HomeMy WebLinkAboutPackets - Council Packets (940) **AMENDED (10/06/06, 10:30 a.m.)
AGENDA
ORO VALLEY TOWN COUNCIL
**SPECIAL SESSION/STUDY SESSION
OCTOBER 11, 2006
ORO VALLEY TOWN COUNCIL CHAMBERS
11000 NORTH LA CANADA DRIVE
STUDY SESSION/SPECIAL SESSION - AT OR AFTER 5:30 PM
CALL TO ORDER
ROLL CALL
STUDY SESSION AT OR AFTER 5:30 PM
1. DISCUSSION REGARDING THE IMPACT OF THE RTA ON THE
TOWN OF ORO VALLEY'S PUBLIC TRANSIT SYSTEM
2. REVIEW OF THE TOWN'S ANNEXATION POLICY
3. REVIEW
OF THE SOUTHWEST PLANNING AREA ANNEXATION
PLAN
ADJOURNMENT OF STUDY SESSION
SPECIAL SESSION AT OR AFTER 5:30 PM
**EXECUTIVE SESSION
Pursuant to ARS § 38-431.03.A(3) and (4), Council may vote to go into Executive
Session
to discuss and consult with the Town Attorney for legal advice and to
provideregarding direction re ardin the handling of public record requests, pursuant to
ARS 39-121 et seq., for Town employee personnel records/information
§§ q
reg employee
latin toperformance and internal investigations of employees
(Continued from 10-04-06)
ADJOURN EXECUTIVE SESSION
**RESUME SPECIAL SESSION
USSION, CONSIDERATION AND POSSIBLE ACTION
1. DISC
AUTHORIZING THE TOWN ATTORNEY TO TAKE LEGAL ACTION TO
OBTAIN IN DIRECTION FROM THE COURTS CONCERNING RELEASE OF
TOWN
EMPLOYEE PERSONNEL RECORDS/INFORMATION RELATING TO
EMPLOYEE PERFORMANCE AND INTERNAL INVESTIGATIONS OF
EMPLOYEES, PURSUANT TO AN ARS §§ 39-121 ET SEQ. PUBLIC
RECORDS REQUEST (Continued from 10-04-06)
The Town of Oro Valley complies with the Americans with Disabilities Act(ADA). If any person
with a disability needs any type of accommodation, please notify the Oro Valley Town Clerk, at
229-4700.
POSTED: 10/04/06 AMENDED AGENDA POSTED: 10/06/06
4:00 p.m.(Ih) 10:30 a.m.(Ih)
1
TOWN OF ORO VALLEY
COUNCIL COMMUNICATION OCTOBER 11,2006
TO: HONORABLE MAYOR & COUNCIL
FROM: Charles Kidwell, Transit Services Administrator
SUBJECT: Study session with Council on RTA Components/Elements for Oro Valley
SUMMARY:
RTA Public Transit Elements & Components of RTA plan for Oro Valley. Within this Council
Communication form are enumerated the public transit components/elements of the RTA plan as
currently understand them to be. Included are the individual elements of the plan for Oro Valley
and the proposed dates to begin operation of each component and the projected RTA cost' or
funding levels that are projected for each element. The RTA transit map is attached for your
review as attachment A.
As you review this memo; please keep in mind that some of the components listed, must still be
developed more thoroughly and these decisions and/or adjustments might be best developed by
going through a (pending approval by Mayor and Town Council) local Town of Oro Valley Transit
Advisory Committee first before they are proposed to council for approval and then on to the RTA
board for review. In addition the funding totals listed in this document are totals provided by RTA
and or PAG.
PROJECT OVERVIEW:
• New Park-and-Ride Facility
A new park-and-ride facility is proposed for Oro Valley to serve as the hub for future transit
services and carpools. The facility, to be located in the vicinity of the Oracle/Tangerine
intersection, will include such amenities as secured parking, shaded waiting areas, comfortable
seating, and bus schedules. The new facility may possibly be integrated within an existing
developed site such as Northwest Hospital or the industrial park, or the future Vestar shopping
mall. Oro Valley officials will coordinate site planning and development with local business
partners.
Construction start date: Yet to be determined by local officials.
Estimated total cost: Yet to be determined by local officials. There is a total of $14.7 million in
RTA funds to construct 6 park-and-ride facilities throughout the region. The total estimated
dollar amount for Oro Valley is $2.45 million, depending on future use, facility size, amenities,
and operating and maintenance costs.
• New Neighborhood Circulator Service
A new bus service will circulate within the Oro Valley area to provide connections to important
community activity centers, including the new park-and-ride facility. Service is expected to
operate Monday thru Friday on a fixed route schedule as identified by the (pending approval by
Council) Town of Oro Valley Transit Advisory Committee in coordination with community and
other town staff. All new vehicles will be ADA-accessible for easy boarding.
Estimated start date: Fiscal year 2009 or later
Estimated total cost: The RTA budget for this service is $8,648,000 over the life of the RTA
plan.
• Two New Express Bus Services; Raytheon and Downtown
Two new express bus routes will provide direct service between the new park-and-ride facility
and downtown Tucson, and a connection to the Raytheon worksite. Service will operate
Monday thru Friday with three trips in the morning and three in the afternoon. Exact routing
and times will be identified by (pending approval by council) the TOV Transit Advisory
Committee with input from the community and town staff in coordination with local transit
officials. All new low-floor vehicles will be ADA-accessible for easy boarding.
Start date: Both express bus services are estimated to begin in Fiscal year 2008 or 2009.
Estimated total cost: Oro Valley Express to Downtown $6,127,000.
Estimated total cost: Oro Valley Express to Raytheon $10,400,000.
• Extended Route #62 for Oro Valley
The existing Sun Tran Route #62 (Oro Valley Limited Express) will be upgraded to a full-time
local route with service 7 days per week between the new park-and-ride facility and downtown
Tucson. Service will operate every 30 minutes during the weekdays, and every 60 minutes in
the evenings and on Saturday and Sunday. Exact routing and times will be identified by (if
approved by Council) the Town of Oro Valley's Transit Advisory Committee and local
community and town staff in coordination with Suntrap and other local transit officials.
