STATE OF ALABAMA

ETHICS COMMISSIONMAILING ADDRESS

P.O. BOX 4840

MONTGOMERY. AL

36103-4840

STREET ADDRESS

RSA UNION

100 NORTH UNION STREET

SUITE 104

MONTGOMERY. AL 36104COMMISSIONERS

John H. Cooper. Esq., ChairCameron McDonald Vowell, Ph.D., Vice-ChairMichael K.K. Choy, Esq.Linda L. Green

Braxton L. Kittrell, Jr., Esq.

James L. Sumner, Jr.Director

TELEPHONE (334) 242-2997

FAX (334) 242-0248WEB SITE: www.ethics.alalinc.net

August 6, 2008

ADVISORY OPINION NO. 2008-15

Mr. Gene Hallman, Jr.Alabama Sports Foundation, Inc.PresidentBruno Event TeamBruno Capitol Building100 Grandview PlaceSuite 110Birmingham, Alabama 35243

Reporting Requirements/HospitalityProvisions Under The Ethics Law

Hospitality, where the expenditure is madeto, or on behalf of, the Alabama SportsFoundation, Inc., a 501(c)(3) organization towhich a federal income tax deduction is

permitted under Section 170 of the InternalRevenue Code of 1986, or any charitable,education or eleemosynary cause of Section501 of Title 26 of the U.S, Code, does nothave to be reported under the reportingrequirements of Section 36-25-1(31)(b)(3);provided, that the public official or publicemployee does not receive any directfinancial benefit, and the expenditure islegitimately made to, or on behalf of, thecharitable organization.

In addition, while the hospitality providedunder this Section is exempt from thereporting requirements of the Ethics Law, itmay not last longer than three days and maynot otherwise be continuous in nature.

Mr. Gene Hallman, Jr.Advisory Opinion No. 2008-15Page two

Dear Mr. Hallman:

The Alabama Ethics Commission is in receipt of your request for an Advisory Opinion ofthis Commission, and this opinion is issued pursuant to that request.

QUESTION PRESENTED

Does hospitality provided to public officials or public employees either by, or on behalfof, the Alabama Sports Foundation, Inc., a tax exempt charitable foundation, have to be reportedunder Section 36-25-1(31)(b)(3) of the Alabama Ethics Law?

FACTS AND ANALYSIS

The facts as have been presented to this Commission are as follows:

The Alabama Sports Foundation (the "Foundation") is a tax-exempt charitable foundationorganized under Alabama law and qualified under §501(c)(3) of the Internal Revenue Code of1986, contributions to which are deductible under § I70(A)(I )(b) of the Internal Revenue Code.The primary purpose of the Foundation is to foster and support amateur athletic competition inaccordance with § 501(c)(3). Included among the many events that the Foundation hassponsored in the State of Alabama during the past several years are U.S. Men's and Women'sNational Soccer matches, Olympic Marathon Trials, NCAA Men's Basketball Regionals, theMagic City Classic and the Southeastern Conference Baseball Tournament. They are seeking anAdvisory Opinion from the Commission regarding the application of the reporting requirementsunder Section 36-25-1(31)(b)(3) of the Alabama Code to the participation by public employeesand public officials in certain of the activities of the Southeastern Conference BaseballTournament (the "SEC Baseball Tournament") as described below.

At the end of each college baseball season, the top eight teams in the SoutheasternConference during regular season play qualify to participate in the SEC Baseball Tournament tocompete for the Southeastern Conference Tournament Championship. The winner of the SECBaseball Tournament receives an automatic bid to the NCAA Baseball Championships. Since1998, the SEC Baseball Tournament has been conducted at Regions Park (formerly the HooverMet) in Hoover, Alabama by the Foundation under an agreement with the SoutheasternConference. The current agreement between the Foundation and the SEC extends through theyear 20 I I. The Tournament takes place in eight separate sessions over a period of fiveconsecutive days during which the eight teams play for the championship title. A ticket book forall eight sessions can be purchased for a price of $75.00 or tickets for individual sessions can be

Mr. Gene Hallman, Jr.Advisory Opinion No. 2008-15Page three

purchased for $12.00 per ticket. Over the past several years, the Tournament has averagedaggregate attendance of over 100,000 during the five days of the Tournament.

The Foundation operates a corporate hospitality suite at Regions Park during theTournament with a capacity of approximately 400 persons from which the games can be viewed(the "Hospitality Suite"). The Foundation provides food and beverage for persons admitted tothe Hospitality Suite. Admission passes to the Hospitality Suite can be purchased from theFoundation for $450 each by Foundation Supporters for their own personal use and for thepurpose of entertaining their employees, customers and other guests during the game. TheHospitality Suite provides a format for the staff and representatives of the Foundation and forFoundation Supporters to entertain guests in a social setting during the Tournament games. Eachadmission pass purchased for $450 is for one admission to the Hospitality Suite for each oftheeight sessions.

