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HomeMy WebLinkAbout07-538 BREENBarbara Breen, R.N. 1101 Shannon Lane Carlisle, PA 17013 Dear Ms. Breen: ADVICE OF COUNSEL May 24, 2007 07 -538 This responds to your letter of April 16, 2007, 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 Nurse Administrator following termination of service with the Pennsylvania Department of Public Welfare, Office of Developmental Programs. Facts: You are currently employed as a Nurse Administrator with the Pennsylvania Department of Public Welfare ( "DPW "), Office of Developmental Programs ("ODP "). You have submitted a copy of your position description, which is incorporated herein by reference. A copy of the job classification specifications for your position (job code 30770) has also been obtained and is incorporated herein by reference. In your position with DPW, you are an instructor for the DPW Medication Administration Train the Trainer Program ( "Train the Trainer Program "). You state that the Train the Trainer Program is required in several settings licensed by DPW. You plan to retire in June, 2007. You have been offered a position with a private corporation doing business as "Tuscarora Intermediate Unit" ( "Tuscarora IU "). Tuscarora IU is under contract with ODP and provides administrative support for the Train the Trainer Program. You state that ODP has contracted with Tuscarora IU for many years, but that you have never been involved in the contract negotiations or in decisions to contract or continue to contract with Tuscarora IU. You state that in your future position with Tuscarora IU, you would train community providers to DPW, conduct the training of the medication program, train instructors, evaluate program data, and maintain training materials. You have submitted a work statement for the Medication Administration Instructor for the Tuscarora IU which is incorporated herein by reference. You state that in your prospective employment with Tuscarora IU, you would not participate in contract negotiations with DPW or represent any person, agency or entity before DPW. Breen, 07 -538 May 24, 2007 Page 2 Based upon the facts that you have submitted, you seek guidance as to whether the Ethics Act would impose any restrictions upon you with regard to accepting employment with Tuscarora IU following your retirement from DPW. 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. As a Nurse Administrator for ODP under DPW, 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 and 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; 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 employee from accepting a position of employment, it does restrict the former 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. "Person." A business, governmental body, individual, corporation, union, association, firm, partnership, committee, club or other organization or group of persons. Breen, 07 -538 May 24, 2007 Page 3 "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 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 ublic employee may assist in the preparation of any documents presented to his former governmental body. However, the former public employee may not be identified on documents submitted to the former governmental body. The former 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 employee with regard to representation before his former governmental body. The former 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. The governmental body with which you would be deemed to have been associated upon termination of public service would be DPW in its entirety. Therefore, for the first year after termination of service with DPW, Section 1103(g) of the Ethics Act would apply and restrict "representation" of "persons" before DPW. Breen, 07 -538 May 24, 2007 Page 4 Having set forth the restrictions of Section 1103(g) of the Ethics Act, you are advised that Section 1103(g) would not prohibit you from accepting employment with Tuscarora IU to provide training to community providers to DPW, conduct the training of the medication program, train instructors, evaluate training data, or maintain training materials as long as, in so doing, you would not engage in prohibited representation before DPW for one year following termination of Commonwealth employment. Cf., Shaub, Order 1242. Based upon the facts that 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 employee and no public employee shall solicit or accept anything of monetary value based upon the understanding that the vote, official action, or judgment of the 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. Specifically not addressed herein is the applicability of the Governor's Code of Conduct. Conclusion: As a Nurse Administrator for the Pennsylvania Department of Public Welfare ( "DPW "), Office of Developmental Programs ( "ODP "), you would be considered a "public employee" as that term is defined in the Public Official and Employee Ethics Act ( "Ethics Act "), 65 Pa.C.S. § 1101 et seq. Upon termination of service with DPW, you would become a "former public employee" subject to Section 1103(g) of the Ethics Act. The former governmental body would be DPW in its entirety. The restrictions as to representation outlined above must be followed. Section 1103(g) would not prohibit you from accepting employment with Tuscarora IU to provide training to community providers to DPW, conduct the training of the medication program, train instructors, evaluate training data, or maintain training materials as long as in so doing, you would not engage in prohibited representation before DPW for one year following termination of Commonwealth employment. Act. The propriety of the proposed conduct has only been addressed under the Ethics 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 requester 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. Breen, 07 -538 May 24, 2007 Page 5 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