River A Judgment

STATE OF FLORIDA
DIVISION OF ADMINISTRATIVE HEARINGS

IN RE:
DAVID RIVERA,
Case No. 13-1043EC
Respondent.
_______________________________/
AMENDED AS TO PENALTY
RECOMMENDATION ONLY
AMENDED RECOMMENDED ORDER AFTER REMAND

Pursuant to notice, a final hearing was conducted in this
matter on February 12, 2014, in Tallahassee, Florida, and Miami,
Florida (via video teleconference), and continued on
February 20, 2014, in Tallahassee, Florida, before
Administrative Law Judge W. David Watkins of the Division of
Administrative Hearings (DOAH).
APPEARANCES
For Advocate:
Lisa Marie Raleigh, Esquire

Diane L. Guillemette, Esquire
Office of the Attorney General
The Capitol, Plaza Level 01
Tallahassee, Florida 32399-1050
For Respondent:
Leonard M. Collins, Esquire

Broad and Cassel
215 South Monroe Street
Tallahassee, Florida 32301
STATEMENT OF THE ISSUES
There are seven alleged violations at issue, six of which

are related to alleged financial disclosure violations.
stipulated by the parties, at issue is whether Respondent
violated:
As
1. Section 112.313(6), Florida Statutes,1/

by requesting and/or accepting State
reimbursement for travel expenses that were
paid by campaign accounts and/or State
office expense accounts;
2. Article II, section 8, Florida
Constitution, by failing to or not properly
reporting income; and/or stocks and bonds;
and/or secondary source income on his 2005
CE Form 6, Full and Public Disclosure of
Financial Interest;
and/or bank accounts; and/or real property;
Financial Interest;
Financial Interest;
Financial Interest;
Financial Interest; and
7. Section 112.3144, Florida Statutes, by
failing to file a CE Form 6F Final Full and
2
Public Disclosure of Financial Interests

within 60 days of leaving his position with
the Florida House of Representatives.
PRELIMINARY STATEMENT
On October 24, 2012, the Commission on Ethics
(Commission) entered an Order Finding Probable Cause, finding
that there was reasonable cause to believe that Respondent
violated provisions in chapter 112, Florida Statutes, and
Article II, section 8, Florida Constitution.
Specifically, it
found probable cause to believe Respondent violated the

following provisions:
Section 112.313(4), Florida Statutes, by
receiving income from Southwest Florida
Enterprises, Inc., when he knew, or with the
exercise of reasonable care should have
known, it was given in an effort to
influence Respondent's vote[s] and/or
actions;
having a contractual relationship with
Southwest Florida Enterprises, through
Millennium Marketing Inc., which was
regulated by the Respondent's agency, and/or
a relationship which would create a
continuing or frequently recurring conflict
between Respondent's private interests and
the performance of his duties as a Florida
Representative, and/or would impede the full
and faithful discharge of Respondent's
public duties;
using campaign funds for non-campaign
related expenditures;
requesting and/or accepting State
3
reimbursement for travel expenses that were

paid by campaign fund accounts and/or State
office expense accounts;
Article II, section 8, Florida Constitution,
by failing to or not properly reporting
income; and/or stocks and bonds; and/or
secondary source income on his 2005 CE Form
6, Full and Public Disclosure of Financial
Interests;
Article II, section 8, Florida Constitution,
by failing to or not properly reporting
income; and/or stocks and bonds; and/or bank
accounts; and/or real property; and/or
secondary source income on his 2006 - 2009
Financial Interests;
Section 112.3144, Florida Statutes, by
failing to file a [2010] CE Form 6F, Final
Full and Public Disclosure of Financial
Interests, within 60 days of leaving his
position with the Florida House of
Representatives; and,
failing to report Millennium Marketing,
Inc.'s gift of forgiveness of a portion of
Respondent's indebtedness.
The matter was referred to DOAH on March 20, 2013, for the
assignment of an administrative law judge to conduct a public
hearing and enter a recommended order.
Thereafter, the matter
was assigned to the undersigned, and set for hearing on June 11

and 12, 2013, in Miami, Florida.
However, at the request of the
parties the final hearing was continued three times, and

ultimately scheduled to commence on February 12, 2014.
Prior to the final hearing, the parties stipulated to

several facts and conclusions of law in a Joint Pre-hearing
Statement.
The parties' stipulations have been incorporated
below to the extent they are relevant.
Also prior to the
hearing, the Advocate abandoned allegations relating to

purported violations of sections 112.313(4), 112.313(7), and
112.3148(8).
Thus, the only remaining allegations in dispute
are the seven stipulated by the parties in their Joint Prehearing Statement.
The final hearing was conducted in two parts.
On
February 12, 2014, the hearing was conducted via video

teleconference with locations in Tallahassee and Miami.
The
second and final day of hearing was held on February 20, 2014,
in Tallahassee.
At the final hearing, the Advocate presented the testimony
of the following witnesses:
Kimsey and Keith Powell.
Alex Havenick, Brett Lycett, Kelly
The Advocate offered 26 exhibits, all
of which were received in evidence.
Respondent testified on his
own behalf, and offered six exhibits, five of which were

received in evidence.
The three-volume Transcript of the hearing was filed at
DOAH on March 10, 2014.
On April 9, 2014, the parties timely
filed their Proposed Recommended Orders, which have been
carefully considered in the preparation of this Amended

Recommended Order After Remand.
FINDINGS OF FACT
Based upon the testimony and documentary evidence presented
at hearing, the demeanor and credibility of the witnesses, and
on the entire record of this proceeding, the following findings
of fact are made:
Background
1.
At all times material to the Complaint, Respondent was
a public officer.
2.
Respondent no longer holds public office.
Respondent successfully ran for the Florida House of
Representatives in 2002, 2004, 2006, and 2008.
Respondent
briefly ran for election to the Florida Senate in 2010 and

opened a campaign account for that purpose.
3.
Respondent successfully ran for U.S. House of
Representatives in 2010, but was defeated in 2012 for reelection.

