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HomeMy WebLinkAbout17-554 TurnerSTATE ETHICS COMMISSION 309 FINANCE BUILDING PO. BOX 11470 HARRISBURG, PA 17108 -1470 (717) 783 -1610 1 -800- 932 -0936 ADVICE OF COUNSEL August 4, 2017 To the Requester: Diann Turner 17554 Dear Ms. Turner: This responds to your letter dated July 1, 2017, postmarked July 3, 2017, and received July 5, 2017, by which you requested an advisory from the Pennsylvania State Ethics Commission ( "Commission "). Issue: Whether the Public Official and Employee Ethics Act ( "Ethics Act "), 65 CGS. § 1101 et seq., would impose prohibitions or restrictions upon a borough secretaryltreasurer with regard to simultaneously serving as a worker at the borough - owned community pool. Facts: You were recently hired as the Secretary/Treasurer for Osceola Mills Borough Borough"). You previously worked. at the Borough -awned community pool ( "Borough Rol ") during the summer months. The narrow question that you have posed is whether the Ethics Act would permit Nto work at the Borough Pool during hours when you would not be working as the Borough Secretary/Treasurer. Discussion: It is initially noted that pursuant to Sections 1107(10)' and 1107 (11) of the Ethics , 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 this Advice is limited to addressing the narrow question posed. As the Borough Secretary /Treasurer, you are a public official /public employee subject to the provisions of the Ethics Act. Sections 1103(a) and 11030) of the Ethics Act provide: § 1103. Restricted activities FAX: (717) 787 -0806 a Web Site: www.ethics.state,pa.us 0 e -mail: ethicsCo)state.pa.us Turner, 17 -554 August 4, 2017 Page 2 (a) Conflict of interest. —No public official or public employee shall engage in conduct that constitutes a conflict of interest. 0) 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), 0). The following terms pertaining to conflicts of interest under the Ethics Act are defined 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. Subject to the statutory exclusions to the Ethics Act's definition of the term "conflict" Turner, 17 -554 August 4, 2017 Page 3 or "conflict of interest," 65 Pa.C.S..5 1102, a public official/public employee is prohibited from using the authority of public off�celemployment or confidential information received by holding such a public position for the pnvate ppecuniary 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 11030) of the Ethics Act would be applicable. Additionally, the disclosure requirements of Section 11030) 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 question presented, it is initially noted that the General Assembly has the constitutional power to declare by law which offices are incompatible. Pa. Const. Art. 6, § 2. It is further noted that the Borough Code provides, in pertinent part, as follows: § 1104. Appointments and incompatible offices. (a) General rule. -- Unless there is incompatibility in fact, an elective or appointive officer of the borough shall be eligible to serve on any board, commission, bureau or other agency created by or for the borough or any borough office created or authorized by statute and may accept appointments under the statute. (b) Prohibition. (1) Except as set forth in paragraph (2), no elected borough official of a borough with a population of 3,000 or more may serve as an employee of that borough. (2) Paragraph (1) shall not apply to a borough official serving as an employee of that borough prior to the certification of the 2010 official census or a subsequent latest official census which indicates an increase in the population of that borough to 3,000 or more. (c) Multiple offices. -- If there is no incompatibility in fact and subject to subsection (a) as to compensation, appointees of council may hold two or more appointive borough offices, but no mayor or member of council may serve as borough manager, secretary or treasurer. (h) Construction. -- Turner, 17 -554 August 4, 2017 Page 4 Nothing contained in this section shall be construed to affect the eligibility of a borough official to hold any other public office or receive compensation. 8 Pa.C.S. § 1104. You are advised that there does not appear to be any statutorily - declared incompatibility that would preclude you from simultaneously serving as the Borough Secretary/Treasurer and a worker at the Borough Pool. Turning to the question of conflict of interest, where simultaneous service would place the public official /public employee in a continual state of conflict, such as where in one position he would be accounting to himself in another position on a continual basis, there would be an inherent conflict. (See, McCain, Opinion 02 -009). Where an inherent conflict would exist, it would appear to be impossible, as a practical matter, for the ublic official/public employee to function in the conflicting positions without running afoul of Section 1103(a) of the Ethics Act. Absent a statutorily- declared incompatibility or an inherent conflict under Section 1103(a), the Ethics Act would not preclude an individual from simultaneously serving in more than one position. However, in each instance of a conflict of interest, the individual would be required to abstain from participation, which would include voting unless one of the statutory exceptions of Section 11030') of the Ethics Act would be applicable. Additionally, the disclosure requirements of Section 11030) of the Ethics Act would have to be satisfied in the event of a voting conflict. In this case, based upon the facts that have been submitted, there does not appear to be an inherent conflict that would preclude you from simultaneously serving as the Borough Secretary/Treasurer and a worker at the Borough Pool. Consequently, such simultaneous service would be permitted within the parameters of Sections 1103(a) and 11030) of the Ethics Act. This Advice is expressly subject to the condition that you would perform the duties of the aforesaid positions without an overlap of time. Cf., Bornstein, Order 1463; Ki & Advice 14 -537; Quinn, Advice 11 -528; Confidential Advice, 2; Laub, Advice 06 -519. Lastly, the propriety of the proposed conduct has only been addressed under the Ethics Act. Conclusion: As the Secretary/Treasurer for Osceola Mills Borough ( "Borough "), you are a u is official /public employee subject to the provisions of the Public Official and Employee Ethics Act ( "Ethics Act"), 65 Pa.C.S. § 1101 et seR. Subject to the restrictions, conditions and qualifications set forth above, you may, consistent with Section 1103(x) of the Ethics Act, simultaneously serve as the Borough Secretary/Treasurer and a worker at the Borough -owned community pool. This Advice is expressly subject to the condition that you would perform the duties of the aforesaid positions without an overlap of time. Lastly, the propriety of the proposed course of conduct has only been addressed under the Ethics Act. Pursuant to Section 1107(11) of the Ethics Act, this Advice is a complete defense in any enforcement proceeding initiated by the Commission, and evidence of good faith conduct to 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. Turner, 17 -554 August 4, 2017 Page 5 Finally, if you disagree with this Advice orif 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, orby 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, r Robin M. Hittie Chief Counsel