Wheeler Cowperthwaite v. Duxbury, Town of - Public Schools (SPR 20212030)

The Commonwealth of Massachusetts William Francis Galvin, Secretary of the Commonwealth Public Records Division Rebecca S. Murray Supervisor of Records August 24, 2021 SPR21/2030 Anthony Keady Records Access Officer Duxbury Public Schools 93 Chandler Street Duxbury, MA 02332 Dear Mr. Keady: I have received the petition from Wheeler Cowperthwaite of the Patriot Ledger appealing the response of the Duxbury Public Schools (School) to a request for public records. G. L. c. 66, § 10A; see also 950 C.M.R. 32.08(1). On August 4, 2021, Mr. Cowperthwaite requested, “[a]ll invoices received since 2019 from Matt Ellis/Ellis Strategies [and] … [a]ll contracts and agreements with Matt Ellis/Ellis Strategies since 2019.” The School responded on August 10, 2021. Unsatisfied with the School’s response, Mr. Cowperthwaite appealed and this appeal, SPR21/2030, was opened as a result. Subsequently, the School provided a supplemental response on August 12, 2021 to which Mr. Cowperthwaite responded on August 12, 2021. The Public Records Law The Public Records Law strongly favors disclosure by creating a presumption that all governmental records are public records. G. L. c. 66, § 10A(d); 950 C.M.R. 32.03(4). “Public records” is broadly defined to include all documentary materials or data, regardless of physical form or characteristics, made or received by any officer or employee of any town of the Commonwealth, unless falling within a statutory exemption. G. L. c. 4, § 7(26). It is the burden of the records custodian to demonstrate the application of an exemption in order to withhold a requested record. G. L. c. 66, § 10(d)(iv) (written response must “identify any records, categories of records or portions of records that the agency or municipality intends to withhold, and provide the specific reasons for such withholding, including the specific exemption or exemptions upon which the withholding is based…”); 950 C.M.R. 32.06(3); see also Dist. Attorney for the Norfolk Dist. v. Flatley, 419 Mass. 507, 511 (1995) (custodian has the burden of establishing the applicability of an exemption). One Ashburton Place, Room 1719, Boston, Massachusetts 02108 • (617) 727-2832• Fax: (617) 727-5914 sec.state.ma.us/pre • pre@sec.state.ma.us

Anthony Keady SPR20/2030 Page 2 August 24, 2020 The School’s August 10th response In its August 10th response, the School produced a redacted copy of the invoice and stated that the redactions were made pursuant to Exemptions (c) of the Public Records Law. The School further asserted that, “[t]he Duxbury Public Schools does not currently have a contract nor any written agreement with Matt Ellis/Ellis Strategies.” In camera inspection In order to facilitate a determination as to the applicability of the School’s claims to redact certain portions of the requested records, the School must provide this office with the un-redacted copy of the responsive records for in camera inspection. After I complete my review of the documents, I will return the records to your custody and issue an opinion on the public or exempt nature of the record. See 950 C.M.R. 32.08(4). The authority to require the submission of records for an in camera inspection emanates from the Code of Massachusetts Regulations, 950 C.M.R. 32.08(4); see also G.L. c. 66, § 1. This office interprets the in camera inspection process to be analogous to that utilized by the judicial system. See Rock v. Massachusetts Comm'n Against Discrimination, 384 Mass. 198, 206 (1981) (administrative agency entitled deference in the interpretation of its own regulations). Records are not voluntarily submitted, but rather are submitted pursuant to an order by this office that an in camera inspection is necessary to make a proper finding. Records are submitted for the limited purpose of review. This office is not the custodian of records examined in camera, therefore, any request made to this office for records being reviewed in camera will be denied. See 950 C.M.R. 32.08(4)(c). This office has a long history of cooperation with governmental agencies with respect to in camera inspection. Custodians submit copies of the relevant records to this office upon a promise of confidentiality. This office does not release records reviewed in camera to anyone under any circumstances. Upon a determination of the public record status, records reviewed in camera are promptly returned to the custodian. To operate in any other fashion would seriously impede our ability to function and would certainly affect our credibility within the legal community. Please be aware, any cover letter submitted to accompany the relevant records may be subject to disclosure. Order Accordingly, the School is ordered to provide this office with an un-redacted copy of the responsive records for in camera inspection without delay.

Anthony Keady SPR20/2030 Page 3 August 24, 2020 Sincerely, Rebecca S. Murray Supervisor of Records cc: Wheeler Cowperthwaite