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HomeMy WebLinkAbout88-635 BalchunisDear Ms. Baichunis: STATE ETHICS COMMISSION 308 FINANCE BUILDING HARRISBURG, PA 17120 TELEPHONE: (717) 783 -1610 ADVICE OF COUNSEL October 3, 1988 Ms. Mary Ellen Baichunis 88 -635 3004 Hopkinson House 602 Washington Square South Philadelphia, PA 19106 Re: Former Public Employee; Section 3(e), City of Philadelphia; Assistant to the Mayor, Systems Analyst This responds to your letter of September 1, 1988, in which you requested advice from the State Ethics Commission. Issue: You ask whether the Ethics Act presents any restrictions upon your potential employment following your termination of service with the City of Philadelphia. Facts: You state that while you were employed by the City of Philadelphia you worked in the Mayor's office and the Criminal Justice Coordinating Office, hereinafter referred to as the Offices, and the Philadelphia Computing Center, hereinafter Center. You state that your jobs varied from Assistant to the Mayor, Executive Assistant to the Deputy Mayor, and Systems Analyst. You then note that you were interviewed and offered a position at the Resource Center for Human Services as the Executive Director. You state that during your tenure with the City, you never had any contact with the Resource Center for Human Services, formerly the Community Services Planning Council. In addition, you state that you never heard of the agency until you applied for the job and that the nature of the work with the City was evalutive and analytical in nature. You then advise that the only contact you had with the Human Services Agency was in your capacity as Executive Assistant to the Deputy Mayor and that in that capacity you served as a liaison for a number of Mayor's commissions; Aging, Disabled, Health Emergencies, Private Industry Council, Puerto Rican /Latino Affairs, the 21st Century Commission, and Women. After advising that you were never involved in any funding decisions of the above commissions, you request advice as to what restrictions would be imposed upon you under the Ethics Act relative to your new position. Ms. Mary Ellen Balchunis October 3, 1988 Page 2 Discussion: As a Assistant to the Mayor, Executive Assistant to the Deputy Mayor and Systems Analyst for the City of Philadelphia, you are to be considered a "public employee" within the definition of that term as set.,forth in the Ethics Act and the regulations of this Commission. 65 P.S. §402; 51 Pa. Code S1.1. This conclusion is based upon your job description, which when reviewed on an objective basis, indicates clearly that you have the power to take or recommend official action of a non - ministerial nature with respect to contracting, procurement, planning, inspecting or other activities where the economic impact is greater than de minimus on the interests of another person. Consequently, upon termination of this employment, you would become a "former public employee" subject to Section 3(e) of the Ethics Act. Section 3(e) of the Ethics Act provides that: Section 3. Restricted activities. (e) No ,former official_ or public employee shall represent a person, with or without 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. §403. Initially, to answer your request the "governmental body" with which you were associated while working the City of Philadelphia must be identified. Then, the scope of the prohibitions associated with the concept and term of "representation" must be reviewed. In this context, the Ethics Commission has previously ruled that the "governmental body" with which an individual may be deemed to have been associated during his tenure of public office or employment extends to those entities where he had influence, responsibility, supervision, or control. See Ewing, Opinion 79 -010. See also Kury v. Commonwealth of Pennsylvania, State Ethics Commission, '435 A.2d 940 (1981). From the description and analysis of your duties and responsibilities and based upon the facts outlined above, your jurisdiction, responsibility, influence and control appears to have been the Offices and Center. Thus, the "governmental body" with which you have been "associated" upon the termination of your employment would be the Offices and Center. Therefore, within the first year after you would leave the City of Philadelphia, Section 3(e) of the Ethics Act would apply and restrict your "representation" of persons or new employers vis-a - vis the Offices and Center. Ms. Mary Ellen Balchunis October 3, 1988 Page 3 The Ethics Act would not affect your ability to appear before agencies or entities other than with respect to the Offices and Center. Likewise, there is no general limitation on the type of employment in which you may engage, following your departure from the City of Philadelphia. 