By Sean Pendergast
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By Jeff Balke
By Richard Connelly
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By Craig Hlavaty
Glenda Joe was acting out of sheer frustration when she took her complaint about City Councilwoman Martha Wong before Wong and her Council colleagues last December.
Joe had wanted to lodge her complaint with the city's ethics committee. The city ordinance that created it says the committee is supposed to "review and investigate allegations of impropriety on the part of city officials and candidates for elective office." To Joe, who has a contract with the city to promote children's immunization programs in Asian neighborhoods, the panel seemed like the proper venue for the airing of her complaint. (She has accused Wong of trying to damage her reputation by insisting that Joe is unfit for the promotional job because she isn't a foreign-born Asian; Wong has denied the allegation.)
But Joe ran into a problem: she couldn't figure out how to contact the ethics committee.
"It took a long time just to get somebody [in the city attorney's office] to give me the name of the chairman and his phone number," she says.
Joe, who's still somewhat confused by the situation, has since hired an attorney.
"He knows how to do the court stuff," she says, "but he doesn't really know how the ethics committee works, either. I don't think anybody does."
And that includes members of the Houston City Council.
Last spring, representatives of a Dallas credit-card collection company testified under oath before the Council that their firm was passed over for a city contract because it refused to bow to pressure from then-city attorney Benjamin Hall to hire a minority subcontractor he had recommended. The accusation was reviewed by two county grand juries, which took no action, and by the Houston Police Department's Public Integrity Review Group, which found it unsubstantiated.
City Councilman Lloyd Kelley tried to pass the complaint on to the ethics committee, which at the time informed the councilman that it did not have jurisdiction to review the allegation.
Ten months later -- with Hall having been gone from City Hall for more than a month -- the committee inexplicably has reversed itself and asked Kelley if he still wants to pursue the matter.
"And I say, 'For what?' The committee is limited to a reprimand or recommendation of termination," Kelley says. "That's the limit of their power. Well, if everybody's quit and gone, why would you suddenly have jurisdiction? I want to know, if they are going to play those games, why exist at all?"
Don Horn, the longtime president of the local AFL/CIO's central labor council, has posed that question himself, and not rhetorically.
Horn is one of seven members of the committee, having served on it since its inception under then-mayor Fred Hofheinz in the mid-1970s. Four of the seven posts are filled through appointments by the mayor and City Council, and the other three are filled through nominations by the Houston Bar Association, the AFL/CIO and the Harris County Medical Society. The members are not paid for their work.
Horn says the shortcomings of the panel became clear to him last year during its investigation of Fire Chief Eddie Corral. The chief had been accused by board members of the Firemen's Relief and Retirement Fund -- fire department personnel under Corral's supervision -- of trying to pressure them into investing pension funds with a securities company that employed Corral's son.
After seven public sessions of testimony from the chief, his accusers and others, the ethics committee voted five to one to clear Corral of violating the city's code of ethics. Horn cast the one dissenting vote and submitted his own report on the Corral investigation to Mayor Bob Lanier and the Council.
"The reason I came down in the way that I did was that the evidence that was presented to us under sworn testimony was overwhelming that the chief had crossed over the line," says Horn, pointing out that the city's code of ethics defines "impropriety" as "conduct that violates or gives the appearance" that standards have been violated.
Horns says the major difficulty the committee faced was the city's refusal to provide it with a report on an earlier investigation of the allegation against Corral conducted by HPD's Public Integrity Review Group.
Although the PIRG found no evidence of criminal wrongdoing, Horn says the report might have shed light on possible ethical violations by Corral. State law, however, prohibits the PIRG from making public its investigations of police officers or firefighters when allegations of misconduct are not sustained. The city's legal department contends that the PIRG report on Corral fell under that protection, even though Corral, as chief, is no longer covered by state civil service regulations. The issue was referred to the state attorney general nine months ago, but the A.G.'s office has yet to resolve it by producing an opinion.
Horn says the ethics committee's inability to get its hands on the PIRG report underscored the need for the panel to have investigative tools at its disposal. He thinks the committee should have asked the Council for permission to hire its own independent investigator -- which it has a right to do under the ordinance that created it. An investigator would make the committee more effective and would level the playing field for people who bring complaints to the panel but don't have the resources to hire their own attorney or the wherewithal to act as a prosecutor.
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