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GOVERNMENT
OF THE DISTRICT OF COLUMBIA
OFFICE OF THE INSPECTOR GENERAL
LETTER SUMMARIZING REPORT OF INVESTIGATION
CONCERNING INADEQUATE
OVERSIGHT AND MISCONDUCT
AT THE DC BOARD OF
ELECTIONS AND ETHICS AND OFFICE
OF CAMPAIGN FINANCE
CHARLES C. MADDOX, ESQ.
INSPECTOR GENERAL
May 22, 2003
GOVERNMENT OF THE
DISTRICT OF
COLUMBIA
Office of the
Inspector General
717 14th
Street, N.W., Washington, D.C. 20005 (202) 727-2540
Inspector General
May 22, 2003
The Honorable Anthony
A. Williams
Mayor
District of Columbia
John A. Wilson Building
1350 Pennsylvania Avenue,. N.W., 6th Floor
Washington D.C. 20004
The Honorable Linda
W. Cropp
Chairman
Council of the District of Columbia
John A. Wilson Building
1350 Pennsylvania Avenue N.W., Suite 504
Washington D.C. 20004
Dear Mayor Williams
and Chairman Cropp:
For the past year the Office of the Inspector General (OIG) has conducted an investigation under
the supervision of the U.S. Attorney's Office concerning allegations that
executive-level officials of the District of Columbia Office of Campaign
Finance (OCF) and the Board of Elections and Ethics (BOEE) have used their
positions improperly to enrich themselves at the expense of District of
Columbia taxpayers. In addition, my Office has conducted an inquiry into
claims that a pattern exists of selective enforcement of campaign finance
laws by OCF in order to shield certain elected officials from potential
sanctions or embarrassment as a result of public disclosure of violations.
Other allegations include the failure and/or refusal by OCF management to
notify agencies with appropriate jurisdiction when OCF auditors found
evidence of criminal violations, Hatch Act violations, and the failure to
report income which is subject to federal and D.C. income taxes. This
letter is intended to provide an overview of our investigative efforts and
to inform you of the resistance and political pressure from certain D.C.
council members that we have experienced in conducting our inquiry.
Insider
allegations. The allegations of misconduct provided to us were
highly credible: (1) they originated from management/professional level
employees with first-hand knowledge of their agencies' operations; (2) the
employees brought us official documents and records to corroborate their
claims; and (3) the employees, outraged that rules were being ignored-by
BOEE/OCF management, risked their careers by making allegations against
their superiors. Indeed, these employees have advised us that their
whistleblower activities have resulted in retaliation against them, and
each has retained counsel in an effort to retain their positions.
Impediments to the
investigation. These allegations deserve intense scrutiny because
they involve the fiduciary obligations of officials at the highest
levels of OCF and BOEE, agencies entrusted with enforcing the ethics and
campaign finance laws for District employees and political candidates.
The allegations suggest not only that officials in these agencies have
mismanaged their internal operations but also that they failed to place
candidates on notice in a timely manner, if at all, when campaign
irregularities surfaced. Candidates are ultimately responsible for
knowing and abiding by campaign finance laws; however, they are
ill-served when enforcement agencies fail to notify them of unlawful or
inappropriate practices, as they are then deprived of the ability to
take timely corrective action. Worse, the enforcement agencies create an
appearance of a conflict of interest when they fail to enforce
violations by elected officials who have oversight of their performance
and budgets.
In light of these serious
allegations, we had expected the Chairman of the Board of Elections and
Ethics, Benjamin F. Wilson, to demonstrate a commitment to help OIG
investigators ascertain all of the facts that would enable him to review
our findings objectively and to implement reform at the two agencies
immediately. That commitment did not materialize. Instead, despite
public and written pronouncements of full cooperation, he has adopted an
adversarial posture that has constrained the progress of this
investigation. A few examples of actions by Chairman Wilson and his
subordinates that were counterproductive to the spirit of our
investigation are as follows: attempting to ratify the spurious raises
rather than confront the underlying misconduct; asserting the
attorney-client privilege to bar production of audit reports and other
government records that should be available for review under the
authority of the Inspector General statute; refusing to permit employee
interviews except in the presence of OCF or BOEE general counsels,
despite the attorneys' obvious conflicts of interest; and intimidating
whistleblowers and others as set forth in the attached report.