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. See Anderson, Opinion 83 -014; Zwikl, Opinion 85 -004. In respect to the one year representation the Ethics Commission has promulgated regulations to define "representation" as follows: The Commission, in its opinions, has also interpreted the term "representation" as used in Section 3(e) of the Ethics Act to prohibit: 1. Personal appearances before the governmental' body or bodies with which you have been associated, (that is the Offices and Center), including, but not limited to, negotiations or renegotiations on contracts with the Offices and Center; 2. Attempts to influence the Offices and Center; 3. Participating in any matters before the Offices and the Center over which you had supervision, direct involvement, or responsibility while employed by the City of Philadelphia; Section 1.1 Definitions. Representation - -- Any act on behalf of any person including but not limited to the following activities: personal appearances, negotiating contracts, lobbying, and submitting bid or contract proposals which are signed by or contain the name of the former public official or public employee. 51 Pa. Code 81.1. Ms. Mary Ellen Balchunis October 3, 1988 Page 4 4. Lobbying, that is representing the interests of any person or employer before the Offices and the Center in relation to legislation, regulations, etc. See Russell, Opinion 80 -048 and Seltzer, Opinion 80 -044. The Commission has also held that preparing and signing a proposal, document or bid, or listing your name as the person who will provide technical assistance on such proposal, document, or bid, if submitted to or reviewed by the Offices and the Center, constitutes an attempt to influence your former governmental body. See Kilareski, Opinion 80 -054. Therefore, within the first year after you leave the City of Philadelphia, you should not engage in the type of activity outlined above. The Commission, however, has stated that the inclusion of your name as an employee or consultant on a "pricing proposal," even if submitted to or reviewed by the Offices and the Center, is not prohibited as "representation." See Kotalik, Opinion 84 -007. You may, assist in the preparation of any documents presented to the Offices and the Center so long as you are not identified as the preparer. You may also counsel any person regarding that person's appearance before the Offices and the Center. Once again, however, your activity in this respect should not be revealed to the Offices and the Center. Of course, any ban under the Ethics Act would not prohibit or preclude you from making general informational inquiries of the Offices and the Center to secure information which is available to the general public. See Cutt, Opinion 79 -023. This, of course, must not be done in an effort to indirectly influence these entities or to otherwise make known to the Offices and the Center your representation of, or work for your new employer. Finally, the Commission has concluded that if you are administering an existing contract as opposed to negotiating or renegotiating a contract, your activities would not be prohibited by the Ethics Act. See Dalton, Opinion 80 -056 and Beaser, Advice 81 -538. Additionally, it is noted that Section 403(b) of the State Ethics Act would prohibit any public employee or public official from accepting a position of employment if said position has been offered based upon the understanding that the official conduct of the employee or official, while working for his former governmental body, was influenced by such offer. See 65 P.S. S403(b). Ms. Mary Ellen Balchunis October 3, 1988 Page 5 Lastly, 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: As a Assistant to the Mayor, Executive Assistant to the Deputy Mayor and Systems Analyst for the City of Philadelphia, you are to be considered a "public employee" as defined in the Ethics Act. Upon termination of your service with City of Philadelphia, you would become a "former public employee" subject to the restrictions imposed by Section 3(e) of the Ethics Act. As such, your conduct should conform to the requirements of the Ethics Act as outlined above. Your governmental body for the purpose of the one year representation restriction is the Offices and the Center. Lastly, the propriety of the proposed conduct has only been addressed under the Ethics Act. Further, should you terminate -your employment or service, as outlined above, you are reminded that the Ethics Act also requires you to file a Statement of Financial Interests for the year following your 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 made, in writing, to the Commission within 15 days of service of this Advice pursuant to 51 Pa. Code §2.12. Sincerely, Vincent . Dopko, General Counsel