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HomeMy WebLinkAbout04-586 WoyVictor Woy 383 Zion Road Everett, PA 15537 ADVICE OF COUNSEL August 18, 2004 04 -586 Re: Former Public Employee; Section 1103(g); Construction Manager; Pennsylvania Turnpike Commission. Dear Mr. Woy: This responds to your letter of July 12, 2004, by which you requested advice from the State Ethics Commission. Issue: Whether the Public Official and Employee Ethics Act ( "Ethics Act "), 65 Pa. .S. § 1101 et seq., presents any restrictions upon employment of a Construction Manager following termination of service with the Pennsylvania Turnpike Commission. Facts: You are presently employed as a Construction Manager for the Turnpike ommission. You are part of the bargaining unit Teamsters Local 30 Professional, Non - Supervisory. You have submitted a copy of your job description, which is incorporated herein by reference. Since August 2001, you have been assigned to a reconstruction project on the Pennsylvania Turnpike from MP 109 -122 in District 2. You state that this contract is under the management of URS Corporation, a consultant corporation hired by the Turnpike to administer all aspects of the project including the administration of payments and all interaction with the contractor concerning direction. Due to the availability of Turnpike personnel, a decision was made to commingle both Turnpike and URS inspection staffs. You were placed on the project to familiarize URS Corporation and with Turnpike polices and procedures, and to assure that proper union procedure was being followed as required by the Teamster union contract as it relates to equalization of overtime opportunities and shared assignments. You state that you are in no way involved in the administration of the project. You do not sign any official documents pertaining to the project with the exception of the verification of Turnpike inspector hours. You do submit a daily report to the project summarizing Turnpike inspector's daily activities. You state that you have not worked in your official job capacity for the past three years. Woy, 04 -586 August 18, 2004 Page 2 You are now considering retiring in the fall of 2004. You would like to seek employment with a consultant in a district other than District 2. You state that you would seek a "lesser position," perhaps in the field of inspections. You seek guidance as to your post - employment activities. 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. As a Construction Manager for the Pennsylvania Turnpike Commission, you would be considered a "public 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. This conclusion is based upon the job description, which when reviewed on an objective basis, indicates 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; planning; inspecting; administering or monitoring grants; leasing; regulating; auditing; or other activities where the economic impact is greater than de minimis on the interests of another person. Consequently, upon termination of public service, 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 employee with regard to "representing" a "person" before the governmental body with which he has been associated ": § 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: § 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. Woy, 04 -586 August 18, 2004 Page 3 "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 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 /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 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 -011. A former public official /public employee may assist in the preparation of any documents presented to his former governmental body. However, the former ublic 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 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 /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. Woy, 04 -586 August 18, 2004 Page 4 The governmental body with which you would be associated upon termination of public service would be the Pennsylvania Turnpike Commission in its entirety. Therefore, for the first year after termination of service with the Pennsylvania Turnpike Commission, Section 1103(g) of the Ethics Act would apply and restrict "representation" of "persons" before the Pennsylvania Turnpike Commission. Having set forth the restrictions of Section 1103(g) of the Ethics Act, you are generally advised that although the Ethics Act would not prohibit you from accepting employment in the field of inspections with a consultant following your retirement from the Turnpike Commission, the Act would restrict your conduct in your new position to the extent that such conduct would constitute prohibited "representation" before the Turnpike Commission as delineated above. You are specifically advised that if you would accept employment with a consultant that would have a contract with the Turnpike Commission and your new job responsibilities would involve interaction with Turnpike Commission personnel, as a practical matter, it would appear to be impossible for you to perform the functions of the proposed position without transgressing Section 1103(g) of the Ethics Act. See, Stanisic, Opinion 98 -004; Long, Opinion 97 -010. Based upon the facts which have been submitted, this Advice has addressed the applicability of Section 1103(g) 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 /public employee 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 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 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 Construction Manager with the Pennsylvania Turnpike Commission, you would be considered a "public employee" as defined in the Public Official and Employee Ethics Act ( "Ethics Act "), 65 Pa.C.S. § 1101 et seq. Upon termination of service with the Pennsylvania Turnpike Commission, you would become a "former public employee" subject to Section 1103(.) of the Ethics Act. The former governmental body would be the Pennsylvania Turnpike Commission in its entirety. The restrictions as to representation outlined above must be followed. 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. Woy, 04 -586 August 18, 2004 Page 5 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