Chairman Wilson has
become, in effect, a defense attorney for the agencies under his
authority, protecting the accused rather than helping to shed light on
abuses that potentially waste critical tax dollars. Because he and other
members of the BOEE may be the only appointed individuals in the
District government with the authority to take administrative action to
address misconduct in these independent agencies, it is now necessary
for elected officials to review and assess the effectiveness of the
oversight of the current Board.
We are not transmitting
our complete Report of Investigation to you with this letter because
Chairman Wilson and others in the BOEE have asserted an attorney-client
privilege with respect to many of the documents and much of the
information that directly relate to the alleged misconduct under review.
Although we are limiting distribution of the complete report at this
time, we do not agree that these claims of privilege are appropriate in
the context of an OIG review of internal government documents that often
establish the only trail to waste, fraud, and abuse at a District
agency. Moreover, our review of the documents, conducted prior to the
claim of privilege being asserted, convinces us that generally
recognized evidentiary privileges do not apply. With few exceptions, not
applicable here, the District government is the client of attorneys who
work for the government. Thus, the attorney-client privilege is
inapplicable with respect to the government's own need to determine
whether its attorneys are conducting the government's business in a
legitimate manner.
Further, the OIG has statutory access to the official records and
documents of all District government employees, including those who are
employed by independent agencies:
The Inspector General shall have access to the books, accounts,
records, reports, findings, and all other papers,
items, or property belonging to or in use by
all departments, agencies, instrumentalities, and employees of the
District government, including agencies which are subordinate to the
Mayor, independent agencies, boards,
and commissions, but excluding the Council of the District of Columbia, and the District of Columbia Courts, necessary to facilitate
an audit,
inspection or investigation.
D.C. Code §2-302.08(c)(1) (2001) (emphasis supplied). District
employees have an affirmative duty to report information regarding
corrupt government activity to the OIG under Section 1803.8 of the
District Personnel Manuel, and can face disciplinary action - to include
termination - for failure to cooperate with an OIG investigation. D.C.
Code § 2-302.08(f-3) (2001).
Notwithstanding our disagreement about the claims of privilege, we have
decided to provide an unredacted version of our report only to Chairman
Wilson for his use in addressing our findings. We wish to avoid any
issue of privilege that might arise and to ensure that stakeholders
focus on the seriousness of our findings, rather than debatable legal
issues. We hope that Chairman Wilson will choose to make the entire
report available to you and the Council and that he will inform this
Office and other stakeholders about his plans to implement reform at the
two agencies.
Summary of Findings.
Although the resistance from OCF and BOEE officials - and certain
Council members - makes the continuation of this investigation
impractical, we believe that our findings to date provide convincing
evidence that the present Board failed to provide proper oversight for
the two agencies.
1. Scheme to obtain unlawful pay raises and backpay.
After the BOEE General Counsel received a pay raise (from $109,515 to
$121,406) based on recently enacted legislation designed to ensure
retention of practicing attorneys in the District government, OCF/BOEE
proposed legislation that would permit raises to the Director of OCF by
removing the statutory cap. That draft legislation did not move forward.
Because the salary of the OCF Director is capped at the highest step of
DS-16 of the District's Excepted Service Schedule ($109,515), attempts
to process such a raise through normal channels would have been rejected
by the Office of Personnel unless the cap was removed. For this reason,
the technical assistance of a computer security technician employed by
the Office of the Chief Financial Officer (CFO) was enlisted to make the
salary changes directly to the District's computerized payroll system.
This change to the electronic payroll system unlawfully effectuated the
raise by circumventing the administrative safeguards that ensure that
employees receive appropriate salaries.
2. Employees misled Chairman Wilson. In
order to convince Chairman Wilson that the pay raises were permissible
(both prospectively and retroactively), the Executive Director of BOEE,
who herself was a beneficiary, drafted two deceptive memoranda
for Wilson's review. The memoranda were deceptive in the following ways:
- a purported author of one memorandum had no authority to approve
District personnel matters;
- one memorandum omits reference to facts that would have indicated
that the salary increases were inappropriate;
- one memorandum asserts facts about government policy that are
incorrect; and
- the BOEE Director gave Wilson the impression that a certain employee
was authorized to approve the salary increase when the employee had no
authority to approve said increase.
