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HomeMy WebLinkAbout99-605 LoganJeffrey M. Logan 700 Moore's Mt. Road Mechanicsburg, PA 17055 STATE ETHICS COMMISSION 309 FINANCE BUILDING P.O. BOX 11470 HARRISBURG, PA 17108 -1470 (717) 783 -1610 1- 800 - 932 -0936 ADVICE OF COUNSEL September 21, 1999 FAX: (717) 787 -0806 • Web Site: www.ethics.state.pa.us • e -mail: ethics@state.pa.us 99 -605 Re: Former Public Official /Public Employee; Section 1 103(g); Executive -Level State Employee; Section 1103(i); Deputy Secretary of Administration; Department of Public Welfare. Dear Mr. Logan: This responds to your letter of August 20, 1999 by which you requested advice from the State Ethics Commission. Issue Whether the Public Official and Employee Ethics Act ( "Ethics Act ") presents any restrictions upon employment of a Deputy Secretary of Administration following termination of service with the Department of Public Welfare. Facts: You are currently Deputy Secretary of Administration for the Pennsylvania Department of Public Welfare ( "DPW "), a position which you have held since November, 1997; however, you are considering concluding your service with the Commonwealth and returning to the private sector. You have submitted a copy of your job description, which is incorporated herein by reference. During your tenure with DPW, you participated as a non - voting member of a vendor selection committee ( "Committee ") for a statewide radio communications system that will support future wireless public safety communication needs of state agencies such as the State Police, Department of Transportation, and the Office of the Attorney General. Other non - voting members of the Committee included Deputy Secretaries from the Department of General Services, Comptroller, and State Police. The procurement was coordinated through the Office of Administration, Office of Information Technology under the direction of the Deputy Secretary. As a Committee member, you were required to attend update meetings with the evaluation committee on an as- needed basis and recommend a strategy of leveraging Commonwealth buying power and infrastructure investments in a way that would benefit as many state agencies as possible. Your activities on the Committee served as the topic of your master's thesis which you wrote during that time. In June, the voting committee concluded the evaluation process and made a recommendation to the Secretary of Administration to select M/A COM, Inc., of Lowell, Massachusetts, as the radio equipment vendor. The Secretary of Administration concurred with the recommendation and awarded the radio equipment Logan, 99 -605 September 21, 1999 Page 2 portion of the system to M/A COM, Inc. You believe you are in a favorable position to pursue a career in the wireless communications industry given your involvement with the public safety communications project and master's thesis. As Deputy Secretary of Administration for DPW and a former participant as a non - voting member of the Committee which recommended the selection of M/A COM, Inc., you seek an advisory opinion regarding any prohibitions that might exist as to prospective employment with M/A COM, Inc. Discussion: As Deputy Secretary of Administration for the Department of Public Welfare, you would be considered a public official /public employee and an "executive - level State employee" subject to the Ethics Act and the Regulations of the State Ethics Commission. See, 65 Pa.C.S. §1102; 51 Pa.Code §11.1. Consequently, upon termination of public service, you would become a former public official /public employee and a former executive -level State employee subject to the restrictions of Section 1103(g) and Section 1103(i) of the Ethics Act. Section 1103(i) restricts former executive -level State employees as follows: Section 1103. Restricted activities. (i) Former executive -level employee.—No former executive -level State employee may for a period of two years from the time that he terminates employment with this Commonwealth be employed by, receive compensation from, assist or act in a representative capacity for a business or corporation that he actively participates in recruiting to this Commonwealth or that he actively participated in inducing to open a new plant, facility or branch in this Commonwealth or that he actively participated in inducing to expand an existent plant or facility within this Commonwealth, provided that the above prohibition shall be invoked only when the recruitment or inducement is accomplished by a grant or loan of money or a promise of a grant or loan of money from the Commonwealth to the business or corporation recruited or induced to expand. 65 Pa.C.S. §1103(i). Section 1 103(i) restricts the ability of a former executive -level State employee to accept employment or otherwise engage in business relationships following termination of State service, under certain narrow conditions. The restrictions of Section 1103(i) apply even where the business relationship is indirect, such as where the business in question is a client of the new employer, rather than the new employer itself. See, Confidential Opinion No. 94 -011. However, Section 1103(i) would not restrict you from being employed by, receiving compensation from, assisting, or acting in a representative capacity for M/A COM, Inc. provided and conditioned upon the assumptions that you did not actively participate in recruiting M/A COM, Inc. to Pennsylvania, and that you did not actively participate in recruiting or inducing M/A COM, Inc. to open or expand a plant, facility, or branch in Pennsylvania, through a grant or loan of money or a promise of a grant or loan of money from the Commonwealth of Pennsylvania to M/A COM, Inc. Logan, 99 -605 September 21, 1999 Page 3 Unlike Section 1103(i), Section 1103(g) does not prohibit a former public official /public employee from accepting a position of employment. However, it does restrict the former public official /public employee with regard to "representing" a "person" before "the governmental body with which he has been associated ": 65 Pa.C.S. §1102. Section 1103. Restricted activities. (g) Former official or employee. - -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 Pa.C.S. §1103(g) (Emphasis added). The terms "represent," "person," and "governmental body with which a public official or public employee is or has been associated" are specifically defined in the Ethics Act as follows: Section 1102. 