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WrittenevidencefromAlistairSloan [1] ThisisawrittenresponsetotheJusticeSelectCommitteescallforevidenceaspartof thepostlegislativescrutinyoftheFreedomofInformationAct2000(FOIA).Iama memberofthepublicwhousesFreedomofInformationlegislationprimarilyformy ownresearchpurposeandhaveinthepastusedFOIresponsesasthebasisforpostson myinternetblog.Myevidenceisbasedonmyownexperiencesofhavingmade requestsforinformationundertheFOIAandalsoonobservationsIhavemadeof requeststhatotherindividualshavemadeundertheFOIA. [2] IamnotoftheviewthatthereisamassiveneedforchangetotheFreedomof InformationAct.Onthewholeitappearstostriketherightbalancebetweenthe releaseofinformationheldbypublicauthoritiesandwithholdinginformationfor legitimatepurposes.However,thereareanumberofchangesthatcouldbemadeto improvethelegislationandensurethatexistinginformationrightsaremaintainedand notlost,particularlyasthepublicsectorischangingthewayinwhichitisorganisedin ordercutoperatingcosts.Ibelievethatmostofthenecessarychangesareintheway inwhichthelegislationisenforcedbytheInformationCommissionersOffice(ICO). [3] ThefirstareawhereIwouldliketosuggestchangeisrequiredisinthetimescalefor briningprosecutionsundersection77ofthe2000Act.ThewayinwhichtheFreedom ofInformationActoperatespracticallymeansthatthetimeasection77breachis identifieditcouldverywellbeoutwiththecurrentstatutorytimescalesforbrininga prosecution.TheScottishGovernmenthasidentifiedasimilarproblemwiththe equivalentprovisionsoftheFreedomofInformation(Scotland)Act2002(FOISA)andas partoftheirconsultativeprocessonFOISAtheyarelookingtoextendthe6month timescaleto12months. [4] Iamnotsuggestingincreasingthetimelimitforprosecutionsassomewaytogetat publicauthorities.However,enforcementiskeyinmakingthislegislationworkandthe InformationCommissionermusthaveafullrangeoftoolsthathecanusetoensure compliancebypublicauthorities. [5] ThevastmajorityofrequeststhatImakearethroughFOISAratherthantheFOIA.This hashelpedhighlightsomeofthedifferencebetweenthetworegimesandallowedme toconsiderwherebothpiecesoflegislationcouldbeimproved.Oneareawherethe FOIAcouldbeimprovedtomakethepracticalrealitiesofmakingarequestfor informationbetterisprovidingastatutorytimescaleforrespondingtoarequestfor review.Currently,thereisnostatutoryrequirementforapublicauthoritytoconducta reviewotherthanitmustbedoneinawaythatallowsapromptdeterminationofthe complaint(Section45code).OneobservationthatIhavemadebetweenthetwoFOI regimesisthatunderFOISAtheinternalreviewproceduresaretobefoundwithinthe mainAct(Sections20and21).IwouldsuggestamendingtheFOIAtoincludeprovisions ontheoperationofareviewprocessplacingthemonastatutoryfooting. [6] Iwouldstronglysuggestprovidingastatutorytimescaleinwhichtheconductingofa reviewshouldoccur.UnderFOISAthatiscurrentlysetat20workingdays.Inotethat
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theInformationCommissionersGoodpracticeGuidance(number5)thatcoversthe timescaleofreviewssuggeststhat20workingdaysshouldbeadequateformost requestsforreview.Hisguidancealsogoesontosaythatonlyinthemostcomplex casesshouldreviewstakelongerandinanyeventtheyshouldnottakelongerthan40 workingdays.However,inmyexperienceIhaveoftenfoundmyselfhavingtocontact publicauthoritiesafterthe20workingdayshaveexpiredforanupdateastowhenthey expecttorespond(evenwherethereviewisnot,onthefaceofit,aparticularly complexone).Ihavetwoexamplesofthishappeningwhicharepublicallyavailableon theinternetwhichmembersoftheselectcommitteemightfindusefultolookat. [7] ThefirstexamplecamefromarequestmadetoCumbriaCountyCouncilandcanbe viewedhere:http://www.whatdotheyknow.com/request/compliance_2.Thesecond wasarequestmadetoBristolCityCouncilandthatrequestcanbefoundhere: http://www.whatdotheyknow.com/request/identity_checking. [8] Iwouldhavebeenlessannoyedifthepublicauthoritiesabovehadwrittenaheadofthe deadlinetoadviseofadelayinrespondingtotherequestforreview.Indeed,the InformationCommissionersguidancesuggeststhatpublicauthoritieswriteto applicantswhereaninternalreviewcannotbecompletedwithintheinitialtwenty workingdaysfollowingitsreceipt. [9] Theabovearebynomeanstheonlyexamplesofthisoccurringwithpublicauthorities towhomIhavemaderequeststoundertheFOIA.Icannotbesureastowhyrequests forreviewtakeaslongastheydoandwhysomeauthoritiesevenappeartofailto complywiththeguidanceissuedbytheInformationCommissioner.However,Iamof theviewthatplacinginternalreviewsontoastatutoryfootingwithastatutory maximumtimescaleforrespondingwillprobablyimprovethesituation.Thereareof courseaverylargenumberofpublicauthoritiessubjecttotheFreedomofInformation legislationandIamsurethattherearenumerousexamplesofgoodpracticeoutthere. [10] Anothermatterthathascausedalotoffrustrationistheextensionpermittedtopublic authoritiestoconsiderthepublicinteresttest.Ihaveexperiencedcaseswhereitfeels morelikethepublicauthorityisusingthisasadelayingtacticthanforwhatitisactually existsorwheretheyhavesimplyappliedtheprovisionsinappropriately.Iraisedthis matterwithmyMemberofParliamentandheinturnraisedthiswiththeGovernment bywayofawrittenquestioninParliament. 1 NosuchprovisionexistsunderFOISA.All requestsmustberespondedtowithintwentyworkingdaysfromthedateofreceipt, andthisincludesconsideringthepublicinterest.Iwouldsuggestremovingthis allowancefromtheFOIA,orattheveryleastprovidingforastatutorymaximumforthe periodoftimebywhichthepublicauthoritycanextendtheoriginaltwentyworking days.ThecurrentopenendedapproachproducesuncertaintyforthoseusingFOIand indeedfortheInformationCommissioneraboutjustwhenapublicauthorityisin breechandwhenhecanacceptacomplaint.