Taken together, these facts suggest that Wilson was intentionally misled
by his employees so that they could unlawfully enrich themselves.
3. Appearance of a quid pro quo.
Shortly after assisting with the pay raise for the OCF Director, the
computer security technician was hired by BOEE as the Information
Technology Manager and subsequently appointed Chief Technology Officer
for both BOEE and OCF. Her position in the Management Supervisory
Service was not advertised or fairly competed in accordance with
District law. A due diligence check of her credentials by the OIG
revealed that she falsely and intentionally represented that she had a
college degree when applying for her position. The OIG reported this
information to Wilson for administrative action which, generally, is
termination for misrepresentations in job applications. The technician
was retained in her current position and salary.
4. Failure to complete audits/selective enforcement.
Requirements were established in District law since 1974 that OCF
conduct periodic audits and field investigations of the campaign finance
reports of candidates for elective office. D.C. Code § 1-1103.03(8)
(2001). In 2000 OCF hired an experienced supervisory auditor who was
tasked to redefine and enhance the function of the agency's Reports
Analysis and Audit Division. The auditor supplemented the "desk
audits" of campaign forms with a more robust audit conducted in the
field. These investigative, or "field audits," were intended
to be a comprehensive review of all underlying campaign finance
documentation designed to verify information submitted by candidates to
OCF. Several of these field audits were conducted and resulted in the
discovery of significant numbers of irregularities and possible
violations of campaign finance and other laws. According to the auditor,
these possible violations should have been presented to the candidates
for resolution. Instead, many of the findings were squelched and, to
date, no field audit report has been issued. As a result of an interim
OIG Management Alert Report which addressed this matter, Chairman Wilson
has committed to issue reports publicly by the end of June 2003.
5. Failure on the part of OCF to disclose negative findings in audits
of campaign funds of Council members.
During April and November 2002 interviews, a BOEE/OCF employee advised that continuing efforts have been made by OCF officials to
suppress or minimize findings of significant violations of campaign finance laws in the
audits of at least three current D.C. Council members. These violations include the following:
inappropriate use of campaign funds for personal expenditures after the 2000 General
Elections; return of $36,000 from a Council member's campaign fund after failure to
provide required documentation establishing that the fiends were a loan rather than a
contribution; continued acceptance of contributions for two years after election was
over; contributions over the legal limit; use of employees for campaign work during District
government working hours; and payment of large bonuses to campaign workers with
leftover campaign funds in violation of District and federal laws.
6. Failure to reveal and refer violations of federal law.
During the course of the November 2002 interview, a BOEE/OCF employee
also advised that in several instances audits determined that some
Council members may not have reported the payment of salaries and
bonuses to campaign workers to the U.S. Internal Revenue Service or the
D.C. Office of Tax and Revenue. Numerous instances of possible Hatch Act
violations were found. The OIG was further advised that a BOEE/OCF
employee was prevented from notifying Council members or referring these
violations to the proper authorities.
7. Procurement violations.
Our findings concerning BOEE and OCF include evidence of contract
splitting, contract steering, and conflict of interest in violation of
D.C. procurement regulations and the standards of conduct.
8. Concealment of embezzlement.
The OCF Director failed to report to any law enforcement agency an OCF
employee caught embezzling funds from the agency and permitted the
employee to resign without repaying the funds or facing criminal
charges.
9. Improper Leave.
The OCF Director was authorized by Chairman Wilson to take extended
administrative leave with pay rather than use sick leave or annual leave
as required by law. This misrepresentation of sick leave as being
administrative leave with pay, which would have cost District taxpayers
more than $18,000, required several communications from the OIG before
corrective action was taken. BOEE initially attempted to deceive the OIG
in its response to the OIG Management Alert Report (MAR) by indicating
that their inappropriate action had been corrected prior to the date on
which they submitted their response to the MAR. Instead, the OIG found
that, in correcting the improper use of administrative leave, the OCF
Director had attempted to approve her own advanced sick leave. In fact,
District payroll personnel alerted OCF that the Director could not
authorize her own request for advanced sick leave. The advanced sick
leave was finally approved by Chairman Wilson on April 4, 2003.
