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CENL L I T I G A T I O N

Septemb€r10, 1997

oPrNloNNo. 97-OO4
TO r

HonorableJim Geringer
Governor,State ot WYoming
Honorabl€BruceHincheY
Spg6ker,WyomingHouseof Representntives

FROM ;

WllllemU. Hill
Attofn€y G€neral
MichaelL. Hubbard
OeputyAttorneyGonefsl
Jennif€rA, Evans
SeniorAdsistsnlAtlolney General

OU ES fION S I
l. WhEl typs ot intorestconstitutesa petsonalor privale
Intsrestin 8 bill or m€asuroproposedor pendingbeforethe
whiclr will disqualilya legislatorttom
WyomingLegislature
votingon the bill or msasure?
ll. Doeoa Wyomingl€gislatorwho iroldsa leaseon state
personalor p.ivalointerest
trust landshavean impermissible
lreezingtho b€serontalfee on that leaso?
In l€glslation
lll. Doesa Wyominglsgislatorwho worksf or the Wyoming
publicsducationsystemh8v€ an impermlssiblc
personalor
privste intelest in legislationalfscting thg funding ot the
publiceducationsystem?

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OUESTTON

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ID:3@"7??6329

What type ot intelesl constitutes a psrsonal or private
int€restin a bill or measureproposedor pendingbetor€the
which will disqualifya legislatorfrom
Wyoming Legislature
voting on the bill or m€asure?

lho questions addressedby this opinion arise from the Wyoming
nal provisionprohibitinga Wyoming legislatorfrom voting on any
o(rr!;tir.utio
rr:irsure
or bill in which the logislatorhasa p€rsonalot privaleinterest.Articl€
3 , ! 4 0 of tha W y omi ngC on s t it u t iopnr o v id e s :
A msmberwho has a psrsonalor privateir'ltorost
in any measureor bili proposedor pendingbetorethe
legislature
shslldisclossth€ tact to the houseof which
lre is I membsr,snd shallnot vote thereon.
personalor privat'cinterest
ln deflningwhat constitutesan imperrnissible
ill lr!gislation,
it is importantto considerthe policyservedby th€ prohibitionol
with whioh tlrat policyfnust
Arra(:lo
3, 5 46 and the competingconsiderations
ln ) l )irlnnc c d. In res pondi n gt o O u E s t io nl. t h ls o p in io nwill b € g in with a
afld will then addrassthe detinitionof a
disou!;sionof policy conslderations
the definitionot a "personalor
"Dorsonalor privateinteiest." In addressing
t)rivfito interest," authority from Wyoming and qther statss which havo
rhe i s s us ,s tatuto lilya n d / o rt h r o u g ho a s ela w, will b e c o n s ide r e d .
a (i(lro s s €d
L,r;rly,this opinion,alsoin rosponseto Ouestlonl, will addressenforcemantof
impermissible
vote mighthaveon
Arriclc3, I 46 and what impacta leglslator's
tl rr virli di tyof l egi s l ati on.
A.

PolicyConsidorations

A rti c l s 3, 146 of the W y o m in gc o n s t it u t io nis in t o n d e dt o e lim r n a te
lrj(,lslativo
cooflictsof interest.RobertB. Kerter& Tim Newcomb,TheWyoning
(:enstitlttion;A nefercnceGuide1QB(1993). The applicationof the doctrine
{Jl conflicts of intorost to legislatorsand other govern.nentofficials and
a
r)rlt)loyeesstems{rom the premisethat a trust relationship
exists bervr'oen
yrrrlrlir;of(icinl and his governmsnt. Conllicl-Ofhtterest ol 6oventncn!
l\:tsetutel: An Appraisalof the PhiladelohiaSiluation, 107 U. Pa- L. Rov. 985.
)tJ1;tj6 ( 1959). SeealsoEoatdof Com'rc v. CasperNat.Bank,105 P.2ct5 I A,
r,B:l {J4 (u/yo. 194Q1;Fuchs v. Bidwill,334 N.E.2d 1 17, l l9 12O {lll. App.
l:) ll;)) TownshipCommitteeof Hazlet,MonumoutllC.),v. Morales,289A.zd
b(':J,565 {N.J. Super.1972l,;Zerweckv. StatcCotn'non Ethics,4og So.2d

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terdsiEre,
L€gislativootlice is n publictrust, and every cltort to
regl i z epc rs on a l0 a in t h r o u g lro f lic ia l c o n d u c l is il
violationof that tnrst. lhe legislaturesltall enact a
c odeof €thi c sp r o h ib ir incgo n llic tb e t w€ e np u b licd u ly
s f t h c le ! J iso t u r e .
and pri v fl tci nt e r o s t so t n r e n t b e r o
l La. C ons t.art. lll, I 9 l
M o n ta n a i
Th€ holding ol pr/blicotfice or e lrployrnentis a public
trust, cfcated by thc {-:onlidenccthst the eleotolntc
teposcs in thc intogrity of public officers, legislators,
and frublic enployecs. A public officer, legislator,or
p u b l i c crn p l o yeeshnllcafr y out the individual' sd{ ,tic$
ior tlre tjencfit ot the Dcoplcol the state, lMottt. Cotlr.j
A n n . 9 2 -2 1 0 3{1){ 199b) l

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LTTIGA TION

their conslittllioniilconfliclsol
Soverslstates hnve €xplicitlyDlcrrrised
e n a c t e dc o d o so I c lh iu so n d s t a r ]d fl r d s
andthei rs t a lu t o r lly
in tsr os tprov i s i ons
of conduct upon rh€ t.ust relationshipbetween a legislatorarld hls or lrcr
gov€rnment.For exanrPlc:

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r r t' i r l
ip p o s o su p o na lc g is la t oce
5 7 , 60 (Fl a.A pp. 1982). A t r u s l r c la t io n s h im
fiducisry obligationsincludingrlre obligationof acting in good laitll in tht)
futtherancaot the govcrn.nent'sintorestsand that of undividedloyaltyto th.)
govornment. Hagcr v. Moblcv,638 P.2d 127' 13A lWvo. 19811:Mvet v
Millet, 631 p,2d 441, 443-44 (Wvo. 19a1) ; Hazlet'289 A.2d at 565 Bgcrltrsc
a lo0islotor's
of th€ trust relationshipbetwecna logislatoralld his governrrlent,
personalor ptivateirlt€restnraytlot contlicrwith the inr€rcstot the govc'rrrtirent
a sle g is la lo r 'osb liga ti o r r s
i n a Dal tl c ul ar
matt€r.A c on f lic to f in t e r e sut n d e r m a n e
of undividedlayaltyand good faitlt

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Nsvada:
It i s l rsrcb yd ccl{ r r cdr o l) r )lhe p$hlicpolicyolthis $t.r t( l
tlral:

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(6) A public ottice is a public trust and
ghall be held for the sole benefit of the
psopls.

