Commonwealth Transparency v. Minuteman Regional Vocational Technical School (SPR 20212902)

The Commonwealth of Massachusetts William Francis Galvin, Secretary of the Commonwealth Public Records Division Rebecca S. Murray Supervisor of Records November 10, 2021 SPR21/2902 Dan O’Brien Communications Director Minuteman High School 758 Marrett Road Lexington, MA 02421 Dear Mr. O’Brien: I have received the petition of OpenCommonwealth.org appealing the response of the Minuteman High School (School) to a request for public records. G. L. c. 66, § 10A; see also 950 C.M.R. 32.08(1). On October 12, 2021, OpenCommonwealth.org requested the following: For the time period January 1, 2016 through the date [the School] respond[s] with the responsive documents, please provide the following; 1. Any and all public records requests seeking public records of [the] school(s), and/or district(s). 2. All metadata from the requests in #1 above including all contact information of the requestor, including but not limited to emails and text messages. 3. All electronic communications regarding #1 above including but not limited to emails and text messages. 4. All responses, appeals, fee requests and responsive records resulting from the requests in #1 above. Previous Petition This request was the subject of a petition from the School. See SPR21/2832 Supervisor of Records Determination (October 29, 2021). In my October 29th determination, I found that the School had established good cause for a time extension of 30 business days and that the School may assess a fee for segregation and redaction. The School provided OpenCommonwealth.org with a fee estimate on October 26, 2021. Objecting to the fees, OpenCommonwealth.org appealed, and this case was opened as a result. 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

Dan O’Brien SPR21/2902 Page 2 November 10, 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 agency or municipality 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(b)(iv); 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). To meet the specificity requirement a custodian must not only cite an exemption, but must also state why the exemption applies to the withheld or redacted portion of the responsive record. If there are any fees associated with a response a written, good faith estimate must be provided. G. L. c. 66, § 10(b)(viii); see also 950 C.M.R. 32.07(2). Once fees are paid, a records custodian must provide the responsive records. Fee Estimate – Municipalities A municipality may assess a reasonable fee for the production of a public record except those records that are freely available for public inspection. G. L. c. 66, § 10(d). The fees must reflect the actual cost of complying with a particular request. Id. A maximum fee of five cents ($.05) per page may be assessed for a black and white single or double-sided photocopy of a public record. G. L. c. 66, § 10(d)(i). Municipalities may not assess a fee for the first (two) 2 hours of employee time to search for, compile, segregate, redact or reproduce the record or records requested unless the municipality has 20,000 people or less. G. L. c. 66, § 10(d)(iii). Where appropriate, municipalities may include as part of the fee an hourly rate equal to or less than the hourly rate attributed to the lowest paid employee who has the necessary skill required to search for, compile, segregate, redact or reproduce a record requested, but the fee shall not be more than $25 per hour. Id. However, municipalities may charge more than $25 per hour if such rate is approved by the Supervisor of Records under a petition under G. L. c. 66, § 10(d)(iv). A fee shall not be assessed for time spent segregating or redacting records unless such segregation or redaction is required by law or approved by the Supervisor of Records under a petition under G. L. c. 66, § 10(d)(iv). See G. L. c. 66, § 10(d)(iii); 950 C.M.R. 32.06(4). The School’s October 26th Fee Estimate In its October 26, 2021 fee estimate, the School states the following:

Dan O’Brien SPR21/2902 Page 3 November 10, 2021 The [School’s] search generated 510,495 emails which may be responsive to [the] request and will need to review each email to ensure responsiveness. The [School] is not aware of any text messages or hardcopy documents not contained in email that are responsive to [the] request. Any “public records requests” and “responses, appeals, fee requests and responsive records resulting from the requests” would be contained in the mentioned emails. The School further explains the following regarding the calculation of its fee estimate: In this case, the lowest paid employee who has the necessary skill required to search for, compile, segregate, redact or reproduce the record requested is a salaried employee whose effective hourly rate exceeds $25 per hour. Notwithstanding that rate, a rate of $25 per hour will be used to calculate the following fee estimate. . . . In this case, the [School] estimates that it will take approximately thirty (30) seconds per email to read the email and determine whether it is responsive to the request. Furthermore, the [School] has already spent one hour of time searching for the records. As a result, the [School] estimates a total of 4,255 hours for search of the records. . . . The [School] estimate that it will take approximately 1 minute per page to complete its segregation, and potential redaction of the records sought in [the] request. As a result, the [School] estimates a total of 8,509 hours for segregation and redaction. . . . 4,255 hours for search plus 8,509 hours for segregation and redaction is a total of 12,764 hours. In accordance with 950 CMR 32.07(2)(m)(1), Open Commonwealth will not be charged for the first two (2) hours of those services. 12,764 hours minus two hours is a total of 12,[76]2 hours. 12,[76]2 hours multiplied by $25 per hour yields a fee estimate of $319,050. As noted above, the School was previously approved to assess a fee for segregation and redaction. This office encourages OpenCommonwealth.org and the School to communicate to facilitate providing records more efficiently and affordably. See G. L. c. 66, § 10(b)(vii) (a -- municipality shall suggest a reasonable modification of the scope of the request or offer to assist the requestor to modify the scope of the request if doing so would enable the municipality to produce the records sought more efficiently and affordably). Conclusion As set forth above, I find the School has met its burden in responding to OpenCommonwealth.org’s request at this time. Any revision to the request would result in the

Dan O’Brien SPR21/2902 Page 4 November 10, 2021 requirement to issue a revised estimate. Accordingly, I will consider this administrative appeal closed. Sincerely, Rebecca S. Murray Supervisor of Records cc: OpenCommonwealth.org