10. Retaliation.
Whistleblower witnesses claimed they had been reassigned and/or
threatened with termination on pretextual grounds after BOEE and OCF
officials learned that they had provided-the above information to the OIG. It was
necessary for the OIG to advise BOEE officials that whistleblowers are
protected by law and that retaliation of the type threatened created a
risk of civil liability to the District government. As a result of this
communication to BOEE officials, the whistleblowers have been left in
place, but they have retained counsel and allege that they have been
subject to harassment and a hostile work environment.
11. Leadership failure. The misconduct noted above, coupled with
the refusal by BOEE officials to address those deficiencies except at
our request, reflects that oversight of the agencies by the Board has
not been diligent, and lacks objectivity and effectiveness.
Political pressure. Audits and investigations by an Inspector
General cannot be helpful to the District government, to the Congress,
or to the public when agency heads are not eager to seek reform by
providing genuine cooperation. An even worse scenario has occurred in
this case because several members of the D.C. Council have attempted to
undermine this investigation. Actions by the Council to discourage the
conduct of this investigation have only served to provide additional
disincentives for cooperation at the agency level. Specifically,
Chairman Wilson has shown disregard for the need to disclose draft audit
reports and other information that might reflect evidence of inadequate
oversight of agencies under his authority.
At the inception of the investigation into salary increases at OCF,
Councilmember Vincent B. Orange, Sr., warned me and my staff, in the
presence of another council member and council staff, against looking
into the matter. Later, he proposed legislation that would legalize, ex
post facto, the OCF Director's salary in an effort to derail the
criminal investigation underway at the U.S. Attorney's Office. At the
request of the BOEE, the General Counsel of the D.C. Council produced an
analysis of the language that limits the salary of the OCF Director
("The Director shall be entitled to receive compensation at the
maximum rate for Grade 16 of the District Schedule . . . ." D.C.
Code §11103.01 (2001)). During the criminal investigation, the
Council's General Counsel argued against the clear meaning of the
statutory salary cap, attempting to make the dubious argument that the "maximum rate for
Grade-16" was a "floor" rather than a "ceiling."
During the course of this investigation, no fewer than six Council
hearings were held in an effort to discredit the way in which it has
been conducted. In each instance, we have provided justification for our
actions and provided public statements for the record to the Council and
on the OIG website. Further efforts to impede this and other
investigations were evident during a recent D.C. Council oversight
hearing in which Councilmember Orange and Chairman Wilson remarked that
BOEE/OCF employees could not "hide behind" Whistleblower
protections when they provide the OIG with documentation deemed
confidential by the agency. This mindset is contrary to the intent of
the Whistleblower statute and would have a chilling effect on government
disclosure in public corruption matters.
Perhaps most disturbing was the "Inspector General Qualifications
Emergency Amendment Act of 2003," which was enacted by a majority
of the Council after overriding a veto by the Mayor. This legislation
was designed for the specific purpose of forcing me out of office so
that these report findings could be diluted and further investigations into
sensitive matters involving city council members abated. At the very
least, it is evident that the campaign by council members and Chairman
Wilson to discredit the OIG was intended to also discredit the
legitimacy and minimize the gravity of the findings contained in this
report. (See Appendix A)
These actions follow continual efforts by the Council since the demise
of the Control Board to remove me for cause. In each case, the
accusations - that my term expired in January 2002, that I am not a
resident of the District, that I practiced law without a license, that
the Washington Teachers Union scandal was reported to me and ignored
(this by false testimony, see Appendix B) have been proven
to be without merit. Recent efforts by the Council to offer me a
"buyout" only reinforce my belief that the Council wishes to
influence the outcome of this and other potentially damaging reports.
While political pressure has not thwarted our resolve to force
corrections at the agencies and disclose inadequate oversight by the
Board of Directors, this investigation has, in fact, been negatively
influenced. Fuller cooperation could have helped the OIG to identify
additional violations of federal and local laws and facilitated
prosecutions sorely needed to deter similar activity in other agencies.
The lack of cooperation from responsible District officials made an
administrative remedy more practical than a prosecution. Accordingly,
the United States Attorney decided against a criminal prosecution
regarding the scheme by BOEE and OCF officials to obtain improper salary
increases and back pay. The decision was made on April 22, 2003, and
communicated to the OIG on April 23, 2003. In his letter memorializing
the decision, United States Attorney Roscoe C. Howard, Jr. told the
Inspector General that -
Although we are declining prosecution, we nonetheless share your concern
about the secretive and irregular manner in which these salary payments
were obtained, and the questionable legal basis for them. As we have
discussed, we are also troubled by the lack of candor and cooperation
exhibited by certain D.C. government employees during the course of the
investigation. Accordingly, we are referring this matter back to your
office for whatever civil, administrative or other action you deem
appropriate.