Pending RTA Board approval and release of funds this service is scheduled to begin in 2009.
Start date: Fiscal year 2012
Estimated total cost: within Sun Tran budget using RTA funds
*Special Transit Service
Existing Para-transit services will be expanded by approximately 3.5 percent annually to meet
future mobility needs of a growing disabled population. Pending RTA Board approval and
release of funds Van Tran service will serve the area 3/4 of a mile around the new local regular
route (ADA complementary Para-transit) as the fixed route expansions occur. New buses,
schedules and final route plans have to be purchased and designed for implementation of this
service.
Start date: Fiscal year 2012 concurrent with Sun Tran route#62 expansion
Estimated total cost: within Van Tran budget using RTA funds
• Coyote Run Service Expansion
The RTA will provide approximately $2.34 million over 20 years for the expansion of Coyote
Run Service to help meet a growing demand for transportation. Expanded service will be
identified by Town officials in working with the Town of Oro Valley Transit Advisory Committee
if approved by Council for recommendations.
Estimated start date: Possibly before the end of calendar year 2007.
Estimated total cost: The RTA budget for this service is $2.34 million over the life of the RTA
plan.
At this time it is estimated that there will be at least $20,000 available for our first six (6)
months of service. At this rate of cost reimbursement, Coyote Run should be able to expand
services by approximately three (3) hours per weekday. These hours of expansion will most
likely be in the evening hours beyond 5pm and up to bu o not excee. 9pm.'
. r
L
/
Craig Civ.-lier, Town Engineer
David Andrews, Town Manager
Attachment A
RTA Transit Map
TOWN OF ORO VALLEY
2
STUDY SESSION MEETING DATE October 11, 2006
TO: HONORABLE MAYOR & TOWN COUNCIL
FROM: Scott Nelson, Special Projects Coordinator
SUBJECT: REVIEW OF THE TOWN'S ANNEXATION POLICY
SUMMARY:
At the August 16, 2006 Town Council meeting, Council directed the Town Manager's
Department to bring the Town's Policy for Annexation of Unincorporated land to the
Council for discussion at a future study session.
In 1974, when the original boundary of the Town of Oro Valley was formed, it contained
2.6 square miles and a population of more than 1,000. In 1978, the Town began its
history of annexations, and 41 annexations later; the Town of Oro Valley now contains
approximately 34.7 square miles and a population of more than 39,400.
The success of these annexations has contributed to the growth of both state shared
revenue growth and general economic expansion.
ATTACHMENTS
1. Town of Oro Valley, Policy for Annexation of Unincorporated Land
2. Annexation History Map
,
A 'AO
Scott Nelson, Special Projects Coordinator
David Andrews, Town Manager
Exhibit "A"
Town of Oro Valley, Arizona
Policy for the Annexation of Unincorporated Land
February 5, 2003
The annexation unincorporated uninco orated areas of Pima County of the Town of Oro Valley,
Arizona shall consider the following guidelines:
1) Pursue the filling out and squaring off of the town limits. Strive toward a configuration ation for the town limits which eliminates county islands and peninsulas
andy ields an identifiable, manageable boundary for the town.
2) Areas
to be considered shall be prioritized as to quantifiable benefit to the Town.
3) Require the submittal of a fiscal impact analysis for both undeveloped (rural) and
ed properties, the level of detail and contents ev eJ op p p � of which may vary with the
intensity or complexity of the proposed or existing use of the land. Such analysis
p y
is required, regardless of who initiates the annexation process.
4) Future
annexations of the Town shall be generally consistent with the policies
and thep lanning area of the Town's adopted General Plan.
Consider aproactive stance on annexations initiated in areas deemedmost
5) and/or
beneficial to the Town as indicated by town-prepared studyes professional
regional studies.
6) Lands annexed ed by the Town shall have existing, ordinanced zoning translated to
Oro Valley V lle districts in conformance with state law and to densities and uses no
greater than those permittedby the zoning ordinance of the governing jurisdiction
immediately before annexation.
ValleyPlanningand Zoning Commission shall review any proposed
7) The Oro
annexation outside the General Plan Planning Area. The Commission shall
forward
a recommendation to the Town Council within 30 days of the initial
hearing on the proposed annexation.
a eements shall be considered by the Planning and
8) Pre-annexation/developmentagreements
Zoning .
Commission and Town Council where appropriate during the annexation process witha five year limitation then subject to review at the end of the five
year period.
9) That the Mayor and Council may appoint a Council Member to serve on the
annexation team.
RESOLUTION NO. (R)03- 06
A RESOLUTION OF THE MAYOR AND COUNCIL OF THE
TOWN OF ORO VALLEY, ARIZONA, AMENDING POLICY FOR
ANNEXATION OF UNINCORPORATED LAND AND MAKING SUCH
DOCUMENT A PUBLIC RECORD; AND RESCINDING RESOLUTION
NO. (R)95-22
WHEREAS, the Town of Oro Valley, Arizona has in the past, annexed unincorporated
areas into the town limits, and
WHEREAS, the Mayor and Council desire to update and revise the policy of established
guidelines for future annexations to ensure that any such annexation will be logical,
practical, financially feasible and in the best interest of the town's present and future
residents.
NOW THEREFORE, BE IT RESOLVED BY THE MAYOR AND TOWN
COUNCIL OF THE TOWN OF ORO VALLEY, ARIZONA:
That certain document known as "Town of Oro Valley Policy for the Annexation of
Unincorporated Land: dated February 5, 2003, which is attached herewith and labeled as
"Exhibit A", three copies of which are on file in the office of the Town Clerk, is hereby
adopted, declared to be a public record, and said copies are ordered to remain on file with
the Town Clerk.
That this resolution shall supersede Resolution No. (R)95-22, which adopted a previous
annexation policy, and Resolution No. (R)95-22 is hereby rescinded.
PASSED, ADOPTED AND APPROVED by the Mayor and Council of the Town of
Oro Valley, Arizona this 5th day of February 2003.
