J.C. Hyness v. Boston, City of - Police Department (SPR 20222630)

The Commonwealth of Massachusetts William Francis Galvin, Secretary of the Commonwealth Public Records Division Manza Arthur Supervisor of Records November 28, 2022 SPR22/2590; SPR22/2591 SPR22/2612; SPR22/2615 SPR22/2630; SPR22/2631 SPR22/2633 Shawn A. Williams, Esq. Director of Public Records Record Access Officer City of Boston One City Hall Square Boston, MA 02201 Dear Attorney Williams: I have received the petitions of J.C. Hyness, of Live Boston 617 Inc., appealing the responses of the City of Boston (City) to requests for public records. G. L. c. 66, § 10A; see also 950 C.M.R. 32.08(1). On September 23, 26, and 27, 2022, respectively, J.C. Hyness requested: [1] …BWC footage from any primary and/or other officer involved in the use of force or arrest as well as the booking photo(s), report(s) and other records associated with the arrest of [named persons, ages and named cities] in [a specific] area … in Roxbury … [2] …the primary/arresting officer(s) BWC footage as well as the booking photo(s), report(s) and other records associated with the arrest of [named person and age] … of Allston… [3] …the primary/arresting officer(s) BWC footage as well as the booking photo(s), report(s) and other records associated with the arrest of [named persons and ages] … of Dorchester … [4] …the primary/arresting officer(s) BWC footage as well as the booking photo(s), report(s) and other records associated with the arrest of [named person and age] … of Dorchester …[.] [5] …the primary/arresting officer(s) BWC footage as well as the booking photo(s), report(s) and other records associated with the arrest of [named person and age] … of Dorchester …[.] [6] …the primary/arresting officer(s) BWC footage as well as the booking photo(s), report(s) and other records associated with the arrest of [named person and age] … of Everett …[.] 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

Shawn A. Williams, Esq. SPR22/2590; SPR22/2591; Page 2 SPR22/2612; SPR22/2615; November 29, 2022 SPR22/2630; SPR22/2631; SPR22/2633 [7] …the primary/arresting officer(s) BWC footage as well as the booking photo(s), report(s) and other records associated with the arrest of [named person and age] … of Boston …[.] The City responded on October 1, October 13, October 20, and October 25, 2022. Unsatisfied with the responses, J.C. Hyness petitioned this office and these appeals, SPR22/2590, SPR22/2591, SPR22/2612, SPR22/2615, SPR22/2630, SPR22/2631, and SPR22/2633 were opened as a result. 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. The City’s October 1st, October 13th, October 20th, and October 25th Responses In its October 1, 2022, October 13, 2022, October 20, 2022, and October 25, 2022, responses the City cited Exemption (f) to withhold the requested records. Exemption (f) Exemption (f) permits the withholding of: investigatory materials necessarily compiled out of the public view by law enforcement or other investigatory officials the disclosure of which materials would probably so prejudice the possibility of effective law enforcement that such disclosure would not be in the public interest. G. L. c. 4, § 7 (26)(f). A custodian of records generally must demonstrate a prejudice to investigative efforts in order to withhold requested records. Information relating to an ongoing investigation may be withheld if disclosure could alert suspects to the activities of investigative officials. Confidential

Shawn A. Williams, Esq. SPR22/2590; SPR22/2591; Page 3 SPR22/2612; SPR22/2615; November 29, 2022 SPR22/2630; SPR22/2631; SPR22/2633 investigative techniques may also be withheld indefinitely if disclosure is deemed to be prejudicial to future law enforcement activities. Bougas v. Chief of Police of Lexington, 371 Mass. 59, 62 (1976). Redactions may be appropriate where they serve to preserve the anonymity of voluntary witnesses. Antell v. Att’y Gen., 52 Mass. App. Ct. 244, 248 (2001); Reinstein v. Police Comm’r of Boston, 378 Mass. 281, 290 n.18 (1979). Exemption (f) invites a “case-by case consideration” of whether disclosure ‘would probably so prejudice the possibility of effective law enforcement that such disclosure would not be in the public interest.” See Reinstein, 378 Mass. at 289-290. In its responses, the City asserted, “[t]he prosecutors assigned to this case and the SCDAO stated that the release of BWC at this time would be harmful to an open investigation they are currently conducting. As such, this request is denied at this time under the investigatory exemption to the public records law.” Based on the City’s response, it is unclear what type of records it possesses that it withheld from disclosure. G. L. c. 66, § 10(b)(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 . . .”). Therefore, the City must identify the categories of records it has in its possession that it is withholding under Exemption (f). Further, although the City claims it has an open investigation regarding the requested records, it is unclear how the records in their entirety can be withheld under Exemption (f). It is unclear from the City’s response whether the records contain confidential investigative techniques that would be prejudicial to the ongoing investigation if disclosed. The City did not demonstrate how disclosure of any portion of the responsive records “would probably so prejudice the possibility of effective law enforcement that such disclosure would not be in the public interest[,]” as required under Exemption (f). See Reinstein, 378 Mass. at 289-90 (the statutory exemptions are narrowly construed and are not blanket in nature). Any non-exempt, segregable portion of a public record is subject to mandatory disclosure. G. L. c. 66, § 10(a). Conclusion Accordingly, the City is ordered to provide J.C. Hyness with a response to the requests, provided in a manner consistent with this order, the Public Records Law and its Regulations within ten business days. A copy of any such response must be provided to this office. It is preferable to send an electronic copy of this response to this office at pre@sec.state.ma.us.

Shawn A. Williams, Esq. SPR22/2590; SPR22/2591; Page 4 SPR22/2612; SPR22/2615; November 29, 2022 SPR22/2630; SPR22/2631; SPR22/2633 Sincerely, Manza Arthur Supervisor of Records cc: J.C. Hyness