4.
Respondent also ran for State Committeeman, a private,
political party office of the Republican Party of Florida, in

2003, 2004, and 2008, and opened campaign accounts for that
purpose.
State Reimbursement for Travel Expenses that were Paid from

Respondent's Campaign Accounts or State Office Expense Accounts
5.
The State of Florida allows reimbursement to employees
and elected officials for travel and related expenses incurred

during the conduct of official state business.
Such expenses
include, among other things, airfare, rental cars, hotels, and

meals while travelling.
6.
The Florida House of Representatives' Office of
Legislative Services is responsible for reviewing and approving

expense reimbursements for members of the Florida House of
Representatives.
Respondent's state travel expenses were
reimbursed by the Office of Legislative Services when he served

as a member of the Florida House of Representatives from 20022010.
7.
Kelly Kimsey, at the time a Senior Crime Intelligence
Analyst II with the Public Corruption Unit of the Florida

Department of Law Enforcement (FDLE), testified that she
conducted the forensic analysis for this case utilizing
financial records subpoenaed from financial institutions.
In
doing so, Ms. Kimsey analyzed Respondent's personal bank

accounts, as well as his campaign accounts, and compared them
against his campaign records.
8.
Ms. Kimsey created a summary showing Respondent's Bank
of America campaign accounts ending in 1626, 9269, and 0856.
The account statements, as well as the actual cancelled checks,

reflect payments directly from the campaign accounts to
Respondents credit card accounts, in payment of the full
balance due on Respondent's personal credit cards.
9.
Notwithstanding the fact that Respondent had several
credit cards, including a Chase Visa, American Express, and U.S.

Senate Federal Credit Union Visa Gold, Respondent did not pay
for expenses relating to his official duties as a state
representative on a designated credit card.
Rather, Respondent
testified that his personal expenses, political party expenses,

state house campaign expenses, and state house official expenses
were all comingled among all of his credit cards because the
Florida House of Representatives does not issue credit cards.
10.
On twenty-nine separate occasions throughout the
period at issue, Respondent requested and received State of

Florida direct-deposit reimbursement into his personal bank
account for travel that was paid for by one of his campaign
accounts, either his official campaign account or his
committeeman account.
The total reimbursement Respondent
improperly received in this manner totaled tens of thousands of

dollars.
11.
Three such examples follow.

Respondent requested reimbursement of $622.90 for
official state travel in March of 2006.
Respondent's travel
expenses were charged to his Chase credit card.

8
The Chase
credit card balance, which included the travel expenses, was

paid for by Respondent's Campaign account numbered 1626.
The
State paid $622.90 for that travel into Respondent's personal

bank account.
12.
Respondent requested reimbursement of $738.59, also
for travel in March of 2006.
Respondent's travel expenses were
charged to his U.S. Senate Federal Credit Union credit card.

The U.S. Senate Federal Credit Union credit card balance, which
included the travel expenses, was paid by Respondent's Campaign
accounts numbered 9269 and 1626.
The state paid $738.59 for
that travel into Respondent's personal bank account.

13.
Respondent requested reimbursement of $1,692.32 for
official state travel in December of 2008.
Respondent's travel
expenses were charged to his American Express credit card.
The
American Express credit card balance, which included the travel

expenses, was paid by Respondent's Campaign account numbered
9269.
The state paid $1,692.32 for that travel into
Respondent's personal bank account.2/

14.
The Advocate established by clear and convincing
evidence that Respondent received State of Florida reimbursement

for travel and related expenses that were in fact paid for by
one of his campaign accounts.
Thus, Respondent was reimbursed
for tens of thousands of dollars of expenses which he did not

incur.
The evidence also clearly and convincingly established

9
that this double-reimbursement was knowing and intentional,

since Respondent himself authorized the travel-related credit
card charges, and then subsequently personally drafted the
campaign account checks used to pay off the credit card
balances.
He also personally signed and submitted the State of
Florida reimbursement requests.

15.
The amounts reimbursed by the State of Florida for
travel-related expenses that were paid by Respondents campaign

accounts represent income to Respondent.
16.
Respondent characterized the double-reimbursement
allegation as an accounting dispute.
Respondent testified
that he had loaned his campaigns personal funds, and that the
payments made from his campaign accounts directly to his credit
card accounts should be considered repayments of his loans to
his campaign accounts.
However, Respondent provided no
corroborative evidence to substantiate personal loans to his

campaign accounts, and his testimony in this regard is rejected
as not credible.
Additional Sources of Income
17.
Millennium Marketing, Inc. (Millennium) and Southwest
Florida Enterprises entered into a Consulting Agreement