Paul H. Loomis, Mayor
ATTEST:
Kat E. Cuvelier, Town Clerk
APPROVED AS TO FORM:
, ',/r/ — „4/.7 - -
42(-
Dan L. Dudley, Toi/ilri Attorney
TOWN OF ORO VALLEY 3
STUDY SESSION MEETING DATE October 11, 2006
TO: HONORABLE MAYOR & TOWN COUNCIL
FROM: Scott Nelson, Special Projects Coordinator
SUBJECT: REVIEW OF THE SOUTHWEST PLANNING AREA ANNEXATION PLAN
SUMMARY:
At the July 19, 2006, Town Council meeting, Council directed the Town Manager's
Department to move forward on planning for an annexation of the Southwest Planning
Area, and to present the plan to the Town Council at a future Study Session.
Background:
The Southwest Planning Area is 2.2 square miles of mostly developed residential
neighborhoods and commercial districts; it is considered an urbanized area. This area is
bounded by Overton Rd. to the North, Shannon Rd. to the West, Ina Rd. to the South
and La Cholla Blvd. to the East. 1,456 property owners reside in this area, and the total
assessed value of their properties is $410,363,388. These numbers are important
because Arizona State statutes require that for an annexation to be successful, 50% +1
of the property owners representing 50% + 1 total assessed value must have signed
petitions.
Since last October when the Town Council directed the Town Manager and staff to
conduct a feasibility study of the Southwest Planning Area, many meetings have been
held with residents, civic leaders and businesses, and the results of those meetings
have been favorable but limited due to the number of attendees and their proportion to
the total number of property owners. Before the town initiates an annexation of the
Southwest Planning Area, a plan should be implemented to address four important
areas: Commercial issues, Residential issues, Service level issues, and Annexation
issues.
Commercial Issues:
As a result of meetings held with representatives of the Foothills Mall and Tucson Omni
National Resort, both companies have asked that the Town Council consider pre-
annexation development agreements so that they may protect their existing
development rights, and economic development agreements to aid them in their future
expansion plans.
It would be prudent for the Town to ask that these companies submit formal requests for
both pre-annexation and economic development agreements prior to the Town's filing of
an annexation map. The reasoning behind asking for these requests up front is so that
we can then analyze affects on the overall fiscal picture and consider whether it makes
economic sense to continue with the annexation. Additional new state statutes require
that a municipality entering into new economic development agreements must have
these agreements reviewed and verified by an independent third party in order to
determine if the proposed agreements raise more revenue than the amount of the
incentive for the duration of the agreement. This review must be completed prior to any
municipality entering into such agreements.
Residential Issues:
Numerous meetings have been held with HOA leaders, civic leaders and residents
within the proposed annexation area, and the overall feedback has been positive.
However there are a number of quality of life issues that were raised by residents that
need to be addressed in advance of the filing of an annexation map:
• Police protection mitigating homeless camps, and illegal immigrant crossing
through the Canada del Oro Wash.
• Shannon Road improvements, due to increased traffic demands.
Service Level Issues:
Although the Regional Transportation Authority (RTA) plan has been approved by the
voters and the RTA will make necessary improvements to La Cholla Blvd. and Magee
Rd., other service details remain that could include the following:
• Police protection — Police department will need 13.8 new personnel. This can be
accomplished by phasing in existing personnel, and new through new hires.
• New substation/ municipal operations center will be needed at Foothills Mall or
another location
• Initiate discussions with Pima County about potential inter-governmental
agreements for Police and Public Works services which would allow the Town
time to phase in these services in the event of a successful annexation.
• Work with the RTA staff and board to develop an accurate timeline on when road
improvements to La Cholla Blvd. and Magee Rd. will occur.
• Work with Town staff and Pima County Transportation officials to develop a
timeline on when improvements to Shannon Rd. will occur.
Annexation Issues:
As noted above, numerous meetings have been held with HOA leadership, civic leaders
and residents within the proposed annexation area, and the overall feedback has been
positive. However there a number of planning steps still remain that need to be
addressed in advance of the filing of an annexation map. We should consider:.
• A mailing to all property owners detailing the annexation process along with a
fact sheet about the benefits to being a resident of the Town of Oro Valley.
• An assessment needs study to be conducted in order to determine the number of
potential petition circulators who we can identify compared to the number of
Area. potential
Southwest PlanningIf the
property owners who reside in the
number of petition circulators is insufficient, then a recruitment process needs to
be implemented that could possible include current Oro Valley residents.
• Training and logistic sessions need to be established to make certain that State
statutes are followed and to make certain that the annexation message is
consistent regardless of the messenger.
Implementation of all of the issues discussed should provide the Oro Valley Town
Council and the residents of the proposed Southwest Planning Annexation Area a
clearer understanding of the impacts of this annexation.
Should the Town Council decide to move forward on this annexation plan, staff
will return at the 11/01/06 Town Council meeting to request initiation and funding
for the implementation of this plan.
ATTACHMENTS
1. Southwest Planning Area Annexation Map
2. Southwest Planning Area Annexation Plan Presentation and Timeline
Scott Nelson, Special Projects Coordinator
atiAA;(
David Andrews, Town Manager
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STEPTOE & LLP
A,.t' r0 ft.N E Y S AT LAW
WASHINGTON,D.C. COLLIER CENTER NEW YORK,NEW YO
kk
FACSIMILE: 202.429.3902 201 EAST WASHINGTON STREET FACSIMILE: 212.508,301
VERIFICATION: 202.428.8152 SUITE 1600 VERIFICATI9N: 2.12-.588.-410
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MAIN NUMBER; 802.207.0200
www.steptoe.com
LONDON,ENGLAND LOS ANGELES,CALIFORNIA BRUSSELS,BELGIUM
STEPTOE&JOHNSON DOWNTOWN FACSIMILE: 011,322.828.b6-10
FACSIMILE: 011.4&.207.367.8001 FACSIMILE 213.438.8588 VERIFICATION: 011.322.82E0500
VERIFICATION: 011.44.207,387.8000 VERIFICATION: 213.439.9400
CENTURY CITY
FACSIMILE 310.734.3300
VERIFICATION: 31 p.73d.3200
DELIVER TO
Name: Council Member Kenneth Carter _
QanizatJon or Firm.: �.