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(b) A public officer or employee must
commithimsclfto avoidconfliclsbetween
his private intcresls and those of the
geners lp u b lic wh o r n h c s c r v e s , lNe v .
R s v .S tat .A n n . ! 2 8 1 . 4 2 1 . 1( ' t 9 9 5 t l

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Orgqon:

The Legislative
AssemblyIlcrebydeclaresthat a Jrublrc
public
trust, and that as or)c solegLrard
oftico is a
lor
that rust, the people requirc oll public officials to
ndhoreto the oode of ctlricsl.l [Or. Bev. Stat. I
244,010(1)(19 9 5 1 1

YY.iscoD$in:
The logislature hereby real{irms thot a state public
otficiol holds his or ltci'i}JsitiiJnas a public trrl6t, rnd
a n y o tl o rt to fe alizosubstantialper sonalg€in thr o gh
o tti ci a lco n d u o t is a violatr onof that tr ust. { W is, Sr ar .
A n n .5 1 9 .4 6 (1) ( 1996) l
S e e a /so Mi ss. C o d e A n n . \ 25 + - 141 ( 1972) : N.M, Stat. Ar 1r 1.r r lo-10.1.,
( 19 7 8 ).
A Wyo mi n g l g g i sl a to rmHynot por tr cip{ tcin legi$lation wltit:lrtll] r ) r .r l r {)
't
f D
h a s a n i mp srmi ssi b l ep o rsor r alot l) r lvatc inter est, as sUolt
l) a) r t,,ilr ,rrtr
(
lonstilution
p r o h i b i te d b o th b y th s Wyonr ing
and by the tr Lr str clir lir ) ni i l l l r
i   !)
th
e
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a
to
r
thc
b e t w €e n
and
!) ovcfr lor .r nt.An additior aljlt$lifl0;tliorfor
p r o h i b i ti o n a g a i n sl co n fl i ctr ; of ir tcr est, often cited as thc pir iil l l o{l     l
jusfificalion, is tho need lo mdirrtairrput-rlic
confide  coIn tirrl irtc(]ritVol iikicri"d
r g pf ese n ta ttve s,B e ca u sgo f tir is laltcf ( :0tr c€r n.
co lljots oi i ]l( ,r ( jerr cr tl  l i r l i {) r l
t y p i c al l y n o t o n l y p ro scri bejlactual confl;cts of intcr cst, bot ltl,jo r ;ir L r l i o,r 1.
againgl sven tho appearan!'oul irnl,'roprx)ty.For ex:rnrple,l;l;rinr:'r;(lr,cl{;rii
L e g i s la ti vsE th i cs p ro vi d e sthat ",ilf pr .r blic
contidcnceir r qovr ,nr r r r r :rirr r; ro l r r
3ti

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rD.3@?7?763a9

mointainedand €nhancsd,it is not eDoughthat publicolficorsavoid flcts of
misconduct. They must also scrupulouslyavoid acts which may crcntean
a p p e arancof
o mi s c ondu c t , " lv c . Re v . s t a l. A n n . t it . 1 , q 1 0 1 i ( 19 8 9 ) .
Maryland'sPublicElhicsLaw providcssirnila.ly
lhat tlro public'sconlidcnceatrd
is
whenthe conductot the Stats'9business
trust in the government"is eroLied
subiectto improperinfluenceor evcntlrc app€aranccol improperintlttencs.''
a / s oK y . Re v .s r nt . n n n
M d , CodeA nn.S tateG ov 't I 15 -10 ' l ( o ) { 2 )I {I 9 5 ) ; . e e e
I 6 .6 00 (1996);Mont. C o d eNt n . 5 2 - 2 ' 1 1 7 . ( 3()1 9 9 5 ) ;N. J .He v .S r a t 'An r r .
O k la .S t a t .A n n . t it . 2 5 7 , E 2 0 - 1 1 { a ) ( 4 ) 1 1 9 9  il ')1; ,1 .
! 5 2:13D -12(a){1986);
6 e n . Law s ! 36- 14-1(199 0 ) .
Ths prohibitionagainst legislativecontlicts thus serves inrporlatrtprit)lc
p o l i cvco n si d € ta ti o n s,T h o seconsidcr ations
havc been sunr mar izcd
as loll ow s :
In purelyutilitdtianternrs,a code ot ethics for tlro .
llegi3latorl is needod tor two reasons. First. elhical
oonduct by lawnrokers is a precondition lo nraki0g
good public policy. [:thics rulcs, it leasonablydrattcd
snd r€liably onlorccd, increosc the likelihood flrot
legislators(and orl)erofficralslwill make decisiorlsand
policies based on the ricrits o{ issues, rathef than orl
tactors {such as persooal gainl that should be
i rrsl o va n t.S e oond,plr bli0confidencein r he intcgr ityot
the govcmmcnt i3 f[ndumcnial io our s/sicrii ol
rspressntative dernocracY. lf tho logisloture is to
command the respecl, trtrst, and contidenco of thc
p € o p l e , th e i n divi( hr alswho sor ve in the lcgislatr r r e
rnust bs pgrcaivcd as odlreringto high standards of
ethicrl conduct.
Thomas Mote Keflenberg,WhenLawyers Become Legislatots;At1 ts$av nd a
Proposal,76 Marq. L. R€v. 343, ::lbl (1993); see a/so Ky. Hcv. siirl. Anr. Ii
6 . 6 0 6 (1 9 9 6 ); Md . C o d e A nn. Stir teCov' t q 15- lO1 ( 199b) ; Nol) .flr r v.!i ti ,l r i
4 9 . 1 4 0 2 (1 9 9 3 1 ;N .J, R e v. Stnt. Ar r n. ! b2:13D.\2 ( 1986) ; R,L ccr , li'w s r l
3 5 - 14 .1 (1 9 9 O).
The above-outlinedconsi(lcrationsnotWithstandin.J.nlly allettl{)t1j1(r
r e g u l a te l e g i sl a ti veco n l l i cts of inl0fest nr r sit be balanceclwitlr tlr d Ior:tl tr t
tr
attract qualifi€dlawmakers i]rid \/JitlrLlroneed tor llrose logirlalcrr:ito pcr'lr.rt
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the
th e y
or m . Ali
]llrto
, e cotr pl4xr tvof gover tlDlelllnir l its ir ) l{ jr vr inlrol
c o d es h a ve re cg g n i z€ dth

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1 5.55

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LTTIGATION

ro.

302"776329

the privates€ctol makesa certoinamountof overlapbetweena legislatof's
p€rsonalintetestsand tho govcrnment'sint€restsinevitablc, Sec, e.9.. MeR€ v, Stat. A nn, ti t. 1 5 1 0 1 1 { 1 9 8 9 } ; N€ v . Ra v , S t a l. A n n. 5
W i $. S t a t . A n n . I 1 9 . 4 5 ( 1 ) ( 1 9 9 6 ) . T h is o v c r l a pi s
2 8 1 .421.2(a)(1995);
apparentwhan the lcgislativebody consistsol parl-tirt)elawrrrakers,
especiElly
as explain€din the followingpassage;
In public lifc there is a growing need fo. qualificd
man and womcn, espccrallythoss v/ho ar(, IJectlliarly
qu6lifigdfor public sorvicebecau$eof their comrnercial
or plolessionalcxperrencc. fJtrtbecotrsetho Pay scalu
lor most el€cted officialson tlre state and local lovel is
inadoqualsto attract many full-tirneemployccs, tllcs(')
personsmay be (!nurillingto divcst themselvesot their
private busln€ssartclprofessionalinteresls in or(lor to
ent€r public li'fe. n slrict rulc prohibitingpersons from
holding public otticc while retoining lhese Drivale
inter€stg would be tlnacueptablesinco it would dct()r
those quslified Deople ftonr entBring public servicc.
Such dual allegiarrcesoD the part of putrlic olficials,
thsr€fot€. ar€ neotlv inevitabloon the stntc arrd local
levels of governrrrent,and rilisotlle problemof ltow to
oope with actual and frotcntialconflicts of xltorcst.
Any attsmpt to control conflicts ol intorcst n)ust
for lrnquestio.rableintegrity irl
belance tho
'lecd
govarnmgnl with tlre r'rcedlor comp€tcnt personr)01
l-hus, it is imperativotlrat 0 systsm be devised so tirit
competent peoplc can l)ccorne.-!ctive
in govefnnlcntal
jcotr
ar
(
lizi
a tta i rs w i th o u t
!l sooiety' s int€r 0st in
p ro h i b i ti n g th c inevitablc evils of r epr esenti 19two
masters; thal is tlro legislntor'sl)r,.rsonal
int{'jrgslli;rrd
h l s o o n sti l u € n ts 'intcr osts, lJr lcluestionablv.
it is in tl) c
pronrote
public intersst to
integnty and priblic
contid€nce in eovcrntIrent wilhout drscorrr.r$in!
p o to n ti a lp u b l i c s ( .' Ivanlsfr onr entcr ir r gpubliolitc
Note, ConfJicts o, lnterest o{ Stata and Lr.tcalLegislators, 55 lown L Jbv. zfLio,
, Gar r isor rW
4 5 0 5 1 (1 9 6 9 ) (cl ta ti o n €e t'rittccl)"; r r :a/soC Auer tr oclrL,
, ll r i r ;t
(.)l
(1961);
ttl
ltrtt:tcsl!;
fhe
5i!:i
Nolc,
Ct
///r'{:ts
Legal
lrDccs'
& 5. Mermin,
State Legislatoq, 76 Harv. 1..liev. 12O9 11963).