(Agreement) effective November 1, 2006.
Pursuant to that
agreement, Millennium (Consultant) was to provide consulting and
10
strategic advice relative to a Miami-Dade County referendum

campaign for approval of slot machine gaming.
18.
Respondent acted as the chief strategist and primary
provider of services under the Agreement.
Indeed, the Agreement
expressly stated that Respondent was to be the person primarily

responsible for leading the strategic effort to win approval of
the referendum:
The Consultant agrees, as a condition
precedent to this Agreement, that it shall
engage David Rivera as the key person to act
as the primary provider of service pursuant
to the terms and conditions of this
Agreement and to act as the intermediary on
behalf of the Consultant with the Company
for all purposes, and that the failure of
David Rivera to act in these capacities
shall be grounds to terminate immediately
this Agreement, without notice and without
the Company's being required to pay any
further amounts or damages, except for
accrued, payable and incurred amounts due
and previously invoiced as the date of
termination.
19.
The Agreement provided for a base compensation to
Millennium of $250,000.00, with an additional bonus of

$750,000.00 should the gaming referendum prove successful.
20.
The officers of Millennium were Respondent's mother,
Daisy Magarino-Rivera, and Ileana Medina.

21.
On October 13, 2010, a Miami Herald article was
published in which Respondents income was questioned.

response to the article, the Florida Department of Law
11
In
Enforcement (FDLE) immediately began a criminal investigation of

Respondents sources of income and financial reporting.
22.
A subpoena was issued to Millennium on December 2,
2010, requesting any and all financial records from the

inception of Millennium to the present concerning any and all
payments made to or received from David Rivera and/or
Interamerican Government Relations.
23.
Millennium supplied documents pursuant to the subpoena
in two separate productions.
FDLE received the first group of
documents on December 17, 2010, and a second group on

January 24, 2011.
The first response included 11 checks made
payable to Respondent, totaling $132,000.
The checks have no
notation on the For line, whether loan, contingent loan,

compensation, or otherwise.
24.
The following checks were drafted by Millennium, made
payable to David M. Rivera, and deposited into Respondent's

personal bank account:
Check No. 1006, dated January 8, 2007,
$25,000 deposited January 10, 2007;
Check No. 1007, dated February 20, 2007,
$10,000 deposited February 22, 2007;
$10,000 deposited March 11, 2009;
Check No. 1015, dated June 12, 2008,
$20,000 deposited July 10, 2008;
12
Check No. 1025, dated October 2, 2009,

$18,000 deposited October 6, 2009;
Check No. 1026, dated October 3, 2009,
$12,000 deposited October 6, 2009;
Check No. 1033, dated March 10, 2010,
Check No. 1036, dated August 10, 2010,
$8,000 deposited August 16, 2010;
Check No. 1038, dated August 12, 2010,
$4,000 deposited August 16, 2010.
25.
As can be seen, Check No. 1024 is out of check number
sequence for the date, and was not deposited until March 11,
2009, more than a year after it is dated.
While it is possible
that this check was intentionally pulled from the back of the
checkbook and drafted, such seems extremely unlikely given that
the rest of the check numbers are in numerical order for the
dates of issuance.
Rather, the more plausible explanation for
this anomaly is that the check was actually drafted shortly

before it was deposited by Respondent in March 2009, and for
some reason intentionally backdated to February 26, 2008.
This
inference is supported by the fact that with one exception, all

of the other checks were deposited by Respondent within 30 days,
and most within just a few days, of the check date.3/
13
Given this
inference, the promissory note purporting to correspond to the

February 26, 2008, loan was, in all likelihood, also
inaccurately dated.
26.
Respondent contends that the above payments represent
the proceeds of loans made to him by Millennium.
In support of
this contention, Respondent introduced 11 promissory notes whose

dates correspond exactly to the dates of the 11 checks above.
27.
Copies of the promissory notes were not included in
Millenniums first document production to FDLE, but rather were

included with the second group of documents provided by
Millennium on or about January 24, 2011.
28.
The promissory note dated February 26, 2008,
corresponds directly with check number 1024.
As noted, the
corresponding proceeds of that purported loan ($10,000) were not

actually received by Respondent until the following year when
check number 1024 was deposited on March 11, 2009.
29.
Respondent testified that he repaid the Millennium
loans in November 2010 with two checks from his personal account
in the amounts of $29,760.27 and $11,845.21, and the conveyance
of ownership of the condominium unit identified as collateral in
the promissory notes.
30.
Ileana Medina of Millennium and Respondent's mother
(Ms. Magarino-Rivera) loaned Respondent the cash to timely repay

the loans to Millennium.
Specifically, on October 29, 2010,

14
Respondent's personal account received a deposit of $49,000 from

Ileana Medina's Bank of America Home Equity Line of Credit
(HELOC).
The deposit raised his balance to $55,418.
That
deposit allowed Respondent to clear two checks to Millennium on

November 24, 2010, totaling $41,605.48, both checks identified
as loan repayment.
31.
Between December 21 and 24, 2010, Respondent deposited
$19,714.72 from his mother's savings bonds into his personal

account.
On December 22, 2010, Respondent deposited $10,000
into his personal bank account from his Charles Schwab account.
These two deposits allowed Respondent to repay nearly $30,000
towards Ms. Medina's HELOC on December 28, 2010.
32.
On January 6, 2011, Respondent deposited $20,000 from
his inactive campaign account number 92694/ into his personal

account.
The $20,000 had been deposited into Account No. 9269
by cashier's check, remitter Daisy Rivera.
That deposit allowed
Respondent to pay off the remaining $18,286 of Ms. Medina's

HELOC.
33.
Respondent testified that he secured the $49,000 HELOC
loan from Ms. Medina for his congressional campaign in case he

needed more money than what had been budgeted for media time.
However, as of October 2010 (the time of the loan from
Ms. Medina), Respondent's congressional campaign account had a
15
balance of $96,645.19.
Notably, the campaign had donated
$87,000 to charitable organizations just the month before.

