£761.50 of Merseyside Fire and Rescue Authority’s costs application in Saughall Massie Fire Station information request case rejected by First-tier Tribunal

£761.50 of Merseyside Fire and Rescue Authority’s costs application rejected in Saughall Massie fire station information request case by First-tier Tribunal

£761.50 of Merseyside Fire and Rescue Authority’s costs application rejected in Saughall Massie Fire Station information request case by First-tier Tribunal

Liverpool Civil & Family Court, Vernon Street, Liverpool, L2 2BX (the venue for First-Tier Tribunal case EA/2016/0033)
Liverpool Civil & Family Court, Vernon Street, Liverpool, L2 2BX (the venue for First-Tier Tribunal case EA/2016/0033)

Well, I finally got the costs decision from the First-tier Tribunal today in which I was the Appellant.

This continues from an earlier blog post about the hearing which ended with the Tribunal, MFRA, ICO and myself agreeing that I should receive the information.

Merseyside’s Fire and Rescue Authority’s costs application of £1,212 has been rejected by the Tribunal. Although the decision also refers confusingly to a total amount of their costs application of £1192.23.

Two out of the three Tribunal Members (although it doesn’t specify which two) don’t think I acted unreasonably in the period 4th August 2016 to 22nd August 2016. This means £224.66 of MFRA’s costs application is rejected by a majority decision of the Tribunal of 2:1.

Of the remaining £967.57, a further £467.57 is rejected.

This leaves £500.

Basically the argument about the £500 is this.

In late August 2016 following a request from the Tribunal, I stated to MFRA that if they were to provide me with the 4 A4 pages requested, I would be happy for the case to be ended by consent order.

MFRA chose not to end the case this way (although I did receive the 4 A4 pages from ICO on the 14th October 2016). I was sent an altered version of the 4 pages from Merseyside Fire and Rescue Authority about 48 hours before the hearing.

Therefore because MFRA had legal costs from 22nd August 2016 to 23rd September 2016 this is what the application is about.

However in the decision the Panel admit that they agreed to MFRA’s costs application at the hearing before they had actually read the bundle for the hearing.

Indeed the fact they hadn’t read the bundle for the hearing before making decisions on costs is recorded in the reasons for the decision itself. Is it reasonable to expect the judiciary to read the papers before reaching a decision?

In fact the wording of the decision implies the panel members were put to great inconvenience by having to read the bundle and travel to the hearing itself!

There are legal arguments I could make as to why this £500 costs award shouldn’t have been made in the first place, but I will not reveal those until the matter is settled.

I feel pretty confident that the £500 will be overturned on appeal and I intend to appeal it within the time limit for doing so. Certainly the majority (£761.50) of Merseyside Fire and Rescue Authority’s costs application has already been rejected.

I notice that somebody has put the wrong case number on the decision which shows the Tribunal’s ongoing flair for accuracy!

In my view there are errors of fact in the decision, but I have to bear in mind this costs application from an organisation that stated it wished to have the legal power to charge people for making FOI and EIR requests.

It’s managed to achieve that now with a costs order for £500, although estimates of the legal costs for First-tier Tribunal cases are usually at around £10,000 for the public body involved.

The bit in the decision about a decision being made on the papers, I don’t remember being made at the hearing (although I will check my notes). In my view a hearing might have avoided some of the misunderstandings that have obviously arisen.

I’ve asked the Tribunal to reissue the costs decision with the correct case number (EA⁄2016⁄0054 rather than EA⁄2016⁄0117).

Does anyone wish me to include a copy of the decision in this blog post?

Tomorrow evening Wirral Council’s Planning Committee will be making a decision on the Saughall Massie fire station planning application.

There are matters that came out during the Tribunal which I will publish on this blog that as they relate to the expenditure of a total of £8.4 million of public money I’m staggered that the Tribunal would write in its decision, that the First-tier Tribunal case “has involved costs to the public quite disproportionate to its significance or the matters in issue.”

Clearly the significance of the issue (in my eyes) is that MFRA told untruths to the public during its consultation to get the answers it wanted and refused to tell the public it had put aside £300,000 to pay Wirral Council for the land at first Greasby, then Saughall Massie.

Those untruths in the consultation have now formed part of Merseyside Fire and Rescue Authority’s planning application.

Indeed there are some that would argue that the invoices for £153,250.61 of work before planning permission is obtained have involved costs to the public too!

