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HomeMy WebLinkAbout89-585 HallacherMr. Paul M. Hallacher 1502 Green Street Harrisburg, PA 17102 STATE ETHICS COMMISSION 308 FINANCE BUILDING P.O. BOX 11470 HARRISBURG, PA 17108 -1470 TELEPHONE (717) 783 -1610 ADVICE OF COUNSEL November 30, 1989 89 -585 Re: Former Public Employee; Section 3(g); Commerce Department; Director of the Office of Enterprise Development Dear Mr. Hallacher: This responds to your letter of October 18, 1989, in which you requested advice from the State Ethics Commission. Issue: You ask whether the Ethics Law presents any restrictions upon your employment following your termination of service with the Department of Commerce. Facts: You resigned as Director of the Office of Enterprise Development, Pennsylvania Department of Commerce, hereinafter Commerce, on August 30, 1989 having completed ten years of State service. Prior to that time you served in the Governor's Office of Policy Development from November 1978. You are currently under consideration for the position of the Associate Director for Economic Development of the Institute of State and Regional Affairs with the Pennsylvania State University, hereinafter Penn State. The forgoing position involves assisting Penn State Officials regarding the formulation and implementation of economic development strategies. As one of the four state related universities in Pennsylvania, Penn State receives funding from several state agencies including Commerce. Examples of such funding would be Ben Franklin Partnership funds which are provided to Penn State through Commerce each year. In addition, Penn State receives grants from the federal Appalachian Regional Commission which federal program is administered by the Office of Enterprise Development in Commerce. The position under consideration is a new one designed to create coordination of the various economic development activities of Penn State; funding is made with Penn State funds through the Office of the Vice President for Research and Technology Transfer. You conclude by requesting an opinion as to what restrictions would be imposed upon you if you were offered and accepted the above position. Mr. Paul M. Hallacher Page 2 Discussion: As a Director for Office of Enterprise Development in the Department of Commerce, you are to be considered a "public employee" within the definition of that term as set forth in the Public Official and Employee Ethics Law and the Regulations of this Commission. 65 P.S. S402; 51 Pa. Code §1.1. This conclusion is based upon the job description, which when reviewed on an objective basis, indicates clearly that the power exists to take or recommend official action of a non - ministerial nature with respect to contracting, procurement, planning, inspecting, administering or monitoring grants, leasing, regulating, auditing or other activities where the economic impact is greater than de minimus on the interests of another person. Consequently, upon termination of employment, you would become a "former public employee" subject to Section 3(g) of the Public Official and Employee Ethics Law. Section 3(g) of the Ethics Act provides that: Section 3. Restricted activities. (g) 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 P.S. §402. Initially, to answer your request the governmental body with which you were associated while working with Commerce must be identified. Then, the scope of the prohibitions associated with the concept and term of "representation " must be reviewed. The term "governmental body with which a public official or public employee is or has been associated" is defined under the Ethics Law as follows: Section 2. Definitions. "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 P.S. §402 Mr. Paul M. Hallacher Page 3 Thus, the governmental body with which you have been associated upon the termination of employment would be Commerce. Therefore, within the first year after termination of service with Commerce, Section 3(g) of the Ethics Law would apply and restrict representation of persons or new employers vis -a -vis Commerce. The Ethics Law does not affect one's ability to appear before agencies or entities other than with respect to the former governmental body. Likewise, there is no general limitation on the type of employment in which a person may engage, following departure from their governmental body. It is noted, however, that the conflicts of interest law is primarily concerned with financial conflicts and violations of the public trust. The intent of the law generally is that during the term of a person's public employment he must act consistently with the public trust and upon departure from the public sector, that individual should not be allowed to utilize his association with the public sector, officials or employees to secure for himself or a new employer, treatment or benefits that may be obtainable only because of his association with his former public employer. In respect to the one year representation the Ethics Law defines "Represent" as follows: Section 2. 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. 65 P.S. 5402. In addition, the term "Person" is defined as follows under the Ethics Law: Section 2. Definitions. "Person." A business, governmental body, individual, corporation, union, association, firm, partnership, committee, club or other organization or group of persons. 65 P.S. 5402. The Commission, in Popovich, Opinion 89 -005, has also interpreted the term "representation" as used in Section 3(g) of the Ethics Law to prohibit: Mr. Paul M. Hallacher Page.4 1. Personal appearances before the former governmental body or bodies, (that is Commerce), including, but not limited to, negotiations or renegotiations in general or as to contracts with the Commerce; 2. Attempts to influence Commerce; 3. Submission of bid or contract proposals which are signed or contain the name of the former public official /employee. 4. Participating in any matters before Commerce over which there was supervision, direct involvement, or responsibility while employed by that governmental body; 5. Lobbying, that is representing the interests of any person or employer before Commerce in relation to legislation, regulations, etc. The Commission has also held that listing one's name as the person who will provide technical assistance on such proposal, document, or bid, if submitted to or reviewed by Commerce constitutes an attempt to influence the former governmental body. Therefore, within the first year after termination of service, you should not engage in the type of activity outlined above. The Commission, however, has stated that the inclusion of one's name as an employee or consultant on a "pricing proposal," even if submitted to or reviewed by Commerce, is not prohibited as representation. You may, assist in the preparation of any documents presented to Commerce so long as you are not identified as the preparer. You may also counsel any person regarding that person's appearance before Commerce. Once again, however, the activity in this respect should not be revealed to the Commerce. Of course, any ban under the Ethics Law would not prohibit or preclude the making of general informational inquiries of Commerce to secure information which is available to the general public. This, of course, must not be done in an effort to indirectly influence these entities or to otherwise make known to the governmental body the representation of, or work for the new employer. Finally, the Commission has concluded that the administering of an existing contract as opposed to negotiating or renegotiating a contract would not be prohibited by the Ethics Law. In addition, Sections 3(b) and 3(c) of the Ethics Law provide in part that no person shall offer to a public official /employee anything of monetary value or no public Mr. Paul M. HallaCher Page 3 official /employee shall solicit or accept any thing of monetary value based upon the understanding that the vote, official action, or judgement of the public official /employee would be influenced thereby. Lastly, the propriety of the proposed conduct has only been addressed under the Ethics Law; 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: As a Director of the Office of Enterprise Development in the Department of Commerce, you are to be considered a "public employee" as defined in the Ethics Law. Upon termination of service with Commerce, you would become a "former public employee" subject to the restrictions imposed by Section 3(g) of the Ethics Law. As such, your conduct should conform to the requirements of the Ethics Law as outlined above. The propriety of the proposed conduct has only been addressed under the Ethics Law. Further, should service be terminated, as outlined above, the Ethics Law also requires that a Statement of Financial Interests be filed for the year following termination of service. Pursuant to Section 7(9)(ii), this 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, providing the requestor has disclosed truthfully all the material facts and committed the acts complained of in reliance on the Advice given. such. This letter is a public record and will be made available as Finally, if you disagree with this Advice or if you have any reason to challenge same, you may request that the full Commission review this Advice. A personal appearance before the Commission will be scheduled and a formal Opinion from the Commission will be issued. Any such appeal must be in writing and must be received at the Commission within 15 days of the date of this Advice pursuant to 51 Pa. Code 52.12. Vincent . Dopko, Chief Counsel