Access to Information Orders
Decision Information
NATURE OF THE APPEAL: The appellant submitted a request to the Ministry of Education and Training(the Ministry) under the Freedom of Information and Protection of PrivacyAct (the Act ). The request was for information about a namededucational institution, which I will refer to throughout this order as "theeducational institution". In particular, the appellant sought access to: records of all complaints (and their dispositions) against the educationalinstitution for the period 1989 - 1996 inclusive; inspection and audit reports regarding the educational institution for theperiod 1989 - 1996 inclusive; and records regarding an alleged scandal involving the educational institution,and all correspondence between the Ministry and the educational institution, forthe period 1989 - 1996 inclusive. The Ministry responded by indicating that fees would be charged inconnection with the request. The Ministry's initial fee estimate was asfollows: Search time, 2 hours @ $30 per hour '$60.00 Photocopying 8065 pages @ $0.20 per page '$1,613.00 Preparing record for disclosure, 37.76 hours @ $30 per hour '$1,133.33 Shipping$25.00 TOTAL$2,831.33 The Ministry also advised the appellant in connection with this estimatethat responsive records would likely also exist within individual student files,and that if the appellant wished a search in this regard to be carried out, shewould have to pay estimated search fees of $36,005 in addition to the aboveestimate, based on 1200.17 hours. The total charges in the estimate amount to $38,836.33. In addition, the Ministry's decision letter included an "interim accessdecision" as contemplated in Order 81, advising the appellant that severalexemptions would likely apply to certain parts of the records. As noted inOrder 81, the fee estimate may be appealed at this stage, but not the interimaccess decision. Once fees are paid and a final access decision is made, itwould be open to the appellant to appeal the final access decision. The appellant appealed the amount of the fee estimate. This office sent a Notice of Inquiry to the appellant and the Ministry. The Ministry's representations include an argument to the effect that theappeal was filed outside the statutory time frame, and that for this reason I amnot in a position to proceed with the appeal. I will consider this as apreliminary issue, below. The appellant's representations include a request for a fee waiver, which Iwill also consider as a separate issue in this order. PRELIMINARY ISSUE: LATE FILING OF APPEAL Section 50(2) of the Act states: An appeal under subsection (1) shall be made within thirty days after thenotice was given of the decision appealed from by filing with the Commissionerwritten notice of the appeal. In Order M-775, Inquiry Officer Laurel Cropley discussed the meaning of theterms "the notice was given" and "filing" in section 39(2)of the Municipal Freedom of Information and Protection of Privacy Act (the equivalent of section 50(2) of the Act ) as follows: Section 39(2) provides that the appeal must be made "within thirtydays after the notice was given ...". Therefore, the time period begins torun after the institution's decision is received by the requester. In thisappeal, there is no independent evidence other than the assertion of theinstitution, of the date on which notice was given. The question of when the period ends is somewhat more ambiguous. Thelanguage of the provision does not require that the appeal be "filed"or "registered" with this office. Rather, an appeal is "made",and there is no further explicit guidance in the Act . It is thusarguable that an appeal is "made" by mailing the appeal within thirtydays of receipt of the decision by the requester. In view of the evidence which shows that an appeal mailed to this officecan take a considerable time to arrive, and there is no deemed mailing dateprovision in the statute, the purpose of the statute to provide an independentreview of government decisions could be frustrated by a requirement that theeffective date for an appeal is the date of receipt by the Commissioner'soffice. Therefore, it is my view that the effective date for making an appealis the date of mailing by the requester. I agree with this reasoning and adopt it for the purposes of this appeal. The evidence before me does not disclose the date on which the appellantreceived the Ministry's decision of November 18, 1996. However, the appeal washand delivered to this office on January 23, 1997 and in these circumstances, Iam satisfied that it was "filed" on that date. If the appellantreceived the decision one day after the date of the letter, i.e. November 19,1996 (which is highly unlikely given that it appears to have been sent byordinary mail), then the appeal was filed on the 66th day after notice was "given",or 36 days after the expiry of the statutory time limit. On this basis, the Ministry submits that the Act prohibits me fromproceeding with this appeal. In my view, however, there are several othernoteworthy facts to consider. The request which is the subject of this appeal was received by the Ministryon September 13, 1996. The Ministry decided to effect a third partynotification under section 28 of the Act . In this regard, I note thatsection 28(3) requires such a notification to be given "within thirty daysafter the request for access is received". This period expired on October13, 1996. According to the Ministry's representations, the section 28notification was given on October 15, 1996, which is two days after the expiryof the statutory time limit. The Ministry also wrote to the appellant advising that a section 28 noticehad been sent, and indicating that a decision on access would be made byNovember 14, 1996, "in accordance with section 28(4) of the Act". Section 28(4) requires a decision within thirty days after sending a section 28notice, which would have expired on November 14, 1996, the same date indicatedby the Ministry in its letter. In fact, however, the Ministry issued its feeestimate and interim access decision on November 18, 1996, which is four daysafter the expiry of the statutory time limit. In my view, it would not be equitable to allow the Ministry to impose astrict reading of the time limits in the Act after breaching several ofthem in its own handling of the matter. I also note that, in Order M-775, Inquiry Officer Cropley quoted withapproval several comments made in Order 155 by former Commissioner Sidney B.Linden, as follows: The nature of the appeal
Decision Content
ORDER P-1402
Appeal P-9700020
Ministry of Education and Training
NATURE OF THE APPEAL:
The appellant submitted a request to the Ministry of Edu
• records of all complaints (and their dispositions) against the edu
• inspection and audit reports regarding the edu
• records regarding an alleged s
The Ministry responded by indi
Search time, 2 hours @ $30 per hour = $60.00
Photocopying 8065 pages @ $0.20 per page = $1,613.00
Preparing record for disclosure, 37.76 hours @ $30 per hour = $1,133.33
Shipping $25.00
TOTAL $2,831.33
The Ministry also advised the appellant in connection with this estimate that responsive records would likely also exist within individual student files, and that if the appellant wished a search in this regard to be
The total charges in the estimate amount to $38,836.33.