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Merseyside Fire and Rescue Authority end 15 month information request over Greasby and Saughall Massie fire stations by supplying the information, but ask First-tier Tribunal for costs award in their favour against Mr Brace

Merseyside Fire and Rescue Authority end 15 month information request over Greasby and Saughall Massie fire stations by supplying the information, but ask First-tier Tribunal for costs award in their favour against Mr Brace

Merseyside Fire and Rescue Authority end 15 month information request over Greasby and Saughall Massie fire stations by supplying the information, but ask First-tier Tribunal for costs award in their favour against Mr Brace

                                         

Liverpool Civil & Family Court, Vernon Street, Liverpool
Liverpool Civil & Family Court, Vernon Street, Liverpool

This is a report of a hearing held today of the First-tier Tribunal held in Tribunal Room 3, 3rd Floor (Tribunals Service), Liverpool Civil and Family Court, 35 Vernon Street, Liverpool, Merseyside, L2 2BX

At the hearing I was the Appellant and Janet Henshaw represented Merseyside Fire and Rescue Authority. ICO did not attend. The case number was EA/2016/0054.

The decision at the hearing was to end the matter by consent order.

The Tribunal consisted of First-tier Tribunal Judge Mr. David Farrer QC, First-tier Tribunal Member Mr. Michael Hake and First-tier Tribunal Member Dr. Malcolm Clarke.

Merseyside Fire and Rescue Authority explained that they had not provided the information covered by decision notice FER0592270, because they had changed it during the course of the EIR request to remove both “Not for publication” and the reason or reasons why under the Local Government Act 1972 it had initially been classed by them as exempt information (although this is a position they reversed during the course of the appeal).

Despite the Appellant informing them by letter in response to what they had sent him on Monday 19th September 2016 (which are the reports below), are not the version he asked for, Merseyside Fire and Rescue Authority saw it unreasonable to have a hearing today on the withheld information.

During the course of the hearing MFRA supplied extra information to the Appellant Mr. Brace both in written form and verbally.

MFRA asked the Tribunal to make a costs award against Mr Brace, the Appellant.

The Appellant was asked to explain his point of view. He explained that the law stated information that should’ve been in what was supplied, therefore he knew it was the wrong version and he had informed MFRA, the Tribunal and ICO of this by letter.

He had not yet received a response to this letter from MFRA.

MFRA argued that the hearing was pointless, because from their perspective even if the information supplied was two A4 pages shorter than the case management note had required them to supply, in their view, the extra pages contained no information relating to the request in it and referred them to Mr Brace’s letter describing the extra pages.

MFRA were asked during the course of the hearing to supply the version in existence at the time of request to the Appellant Mr Brace.

Janet Henshaw of Merseyside Fire and Rescue Authority explained that she hadn’t brought it with her to the hearing.

Due to the explanation provided by MFRA as to the withheld pages of information, the Appellant agreed to end the matter by consent order.

Janet Henshaw of Merseyside Fire and Rescue Authority argued that the Appellant was being unreasonable in bringing the proceedings to a hearing.

The Appellant was given a chance to make representations.

The Tribunal did not agree to make an award of costs at the hearing, but directed Janet Henshaw of MFRA to make a formal application for costs and to serve it on the Appellant and Tribunal by a specified date.

The the Appellant would have a chance to make representations and as he is an individual, supply the Tribunal (and MFRA) with details of financial means (which would have to be considered) when the Tribunal makes a decision.

The First-Tier Tribunal Judge explained that the Tribunal’s rules on costs were different to that of the court.

One of those present also seemed upset at the trees that had been cut down to produce the bundle and the First-Tier Tribunal Judge referred to the cost to the public purse.

Any decision by the Tribunal on costs can be appealed to the County Court.

The information in the two reports relates to MFRA plans for a fire station at Greasby, then Saughall Massie.

The supplied information for Greasby is an Exempt report capital costs Greasby fire station (although this is missing the blank page) and Appendix F Capital Costs Saughall Massie.

Both reports (which were not made public during the two twelve week consultations) show indicative values for selling Upton Fire Station (£350,000) and selling West Kirby fire station (£200,000).

The land value assigned for the abandoned Greasby plans is £300,000 and the notional value assigned for the land at Saughall Massie is £300,000.

The Appellant awaits MFRA’s costs application with interest as at least one of the questions directed towards Chief Fire Officer Dan Stephens (pictured below) during one of the two consultation was why this information wasn’t in the public domain.

Dan Stephens (Chief Fire Officer) answers questions at a public consultation meeting in Saughall Massie to discuss proposals for a new fire station (20th April 2015)
Dan Stephens (Chief Fire Officer) answers questions at a public consultation meeting in Saughall Massie to discuss proposals for a new fire station (20th April 2015)

The First-tier Tribunal Judge stated during the hearing that the reasons given in ICO’s decision notice no longer applied for withholding the information.

MFRA (in line with councillors stating that people should be charged for FOI or EIR requests) despite agreeing to end this by consent order feel that is unfair to pay MFRA’s costs in providing the information, even though the First-Tier Tribunal Judge told them that the reasons for withholding the information in the decision notice didn’t apply.

Janet Henshaw was the person that also refused the information at the internal review stage as she is a senior manager employed by Merseyside Fire and Rescue Service.

