Request By:
Robert G. Curtis, # 092958
Blackburn Correctional Complex
3111 Spurr Road
Lexington, KY 40511Gwen B. Holloman
Blackburn Correctional Complex
3111 Spurr Road
Lexington, KY 40511Tamela Biggs
Department of Corrections
Office of General Counsel
2439 Old Lawrenceburg Road
Frankfort, KY 40602-2400
Opinion
Opinion By: Albert B. Chandler III, Attorney General; Amye L. Bensenhaver, Assistant Attorney General
Open Records Decision
The question presented in this appeal is whether Blackburn Correctional Complex's actions were consistent with the Open Records Act when it failed to afford Robert G. Curtis timely access to "all three volumes of [his] medical records." We find that insufficient evidence is presented to support BCC's actions.
On December 11, 2000, Mr. Curtis submitted his records request to BCC's custodian of records, Betty Ann Walker. Shortly thereafter, Gwen B. Holloman responded that "due to the holiday schedule, staff shortages, and the amount of records . . . request[ed]," Mr. Curtis would not be permitted to inspect those records until January 9, 2001, some twenty-seven days after the date of his request. This appeal followed.
In a supplemental response directed to this office following commencement of Mr. Curtis' appeal, Department of Corrections staff attorney Tamela Biggs elaborated on BCC's position. Acknowledging that Ms. Holloman erred in failing to cite KRS 61.872(5) in her response, Ms. Biggs nevertheless maintained that the response was appropriate. She explained:
Mr. Curtis' medical record covers approximately 10 years and includes three, multi-sectioned file folders. Ms. Holloman informed this office that BCC houses approximately 397 minimum-security inmates. The BCC inmate population includes all ADA minimum-security classified inmates, as well as all minimum-security inmates requiring psychotropic medication. The nursing staff normally consists of two full-time day nurses and a secretary; however, since 15 December 2000, Ms. Holloman has been the only nurse on duty, working 9 to 12 hour days. The other full-time nurse has been on vacation and will not return until 3 January 2001. The medical secretary had left. A temporary agency secretary had been filling in but was not familiar enough with filing and review procedures to be able to help in inmate review of medical records. When an inmate requests an opportunity to inspect records, staff are assigned to sit with the inmate to ensure the integrity of the file. Due to the confidential nature of medical records, staff could not be brought in from other areas of the institution for inspection. Since Ms. Holloman was the only nurse available, she could not drop her medical duties to sit with Mr. Curtis while he reviewed his medical files. In order to allow his inspection request, other inmates could not be afforded nursing assistance, medication, etc. The entire inmate population needing nursing care would be affected during the period set aside for the inspection. Due to all of these factors, Ms. Holloman named a date when both nurses and the new secretary (who begins work on 3 January 2001 and is more familiar with the Department's procedures and files) would be available.
In closing, Ms. Biggs reaffirmed the propriety of BCC's response to Mr. Curtis' request. Absent exigent circumstances that are not present in the appeal before us, we do not find BCC's arguments persuasive.
On the facts presented, we must conclude that BCC unreasonably postponed Mr. Curtis' right of access to his medical records. BCC concedes that those records are maintained in three discrete files, and does not indicate any difficulties in retrieval or redaction. With respect to the issue of timely access, this office has observed:
"Timely access" to public records has been defined as "any time less than three days from agency receipt of the request." OAG 84-300, at p. 3. In OAG 83-23, at page 4, we expressly held that an agency had not acted in accordance with KRS 61.870 to 61.884 "in its failure to allow inspection or make a proper response to [a] request to inspect records after three months from the date of [the] initial request."
The Open Records Act does not prescribe a reasonable time within which access must be afforded to public records. . . . KRS 61.872(5) normally requires an agency to notify the requester and designate an inspection date not to exceed three days from agency receipt of the request. 1
In an early opinion, this Office recognized:
OAG 77-151, at p. 3. . . . We believe that a determination of what is a "reasonable time" for inspection turns on the particular facts presented, i.e., the breadth of the request and the number of documents it encompasses, as well as the difficulty of accessing and retrieving those records. Public agencies must work, in a spirit of cooperation, with individuals who request to inspect their records to insure that those individuals are afforded timely access to the records they wish to inspect.
93-ORD-134, p. 11, 12. The primary justification advanced by BCC in support of its decision to postpone Mr. Curtis' right of access was the unavailability of an employee to oversee his inspection of the records.
In 99-ORD-26, this office commented that, as a general rule, "unreasonable restrictions on inspection may not be imposed." 99-ORD-26, p. 7, citing OAG 8981, p. 4. In support, we cited KRS 61.872(3)(a), recognizing the individual's right to inspect public records "during the regular office hours of the public agency, " and OAG 80-641, page 3, recognizing that "any attempt by a public agency to limit the period of time within which a requester may inspect public records places 'an unreasonable and illegal restriction' upon the requester's right of access. " While we continue to ascribe to the view that "an inmate must accept the necessary consequences of his confinement, including policies relative to application for, or receipt of public records, " 95-ORD-105, p. 5, we have also recognized that a correctional facility cannot adopt records policies that on their face, or as applied, have the effect of unreasonably delaying inmate access to otherwise nonexempt records. 95-ORD-105.
The fact that BCC has elected to assign an employee to monitor Mr. Curtis' inspection of the records does not relieve it of its duty to afford Mr. Curtis timely access to his records. Although it may properly do so, under authority of KRS 61.876(1), BCC cannot condition exercise of the right of inspection on the availability of an employee or employees to oversee the inspection. In general, understaffing during the holidays is not a legally supportable basis for postponing access to public records. Thus, at page 2 of 93-ORD-48, we observed:
KRS 61.876(1) requires a public agency to adopt rules and regulations "in conformity with the provisions of KRS 61.870 to 61.884 to provide full access to public records, to protect public records from damage and disorganization, [and] to prevent excessive disruption of its essential functions . . . ." While this provision does not expressly permit a public agency to appoint an employee to oversee the review of its records, we believe that such a policy is consistent with the agency's grant of authority to protect its records and prevent excessive disruption of its essential functions. Nevertheless, we do not believe that the policy can be used to limit the number of hours during the regular work day when a requester may inspect records. Nor do we believe that the employee designated to oversee the requester's review may interfere or disrupt his or her inspection of the records.
Finally, we do not believe that such a policy, standing alone, can be invoked as a basis for inordinately delaying records inspection. Although BCC vaguely references privacy concerns as a basis for not assigning another employee to oversee inspection, Mr. Curtis does not express this concern, and any privacy rights are his to assert. We believe that arrangements could be made for a nonmedical employee to oversee inspection in such a manner as to protect the integrity of the medical records as well as Mr. Curtis' privacy interest in those records. Accordingly, we find that BCC's actions were inconsistent with the Open Records Act. If BCC has not already done so, it should make arrangements for Mr. Curtis to immediately inspect his medical records.
A party aggrieved by this decision may appeal it by initiating action in the appropriate circuit court pursuant to KRS 61.880(5) and KRS 61.882. Pursuant to KRS 61.880(3), the Attorney General should be notified of any action in circuit court, but should not be named as a party in that action or in any subsequent proceedings.
Footnotes
Footnotes
1 If the public agency cannot permit inspection on or before the third business day because the requested records are "in active use, in storage or not otherwise available," KRS 61.872(5) requires the agency to provide "a detailed explanation of the cause . . . [of the] delay," and to state the "place, time, and earliest date on which the public record will be available for inspection. "