In addition, the Ministry’s decision letter included an “interim access decision” as contemplated in Order 81, advising the appellant that several exemptions would likely apply to certain parts of the records. As noted in Order 81, the fee estimate may be appealed at this stage, but not the interim access decision. Once fees are paid and a final access decision is made, it would be open to the appellant to appeal the final access decision.
The appellant appealed the amount of the fee estimate.
This office sent a Notice of Inquiry to the appellant and the Ministry.
The Ministry’s representations include an argument to the effect that the appeal was filed outside the statutory time frame, and that for this reason I am not in a position to proceed with the appeal. I will consider this as a preliminary issue, below.
The appellant’s representations include a request for a fee waiver, which I will also consider as a separate issue in this order.
PRELIMINARY ISSUE:
LATE FILING OF APPEAL
Section 50(2) of the Act states:
An appeal under subsection (1) shall be made within thirty days after the notice was given of the decision appealed from by filing with the Commissioner written notice of the appeal.
In Order M-775, Inquiry Officer
Section 39(2) provides that the appeal must be made “within thirty days after the notice was given ...”. Therefore, the time period begins to run after the institution’s decision is received by the requester. In this appeal, there is no independent evidence other than the assertion of the institution, of the date on which notice was given.
The question of when the period ends is somewhat more ambiguous. The language of the provision does not require that the appeal be “filed” or “registered” with this office. Rather, an appeal is “made”, and there is no further explicit guidance in the Act. It is thus arguable that an appeal is “made” by mailing the appeal within thirty days of receipt of the decision by the requester.
In view of the evidence which shows that an appeal mailed to this office
I agree with this reasoning and adopt it for the purposes of this appeal. The evidence before me does not disclose the date on which the appellant received the Ministry’s decision of November 18, 1996. However, the appeal was hand delivered to this office on January 23, 1997 and in these circumstances, I am satisfied that it was “filed” on that date. If the appellant received the decision one day after the date of the letter, i.e. November 19, 1996 (which is highly unlikely given that it appears to have been sent by ordinary mail), then the appeal was filed on the 66th day after notice was “given”, or 36 days after the expiry of the statutory time limit.
On this basis, the Ministry submits that the Act prohibits me from proceeding with this appeal. In my view, however, there are several other noteworthy facts to consider.
The request which is the subject of this appeal was received by the Ministry on September 13, 1996. The Ministry decided to effect a third party notifi
The Ministry also wrote to the appellant advising that a section 28 notice had been sent, and indi
In my view, it would not be equitable to allow the Ministry to impose a strict reading of the time limits in the Act after breaching several of them in its own handling of the matter.
I also note that, in Order M-775, Inquiry Officer Cropley quoted with approval several comments made in Order 155 by former Commissioner Sidney B. Linden, as follows:
The nature of the appeals system envisaged by the Act is informal. The policy of the Act as outlined in section 1 thereof is to promote access to information in the custody or under the control of government institutions, and to provide for the protection of personal privacy.
In view of these circumstances, Commissioner Linden states that the Act should be interpreted:
... liberally in favour of access to the process, rather than strictly to deny access. This is especially true where the alleged lapse of time after the date when an appeal should have been filed is not signifi
I also agree with the views expressed by former Commissioner Linden. The delay in filing the appeal does not appear to be particularly signifi
For all these reasons, I have decided to proceed with this appeal.
DISCUSSION:
FEE ESTIMATE
I will begin this discussion by setting out the relevant provisions of the Act and Regulation 460 made under the Act (the Regulation).