Thequestionandanswercanbereadherehttp://www.theyworkforyou.com/wrans/?id=201110 20b.75857.h&s=Freedom+of+Information+speaker%3A24733#g75857.q0

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[11] TheFOIAcreatesageneralrighttoinformationheldbypublicauthorities.Itisquite rightthatonsomeoccasionsinformationshouldbewithheldbecausetheharmthatits releasewouldcauseoutweighsthegeneralprincipleofbeingopenandtransparent.It strikesmethatundertheFOIAtheharmtestisaratherlowoneandpermitsapublic authoritytowithholdinformationwheretheharmisonlyslight.Thesimilarprovisions underFOISArequirestheretobesubstantialprejudicetoaspecifiedinterestrather thanprejudicetoaspecifiedinterest.Theguidanceonthematterdoessuggestthat theInformationcommissionerandtheGovernmentexpecttheretobeasubstantial prejudicebeforetheharmoutweighsthepublicinterestinreleasingtheinformation andsoitwouldmakesensetoputthisontoastatutoryfootingandamendthe legislation. [12] TherehasbeensomesuggestionthatafeeshouldbeintroducedforthosemakingFOI requests.ThisissomethingthatIwouldstronglycautionagainst.Researchconducted fortheOfficeoftheScottishInformationCommissionergivesanexampleofwhatmight happenifpeopleweremadetopayforinformation.Thatresearch 2 suggeststhat around64%ofpeopleinScotlandwouldbedeterredfrommakingarequestfor informationiftheyweretobechargedforit.Isubmitthatthiswoulddamagethe legislationandwouldultimatelydefeatthepurposeofthelegislation.Thecurrentfee regulationsaresufficient.Itshouldbenotedthatonthewholepublicauthorities choosenottochargefeeswheretheyprobablycouldandcertainlypublicauthorities shouldbepersuadednottochargeafeeunlessabsolutelynecessary. [13] TheFOIArequiresthatpublicauthoritiesproducepublicationschemes.Isuggestthat theseareredundantandareawasteoftimeandmoney.Iwouldsuggestreforming thisaspectofFOIandplacingitinthehandsoftheCommissionertodirectpublic authoritiesastothetypesofinformationthattheyshouldmakereadilyavailabletothe public.ProactivedisclosureshouldbetheultimateaimofFOIandanyotherOpen Governmentprojects.Themoreinformationthatpublicauthoritiesproactivelymake availablethemoreaccountabletheybecome.Thereis,ofcourse,nothingstoppinga publicauthorityfrompublishinginformationbeyondthescopeofsuchdirections,but thesameminimuminformationshouldbeavailablefromallpublicauthorities. Perhaps,thedirectionswouldneedtobeslightlydifferentdependingonthefunctionof anauthority(e.g.theinformationthatapoliceforceandalocalauthorityshould publishproactivelywillbedifferentinsomerespects).Atallturnsweshouldbe encouragingpublicauthoritiestobemoreproactiveintheirdisclosure.Iwouldsuggest thatagoodmeasureofwhetherFOIhasbeenasuccessisthatthenumberofrequests submittedfallsasaresultofpublicauthoritiesbeingmoreopenandaccountable proactively. [14] Thereis,Isubmit,anargumentforrequiringlargerpublicauthoritiestopublisha disclosurelog.Manypublicauthoritiesalreadydosoandfromthepointofviewofa requesteritmakesthingsaloteasier.IfIamlookingforinformationthathaspreviously beenrequestedfromapublicauthorityitsavesboththepublicauthorityandmetimeif thatissomethingIcaneasilyaccess.NothavingworkedforapublicauthorityIcannot