Fax Phone Number: 15202970428 Voice Phone Number:
Total Pages&Cover Sheet: 4 Date Transmitted: 10/11/2006 3:45:26 PM
Client/Case Number: 86463/0009
Request Made On 10/11/2008 3:45:28 PM
FROM
Name: David J. Bodnay Telephone Number: 602-257-5258
SPECIAL INSTRUCTIONS
IMPORTANT! This facsimile i8 inten0e0 only for the use of the individual or entity to which it is Warmed. It may contain information ti t
is privileged,confidential,or otherwi8e protected from disclosure under applicable law. If the reader of this transmission is not the intend.d
recipient or the employee or agent responsible for delivering the transmission to the intended recipient,you are hereby notified that any
dissemination,distribution,copying or use of this transmission or Its contents Is strictly prohibited. If you have received this trensmisslc.:
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WASHINGTON PHOENIX LOS ANGELES LONDON BRUSSELS
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STEPTOE &JONNSON LI_P
ATTOIINEYS AT LAW
David J.Bodney Collier Ce:� wr
TeI 602.2573212 201 East We8hIngcon Sri yet
Fax 602,452,0910 Sulce IL:D0
dbodnerhteptoe.com Phoenix,AZ EISA:IR:Munn
Tc!602.2573200
Fax 6022 573299
stcptoc.c:.m
October 11,2006
VIA FACSIMILE
AND U.S. MAIL
Ms. Melinda L. Garrahan
Town Attorney
Town of Oro Valley Administration Building
11000 North La Canada Drive
Oro Valley, Arizona 85737
Re: Arizona Newspapers Association/Town of Oro Valley/Access to Town
J * P. sae_ `ec. .-
Dear Ms.Garrahan;
This firm represents the Arizona Newspapers Association. (the "ANA")_ As you b::: ay
know, the Arizona Daily Star, Tucson Citizen and The Explorer are members of the ANA, as are he
many newspapers throughout the state of Arizona. In that capacity, I write to express the AN,_'s
concerns regarding a policy under consideration by the Town of Oro Valley (the "Town") that we dd
restrict public access to personnel records of Town employees. While the proposed policy allows
to certain records, it contains a blanket exclusion of other personnel records subject to disclosure under
A.R.S. § 39-121, et seq. (the "Arizona Public Records Law"). Accordingly, 1 urge the Town to revi,:w
Che policy carefully, and eliminate its absolute prohibitions,to ensure compliance with Arizona law.
As you know, the Ari2ona Public Records Law provides a broad right of p. 'ic
inspection and copying of public records. That statute commands that "[p]ublic records and o E:y er
matters in the custody of any officer shall be open to inspection by any person at all times during of ce
hours A.R.S. § 39-121 (emphasis added). The statute"evince[s] a clear policy favoring disclosu c,"
Carlson v. Pima County, 141 Ariz. 487, 490, 687 P.2d 1242, 1245 (1984). Indeed, "access
disclosure is the strong policy of the law . . . ." Id. at 491, 687 P.2d at 1246. In view of this stru ig
public policy in favor of disclosure, the Arizona Supreme Court has recognized that"all records reciuild
to be kept under A.R.a_ § 39-121.01(B) are presumed open to the public for inspection as pul is
records." Id. (emphasis added). In applying the statute, "[d]oubts should be resolved in favor of
disclosure." Ariz. Op. Att'): Gen.No.R75-781 at 145 (1975-76).
WASHINGTON • NEW YORK • PHOENIX • LOS ANGELES • LONDON • BRUSS"L S
RightFAX 10/11/2006 4 : 06 PACE OO/005 rax server
STEPT0E &JOHNSCNLL'
Melinda L.Garrahan
October 11,2006
Page 2
To overcome the heavy presumption in favor of disclosure, the record custodian rust
produce facts to"specifically demonstrate"that release of the requested records"would violate right of
privacy or confidentiality"or harm the"best interests of the state." Cox Arizona Publ`ns. Inc. v. Coli �s,
175 Ariz. 11, 14,852 P.2d 1194, 1198 (1993). The custodian cannot meet this burden by apeculatinp or
"argu[ing] in global generalities of the possible harm that might result from the release." Cox, 175 Aziz.
at 14, 852 P.2d at 1198; Star?ubl'g Co. v. Pima County Attorney's Office, 181 Ariz. 432,434,891 E2d
899, 901 (Ct. App. 1993) (party opposing disclosure must "demonstrate a factual basis why a particular
record ought,not be disclosed") (emphasis added). The custodian also must demonstrate that any s,2,oh
harm outweighs the public's right of access to public records. Phoenix Newspapers, Inc. v. Keegt ,
201 Ariz. 344, 351, 35 P.3d 105, 112 (Ct. App. 2001) ("Me public's right to know any pu dic
document is weighty in itself).
As a matter of well-settled Arizona law, personnel records at public employees ,,re
presumptively public records that provide the public with"an accurate knowledge of. , . activities which
are supported by monies from the state or any political subdivision of the state." A.R.S. § 39-121.010).
).
Despite adopting a number of changes to the Arizona Public Records Law in recent years, the Arizona
Legislature has never approved an exemption for personnel records of public employees.
Indeed, as you correctly pointed out in the October 7, 2006 memorandum to the Tc::,r n
Council., the Arizona Court of Appeals has explicitly rejected a city's claim that personnel recods
should be exempt from disclosure under the Arizona Public Records Law. See, e.g., Bolin v. Custo = n
of Records of the Tucson Police Dept, 193 Ariz. 35, 40, 969 P.2d 200, 205 (Ct. App. 1995) ("'We
decline the City's invitation to fashion a blanket rule protecting [police personnel records] from a pi lie
records request,because the balancing test must be applied on a case-by-case basis to determine wherner
a particular record should be released.") (emphasis added).
