Opinion
Opinion By: Jack Conway, Attorney General; Amye L. Bensenhaver, Assistant Attorney General
Open Records Decision
This matter having been presented to the Attorney General in an open records appeal, and the Attorney General being sufficiently advised, we find that the Kentucky Board of Veterinary Examiners properly relied on KRS 61.878(1)(h) in denying the Animal Legal Defense Fund's November 2, 2011, request for all records "against the Taylor County Animal Shelter . . . between January 2007 and the present," insofar as the requested records relate to an ongoing investigation. However, the Board's initial response was procedurally deficient because it contained nothing more than a recitation of the exception upon which it relied. Although the Board corrected this error in supplemental correspondence directed to this office after ALDF initiated an open records appeal, the Board erred in failing to advise ALDF whether it maintains other records responsive to the request, and, if so, the statutory basis for withholding them.
In its November 3, 2011, response, the Board advised ALDF that "[t]he information requested is exempt from disclosure per KRS 61.878(1)(h)," reciting the language of the statute but offering no explanation of how KRS 61.878(1)(h) applies to the records withheld. Shortly thereafter, ALDF initiated this appeal asserting that the Board "did not meet its statutory burden of proof in sustaining the blanket denial of the request for records from 2007 to the present, . . . identify[ing] the documents, or groups of documents withheld, or adequately explain[ing] how KRS 61.878(1)(h) applies to those records."
In supplemental correspondence directed to this office, the Board elaborated on its position. 1 Board attorney Mark Brengelman acknowledges receipt of a complaint against the Taylor County Animal Shelter, over which the Board exercises regulatory control, alleging "improper euthanization of animals, including burying animals in the ground who had been euthanized and not using an incinerator for the purpose of disposing of euthanized animals" as well as the use of prison labor to carry out these tasks and prisoners' statements that some animals were buried alive. Continuing, Mr. Brengelman explained that the Board launched an investigation into the complaint and that the investigation is ongoing. It was the Board's position that "premature release of the documents may lead to the intimidation of prospective witnesses, destroying, tampering with, or creating records or other evidence, and material witnesses making themselves unavailable for interview during the investigation."
Because it is authorized to take disciplinary action against the Taylor County Animal Shelter under 201 KAR 16:080 Section 6 and KRS 321.235(7) "for violation of applicable statutes and administrative regulations," and the records to which ALDF requested access were compiled in the process of detecting or investigating violations of these statutes and regulations, 2 the Board satisfies parts one and two of the three-part test found at KRS 61.878(1)(h). Because the Board articulates actual harm from premature release of records responsive to ALDF's request, satisfying the third part of the test, we affirm its denial of the request as it relates to the current investigation of the Taylor County Animal Shelter. Nevertheless, ALDF's request encompassed records dating back to January 2007, and it is incumbent on the Board to conduct a search of its files to determine if complaints have been filed against, investigations conducted into, or disciplinary action imposed on the Taylor County Animal Shelter from 2007 to the present other than the complaint and investigation now underway. The Board's duties under the Open Records Act will not be fully discharged until it notifies ALDF, in writing, whether its search yielded any responsive records and, if so, it provides ALDF with copies of those records.
The Kentucky Board of Veterinary Examiners violated KRS 61.880(1) in its original response to ALDF's request because it failed to briefly explain how KRS 61.878(1)(h) applies to the records withheld. KRS 61.880(1) requires both a written statement of the exception upon which reliance is placed and "a brief explanation of how the exception applies to the record withheld. " Kentucky's courts have construed this provision to require "particular and detailed information in response to a request for documents." Edmondson v. Alig, 926 S.W.2d 856, 858 (Ky. App. 1996). The Board furnished "particular and detailed information" in its December 7 supplemental response thereby mitigating the deficiencies in its original response at least insofar as that response addressed its current investigation of the Taylor County Animal Shelter. It remains for the Board to conduct a broader search for records dating back to January 2007 "using methods which can reasonably be expected to produce the records requested," 95-ORD-96, p. 7 cited in 11-ORD-031, p. 3, and to provide ALDF with copies of the records. If its good faith search yields no results, it remains for the Board to issue a written response to ALDF confirming that no additional responsive records exist.
