BILL ANALYSIS Ó ----------------------------------------------------------------- |SENATE RULES COMMITTEE | AB 1090| |Office of Senate Floor Analyses | | |1020 N Street, Suite 524 | | |(916) 651-1520 Fax: (916) | | |327-4478 | | ----------------------------------------------------------------- THIRD READING Bill No: AB 1090 Author: Fong (D) Amended: 4/10/13 in Assembly Vote: 27 SENATE ELECTIONS & CONST. AMEND. COMMITTEE : 4-1, 7/2/13 AYES: Torres, Hancock, Padilla, Yee NOES: Anderson SENATE APPROPRIATIONS COMMITTEE : Senate Rule 28.8 ASSEMBLY FLOOR : 58-13, 5/31/13 - See last page for vote SUBJECT : Conflicts of interest: contracts SOURCE : Fair Political Practices Commission DIGEST : This bill authorizes the Fair Political Practices Commission (FPPC) to bring civil and administrative enforcement actions for violations of Government Code Section 1090 (Section 1090), dealing with conflicts of interest in contracts, and requires the FPPC to provide opinions and advice with respect to Section 1090. ANALYSIS : Existing law: 1. Prohibits members of the Legislature and state, county, district, judicial district, and city officers or employees, CONTINUED AB 1090 Page 2 pursuant to Section 1090, from being financially interested in any contract made by them in their official capacity, or by any body or board of which they are members. Prohibits state, county, district, judicial district, and city officers or employees from being purchasers at any sale made by them in their official capacity, or from being vendors at any purchase made by them in their official capacity. 2. Provides that a person who willfully violates Section 1090 is punishable by a fine of not more than $1,000 or by imprisonment in the state prison, and is forever disqualified from holding any office in the state. 3. Provides that a contract made in violation of Section 1090 may be voided by any party to the contract, except for the officer who had an interest in the contract in violation of Section 1090. This bill: 1. Authorizes the FPPC to bring civil and administrative enforcement actions for violations of Section 1090, dealing with conflicts of interest in contracts, and requires the FPPC to provide opinions and advice with respect to Section 1090. 2. Makes violations of Section 1090 subject to civil and administrative enforcement proceedings, in addition to criminal prosecutions. Permits the FPPC to bring a civil or administrative action against any member of the Legislature, state, county, district, judicial district, or city officer or employee who is financially interested in any contract made by that person in his/her official capacity, or by any body or board of which that person is a member. 3. Prohibits the FPPC from commencing an administrative or civil action against a person for a violation of Section 1090 except upon written authorization from the District Attorney (DA) of the county in which the violation occurred. 4. Prohibits the FPPC from bringing a civil action against a person for a violation of Section 1090 if the Attorney General (AG) or a DA is pursuing a criminal action against that person for the same alleged violation. CONTINUED AB 1090 Page 3 5. Provides that if two or more persons are responsible for a violation of Section 1090, they are jointly and severally liable. 6. Permits a person who is subject to Section 1090, or his/her authorized representative, to request an opinion or advice from the FPPC with respect to his/her duties under Section 1090. Provides that the FPPC's authority to issue opinions or advice pursuant to these provisions is concurrent with the authority of the AG to issue opinions and advice. 7. Permits the FPPC to adopt regulations for the purposes of this bill. 8. Requires the FPPC to investigate possible violations of Section 1090 upon receipt of a sworn complaint from a person. Permits the FPPC to investigate possible violations of Section 1090 on its own initiative. Requires such investigations to be conducted pursuant to procedures that govern FPPC investigations for potential violations of the Political Reform Act (PRA). 9. Provides that the FPPC must obtain written authorization from the AG and the DA of the county in which an alleged violation occurred before it can provide immunity from prosecution for testimony compelled by the FPPC over a person's objection. 10.Prohibits the FPPC from commencing an administrative action against a person for a violation of Section 1090 if the FPPC has commenced a civil action against that person for the same violation. Prohibits the FPPC from commencing a civil action against a person for a violation of Section 1090 if the FPPC has commenced an administrative action against that person for the same violation. 11.Provides that a civil violation of Section 1090 shall be punishable by a fine payable to the FPPC for deposit in the General Fund (GF) in an amount not to exceed three times the value of the financial benefit received by the person. 