34.
Brett Lycett was the lead investigator for the FDLE
criminal investigation of Respondent.
Being skeptical of the
legitimacy of the promissory notes, Inspector Lycett asked

Millennium for the original promissory notes and the computer on
which the promissory notes were prepared in order to conduct a
forensic analysis.
A forensic analysis of the computer and the
original documents would have helped identify when the actual

documents were created and/or signed.
35.
Ms. Magarino-Rivera (Respondents mother) told
Investigator Lycett that the computer on which the promissory

notes were created had been discarded.
Ms. Magarino-Rivera also
advised Investigator Lycett that the original promissory notes

had been given to Respondent once he had repaid the loans.
36.
The Advocate propounded discovery to Respondent in
this case requesting the original promissory notes.
In
response, Respondent stated [O]nly copies of such promissory

notes are in Respondent's possession.
37.
The greater weight of the evidence supports the
conclusion that the $132,000 in payments made to Respondent from

2007 through 2010 were compensation paid to Respondent for his
consulting work on the gaming referendum, rather than the
proceeds of loans from Millennium.
16
This evidence includes:
the
absence of any notation on the actual checks that they

represented a loan to Respondent; the Check No. 1024 anomaly
discussed in Finding of Fact 25 above; and the absence of the
computer and original promissory notes upon which a forensic
analysis could be performed to determine the legitimacy of the
dating.
That having been said, the evidence of record does not
rise to the clear and convincing standard required in this

proceeding.
38.
Respondent testified that repayment of the $132,000 in
Millennium loans was contingent on whether Respondent

consummated a business relationship with or joined Millennium by
January 15, 2011.
Thus, for financial disclosure purposes,
Respondent treated the loans he received from Millennium as

contingent liabilities, and did not report the loans on his CE
Form 6's for the years 2007-2010.
39.
Respondent offered no evidence to support his
contention that Millennium considered the loans to Respondent to

be contingent on whether Respondent consummated a business
relationship with or joined the company.
Moreover, Respondents
contention is belied by the express language of the promissory

notes themselves, which make no mention of Respondents
repayment obligation being contingent on any future event.
40.
Respondents assertion that the loans from Millennium
were contingent liabilities is rejected.

17
Rather, the best
evidence of Respondents obligation to repay the loans are the

promissory notes, which clearly state that Respondents
obligation to repay the loans was unconditional.
Respondents Form 6 Financial Disclosures for 2005 through 2009
41.
On his 2005 CE Form 6, Respondent disclosed only his
State of Florida, House of Representatives' salary of $29,916.

However, review of Respondent's personal bank account records
reflects income of approximately $52,473 in 2005, and personal
expenditures of approximately $75,000.
42.

43.

44.

18
45.

46.
The Advocate clearly and convincingly established that
for reporting years 2005 through 2009, Respondent had income

well in excess of what he reported on his CE Forms 6 for those
years.
Even assuming the $95,000 received from Millennium
during 2007, 2008, and 2009 was a loan, not income, Respondents
other income still exceeded by tens of thousands of dollars the
amounts that he reported on his CE Form 6s for the years at
issue.
47.
No loans, contingent or otherwise, were disclosed as
liabilities in Respondent's 2006, 2007, 2008, or 2009 CE

Forms 6.
48.
CE Form 6 requires a specific description of each
asset valued over $1,000.
On his 2005 through 2009 CE Forms 6,
Respondent listed real estate, 401K, stocks and bonds and

bank accounts.
In his Proposed Recommended Order, Respondent
conceded that he did not list certain assets with the level of
detail required by the Commission for the years 2006-2009.
49.
CE Form 6 asks for major clients under section D as
Secondary Sources of Income.
For purposes of the CE Form 6,

19
Secondary Sources are not second jobs.
Rather, the reporter
is required to disclose major customers, clients and other

sources of income to business entities of which they have an
interest.
50.
Under Secondary Sources of Income, Respondent listed
Interamerican Government Relations as a business entity with

the U.S. Agency for International Development as a major
client on his 2005-2009 CE Form 6's.
According to Respondent,
while serving in the Florida House, Respondent was engaged in

international democracy building programs with the U.S.
Government.
Funds paid to the Respondent under these grant
programs were nominal and intended to pay only for expenses

incurred while Respondent participated in the programs.
51.
Respondent also disclosed Millennium as a secondary
source of income on his 2005 CE Form 6, but not on his 2006

through 2009 CE Form 6s.
52.
Respondent filed the first set of CE Form 6X,
Amendment to Full and Public Disclosure of Financial Interests,

on October 15, 2010.
These amendments delete the secondary
source of income disclosed for 2003 through 2009, but make no

other changes.
53.
Respondent filed a second set of CE Form 6X on
January 4, 2011, for the years 2006 through 2009, which

specifically identifies parcels of real estate, provides the
20
address for Respondent's bank account with Bank of America, and

lists stocks and bonds with particularity.
The amendments for
2007, 2008, and 2009 also list contingent loans from Ileana
Medina and/or Millennium for those years.
54.
A CE Form 6F, Final Full and Public Disclosure of
Financial Interest was required to be filed within 60 days from

