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HomeMy WebLinkAbout20-520 Maurer PHONE: 717-783-1610 STATE ETHICS COMMISSION FACSIMILE: 717-787-0806 TOLL FREE: 1-800-932-0936 FINANCE BUILDING WEBSITE: www.ethics.pa.gov 613 NORTH STREET, ROOM 309 HARRISBURG, PA 17120-0400 ADVICE OF COUNSEL March 26, 2020 To the Requester: Mr. Michael D. Maurer 20-520 Dear Mr. Maurer: This responds to your letter dated February 24, 2020, by which you requested an advisory from the Pennsylvania State Ethics Commission . Issue: Pa.C.S. § 1101 et seq., would impose restrictions upon employment of a Roadside Specialist 2 following termination of employment with the Pennsylvania Department of Facts: You request an advisory from the Commission regarding the post- employment restrictions of the Ethics Act. You have submitted facts that may be fairly summarized as follows. You are currently employed as a Roadside Specialist 2 with PennDOT in Engineering District 12-0. You have submitted a copy of your official Commonwealth position description, which document is incorporated herein by reference. A copy of the job classification specifications for the position of Roadside Specialist 2 (job code 11822) has been obtained and is also incorporated herein by reference. In your current position with PennDOT, you perform work in the field of vegetation management. You have worked with various vendors during your Commonwealth employment. Some of these vendors perform work in multiple states, including Pennsylvania. You plan to retire from your employment with PennDOT. You are considering various options for employment following your retirement from PennDOT, including employment with a vendor or a public utility. You state that you are also considering your Based upon the above submitted facts, you seek guidance as to whether the Ethics Act would impose prohibitions or restrictions upon you following termination of your employment with PennDOT. In particular, the following questions are posed by your advisory request: Maurer, 20-520 March 26, 2020 Page 2 (1) For what length of time would any prohibitions or restrictions imposed upon you be applicable; (2) Whether you would be prohibited from being employed in states other than Pennsylvania with any vendors that you worked with during your employment with PennDOT; (3) Whether the Ethics Act would impose prohibitions or restrictions upon you with regard to accepting employment with a public utility that you worked with during your employment with PennDOT; and (4) Whether there would be any restrictions as to what clients you/your Consulting Company could provide services to in Pennsylvania or other states. 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 initially 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. Pursuant to Section 1103(a) of the Ethics Act, a public official/public employee is prohibited from engaging in conduct that constitutes a conflict of interest: § 1103. Restricted activities (a) Conflict of interest.--No public official or public employee shall engage in conduct that constitutes a conflict of interest. 65 Pa.C.S. § 1103(a). The following terms related to Section 1103(a) 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 Maurer, 20-520 March 26, 2020 Page 3 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. 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. Sections 1103(b) and 1103(c) of the Ethics Act provide in part that no person shall offer or give to a public official/public employee anything of monetary value and no public official/public employee shall solicit or accept anything of monetary value based upon the understanding that the vote, official action, or judgment of the public official/public 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 questions presented. As a Roadside Specialist 2 for PennDOT, you See, 65 Pa.C.S. § 1102; 51 Pa. Code § 11.1. This conclusion is based upon the position description and the job classification specifications, which when reviewed on an objective basis, indicate clearly that the power exists to take or recommend official action of a non- ministerial nature with respect to one or more of the following: contracting; procurement; administering or monitoring grants or subsidies; planning or zoning; inspecting; licensing; regulating; auditing; or other activity(ies) where the economic impact is greater than de minimis on the interests of another person. Consequently, upon termination of your employment with PennDOT, you would become a "former public employee" subject to Section 1103(g) of the Ethics Act. While Section 1103(g) does not prohibit a former public official/public employee from accepting a position of employment, it does restrict the former public official/public § 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). Maurer, 20-520 March 26, 2020 Page 4 official or public employee is or has been associated" are specifically defined in the Ethics Act as follows: § 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. 65 Pa.C.S. § 1102. The term "Person" is very broadly defined. It includes, inter alia, corporations and other businesses. It also includes the former public official/public employee himself, Confidential Opinion, 93-005, as well as a new governmental employer. Ledebur, Opinion 95-007. The term "represent" 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/public 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. 