individual is the immediate supervisor of a person who normally performs his responsibility in the field without onsite supervision. (C) office. (D) decisions. The individual is the supervisor of a highest level The individual has the authority to make final (E) The individual has the authority to forward or stop recommendations from being sent to the person or body with the authority to make final decisions. (F) The individual prepares or supervises the preparation of final recommendations. (G) The individual makes final technical recommen- dations. (H) The individual's recommendations or actions are an inherent and recurring part of his position. (1) The individual's recommendations or actions affect organizations other than his own organization. (iii) The term does not include individuals who are employed by the Commonwealth or a political subdivision of the Commonwealth in teaching as distinguished from administrative duties. (iv) Persons in the following positions are generally considered public employees: (A) Executive and special directors or assistants reporting directly to the agency head or governing body. (B) Commonwealth bureau directors, division chiefs or heads of equivalent organization elements and other governmental body department heads. Baumer, 09 -518 March 10, 2009 Page 4 (C) Staff attorneys engaged in representing the department, agency or other governmental bodies. (D) Engineers, managers and secretary- treasurers acting as managers, police chiefs, chief clerks, chief purchasing agents, grant and contract managers, administrative officers, housing and building inspectors, investigators, auditors, sewer enforcement officers and zoning officers in all governmental bodies. (E) Court administrators, assistants for fiscal affairs and deputies for the minor judiciary. (F) School superintendents, assistant superintendents, school business managers and principals. (G) Persons who report directly to heads of executive, legislative and independent agencies, boards and commissions except clerical personnel. (v) Persons in the following positions are generally not considered public employees: (A) City clerks, other clerical staff, road masters, secretaries, police officers, maintenance workers, construction workers, equipment operators and recreation directors. (B) Law clerks, court criers, court reporters, probation officers, security guards and writ servers. (C) School teachers and clerks of the schools. 51 Pa. Code § 11.1. In applying the definition of "public employee" and the related regulatory criteria to the submitted facts, the necessary conclusion is that in your capacity as an Assistant Professor with the Department, you are not to be considered a "public employee" as that term is defined in the Ethics Act. Based upon an objective review, you are not responsible for taking or recommending official action of a non - ministerial nature with regard to any of the five categories set forth in the Ethics Act's definition of the term "public employee." The mere ability to travel to a conference at University expense within the parameters of the University's regulations and travel expense limitations and subject to the express authorization /approval of your superiors at the University would not be sufficient to bring you within the definition of "public employee," regardless of the label attached to the travel expense payment/reimbursement. Thus, based upon the submitted facts, you are not a "public employee" as that term is defined by the Ethics Act, and you are not required to file Statements of Financial Interests pursuant to the Ethics Act. The only provision of the Ethics Act that applies to you is Section 1103(b), which applies to everyone. For your information, 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 anything of monetary value 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. Baumer, 09 -518 March 10, 2009 Page 5 Lastly, the propriety of the proposed conduct has only been addressed under the Ethics Act. Conclusion: Based upon the submitted facts, in your capacity as an Assistant Professor with the Music Department of Indiana University of Pennsylvania of the State System of Higher Education, you are not to be considered a "public employee" as that term is defined by the Public Official and Employee Ethics Act ("Ethics Act "), 65 Pa.C.S. § 1101 et seq. Accordingly, in that capacity, you are not subject to the financial disclosure requirements of the Ethics Act, and you are not required to file Statements of Financial Interests pursuant to the Ethics Act. Section 1103(b) of the Ethics Act applies to everyone. 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