November 2, 2010, the date Respondent left office as a state
representative.
55.
The significant difference between a CE Form 6 and a
CE Form 6X is that the CE Form 6 asks for the financial

information as of December 31, or a more current date.
The CE
Form 6X asks for financial information as of the date the

discloser left office.
56.
On March 25, 2011, Respondent filed CE Form 6 which
refers to an attachment under liabilities.
Attached is a United
States House of Representatives' Disclosure Statement which

lists a contingent liability/loan from Ileana Medina and/or
Millennium as paid in full in 2010.
57.
On August 7, 2012, and August 24, 2012, Respondent
filed two CE Forms 6X.
The accompanying cover letter refers to
the forms as amendments to Respondent's CE Form 6F filed for

2010.
The Form filed on August 24, 2012, lists Millennium as a
contingent liability and also lists a loan from Ileana Medina

for $49,000.
21
58.
Respondent testified that he was not aware that he was
required to file a CE Form 6F in January 2011.
He stated that
he thought the report was due in May or June of the following

year.
He also testified that he filed the report in March 2011,
because he received a call from the Florida House counsel

advising him that the report was overdue.
CONCLUSIONS OF LAW
59.
The Division of Administrative Hearings has
jurisdiction over the parties and the subject matter of this

proceeding.
60.
120.569 and 120.57(1), Fla. Stat.
As a member of the Florida House of Representatives
from 2002 through 2010, Respondent was subject to Article II,

section 8, Florida Constitution, and part III, chapter 112,
Florida Statutes (the Code of Ethics for Public Officers and
Employees) for his acts and omissions during the time of the
alleged violations.
61.
Section 112.322, and Florida Administrative Code Rule
34-5.0015, authorize the Commission on Ethics to conduct

investigations and to make public reports on complaints alleging
violations of the Code of Ethics.
62.
The Florida House of Representatives has jurisdiction
over the appropriate penalty in this matter.

Fla. Stat.
22
112.324(8)(e),
63.
In this proceeding, the Commission, through its
Advocate, is asserting the affirmative of the issues.

Therefore, as the parties stipulated, the Advocate has the
burden of establishing by clear and convincing evidence the
elements of Respondent's alleged violations.
Latham v. Fla.
Commn on Ethics, 694 So. 2d 83 (Fla. 1st DCA 1997) (citing

Dep't of Banking & Fin. v. Osborne Stern, 670 So. 2d 932 (Fla.
1996), and Ferris v. Turlington, 510 So. 2d 292 (Fla. 1987)).
64.
As noted by the Florida Supreme Court:

[C]lear and convincing evidence requires
that the evidence must be found to be
credible; the facts to which the witnesses
testify must be distinctly remembered; the
testimony must be precise and explicit and
the witnesses must be lacking in confusion
as to the facts in issue. The evidence must
be of such weight that it produces in the
mind of the trier of fact a firm belief or
conviction, without hesitancy, as to the
truth of the allegations sought to be
established.
In re: Henson, 645 So. 2d 398, 404 (Fla. 2005) (quoting

Slomowitz v. Walker, 429 So. 2d 797, 800 (Fla. 4th DCA 1983)).
The Supreme Court of Florida also explained, however, that,
although the clear and convincing standard requires more than
a preponderance of the evidence, it does not require proof
beyond and to the exclusion of a reasonable doubt.
23
Id.
Reimbursement for Travel-Misuse of Public Position

65.
Section 112.313(6) provides as follows:

(6) MISUSE OF PUBLIC POSITION. No public
officer, employee of an agency, or local
government attorney shall corruptly use or
attempt to use his or her official position
or any property or resource which may be
within his or her trust, or perform his or
her official duties, to secure a special
privilege, benefit, or exemption for
himself, herself, or others. This section
shall not be construed to conflict with
section 104.31.
66.
The term corruptly is defined by section 112.312(9),
as follows:
Corruptly means done with a wrongful
intent and for the purpose of obtaining, or
compensating or receiving compensation for,
any benefit resulting from some act or
omission of a public servant which is
inconsistent with the proper performance of
his or her public duties.
67.
In order to establish a violation of section
112.313(6), the following elements must be proved:

1. Respondent must have been a public
officer or employee.
2.
Respondent must have:
a) used or attempted to use his or her

official position or any property or
resources within his or her trust;
or
b)
performed his or her official duties.
24
3. Respondent's actions must have been

taken to secure a special privilege, benefit
or exemption for him - or herself or others.
4. Respondent must have acted corruptly,
that is, with wrongful intent and for the
purpose of benefiting him- or herself or
another person from some act or omission
which was inconsistent with the proper
performance of public duties.
68.
Section 112.061(3)(b) provides:

Travel expenses of travelers shall be
limited to those expenses necessarily
incurred by them in the performance of a
public purpose authorized by law to be
performed by the agency and must be within
the limitations prescribed by this section.
69.
According to the Advocate, Respondent recovered the
costs of his travel twice - once, from the State of Florida and
a second time through one of his campaign accounts.
By doing
so, Respondent secured a special private gain, that of

additional income, which is inconsistent with his public duties.
Respondent maintains that he was owed reimbursements from his
various campaign accounts dating back to 2002.
He further
maintains that he is still owed funds from his campaign accounts

to this day.
Some of the funds owed are from his political
party campaigns.
70.
The facts adduced at hearing do not support
Respondents theory that campaign account payments made to him,

as well as directly to his credit card accounts, represented
25
reimbursements for past loans.
Accordingly, Respondents
testimony in this regard is rejected as non-credible.

