2016 -- S 2449

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     STATE OF RHODE ISLAND

IN GENERAL ASSEMBLY

JANUARY SESSION, A.D. 2016

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A N   A C T

RELATING TO STATE AFFAIRS AND GOVERNMENT -- ESTABLISHING AN OFFICE OF

INSPECTOR GENERAL

     Introduced By: Senators Sheehan, Cote, Raptakis, Conley, and Lombardo

     Date Introduced: February 11, 2016

     Referred To: Senate Finance

     It is enacted by the General Assembly as follows:

     SECTION 1. Title 42 of the General Laws entitled "STATE AFFAIRS AND

GOVERNMENT" is hereby amended by adding thereto the following chapter:

CHAPTER 9.4

INSPECTOR GENERAL

     42-9.4-1. Purpose. -- The office of inspector general shall be an independent

administrative agency charged with the purpose of preventing and detecting fraud, waste, abuse

and mismanagement in the expenditure of public funds, whether federal, state, or local, and

relating to any and all state programs and operations as well as the procurement of any supplies,

services, or construction, by agencies, bureaus, divisions, sections, departments, offices,

commissions, institutions and activities of the state of Rhode Island, including those districts,

authorities, or political subdivisions created by the general assembly, the governor, and any court,

including any city and town within the state. Investigations may include the expenditures by

nongovernmental agencies of federal, state and local public funds.

     42-9.4-2. Definitions. -- As used in this chapter, unless the context requires otherwise,

the following words shall have the following meanings:

     (1) "Construction" means the process of building, altering, repairing, improving, or

demolishing any public structure or building, or other improvements of any kind to any public

property.

     (2) "Contract" means all types of agreements, including grants and orders, for the

purchase or disposal of supplies, services, construction, or any other item. It includes: awards;

contracts of a fixed-price, cost, cost-plus-a-fixed-fee, or incentive type; contracts providing for

the issuance of job or task orders; leases; letter contracts; purchase orders; and construction

management contracts. It also includes supplemental agreements with respect to any of the

foregoing.

     (3) "Contractor" means any person, corporation, partnership, business, union, committee,

or other organization entity or group of individuals performing any tasks, or duties defined under

a written or oral contract with and for the state of Rhode Island or the joint committee on

legislative services.

     (4) "Procurement" means the purchasing, buying, renting, leasing, or otherwise obtaining

of any supplies, services, or construction. It also includes all functions that pertain to the

obtaining of any supply, service, or construction item, including a description of requirements,

selection and solicitation of sources, preparation, and award of contract, and all phases of contract

administration.

     (5) "Public funds" means state, federal and local funds, either appropriated, non-

appropriated or given under right of grant.

     (6) "Services" means the rendering, by a contractor, of time and effort rather than the

furnishing of a specific end product, other than reports which are merely incidental to the required

performance of services.

     (7) "Supplies" means all property, including, but not limited to, leases of real property,

printing, and insurance, except land or permanent interest in land.

     42-9.4-3. Establishment of office -- Appointment and removal of inspector general. --

There is hereby established an office of inspector general, hereinafter called "the office". There

shall be in the office an inspector general, who shall be the administrative head of the office and

who shall be appointed by a majority vote of the governor, the attorney general and the general

treasurer for a five (5) year term to begin July 1 and end June 30, five (5) years later. The

appointee shall serve one term only. The person so appointed shall be selected without regard to

political affiliation and with a demonstrated ability in more than one of the following areas:

accounting, auditing, financial analysis, law, management analysis, public administration,

investigation and criminal justice administration.

     The selection process of a qualified inspector general shall include at least one public

forum. If an inspector general is not selected within one month of an expired new inspector

general term, the governor shall appoint an inspector general. The inspector general shall have at

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least five (5) years experience in accounting, criminal justice, or a closely related profession and a

bachelor’s degree from an accredited college or university with a major in accounting, criminal

justice, or a closely related field of study.

     No inspector general shall hold, or be a candidate for, any other elective or appointed

public office while serving as inspector general and for one year thereafter. No inspector general

shall hold a position in any political party or political committee, or participate in any political

campaign of any candidate for public office while serving as inspector general.

     In case of a vacancy in the position of inspector general, a successor shall be appointed in

the manner described above, and shall serve from the date of appointment until the fifth June 30

following their appointment. If this vacancy is not filled within one month, then the governor

shall appoint an inspector general.

     The person so appointed may be removed from office for cause by a unanimous vote of

the governor, the lieutenant governor and the secretary of state. Cause for removal may include

substantial neglect of duty, gross misconduct or conviction of a crime whether or not it is related

to the work of the inspector general. The reasons for removal of the inspector general shall be

stated in writing and shall include the basis for such removal. Such writing shall be a public

document. The inspector general shall have ten (10) days to submit a written appeal, which shall

be a public document. If no appeal is made, the inspector general shall be dismissed from office.