To withhold Town employee personnel records,the Town must"specifically demonst-Ae
how producing the documents would violate rights of privacy or confidentiality,or would be detrirnefj al
to the best interests of the state." Car, 175 Ariz. at 14, 852 P.2d at 1198. Speculation about the poss` le
detriment to the privacy interests of employees is insufficient to justify blanket secrecy. Rather,
Town must "point to specific risks with respect to specific disclosures," Star Publ'g Co., 181 Ariz. at
434, 891 P.2d at 901 (emphasis added). In certain instances, redaction of records may be appropri_te.
though the burden rests with the Town to prove a specific, overriding interest in secrecy. Carlson, -. 41
Ariz.at 491,687 P.2d at 1246;Mitchell v.Superior Court, 142 Ariz. 332, 335,690 P.2d 51, 54(1984_;
Much of the proposed policy is consistent with this case law because it makes clear Lat
certain personnel records arc presumptively open to public inspection, including job titles,
descriptions, salary information, use of Town equipment and charges to Town accounts. Additiontt y,
the ANA does not dispute that certain records exempted from disclosure by the proposed policy, such as
social security numbers, benefits records and health information, are not usually subject to disclose e
under the Arizona Public Records Law. However,to the extent the policy automatically prohibits pts lic
access to other records—such as home addresses and telephone numbers—it is plainly inconsistent 17.)-Al
the broad presumption of access of the Arizona Public Records Law.
RightFAX 10/11/2006 4 : 06 PAGE 004/005 Fax server
STEPTQE.&JOHNSCMi.u'
Melinda L.Garrahan
October 11,2006
Page 3
Home addressees and telephone numbers, for example, are often essential records :or
journalists. instances,reporters need these records to verify that someone with a common n ie
In many
is the sameP erson who is the subject of a news story. In short, such information helps ensure accu ate
reporting. In addition, these records allow journalists to seek comment from individuals who are
mentioned i in the news,which facilitates both accurate and balanced reporting. If ever disclosure of an
employee's telephone number or address is truly contrary to the best interests of the state, then such
concerns can be addressed on a case-by-case basis as required by the Arizona Public Records Law. but
a policy that creates of presumption of secrecy for such basic information turns the Public Records law
an its head,and should not be included in the Town's personnel records policy.
For the foregoing reasons,I urge the Town to consider carefully the proposed policyd
reject the provisions outlined above that would enact a blanket rule excluding-selected Town perso :;;gel
public from view. Such a blanket rule would surely invite litigation over a Town policy in ditffct
conflict with state law. And if litigation is necessary to secure access to public records and bring the
Town'solis ixato conformity with state law, then the Town could be subject to an award of attorneys'
P y
fees and costs. A.R.S. § 39-121.02(B).
I trust the Town will resist the temptation to impose an "eitherf or"approach to an iz,r,t e
that requires balanced and careful analysis. Of course,if you care to discuss these issues,please call,
!Ver. trul ou
Davidt. Bodney
RightFAX 10/11/2006 4 : 06 PAGE OOb/OOb rax server
ST E PTO E &Jo HN SC LU'
Melinda . Garrahan
October 1, 2006
Page 4
Copy to:
ayor Paul H.Loomis
ice Mayor Terry Parish
•ouncil Member Paula Abbott
i ouncil Member Kenneth Carter
S ouncil Member Al Kunisch
•ouncil Member Barry Gillaspie
council Member Helen Dankwerth
vin of Oro Valley Administration Building
11000 North La Canada Drive
I ro Valley, Arizona 85737
RightFAX 10/11/2006 4 : 06 PAGE 001/005 Fax Server
STEPTOE S&JOHN1SON
LLP
AT TORNEYS AT LAW
WASHINGTON,D.C. COLLIER CENTER NEW YORK,NEW YORK
FACSIMILE; 202.420.3002 2.01 EAST 1IYASHINGTON STREET FACSIMILE; 212.508,305u
VERIFICATION: 202.428.8152 SUITE 1600 V Irl V: 212:J506, 0
PHOENIX,AZ 86004-2882
FACSIMILE: 602.257.5299
VERIFICATION: 602.257.5287
MAIN NUMBER: 602.207.0200
www.steptoe.com
LONDON,ENGLAND LOS ANGELES,CALIFORNIA BRUSSELS,BELGIUL
STEPTOE&JOHNSON DOWNTOWN FACSIMILE: 011,322.826.8.-10
FACSIMILE: 011.44.207.367.8001 FACSIMILE 213.438.8598 VERIFICATION: 011.322.82,, i500
VERIFICATION: 011.44.207,367.8000 VERIFICATION: 213.439.9400
CENTURY CITY
FACSIMILE 310,734.3300
VERIFICATION! 310.734.3200
DELIVER TO
Name: Council Member Kenneth Carter
Qpfli2atiOn or Firm!
m'
Fax Phone Number: 15202070428 Voice Phone Number:
Total Pages&Cover Sheet: 4 Date Transmitted: 10111/2008 3:45:26 PM
Ciient/Case Number: 86463/0009
Request Made On. 0/1 112005 3:45:26 PM
FROM
Name: David J. Bodney Telephone Number;602-257-5258
SPECIAL INSTRUCTIONS
IMPORTANT: This facsimile i8 intended only for the use of the individual or entity to which it is addressed. It may contain information tiK::,t
is privileged,confidential,or otherwise protected from disclosure under applicable law. If the reader of this transmission is not the intenz..ad
recipient or the employee or agent responsible For delivering the transmi99ion to the intended recipient,you are hereby notified that any
dissemination,distribution,copying or use of this transmission or its contents is strictly prohibited. If you have received this transmisalk._
In error,please notify us by telephoning and return the original transmission to us at the above address.