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Liverpool City Council appeal ICO decision requiring release of bus lane suspension report

Liverpool City Council appeal ICO decision requiring release of bus lane suspension report

                                           

Mayor Joe Anderson speaking at a meeting of Liverpool City Council (8th April 2015)
Mayor Joe Anderson speaking at a meeting of Liverpool City Council

Edited 20th April 2016 by John Brace to add in missing closing parenthesis.

The author of this piece is the Appellant in two cases before the First-Tier Tribunal (Information Rights). These are John Michael Brace v Information Commissioner & Wirral Metropolitan Borough Council (EA/2016/0033) and John Brace v Information Commissioner & Merseyside Fire and Rescue Authority (EA/2016/0054).

Liverpool City Council have taken the step of appealing to the First Tier-Tribunal (Information Rights) a decision notice of the regulator ICO (Information Commissioner’s Office). The decision notice required Liverpool City Council to provide the draft report in response to a request. However due to the appeal, the outcome of the appeal will determine whether Liverpool City Council have to release the draft report.

The case is listed as case number EA/2016/0084. The decision notice issued on the 8th March 2016 (FER0601794 (which can be viewed on ICO’s website)) is about an Environmental Information Regulations request for a draft Mott McDonald report to Liverpool City Council about Liverpool’s bus lanes. The title of the report is Liverpool Transport Corridors & Bus Lane Suspension.

Had the decision not been appealed, Liverpool City Council would’ve had to release the draft report before polling day (5th May 2016) in the combined elections for local councillor, Mayor of Liverpool and Police and Crime Commissioner for Merseyside.

Liverpool City Council disagree that the draft report should be released on an alleged claim of commercial confidentiality and an alleged claim of adverse impact on those who supplied information to Mott McDonald. The Information Commissioner’s view is that Liverpool City Council have failed to show that these exceptions are engaged.

The final report can be read on Liverpool City Council’s website.

The suspension of various bus lanes in Liverpool has been unpopular with at least one major bus company who stated at a public meeting that it has affected the punctuality of buses on the affected routes. The representative of the bus company also called for the bus lane suspensions to be reversed.

The decision by the Labour administration on Liverpool City Council to proceed with the suspension of the bus lanes was opposed by the Green Party opposition on Liverpool City Council.

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What was Liverpool City Council’s incredible 6 page response to the FOI consultation?

What was Liverpool City Council’s incredible 6 page response to the FOI consultation?

                                                                  

ICO Information Commissioner's Office logo
ICO Information Commissioner’s Office logo

You can tell a lot about the culture at a public body by its response and reaction to issues such as FOI and filming of public meetings.

I had better declare an interest as a FOI request I made to Liverpool City Council is currently being considered by ICO for a decision notice.

Considering there were over 30,000 responses to the recent consultation on changes to FOI legislation it’s something that attracts a lot of strong feeling.

I’m going to start first with Liverpool City Council’s response to the consultation. Those who know Liverpool City Council may say that their response sums up their attitude. From the tone of their response they don’t like openness and transparency and recommend that the goalposts are moved to prevent having to respond to so many FOI requests (whilst displaying a lack of awareness as to why they receive so many FOI requests in the first place). I think that responses like this are often like a window on an organisation’s soul.

It gives some telling insights on the internal review process of FOI requests at Liverpool City Council with comment such as “that an Internal Review is unlikely to reach a different conclusion”, therefore they propose abolishing internal reviews.

They also want advance notice of decision notices so that they can for want of a better word nobble ICO to change what they don’t like as in LCC’s world decision notices are described as “inappropriate”.



Liverpool City Council

Rt. Hon. Lord Burns
Chair – Commission on Freedom of Information Cabinet Office
9th Floor
102 Petty France London
SW1H 9AJ

Evidence Submission on review of Freedom of Information Legislation

I write further to my letter of 12 October and with regard to the Call for Evidence document issued by the Commission on Freedom of Information on 9 October, enclosing for the attention of the Commission the formal evidence submission of Liverpool City Council.

I would appreciate it if you would acknowledge receipt of this submission and would again take the opportunity to affirm our willingness to continue to engage constructively with the Commission during the course of its review.

I look forward to hearing from you in due course. Yours
sincerely

Ged Fitzgerald
Chief Executive

Response

These matters all have a starting point and undergo a number of iterations before coming forward as formal options. It is essential that this process should not be undermined by requests being made for copies of any emails or communications which formed part of the iterative process of decision making. Ultimately the governance framework ensures any decisions taken are informed and legal. This is a cornerstone of any effective public authority – from Central Government to local authorities – and it is essential that this ability to develop policy, proposals and explore options is maintained otherwise it would impair the quality and ability of public authorities to make informed decisions.

The application of this Exemption requires a person qualified under the Act to give their reasonable opinion, and guidance has been issued by the ICO as to the acceptable format of this. It is clear from the consultation document as well as practical experience that there is a need for such Exemption otherwise the quality of both record-keeping and decision-making by public authorities would be impaired.