We affirm the Board's invocation of KRS 61.878(1)(h) to support nondisclosure of records compiled in its current investigation of the Taylor County Animal Shelter based on the authorities cited in its supplemental response and the cogent explanation of their application to the disputed records. The Board references a line of open records decisions recognizing the three-part test for agency invocation of KRS 61.878(1)(h) and postulated on the legislative declaration that the exception "shall not be used by the custodian of records to delay or impede the exercise of rights granted by KRS 61.870 to 61.884." KRS 61.878(1)(h). While we continue to ascribe to the view that "[t]he inclusion of this language imports a legislative resolve that the exceptions be invoked judiciously, and only when each of the [three-part test] has been met," 08-ORD-021, p. 11, 12, the Board successfully establishes that records relating to its current investigation of the Taylor County Animal Shelter fall squarely within the parameters of KRS 61.878(1)(h). With regard to the current complaint, the Board is acting as an agency involved in administrative adjudication pursuant to 201 KAR 16.080 Section 6 and KRS 321.235(7), the disputed records were compiled in the process of detecting and investigating the alleged statutory or regulatory violations, and disclosure of those records would harm the Board's investigation and enforcement action through the intimidation of prospective witnesses and the spoliation of evidence. We, therefore, find no error in the Board's denial of this portion of ALDF's request.
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 proceeding.
Distributed to:
Wendy CromwellJeff BolerMark Brengelman
Footnotes
Footnotes
1 ALDF objected to our consideration of the Board's supplemental response, arguing that it was not submitted in a timely fashion. 40 KAR 1:030 Section 2 states that the Attorney General "shall consider any response [to his notification of appeal] received before the [open records] decision is prepared. . . ." Although that notification directs the receiving agency to respond within five business days, that deadline is not statutorily mandated and requests for extensions of time for filing responses are regularly granted.
