Opinion
Opinion By: Jack Conway,Attorney General;Michelle D. Harrison,Assistant Attorney General
Open Records Decision
Deborah Highland, Assistant City Editor of The Daily News , initiated this appeal dated August 24, 2015, challenging the partial denial by Western Kentucky University (WKU) of Education Reporter Aaron L. Mudd's August 18, 2015, requests 1 for "records pertaining to any memos between [Human Resources Director] Tony Lynn Glisson and [WKU President] Gary Ransdell regarding Gordon Emslie [then Provost and Vice President of Academic Affairs]," Mr. Emslie's personnel file, "any written complaints made against Emslie in the last two years," and "[then Dean of Potter College of Arts and Letters] David Lee's personnel file. " Ms. Highland advised that Mr. Mudd's request was granted as to Mr. Emslie's personnel file. However, WKU General Counsel Deborah T. Wilkins verbally advised Mr. Mudd that WKU would not disclose any responsive memoranda because such records were internal communications. Ms. Highland observed that WKU had not provided any response as to written complaints. Accordingly, The Daily News asserted that WKU violated the Open Records Act in failing to issue a written response citing the specific exception that justified the withholding of any existing responsive documents per KRS 61.880(1) and further argued that WKU, at a minimum, should provide "documents in redacted form that reflect what the complaints against Emslie were."
Upon receiving notification of Ms. Highland's appeal from this office, counsel responded on behalf of WKU. Counsel acknowledged verbally advising Mr. Mudd that WKU would not "provide documents which constituted internal communications." However, she "also prepared a letter to send electronically to Mr. Mudd" in response to his e-mail requests, and regretfully failed to send the letter; counsel therefore accepted responsibility for the violation of KRS 61.880(1). 2 Counsel noted that her written response dated August 20, 2015, "outlines the reasons for the denial, and cites to the appropriate section of the statute." WKU stated that "[n]o documents exist which would constitute 'complaints made against' Dr. Emslie." 3 In the agency's August 20 letter to Mr. Mudd, a copy of which counsel enclosed with her September 4 appeal response, she advised that a copy of Dr. Emslie's personnel file, with "personal and confidential information exempt from public inspection pursuant to KRS 61.878(1)(a) redacted, was made available for your inspection earlier today in the Office of Human Resources." 4 WKU denied Mr. Mudd's request for "any memos" between Mr. Glisson and President Ransdell regarding Dr. Emslie. Those records that are "subject to inspection were included in the material provided as part of Dr. Emslie's personnel file. " However, correspondence that "would constitute preliminary recommendations, [and/or] preliminary memoranda in which opinions are expressed or policies formulated or recommended, not representing any final agency action," counsel observed, "is exempt from inspection under KRS 61.878(1)(j), and will not be produced." As indicated, WKU advised that no responsive complaints existed. 5
This office was unable to determine from the limited evidence presented regarding their content whether all of the documents characterized as "internal communications" were properly withheld in their entirety on the basis of KRS 61.878(1)(j). Accordingly, this office requested, under authority of KRS 61.880(2)(c) and 40 KAR 1:030, Section 3, that WKU provide us with unredacted copies of all such documents for purposes of in camera review to facilitate a correct resolution of this matter. WKU promptly complied. Our in camera review partially validated the agency's reliance on KRS 61.878(1)(j).
In resolving the question presented, this office is guided by the legislative statement of policy codified at KRS 61.871, declaring that "free and open examination of public records is in the public interest and the exceptions provided for by KRS 61.878 or otherwise provided by law shall be strictly construed," and the corollary judicial recognition that the Open Records Act "exhibits a general bias favoring disclosure. " Kentucky Board of Examiners of Psychologists v. Courier-Journal & Louisville Times Co., 826 S.W.2d 324, 327 (Ky. 1992). "Despite its manifest intention to enact a disclosure statute," however, "the General Assembly determined that certain public records should be excluded from disclosure. Among such records are [those identified at KRS 61.878(1)(i) and (j)]." 6 Beckham v. Board of Education of Jefferson County, 873 S.W.2d 575, 577 (Ky. 1994), citing KRS 61.871. Both the courts and this office have applied the language of KRS 61.878(1)(i) and (j)(relied upon by WKU), commonly known as the "preliminary exceptions," in a variety of contexts. See City of Louisville v. Courier-Journal and Louisville Times Company, 637 S.W.2d 658-660 (Ky. App. 1982); Kentucky State Bd. of Medical Licensure v. Courier-Journal and Louisville Times Company, 663 S.W.2d 953 (Ky. App. 1983)(recognizing that records defined under KRS 61.878(1)(i) and (j) "which become a part of the records adopted by the [agency] as the basis of its final action become releasable as public records" but unless "so adopted and made a part of the [agency's] final action, such documents shall remain excluded under" KRS 61.878(1)(i) and (j)); University of Kentucky v. Courier-Journal & Louisville Times Co., 830 S.W.2d 373, 378 (Ky. 1992)(ratifying the principle that "investigative materials that were once preliminary in nature lose their exempt status once they are adopted by the agency as part of its action").