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regulatiorl
ot legislatrvc
considerationg,
tn additionto the above-outlinsd
that thos€sreasin whichs le0islalor
conllictsof intsrsstmust elsorecogniz€
mav havoa potsntialconflictof interestarealsolhoseareasaboutwhachthc
legislatormay have gr€at€rknowlodg€and in which the l€gislatorrnay bo
panicularlyqualiliedto lggislale,A legislator's
expcrienceand krrowlc(lge
ir)
wlth valuable
insighl
thosears8sof potsntialconflictmayptovidethe legislator
In that area . S e eW is . S t a t ., A n n ,5 19 . 4 5 { 1) ( 1 9 9 6 ) ;G r y
in to l aw mak i ng
loppet, State Conflictof lntercstLaws:A Panacealot Bettet 0ovcnttnnt?. 16
DBPeulL. Rev,453, 454 (1967).
Both rhe WyomingConstitutionar)dtlr6 trlrst rclati<-rnshlp
botwoof ir
r'l
lgglsl6tor€nd hls or hor governmentprohibll{ legislatorfronr prrrticipalir'rU
personal
privotc
ln whichhs or shghasan iolpernrissible
or
intorosl.
lggislation
The next sectionof this ooinionwill outlinethe standards,ussd to cr/lkiatc
asstatelegislatures
ondcourls lrdv(i
contliatsof inlorost,whichhavsdgvglopcd
balaocebetweentho ncedto nraintnin
attemptedto strikethe neoe6sary
lrrrlrlir:
co n fi d6nc ien the i ntogrl tyo f g o v B r f m c nat n d t h o n e e dt o a t t r n c rq u a li l o d
personsto ssrvo in the lsgislature,
B.

Conflictof Intor€3tDefined
A conflictot int€r€sthasboeo{renor.lly
detrnedas lollows:
wherrevera lcgislatoror
A confliot of interest...€xrsts
o th e r p u b l i c o ffi cial hos placcdlr im s€ll ir a position
where. for some advanta$egoincdof to bo gainedlor
hims€lt,he finds it difficttlt if rrotimpossibleto dcvote
himsell with complete€rter0y,loyally, and singlerrrrss
ot purpos€10 th€ generalpublicintcr€st.

Gerv Toooer, State Con ict ol lnletest Laws: A Panacealot lhucl
Goiernment?,16 OePaulL. Rev. at 453 (quoringMinncso(a(jovurrro.r;
t {1959}).
Co m mi ttee
on E thi c si n G ov e . n m c r rRc
t . p o r l7
T h o Wyo mi n g S e n 6 teand thc W yor ningl.louseof Rclr r osclr t.r
ves
t olI l l
g
over
ninll
l
l
mi
tsd
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l
e
s
h a v e ad o p te d
cor fllcis of intor cst,bu: tlr r ;W yo r ir l l
legislat!re has not statutorily dcfincd wllat constitote$ a inri)c l)rliirl)l(l
pe.sonalor privateintsr€stiD legislatiorr,
and the issuc hos nrJtlr{roDt'r1jr;uol'rl
t o t h e WV o n l h rgS u p r€ rn eC our t lor :0r iolLr tlorThc
l. above r lIscr il) r :(tlitli  
l
lrlr
public'
r
i
cunildcnc€ iu thc inl.oUr ir vr ) [ r ,l Lr l
b € t w e e n ma i n ta i n i n g th e
39

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govgrnment
porsonsto servein the lcgislrture
andlh€ ne€dto attrectqualitied
has, therslets, not yot beenformally struck in Wyoming.
The WyomingSonatsoperatesunderthe SenateCodeof Ethicsfound at
prosorir.,rton
SsnatoFule 2A- SanatsRule23-1{a}repeetsthe constitutional
againsta legislstorvotingon any billor mcasurein whichhe hasa personJlor
privat€interestand providesfor revicwof conllictsof intcrestby thc rulcs
committes,but it doesnot cla.rity
th€ delinition
of ''personslor privatciDterosr".
The rulesol the WyomingHousoof Rcpresentatives
likewisorcDoattlrij
proscription
constitutional
againsta lcgislatofvotingon any F,illor orefl!;urc
!)
which he has a personalor privateintcrcstand dlso providetor rcviiw 01
co n tli o t sof i nts res by
, ( s eRu lo s1 7 , 3 { a )(, c ) . T h c
l ths rul e sc o m n r it t e eHo
Hous6Rulessdditionsllyprovidethe iollowingd€finitionol pefsonalor p vnrr)
intefest;
o f ir ) c uar d ir c c tlin a n c ingl a n
the m6mbers halre
l c a iv e
or lossif the msosuraor hill is enacted. "Petsonalor
pri v atei nteres t"do a sn o t in o lu d e . rlir r a n c iagla ir ro r
loss which shallbg rgceivedqrrirrcurrgd
bv a mombcr
it the gainor lossshaltalsohc rcccivedoi incurrecl
try
a substEntial
classof persons.HouscBule'17-3{d).
boilrthc 5,:nateaid il,e llij.,"i .l
In additionto thes€spociticprov;5ions,
providgin theirrulos,17 1 and 'l8- I respectively,
Repres€ntativ€s
thattho f lcs
and proc€dur€soutlinedin Mason'sManualot LcgislativeProcedure(Mt,si/t':tt
procssdings
shallapplyto legislativo
whcrenot i oonsistentwith tlrc S(-.nnrc,
Houseand JointBulss. Mtsor's out[t)ors
ihc follov,iing
generalrr"rles
regrrdirr1]
conflictsol interest:
l . l t i s th o gener alr ule tlr at no Jnembcr s.a r
vo t€ o n a q u e sti o ni n which thcy havea dir eotpEr so ar l
o . p e cu n i a ry i n t0 r osl, flr e fi( lht oI r r ]Er ul) er sti)
rsp re s€ n tth e i r co nstituDnr :i0s,
howevcr , is of s ]cll
major importancethat mcnrborsshouldbe barredfir.rrrr
vating on mattors of dito(l por.oftl intercst only irl
cl e a r c€ se s e n d when tlle r natfer is par t cular lv
p e rso n a l .T h i s ru l e is obvr ouiilynot !,ell- enlJr eitllt
i rl
unless th€ volo is challcrged rretrlbersnlay vot(Jas
th e y ch o o se . A me m berr r ay vote r egar dinga t attcr
when other membefsaro ir'lC:lu(lr:(l
wilh that mcmltcI ir4( t

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the motion, even though that p€rsqn as a personalor
pecuniarvinterestin tho.esult. as where chargesaro
preletredagainsta group,or the membgrmay votg to
increasesalarigsof all the members.