2 We trust that documents other than the complaint that initiated the investigation are at issue in this appeal. Generally, complaints, or other initiating documents, do not enjoy protection under KRS 61.878(1)(h) since they are not "actively, specifically, intentionally, and directly compiled as an integral part of a specific detection or investigation process." OAG-89-11, p. 4. Complaints do, however, generally enjoy protection under KRS 61.878(1)(i) and (j), the preliminary documents exceptions, until final action is taken or a decision to take no action is made. City of Louisville v. Courier-Journal, 637 S.W.2d 658 (Ky. App. 1982).
2011
2011 Ky. AG LEXIS 215
2011 Ky. AG LEXIS 214
2011 Ky. AG LEXIS 211
2011 Ky. AG LEXIS 212
2011 Ky. AG LEXIS 213
2011 Ky. AG LEXIS 210
2011 Ky. AG LEXIS 207
2011 Ky. AG LEXIS 209
2011 Ky. AG LEXIS 208
2011 Ky. AG LEXIS 206
2011 Ky. AG LEXIS 205
2011 Ky. AG LEXIS 204
2011 Ky. AG LEXIS 203
2011 Ky. AG LEXIS 200
2011 Ky. AG LEXIS 198
2011 Ky. AG LEXIS 201
2011 Ky. AG LEXIS 199
2011 Ky. AG LEXIS 202
2011 Ky. AG LEXIS 196
2011 Ky. AG LEXIS 197
2011 Ky. AG LEXIS 195
2011 Ky. AG LEXIS 193
2011 Ky. AG LEXIS 194
2011 Ky. AG LEXIS 192
2011 Ky. AG LEXIS 191
2011 Ky. AG LEXIS 190
2011 Ky. AG LEXIS 188
2011 Ky. AG LEXIS 189
2011 Ky. AG LEXIS 184
2011 Ky. AG LEXIS 185
2011 Ky. AG LEXIS 187
2011 Ky. AG LEXIS 186
2011 Ky. AG LEXIS 183
2011 Ky. AG LEXIS 182
2011 Ky. AG LEXIS 178
2011 Ky. AG LEXIS 181
2011 Ky. AG LEXIS 179
2011 Ky. AG LEXIS 180
2011 Ky. AG LEXIS 169
2011 Ky. AG LEXIS 168
2011 Ky. AG LEXIS 165
2011 Ky. AG LEXIS 166
2011 Ky. AG LEXIS 167
2011 Ky. AG LEXIS 177
2011 Ky. AG LEXIS 171
2011 Ky. AG LEXIS 176
2011 Ky. AG LEXIS 175
2011 Ky. AG LEXIS 174
2011 Ky. AG LEXIS 173
2011 Ky. AG LEXIS 170
2011 Ky. AG LEXIS 172
2011 Ky. AG LEXIS 155
2011 Ky. AG LEXIS 164
2011 Ky. AG LEXIS 163
2011 Ky. AG LEXIS 162
2011 Ky. AG LEXIS 160
2011 Ky. AG LEXIS 159
2011 Ky. AG LEXIS 161
2011 Ky. AG LEXIS 158
2011 Ky. AG LEXIS 157
2011 Ky. AG LEXIS 156
2011 Ky. AG LEXIS 154
2011 Ky. AG LEXIS 153
2011 Ky. AG LEXIS 146
2011 Ky. AG LEXIS 152
2011 Ky. AG LEXIS 151
2011 Ky. AG LEXIS 148
2011 Ky. AG LEXIS 149
2011 Ky. AG LEXIS 150
2011 Ky. AG LEXIS 147
2011 Ky. AG LEXIS 141
2011 Ky. AG LEXIS 140
2011 Ky. AG LEXIS 142
2011 Ky. AG LEXIS 144
2011 Ky. AG LEXIS 139
2011 Ky. AG LEXIS 143
2011 Ky. AG LEXIS 138
2011 Ky. AG LEXIS 137
2011 Ky. AG LEXIS 145
2011 Ky. AG LEXIS 130
2011 Ky. AG LEXIS 136
2011 Ky. AG LEXIS 129
2011 Ky. AG LEXIS 135
2011 Ky. AG LEXIS 134
2011 Ky. AG LEXIS 133
2011 Ky. AG LEXIS 132
2011 Ky. AG LEXIS 131
2011 Ky. AG LEXIS 127
2011 Ky. AG LEXIS 126
2011 Ky. AG LEXIS 125
2011 Ky. AG LEXIS 128
2011 Ky. AG LEXIS 124
2011 Ky. AG LEXIS 123
2011 Ky. AG LEXIS 122
2011 Ky. AG LEXIS 120