12.Provides that if the FPPC determines that a violation of Section 1090 has occurred through an administrative CONTINUED AB 1090 Page 4 enforcement process, the FPPC shall issue an order requiring the violator to cease and desist violation of Section 1090, pay a monetary penalty of up to $5,000 to the FPPC for deposit in the GF, or both. 13.Requires the FPPC to follow the procedures that apply to administrative actions brought for violations of the PRA when bringing an administrative action for a violation of Section 1090 pursuant to the provisions of this bill. 14.Permits the FPPC to obtain a judgment in superior court for the purpose of collecting any unpaid monetary penalties, fees, or civil penalties imposed pursuant to this bill. Provides that the procedures for obtaining such a judgment for collecting unpaid penalties or fees for a violation of the PRA shall apply to any action by the FPPC to obtain a judgment for unpaid penalties or fees for a violation of Section 1090. 15.Permits the FPPC to apply to the clerk of the superior court for a judgment to collect penalties imposed by an FPPC enforcement order for a violation of Section 1090, in lieu of filing a small claims or civil case with the court to collect those penalties, pursuant to the following: A. Provides that if the time for judicial review of a final FPPC order or decision for a violation of Section 1090 has lapsed, or if all means of judicial review of the order of decision have been exhausted, the FPPC may apply to the clerk of the court for a judgment to collect the penalties imposed by the order or decision, or the order as modified in accordance with a decision on judicial review. B. Requires the application to the clerk of the court to include a certified copy of the order or decision, or the order as modified in accordance with a decision on judicial review, and proof of service of the order or decision. Provides that the application constitutes a sufficient showing to warrant issuance of the judgment to collect the penalties. Requires the clerk of the court to issue the judgment immediately. C. Provides that an application to the clerk of the court CONTINUED AB 1090 Page 5 for a judgment to collect penalties imposed by an FPPC enforcement order shall be made to the clerk of the superior court in the county where the monetary penalties, fees, or civil penalties were imposed by the FPPC. D. Provides that a judgment entered pursuant to these provisions has the same force and effect as a judgment in civil action. E. Provides that the remedy provided in this bill is in addition to those available under existing law. Background Overview of Section 1090 . Section 1090 generally prohibits a public official or employee from making a contract in his/her official capacity in which he/she has a financial interest. In addition, a public body or board is prohibited from making a contract in which any member of the body or board has a financial interest, even if that member does not participate in the making of the contract. Violation of this provision is punishable by a fine of up to $1,000 or imprisonment in the state prison, and any violator is forever disqualified from holding any office in the state. The prohibitions against public officers being financially interested in contracts that are contained in Section 1090 date back to the second session of the California Legislature (Chapter 136, Statutes of 1851). Various provisions of state law provide exceptions to, or limitations on, Section 1090. Among other provisions, state law provides that an officer shall not be deemed to be financially interested in a contract if the officer has only a "remote interest" in the contract and if certain other conditions are met. Similarly, another section of state law provides that an officer or employee is not deemed to be interested in a contract if his/her financial interest meets one of a number of different enumerated conditions. Given the complexity of Section 1090, and the various exceptions to and limitations on that section, it can be extremely difficult for a public board or body to determine whether or not a member of that board or body has an impermissible financial interest in a contract made by the board or body. The AG and county DAs have enforcement authority over Section 1090, but CONTINUED AB 1090 Page 6 neither the AG nor the county DAs typically give legal opinions on the application of that section. Public officials may be able to receive an opinion from the legal counsel to the board or body of which they are a member, but such an opinion does not provide the same legal protection to the public official. Conflict of interest rules in the PRA . In addition to the conflict of interest laws found within Section 1090 that apply to contracting decisions made by governmental entities, the PRA also has separate conflict of interest laws that apply more broadly to all governmental actions. Generally, these provisions prohibit a public official from making, participating in making, or in any way attempting to use his/her official position to influence a governmental decision in which the official knows or has reason to know that he/she has a financial interest, as defined. Any public official who knowingly or willfully violates these conflict of interest rules can be charged criminally. Civil and administrative enforcement actions may also be brought against an individual for a violation of these conflict of interest rules. The FPPC has sole authority to bring an administrative enforcement action under the PRA, and the FPPC also has the authority to bring civil enforcement