If an appeal is made, dismissal shall be determined by the senate. A two-thirds (2/3) vote of the

senate shall be required to dismiss the inspector general.

     42-9.4-4. Employees -- Appointment and removal, salaries, qualifications. -- The

inspector general may appoint and remove such employees as the inspector general deems

necessary to perform the duties of the office, including, but not limited to, assistant inspector

generals, chief and deputy counsels, clerks, paralegals, accountants, auditors, financial

management analysts and investigators. The inspector general may determine their salaries and

duties; provided, however, that the total amount of all such salaries shall not exceed the sum

appropriated to the office by the general assembly.

     The inspector general shall file an annual personnel report not later than the first

Wednesday in February with the senate and house finance committees containing the job

classifications, duties and salary of each officer and employee within the department together

with personnel regulations applicable to said officers and employees. The inspector general shall

file amendments to such report with the senate and house finance committees whenever any

change becomes effective.

     No officer or employee of the office of inspector general shall hold, or be a candidate for,

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any elective public office while an officer or employee, or for one year thereafter, or they hold a

position in any political party or political committee, or participate in any political campaign of

any candidate for public office while an officer or employee.

     42-9.4-5. Inspector general -- Salary and budget. -- The general assembly shall

annually set the salary of the inspector general and shall appropriate sufficient funds for the total

budget for the office of the inspector general.

     42-9.4-6. Rules and regulations. -- The office shall, pursuant to the provisions of

chapter 35 of title 42, administrative procedures act, promulgate rules and regulations which shall

govern its proceedings.

     42-9.4-7. Duties. -- The inspector general shall supervise, coordinate and/or conduct

audits, criminal, civil and administrative investigations and inspections or oversight reviews,

when necessary, relating to programs and operations referred to in §42-9.4-1. The inspector

general shall review statutes and regulations relating to programs and operations referred to in

§42-9.4-1 and shall determine if public bodies referenced in §42-9.4-1 are in compliance and

shall make recommendations concerning the effect of such statutes or regulations on the

prevention and detection of fraud, waste and abuse. The inspector general may recommend

policies that will assist in the prevention or detection of fraud, waste and abuse and

mismanagement. The person in charge of, or the governing body of any public body referenced in

§42-9.4-1, may request the assistance of the office of inspector general with respect to

implementation of any reviews, audits, and/or investigations as deemed appropriate and

implement suggested policy or procedure changes. In such events the inspector general may

assign personnel to conduct, supervise, or coordinate such activity as deemed necessary and

appropriate to perform their duties in a diligent and prudent manner. The inspector general may

recommend policies for the conduct, supervision or coordination of relationship, between state

agencies and other state and local governmental agencies as well as federal governmental

agencies and nongovernmental entities with respect to all matters relating to the prevention and

detection of fraud, waste, abuse and mismanagement in or relating to any and all programs and

activities of the state as referred to in §42-9.4-1.

     42-9.4-8. Inspection of records and papers –Investigations – Subpoenas. -- (a) The

inspector general, in carrying out the duties pursuant to this chapter, shall have access to all

records, reports, audits, reviews, papers, books, documents, recommendations, correspondence,

including information relative to the purchase of services or anticipated purchase of services from

any contractor by any public body referenced in §42-9.4-1, and any other data and material that is

maintained by or available to any public body regardless of the media in which it is maintained

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which is in any way related to the programs and operations with respect to the state of Rhode

Island, including any local town, municipality or city.

     (b) The inspector general may request information, cooperation and assistance from any

state, county or local governmental agency as may be necessary for carrying out their duties and

responsibilities. Upon receipt of such request, each person in charge of, or the governing body of

any public body listed in §42-9.4-1, shall furnish to the inspector general or their authorized agent

or representative such information, cooperation and assistance, including information relative to

the purchase of services or anticipated purchase of services from any contractor by any public

body within ten (10) business days of receipt of the inspector general’s request. If the request for

the information requested cannot be complied with within the ten (10) business days, the senior

official of the governmental agency must notify the inspector general before the expiration of the

ten (10) business days as to the reason that the request cannot be complied with in the time frame

of this section and shall provide a specific date for expected compliance.

     (c) The inspector general may initiate and conduct investigations, audits and compliance

reviews and shall prepare detailed reports relating to findings and conclusions concerning the

administration of the programs and operations of the applicable public bodies referenced in §42-

9.4-1, as are, in the judgment of the inspector general, necessary and may conduct an examination

of any public documents and any information with respect to whether internal quality controls are

in place and operating.

     (d) The inspector general shall have direct and prompt access to the head of any public

body referenced in §42-9.4-1 when necessary for any purpose pertaining to the performance of

his/her duties and responsibilities under this chapter.