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3, Membersmay not vole to give n)onoyor any
direct tinancialbenetitto thems€lves.Thev mav not
vote to award a conl/act to themselves.or rgnew a
note in thgir favor or vots a salarvto tlrenrselves
as
oflicers,
4. Whenth€ porsonalint6restof s mernberin a
qu€stionhas beencalledto the attentionol the body,
even after the vote was 1ak€n.thg vote has been
d i $al l ow €d.
The S enateand H ous € r u lo s d o n o t p r o v id ea n e s p e c is llyc le a f o l
cornprohensive
delinltionof whal constitutesa personalor privBteint€rost.A
provisionssimilarto Wyoming'sprovision
numberol stat€swith constitutional
definingpersonalandprivate
have,lrowever,eitherensctodstaluto.yprovisiqns
presented
question
have
inler€stsor
the
to thair courts for resolution.r A
rcvielv of ltis si6tutory provisionsand case law irom these stalss provides
personalor privateinlerest.
som€guidancein definingan imp6rmissible

Alabsaq:
A l dbamahas not enac t e da o o d eo f e t h ic so r s t a n d a r d o
s f c o n d uctto
n aol r p r iv a t ein t e r e s tb, u t t h e A la b a m aS u p re m e
e
d e fi n can i mpc rrni s s i blperso
Courthnsaddressed
the issue. In a 1985 decision,the AlabanlaSuprenleCourt
acldrcssedtlre issue whether legisl€torsemployedand paid by the public
educatiofrsystemot those whosespouseswere so employedlnd patd could
constitut ionallyvote on a bill grontinga pay raisofor publicoducattonsystem
S ry rAi l C o rrs t a t\ 4 ,5 8 2 ) C o/{) C orl sl .arr.5, l i 43; D el .C of:l l i r1
2, } 20j K y. C or't st I
TeX C onst" nrl .3. ! 22j W rh. C rrost.rir t 2
6/ ; l) lr C trs ( i 1 rl .5 ,i 2 1 ,P n .C o rs l ,art.3,t13;
! 3O I lr l ! r? l i   i r)frloyl s l n l c s , e v e n l h o sl l w i tl roul corl strtr(i onalpfovtsronl , h;vs !l so ofni t(d start lr t 4r y
( : r njr s ol u tl )n :r U f s ta n d n ' (l s o 1 c o n drnl l of l c$ S hl or$, w hi ch coC C gor(l stS IdA tds (i ctrne what
( x ) l s LiLq ted$,, i 1 1 t)rtn ri s s i b lnc l c ' c 5 t i n r0r$  l rl ]or W yomi l g i s a  e ol a rn,norl tyol stl j 10sw tl c I havo
r r ) r r nir : ll j rl s t0 t\rro ryc o d c o l o rl rc ! j oi stnndrftl riol condLrcrnf{ rl { :' i i l o ro 1c$! $tol i

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€mployees. Opittion ol the Justicos No. 31 7, 47 4 Sp.2rJ700 (Ala. 1985). The
Court held that suolrlegislatqrscouldconslitutionallyvote on the legislation,so
long ss thc bill does not offcct nnv such lcgislarorin a way differentfrom the
way it affects thc other
ot the cl€ssto which it belongs. ld. al7O3.
' )en)bers
In so holding,the nlab{ma Courr dectsredthat a personalor private int€rest
meansen l rcrost atfectinolhe legl.slator
individuallyor as a memberof a small
group, ld. irt 703 4. lhc intent ol thc constitutionalprovision.rne coun
6 x p la i n sd , i $ to F l re ve n tonly votes on bills which affect the legis ator
individuallyor as a Inembcrof a srnallclass,nor votes otr bills which affect the
l e g i sl a l ocq
r rra l l yw i tfr o tl l a fDr ctnberola
s l0fgcclass.ld. aI702, Tha Alabam a
Court explarrreci
that thc lrillnrayrxrt aiicct the legislatorin a wav ditfcrenrrrom
t h e wa y i t n ttccrj ;tl re o l h B rlncr nbcr sol ths classto wlticll he belongsand tl tat
it must bc dotcnriinedhow mony othgr porsonssimilarlysituotedwill realze a
simifarbsrrclitor suffer a sirnrl{rdetrin)ent.ld. at7O4.

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Coloradg
Color do hns no case law (letininqan irnpermissible
personalor private
i n t o r o st,b  l t i t l tH se r]a ctcd!itatLltorstandor
y
ds
of conduclwhich outlinefac tots
to coosrd(,ri dctorminingwlr Jthota legislator,spersonalor privale interegt
croatesarf [fff)cn])lssihlc
conllict, SeegancrallyColo.Rev.Stat. Ann. 5 24"1g(1 9 8 8 ). T l re fd c tor $to cohsiderincludetho impactol the inter es t
1 O 16 t s(,(;f,
upon ihe lcgisloi.,i'; inJop{'ritl rce of irjiJg-rent,the sif6ct,nt paitic;pationon
public confidc loc ir] th'l int{rglritVo{ tl)e gencral asser bly, enci whothor
participetiorlis likr:ly to irave any significant€llact On the disOositionot the
m a t t or. C o l o R o v.S ta r.A n r r , ! 24"18- tO7( 2) .An inr poftnissiblc
intsr estdoes
n o t a ri sel fo n r l cg i sl a ti o ( l l ootir lgthe entjr eDr embor ship
of a cless. Colo,R ev .
St a t , A n n . tt 2 4 -1 t) 1 ()/1 3 1.

Pe l a w a rr;:
Dol;lwitrclikewis._,
tr:rrino casela,rvdefiningan irnpermissible
int€16sl,but
;ui) ll df r t0r c$t ns one W lJiclttenCJs
i t h a s sti rtl ]trrri l y,i l cfi l l oj (1
to r m pa r ra
logislator'r;iD(iep6ndajnfi:ol jUdgnrel tin the perforrnanceof his or hBr
(i U tl o s,n n i n tp crr r ]isliil)iItcr
l o g i s l a ti vr:
lij ostclocsIlot in( :ludea f r ) arcial bcr l( - ,l l t
o r d e tl l n l cl )tu l tl q j i sl l l o h o n ol t or detr intoDiis gr eatertllan thnt whicn wuul o
aCcrUoto rjtlt()rl;wllo ; (-'r)tcntlX)rs
ol trrcsirrtrcclassor 0roup oI persons, L)el.
C o d e A r1 r.l i t. 2 9 , ! 1 OO2( 11) lll l

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.(er tuck.y:
Irr 1 9 6 0 , th e K cn tu cky CoLr r tof Appealsaddr essedthe issuc of \,1,1) 01
constit(ttcs an ifipernrassiblepersooalor private intgrsst in legislation,ai]d in
1994J, the Kcntucky Generirl Assonrbly €nocted th(r Kenlucky Cod{-'o{
L e U i sl a ti vc
E th i cs,w h i ch a ct ir tclr r des
a slr njlatdefinltionol a conllictof inlc r o$t.
lt\ Stovi l v. Gartrcll, 332 S.W.2d 256 (Ky. 1960), thc Ksnt{rcky (;ourl
a d d r o sscdth c cl u e sl i o nw h ethcr r nefir bor ol
s thc Konlucky Gcner aln ssc   nbl y
wllo worq voicrans could votc on lagisletionprovidinga Incthod lor lirlrlr)cin!t
a l ) o n u sl o rve te ro n s. T h e cour t dcfhr edthe ter m s "per sonal"and "pr ivate as
p a r l i oL rl a fl yre l ti rrg to a rr i rr dividualas oppos€d to thar which is pulr l i c or
gcnoral,aod coocludedtlle legislatorsat issuc had no inrfjernrissible
iotcrcst in
th€ lagislatiorr. /d at ?00. Tlte court hold thal tho constitutionalDrohrbitior'l
s h o u l db ()co n stru o da s " ro srr ictingthe r ightto vote onlVto thosc r nentl) ofsw ho
h Vc o pccllinr spocialinteresl rlrlegrslalionwlrich will alicct thgm in a rranncr
c pr opcr cl!tssifiaatioo
d i f I e r (.1 1 tlfro
y n ] th c p L rl Jl ior
ol m er Ttbcfsof tlr c pUl J l i c ."
h t . a t 2 A O. l l re co u rt cxo l er incc,
its ( lecisionas follows:
In th c se nse tlr at voter ans voling on this []ill
0)iglrt evontrJallyrcillize l pecuniary bBnefit (or a
detrirncnt)a $rca1massof legislationi.tvolvcsllre sanre
a sp j {, o n d tl re quiilifr cations
oI tlr € legislator sto votc
questio tcd. For cxarltplc, all
tllsroon hlrs ncver l-rer:tt
i d x i cg i sl a ti o nrr uJi r r cOr ) ssar iiy
aIfeur iir r :; tcr esi ( r i
'
lhis
Oa ch6 n d cve ry legislator
would be I) ar ticular lV
truc with respecl lo cxenrptiorrs whGn particuli r
l cg i sl a to rsrr)i g lr tby r eason ot thcir tax posr tion hc
su l )sta rrti a l lbycnefitted,Tlr esantcis lntc wltll r csr pr r ot
to illliuraocclcltislation As tc those  nenlberswho ars
l a u l 'ye rs.
l l l e sa nr cwould bo tr ue concc ll lg legislatior l
i o vo l vi rrgtl rc p racticeot law, lJnderslmost any oct of
tlr., lcgislatu.c,c.rch r cnrberof the GencrolAssr,rrnbly
w o u l (i sta rrrito bunotilDr sr lflcra dslr im cnt dopcnr lr r il
ri p o n !vh e tl rcfo r not lr o tdl within tlr e class ol tho!i( ,'
pcrsons nffrrcted. Tho wltr:cls of govcrrrnont v\,oltlJ
sto D i f e (l i sl a tor $coLr ldni) t votc on r ntltcr s in wir icll
th cy re o rrG6 n rily
llr ve a r er ' fotc per sonnlintcr osl l) V
 l ]i r1 ,o on t b o i n g 0 InolDborof llle pr r blic.