actions under certain circumstances. FISCAL EFFECT : Appropriation: No Fiscal Com.: Yes Local: No SUPPORT : (Verified 8/9/13) Fair Political Practices Commission (source) California Common Cause OPPOSITION : (Verified 8/9/13) Association of California Water Agencies Valley Ag Water Coalition ARGUMENTS IN SUPPORT : According to the author: In 1974, California voters passed Proposition 9, a measure that enacted comprehensive conflict of interest laws designed to ensure that public officials would perform their duties in an impartial manner, among other provisions. That measure, commonly known as the Political Reform Act, also created the CONTINUED AB 1090 Page 7 FPPC, and made it primarily responsible for enforcing those conflict of interest laws. Under the PRA, a public official generally is prohibited from making or participating in the making of any governmental decision in which the official knows or has reason to know that he or she has a financial interest. The conflict of interest laws in the PRA apply broadly to all types of governmental decisions. There is a separate conflict of interest law, however, that applies only to contracting decisions. Government Code Section 1090 generally prohibits a public official or employee from making a contract in his or her official capacity in which he or she has a financial interest. In addition, a public body or board is prohibited from making a contract in which any member of the body or board has a financial interest, even if that member does not participate in the making of the contract. Unlike the conflict of interest rules contained in the PRA, however, the FPPC does not have a role in enforcing Government Code Section 1090. Instead, enforcement actions may be brought only by the Attorney General or by the district attorney in the county in which the violation occurred. Furthermore, unlike the PRA, which can be enforced through criminal, civil, or administrative actions, Government Code Section 1090 can be enforced only through criminal prosecutions. Because contracting decisions fall within the broader conflict of interest rules contained in the PRA, however, the FPPC nonetheless can and does bring enforcement actions under the PRA for conflicts of interest that arise in the context of contracting decisions. The existence of multiple conflict of interest laws that are enforced by multiple entities create unnecessary confusion for public officials and hamper efforts to effectively enforce the state's strict conflict of interest rules. AB 1090 improves enforcement of the state's conflict of interest laws by allowing the FPPC to bring civil or administrative enforcement actions in response to violations of the Government Code Section 1090 contracting laws, and gives public officials an additional tool in helping to avoid conflicts of interest by allowing the FPPC to issue advice regarding a public official's obligations under Government CONTINUED AB 1090 Page 8 Code 1090. ARGUMENTS IN OPPOSITION : The Association of California Water Agencies states: AB 1090 would make a person who violates Section 1090 of the Government Code, or who causes another person to violate or who aids and abets another person in violating the prohibition, subject to administrative and civil fines. The bill would authorize the Fair Political Practices Commission to enforce these violations by bringing an administrative or civil action against a person who is subject to the prohibition. We believe that Government Code section 1090 currently provides for strong safeguards against financial abuse by government officials and public employees when entering into contracts on behalf of a public agency. Adding the threat of administrative and civil fines to the current threat of jail time seems unnecessary. If a local government official or employee is going to willfully violate the law, the prospect of going to jail is likely much more of a deterrent than an administrative fine. If the law is violated in error, without the intent to gain a financial benefit, currently the District Attorney (DA) can make a determination on whether the case should be pursued. Often the DA will not pursue a case because it is clear that the person did not intend to violate the law. We believe that AB 1090 would merely add opportunities for government officials and public employees to be fined which is much easier to accomplish than pursuing a criminal case. ASSEMBLY FLOOR : 58-13, 5/31/13 AYES: Alejo, Ammiano, Atkins, Bloom, Blumenfield, Bocanegra, Bonilla, Bonta, Bradford, Brown, Buchanan, Ian Calderon, Campos, Chau, Chesbro, Cooley, Daly, Dickinson, Eggman, Fong, Fox, Frazier, Garcia, Gatto, Gomez, Gonzalez, Gordon, Gray, Hall, Roger Hernández, Jones-Sawyer, Levine, Linder, Lowenthal, Maienschein, Medina, Mitchell, Morrell, Mullin, Muratsuchi, Nazarian, Nestande, Pan, Perea, V. Manuel Pérez, Quirk, Quirk-Silva, Rendon, Salas, Skinner, Stone, Ting, Waldron, Weber, Wieckowski, Williams, Yamada, John A. Pérez NOES: Achadjian, Allen, Chávez, Dahle, Donnelly, Beth Gaines, CONTINUED AB 1090 Page 9 Grove, Harkey, Jones, Logue, Mansoor, Patterson, Wagner NO VOTE RECORDED: Bigelow, Conway, Gorell, Hagman, Holden, Melendez, Olsen, Wilk, Vacancy RM:k 8/12/13 Senate Floor Analyses SUPPORT/OPPOSITION: SEE ABOVE **** END **** CONTINUED