HomeMy WebLinkAbout10-585 Davis
ADVICE OF COUNSEL
June 2, 2010
James T. Davis, Esquire
Davis & Davis
107 East Main Street
P.O. Box 1163
Uniontown, PA 15401
10-585
Dear Mr. Davis:
This responds to your letters dated April 21, 2010, and April 26, 2010, by which
you requested an advisory from the Pennsylvania State Ethics Commission.
Issue:
Whether the Public Official and Employee Ethics Act (“Ethics Act”), 65
Pa.C.S. § 1101 et seq., would impose any prohibitions or restrictions upon a member of
a municipal authority board with regard to performing duties as a municipal authority
board member where said individual, in a private capacity, is employed with an
engineering firm that is the appointed engineering firm of the municipal authority.
Facts:
As a member of the law firm that serves as Solicitor for the South Union
Township Sewage Authority (“Authority”), located in Fayette County, Pennsylvania, you
have been authorized by Authority Board Member Todd Radolec (“Mr. Radolec”) to
request an advisory from the Pennsylvania State Ethics Commission on his behalf. You
have submitted facts that may be fairly summarized as follows.
Mr. Radolec is an engineer by profession, and he has accepted employment with
a firm named “K2 Engineering Company” (“the Firm”). The Firm is the appointed
engineering firm of the Authority. You state that you have instructed Mr. Radolec not to
vote on the employment and/or compensation of the Firm. You further state that you
have instructed Mr. Radolec not to perform any duties for the Firm on behalf of the
Authority during the course of his employment with the Firm.
Based upon the above submitted facts, you ask whether the Ethics Act would
impose any prohibitions or restrictions upon Mr. Radolec with regard to performing
duties as an Authority Board Member while employed 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.
Davis, 10-585
June 2, 2010
Page 2
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. 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.
As a Member of the Authority Board, Mr. Radolec is a public official as that term
is defined in the Ethics Act, and therefore he is subject to the provisions of the Ethics
Act.
Sections 1103(a) and 1103(j) of the Ethics Act provide:
§ 1103. Restricted activities
(a) Conflict of interest.--
No public official or public
employee shall engage in conduct that constitutes a conflict
of interest.
(j)Voting conflict.--
Where voting conflicts are not
otherwise addressed by the Constitution of Pennsylvania or
by any law, rule, regulation, order or ordinance, the following
procedure shall be employed. Any public official or public
employee who in the discharge of his official duties would be
required to vote on a matter that would result in a conflict of
interest shall abstain from voting and, prior to the vote being
taken, publicly announce and disclose the nature of his
interest as a public record in a written memorandum filed
with the person responsible for recording the minutes of the
meeting at which the vote is taken, provided that whenever a
governing body would be unable to take any action on a
matter before it because the number of members of the body
required to abstain from voting under the provisions of this
section makes the majority or other legally required vote of
approval unattainable, then such members shall be
permitted to vote if disclosures are made as otherwise
provided herein. In the case of a three-member governing
body of a political subdivision, where one member has
abstained from voting as a result of a conflict of interest and
the remaining two members of the governing body have cast
opposing votes, the member who has abstained shall be
permitted to vote to break the tie vote if disclosure is made
as otherwise provided herein.
65 Pa.C.S. §§ 1103(a), (j).
The following terms related to Section 1103(a) are defined in the Ethics Act as
follows:
§ 1102. Definitions
"Conflict" or "conflict of interest."
Use by a public
official or public employee of the authority of his office or
employment or any confidential information received through
his holding public office or employment for the private
pecuniary benefit of himself, a member of his immediate
family or a business with which he or a member of his
immediate family is associated. The term does not include
an action having a de minimis economic impact or which
Davis, 10-585
June 2, 2010
Page 3
affects to the same degree a class consisting of the general
public or a subclass consisting of an industry, occupation or
other group which includes the public official or public
employee, a member of his immediate family or a business
with which he or a member of his immediate family is
associated.