Current guidance issued by the ICO (“the evidence required by the ICO would be to assess the quality of the Qualified Persons reasoning process and assist in their determination as to whether a substantive opinion could be considered reasonable…”) would appear to indicate that once the Qualified Person has reached and recorded their reasonable opinion then the ICO may only require the production of such a record but may not compel the disclosure of the information to which the Reasonable Opinion relates.

The key issue is that the Qualified Person’s opinion and record of reasoning which includes the public interest test is recorded. The ICO have produced a template for this purpose. The Information Commissioners Guidance also indicates that the potential prejudice claimed arising from any such disclosures must be at least or exceed a 50% chance of occurring.

How long after should that remain sensitive?
An additional key aspect of the decision-making process of public authorities is the duration of how long information which falls under the Exemption may be withheld from disclosure on the basis of the opinion of the Qualified Person. Information relating to ‘internal deliberations’ should remain capable of being withheld from disclosure for as long as the public authority considers necessary. Whether the information held continued to be subject to non-disclosure would of necessity be a matter for the relevant public authority to determine. It would be inappropriate to set any form of definitive time limit after which information could be deemed to no longer be sensitive if published. The sensitivity of any specific piece of information directly relates to the subject of the information itself as opposed to the date when this was created. There should be no limitation as to the period which a Qualified Person may determine that such information should not be disclosed if the subject of a formal request.

The City Council would also consider that opinions issued by Qualified Persons should not be subject to overturn if reached on a reasonable basis and in a manner consistent with ICO guidance and using their standard template. An alternative and more appropriate mechanism would be for any such opinions to be published on the website of the respective public authority and referenced accordingly within the publication scheme of that public authority. This would satisfy the accessibility and transparency requirements for such declarations and for the purposes of Liverpool City Council it is the Monitoring Officer.

An anomaly which the City Council would bring to the attention of the Commission is that of how the Environmental Information Regulations 2004 (EIR) allow an exception (as opposed to the term ‘exemption as used under FOIA) for internal communications under Regulation 12(4) (d) and yet no parallel exemption is extant under FOIA.

Recommendations from Liverpool City Council –

(i) Qualified Person Opinion & Publication – that the Section 36 Exemption be revised to state that the reasonable opinion of the Qualified Person, once drafted and recorded on the relevant ICO template and published to the website of the public authority and referenced within the Publication Scheme, that this may not then be the subject of further review by the ICO.
 

Questions 2 – this question relates purely to matters within the legislation which are applicable only to Central Government and as such no response is proposed to be made.

Questions 3 & 4 see response to question 6 below.

Question 5 – What is the appropriate enforcement and appeal system for Freedom of Information Requests? What is the appropriate enforcement and appeal system for Freedom of Information Requests?

Appeals & Internal Review
Current legislation includes provision whereby public authorities must provide an internal review process whereby requestors may ask the Public Authority to review the original decision of the Public Authority on their specific request.

The burden placed on public authorities in preparing responses to initial requests is further exacerbated by the requirement to undertake an Internal Review to assess the validity of its response, when in the first instance such responses are issued following careful consideration of information held in the context of FOIA legislation. In terms of the figures set out in this response below, in 2014 of 2,139 requests a total of 49 requestors sought an Internal Review. Of these, only 5 appeals were the subject of Decision Notices from the ICO with only 1 of which requiring any form of action from the City Council – approximately 0.00047% of all requests processed by the City Council.

It is our position that our approach to an FOI request is robust and thorough from the outset, and that the legislation is applied by trained experienced staff so that an Internal Review is unlikely to reach a different conclusion as evidenced by these statistics.

Essentially public authorities are being asked to repeat an assessment when undertaking an Internal Review and to undertake work twice when conducting reviews, which is inefficient and places an excessive burden on local authorities.

ICO Review
We would draw attention to the process which the ICO then undertakes when seeking information from public authorities in such instances when informing their own decision-making. Frequently the level of information sought by the ICO goes beyond that of verifying the information held or application of the exemption concerned and indeed the subject matter of the original request. This process can be both resource intensive and give additional uncertainty in those circumstances where the ICO seeks information or reasoning beyond that which could reasonably be expected on a specific case. We would seek greater clarity as to the remit of the ICO in such circumstances and of the extent to which they may undertake a review.

Decision Notices
Additionally, in concluding reviews, the ICO will then issue a Notice (Decision or Enforcement Notice) setting out their decision on the request concerned. We would suggest that this process be reviewed and aligned more closely to that used by the Local Government Ombudsman whereby any Notices proposed to be issued should firstly be sent to the public authority concerned for response. This would provide a fair and reasonable opportunity for public authorities and the ICO to address any clear factual inaccuracies, assist in maximising the value of any recommendations contained within the final Notice issued and possibly prevent a costly First Tier Tribunal being convened. The timescale for responses by the Public Authority to any Decision Notice to be 10 working days. The inclusion of unsubstantiated and factually inaccurate statements within ICO Notices, issued without opportunity to the public authority of correction or rebuttal, is inappropriate and requires addressing.