2011 Ky. AG LEXIS 121
2011 Ky. AG LEXIS 114
2011 Ky. AG LEXIS 119
2011 Ky. AG LEXIS 113
2011 Ky. AG LEXIS 118
2011 Ky. AG LEXIS 117
2011 Ky. AG LEXIS 116
2011 Ky. AG LEXIS 115
2011 Ky. AG LEXIS 112
2011 Ky. AG LEXIS 111
2011 Ky. AG LEXIS 110
2011 Ky. AG LEXIS 108
2011 Ky. AG LEXIS 105
2011 Ky. AG LEXIS 106
2011 Ky. AG LEXIS 107
2011 Ky. AG LEXIS 104
2011 Ky. AG LEXIS 109
2011 Ky. AG LEXIS 100
2011 Ky. AG LEXIS 102
2011 Ky. AG LEXIS 103
2011 Ky. AG LEXIS 101
2011 Ky. AG LEXIS 97
2011 Ky. AG LEXIS 99
2011 Ky. AG LEXIS 98
2011 Ky. AG LEXIS 89
2011 Ky. AG LEXIS 90
2011 Ky. AG LEXIS 95
2011 Ky. AG LEXIS 96
2011 Ky. AG LEXIS 94
2011 Ky. AG LEXIS 92
2011 Ky. AG LEXIS 93
2011 Ky. AG LEXIS 91
2011 Ky. AG LEXIS 87
2011 Ky. AG LEXIS 88
2011 Ky. AG LEXIS 86
2011 Ky. AG LEXIS 84
2011 Ky. AG LEXIS 85
2011 Ky. AG LEXIS 83
2011 Ky. AG LEXIS 81
2011 Ky. AG LEXIS 80
2011 Ky. AG LEXIS 82
2011 Ky. AG LEXIS 79
2011 Ky. AG LEXIS 78
2011 Ky. AG LEXIS 77
2011 Ky. AG LEXIS 76
2011 Ky. AG LEXIS 75
2011 Ky. AG LEXIS 74
2011 Ky. AG LEXIS 73
2011 Ky. AG LEXIS 72
2011 Ky. AG LEXIS 71
2011 Ky. AG LEXIS 70
2011 Ky. AG LEXIS 66
2011 Ky. AG LEXIS 69
2011 Ky. AG LEXIS 67
2011 Ky. AG LEXIS 68
2011 Ky. AG LEXIS 54
2011 Ky. AG LEXIS 65
2011 Ky. AG LEXIS 64
2011 Ky. AG LEXIS 55
2011 Ky. AG LEXIS 62
2011 Ky. AG LEXIS 63
2011 Ky. AG LEXIS 61
2011 Ky. AG LEXIS 59
2011 Ky. AG LEXIS 60
2011 Ky. AG LEXIS 56
2011 Ky. AG LEXIS 57
2011 Ky. AG LEXIS 58
2011 Ky. AG LEXIS 49
2011 Ky. AG LEXIS 48
2011 Ky. AG LEXIS 47
2011 Ky. AG LEXIS 50
2011 Ky. AG LEXIS 52
2011 Ky. AG LEXIS 51
2011 Ky. AG LEXIS 53
2011 Ky. AG LEXIS 46
2011 Ky. AG LEXIS 45
2011 Ky. AG LEXIS 44
2011 Ky. AG LEXIS 43
2011 Ky. AG LEXIS 42
2011 Ky. AG LEXIS 41
2011 Ky. AG LEXIS 37
2011 Ky. AG LEXIS 40
2011 Ky. AG LEXIS 39
2011 Ky. AG LEXIS 38
2011 Ky. AG LEXIS 36
2011 Ky. AG LEXIS 35
2011 Ky. AG LEXIS 34
2011 Ky. AG LEXIS 33
2011 Ky. AG LEXIS 32
2011 Ky. AG LEXIS 31
2011 Ky. AG LEXIS 30
2011 Ky. AG LEXIS 29
2011 Ky. AG LEXIS 28
2011 Ky. AG LEXIS 27
2011 Ky. AG LEXIS 26
2011 Ky. AG LEXIS 24
2011 Ky. AG LEXIS 18
2011 Ky. AG LEXIS 22
2011 Ky. AG LEXIS 23
2011 Ky. AG LEXIS 19
2011 Ky. AG LEXIS 17
2011 Ky. AG LEXIS 16
2011 Ky. AG LEXIS 20
2011 Ky. AG LEXIS 15
2011 Ky. AG LEXIS 21
2011 Ky. AG LEXIS 12
2011 Ky. AG LEXIS 13
2011 Ky. AG LEXIS 14
2011 Ky. AG LEXIS 6
2011 Ky. AG LEXIS 7
2011 Ky. AG LEXIS 11
2011 Ky. AG LEXIS 10
2011 Ky. AG LEXIS 9
2011 Ky. AG LEXIS 5
2011 Ky. AG LEXIS 8
2011 Ky. AG LEXIS 4
2011 Ky. AG LEXIS 3
2011 Ky. AG LEXIS 2
2011 Ky. AG LEXIS 1