Opinion ID: 1273552
Heading Depth: 1
Heading Rank: 3

Heading: Amendment of the Conflict of Interest Statutes

Text: Haskins contends, however, that any question of incompatibility of office or position has been removed from the case by reason of the 1969 amendment of § 6-178, W.S. 1957 and § 9-680, W.S. 1957, C. 1965. As we understand the argument, these amendments provide an exception to the previously existing blanket rule forbidding a public officer to contract with the public body which he serves and make such a contract possible, provided only that certain qualifications are complied with. Under Haskins' thesis all that has to be guarded against is personal and financial interest of the contracting officer, and this is done by providing that he shall not participate in the negotiations, voting or performance of the contract. Relators assert that it is clear that the exceptions provided by the amendments do not allow a member of the governing board to be employed by that body. While this is by no means self-evident, we do think that analysis of the principles pertaining to conflict of interest and its relation to the rule against incompatibility will show that while the legislature intended to permit a qualified exception to conflict of interest prohibitions, it would be an unwarranted construction of the amendatory legislation to hold that it eliminated any question of incompatibility. Haskins has argued that conflict of interest which has been condemned is a pecuniary and proprietary interest. In the usual contract situation, as for example, a contract for the construction of a school building or the designation of a bank depository, the board member who has a personal interest may disclose his interest, absent himself from the consideration of and voting on the contract, and thereafter take no part as a board member in connection with the performance of the contract, thus eliminating any claim of conflict of interest as to that matter. But that is not the problem here presented. An officer or employee carrying out a function of the board he serves is continually and inescapably under the jurisdiction and authority of that board. He is hired by that board, whether through individual or group negotiation, he may under certain restrictions be fired by it, and he is constantly subject to its supervision. In all good faith and without thought of personal gain, his goals and aims in performance of his teaching duties may be at variance with the resources of his district and the general standards of the community. We do not say this is wrong but a person of independent judgment must reconcile these conflicts. These are conflicts which go to the entire scope of his function as a board member and teacher. Paraphrasing the language in O'Connor, for Haskins to hold office as trustee while acting as teacher would deprive the citizens of the school district of the independent judgment of a full and impartial board of trustees elected to represent the entire public interest. We have no doubt such dual positions are incompatible and are not to be disposed of on a mere consideration of financial conflict of interest. If the amendments to the foregoing statutes were to be held effective in eliminating any questions of incompatibility, a member of the city council could be the city attorney, or chief of police. Such a construction of the statute, merely because the particular member may absent himself from the discussion and voting on his own contract, is in our opinion not justified. We also note that the need of the community for continuing exercise of judgment and the making of decisions on the basis of give-and-take discussion of independent minds is not served best where one of the board must at frequent intervals take no part because of conflict. To the extent that the legislature has expressly permitted such conflict, we cannot and do not deny its effectiveness, but we do not have to extend those conflicts by construction. Without setting the limits of the area in which conflicts of interest are not to destroy the right of contract, then, we hold that the incompatibility between office of member of the board of trustees of the school district and employment as teacher in that district is not eliminated by the amendment of the statutes.