The charging of fees is authorized by section 57(1) of the Act, which states:
A head shall require the person who makes a request for access to a record to pay fees in the amounts prescribed by the regulations for,
(a) the costs of every hour of manual search required to lo
(b) the costs of preparing the record for disclosure;
(c) computer and other costs incurred in lo
(d) shipping costs; and
(e) any other costs incurred in responding to a request for access to a record.
Section 6 of the Regulation also deals with fees. It states, in part, as follows:
The following are the fees that shall be charged for the purposes of subsection 57(1) of the Act for access to a record:
1. For photocopies and computer printouts, 20 cents per page.
3. For manually searching a record, $7.50 for each 15 minutes spent by any person.
4. For preparing a record for disclosure, including severing a part of the record, $7.50 for each 15 minutes spent by any person.
In its representations, the Ministry revised its fee
Search time, .5 hours @ $30 per hour = $15.00
Photocopying 8065 pages @ $0.20 per page = $1,613.00
Preparing record for disclosure, 37.76 hours @ $30 per hour = $1,133.33
Shipping $20.00
TOTAL $2,781.33
The other aspect of the estimate, relating to searches of student files, remains unchanged at $36,005.
I will consider these two parts of the estimate separately.
Estimate Relating to the “Readily Available” Records
The Ministry submits that these records are lo
The Legal Services Branch is estimated to have 1225 pages of responsive records for photocopying. The Ministry submits that the search and preparation times associated with these records are nil.
The Private Vo
The Ontario Student Assistance Program (OSAP) is estimated to have 6800 pages of records to be photocopied. Be
The Ministry further submits that the page counts for the Legal Services Branch and OSAP are likely to be accurate as the records were accessed when the estimate was prepared.
The appellant refers to Order 4, in which former Commissioner Sidney B. Linden commented that:
In my view, the time involved in making a decision as to the appli
I agree with these comments of former Commissioner Linden and I will apply them in my decision.
Having reviewed the fee estimate and the representations of the parties, I make the following findings regarding the fee estimate for the “readily accessible” records:
(1) The Ministry’s estimate of $1,613 for photocopying 8065 pages of records is
(2) The Ministry’s fee of $15 based on one-half hour of search time in connection with the Private Vo
(3) With regard to the Ministry’s fee of $1,133.33 for preparation time, I find that the Ministry’s basis for
(4) The Ministry has not substantiated its fee for shipping charges, which is therefore not upheld.
In summary, I uphold a fee estimate in the amount of $2,760.80 with respect to this aspect of the matter.
Searches of Student Files
In relation to this part of the estimate, the Ministry submits that, to ensure that all complaints are lo
The Ministry also indi
The Ministry further submits that the student files for the subsequent period are available electroni
Based on the information provided to me, I find that five minutes to retrieve and review each file is excessive. In my view, an average time of three minutes to retrieve and review each file would be more reasonable.
A
In its representations, the Ministry indi
FEE WAIVER
Fee waiver is provided for by section 57(4) of the Act, which states:
A head shall waive the payment of all or any part of an amount required to be paid under subsection (1) if, in the head’s opinion, it is fair and equitable to do so after considering,
(a) the extent to which the actual cost of processing, collecting and copying the record varies from the amount of the payment required by subsection (1);
(b) whether the payment will
(c) whether dissemination of the record will benefit public health or safety; and
(d) any other matter prescribed in the regulations.
Section 8 of Regulation 460 provides as follows:
The following are prescribed as matters for a head to consider in deciding whether to waive all or part of a payment required to be made under the Act:
1. Whether the person requesting access to the record is given access to it.
2. If the amount of a payment would be $5 or less, whether the amount of the payment is too small to justify requiring payment.
Many previous orders have held that the onus is on the appellant to demonstrate that a fee waiver would be justified (e.g. Order P-530).
Financial Hardship
The appellant submits that payment of a fee of over $38,000 will be a financial hardship. While it may appear obvious that such a fee, or indeed the reduced total amount of $24,363.80 which I have upheld, would be a financial hardship for virtually anyone, there remains an onus on the appellant to demonstrate that this is so. I have not been provided with any specific data to substantiate this in the present
Moreover, the Ministry has indi
I find that the appellant is not entitled to a fee waiver on the basis of financial hardship.
Public Interest
The appellant argues that it would be in the public interest to grant a waiver be
ORDER:
1. I uphold a fee estimate in the amount of $2,760.80 in relation to the “readily available” files.
2. I uphold a fee estimate in the amount of $21,603 in relation to the search of individual student files, should the appellant wish to have this undertaken.
3. I do not uphold the appellant’s request for a fee waiver.
Original signed by: June 6, 1997_____
Inquiry Officer