Availablehere:http://www.itspublicknowledge.info/home/News/20111612.asp

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commentonrepeatrequestswithanygreatauthority.However,Isuspectthatpublic authoritiesdoreceiveanumberofrequeststhatareaskingforbroadlysimilar information.Isuspectthatthiswouldoccuraroundparticularlyhighprofileevents.I certainlyhaveanecdotalevidenceofthisbeingthecasefromFOIOfficerswhoIhave spokentointhecourseofmyownrequests. [15] PubliceducationcouldbesomethingthathelpsFOIworkbetter.Itcertainlyappears thatmostpeoplearenowawareoftheirbasicrightsunderFOI.However,withall rightscomeresponsibilities.Alongwiththerighttoaccessdatacomesaresponsibility todosoinaresponsibleway.TheWhatDoTheyKnow 3 websiteprovidessomevery goodexamplesofwhypubliceducationmightnotonlybeagoodthing,butnecessary. [16] IhaveseenalotofFOIrequestsontheWhatDoTheyKnowWebsitewherethe requestorappearstohavemadetherequestinarush.Forexample,therequestisnt asclearasitmighthavebeeniftheydthoughtaboutit(nottothatpointthatits technicallyinvalid,butthatitdoesntaskforwhattherequesteractuallywantsorasks forfarmorethantherequesteractuallywants).AnFOIOfficerhaswrittenanexcellent blogarticleontentoptipsonmakinganFOIrequest 4 .Allareverysensibleandif followedbyrequesterswouldassistboththerequesterandthepublicauthority. [17] Anyformofpubliceducationthatoccursshouldnotbeaimedatputtingpeopleoff makingtheirrequest,butratheraboutmakinganeffectiverequestthatdoeswhatthey wantittodo.Theinformationisoutthere(theInformationCommissioneralso publishesguidanceonmakingarequest),butIdowonderifwecouldnotbemaking thesetipsandguidancemoreaccessibleandraisingpublicawarenessofnotonlyusing therights,butusingthemeffectivelyandresponsibly. [18] TherewillalwaysbeafewpeoplewhoabusetheirrightsandInformationaccessrights arenoexception.ItwouldbedisastrousforFOIifthemanyweretobepenalisedfor theactionsofthefew.BythatImeananystepstomakeithardertomakearequestor tointroduceafeeformakingarequestbasedsolelyonasmallfewwhoabusetheirFOI rights.ImsureFOIOfficersaroundthecountryreceiverequestsfrompeoplewho have,ineffect,agrudgeagainsttheauthority.Iveseenexamplesonthe WhatDoTheyKnowwebsitewhereFOIisbeingusedinappropriatelytoaskoverand overandoveragainforbroadlythesameinformationaspartofwhatcouldbe describedasacampaignagainstthepublicauthority.Inmyviewthereareadequate provisionswithintheFOIAtodealwithsuchindividuals. [19] IfitwerethecasethatParliamentwasgoingtolookatwhatmorecouldbedoneto reducetheburdensuchrequestershaveonpublicauthoritiesthenitmustbecarefulto ensurethattherearenounintendedconsequencestosuchamove.Forexample, inhibitingtheabilityoflocalcampaigngroupstorequestinformationfrompublic authoritiesonmattersofgreatlocalconcern(e.g.campaignstosavepublicallyfunded facilitiessuchaslibraries,swimmingpoolsetc.)wouldbedetrimentalandshouldbe

3 4

http://www.whatdotheyknow.com FOIMansTopTenTipsonMakingResponsibleandEffectiveFOIRequests http://www.foiman.com/foiguide1