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LITIC A TTON

tD ,36?7778329

s
tr
K crtu cky's sta tu to ry d{ :finitionof a conflict ol inter csl ittt:lLtd s ntor
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d e t ai (j o rce rn i n gd o l l a r a r nountsof pecul) iar ybencfils, bul it ddller osto
siffro cxccl]tion outlincd ir) Slovall. Tl\e statutory delinition providcs tllat "il
teoislat(Jrrray participotc in ;Ira matter of any bonefit or detri.rent wllich
accrues lo the Inember of the GeneralAssambly, as n member of a br,$ines:i,
p t o f cssi o rt,o c{:u p a ti o n ,o r other gr oup,*"is ol no gr eator extel) t tlr an thi l
geller allyto oth€r Incm ber sof tllc tlr ls r r l es :;,
n t w h i ri l raccr Lr es
l l c  r e fi t o r d ctrrrr're
Ky. Rcv. Slat, Ann. I 6.701( 1) ( 19961.
J r r o l csr;i o n ,o ccL rfra to n ,or othefgr oup."

C)klnlr_()firir:
pcr snr r nlor p r i v i tr r
Okl a l l o mah a s n o ca se law dcliningan im pcr nr issible
pr
ovidss
that a legislatormay vote on lcaislatr oni i
i   t c f0 i t, b L tti ts cth i cs co d c
t ill
t l r L )( ,fl y l )ccu n i d ryi rttcre stor other r sasollablylor esee;ll) lcbr :ncIitr ,vl ti c lw
(o
r
i s)
fam
ily
tr
tentbor
s
End
a:;so(
;
i
ates
busi lcss
1 o l l )c l cA i $ l a to r cer tain
a { . j 0 frJc
not si(,lilicantly (rreatcrlhan that rvltiohwill accrue [o arllothcr n]erirbefsot tlrr-'
p r o l r r$ r;i rxr,
o ccu p a ti o rt(tr lar ge class. Okla. Stot. Attr l. tit. 2l) /, q 20'1
7 ( t r ) (1 9 9 h i .

I'cn r[;yLvarrii.gr
ia!v iiits4ltqli,rViis cQrl.ii;tir(;{r  diptDlriita;iirr'
lr,!s
aatSi.)
Pu'r rsylv<nri(i
'ru
i l l l t ) in sia l g g i sl a to rvo ti n g upor )legislationin which lr e ot she has a prl r s or r i l r l
i r t t c rcst,b u l i t h a s cn a cte( l il cods ol etltics. P€nnsylvania' $codc ol c tl r i ( i j i
l ) r o vi (i c.i th a t n o l e g i sl a tof sllall par ticipalo in o tr an$action involvi r l !ttl l o
C o r rrrrro
n w e a l th i t h c o r she ll0s a substantialper sonal coonotlr icirr l c r c s l
( l i f f cre n tfro rn tl ta t o f a q e nefalclassor goncr algr oupof poft;or ts.l' .r . Stat. Ann.
r r l . 4 6 , ! 1 43 ,5 (c){1 9 6 9 }.
lii x rili;
lrlxils ltos rro caso la w irlt e rp re lirlg it s c o n s t it u t io l] a p f o v is o ll, l) 0 1 l l ] l l
t( ,xt of its corrsritutiorralpro v is io t t is t o llo we d b y a n irlt c t p r(jl v { ) c o n rrt l c r l l i t f V
whir-:lr rovirlcs iis tollows:
A lo g rJX is tn g  1 rloo f le g is la t iv c b o ijic s iri t llirt
Itl l]l)ct:t tlltrrc n l it lt a ll f o t v o t o o n f ila t t r! )rii, ' 1 wlr c lr
1l1Dyllitv ) n t){] rs o f a l O r f )riv a t c jo t e ro S t . I lris rju I lo (jt
{ilr
is rcgulitod by tlrc tlousc of Conrmcns by ir r!l{r \,n?h

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IO,3@777?8329

forbids a rne[rbcr 10 vote on a matter jn wtriclr hc has
a ditect pecunialy tntelest, itnmediate and personal,
and not nerely of a gcncrcl or rentote desciption.
T € x. C o n st. a tt,3, \ 22,

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llr is deltnili oDw r tl r
ol condLr ctsupplelnents
T l l e l e xa ssta tu to ryst( r ndar ds
n a t " a n i n dividualdoqsnot havea ' Defsonalot pr ivalc inl c r es t'
t l l c qu i rl i ti ca ti o th
i r r a ry\ca su rep, ro p o sa l ,o r decr slonil the individualis engagedin a pr ole s s r on,
t t a ( l c . r)r o co u p a ti o na n d the individual' sinter est is the sanr e a5 !ll otl r or s
s i t i li trl ye n g e g e di n l l re p rofession,tr ade, or occul) otior .' ' lcx. ( ;ov' t C o( l c
A r t r r. ! 5 7 2 .0 5 8 (f)(19 9 4 ).

Summary af Slandardlpqliningetqonllie t of lrrtqrest
A list of factors characterislic<-rla l impernrrssihlepersorralor privat{,,
i l o r i )st ca n b o d ra w n from thc aliovc' ,r iiedstallr tcs snd cosc la\r '. 0r i c
( ; o n trrr()n
. lris
Ia cto r w h i ch cn rer gesis th( ) "cla$sor gr oup inter est"( r x( ]cptio l rT
( ) r ( - 'o l )l i o np ro V i d e s fh a t all inter esl ls not i itpor missil- r le
it llr r : bor 1 0ti lor
( l { l l r i rl ro rlto th g l € g i sl a to ris tlr c iinr r e as thc benetitor detr i r ]ontlo r fr -,hr l ) efs
o l a l .rrg l r-'osu
r b sta rti a l gr oup or class ui l) or sonssimilar lysr tLrlir ( l - ll r r :
r i : x o o l )l i oiris fo u n d i n tl rc Irajor ity of statutor ycodcs oi ethicJian( rstan( J ^r .,s
ol
c o n du cl d n d h a s b e e n a ooosislentlycitcd cxceptior )ir r oase law. Ahothor
llrt(,r

t.i,.;onsidef iS vvi'otir,:, tire jnii:,re5t i5 Clir,:,Ltdr r'-li,ir','i,rjraie, du r!,turuja

n

wlricll is speculativaand r(jrnotevr'illrlot constituto ar,rimrrenrissil)lcinl{,jrest
I n J r tl y. { tl l a y b e n e ccsg aayto cofr sidcrthe appOor anccCr t,nlpr opr oty. l hr :i
o1) tfhe star ndnr ds
f   r a l( 'ro r]e i d e ra ti iosni n cl .,pond- or
defi,]ir ' riln
( J itotLr ill
o.) Dfl i otoi
s r fidor r c ri n
l r l o r el i l a n d ste ms fro  l r thc nco,dlo maintir inthc pul..r lic'cor
: tl r c
i n l { } !ri l y o l i ts l a w ma kcr!i . lt i5 possibletltir l thc appealr nn.c
of intl) r cr l) r i c ctyi l l
L r r r cl o rrn ith
rree p u b l i c'sr:o nfkl0noein tlr e lawr nakingpr ocossjl]:;i;.r sr :llr r r - 'r i v r ,l y
. r s n n i r(j tU aal mp fo P ri .-.l V.