Recommendations. The OCF, BOEE, and the OIG were intended
to be independent watchdogs - they should not look the other way when
rules are broken at the highest levels of government. It is now time to
make the choice as to what should prevail in the nation's capital:
integrity in government or more cover-ups and cronyism. Accordingly, we
have made a series of recommendations to you concerning the leadership
at BOEE and OCF and the need for reform at these agencies. (See Appendix
C)
If you have questions or require further information, please contact me
or Assistant Inspector General for Investigations Robert G. Andary, at
727-1039.
Sincerely,
Charles C. Maddox, Esq.
Inspector General
Enclosures - 3
DISTRIBUTION:
Mr. John A. Koskinen, City Administrator, District of Columbia (1 copy)
Mr. Kelvin J. Robinson, Chief of Staff, Office of the Mayor (1 copy)
Mr.
Tony Bullock, Director, Office of Communications (1 copy)
The Honorable
Vincent B. Orange, Sr., Chairman, Committee on Government Operations,
Council of the District of Columbia (1 copy)
Ms. Phyllis Jones,
Secretary to the Council (13 copies)
Dr. Natwar M. Gandhi, Chief
Financial Officer (4 copies)
Ms. Deborah K. Nichols, D.C. Auditor (1
copy)
Mr. Jeffrey C. Steinhoff, Managing Director, FMA, GAO (1 copy)
Ms.
Jeanette M. Franzel, Director, FMA, GAO (1 copy)
The Honorable Eleanor
Holmes Norton, D.C. Delegate, House of Representatives Attention:
Rosalind Parker (1 copy)
The Honorable Tom Davis, Chairman, House Committee on Government Reform
Attention: Peter Sirh (I copy)
Ms. Shalley Kim, Legislative Assistant, House Committee on Government
Reform (1 copy)
The Honorable Rodney Frelinghuysen, Chairman, House Subcommittee on D.C.
Appropriations (1 copy)
Ms. Carol Murphy, Staff Assistant, House Subcommittee on D.C.
Appropriations (1 copy)
The Honorable Chaka Fattah, House Subcommittee on D. C. Appropriations
Attention: Tom Forhan (1 copy)
The Honorable George Voinovich, Chairman, Senate Subcommittee on
Oversight of Government Management, the Federal Workforce, and the
District of Columbia (1 copy)
Ms. Theresa Prych, Professional Staff Member, Senate Subcommittee on
Oversight of Government Management, the Federal Workforce, and the
District of Columbia (1 copy)
The Honorable Richard Durbin, Senate Subcommittee on Oversight of
Government Management, the Federal Workforce, and the District of
Columbia (1 copy)
Ms. Marianne Upton, Staff Director, Senate Subcommittee on Oversight of
Government Management, the Federal Workforce, and the District of
Columbia (1 copy)
The Honorable Mike DeWine, Chairman, Senate
Subcommittee on D.C. Appropriations (1 copy)
Mr. Stan Skocki,
Legislative Assistant, Senate Subcommittee on D.C. Appropriations (1
copy)
The Honorable Mary Landrieu, Senate Subcommittee on D.C.
Appropriations (1 copy)
Ms. Kate Eltrich, Staff Director, Senate
Subcommittee on D.C. Appropriations (1 copy)
Mr. Charles Kieffer, Clerk,
Senate Subcommittee on D.C. Appropriations (1 copy)
Back to top of page
Appendix A
CHRONOLOGY OF EVENTS RELATED TO THE OIG INVESTIGATION OF THE OFFICE OF CAMPAIGN FINANCE AND THE BOARD OF
ELECTIONS AND ETHICS
April 4, 2002 - OIG began investigation of the OCF and BOEE after whistleblowers made allegations of misconduct concerning senior
officials at both agencies, which are responsible for enforcing ethics in government.
(During the month of March 2002, Chairman Orange and the press indicate that the OIG
is investigating allegations that two senior officials received improper
salary enhancements.)