"Authority of office or employment."
The actual
power provided by law, the exercise of which is necessary to
the performance of duties and responsibilities unique to a
particular public office or position of public employment.
"Business."
Any corporation, partnership, sole
proprietorship, firm, enterprise, franchise, association,
organization, self-employed individual, holding company,
joint stock company, receivership, trust or any legal entity
organized for profit.
"Business with which he is associated."
Any
business in which the person or a member of the person's
immediate family is a director, officer, owner, employee or
has a financial interest.
65 Pa.C.S. § 1102.
Pursuant to Section 1103(a) of the Ethics Act, a public official/public employee is
prohibited from using the authority of public office/employment or confidential
information received by holding such a public position for the private pecuniary benefit
of the public official/public employee himself, any member of his immediate family, or a
business with which he or a member of his immediate family is associated.
In each instance of a conflict of interest, the public official/public employee would
be required to abstain fully from participation. The abstention requirement would not be
limited merely to voting, but would extend to any use of authority of office, including, but
not limited to, discussing, conferring with others, and lobbying for a particular result.
Juliante, Order 809.
Subject to certain statutory exceptions, in each instance of a voting conflict,
Section 1103(j) of the Ethics Act requires the public official/public employee to abstain
and to publicly disclose the abstention and reasons for same, both orally and by filing a
written memorandum to that effect with the person recording the minutes.
Section 1103(f) of the Ethics Act, pertaining to contracting, provides as follows:
§ 1103. Restricted activities
(f)Contract.--
No public official or public employee or
his spouse or child or any business in which the person or
his spouse or child is associated shall enter into any contract
valued at $500 or more with the governmental body with
which the public official or public employee is associated or
any subcontract valued at $500 or more with any person
who has been awarded a contract with the governmental
body with which the public official or public employee is
associated, unless the contract has been awarded through
an open and public process, including prior public notice and
subsequent public disclosure of all proposals considered and
contracts awarded. In such a case, the public official or
Davis, 10-585
June 2, 2010
Page 4
public employee shall not have any supervisory or overall
responsibility for the implementation or administration of the
contract. Any contract or subcontract made in violation of
this subsection shall be voidable by a court of competent
jurisdiction if the suit is commenced within 90 days of the
making of the contract or subcontract.
65 Pa.C.S. § 1103(f).
The term “contract” is defined in the Ethics Act as follows:
§ 1102. Definitions
"Contract."
An agreement or arrangement for the
acquisition, use or disposal by the Commonwealth or a
political subdivision of consulting or other services or of
supplies, materials, equipment, land or other personal or real
property. The term shall not mean an agreement or
arrangement between the State or political subdivision as
one party and a public official or public employee as the
other party, concerning his expense, reimbursement, salary,
wage, retirement or other benefit, tenure or other matters in
consideration of his current public employment with the
Commonwealth or a political subdivision.
65 Pa.C.S. § 1102.
Section 1103(f) does not operate to make contracting with the governmental
body permissible where it is otherwise prohibited. Rather, where a public official/public
employee, his spouse or child, or a business with which he, his spouse or child is
associated, is otherwise appropriately contracting with the governmental body, or
subcontracting with any person who has been awarded a contract with the
governmental body, in an amount of $500.00 or more, Section 1103(f) requires that an
“open and public process” be observed as to the contract with the governmental body.
Section 1103(f) of the Ethics Act also provides that the public official/public employee
may not have any supervisory or overall responsibility as to the implementation or
administration of the contract with the governmental body.