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avoided.Although,Iamoftheviewthatthecurrentprovisionssurroundingrepeated orvexatiousrequestsareadequateforthispurpose. [20] ItisessentialthattheInformationCommissionerisproperlyresourcedtoconductallhis statutoryfunctions.InevidencesubmittedtotheLevesonEnquiryitsoundedasthough theremayberealproblemswiththelevelofresourcesavailabletotheICO.Intermsof handlingasection50FOIcomplaintthetimeandeffortthatisrequiredtoinvestigate anddraftadecisionnoticeisnotinsignificant.Somesection50complaintsarecomplex eitherbecauseoftheinformationinvolvedorbecausetherehavebeensomanyalleged failurestobeinvestigated(whetherthatbefailuretoabidebytimescales,inappropriate deploymentofthepublicinterestextensions,inappropriatelyapplyingexemptions etc.).Idonotmakethesecommentstosuggestsomesortofconspiracywithinthe publicsector.SomepublicauthoritieshaveapoorrecordonrespondingtoFOI requests.ItisvitalthattheCommissionercandothenecessaryworkwiththese authoritiestoensurethattheircomplianceimproves.Thisinturnwouldreducecosts topublicauthoritiesbyresultinginfewerrequestsforreviewandfewersection50 complaints. [21] IhavepersonallybeenfrustratedathavingtomakeaSection50complainttotheICO onthebasisthattherequesthassimplybeenmishandledbythepublicauthority.The tworequeststhatIdirectedmemberstoabovewhendiscussinginternalreview timescaleswouldbetwoexampleswheresection50applicationsweremadepurely becauseofsimpletechnicalfailuresofthepublicauthority.ThatsaidIalsoget frustratedwhenhavingtomakerequestsforaninternalreviewbasedontechnical failingsofapublicauthorityratherthansubstantivefailings. [22] Ihavementionedinthisevidencequiteanumberofexamplesofbadpracticeand failureswhenitcomestoFOI.Ithinkdoingthishelpshighlightwhereissuesexistthatif fixedcouldvastlyimprovetheworkingofFOI.Idonotbelievethatexamplesoffailures orbadpracticeare,forthemostpart,partofanyconspiracybypublicauthoritiesto avoidreleasinginformation.Ithinkanumberofpublicauthoritieshavefailedtoadapt toincreasingnumbersofrequestsandnotmovedquickenoughwiththetimesinterms oftheOpenGovernmentagenda.Whetherthisisdowntoafailuretohaveadequate process,trainingorbothisnotsomethingthatIcanreallycommenton.However,itis clearthatifFOIistocontinuetoworkinthefuture,andtoworkbetter,thatpublic authoritiesmustcontinuetoadaptandimprovetheirFOIprocessestoensuretheright staffareintherightplacesandwiththerightknowledge. [23] Ihavementionedearlierinmywrittenevidencethatitisimportantthatexisting informationrightsarenotlost.Thepublicsectorischangingthewayinwhichit operates.Moreandmorepublicauthoritiesarespendingincreasingsumsofpublic moneyonoutsourcingandinformationthatwasonceavailabletothepublicthrough FOIisnolongerbecauseaprivatecompanyhastakenonrolestraditionallydoneby publicauthorities.WemustbecarefultoensurethatSchedule1isamended accordingly.IknowthatthereareconcernsregardingthechangestotheNHSin EnglandandWalesandtheimpactthatthismighthaveoninformationrights.Iam awarethattheCampaignforFreedomofInformationraisedthismatterwiththe
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SecretaryofStateforHealth 5 andIhopethattheGovernmentwillensurethat informationrightsarenotlostasaresultofchangesitmakestotheNHS. [24] AsIsaidearlierinmywrittenevidence,withtheexceptionofthefewmattersIraised above,myviewisthattheFOIAdoesnotneedmajoroverhaul.Theredoappeartobe issuesaroundenforcement,processesandknowledgewithinpublicauthorities.Thisis where,Ibelieve,focusshouldbeturnedtoimprovethewaythatFOIworks.Thatis largelyamatterfortheInformationCommissioner,buttheGovernmentshouldbe seekingtoseehowitcanbestassisttheCommissionerinthosetasks.Thatmaybeby providingtheCommissionerwithadditionalpowersorfunding,butreallythe Commissionerisbestplacedtoidentifywhatwouldhelphimandhisofficetocarryout itsfunctions. SummaryofRecommendationstobeconsidered 1. IncreasetimeforSection77prosecutionfrom6months 2. Introduceastatutoryregimeforinternalreviewsincludingstatutorytimescales 3. Removepublicinteresttestextension,oratleastplaceamaximumextensioninto thelegislation 4. ConsideramendingtheFOIlegislationtoensurethatexistinginformationrightsare notlostbychangesinthewaypublicauthoritiesconducttheirfunctions 5. ConsideramendingtheharmtestintheFOIAtocoversituationsonlywherethe releaseofinformationwouldbeofsubstantialprejudicetoaspecifiedinterest January2012

http://www.cfoi.org.uk/pdf/Lansleyletter.pdf

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