WASHINGTON PHOENIX LOS ANGELES LONDON BRUSSELS
RightFAX 10/11/2006 4 : 06 PAGE 002/005 Fax Server
STEPTOE &JOIINSON LIP
ATTOINEVS AT Lf1W
David),Sodney Collier Cet-cer
Tel 602/573212 201 Eau WashIngton Scrcct
Fax 602,452,0910 Suite 1300
dbodnersceptoe.com Phoenix,AZ 84.2.32
Tc!602.257,5200
Fax 602.257.5299
stcptoc.c_om
October 11,2006
VIA FACSIMILE
AND U.S. MAIL
Ms. Melinda L. Garrahan
Town Attorney
Town of Oro Valley Administration Building
11000 North IA Canada Drive
Oro Valley, Arizona 85737
Re: Arizona Newspapers Association/Town of Oro Valley/Access to Town
PP a ec
Dear Ms. Garrahan;
This firm represents the Arizona Newspapers Association. (the "ANA"). As you may
know, the Arizona Daily Star, Tucson Citizen and The Explorer are members of the ANA, as are the
many newspapers throughout the state of Arizona. In that capacity, I write to express the ANA's
concerns regarding a policy under consideration by the Town of Oro Valley (the "Town") that would
restrict public access to personnel records of Town employees. While the proposed policy allows access
to certain records, it contains a blanket exclusion of other personnel records subject to disclosure under
A.R.S. § 39-121, et seq. (the "Arizona Public Records Law"). Accordingly, I urge the Town to revs-w
the policy carefully, and eliminate its absolute prohibitions,to ensure compliance with Arizona law.
As you know, the Arizona Public Records Law provides a broad right of
inspection and copying of public records. That statute commands that "[p]ublic records and o}_;ser
matters in the custody of any officer shall be open to inspection by any person at all times during of;-,: c
hours." A.R.S. § 39-121 (emphasis added). The statute"evince[s] a Gear policy favorin disdosu.:,,"
Carlson v. Pima County, 141 Ariz. 487, 490, 687 P.2d 1242, 1245 (1984). Indeed, '''access
disclosure is the strong policy of the law . . . ." id. at 491, 687 P.2d at 1246. In view of this str::_ig
public policy in favor of disclosure,the Arizona Supreme Court has recognized that"all records recite_311
to be kept under A.R.S_ § 39-121.01(8) are presumed open to the public for inspection as pu :`sic
records," Id, (emphasis added). In applying the statute, "(d]oubts should be resolved in fava- of
disclosure." Ariz.Op. Att'y Gen.No.R75-781 at 145 (1975-76).
WASHINGTON • NEW YORK • PHOENIX • LOS ANGELES • LONDON • BRUSSS. .S
RightFAX 10/11/2006 4 : 06 PAGE 003/005 Fax Server
STEPT0FL &JoFlNs !«I'
Melinda L` Garrahan
October 11,2006
Page 2
To overcome the heavy presumption in favor of disclosure, the record custodian rr..st
produce facts to "specifically demonstrate"that release of the requested records"would violate rights of
privacy or confidentiality"or harm the"best interests of the state." Car Arizona Pubd`ns. Inc. v. Cod1 r as,
175 Ariz. 11, 14, 852 P.2d 1194, 1198 (1993). The custodian cannot meet this burden by apeculatin1_t.3r
"arSuC8 :__
"argu[ing] in global generalities of the possible harm that might result from the release." Cox, 175 z,
at 14, 852 P.2d at 1198; Star Pubr'g Co. v. Pima County Attorney's Office, 181 Ariz. 432,434, 891 1-2d
899, 901 (Ct. App. 1993) (party opposing disclosure must "demonstrate a factual basis why a particular
record ought not be disclosed") (emphasis added). The custodian also must demonstrate that any s'...ch
harm outweighs the public's right of access to public records. Phoenix Newspapers, Inc. v. Keega i. ,
201 Ariz, 344, 351, 35 P.3d 105, 112 (Ct. App. 2001) ("1tlhe public's right to know any pu.;iic
document is weighty in itself').
As a matter of well-settled Arizona law, personnel records of public employees Jre
presumptively public records that provide the public with"an accurate knowledge of. , . activities which
are supported by monies from the state or any political subdivision of the state." A.R.S. § 39-121.01( ).
Despite adopting a number of changes to the Arizona Public Records Law in recent years, the Arizona
Legislature has never approved an exemption for personnel records of public employees.
Indeed, as you correctly pointed out in the October 7, 2006 memorandum to the Tcwn
Council., the Arizona Court of Appeals has explicitly rejected a city's claim that personnel records
should be exempt from disclosure under the Arizona Public Records Law. See, e.g., Bolin v. Custoc?n
of Records of the Tucson Police Dept, 193 Ariz. 35, 40, 969 P.2d 200, 205 (Ct. App. 1995) ("We
decline the City's invitation to fashion a blanket rule protecting [police personnel records] from a public
records request,because the bal.anci..r..g test must be applied on a case-by-case basis to determine whe her
a particular record should be released.") (emphasis added).
To withhold Town employee personnel records,the Town must `specifically demonstrate
how producing the documents would violate rights of privacy or confidentiality, or would be detrimental
to the best interests of the state." Car, 175 Ariz. at 14, 852 P.2d at 1198. Speculation about the possible
detriment to the privacy interests of employees is insufficient to justify blanket secrecy. Rather, the
Town must "point to specific risky with respect to specific disclosures" Star Pub!'g Co., 181 Ariz, at
434, 891 P.2d at 901 (emphasis added). In curtain instances, redaction of records may be appropriate.
though the burden rests with the Town to prove a specific, overriding interest in secrecy. Carlson, 141
Ariz.at 491,6.87 P.2d at 1246;Mitchell v. Superior Court, 142 Ariz. 332,335,690 P.2d 51,54(1984).
Much of the proposed policy is consistent with this case law because it makes clear that
certain personnel records arc pres-umptivcly open to public inspection, including job titles, job
descriptions, salary information, use of Town equipment and charges to Town accounts. Additionally,
the ANA does not dispute that certain records exempted from disclosure by the proposed policy,such as
social security numbers, benefits records and health information, are not usually subject to disclosure
under the Arizona Public Records Law. However, to the extent the policy automatically prohibits pudic
access to other records—such as home addresses and telephone numbers—it is plainly inconsistent with
the broad presumption of access of the Arizona Public Records Law.
RightFAX 10/11/2006 4 : 06 PAGE 004/005 Fax Server
STLPTOE.&JOHNS( Aux.