71.
The credible forensic financial evidence presented at
hearing revealed that payments toward Respondent's personal

credit cards came from both his committeeman and Florida House
Campaign accounts.
The evidence also established that
Respondent's committeeman campaign accounts were primarily used

to pay Respondent's personal credit card charges.
He presented
no evidence that funds from account number 1626, at the time it

was designated a committeeman account, were used for any
campaign related expenses.
The records reflect that it was used
solely to pay Respondent's personal credit cards, or for cash

withdrawals.
Account number 9269 does show campaign related
expenses of $143,470.44, mostly in July and August 2008, but

more than $80,000 of that account was applied to Respondent's
personal credit cards.
72.
Regardless of which campaign paid for Respondents
travel expenses, Respondent did not incur the expenses himself.

When Respondent requested and received deposits to his personal
bank account for travel expenses from the State of Florida he
accepted money that he was not due from the State of Florida.
73.
To satisfy the statutory element of corrupt intent,
clear and convincing evidence must be adduced that Respondent

acted with reasonable notice that his conduct was inconsistent
26
with the proper performance of his public duties and would be a

violation of the law or the code of ethics.
Blackburn v.
State, Comm'n on Ethics, 589 So. 2d 431, 434 (Fla. 1st DCA
1991).
74.
Direct evidence of [wrongful] intent is often
unavailable.
Shealy v. City of Albany, Ga., 89 F.3d 804, 806
(l1th Cir. 1996); see also State v. West, 262 So. 2d 457, 458
(Fla. 4th DCA 1972) ([I]ntent is not usually the subject of
direct proof.).
75.
Circumstantial evidence, however, may be relied upon
to prove the wrongful intent which must be shown to establish a

violation of section 112.313(6).
See U.S. v. Britton, 289 F.3d
976, 981 (7th Cir. 2002) (As direct evidence of a defendant's

fraudulent intent is typically unavailable, specific intent to
defraud may be established by circumstantial evidence and by
inferences drawn from examining the scheme itself that
demonstrate that the scheme was reasonably calculated to deceive
persons of ordinary prudence and comprehension.) (internal
quotation marks omitted).
For instance, such intent may be
inferred from the public servant's actions.
See Swanson v.
State, 713 So. 2d 1097, 1101 (Fla. 4th DCA 1998) (Appellant's
actions are sufficient to show intent to participate.); State
v. Breland, 421 So. 2d 761, 766 (Fla. 4th DCA 1982) (Actions
manifest intent.); and G.K.D. v. State, 391 So. 2d 327, 328-29
27
(Fla. 1st DCA 1980) (Appellant testified that he did not intend
to break the window, but the record indicates that he did
willfully kick the window, and he may be presumed to have
intended the probable consequences of his actions.).
76.
Respondent personally authorized the travel expenses
which were charged to his credit cards.
He also personally
signed and submitted the travel reimbursement requests to the

State of Florida.
Finally, Respondent also personally signed
the campaign account checks used to pay off his credit card
balances.
Respondent individually, and without the
participation of anyone else, personally orchestrated this

sequence of events.
Thus, Respondent knowingly and
intentionally received travel reimbursements from the State of

Florida to which he was not entitled.
Thus, the required mens
rea element of section 112.312(9) (corrupt intent) has been met.

77.
At the time of the state travel payments, Respondent
was a public official.
The Advocate established by clear and
convincing evidence that Respondent used his official position

to request and receive state travel reimbursement for travel
expenses that he did not personally incur.
These actions gave
Respondent a special benefit, additional income.
Such acts were
inconsistent with the proper performance of Respondent's public

duties, and therefore constitute a violation of section
112.313(6).
28
Financial Disclosure
78.
Article II, section 8 of the Florida Constitution
provides in relevant part:

Section 8 Ethics in government. A public
office is a public trust. The people shall
have the right to secure and sustain that
trust against abuse. To assure this right:
(a) All elected constitutional officers and
candidates for such offices and, as may be
determined by law, other public officers,
candidates, and employees shall file full
and public disclosure of their financial
interests.
* * *
(i) ScheduleOn the effective date of this
amendment and until changed by law:
(1) Full and public disclosure of financial
interests shall mean filing with the
custodian of state records by July 1 of each
year a sworn statement showing net worth and
identifying each asset and liability in
excess of $1,000 and its value together with
one of the following:
a. A copy of the persons most recent
federal income tax return; or
b. A sworn statement which identifies each
separate source and amount of income which
exceeds $1,000. The forms for such source
disclosure and the rules under which they
are to be filed shall be prescribed by the
independent commission established in
subsection (f), and such rules shall include
disclosure of secondary sources of income.
(2) Persons holding statewide elective
offices shall also file disclosure of their
financial interests pursuant to subsection
(i)(1).
29
(3) The independent commission provided for

in subsection (f) shall mean the Florida
Commission on Ethics.
79.
Section 112.3144(1) provides as follows:

(1) An officer who is required by s. 8,
Art. II of the State Constitution to file a
full and public disclosure of his or her
financial interests for any calendar or
fiscal year shall file that disclosure with
the Florida Commission on Ethics.
A.
The Millennium Marketing Loans