Applications to First Tier Tribunal (Information Rights)
The final opportunity for requestors – if unsatisfied with the outcome of a review undertaken by the ICO – is to submit an Appeal to the First Tier Tribunal. There is no threshold to be met before such applications are made and, in seeking to respond, public authorities are required to expend significant resources in responding. Only on the most fundamental principles of information law should this facility be available or otherwise a cost mechanism for such applications should be introduced in the same manner adopted for applications for Judicial Review.

Recommendations from Liverpool City Council –

(ii) Internal Review – that this mechanism be withdrawn on the basis that this offers no practical benefit for requestors and merely requires the duplication of effort by public authorities.

(iii) ICO drafting of Decision Notices – a requirement be introduced whereby the ICO in drafting a Decision Notice and prior to publication, be required to formally consult the subject public authority and allowing not less than ten working days for issues to be raised by the public authority. Such issues if not accepted by the ICO must be recorded as having been raised by the public authority.

(iv) Applications to First Tier Tribunal (Information Rights) – a threshold or application fee be introduced for applications to the First Tier Tribunal, in a similar manner to that used for applications for Judicial Review.

Question 6 – Burden imposed under the Act and whether justified by the public interest in the public’s right to know

Public authorities are subject to detailed requirements set out in the Local Government Acts to date requiring the publication of information and prescribing how this is to be made available to the public. In addition, the introduction of the Local Government Transparency Code as statutory guidance introduced additional publication requirements on public authorities regarding openness and transparency in local government, which represents additional obligations beyond that already seen. Combined these elements demonstrate the breadth of requirements already inherent on public authorities to make information publicly available.

The Freedom of Information Act (FOIA) (and parallel Environmental Information Regulations 2004) place additional substantial burdens on public authorities. In terms of the resources public authorities are required to commit to dealing with Freedom of Information requests, there are a number of key points to be made.

Burden on Public Authorities
Under Section 16 FOIA and Section 45 Code of Practice, all public authorities are already under an obligation to give advice and assistance to requestors both in terms of framing requests as well as giving advice to bring such requests within the cost ceiling as laid down within the legislation. The current ceiling set out in the legislation is 18 hours, which is high in terms of resource and cost implications.

Firstly, by way of example of the experience of Liverpool City Council, the number of requests received in 2010 (1,217 requests) to the number of requests received in 2014 (2,139) shows an increase of 922 or in percentages of approximately 76%, and an increase in costs of approximately £150K per annum. This increase can be set against a context whereby the City Council has seen the funding it receives from Central Government reduced by 58% during the same period, placing substantial pressures on the viability of the delivery of essential services for its residents.

In real terms and using the figure for the average costs incurred in responding to an FOI request as set out in the Consultation Document issued by the Independent Commission, of £164 per request, the cost of responding to FOI requests based solely on this is £350K per annum to Liverpool City Council alone.

This does not take into account more complex, technical and detailed requests which have to be dealt with and which cost substantially more. The Council’s response rate within 20 working days was 88% in 2014.

The City Council would draw to the Commission’s attention the fact that that the average cost per request it has included within its consultation document is based on calculations undertaken in 2008.

It is highly probable that a similar calculation conducted today would reach a substantially higher ‘cost per request’ figure.

Table 1. Number of request received by Liverpool City Council in 2010 and 2014 and associated costs

























2010

2014


Month received



Total


Month received


Total


Jan-1092Jan-14226
Feb-1062Feb-14215
Mar-1082Mar-14177
Apr-1097Apr-14189
May-10104May-14161
Jun-10109Jun-14151
Jul-10116Jul-14143
Aug-10106Aug-14187
Sep-10126Sep-14171
Oct-10105Oct-14180
Nov-10140Nov-14193
Dec-1078Dec-14146
12172139

£164 per request

£199,588

£164 per request

£350,796

Vexatious Requests
The City Council welcomes the revised ICO guidance. However there needs to be additional clear guidance within that around the real public interest rather than the private interests of unelected individuals or concerted campaigns which are a drain on public resources. This type of requestor continues to rise in terms of complexity and their impact on available resources.

Based on the experience of Liverpool City Council and using the average cost idicated above, a small number of “frequent requesters” are costing a disproportionate amount of time and resources responding to their requests, of up to £7,000 per individual. This needs to be reflected and addressed within a substantive manner within any Guidance issued by the ICO.

There are also resource implications even associated with dealing with frivolous requests such as “what is the total number of red pens bought by the Council in the past year”. Even though this is classed as vexatious a formal response to that effect is still required to be issued, effectively occupying valuable resources.