It is noted that Section 1103(a) of the Ethics Act does not prohibit public
officials/public employees from having outside business activities or employment;
however, the public official/public employee may not use the authority of his public
position--or confidential information obtained by being in that position--for the
advancement of his own private pecuniary benefit or that of a business with which he is
associated. Pancoe, Opinion 89-011. Examples of conduct that would be prohibited
under Section 1103(a) would include: (1) the pursuit of a private business opportunity in
the course of public action, Metrick, Order 1037; (2) the use of governmental facilities,
such as governmental telephones, postage, equipment, research materials, or other
property, or the use of governmental personnel, to conduct private business activities,
Freind, Order 800; Pancoe, supra; and (3) the participation in an official capacity as to
matters involving the business with which the public official/public employee is
associated in his private capacity or private client(s). Miller, Opinion 89-024;
Kannebecker, Opinion 92-010.
If a business with which the public official/public employee or immediate family
member is associated or a private customer/client would have a matter pending before
the governmental body, the public official/public employee generally would have a
conflict of interest as to such matter. Kannebecker, supra; Miller, supra. A reasonable
and legitimate expectation that a business relationship will form may also support a
Davis, 10-585
June 2, 2010
Page 5
finding of a conflict of interest. Amato, Opinion 89-002. In each instance of a conflict of
interest, the public official/public employee would be required to abstain from
participation, and in the instance of a voting conflict, to abstain and fully satisfy the
disclosure requirements of Section 1103(j) of the Ethics Act.
In applying the above provisions of the Ethics Act to the instant matter, you are
advised that the Firm is a business with which Mr. Radolec is associated in his capacity
as an employee of the Firm. Section 1103(a) of the Ethics Act would not prohibit Mr.
Radolec from performing duties as a Member of the Authority Board while being
employed by the Firm. However, pursuant to Section 1103(a) of the Ethics Act, in his
public capacity as a Member of the Authority Board, Mr. Radolec generally would have
a conflict of interest in matters that would financially impact him, the Firm, or the Firm’s
customer(s)/client(s). See, Kannebecker, supra; Miller, supra.
In each instance of a conflict of interest, Mr. Radolec would be required to
abstain fully from participation and in each instance of a voting conflict, to abstain fully
and to satisfy the disclosure requirements of Section 1103(j) of the Ethics Act.
The requirements of Section 1103(f) of the Ethics Act would have to be observed
when applicable.
The propriety of the proposed conduct has only been addressed under the Ethics
Act. Specifically not addressed herein is the applicability of the Municipality Authorities
Act, which provides in part:
§ 5614. Competition in award of contracts
. . . .
(e) CONFLICT OF INTEREST.--No member of the authority
or officer or employee of the authority may directly or
indirectly be a party to or be interested in any contract or
agreement with the authority if the contract or agreement
establishes liability against or indebtedness of the authority.
Any contract or agreement made in violation of this
subsection is void, and no action may be maintained on the
agreement against the authority.
53 Pa.C.S. § 5614(e).
Conclusion:
As a Member of the Board of the South Union Township Sewage
Authority (“Authority”), located in Fayette County, Pennsylvania, Todd Radolec (“Mr.
Radolec”) is a public official subject to the provisions of the Public Official and Employee
Ethics Act (“Ethics Act”), 65 Pa.C.S. §1101 et seq. K2 Engineering Company (“the
Firm”), which is the appointed engineering firm of the Authority, is a business with which
Mr. Radolec is associated in his capacity as an employee of the Firm. Section 1103(a)
of the Ethics Act would not prohibit Mr. Radolec from performing duties as a Member of
the Authority Board while being employed by the Firm. However, pursuant to Section
1103(a) of the Ethics Act, in his public capacity as a Member of the Authority Board, Mr.
Radolec generally would have a conflict of interest in matters that would financially
impact him, the Firm, or the Firm’s customer(s)/client(s). In each instance of a conflict
of interest, Mr. Radolec would be required to abstain fully from participation and in each
instance of a voting conflict, to abstain fully and to satisfy the disclosure requirements of
Section 1103(j) of the Ethics Act. The requirements of Section 1103(f) of the Ethics Act
would have to be observed when applicable. Lastly, the propriety of the proposed
conduct has only been addressed under the Ethics Act.
Davis, 10-585
June 2, 2010
Page 6
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