Admission privileges to the Hospitality Suite do not include game admission. Tickets foreach session of the Tournament, which cost $12.00 each, are required for admission to theRegions Park for each Tournament session.

Each of the Hospitality Suite passes which are acquired by Foundation Supportersconsists of a book of passes for the Hospitality Suite for all eight sessions of the Tournament.The individual passes for each session can be separated and used individually for admission.There are occasions when a Foundation Supporter that has acquired Hospitality Suite passes andgame admission tickets for the Tournament may desire to offer Hospitality Suite passes, alongwith game tickets, to one or more individual Tournament sessions to a public employee or publicofficial for use by that public employee or public official, along with guests that the publicemployee or public official may wish to invite, such as a spouse or date and children. There arealso occasions when the Foundation itself may desire to offer Hospitality Suite passes, along withgame admission tickets, to one or more individual Tournament sessions to a public employee orpublic official, for such use by the public employee or public official.

Alabama Code Section 36-25 generally imposes specific restrictions and prohibitions onthe receipt by and offer to public officials and public employees of any "thing of value" as thatterm is defined in the Code. Section 36-25-1(31)(b)(3) provides an exception under permittedcircumstances to the definition of a "thing of value" for hospitality provided to public officialsand public employees. That section reads as follows:

"Hospitality extended to a public official, public employee, and his or herrespective household as a social occasion in the form of food and beverages wherethe provider is present, lodging in the continental United States and Alaskaincidental to the social occasion, and tickets to social or sporting events if the

Mr. Gene Hallman, Jr.Advisory Opinion No. 2008-15Page four

hospitality does not extend beyond three consecutive days and is not continuous innature and the aggregate value of such hospitality in excess of two hundred fiftydollars ($250) within a calendar day is reported to the commission by the providerprovided that the reporting requirement contained in this section shall notapply where the expenditures are made to or on behalf of an organization towhich a federal income tax deduction is permitted under subparagraph (A)of paragraph (1) of subsection (b) of Section 170 of the Internal RevenueCode of 1986, as amended, or any charitable, education or eleemosynarycause of Section 501 of Title 26 of the U.S. Code, and where the public officialor public employee does not receive any direct financial benefit. Thereporting shall include the name or names of the recipient or recipients, thevalue of the entire expenditure, the date or dates of the expenditure, and thetype of expenditure." (Emphasis added).

The amounts paid to the Foundation by Foundation Supporters who acquire HospitalitySuite passes are not necessarily based on the underlying cost of the benefits or the actual marketvalue of the benefits but are significantly derived from the motivation and desire of theFoundation Supporters to support the Foundation, the Southeastern Conference and theuniversities participating in the Tournament. However, it is assumed that the actual price paid tothe Foundation by Foundation Supporters for these privileges is their value for the purposes ofSection 36-25-1(31)(b)(3).

Since each Hospitality Suite bears a cost of $450 to a Foundation Supporter and providesadmission rights to each of the eight sessions of the Tournament, the per session value ofadmission to the Hospitality Suite would be approximately $57. Therefore, the total value ofadmission to the Hospitality Suite and a $12.00 game admission ticket for each session would beapproximately $69 per person. There are a combination of circumstances where the aggregatevalue of game admission tickets and Hospitality Suite admission passes to individualTournament sessions given to a public employee or public official could exceed the $250threshold for reporting to the Commission described in Alabama Code Section 36-25-1(31)(b)(3). For instance, if tickets and passes to a Tournament session are provided to a publicemployee or public official for two individual Tournament sessions that occur on the same day,the aggregate value of those four tickets and four passes would be approximately $276.

As set forth above, Alabama Code § 36-25-I(3I)(b)(3) provides that the reportingrequirement in that section does not apply when permitted hospitality is provided to a publicofficial/employee where the expenditures are made to or on behalf of a Section 501(c)(3)organization, so long as the public official/employee does not receive "any direct financialbenefit." In the above-described circumstances, it would appear that (1) the Foundation and theFoundation Supporters would be providing "hospitality," as that term is defined in § 36-25-1

Mr. Gene Hallman, Jr.Advisory Opinion No. 2008-15Page five

(31)(b)(3), to public officials and to public employees where the provider is present; (2) publicofficials/employees who attend would receive only permitted hospitality (admission to social andsporting events along with food and beverages) and would not receive direct financial benefit;and (3) the expenditures are being made to or on behalf of the Foundation which is a 501(c)(3)organization, contributions to which are deductible under Internal Revenue Code § 170(c)(l)(A).Accordingly, the Foundation requests from the Commission an Advisory Opinion clarifyingwhether the Foundation or the Foundation Supporters would have a reporting obligation underSection 36-25-1(31)(b)(3) when the Foundation or a Foundation Supporter provides a publicofficial/employee with the above-described benefits that have a value of more than $250.

