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HomeMy WebLinkAbout01-606 FordRobert Ford 714 Beaver Road Leetsdale, PA 15056 ADVICE OF COUNSEL November 27, 2001 01 -606 Re: Simultaneous Service; Township; First Class; Police Officer; Borough; Council Member. Dear Mr. Ford: This responds to your letter of November 1, 2001, by which you requested advice from the State Ethics Commission. Issue: Whether the Public Official and Employee Ethics Act ( "Ethics Act ") imposes any prohibition or restrictions upon a borough council member from simultaneously being employed as a township police officer. Facts: You have been a police officer for fourteen years in Aleppo Township, a township of the First Class. You reside in Leetsdale Borough. Aleppo Township and Leetsdale Borough are both located within Allegheny County. One and a half years ago, you were offered a position on Leetsdale Borough Council to fill a vacancy. After consulting with your police chief, the Aleppo Township Commissioners and their solicitor, you were advised that there would be no problem in serving on Borough Council. The solicitor agreed with your understanding of the First Class Township Code, which you state provides that a police officer cannot hold another public office in the same municipality. In May 2001, you had to submit your name to get on the ballot for the next term, which begins in 2002. You state that you did not engage or participate in any political campaign. In fact, your wife was the one who circulated your petition around for signatures. You note that you are running unopposed on November 6, 2001. On September 28, 2001, the Leetsdale Borough Council President informed another Council member that you might be in violation of the First Class Township Code. On that same date, arbitration was held for the police contract in Aleppo Township. You state, It appears to me it was alright for me to hold the council seat before but now Aleppo is retaliating for having to go to arbitration." You believe that Aleppo Township's position is that it is permissible to hold both positions simultaneously as long as the seat on Council is an appointed position. If the seat on Council is an elective position, some individuals in the Township believe that Ford, 01 -606 November 27, 2001 Page 2 simultaneous service would transgress Sections 1401 and 644 of the First Class Township Code. Since you believe that your civil rights would be violated if you would be prevented from seeking a council seat in a municipality separate from where you are employed, you seek an advisory on this issue. Discussion: Assuming you would win the election for a seat on the Leetsdale Borough Council, you would be a "public official" as that term is defined in the Ethics Act and hence you would be 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. 65 Pa.C.S. §§ 1103(a), (j). 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 Ford, 01 -606 November 27, 2001 Page 3 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. In this case, based upon the facts which have been submitted, there does not appear to be an inherent conflict that would preclude simultaneous service as a Leetsdale Borough Council Member and a police officer in Aleppo Township. Consequently, such simultaneous service would be permitted within the parameters of Sections 1103(a) and 1103(j). Lastly, the propriety of the proposed conduct has only been addressed under the Ethics Act. Specifically not addressed herein is the applicability of the First Class Township Code and Borough Code. Conclusion: Assuming you would win the election for a seat on the Leetsdale Borough Council, you would be a "public official" subject to the provisions of the Ethics Act. You may, consistent with Section 1103(a) of the Ethics Act, simultaneously serve in the positions of Leetsdale Borough Council Member and Aleppo Township police officer subject to the restrictions, conditions and qualifications set forth above. Lastly, the propriety of the proposed course of conduct has only been addressed under the Ethics Act. 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. Ford, 01 -606 November 27, 2001 Page 4 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