80.
The Advocate contends that payments from Millennium to
Respondent for the years 2007-2010 were income and should have
been disclosed by the Respondent on his CE Form 6s for the
applicable years.
However, as found herein, the Advocate did
not prove that the funds received by Respondent from Millennium

were income, rather than loans, by clear and convincing
evidence.
81.
The Advocate argues that because Respondent (and
Millennium) failed to produce the original promissory notes, or

the computer on which they were prepared, the undersigned should
draw an adverse presumption that an examination of the originals
would have shown that they were prepared and signed much later
in time, and not contemporaneously with the dates stated on the
face of the documents.
However, even were the undersigned to
agree that under the facts of this case such a presumption is
30
merited, it would not rise to the level of clear and convincing

evidence.
82.
A contingent liability is defined in the CE Form 6
instructions as:
[O]ne that will become an actual liability
only when one or more future events occur or
fail to occur, such as where there is
pending or threatened litigation, where you
are liable only as a partner (without
personal liability) for partnership debts,
or where you are liable only as a guarantor
surety or endorser on a promissory note.
83.
Neither the promissory notes, nor the checks
themselves, indicate any type of contingency.
Respondents
testimony that both he and Millennium considered the loans to be

contingent is not supported by the evidence and is rejected.
84.
While the Advocate has not established by clear and
convincing evidence that the Millennium funds represented income

that should have been reported on CE Form 6, it has been
established by clear and convincing evidence that Respondent
violated Article II, section 8 of the Florida Constitution by
failing to report his loans from Millennium, since they
represented liabilities well in excess of $1,000.
B.
Income from State of Florida Travel Reimbursements

85.
Respondent did not disclose the income he received
from State of Florida travel reimbursements.
Since Respondent
did not personally pay for the travel expenses he was reimbursed
31
for, the payments he received represented income to Respondent.

Accordingly this income, totaling tens of thousands of dollars,
should have been, but was not, reported on CE Form 6s for 2005,
2006, 2007, 2008, and 2009.
C.
Non-Disclosure of Other Sources of Income

86.
The Advocate also clearly and convincingly established
that for reporting years 2005 through 2009, Respondent had

income well in excess of what he reported on his CE Form 6s for
those years, in violation of Article II, section 8 of the
Florida Constitution.
D.
Description of Assets
87.
Respondent conceded that he did not list certain of
his assets with the level of detail generally required by the

Commission for the years 2006-2009.
88.
One of the acknowledged purposes of financial
disclosure is to provide members of the public with the

opportunity to detect conflicts of interest on the part of
public officials.
CEO 77-139; Goldtrap v. Askew, 334 So. 2d 20
(Fla. 1976).
89.
[E]ach asset should be identified sufficiently to
allow the public to ascertain with what persons or business

entities the officer's personal financial interests lie.
77-139.
32
CEO
90.
Respondents general description of his assets on his
2005 through 2009 CE Form 6s (real estate property, 401K,

stocks and bonds, and bank accounts) are so vague as to
preclude the public from ascertaining whether a conflict could
exist between Respondent's public duties and his holdings.
91.
Respondent filed two sets of amendments to his CE Form
6s for the years in question.
The first set on October 15,
2010, does not address this issue.
The second set filed on
January 4, 2011, does describe Respondent's assets in detail for

the years 2006, 2007, 2008, and 2009.
2005 was not filed.
A second amendment for
Although Respondent has now appropriately
described his assets, the public was deprived of that

information prior to the second set of amendments.
E.
Final Full Public Disclosure

92.
Section 112.3144(6), provides as follows:

(6) Each person required to file full and
public disclosure of financial interests
shall file a final disclosure statement
within 60 days after leaving his or her
public position for the period between
January 1 of the year in which the person
leaves and the last day of office or
employment, unless within the 60-day period
the person takes another public position
requiring financial disclosure under s. 8,
Art. II of the State Constitution, or is
otherwise required to file full and public
disclosure for the final disclosure period.
The head of the agency of each person
required to file full and public disclosure
for the final disclosure period shall notify
such persons of their obligation to file the
33
final disclosure and may designate a person

to be responsible for the notification
requirements of this subsection.
93.
Respondent's last day serving in the Florida House of
Representatives was November 2, 2010.
Consequently, he should
have filed a CE Form 6F Final Full and Public Disclosure of

Financial Interests by January 2, 2011.
Respondent did not.
He did file a CE Form 6 Full Public Disclosure of Financial

Interests for the year 2010 on March 25, 2011.
Attached to that
Form was a United States House of Representatives Ethics in

Government Act Calendar Year 2010 Financial Disclosure
Statement.
94.
Respondent violated section 112.3144(6) by not filing
a CE Form 6F Final Full and Public Disclosure of Financial

Interests by January 2, 2011.
95.
In cases concerning former members of the Florida
Legislature who have violated provisions applicable to former

members or whose violation occurred while a member of the
legislature, as is the case here, the appropriate penalty is to
be determined by the Speaker of the House of Representatives.
112.324(8)(e), Fla. Stat.
RECOMMENDATION
Based upon the foregoing Findings of Fact and Conclusions
of Law, it is hereby
34
RECOMMENDED that the Commission on Ethics issue a Final