In view of the fact that Section 36-25-1(31)(b)(3) stipulates it applies only where thehospitality involved "does not extend beyond three consecutive days," it is understood thattickets and passes could not be offered to public employees or public officials, under thecircumstances described in this letter, for individual sessions of the Tournament exceed three ofthe five days.

The Alabama Ethics Law, Code of Alabama, 1975, Section 36-25-1(24) defines a publicofficial as:

"(24) PUBLIC OFFICIAL. Any person elected to public office, whether or notthat person has taken office, by the vote of the people at state, county, ormunicipal level of government or their instrumentalities, including governmentalcorporations, and any person appointed to a position at the state, county, ormunicipal level of government or their instrumentalities, including governmentalcorporations. For purposes of this chapter, a public official includes the chairsand vice-chairs or the equivalent offices of each state political party as defined inSection 17-16-2."

Section 36-25-1(12) defines a family member of the public official as:

"( 12) FAMILY MEMBER OF THE PUBLIC OFFICIAL. The spouse, adependent, an adult child and his or her spouse, a parent, a spouse's parents, asibling and his or her spouse, of the public official."

Section 36-25-1(23) defines a public employee as:

"(23) PUBLIC EMPLOYEE. Any person employed at the state, county, ormunicipal level of government or their instrumentalities, including governmentalcorporations and authorities, but excluding employees of hospitals or other healthcare corporations including contract employees of those hospitals or other health

Mr. Gene Hallman, Jr.Advisory Opinion No. 2008-15Page six

care corporations, who is paid in whole or in part from state, county or municipalfunds. For purposes of this chapter, a public employee does not include a personemployed on a part-time basis whose employment is limited to providingprofessional services other than lobbying, the compensation for which constitutesless than 50 percent of the part-time employee's income."

Section 36-25-1(11) defines a family member of a public employee as:

"( 11) FAMILY MEMBER OF THE PUBLIC EMPLOYEE. The spouse or adependent of the public employee."

Section 36-25-5(a) states:

"(a) No public official or public employee shall use or cause to be used his or herofficial position or office to obtain personal gain for himself or herself, or familymember of the public employee or family member of the public official, or anybusiness with which the person is associated unless the use and gain areotherwise specifically authorized by law. Personal gain is achieved when thepublic official, public employee, or a family member thereof receives, obtains,exerts control over, or otherwise converts to personal use the object constitutingsuch personal gain."

Section 36-25-1(31)(a) defines a thing of value as:

"(31) THING OF VALUE.

a. Any gift, benefit, favor, service, gratuity, tickets or passes to an entertainment,social or sporting event offered only to public officials, unsecured loan, other thanthose loans made in the ordinary course of business, reward, promise of futureemployment, or honoraria."

Section 36-25-1(31)(b) defines what the term, thing of value, excludes:

"b. The term, thing of value, does not include any of the following, provided thatno particular course of action is required as a condition to the receipt thereof:

1. Campaign contribution.

2. Seasonal gifts of an insignificant economic value of less than one hundreddollars ($100) if the aggregate value of such gifts from any single donor is lessthan two hundred fifty dollars ($250) during anyone calendar year.

Mr. Gene Hallman, Jr.Advisory Opinion No. 2008-15Page seven

3. Hospitality extended to a public official, public employee, and his or herrespective household as a social occasion in the form of food and beverages wherethe provider is present, lodging in the continental United States and Alaskaincidental to the social occasion, and tickets to social or sporting events if thehospitality does not extend beyond three consecutive days and is not continuous innature and the aggregate value of such hospitality in excess oftwo hundred fiftydollars ($250) within a calendar day is reported to the commission by the providerprovided that the reporting requirement contained in this section shall not applywhere the expenditures are made to or on behalf of an organization to which afederal income tax deduction is permitted under subparagraph (A) of paragraph(1) of subsection (b) of Section 170 of the Internal Revenue Code of 1986, asamended, or any charitable, education or eleemosynary cause of Section 501 ofTitle 26 of the U.S. Code, and where the public official or public employee doesnot receive any direct financial benefit. The reporting shall include the name ornames of the recipient or recipients, the value of the entire expenditure, the date ordates of the expenditure, and the type of expenditure.