April 29, 2002 - Chairman Wilson was interviewed by OIG investigators.
Wilson questions IG's timing of the investigation into allegations about
improper salary enhancements. He said it appeared that the OIG was
attempting to pressure him to rule in the Mayor's favor on matters
referred to him regarding the fundraising investigation.
April 29, 2002 - IG briefed the Mayor and City Administrator Koskinen
that an investigation was ongoing.
May 3, 2002 - At a meeting with Orange, Ambrose, and Council staff about
the Council's proposed budget cuts, Orange echoes Wilson's questions
regarding the timing of the investigation. The IG responded that the
allegations were serious and required an inquiry. He said that failure
to investigate would be inappropriate.
May 7, 2002 - The City Council passes the Budget Request Act, which
would remove the budgetary protections afforded by Congress to the OIG.
May 9, 2002 - The IG briefed Cropp that an investigation was ongoing. An
earlier briefing could not be arranged because she was not available
when the IG requested an earlier meeting.
June 4, 2002 - The Mayor issues a line item veto on the Budget Request
Act, saving OIG budgetary protections, and sends a letter to the Council
memorializing his objection to "any measure to reduce this budget
or modify the process for its approval in the future."
July to September 2002 - The BOEE inquiry into irregularities
regarding the petitions for the mayoral election began and fines were
levied against the Mayor.
June 21, 2002 - Chairman Orange proposes legislation that would
legalize, ex post facto, the OCF Director's salary in an effort to derail the criminal
investigation underway at the U.S. Attorney's Office. ("Director of Campaign
Finance Compensation Amendment Act of 2002")
January 2003 - OIG issues to BOEE Chairman Wilson a Management
Alert Report concerning allegations of mismanagement and misconduct on
the part of the Executive Director of the Board of Elections and Ethics
and the Director of the Office of Campaign Finance. Report also mentions
allegations regarding campaign finance activities of sitting Council
members.
March 2003 - City Council introduces the IG Qualifications Emergency
Amendment Act of 2003 which seeks to change - approximately two-thirds
of the way into his six-year term - the qualifications for the position
of the Inspector General. The change would force the IG to vacate his
Office on June 1, 2003.
April 22, 2003 - U.S. Attorney Roscoe C. Howard, Jr. declines
prosecution. Later, he memorializes in a letter to the OIG his ongoing
concerns about the "secretive and irregular manner in which these
salary payments were obtained, and the questionable legal basis for
them." The U.S. Attorney refers the matter back to the OIG for
whatever civil, administrative, or other action the OIG deems
appropriate.
April 23, 2003 - Chairman Cropp offers the IG a "buyout" if he
resigns.
April 28, 2003 - IG sends letter to the Council and the Mayor informing
them that the Council's stated reason for introducing the Act was found
to be based on false testimony from a witness who testified before the
City Council. The findings were supported by forensic examinations
conducted by the Office of the Chief Technology Officer and the U.S.
Secret Service.
April 29, 2003 - Emergency Act is enacted after Council overrides a veto
by the Mayor.
April 30, 2003 - Councilmember Harold Brazil (who voted against
passage of the IG Emergency Amendment Act), is quoted in a press report
as saying, "It's fine to change the legislation as long as you
don't mess with this guy. There's a strong indication to me that they're
changing the law just to get rid of this guy." (Washington Post)
Back to top of page
Appendix
B
GOVERNMENT OF THE DISTRICT OF COLUMBIA
Office of the Inspector General
717 14th Street, N.W., Washington, D.C. 20005 (202) 727-2540
Inspector General
April 28, 2003
The Honorable Anthony A. Williams
Mayor of the District of Columbia
1350 Pennsylvania Ave., N.W.
Suite 221
Washington. D.C. 20004
The Honorable Linda W. Cropp
Chairman
Council of the District of Columbia
1350 Pennsylvania Avenue, N.W., Room 504
Washington, D.C. 20004
Re: Altered Documents and False Allegations Provided by Saundra White
During Two D.C. Council Hearings Regarding Legislation Affecting the Office of
the Inspector General
Dear Mayor Williams and Chairman Cropp:
At two separate hearings on March 7, 2003, and March 27, 2003, the D.C.