Guided by this evolving body of case law, the Attorney General has long recognized that public records which are preliminary in nature forfeit having exempt status only upon being adopted by the agency as a basis for its final action. See OAGs 83-405 and 89-69; 99-ORD-220; 02-ORD-86; 07-ORD-156; 10-ORD-053; 12-ORD-055; 14-ORD-014. Notably, in Palmer v. Driggers, 60 S.W.3d 591 (Ky. App. 2001), the Messenger-Inquirer requested access to "various documents pertaining to possible investigations and disciplinary actions related to" police officer misconduct. Id. at 594. Incorporating the City of Louisville analysis focusing on the final action of the agency, the Court of Appeals rejected Palmer's argument that his resignation precluded final action by the agency relative to allegations of misconduct leveled against him and therefore records pertaining to said allegations were permanently excluded from public inspection per KRS 61.878(1)(i) and (j). The Court adopted the reasoning found in 00-ORD-107, holding that "the fact that the agency decided to take no further action on the complaint or that the investigation was preempted by [the employee's] resignation, in our view, indicates that the 'final action' of the agency was to take 'no action' on the complaint." Id. at 597. See 10-ORD-053 (affirming denial of agency because records in dispute were not adopted, in whole or in part, as the basis of the agency's final action, i.e. , the decision to take no action, and therefore retained preliminary status); 10-ORD-075; 12-ORD-055.
The Kentucky Court of Appeals reaffirmed this line of authority in University of Louisville v. Sharp, 416 S.W.3d 313, 315 (Ky. 2013), holding that e-mails between public employees prior to a scheduled meeting that was being held to discuss a matter still under negotiation qualified for protection under KRS 61.878(1)(i) and (j) as "piecemeal disclosure along the path of the decision making process is not mandatory." See 14-ORD-024; 15-ORD-003. WKU has denied that a complaint was even received in this case; thus, any decision by WKU to take no action, i.e. , its final action of not investigating any verbal complaints or concerns discussed, was the result of Dr. Emslie's voluntary decision to step down from as Provost and Vice President. See 08-ORD-079 (record on appeal was devoid of evidence that letter in dispute prompted the Superintendent to submit his resignation, or formed the basis of a final decision by the Board of Education to demand that he submit his resignation, and the requested letter thus did not forfeit its preliminary characterization).
In response to a request for clarification, WKU confirmed that Dr. Emslie's decision to step down as Provost and return to a full-time teaching position was made of his own volition. Counsel advised that President Ransdell "spoke with Dr. Emslie and shared with him concerns among the faculty regarding his leadership style. Dr. Emslie offered to step down and return to a FT faculty position, which the President accepted." President Ransdell advised counsel that "he did not present Dr. Emslie with an ultimatum ( i.e. , step down or be disciplined, removed, etc.). 'It was a collegial conversation.'" WKU noted that none of the internal communications in dispute have been shared with Dr. Emslie or provided to him, which presumably means that none of those communications influenced or formed the basis of his decision. See 08-ORD-079 (letter of resignation submitted by Superintendent did not contain any reference to letter in dispute, of which Superintendent may not even have been aware, but remained preliminary as the "only ostensible nexus between" the requested letter and the actual resignation was "one of timing").
This office is not at liberty to reveal the contents of the documents in dispute, which, except for a one-page letter directed to President Ransdell by Mr. Glisson, consist entirely of e-mails. Of the eleven (11) pages that were provided for in camera review, three were blank divider pages added to prevent confusion. The brief February 2015 e-mail thread falls within the parameters of KRS 61.878(1)(j) and was properly withheld since none of the opinions contained therein were apparently relied upon as the basis for any final action; however, the July 1, 2015, e-mail and the August 13, 2015, letter contain a synopsis by Mr. Glisson of purportedly "confidential" information. With the exception of the final sentence of the first paragraph contained in the August 13 letter, none of the information summarized in either document can be properly characterized as recommendations nor were any opinions expressed or policies formulated therein. Thus, KRS 61.878(1)(j) is facially inapplicable and the final action inquiry "is moot rather than determinative." 06-ORD-135, p. 12; 99-ORD-220. Unless WKU can satisfy its burden of justifying the denial per KRS 61.880(1) and (2)(c) by citing a statutory exception and explaining how it applies, that document must be released with preliminary information redacted. See KRS 61.878(4).
The remaining e-mail thread from August 18-19, 2015, which also included Ms. Wilkins and several other individuals whose position or function was not identified, consists entirely of discussion regarding the correct salary rate for Dr. Emslie both currently and effective January 1, 2016. To the extent President Ransdell and Mr. Glisson both make recommendations or give opinions regarding the relevant calculation and its effective date, etc. such information remains exempt under KRS 61.878(1)(j) and may be redacted in accordance with KRS 61.878(4) since it did not form the basis for the President's final decision regarding Dr. Emslie's current and future salary (also contained in that e-mail thread) . However, to the extent relied upon by President Ransdell, those recommendations and opinions forfeited their preliminary character and must be disclosed. The denial by WKU is partially affirmed on the basis of KRS 61.878(1)(j).
Either party may appeal this decision by initiating action in the appropriate circuit court under 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 proceeding.
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