Charging
A further burden associated with FOIA is that of the limited charging mechanisms available under the legislation, specifically, under FOIA public authorities may only charge where the time to deal with the request exceeds 18 hours in total.

The current 18 hours threshold (Section 12) is itself a significant demand on Council resources in that a request can take up to anything just below that timescale and no charge can be made. This in effect is up to and two and half days work . This threshold should be reviewed in the light of some of the research undertaken to date i.e. the average time taken to respond to an FOI request by public authorities of 6 hours and 10 minutes with a lower threshold being established.

In terms of the current charging regime associated with Freedom of Information legislation, again the experience of Liverpool City Council in responding to requests is that the art of redacting specific documents can be very time consuming and should be included within the costs permitted when determining whether complying with a request may exceed 18 hours.

In terms of charging the approach set out in the Environmental Impact Regulations 2004 (EIR) assumes information will be available to inspect ‘for free’ but if information is asked to be supplied in a different format a ‘reasonable’ charge may be made for that supply. Specifically, this charge may extend to the time spent by Officers in responding to the EIR request and supplying the information. This differs to the approach adopted in FOIA and should be made consistent.

The City Council would also draw attention to the difficulties caused by the two disclosure regimes operable in the form of the Freedom of Information Act (FOI) and the Environmental Information Regulations 2004 (EIR). There is considerable overlap between requests which may be received under FOI but which, by virtue of the wide definition under EIR should be considered under that regime. The City Council would seek to encourage greater consistency between both regimes, through either a single consolidating Act or through amendments to both existing regimes to provide for a single common charging mechanism and consistency of the requirements for exemptions and exceptions.

Technical Issues

An additional technical issue which we would seek to highlight is that of an Exemption (Section 21 absolute, class based) which is applied in those instances where information is either already in the public domain or accessible by alternative means. The legislation still requires this to be issued with a supporting Section 17 Refusal Notice. The City Council considers that the application of this Exemption should not require the issue of a Refusal Notice as no information is being withheld given it is either already in the public domain or accessible by other means to which the requestor is then directed. The use of a Refusal Notice in such instances can give rise to an Internal Review which of its nature would only generate additional unnecessary burdens for public authorities.

Recommendations from Liverpool City Council –

(v) 18 Hour Rule – that a review of the 18 hour limit beyond which charging or refusal is permitted be undertaken and consideration given to reducing this threshold to either 6 or 7 hours.

(vi) Charging/Reasonable recovery of costs – public authorities be given greater opportunity to levy charges for compliance with requests to ensure the recovery of reasonable costs associated with fulfilling requests which would include the time taken to redact any documents. To align the charging policies for EIR and FOI.

(vii) Vexatious Requests –that Guidance issued by the ICO in relation to dealing with Vexatious requests be further reviewed and strengthened in respect of frequent and persistent requesters

(viii) FOIA and EIR Alignment of Regimes – that a concurrent review be undertaken of the FOIA and EIR to ensure greater alignment of both pieces of legislation or one consolidating Act.

(ix) Refusal Notices – the requirements for issue of Refusal Notices be reviewed to remove requirements to issue these in such instances where a Section 21 (information in public domain or reasonably accessible by other means) Exemption is applicable.

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ICO issues 2nd decision notice stating Wirral Council breached more laws in how it handled a FOI request

ICO issues 2nd decision notice stating Wirral Council breached more laws in how it handled a FOI request

ICO issues 2nd decision notice stating Wirral Council breached more laws in how it handled a FOI request

                                          

ICO Information Commissioner's Office logo
ICO Information Commissioner’s Office logo

So far I’ve written three blog posts about this one FOI request, which in chronological order are ICO issues decision notice stating Wirral Council breached 4 laws in how it handled a FOI request (9th September 2014), Wirral Council take nearly 20 months to respond to a FOI request for SACRE meeting minutes that should only take 20 days (10th November 2014) and Why after 2 years, 3 months and 19 days have Wirral Council U-turned on refusing a FOI request for minutes of a public meeting that they claimed was vexatious? (18th July 2015).

The FOI request this relates to was made through the excellent whatdotheyknow.com website on the 29th March 2013. It’s for minutes of the meetings of 26 different panels, statutory committees, advisory committees and working parties that councillors are appointed to by Wirral Council.

In September 2014, the Information Commissioner’s Office issued 9 page decision notice FS50509081. In a nutshell that decision notice stated that by the 13th October 2014 Wirral Council had to:

a) respond to the FOI request without relying on either section 12(1) of the Freedom of Information Act 2000 c.36 or Regulation 12(4)(b) of the Environmental Information Regulations 2004. The first relates to a costs exemption and the second relates to that “the request for information is manifestly unreasonable”.

and

b) advise whether it held the minutes of these meetings or not.