     (e) The inspector general may request the production, on a voluntary basis, of testimony

or documents from any individual, firm or nongovernmental entity which relate to actions or

matters that pertain to state, municipal or local governmental agencies as dictated by their duties

and responsibilities.

     (f)(1) The inspector general may issue a subpoena for the production of all records,

reports, audits, reviews, papers, books, documents, recommendations, correspondence and any

other data and material relevant to any matter under audit or investigation pursuant to the

provisions of this chapter, no matter in which media the information is maintained.

     (2) A subpoena may be issued only when a person, corporation or other entity under

investigation or being audited refuses to voluntarily comply with a request from the inspector

general.

     (3) Any subpoena shall be served in the same manner as a subpoena for the production of

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documents in civil cases issued on behalf of the state of Rhode Island, and all provisions of law

relative to said subpoena shall apply to a subpoena issued pursuant to this chapter. Any justice of

the superior court may, upon application by the inspector general, issue an order to compel the

production of records, reports, audits, reviews, papers, books, documents, recommendations,

correspondence and any other data and material as aforesaid in the same manner and to the same

extent as before said superior court. Any failure to obey such order may be punished by the

superior court as a contempt of court.

     (4) Any subpoena issued pursuant to this section, shall not be made public by the

inspector general or any officer or employee of that department, nor shall any documents or

records provided pursuant to this section be made public until such time as it is necessary for the

inspector general to do so in the performance of the inspector general's official duties. The

production of such documents or records pursuant to subpoena shall be governed by the same

provisions with reference to secrecy, which govern the proceedings of a grand jury. Disclosure of

any production, attendance, and testimony may be made to such members of the staff of the office

of the inspector general as is deemed necessary in the performance of the inspector general’s

duties and responsibilities under this chapter and such members of the staff may be present at the

production of records.

     42-9.4-9. Subpoena for witness testimony and for release of material evidence. -- (a)

Whenever the inspector general has reason to believe that a person has information or evidence in

their possession with respect to any matter which is within the inspector general’s jurisdiction to

investigate, the inspector general may issue a subpoena for the attendance of and testimony under

oath of any person as designated, or the surrender of identified item(s) of evidence; provided,

however, that any such subpoena may be issued by the inspector general only in the performance

of official duties relating to the detection of fraud, waste, abuse and mismanagement. The

subpoena for testimony or specific items identified as needed in support of an investigation shall

include: the name and address of the prospective witness or specific items identified as needed for

the investigation and the reasons for requesting a subpoena for testimony or production of items

deemed necessary to support the investigation.

     (b) The inspector general or anyone duly authorized by law shall serve any subpoena

pursuant to this section. Once the subpoena is served, the serving officer shall annotate the time

and date served, the person served and the location of service.

     (c) A witness required by subpoena to attend and testify under oath and/or produce books

and records or other items as demanded, shall be given not less than forty-eight (48) hours notice

of the time and place for the taking of testimony or delivery of subpoenaed items, unless such

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notice shall unduly interfere with the conduct of the investigation.

     The witness, at the time of service of a subpoena, shall be notified of the matter under

investigation concerning which such witness will be required to testify. A subject of an

investigation is a person whose conduct is within the scope of the investigation and is suspected

of committing or being party to an offense under investigation. The failure to furnish the witness

with any notice or information required to be given by this section shall cause the issued

subpoena to be invalid.

     (d) A person subpoenaed to testify under oath shall appear and testify under oath at the

time and place designated on the subpoena. In addition, the witness shall be notified that they

have a right to consult with and to have an attorney present at the time the testimony is taken and

that they have a constitutional right not to furnish or produce evidence that may tend to

incriminate them.

     (e) The terms of any such subpoena must be reasonable and focused on specific

testimony or evidence sought and must directly relate to the matters under investigation. A

subpoena issued that is broad in nature shall not be considered valid. No subpoena may be issued

for purposes of harassment or for any illegitimate or improper purpose. All constitutional and

statutory rights and privileges which exist with respect to any subpoena issued by the inspector

general, including the privilege against self-incrimination, shall have the same force and effect

with any and all existing laws and constitutional rights.

     (f) A subpoenaed person may object to the subpoena served upon them in advance of the

return date of the subpoena by a motion to quash filed in the superior court. The filing of a motion

to quash shall stay all pending subpoenas until further order of the superior court. Any justice of

the superior court may, upon application by the inspector general, issue an order to compel the

attendance of witnesses subpoenaed and the giving of testimony under oath in furtherance of any

audit or investigation under this chapter in the same manner and to the same extent as before the

superior court. Failure to obey any order of the court with respect to a subpoena may be punished

by said court as contempt.