Order finding that Respondent:
1. Violated section 112.313(6), Florida
Statutes, by requesting and accepting State
of Florida reimbursement for travel expenses
that were not incurred by him, but rather
were paid by his campaign fund accounts;
2. Violated Article II, section 8, Florida
reporting income and/or stocks and bonds;
through 2009 CE Form 6, Full and Public
Disclosure of Financial Interest;
3. Violated section 112.3144, Florida Statutes,
by failing to file a CE Form 6F Final Full
and Public Disclosure of Financial
Interests within 60 days of leaving his
position with the Florida House of
Representatives.
PENALTY RECOMMENDATION
Based on the foregoing Findings of Fact and Conclusions of
Law, it is:
Recommended that the following penalties be imposed:
a. For violation of section 112.313(6), Florida Statutes,
$10,000; plus restitution in the amount of $41,321.96;
censure and reprimand.
b. For violation of Article II, section 8, of the Florida
Constitution for 2005, a fine of $1,000.
c. For violation of Article II, section 8, of the Florida
35
d. For violation of Article II, section 8, of the Florida

e. For violation of Article II, section 8, of the Florida
f. For violation of Article II, section 8, of the Florida
g. For violation of section 112.3144(6), Florida Statutes,
a fine of $1,500.
For a total fine of $16,500 plus restitution in the amount of
$41,321.96, censure and reprimand.
DONE AND ENTERED this 5th day of March, 2015, in
Tallahassee, Leon County, Florida.
S
W. DAVID WATKINS
Administrative Law Judge
Division of Administrative Hearings
The DeSoto Building
1230 Apalachee Parkway
(850) 488-9675
Fax Filing (850) 921-6847
www.doah.state.fl.us
Filed with the Clerk of the
Division of Administrative Hearings
this 5th day of March, 2015.
ENDNOTES
1/
Unless otherwise noted, all references to the Florida

Statutes are to the 2013 version.
36
2/
The $1,692.32 reimbursement was combined with another State

of Florida travel reimbursement for $399.12. Accordingly,
Respondent's personal bank account reflects a combined State of
Florida deposit of $2,091.44.
3/
The exception is the February 12, 2010, check, which was not
deposited until March 16, 2010.
4/
There had been no activity in this account since June 2010.
COPIES FURNISHED:
Lisa Marie Raleigh, Esquire
Diane L. Guillemette, Esquire
Office of the Attorney General
Department of Legal Affairs
The Capitol, Plaza Level 01
(eServed)
Millie Wells Fulford, Agency Clerk
Florida Commission on Ethics
Post Office Drawer 15709
(eServed)
Leonard M. Collins, Esquire
Broad and Cassel
215 South Monroe Street
(eServed)
C. Christopher Anderson, III, General Counsel
(eServed)
Virlindia Doss, Executive Director
(eServed)
37
NOTICE OF RIGHT TO SUBMIT EXCEPTIONS

All parties have the right to submit written exceptions within
15 days from the date of this Recommended Order. Any exceptions
to this Recommended Order should be filed with the agency that
will issue the Final Order in this case.
38

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STATE OF FLORIDA

DIVISION OF ADMINISTRATIVE HEARINGS

Case No. 13-1043EC

AMENDED RECOMMENDED ORDER AFTER REMAND

Lisa Marie Raleigh, Esquire

Leonard M. Collins, Esquire

There are seven alleged violations at issue, six of which

1. Section 112.313(6), Florida Statutes,1/

Public Disclosure of Financial Interests

found probable cause to believe Respondent violated the

reimbursement for travel expenses that were

Thereafter, the matter

was assigned to the undersigned, and set for hearing on June 11

However, at the request of the

parties the final hearing was continued three times, and

Prior to the final hearing, the parties stipulated to

The parties' stipulations have been incorporated

below to the extent they are relevant.

Also prior to the

hearing, the Advocate abandoned allegations relating to

Thus, the only remaining allegations in dispute

February 12, 2014, the hearing was conducted via video

Alex Havenick, Brett Lycett, Kelly

The Advocate offered 26 exhibits, all

of which were received in evidence.

Respondent testified on his

own behalf, and offered six exhibits, five of which were

On April 9, 2014, the parties timely

filed their Proposed Recommended Orders, which have been

carefully considered in the preparation of this Amended

At all times material to the Complaint, Respondent was

Respondent no longer holds public office.

Respondent successfully ran for the Florida House of

Representatives in 2002, 2004, 2006, and 2008.

briefly ran for election to the Florida Senate in 2010 and

Respondent successfully ran for U.S. House of

Representatives in 2010, but was defeated in 2012 for reelection.

Respondent also ran for State Committeeman, a private,

political party office of the Republican Party of Florida, in

State Reimbursement for Travel Expenses that were Paid from

The State of Florida allows reimbursement to employees

and elected officials for travel and related expenses incurred

include, among other things, airfare, rental cars, hotels, and

The Florida House of Representatives' Office of

Legislative Services is responsible for reviewing and approving

Respondent's state travel expenses were

reimbursed by the Office of Legislative Services when he served

Kelly Kimsey, at the time a Senior Crime Intelligence

Analyst II with the Public Corruption Unit of the Florida

doing so, Ms. Kimsey analyzed Respondent's personal bank

Ms. Kimsey created a summary showing Respondent's Bank

of America campaign accounts ending in 1626, 9269, and 0856.

The account statements, as well as the actual cancelled checks,

Notwithstanding the fact that Respondent had several

credit cards, including a Chase Visa, American Express, and U.S.

testified that his personal expenses, political party expenses,

On twenty-nine separate occasions throughout the

period at issue, Respondent requested and received State of