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 if the invoices pertain to a contract that existed prior to termination of service with such governmental body. Shay, Opinion 91-012. However, if such a pre-existing contract does not involve the unit where a 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 95-011. A former public official/public employee may assist in the preparation of any documents presented to his former governmental body. However, the former public official/public employee may not be identified on documents submitted to the former governmental body. The former 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 Maurer, 20-520 March 26, 2020 Page 5 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. governmental body where the public official/public 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 90-006; Sharp, Opinion 90-009-R. The governmental body with which you would be deemed to have been associated upon termination of your employment with PennDOT would be PennDOT in its entirety, including but not limited to Engineering District 12-0. Therefore, for the first year following termination of your employment with PennDOT, Section 1103(g) of the Ethics Act would PennDOT. Having set forth the restrictions of Section 1103(g) of the Ethics Act, your specific questions shall now be considered. Your first question has been addressed above. In response to your second, third, and fourth questions, you are advised as follows. Section 1103(g) of the Ethics Act would not prohibit you from: (1) accepting employment with a vendorin Pennsylvania or another statethat you worked with during your employment with PennDOT; or (2) accepting employment with a public utility that you worked with during your employment with PennDOT. However, during the first year following termination of your employment with PennDOT, Section 1103(g) of the Ethics Act would prohibit you from engaging in any activity(ies) that would involve prohibited representation before PennDOT as delineated above. During the first year following termination of your employment with PennDOT, Section 1103(g) of the Ethics Act would prohibit you/your Consulting Company from providing services to PennDOT as such would necessarily involve prohibited representation before PennDOT. Section 1103(g) of the Ethics Act would not prohibit you/your Consulting Company from providing services to clientsother than PennDOT in Pennsylvania or other states, subject to the condition that in so doing, you would not engage in prohibited representation before PennDOT as set forth above. With regard to Section 1103(a) of the Ethics Act, you are generally advised that the elements of a violation of Section 1103(a) of the Ethics Act would not be established as a result of your prospectively entering into a business/employment relationship with an entity (such as a vendor or a public utility) subject to the conditions that you: (1) did not use the authority of your public position with PennDOT in matter(s) pertaining to the entity when you had an actual or reasonable expectation that you would enter into a business/employment arrangement with the entity or would otherwise receive a private pecuniary benefit relating to the entity; and (2) did not otherwise use the authority of your public position with PennDOT or confidential information received as a result of being in your public position with PennDOT in furtherance of securing a business/employment arrangement with the entity or other private pecuniary benefit relating to the entity. Cf., Desmond, Opinion 08-004. Maurer, 20-520 March 26, 2020 Page 6 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. Specifically not addressed herein is the applicability Conclusion: As a Roadside Specialist 2 for the Pennsylvania Department of , you would be considered a "public employee" subject to the et seq., and the Regulations of the State Ethics Commission, 51 Pa. Code § 11.1 et seq. Upon termination of your employment with PennDOT, you would become a "former public employee" subject to Section 1103(g) of the Ethics Act. The former governmental body would be PennDOT in its entirety, including but not limited to Engineering District 12-0. For the first year following termination of your employment with PennDOT, Section PennDOT. The restrictions as to representation outlined above must be followed. Section 1103(g) of the Ethics Act would not prohibit you from: (1) accepting employment with a vendorin Pennsylvania or another statethat you worked with during your employment with PennDOT; or (2) accepting employment with a public utility that you worked with during your employment with PennDOT. However, during the first year following termination of your employment with PennDOT, Section 1103(g) of the Ethics Act would prohibit you from engaging in any activity(ies) that would involve prohibited representation before PennDOT as delineated above. During the first year following termination of your employment with PennDOT, your services to PennDOT as such would necessarily involve prohibited representation before PennDOT. Section 1103(g) of the Ethics Act would not prohibit you/your Consulting Company from providing services to clientsother than PennDOTin Pennsylvania or other states, subject to the condition that in so doing, you would not engage in prohibited representation before PennDOT as set forth above. With regard to Section 1103(a) of the Ethics Act, you are generally advised that the elements of a violation of Section 1103(a) of the Ethics Act would not be established as a result of your prospectively entering into a business/employment relationship with an entity (such as a vendor or a public utility) subject to the conditions that you: (1) did not use the authority of your public position with PennDOT in matter(s) pertaining to the entity when you had an actual or reasonable expectation that you would enter into a business/employment arrangement with the entity or would otherwise receive a private pecuniary benefit relating to the entity; and (2) did not otherwise use the authority of your public position with PennDOT or confidential information received as a result of being in your public position with PennDOT in furtherance of securing a business/employment arrangement with the entity or other private pecuniary benefit relating to the entity. 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. Maurer, 20-520 March 26, 2020 Page 7 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