Melinda L. Garrahan
October 11, 2006
Page 3
Home addressees and telephone numbers, for example, are often essential records :3r
journalists, In many instances, reporters need these records to verify that someone with a common na ewe
is the same person who is the subject of a news story. In short, such information helps ensure accu ate
reporting. In addition, these records allow journalists to seek cou,,nnent fxorn individuals who are
mentioned in the news,which facilitates both accurate and balanced reporting. If ever disclosure of an
employee's tcicphanc number or address is truly contrary to the best interests of the state, then such
concerns can be addressed on a case-by-case basis as required by the Arizona Public Records Law. =ut
a policy that creates of presumption of secrecy for such basic information turns the Public Records . ..w
on its head,and should not be included in the Town's personnel records policy.
For the foregoing reasons, I urge the Town to consider carefully the proposed policy and
reject the provisions outlined above that would enact a blanket rule excluding selected Town personnel
records from public view. Such a blanket rule would surely invite litigation over a Town policy in diract
conflict with state law. And if litigation is necessary to secure access to public records and bring the
Towns policy in.to conformity with state law, then the Town could be subject to an award of attorneys'
fees and costs. A.R.S. g 39-121.02(B).
I trust the Town will resist the temptation to impose an "either/or" approach to an issue
that requires balanced and careful analysis. Of course, if you care to discuss those issues,please call,
Ver trul i ou
Davidt.Bodney
RightFAX 10/4/2006 4 : 06 PAGE 005/005 Fax Server
STEPTO E &JOHNSC M
Melinda , Garrahan
October 1,2006
Page 4
Copy to:
ayor Paul}.Loomis
ice Mayor Terry Parish
•ouncil Member Paula Abbott
t ouncil Member Kenneth Carter
•ouncil Member Al Kunisch
•ouncil Member Barry Gillaspie
Souncil Member Helen Dankwerth
own of Oro Valley Administration Building
11000 North La Canada Drive
ro Valley, Arizona 85737
955 P.2d 534 Page 1 of 9
West Reporter Image (PDF)
191 Ariz. 297, 955 P.2d 534, 125 Ed. Law Rep. 930, 265 Ariz. Adv. Rep. 3
Supreme Court of Arizona,En Banc.
SCOTTSDALE UNIFIED SCHOOL DISTRICT NO. 48 OF MARICOPA COUNTY, Arizona; Avondale
Elementary School District No. 44 of Maricopa County, Arizona; Balsz Elementary School District No.
31 of Maricopa County, Arizona; Creighton Elementary School District No. 14 of Maricopa County,
Arizona; Dysart Unified School District No. 89 of Maricopa County, Arizona; Glendale Elementary
School District No. 40 of Maricopa County, Arizona; Mobile Elementary School District No. 96 of
Maricopa County, Arizona; Pendergast Elementary School District No. 92 of Maricopa County, Arizona;
Tolleson Union High School District No. 214 of Maricopa County, Arizona; Tempe Elementary School
District No. 3 of Maricopa County, Arizona; Gilbert Public Schools of Maricopa County, Arizona; Liberty
Elementary School District No. 25 of Maricopa County, Arizona; Peoria Unified School District No. 11
of Maricopa County, Arizona; Paradise Valley Unified School District No. 69 of Maricopa County,
Arizona; Mesa Unified School District No. 4 of Maricopa County, Arizona; Phoenix Union High School
District No. 210 of Maricopa County, Arizona; Osborn Elementary District No. 8 of Maricopa County,
Arizona; Isaac Elementary School District No. 5 of Maricopa County, Arizona; Kyrene Elementary
School District No. 28 of Maricopa County, Arizona; Alhambra Elementary School District No. 68 of
Maricopa County, Arizona; Cartwright Elementary School District No. 83 of Maricopa County, Arizona;
Cave Creek Unified School District No. 93 of Maricopa County, Arizona; Chandler Unified School
District No. 80 of Maricopa County, Arizona; Glendale Union High School District No. 205 of Maricopa
County, Arizona; and Roosevelt Elementary School District No. 66 of Maricopa County, Arizona,
Plaintiffs, Counterdefendants-Appellees,
v.
KPNX BROADCASTING COMPANY, an Arizona corporation; KPNX Broadcasting Company, a wholly
owned subsidiary of Gannett Broadcasting Company, a division of Gannett Company, Inc., a Delaware
corporation; and Kim Stafford, an individual, Defendants, Counterclaimants-Appellants.
No. CV-97-0112-PR.
March 20, 1998.
School districts filed action for declaratory judgment that they were not required by Public Records
Law to provide broadcasting company and reporter with teachers' birth dates. The Superior Court,
Maricopa County, No, CV 95-01429, Brian K. Ishikawa, J., ruled in favor of districts, and broadcasting
company and reporter appealed. The Court of Appeals reversed, 188 Ariz. 499, 937 P.2d 689, and
review was granted. The Supreme Court, Moeller, J., held that: (1) teachers had confidentiality or
privacy interest in their birth dates, even though those birth dates were available from other public
sources, and thus it was appropriate to apply Carlson balancing test, and (2) public interest in
disclosure, to enable broadcasting company and reporter to run criminal background checks on
teachers, was at best speculative, and did not override privacy interest of teachers.
Opinion of Court of Appeals vacated and judgment of trial court affirmed.
West Headnotes
j1] KeyCite Notes
326 Records
326II Public Access
326IqB) General Statutory Disclosure Requirements
326k61 Proceedings for Disclosure
326k62 k. In General; Request and Compliance. Most Cited Cases
326 Records KeyCite Notes
326II Public Access
http://web2.westlaw.com/result/documenttext.aspx?docsample=False&sv=Split&service=... 10/11/2006
955 P.2d 534 Page 2 of 9
326II(B) General Statutory Disclosure Requirements
326k61 Proceedings for Disclosure
326k65 k. Evidence and Burden of Proof. Most Cited Cases
If interests in confidentiality, privacy, or the best interests of the state outweigh the public's right of
inspection under the Public Records Law, the State can properly refuse inspection, but the State has
the burden of overcoming the legal presumption favoring disclosure. A.R.S. § 39-121.