Council received testimony from Saundra White (aka Saundra Parrish) in
which Ms. White alleged that she informed the Office of the
Inspector General (OIG) in July 2001 that the former Director for the
Office of Human Rights (OHR) was ordered to steer contracts to Curtis
Lewis and Associates (Lewis). The D.C. Council has relied on Ms. White's
claim to support the emergency, temporary, and permanent versions of the
Inspector General Qualifications Amendment Act of 2003 (Bills 15-200,
IS-20I, and IS-183), which would force me to vacate my Office on June 1,
2003. The-purpose of this letter is to inform you of the results of an
inquiry conducted by my Office to ascertain the credibility of certain
testimony provided by that witness to the Council.
Summary. Ms. White's statement that she e-mailed allegations of steering
District government contracts to the Curtis Lewis law firm is untrue
based on a search conducted of OIG electronic databases. We have also
obtained evidence that-Ms. White submitted altered documentation during the
Council hearings as a method of corroborating her false testimony
concerning the referral of allegations to the OIG during July 2001.
Fundamental due diligence checks on the facts and documents proffered by
Ms. White should have been conducted by .the Council prior to relying on
her testimony as support for legislation.
Major Points. Highlights of our findings, which are supported by
forensic and documentary evidence set forth in the body of this letter,
are as follows:
- Statements of
the witness, Saundra White, a former District government employee,
to the Council that she e-mailed allegations -informing the OIG of
contract steering to the Curtis Lewis & Associates law firm during July
and September 2001 are refuted by the findings of a review of OIG
electronic mail databases by disinterested parties, including the
Office of the Chief Technology Officer (OCTO) and the Computer Forensic
Laboratory of the United States Secret Service (USSS).
-
In fact, in July 2001 the OIG did receive a written complaint - wholly
unrelated to contracts with Curtis Lewis or to subsequent embezzlement
from the Washington Teachers Union - concerning the payment of fees to an
attorney (not Curtis Lewis) without the benefit of a valid contract. To
corroborate her claim that she reported contract steering to the OIG
during July 2001, Ms. White provided to Councilmember Orange a 34-page
document dated September 14, 2001, entitled "Grievance Performance
Improvement Plan," and addressed to Carolyn Graham, which alludes to
contract steering.1 A comparison of this document, as submitted by Ms.
White to Mr. Orange (which he provided to us at the March 7, 2003,
hearing), reveals that it is a strategically altered version of the same
document actually sent to Ms. Graham. The purpose of the alterations was
to change the . basis and scope of her July 2001 complaint to the OIG and
to delete other references to information she provided the OIG to support
her original allegations. Without these changes, the 36-page document sent
to Carolyn Graham would contradict Ms. White's contention that she
notified the OIG of the contract steering. As originally written and
disseminated, the document confirms the OIG position that Ms. White's July 2001 allegation concerned payments without
a contract rather than contract steering (the allegations regarding
Lewis).
-
Our review of Ms. White's testimony, the documents she submitted to the
Council, and the findings of OCTO and the USSS suggest that Ms. White
falsified her testimony concerning the nature of her dealings with the OIG
and submitted altered and misleading documentation to support that
testimony during the aforementioned hearings before the D.C. Council. Her purpose was
to substitute what would have been a highly significant allegation at the
time because of possible links to the as yet undiscovered WTU embezzlement
case.
- We do not imply that any council member had knowledge of Ms. White's
.. . . deceptions. However, due diligence checks should have been
conducted concerning the substance of Ms. White's testimony
before relying on it as the rationale for introducing legislation. Merely
asking me or other recipients of Ms. White's e-mails would have quickly
revealed many of the discrepancies that I am bringing to your
attention now.
Conclusion. The testimony that Ms. White presented to the Council
on March 7 and March 27 - that she e-mailed reports of contract steering
to Curbs Lewis to the OIG during July and September 2001 - is inconsistent
with forensic analysis of the electronic database of the OIG. Because Ms.
White's misrepresentations could be considered perjury and fraud, we have
discussed this matter with the United States Attorney's Office, District
of Columbia (USAO), and referred the case to them for review. Please be
advised .that I have received permission from the USAO to provide our
findings to you at this time because this matter relates to legislation
currently pending before the Council and which may be transmitted to the
US. Congress for approval.
