76 Op. Att'y Gen. 15 | Wis. Att'y Gen. | 1987
TIM DUKET, District Attorney Marinette County
You have asked whether a member of a school board violates section
Any public officer or public employe who does any of the following is guilty of a Class E felony:
(a) In his private capacity, negotiates or bids for or enters into a contract in which he has a private pecuniary interest, direct or indirect, if at the same time he is authorized or required by law to participate in his capacity as such officer or employe in the making of that contract or to perform in regard to that contract some official function requiring the exercise of discretion on his part; or
(b) In his capacity as such officer or employe, participates in the making of a contract in which he has a private pecuniary interest, direct or indirect, or performs in regard to that contract some function requiring the exercise of discretion on his part.
In past opinions my predecessors have concluded that members of a city council and a school board did not violate section
You ask whether the marital property law that went into effect on January 1, 1986, changes the conclusions reached in those opinions. I believe that the applicability of section
The school board member can avoid violating paragraph (b) by not participating in his or her official capacity in the making of the contract and not performing in regard to the contract any function requiring the exercise of discretion on his or her part.See 75 Op. Att'y Gen. 172 (1986); 63 Op. Att'y Gen. at 45; 60 Op. Att'y Gen. 98, 100 (1971).
Paragraph (a) of
(1) a direct or indirect private pecuniary interest in a public contract; (2) negotiating, bidding or entering into the contract in a private capacity; and (3) being authorized or required to participate in the making of a contract or to perform some act with regard to the contract in an official capacity.
The third element is present when the school board hires the member's spouse as a teacher. The marital property law does not affect the fact that the school board member is authorized to participate in making the contract of employment with a teaching spouse. Therefore, to avoid violation of paragraph (a), the board member must avoid one of the other two elements.
Even before the marital property law, my predecessors concluded that the first element was present when the governing body employed a spouse of one of its members. A prior opinion dealing with the school board recognized that the board member benefited from at least an indirect pecuniary interest when the spouse was employed as a teacher. 52 Op. Att'y Gen. at 369. It was pointed out that even though the earnings of the teaching wife were her separate property, the school board member husband received at least indirect financial benefit from his wife's separate income because his *17 obligation to support her was made easier by her earnings and consequent contribution to the household expenses, and by her payments for her own expenses that would otherwise have to have been paid by the husband. 52 Op. Att'y Gen. at 369.
Under the marital property law, the board member spouse has a direct, rather than an indirect, pecuniary interest in the teaching contract because each spouse has an undivided fifty percent interest in marital property, which includes income. See
sec.
The answer, then, to whether the board member violates paragraph (a) when his or her spouse is hired as a teacher turns on the second element, which is whether the board member in his or her private capacity "negotiates or bids for or enters into" the contract. Even if the board member does not personally participate in negotiating, bidding for or entering into the contract, there might be a violation of the law if the teaching spouse acts as an agent for the member spouse in the contractual process. The marriage alone, however, does not create an agency relationship between husband and wife. See Restatement (Second) of Agency § 22 (b) (1958) and 41 C.J.S. Husband and Wife
§ 512a. and b. (1944). I do not believe that that statement is altered by the marital property law. The fact that either spouse now has the right to manage and control some of the marital property does not create an agency relationship between husband and wife for all activities. See sec.
It may appear to be a very narrow reading of the statute to state that the board member spouse enjoys a direct pecuniary interest in the contract but is not represented by an agent spouse in the contracting process. However, because section
Therefore, it is my opinion that the marital property law has not changed the applicability of section
Even though I have concluded that the marital property law has not changed the applicability of section
DJH:SWK