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HomeMy WebLinkAbout01-511 GriffinJeffrey L. Griffin 241 South Baltimore Street Dillsburg, PA 17019 -1010 ADVICE OF COUNSEL January 30, 2001 01 -511 Re: Simultaneous Service; Bankruptcy Specialist, Commonwealth of Pennsylvania Department of Revenue; Borough Tax Collector. Dear Mr. Griffin: This responds to your letter of December 27, 2000, by which you requested advice from the State Ethics Commission. Issue: Whether the Public Official and Employee Ethics Act imposes any prohibition or restrictions upon a Bankruptcy Specialist for the Department of Revenue with regard to simultaneously serving as an elected borough tax collector. Facts: As a Bankruptcy Specialist for the Commonwealth of Pennsylvania Department of Revenue, you seek an advisory from the State Ethics Commission. Your request pertains to your proposed simultaneous service as a Bankruptcy Specialist for the Department of Revenue and a Tax Collector for the Borough of Dillsburg ( "Borough "). You ask whether such simultaneous service would be prohibited by the Public Official and Employee Ethics Act ( "Ethics Act "), 65 Pa.C.S. §1101 et seq. You have submitted a copy of your job description, which is incorporated herein by reference. You have also submitted copies of: (1) the Tax Collectors Manual, published by the Governor's Center for Local Government Services; (2) the Standards of Conduct for Employes of the Department of Revenue, which include, inter alia, restrictions as to conflicts of interest, political activity, running for public office, and outside employment; (3) various letters from the Borough Solicitor, Borough Tax Collector, and a Local Government Policy Specialist for the Governor's Center for Local Government Services; and (4) various letters from the Director of Personnel for the Department of Revenue and related documents pertaining to the denial by the Department of your supplementary employment request, based upon the stated conclusion that your proposed simultaneous service would create a conflict of interest. Included among the latter is your response to the Department, Griffin, 01 -511 January 30, 2001 Page 2 of 4 in which you did not check any of the formatted responses on the form, but instead wrote your own: "Asking the State Ethics Commission for an Advisory Opinion." 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 requestor based upon the facts which the requestor has submitted. In issuing the advisory based upon the facts which the requestor has submitted, the Commission does not engage in an independent investigation of the facts, nor does it speculate as to facts which have not been submitted. It is the burden of the requestor 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 requestor has truthfully disclosed all of the material facts. It is further initially noted that advisories issued by the State Ethics Commission are based upon an application of the Ethics Act. However, a public official /public employee who is subject to the Ethics Act may also be subject to other requirements. 65 Pa.C.S. §1111. A Commonwealth agency is free to impose upon its employees supplemental requirements which do not conflict with, and are not Tess restrictive than, the requirements of the Ethics Act. 65 Pa.C.S. § §1111, 1112. As a Bankruptcy Specialist for the Department of Revenue, you are a "public employee" as that term is defined in the Ethics Act and hence you are subject to the provisions of the Ethics Act. 65 Pa.C.S. §1102; 51 Pa. Code §11.1. Sections 1103(a) and 1103(j) of the Ethics Act provide: §1103. Restricted Activities (a) Conflict of interest. —No public official or public employee shall engage in conduct that constitutes a conflict of interest. (j) 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. Griffin, 01 -511 January 30, 2001 Page 3 of 4 65 Pa.C.S. § §1103(a), (j). The following terms that pertain 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. In applying the above provisions of the Ethics Act to the question of simultaneous service, 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. There does not appear to be any statutorily - declared incompatibility precluding simultaneous service in the positions in question. Turning to the question of conflict of interest, pursuant to Section 1103(a) of the Ethics Act, a public official /public employee is prohibited 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, a member of his immediate family, or a business with which he or a member of his immediate family is associated. 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, Johnson, Opinion 86 -004). Where an inherent conflict would exist, it would appear to be impossible, as a practical matter, for the public official /public employee to function in the conflicting positions without running afoul of Section 1103(a). 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, but in each instance of a conflict of interest, the individual would be required to abstain and to satisfy the disclosure requirements of Section 1103(j) as set forth above. Griffin, 01 -511 January 30, 2001 Page 4 of 4 In this case, based upon the facts which have been submitted, there does not appear to be an inherent conflict under the Ethics Act that would preclude your proposed simultaneous service as Bankruptcy Specialist for the Department of Revenue and Tax Collector for the Borough. Consequently, such simultaneous service -- within the parameters of Sections 1103(a) and 1103(j)- -would not be prohibited by the Ethics Act. However, the propriety of the proposed conduct has only been addressed under the Ethics Act. Specifically not addressed herein is the applicability of the Civil Service Act, the Governor's Code of Conduct, or additional requirements to which you may be subject as an employee of the Department of Revenue. Conclusion: As a Bankruptcy Specialist for the Department of Revenue, you are a "public employee" subject to the provisions of the Public Official and Employee Ethics Act ( "Ethics Act "), 65 Pa.C.S. §1101 et seq. Subject to the restrictions, conditions and qualifications set forth above, your proposed simultaneous service as a Bankruptcy Specialist for the Department of Revenue and Tax Collector for the Borough of Dillsburg would not be prohibited by the Ethics Act. The propriety of the proposed course of conduct has only been addressed under the Ethics Act. Specifically not addressed herein is the applicability of the Civil Service Act, the Governor's Code of Conduct, or additional requirements to which you may be subject as an employee of the Department of Revenue. Pursuant to Section 1107(11), 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, 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. Sincerely, Vincent J. Dopko Chief Counsel