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E nforc ement

1:;t;rtes
use diff(ircnt nt c a n l; o f c io rc in (Jt ire ir { )o n : ilrllrlt o  lit a
l  lt d! jl, r t ( t ( , r y
co llif,lj; o{ interest prcrvisorrs . T lrf lricn: ro a rrsin c lL rc li:
t lri: in rp o r; ilio o l c i v i l , ) r
r ;r i r ffrrl pcnalties agirrls', thc v io la t irt S lo ! lrs la t o . , o r: f l: ; !  c o r r, rirrirn n I ll ( ' l t l r , )
 ( ) ( Ji.IrrIr) ,disqualilicalio r of t h c le r)l: la t o r' s v o t t ' ) ir)(i/ o r iI v irllrlirt io rr r i l t l r i r
( J( ,v{ iflr a:rltaction tak{rn, ljo lrlo S t a t e s illlo w a le g irila t o rl. j v t ! : ()n  lr, rl l c i i ;     r
vJl i i ( jlrlro Of she has;r prrrs o rr; rla r l)rrv ijt e in lo f c s t b u l r0 a lit irct liill I lt o rr r t a r f o g l

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bc disclosod,wirh a civil or crinlinolpenalty l)lposod for tailure to disclos{,tlrc
intnre:it. Ih() rationale for this lype of enlorcement is that thc voters sherJlrl
participatedin lcgislalivc a(:lion.
decide wherr a logi.slatorhas inapDropriately
Most of thesc enforccment mcasures require enactmcnt of lcgislalio 
s p e c i fi ca l l yp ro vi C i n gfo f th e nr easur e. BecauseW yor ning has not enar l ted
legislaticrrr
ortlitrirr0thc neans for enforcingArticle 3, I 46, rrreasursssuch as
c r i r n i nn l o r ci vi l p e n o l ti e s . cer sJr e or r epr imand ar c not avai ablc l of
e f i l o r ce n r€ n to f l l re p ro vi si on Additionally,bccauseW yor r r ittg' sconilr c tsol
irrtercst t)rollit,itionis constitu(ional,thc rule reqriiringa lcgislator lo di!;closo
J r o votc on Lllqnr atterir w l r c l r
; r r y i   l te T o i ti rr a n ta tte r b u t thcl] per nr itlinrhim
h e h o s a o i rrp cn l l i ssi b l co r l ) r ivntcInter cslis not a.r option. Ar ticlc 3, 4 46 ot
CoDstitutior'rclearly and unambiguouslyrequirosa leltisldlot to
tl)c Vy'yonrinE 
p
crso
n a lo r p ri vateinlcr estandclear lyand Lfi) am biguoLr pr
d i s c l ost:i rrry
slyolr br Ls
hirn lrom votitrg o.r tltc mattsr. Tlreonly means,lhen, lor cnlorcing c.ornplirDco
w t l r A rl i cl c ::1 ,I 4 6 , cu rre ntly,is thr oughjudicialcnfor centL.nt' ' tlr ol
is by tl l tt
filing of i n nction in oourt to detcftnincthe proprietyof thc lcoislator'sv(,lo ori
l e g i s l ati o ni rn d i l re va l i d i ryo l tlr e le!islation.
Ju d i ci a lro vi cw o t l cg i slativeaction on the Dasisof a l0gislitor ' s ( :o r ) fl i c 1
o l i [ t crcst i s u o t a re vi a w ol tl]c substano€of thc star t{ r tebut ie [r iitc ad a
t o v i t : w o l 1 l r()p ro ccd u rso t pr ocsssl,nder lyingits e ar :tn) ent, Ihis r ar so stl r c
q u e s t io no l w h a t e ff€ ct a j u dicialdeter nr jiatiorthot
)
a egislatorinapf) r opr i a
tel V
(
n
r d $ ur eur l) illwill have upon tllc nleasur ( j bill- ' wirrti: r er
v o t e ( io ) a p q l ti ()u l a  re
tl)c v()re will be disallowedand the legislatiortuphcld if othcrwise s(,pporle(jl)V
( ! r o ( g lr vo l e s. o r w l re tl rcrth€ lcgislatr onwill be ( loclar odInvalid.
N u n l cro u sci j se s h i rvc bcctt dccidedcoDcer oingtlle q ]car tion
olr :or ] fl i ots
o l i n l c ro l i l i rr !l o vo rn me n ta ltr ansaclion!iir ) volvingtlle awair r lol govir lll   I) on1
(.:()htrilcls.Cd.i{}silrvolvinga lawmakcr's vote on lcqililaton in r,^rlriolt
lrc i..rr
slrc
o r a y l r i l vo i ) p e rso n n lo r p ri vnlc intefosrar e  ltuch lewe. in r r ur r r l) erTyl.r
.
tc al l y ,
 l) thc awar ( lingof a cor llr not lt wllr c i r/r c
i l n U ovo r!)n 1 cD
o lfl rc;o lp a rti,japates
r r r r i l r irl r;rrii rl rfn te r(rri ll.l re c0r ' r tr aijt
is voi.i See Coyr ., v. Statc r :x r ( l Tltr .r nas ,
lrl)5 fr.2d S)/t) iWyr,r 1'J79)i W.ttsonv. City of New s^rttluta9r-,o!:lt,
Bb ljo.2rl
li4li (tlir. 1!)l].6);hggott v. Ht)/otlgltol llcpewell, 91 A.2(l ()67 (N..1.1352)
l - ; u r l r c0 !;0 rr(l i ttcr so n rr')\./r ' llat
ltor - noases ir lvolvinUl{ r !Jir jlttvr j l:o flr :k i {) i
r l r ) f { !1 :r,
h o w {.,vrl t,rn tl l a tt,;r t tllc sl;r tajlcqtslaliyclcvcl, tlt( j oc:i for i :tl  .i r v r :
c l r r ) ( : k!;
o n rr)l l fl i o tso l i r)l {:r€stlr asir cer tpotccivedas lo!i:;ut( ionttllill tlr { rI r i 0{j
I o r l l r o sc r:l ro cksn 1tl )o !n n i( lipatl
!tovalllr r ' tcnt
lcvcl or ttr tr ar r .inclit)s ir \vol v i nq
I r ; w r r r!rtrvr:ri rrto rtt
o ffi r:i ;rl s-The view is lir at tlte ' necd tr i aciltr ir ca r h;r jor i l yr l r
p ro d rLucs
t l r { )l l l ql l i l a rti v(r
nnLlcot} tDr oli:ji- [iir lla) r ) ljr ]( , rl l l l 1J
cor r ( j( ,,J5r ons
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i n t c f { ) !j l sto su cl } a n cxte t tl lat atii highly i npr obablethat any sir ' r 0le
inlc r c s t
will {cquirc ov(,}ryl.hing
it dcsircs, especiallyin a body as largc as most bi'
state
lcgirilators;."
Note, Cooflicts ol lntercst of Stale an.J l.ocal
canroraf
L e g i s l a to fi ,5 5 l o w a 1 ,,fi cv. at 459. Nonetheless,it has been lr eldthat a v otc
o l co n fl i cts of intcr cst pr ohibitions,cven il imr ]) €ter ialto thc
c a s t i n vi {)l a ti o  1
outcofne, void!i tlfe rr)easureupon whiclr lhc vote was leken. Wilsot, v. lovla
1969) .
C n y . 1 6 tt N .W.2 d tl '1 3 , 8 1 9 ( l<.r wa
Ihis opirrioncites two state co{tt decisiortsaddrassingstate legrslators'
vote$ on nratlcrs in which they allegedlyhad personal or privatc ilrtcrcFtn
O l t u t i o trso l l l ,e Jtl sti a e s N o . 3/7, 4' /4 So.2d 7O0 ( Ala. 1985) ; Stoval l v
G a t x c l l, i l :1 2 S .W 2 d 2 5 6 (K y. 1960) . Neithordocisionfour r d tlr ir t a le.Jis l i r tor
or lcgislators had inapDropriatelyvotcd t]pon certain lsgislation, and neilhcr
d s o i s i onl l l o r{rfo rea d d re sssdtho clfeot ot a votc cast in violationof a conlli c ts
e t i r ' r t cre :ipt ro vi si o n . l n S to v 6ll, l) owcvor ,the lor vet cour t ltad dcclir r cdl l l c
leUrslaiiorlinvalid after linding certairrldgislatorshad voted on tlre le{jislnuonirl
w l l i c h t he y l ra d a p crso n a lo r pr ivateinicr cst. Beoausethe Ker ) lr r ckySlr Drc r nc
( j o u r t r cvcrsccltl re l o w e t co ur t' s ind{ r f, th0t tho leqislator sllar tlir nl) r op c r l y
v o l o d o n l l l c l cg i sl a ti o n i,L i l i rd r ) oFqcd to adclr essthe pr oPr ietvof invaldutt  r ( l
rl)e lelrislalion. Ihc lower coLtrl's(lccisionappears, lrowcvcr, to bc at lo.rsl
( iur ci r l
s o f n $ a u tl ro ri tyfo f tl re l )ro p o siton tlr at ( lto votc ot a lellislaloron ir r ' r )Jr
q
r
sl re r;l ca rl y l l a $,:r l) er sofr alot pr ivate inter est fir ar yvoid tl to
w l r i c l r h r:
l(,Uislation.Sec i,/so Notc. Culflicts ol lntcrcst of State atd Locill Lcgislatots,
wir h oir ationsto pr im ar ilymunr cipalactior s ,
5 5 i o w r I . ti o v. a l 4 5 3 (d e ctar ing,
"mosl
corrrl$tlot only disqualifyon intorostedlegi5l{itorlrofil l)anlcinniirrg
tlrnlr
t J u t l ) o l d l l ra t l cq i sl a l i v€a rcti ontilinted Ly t) ar ti{ ) ipntion
of a r r r er r berltavin Ua
c o r f l i c ti r-i lrrtu rcl sti s i n va l i d .") .
lv volc, cvcn if i nnlill {i ndl
C o.rrl sw l ti cl r h V c h e l d tl) ir t ar ir ' nDr oDcrcast
upo l
vote was taksl  l]tvatbirsr:(l
1ll.:
olrla:<)D1 .]
voi(ls
lncaa;rrre
which
tlrc
to
thc
,
( h c i r d { x;i rj i o rrg
o n tl to n e cd l o  lr iiintainthe pr r ttlic' scor r tidenccir ] thc inlc$ fl l y
i
r
s
I
n\r'./rt);)kcr1
Code oi Etllr o$i"W llc r c
ol
n s;. e xp re ssccli r lllc PentisVlvonia
0 o v ( J r  ] rl e  li st l )i sr]d o n tl l o c ofr gc,ttof lhc govcr ned,ever y c;ititr r r tili ( )  1i l l c d
l o l l ; ) v c co rp l o t .}co n ti d cn cc in th{ , ir te!,r ity of lr is govcr nnr onlll" Pa. St,r t.
A r ) D 1 i 1.4 6 , ! 1 4 i j .2 , l l o ci r$c it oilt lle the tr cr c oppcer sno(ol
l i r l) .ol)    r ) 1,/
n ri n i j stl r0 p u b i c'ri conf dencein the iawnlakng pr oc{ r sti,n cof l l Lr j l
w l l i c l r u r'rcj cf
of acfuai disllotle...roI
o l i n l { ) r c.r;t
ci l r l j r: l o (rn dcvr}nin tlr e al) r jcr r cc
ly or l) lr rc i r l
r i l o t!r..rl
l r i a l { - . cl i .i l i i toor,
l ri rfr)rto llr e pubhcintefOs\. l- uclts,334 N   .2( l ir l l2l ;
Lrr ponwlr lr t:lr
tn ir r t) r ( r Ir jrv.,lo !v ,r ;
l h t t / L : t ,' )t\!l n 2 (l n 1 5 6 3 . V o i rlir r glc51i:ilitior
( - ' i *i lr ( j oo (i o i /(:s
l h L rl l a fi )ro f l r l .tpIcatitr r ccof itltpfol) r ioty.:ir r clr ;r r r ) :iuJL
t  1;r y
l h c l JU b l i c'ri.:onti( iencrir} i tlr o intcar ity of tlr e ltovcllr r r l(:nl al
l ) o t t o r r {-.:i ro rri