4. Reasonable transportation, food and beverages where the provider is present,and lodging expenses in the continental United States and Alaska which areprovided in conjunction with an educational or informational purpose, togetherwith any hospitality associated therewith; provided, that such hospitality is lessthan 50 percent of the time spent at such event, and provided further that if theaggregate value of such transportation, lodging, food, beverages, and anyhospitality provided to such public employee, public official, and his or herrespective household is in excess of two hundred fifty dollars ($250) within acalendar day the total amount expended shall be reported to the commission bythe provider. The reporting shall include the name or names of the recipient orrecipients, the value of the entire expenditure, the date or dates of the expenditure,and the type of expenditure.

5. Payment of or reimbursement for actual and necessary expenditures for traveland subsistence of a public official or public employee in connection with aneconomic development research or trade mission, or for attendance at a mission ormeeting in which he or she is scheduled to meaningfully participate, or regardingmatters related to his or her official duties, and for which attendance noreimbursement is made by the state; provided, that any hospitality in the form ofentertainment, recreation, or sporting events shall constitute less than 25% of thetime spent in connection with the event. If the aggregate value of any suchhospitality extended to the public employee, public official, and his or her

Mr. Gene Hallman, Jr.Advisory Opinion No. 2008-15Page eight

respective household is in excess of two hundred fifty dollars ($250) within acalendar day, the total amount expended for that day shall be reported to thecommission by the provider. The reporting shall include the name or names of therecipient or recipients, the value of such expenditures, the date or dates of theexpenditure, and the type of expenditure."

6. Promotional items commonly distributed to the general public and food orbeverages of a nominal value."

In December of 2007, the Commission rendered Advisory Opinion No. 2007-22, whichheld:

"Hospitality, where the expenditure is made to, or on behalf of, the BirminghamZoo or any other organization to which a federal income tax deduction ispermitted under Section 170 of the Internal Revenue Code of 1986, or anycharitable, education or eleemosynary cause of Section 501 of Title 26 of the U.S.Code, does not have to be reported under the reporting requirements of Section36-25-1(31)(b)(3); provided, that the public official or public employee does notreceive any direct financial benefit, and the expenditure is legitimately made to, oron behalf of, the charitable organization."

The scenario before the Commission is different than Advisory Opinion No. 2007-22, inthat in this scenario, while all benefits are ultimately provided by or to the Alabama SportsFoundation, the Sports Foundation will sell packages to Foundation supporters who will thenprovide the ticket packages to businesses and individuals, including some public officials andpublic employees. Section 36-25-1(31)(b)(3) clearly provides that the expenditures may be madeto, or on behalf of, the charitable organization. That is clearly the situation before theCommission.

Based on this section and the fact that the Alabama Sports Foundation is a non-profitorganization, these expenditures do not have to be reported under the above section.

As Mr. Hallman correctly points out in his request, even though the hospitality is notrequired to be reported, it still may not last longer than three days, nor be considered of acontinuous nature.

Based on the facts as provided and the above law, hospitality, where the expenditure ismade to, or on behalf of, the Alabama Sports Foundation, Inc., a 501(c)(3) organization to whicha federal income tax deduction is permitted under Section 170 of the Internal Revenue Code of1986, or any charitable, education or eleemosynary cause of Section 501 of Title 26 of the U.S.

,..

Mr. Gene Hallman, Jr.Advisory Opinion No. 2008-15Page nine

Code, does not have to be reported under the reporting requirements of Section 36-25-1(31)(b)(3); provided, that the public official or public employee does not receive any directfinancial benefit, and the expenditure is legitimately made to, or on behalf of, the charitableorganization.

In addition, while the hospitality provided under this Section is exempt from the reportingrequirements of the Ethics Law, it may not last longer than three days and may not otherwise becontinuous in nature.

CONCLUSION

Hospitality, where the expenditure is made to, or on behalf of, the Alabama SportsFoundation, Inc., a 501(c)(3) organization to which a federal income tax deduction is permittedunder Section 170 of the Internal Revenue Code of 1986, or any charitable, education oreleemosynary cause of Section 501 of Title 26 of the U.S. Code, does not have to be reportedunder the reporting requirements of Section 36-25-1(31)(b)(3); provided, that the public officialor public employee does not receive any direct financial benefit, and the expenditure islegitimately made to, or on behalf of, the charitable organization.

In addition, while the hospitality provided under this Section is exempt from the reportingrequirements of the Ethics Law, it may not last longer than three days and may not otherwise becontinuous in nature.

AUTHORITY

By 4-0-1 vote of the Alabama Ethics Commission Q

hn H. Cooper, Esq.hair

~labama Ethics Commission