Wirral Council did not respond to the decision notice by the 13th October 2014. Instead it took a further three weeks than was allowed and Wirral Council responded on the 4th November 2014. Minutes of seven meetings were supplied (some minutes were supplied with some information blacked out). In response to other parts of the request it provided links to its website.

This left nine disputed parts of the request which were in relation to the bodies below (I’ll use the original numbering). JCC stands for Joint Consultative Committee and Members means councillors. I provide under each one what it’s remit was:

4 (School Appeals Panel)

To consider, as part of a statutory review process, appeals against decisions by the Local Authority (or the Governors of voluntary or aided schools) concerning the allocation of places in primary and secondary schools, and decisions by governing bodies concerning the exclusion of pupils.

The School Appeals Panel is drawn from a “pool” of lay members or members with experience in education. However, Councillors are ineligible to serve on Appeals Panels for schools under local authority control.

5 (Standing Advisory Committee on Religious Education (SACRE))

SACRE is responsible for advising the local authority on matters concerning the teaching of religious education and collective acts of worship; it decides on applications for determination of cases in which requirements for Christian collective worship are not to apply; and may require the local authority to review its agreed syllabus.

8 (Adoption / Fostering Panels)

As part of a wider membership, to determine applications for the adoption and for the fostering of children.

10 (Unified Waiting List Management Advisory Board)

To consider appeals from applicants who consider they have been unfairly treated or unfairly excluded from the waiting list, having exhausted the Steering Group appeals procedure.

11 (Discharge from Guardianship by Wirral Council under the Mental Health Act 1983 Panel)

To hear requests to discharge service users subject to guardianship upon the application of a professional responsible for their care.

15 (Headteachers and Teachers JCC)

To meet with headteachers’ and teachers’ representatives to discuss educational issues.

18 (Members’ Training Steering Group)

To advise on the preparation of the annual programme of training for Council members and on individual applications to attend courses.

19 (Members’ Equipment Steering Group)

To review IT equipment provision for members.

26 (Safeguarding Reference Group)

Established by Cabinet on 15 April 2010 for the purpose of ensuring that the most senior community leaders of the Council are enabled to carry out their responsibilities of safeguarding children and adults in Wirral.

Minutes of a School Appeals Panel meeting (part 4 of the request) were refused based on section 40 (personal information) of the Freedom of Information Act 2000.

Minutes of a Standing Advisory Committee on Religious Education meeting (part 5 of the request) were provided but with names other than that of councillors blacked out based on section 40 (personal information) of the Freedom of Information Act 2000.

Minutes of the Adoption/Fostering Panels (part 8 of the request) were refused based on section 40 (personal information) of the Freedom of Information Act 2000.

Minutes of a Unified Waiting List Management Advisory Board meeting (part 10 of the request) Wirral Council merely stated “Officers are investigating if this Board has ever met/if there are any minutes available and we will answer this part of your enquiry as soon as possible.”

Minutes of a Discharge from Guardianship by Wirral Council under the Mental Health Act 1983 Panel (part 11 of the request) were refused based on section 40 (personal information) of the Freedom of Information Act 2000.

Minutes of a Headteachers and Teachers Joint Consultative Committee meeting were refused based on section 36 (prejudice to the effective conduct of public affairs) of the Freedom of Information Act 2000.

Minutes of a Members’ Training Steering Group meeting were refused based on section 36 (prejudice to the effective conduct of public affairs) of the Freedom of Information Act 2000.

Minutes of a Members’ Equipment Steering Group meeting were refused based on section 36 (prejudice to the effective conduct of public affairs) of the Freedom of Information Act 2000.

Finally, minutes of a Safeguarding Reference Group meeting were refused based on section 40 (personal information) of the Freedom of Information Act 2000.

So I requested an internal review of the application of these exemptions on the 12th November 2014. On the 30th April 2015 Wirral Council responded to the internal review request. I’ll point out here that internal reviews are supposed to be completed within 40 days, but Wirral Council took 5 months.

Wirral Council’s response was that section 14 (vexatious or repeated requests) of the Freedom of Information Act 2000 applied and it didn’t have to do an internal review.

This decision was then appealed to the Information Commissioner’s Office.

On the 17th July 2015, Wirral Council did a U-turn. In respect of part of the internal review that challenged obscuring names (other than councillors) in minutes released of the Standing Advisory Committee on Religious Education (part 5 of the request), I’d pointed out that the minutes of this public meeting were open to public inspection because of regulation 7 of the Religious Education (Meetings of Local Conferences and Councils) Regulations 1994. Wirral Council agreed with me and released the complete minutes of the SACRE meeting (which meets in public).

Wirral Council also pointed out that since the Council’s housing stock was transferred out of Wirral Council’s control in 2009, that the Unified Waiting List Management Advisory Board (part 10 of the request) hadn’t met.