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t s al l owin a
p ro (:c s $l l Lrr j Lrs di
g n in lp r o p e r ly
c a s t v o t c , wh ic lris n e c e s s n r i lay
participationin n vofc.
loss oltoctiv(rtool for discouraging
inapprofjriate
to lcai.ilationeDncted
Afr arrnlogyrnay also be drawn betws€lt o challe lsJe
w i t l r L rrd crl yi n uvi o l a ti o rrso f Ar ticle 3, I 46 and a challcngeto ar dr nini s tr ol i v r )
r u l e s p ro n rl g n te d w i th o u t c omplyin0witlt for mal r ule.tnakingr cq( iir ernents .
' l h € s u h sti l  r(,e
o l th e ru l o s,like that ol the legi' ^lation,
is not bt:ir r qohallengc d,
o   l l y [l rc l )ro ccsricn rp l o yed t{ ) pr ' om ul!]atetlr c r ulcs is chollcr gcd. nul es
protliulgi]tcdwitllout complyingwif h statulory rlrlc'rrakir]grcqrtircr'!rcrtl
s wallnot
l r r v o tl l u fo l l -:.,a n clcffe ct o l law, ond lhis is tr uo ovcn if tlr e sat lc r ulaEwoU l d
Iravr.rlxrr:rrDror\rol!rd(ed
lrn.l thc,equired l)rocc-sstJeertfolloWoal. WyoDttrtll
('oitliti..)nv WyorningGame & FishComm'n,875 P,?.<l7?9,733 {Wycr.1994).
T l r e r oq u i ro dp ro ce ss fo r p r onr ulgalingadm nistr ativc r ules eosr r r esalfDc t0( l
l)artics a t lrpportrrnityto l)g hsard and guards against arbitrary and caprtcreus
r 'rtho
g
' 1.
i l g o r ' rrya n l i o , T l re re q u i rcdpr oqessfor enaotir lgstate legtslntior inclLldi
recus l I r')qr
rifcme!rtsof Articlc 3. I 46, ensurcs that legislativedscrsror)snrc
r n a d oo n l l rc n rsri t$o t i ssu {:s,and it nlflintainsthe puhlic s coffidcncc i n 1ho
i l   l c g r i ty o l l l rc q o ve rn ro ent. Eaclr pr ocsss scr vcs i.r vital pur posc , a11.j
l o 0 r s l a l i o Io n n ctg di n vro l a i io 1of tlle l) locoss,like a r ele lJr r ) n  r l0ntod
witl r .) Lr l
m ay not w tllsl nd Jl r dc i nl
r o r   r l ) l yIr( w i th fo rrn a l n rl c  ir nkingr eqLr ir emer lts,
l ; ( : r u t ,rry.
lri ri l rrl  n a ry.w l )i l c th c law doc.sr 01 cxplicitlyfir ar ldatellr i!i r csl lt.n v oti )
( ; i t s t ui o i   i yi n vi o l a ti o rro i VVyom ings conir ict of Inr or esl pr olr itJitr or(r-,'v c   il l
  r U 1 1a to ri1aol l l ro p a ssa g oo f thc legislr tion,r ni]y void tlr e logislalior r .