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. "Person." A business, governmental body, individual, corporation, union, association, firm, partnership, committee, club or other organization or group of persons. "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. The term "Person" is very broadly defined. It includes, inter alia, corporations and other businesses. It also includes the former public employee himself, Confidential Opinion 93 -005, as well as a new governmental employer. Ledebur, Opinion 95 -007. The term "representation" is also broadly defined to prohibit acting on behalf of any person in any activity. Examples of prohibited representation include: (1) personal appearances before the former governmental body or bodies; (2) attempts to influence; (3) submission of bid or contract proposals which are signed by or contain the name of the former public official /employee; (4) participating in any matters before the former governmental body as to acting on behalf of a person; and (5) lobbying. Popovich, Opinion 89 -005. Logan 99 -605 September 21, 1999 Page 4 Listing one's name as the person who will provide technical assistance on a proposal, document, or bid, if submitted to or reviewed by the former governmental body, constitutes an attempt to influence the former governmental body. Section 1103(g) also generally prohibits the inclusion of the name of a former public official /public employee on invoices submitted by his new employer to the former governmental body, even though the invoices pertain to a contract that existed prior to termination of public service, Shay, Opinion 91 -012. However, if such a pre- existing contract does not involve the unit where the former public employee worked, the name of the former public employee may appear on routine invoices if required by the regulations of the agency to which the billing is being submitted. Abrams /Webster, Opinion 95 -01 1. A former public official /public employee may assist in the preparation of any documents presented to his former governmental body. However, the public official /public employee may not be identified on documents submitted to the former governmental body. The public official /public employee may also counsel any person regarding that person's appearance before his former governmental body. Once again, however, the activity in this respect should not be revealed to the former governmental body. The Ethics Act would not prohibit or preclude making general informational inquiries to the former governmental body to secure information which is available to the general public, but this must not be done in an effort to indirectly influence the former governmental body or to otherwise make known to that body the representation of, or work for the new employer. Section 1103(g) only restricts the former public official /public employee with regard to representation before his former governmental body. The former public official /public employee is not restricted as to representation before other agencies or entities. However, the "governmental body with which a public official /public employee is or has been associated" is not limited to the particular subdivision of the agency or other governmental body where the public official /employee had influence or control but extends to the entire body. See, Legislative Journal of House, 1989 Session, No. 15 at 290, 291; Sirolli, Opinion No. 90 -006; Sharp, Opinion 90- 009 -R. The governmental body with which you would be associated upon termination of public service would be the Department of Public Welfare in its entirety and the Committee. Therefore, for the first year after termination of your service with the Department of Public Welfare, Section 1103(g) of the Ethics Act would apply and restrict "representation" of "persons" before the Department of Public Welfare and the Committee. Based upon the facts which have been submitted, this Advice has addressed the applicability of Sections 1103(g) and 1103(i) only. It is expressly assumed that there has been no use of authority of office for a private pecuniary benefit as prohibited by Section 1103(a) of the Ethics Act. Further, you are advised that Sections 1103(b) and 1103(c) of the Ethics Act provide in part that no person shall offer to a public official /employee and no public official /employee shall solicit or accept anything of monetary value based upon the understanding that the vote, official action, or judgment of the public official /employee would be influenced thereby. Reference is made to these provisions of the law not to imply that there has been or will be any transgression thereof but merely to provide a complete response to the question presented. 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 Logan, 99 -605 September 21, 1999 Page 5 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: Upon termination of service as Deputy Secretary of Administration with Department of Public Welfare, you would become a former public official /public employee and a former executive -level State employee subject to the restrictions of Section 1 103(g) and Section 1103(i) of the Public Official and Employee Ethics Act ( "Ethics Act "), Act 93 of 1998, Chapter 11. Under Section 1103(i) of the Ethics Act, you would not be prohibited from being employed by, receiving compensation from, assisting, or acting in a representative capacity for M/A COM, Inc. based upon the assumptions that you did not actively participate in recruiting M/A COM, Inc. to Pennsylvania, and that you did not actively participate in recruiting or inducing M/A COM, Inc. to open or expand a plant, facility, or branch in Pennsylvania through a grant or loan of money or a promise of a grant or loan of money from the Commonwealth of Pennsylvania. With regard to Section 1103(g), the restrictions as outlined above must be followed. The former governmental body would be the Department of Public Welfare and the Committee. The propriety of the proposed conduct has only been addressed under the Ethics Act. Further, should service be terminated, as outlined above, the Ethics Act would require that a Statement of Financial Interests be filed by no later than May 1 of the year after termination of service. Pursuant to Section 1107(11), 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 requestor 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. cent J. opk Chief Counsel