Recommendation. Because we believe that Ms. White submitted an
altered document to a public body for the purpose of misrepresenting
material facts, Ms. White's credibility has been damaged beyond repair.
Accordingly, her testimony should not serve as a basis. for the Council's
proposed enactment of the Inspector General Qualifications Amendment Act
of 2003. At a minimum, the public record required for the passage of this
legislation should be corrected to reflect facts that are accurate. To
assist in this regard, I have detailed the specific facts supporting this
conclusion and recommendation in an attachment to this letter.
Sincerely,
Charles M Maddox, Esq.
Inspector General
Attachment
Cc: John A. Koskinen, City Administrator
Members of the District of Columbia .Council
Arabella Teal, Interim Corporation Counsel v
Congressman Tom
Davis
Congressman Henry Waxman
Delegate Eleanor Holmes Norton
,Senator George Voinovich
Senator Richard J. Durbin
Senator Susan Collins
Senator Joseph Lieberman.
___________________________________
1. Although Ms.
White submitted a 34-page document for the record, she testified that she e-mailed a 32-page
document to OIG Special Agent (SA) George Scavdis. The OIG ultimately
determined that Ms.
White originally sent Carolyn Graham a 36 page document. The 34-page
document was the altered
version of the 36-page document.
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Appendix C
RECOMMENDATIONS
As a result of our investigation we make the following recommendations to
the Chairman of the Board of Elections and Ethics. The Chairman should
take appropriate action to ensure that the recommendations are implemented
at the District of Columbia Board of Elections and Ethics (BOEE) and the
Office of Campaign Finance (OCF).
- Cecily
Collier-Montgomery, the Director of OCF, should be returned from her
current salary of $121,778 (excepted service grade 17 step 8) to the
salary level of $109,515 she had on August 1, 2001.
-
Cecily Collier-Montgomery, the Director of OCF, should be required to
reimburse the District of Columbia for any salary she received since
August 2001, in excess of her previous salary of $109,515.
- Alice Miller, the Executive Director of BOEE, should be required to
repay the additional salary she was paid during the period she improperly
received her salary based on the Legal Services scale.
- Cecily Collier-Montgomery and Alice Miller should be required to
reimburse the District of Columbia for the retroactive supplemental gross
payment of $22,880 they received as a result of their increase in salary
due to being placed in the Legal Services.
- Appropriate administrative action should be taken against Cecily
Collier-Montgomery, Alice Miller, Vialetta Graham, BOEE and OCF Chief
Technology Officer, and Marvin Ford, BOEE Chief of Staff, for their
part in the scheme to obtain unlawful pay raises and back pay.
- Audits and
field investigations of the campaign finance reports of candidates for
elective office should be completed in a timely manner, and, in every case
should be completed before the statute of limitations prevents the
imposition of penalties.
- All potential issues of violations of federal or District law,
including violations of District regulations, revealed as part of an audit
or investigation should be brought to the attention of the candidate, and
the candidate should be allowed to comment on the issues, in accordance
with OCF's own auditing procedures.
- Information of
possible violations of federal or District law revealed during the course
of an audit or field investigation should be promptly referred to the
appropriate law enforcement agency having jurisdiction of the matter.
- Any information of possible criminal activity by an agency employee
should be reported promptly to the District of Columbia Inspector General,
in accordance with DPM §§ 1803.7 and 1803.8.
- BOEE should reconsider its finding regarding procurement
irregularities as stated in the "General Counsel's Report in Response
to Management Alert Report 2003-3," in light of the evidence
referenced in this report (See Section 2(f) and Exhibit In, and
take administrative action as appropriate.
- Standards should be developed and enforced for requiring candidates to
fully document any loan made to their campaign committees in accordance
with the repayment policies of lending institutions in the District of
Columbia.
- Background checks should be made to verify material information in the
applications and resumes of any person who is selected to fill a position
conducting or supervising audits or field investigations, or having access
to sensitive agency information.
- All OCF and BOEE employees should be reminded of their obligations:
- To cooperate with an investigation by the District of Columbia Office of
Inspector General; and
-
To refrain from taking any action to retaliate against any employee for
that employee's cooperation with an OIG investigation, or for that
employee engaging in any protected whistleblower activity.
- District of Columbia procurement laws and regulations, as well as the
standards of conduct for District employees, should be reviewed and
complied with in every procurement.
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