In relation to part 21 (Hilbre Island Nature Reserve Management Committee) Wirral Council stated “There are no minutes from 2013 the Hilbre Island Nature Reserve Management Committee as the present Committee was formed in March 2014.”

However Wirral Council still regarded the rest of the internal review request to be vexatious.

On the 29th July 2015 the Information Commissioner’s Office issued a further 13 page decision notice (FS50569254).

This decision notice found in relation to part 4 (School Appeals Panel) and part 11 (Discharge from Guardianship by Wirral Council under the Mental Health Act 1983 Panel) that Wirral Council does not hold information related to this part of the request.

This finding on the school appeals panels I find odd since the school appeals panel meets at Wallasey Town Hall. In response to a previous FOI request Wirral Council stated that it pays the taxi expenses for school appeals panel members and Wirral Council employees from the Legal & Member Services section of Wirral Council take the minutes of these meetings. Apparently Wirral Council states that there were School Appeal Panel meetings in 2012 but as they only keep the decision notices for 2 years that now it’s 2015 that Wirral Council don’t have them any more.

ICO also found that Wirral Council didn’t hold meetings of the Hilbre Island Nature Reserve Management Committee and believed Wirral Council when it stated “There are no minutes from 2013 the Hilbre Island Nature Reserve Management Committee as the present Committee was formed in March 2014.

This is disputed by both Cllr Chris Carubia and Cllr Pat Williams as you can see by their response to a tweet below:

https://twitter.com/cllrccarubia/status/622150465715859456

However, ICO stated that Wirral Council breached section 10 (time for compliance with request) of the Freedom of Information Act 2000 with regards to part 5 (Standing Advisory Committee on Religious Education (SACRE)) of the request and part 10 (Unified Waiting List Management Advisory Board) because “it did not disclose information or provide a response in relation to these parts within 20 working days”.

ICO also stated in its decision notice that Wirral Council had incorrectly applied section 14(1) (vexatious or repeated requests) to parts 15 (Headteachers and Teachers JCC), 18 (Members’ Training Steering Group), 19 (Members’ Equipment Steering Group) and 26 (Safeguarding Reference Group) of the request, because “these elements of the request are not vexatious”.

ICO did decide that Wirral Council had correctly applied section 14(1) to part 8 (Adoption/Fostering Panels) of the request because it deemed it to be vexatious (but is clarified in the decision notice as being a “disproportionate burden”). Wirral Council supplied the minutes of one adoption panel meeting and one fostering panel meeting to the Information Commissioners Office which came to a total of 95 pages. Wirral Council estimated it would take 23.5 hours of staff time (just over 15 minutes a page) to make the necessary redactions.

However the minutes of the Headteachers and Teachers JCC meeting, Members’ Training Steering Group meeting, Members’ Equipment Steering Group meeting and Safeguarding Reference Group came to less than 15 double-sided pages (30 sides of A4).

The decision notice also states “The complainant will not receive a response to some parts of his request until more than two years after he submitted it.”

Either Wirral Council or myself could appeal this ICO decision notice to the First-Tier Tribunal (Information Rights) within the next 28 days.

So do you think that now Wirral Council can’t rely on section 12 (exemption where the cost of compliance exceeds appropriate limit) or section 14 (vexatious or repeated requests) in respect to the Headteachers and Teachers JCC meeting, Members’ Training Steering Group meeting, Members’ Equipment Steering Group meeting and Safeguarding Reference Group meeting part of this request that I’ll finally get the information?

Here are some quotes from the decision notice (committee in the first quote refers to Hilbre Island Nature Reserve Management Committee).

“The Council, however, confirmed to the Commissioner on 20 July 2015 that, having undertaken a thorough search, it does not hold any Committee minutes from 2013 or earlier.

ICO believed Wirral Council so I suppose these published minutes of the Hilbre Island Nature Reserve Management Committee published on Wirral Council’s website from the 13th April 2007, 23rd November 2006, 13th July 2005 and even as far back as 6th April 2001 are just figments of my imagination. Perhaps I’m not “on message” enough!

Here’s another quote:

“The Council’s information manager had calculated that it took 70 hours and £1,750 to provide its response to the complainant dated 4 November. It argued that the amount of time the information management team had to spend on locating, retrieving and reading information falling within the scope of the request had a detrimental impact on the team.”

On the 4th November 2014 Wirral Council provided 22 A4 pages of information. The rest it either said it didn’t hold, was already on its website or that an exemption applied. That’s £79.54 per a page (or over 3 hours per an A4 page) of released information! How can it have had a “detrimental impact on the team” when Wirral Council took the 35 days the decision notice allowed plus an extra 22 days!

and another

“The Council says this work would cause a disproportionate burden because the request does not appear to have an inherent purpose or value.”

So knowing what and how councillors make important decisions on the public’s behalf doesn’t have an “inherent purpose or value”?

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