     (g) Any subpoena issued pursuant to this section shall not be made public by the

inspector general or any persons subject to their direction or by any member of the inspector

general’s office designated to hear testimony under this section. The same provisions with

reference to secrecy, which govern grand jury proceedings, shall govern testimony given pursuant

to this chapter. Whoever violates the provisions of this paragraph shall be punished by

imprisonment for not more than six (6) months in a jail or house of correction or by a fine of not

more than one thousand dollars ($1,000). Disclosure of such testimony may be made to such

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members of the staff of the office of inspector general as is deemed necessary by the inspector

general to assist in the performance of the office’s duties and responsibilities and such members

of the staff may be present at the taking of such testimony.

     42-9.4-10. Compact – Investigation. -- (a) The inspector general must accept and may

investigate or audit complaints or information from any individual concerning the possible

existence of any activity constituting fraud, waste, abuse and mismanagement relating to

programs and operations as listed in §42-9.4-1.

     (b) The inspector general shall not, after receipt of a complaint or information from an

employee, contractor or private citizen who requests confidentiality, disclose the identity of that

individual without the written consent of said individual, unless the inspector general determines

such disclosure is necessary and unavoidable during the course of an investigation. In such event,

the individual shall be notified immediately of the disclosure. The inspector general shall

establish an anonymous hotline for reporting possible incidents of wrongdoing.

     (c) Employees are protected under the "Rhode Island whistleblowers' protection act,"

chapter 50 of title 28.

     42-9.4-11. Reports to the attorney general or United States attorney. -- In carrying

out their duties and responsibilities, the inspector general shall report to the attorney general, the

United States attorney, or both, whenever the inspector general has reasonable grounds to believe

there has been a violation of federal or state criminal law. The attorney general shall institute

appropriate proceedings in the furtherance of completing an investigation and, if warranted, to

refer a matter for prosecution.

     The inspector general shall refer audit or investigative findings to the state ethics

commission, or to any other federal, state or local agency, which has an interest in said findings.

     Any referrals made under this section shall not be made public.

     42-9.4-12. Coordination with other state agencies. -- The inspector general may

coordinate with other state agencies that are responsible for investigating, auditing, reviewing or

evaluating the management of state agencies for the purpose of sharing information and avoiding

duplication of effort.

     42-9.4-13. Civil actions. -- The inspector general shall have the authority to institute a

civil recovery action if authorized by the attorney general. In any case where the inspector general

has discovered fraudulent acts and believes that civil recovery proceedings may be appropriate,

they shall refer the matter to the attorney general. The attorney general may institute whatever

proceedings they deem appropriate, may refer the matter to another state or local agency, may

authorize the initiation of appropriate civil proceedings by the inspector general, may retain the

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matter for further investigation, or may remand the matter to the inspector general for further

investigation.

     42-9.4-14. Annual and interim reports. -- (a) The office of inspector general shall, no

later than April 1 of each year, prepare a report summarizing the activities of the office of

inspector general for the prior calendar year. The office of inspector general may also prepare

interim reports. These reports shall be forwarded to the governor, lieutenant governor, attorney

general, secretary of state, general treasurer and the general assembly and shall be made available

to the public.

     (b) The report shall include, but not be limited to: a description of significant problems in

the areas of fraud, waste and abuse within programs and operations within the jurisdiction of the

office; a description of the recommendations for corrective action made by the office during the

reporting period with respect to significant deficiencies in the areas of fraud, waste and abuse; the

identification of each significant recommendation described in previous annual reports on which

corrective action has not been completed; a summary of matters referred to prosecuting

authorities and the prosecutions and convictions which have resulted; a summary of any matters

concerning the recovery of monies as a result of a civil suit by the office of inspector general or a

referral to another agency for the purposes of such suit; a list of all audit reports completed by the

office during the reporting period and a statement of recommendations of amendments to this

chapter or the rules, regulations or procedures governing the office of inspector general which

would improve the effectiveness or the operation of the office.

     (c) The head or governing body of each public body may, within sixty (60) days of

receipt, comment upon any references to such public body contained within the report. Any

comment shall be forwarded to the governor, the attorney general, the general assembly and the

office of inspector general.

     (d) The report of the inspector general shall be made public on the day of filing;

provided, that the report shall not list the names of individuals or corporations, nor describe them

with sufficient particularity as to readily identify them to the general public in those cases in

which no official disposition has been made by the office of inspector general, the office of

attorney general or the local office of the U.S. Attorney.

     SECTION 2. This act shall take effect upon passage.

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EXPLANATION

BY THE LEGISLATIVE COUNCIL

OF

A N   A C T

RELATING TO STATE AFFAIRS AND GOVERNMENT -- ESTABLISHING AN OFFICE OF

INSPECTOR GENERAL

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     This act would establish the office of inspector general as an independent administrative

agency charged with the purpose of preventing and detecting fraud, waste and abuse, and

mismanagement in the expenditure of public funds.

     This act would take effect upon passage.

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