HomeMy WebLinkAbout13-586 Stevens
ADVICE OF COUNSEL
December 19, 2013
Daniel L. Stevens, President
Slatington Borough Council
560 Main Street
Slatington, PA 18080
13-586
Dear Mr. Stevens:
This responds to your letter dated November 18, 2013, 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 require an individual serving as a borough council
member: (1) to immediately resign from borough council if the individual would submit a
resume to the borough for the position of borough manager; or (2) to resign from
borough council prior to interviewing for the position of borough manager.
Facts:
You request an advisory from the Pennsylvania State Ethics Commission
based upon submitted facts that may be fairly summarized as follows.
You are a Member and current President of Council for Slatington Borough
(“Borough”), and you were reelected to Borough Council for a term starting in January
2014. The Borough has not had a Borough Manager since September 2010, and
Borough Council has assumed the day-to-day operations of the Borough.
Borough Council recently expressed an interest in hiring a Borough Manager.
When the subject of hiring a Borough Manager was formally brought up at a Borough
Council meeting on November 11, 2013, you immediately stopped the meeting, stated
that you were removing yourself from any discussion since you might be interested in
applying for the position of Borough Manager, and left the room before any discussion
took place. You were later told that Borough Council discussed the matter and decided
to put funding for a Borough Manager into the 2014 budget.
You state that you plan to abstain from any votes concerning the hiring of a
Borough Manager or any votes on any department budget containing funding for a
Borough Manager. You further state that you will not take part in any Borough Council
discussions concerning the hiring of a Borough Manager.
The narrow question that you have posed is whether the Ethics Act would require
you: (1) to immediately resign from Borough Council if you would submit a resume to
Stevens, 13-586
December 19, 2013
Page 2
the Borough for the position of Borough Manager; or (2) to resign from Borough Council
prior to interviewing for the position of Borough Manager.
It is administratively noted that the Borough Code provides, in part: “[N]o mayor
or member of council may serve as borough manager ….” 53 P.S. § 46104(c).
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 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. This Advice
is limited to addressing the narrow question posed.
As a Borough Council Member, you are a public official 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.
Stevens, 13-586
December 19, 2013
Page 3
65 Pa.C.S. §§ 1103(a), (j).
The following terms 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
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.
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.
The use of authority of office is not limited merely to voting, but extends 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.
In each instance of a conflict of interest, a public official/public employee would
be required to abstain from participation, which would include voting unless one of the
statutory exceptions of Section 1103(j) of the Ethics Act would be applicable.
Additionally, the disclosure requirements of Section 1103(j) of the Ethics Act would have
to be satisfied in the event of a voting conflict.
In applying the above provisions of the Ethics Act to the particular question you
have posed, you are advised as follows.
Although the Borough Code, on its face, prohibits simultaneous service as a
borough council member and borough manager, 53 P.S. § 46104(c), Section 1103(a) of
the Ethics Act would not require you to resign from your position as a Borough Council
Member before you could apply or interview for the position of Borough Manager.
However, Section 1103(a) of the Ethics Act would prohibit you from using the authority
of your public position as a Borough Council Member or confidential information
received by being a Borough Council Member to advance an opportunity of employment
with the Borough. In your capacity as a Borough Council Member, you generally would
have a conflict of interest in matters pertaining to the hiring of a Borough Manager given
your interest in applying for said position. Such matters would include but would not be
Stevens, 13-586
December 19, 2013
Page 4
limited to determining the necessary qualifications for the position of Borough Manager,
reviewing applications, or screening or interviewing applicants.
In each instance of a conflict of interest, you would be required to abstain fully
from participation, which would include voting unless one of the statutory exceptions of
Section 1103(j) of the Ethics Act would be applicable. Additionally, the disclosure
requirements of Section 1103(j) of the Ethics Act would have to be satisfied in the event
of a voting conflict.
Subject to the condition that there would be no use of authority of your position
as a Borough Council Member or confidential information received by being in such
position to advance the prospects of your obtaining employment as the Borough
Manager, Section 1103(a) of the Ethics Act would not prohibit you from continuing to
serve as a Borough Council Member while you would be an applicant/candidate for the
position of Borough Manager. Cf., Warren, Advice 12-569.
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.
Conclusion:
Based upon the submitted facts that: (1) you are a Member and
current President of Council for Slatington Borough (“Borough”), and you were reelected
to Borough Council for a term starting in January 2014; (2) the Borough has not had a
Borough Manager since September 2010, and Borough Council has assumed the day-
to-day operations of the Borough; (3) Borough Council recently expressed an interest in
hiring a Borough Manager; (4) when the subject of hiring a Borough Manager was
formally brought up at a Borough Council meeting on November 11, 2013, you
immediately stopped the meeting, stated that you were removing yourself from any
discussion since you might be interested in applying for the position of Borough
Manager, and left the room before any discussion took place; and (5) you were later told
that Borough Council discussed the matter and decided to put funding for a Borough
Manager into the 2014 budget, you are advised as follows.
As a Borough Council Member, you are a public official subject to the provisions
of the Public Official and Employee Ethics Act (“Ethics Act”), 65 Pa.C.S. § 1101 et seq.
Although the Borough Code, on its face, prohibits simultaneous service as a borough
council member and borough manager, 53 P.S. § 46104(c), Section 1103(a) of the
Ethics Act would not require you to resign from your position as a Borough Council
Member before you could apply or interview for the position of Borough Manager.
However, Section 1103(a) of the Ethics Act would prohibit you from using the authority
of your public position as a Borough Council Member or confidential information
received by being a Borough Council Member to advance an opportunity of employment
with the Borough. In your capacity as a Borough Council Member, you generally would
have a conflict of interest in matters pertaining to the hiring of a Borough Manager given
your interest in applying for said position. Such matters would include but would not be
limited to determining the necessary qualifications for the position of Borough Manager,
reviewing applications, or screening or interviewing applicants. In each instance of a
conflict of interest, you would be required to abstain fully from participation, which would
include voting unless one of the statutory exceptions of Section 1103(j) of the Ethics Act
would be applicable. Additionally, the disclosure requirements of Section 1103(j) of the
Ethics Act would have to be satisfied in the event of a voting conflict. Subject to the
condition that there would be no use of authority of your position as a Borough Council
Member or confidential information received by being in such position to advance the
prospects of your obtaining employment as the Borough Manager, Section 1103(a) of
the Ethics Act would not prohibit you from continuing to serve as a Borough Council
Member while you would be an applicant/candidate for the position of Borough
Stevens, 13-586
December 19, 2013
Page 5
Manager. 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