OUESTIONll

Doe$ a Wyonlir)0lcgislatorwllo holdn ;r lonsr:on :rtate l.{rsl
l a tl d s l )a vo an ifilpcr  r ) issiblc
ller sofr itloa Dl vir t{ ltnlcr c r i l i n
l (,g i sl a tron
ltcczing the base r dlttallco on lllal leaseT

l i o cti o f O a f H o u sn Lnr ollcd n l- ;t No, 127, c r { ) t{ .:(d!r
l in!l llr } l1) !}/
('ir:rrcr lfjclj'.;iorr
ls
lollowsl
l)rr)vidcs
N o tw i tl rst^D.lir r gW YO. Sln l. 36 5 1O1, tlr 0
l)iri.! ronlal fc\t fot \tau\g or agricultural i:irso slrirll
f.j rr)a i ntl te $ n rn.:ir s that sct by the I' oir r ( l ol Intr al
(i o     tl i r)r;i o tl eby
rs r ulc.nul .cgulationfor 11) !]tj. Ill( ,.
l tll{ .jl) oir r dL tttl
l )i l :;of(j n ti rlto o !;lr tlllllot lr r :r lr ar r lyerbV
l
{:rl
i
sl
i
tu
rc
a
lor
nt{
r
la
to
tl r(!
d evoIr ,r :;
deter nin' i llr ij { ,r ir

,t8

 UA R . T 3 - O O

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3 0 7 7 'r i '6 3 2 9

markelvalueas providedby this act, or July 1, 1998,
whichev6r is garli€r.
The questionprgsent€dconcerning
this provision,is whetherArticle3, 5
46 of rho Wyoming Constilution prohlbits legislalors holding grazing or other
ggaioultursl
leasestrom voling on this measufs. That is, do such legislators
porsonelor prlvateinterestin th€ legjslation?
hgv6an impermissible
personalor privateinterest
Applyingths definitionof an impermissible
question
developedabove,the answsrto this
is probablyno,.legislators
holding
personalor privateint€restin the
such leasesdo not have an impermisslble
legislalion. Legislators
holdingsuch leasesare msmbersof a definedgroup.
grezingor agricultutalloasgholdors,
andthey incurno groatorbenotitand sulfot
no greaterdelrimentthan other membar$of th€ group. Thesefacls are similar
to tho {acts pr€sentedin the oarlior-cltsdd€cisionsof the K€ ucky and
Alsbamacourts, and in particularthe Alabamadecision. In that case, the
AlabamaSuprem€Coun heldlhet lsgislatorswho were membersot the public
educationsystomcouldvotg on a m€agure
10 incfeasethe s€larissof members
ol the publicsducstionsyatem. The l€gislatorsin questionclearlyincurreda
benefitlrom the legislation,
but theirint€restswere not impermissible
because
thg inter€stswere no differentthan those of other mombersol the Dublic
€ducation6yst6m",thglargerclass.
The coriclusiontl'at lggislatotsiroldirtgiuassso,r statetrust ldrds did
'rot
interestin HouseEnrolledAct
have,bV virtueol their leases,an impefmissible
N o . 1 2 7 ans w ersthe Inqu lr y . A n a d d it io n acl o n s id e r a t iois
n wh e t h Bfth e
psrticipationol lggislstorsin such a vote may crsats an sppaarancsol
imp.optigty, As discu$ed earliorin this opinion,a tt(rs1relationshipexists
and a lggislatorowes a duty ot
betwoena legislatorsnd hls or her government,
undividedloyalty to that govornment. The dutias inrposedby the trust
rolationshipare not owed lo a particulsrindust,yor iDterest.and statements
that the intcrostsboingservedby a legislator'sparticipationin lagislationare
not parsonalbut arethoseof a particularindustrymay createan appearance
of
impropriety,Tlreappearanoo
th€
of impfopfiotymay in turn sorvgto undermine
public'sconfidencein the integrityof the governme t. In situationswlrere
substBntial
controv€rsygrowsout of the proposedactionol a legislator.
andth€
publicperceptionis that a conllict of interestexists,thc legislatorshouldbe
cognizantof creatingthe appoaranoe
of impropriety.and weighthat as a tactor
whgn decidingwh€thsrro vote, or to dgclares conJlictandabstaiDfrom vottng,
Thi sc a v e a tiS ,o f c o u t $ et,lo t lt f it it e ct oi le g is la t o rs
Ona p a rti C ul arl eS S U re.
wi th
i n te r es tsi n agri c ul ture.46 t h e A la b a m ac a s eillu s t r a t e st h
, is c a u t io na p p l i e s

49

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LITIoAIION

just es it wouldapplyto
oquallyto legislators
Involvedin publicaduoation,
who, by virtu€of his or har occupation
or
realtors,bankersor any legislator,
circumstances,
is plac€din a similatsituation.
oersonal
OUESTIONlll:

Does a Wyoming lsgislatorwho works for the wvoming
personalor
publiceducEtionsystemhave en impetmissiblo
privats interest in legislationaffecting the lunding ol lhe
DUbliceducationsvstsm?

Theanal y s i and
s di s c u s s ioonf Q u e s lio n sa n dll a p p lye q u a llyh e r e .T h i s
spocilicquostionis closelyrelatsdto the questionaddrsssedby the Alabanls
SupremeCourtin Opinionol theJutticesNo. 3l7,474 So,2d700 (Ala.1985).
employedby
In that opinion,lhe AlabamaSupremsCourtheld that legislators
porsonql
public
not
havean impsn]lissible
or private
sducationsystemdid
the
interest in legislaliongranting I pay raise for public education systsm
employees.In so holding,the AlabamaSupremeCourtrelieduponlhe rulethat
if the benefitor detrimentto the legislatotis the
an interostis not impormissible
samess the bsnsfitor detrlmentto membersol a largeor substanlislgroupor
classol Dersonssimilarlysituat€d.
iinpactsthe entirestato
Th€recontWyoming€ducationreiormlegislation
impactmay vary lrom districtto
system. Althoughthe legislation's
sducataon
i;ksiy
itnpact,
a silrgielegislatorirr a way wiricit
distriot,the legislalionwill not
diflers from th6 legislation'simpact on a substantialgroup ot similarlysituated
publiceducalionsystememployees.A Wyominglegislatorwho works fot ths
publaceducationsystomprobablydoesnot, therefore,have an impejmissible
personalor privateint€restin the l€gislationwhich would pJohibithim trom
participatinglD l€gisl€tionalteotingthe publiceducationsysteor.

coNcLUslQN
ow oso du t yo f u n d iv id elo
d y a lt ylo h i5o r h e rg o v e r n m c natn d
A l egi s l ator
e a n y m a t t e rin wh ic hh c o r s lr eh a sa c o n fl i cto l
m a y not th6refor€p€rti c i pa tin
i o te r es l . W hi l € i he c h6ra c t e r is t icosf a n im p e r n r is s il)plee r s o n ao r p ri va to
i n te r es toul l i nedi n thi s op in io np r o v id og u id e lin e fso r d e lin in ga c o n f l i cto f
i n te r es t,c ontl i c tsof i ntere s ta r e t y p ic a llys u b t le ,s n d n o o n c d e lin it ionw i l l
d t e r e sts
a lw a y sans w erl he ques ti onw h e t h e rEc o n f lic et x is t s .T h cq u e s t r o n ein
g
n
r
o
ll€
d
o f ce rtai nW y oml ngl egi s l a t o r Isn Ho u s o
A c t No . 1 2 7 a n d in l h e
g
u
id c lin e p
s r o v id e db y th i s
t
llis
.
T
h
e
e d u c ati onrel orml egi B l ati oillu
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opinion clearly suggost that thoso legislators'interestsin these piecesof
legislationa16 not impermissible. Howover, all legislators,regardlessof
occupstion or personal circumstsnces,who find thenrselvesin 6 similar
situation,must be aware that tho app€atanceof impropriety,enhancadby
controversysuroundingthe legislstors'participation,shouldbe weighedand
balancedagainsttheir participation"

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51