[2] KeyCite Notes
326 Records
326II Public Access
326II(B) General Statutory Disclosure Requirements
326k53 Matters Subject to Disclosure; Exemptions
326k58 k. Personal Privacy Considerations in General; Personnel Matters. Most Cited
Cases
Under the Public Records Law, person does not lose privacy interest in information simply because the
same information may be available from other public sources. A.R.S. 39-121.
j3] KeyCite Notes
326 Records
326II Public Access
326II(B) General Statutory Disclosure Requirements
326k53 Matters Subject to Disclosure; Exemptions
3.26k58 k. Personal Privacy Considerations in General; Personnel Matters. Most Cited
Cases
326 Records KeyCite Notes
326II Public Access
326II(B) General Statutory Disclosure Requirements
326k61 Proceedings for Disclosure
326k64 k. Discretion and Equitable Considerations; Balancing Interests. Most Cited Cases__
Public school teachers had confidentiality or privacy interest in their birth dates, even though those
birth dates were available from other public sources, and thus it was appropriate to apply Car/son
balancing test when broadcasting company and reporter sought their birth date under Public Records
Law. A.R.S. §§ 39-121 to 39-124; A_riz._Comp.Admin.R. & Regs. R2-5-105(D).
[4] KeyCite Notes
326 Records
326II Public Access
326II(B) General Statutory Disclosure Requirements
326k61 Proceedings for Disclosure
326k63 k. Judicial Enforcement in General. Most Cited Cases
Trial court's findings of fact in conducting Carlson balancing test under Public Records Law will be
upheld unless they are clearly erroneous, but Supreme Court is free to draw its own conclusions of
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law from these facts, and thus whether requesters were wrongfully denied access to public records is
an issue of law which Supreme Court reviews de novo. A.R.S. §§ 39-121 to 39-124.
[5] KeyCite Notes
326 Records
326II Public Access
326II(B) General Statutory Disclosure Requirements
326k61 Proceedings for Disclosure
326k64 k. Discretion and Equitable Considerations; Balancing Interests. Most Cited Cases
Fact that Department of Education and school districts were already conducting criminal background
checks on teachers was irrelevant to balancing test under Public Records Law when broadcasting
company and reporter sought birthdates of teachers in order to conduct such tests. A.R.S. §§ 39-121
to 39-124.
[6] KeyCite Notes
326 Records
326II Public Access
326II(B) General Statutory Disclosure Requirements
326k53 Matters Subject to Disclosure; Exemptions
326k58 k. Personal Privacy Considerations in General; Personnel Matters. Most Cited
Cases
1(.3
326 Records KeyCite Notes
326II Public Access
326II(B) General Statutory Disclosure Requirements
326k61 Proceedings for Disclosure
326k64 k. Discretion and Equitable Considerations; Balancing Interests. Most Cited Cases
Plan of broadcasting company and reporter to run criminal background checks on public school
teachers to see if any of them had criminal records, if districts provided teachers' birthdate pursuant
to request under Public Records Law, was a public interest, for purposes of Carlson balancing test, to
be weighted against teachers' privacy interests, but public interest in disclosure was at best
speculative, and did not override privacy interest of teachers, when broadcaster and reporter were
unable to provide any basis for believing that any of the thousands of teachers posed a threat to
public school children. A.R.S. §§ 39-121 to 39-124.
[7] KeyCite Notes
326 Records
326II Public Access
326II(BI General Statutory Disclosure Requirements
326k50 k. In General; Freedom of Information Laws in General. Most Cited Cases
Need for public disclosure under Public Records Law is reduced where information sought is otherwise
available. A.R.S. §.§ 39-121 to 39-124.
**536 *299 Jennings, Strouss & Salmon, P.L.C. by Gary L. Lassen, Gordon Lewis, Phoenix , and
Quarles & Brady, by Charles W. Herf and Jennifer N. MacLennan, Phoenix, for Plaintiffs,
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Counterdefendants-Appellees.
Brown & Bain, P.A. by Daniel C. Barr and Cheryl L. Nackino, Phoenix, for Defendants-
Counterclaimants-Appellants.
OPINION
MOELLER, Justice.
STATEMENT OF THE CASE
¶ 1 KPNX Broadcasting Co. and one of its reporters, Kim Stafford, ("defendants") requested the
twenty-five school districts involved in this case ("plaintiffs") to provide them with the birth dates of
all active and substitute public school teachers in the districts. The districts declined to provide the
birth dates and, instead, filed a declaratory judgment action in superior court. The court held that, on
the facts of this case, the teachers' privacy interests in their birth dates outweighed the public interest
in disclosure. On appeal, the court of appeals held that the teachers had no privacy interests in their
birth dates because the birth dates were available from other sources. We granted review and
conclude that the trial court's judgment was correct.
FACTS AND PROCEDURAL HISTORY
¶ 2 In October 1994, defendants received a tip that a substitute school teacher in a Maricopa County
school district was caught masturbating in a classroom full of children. Upon further investigation,
defendants learned that this substitute teacher was a registered sex offender.
¶ 3 In November, defendants sent letters to all Maricopa County school districts requesting the
names, addresses, places of employment, and birth dates of all teachers, pursuant to Arizona Revised
Statutes ("A.R.S."L§§ 39-121 to 39-124 ("Public Records Law"). Defendants sought to use this
information to conduct criminal background checks on all Maricopa County teachers.
¶ 4 Plaintiffs released the names of all teachers in their twenty-five districts, along with each
teacher's place of employment and business address but refused to disclose the teachers' home
addresses and birthdates based on confidentiality and privacy grounds. Defendants dropped their
request for home addresses and pursued only the release of the birth dates.
¶ 5 Plaintiffs filed a complaint in superior court seeking a judicial declaration that the Public Records
Law did not require disclosure of their teachers' birth dates. The trial court conducted a balancing
test, pursuant to Carlson v. Pima County, 141 Ariz. 487, 687 P.2d 1242 (1984), weighing the
teachers' confidentiality and privacy rights against defendants' public purpose.
¶ 6 The trial court found that:
1) birth dates, like social security numbers, are private information and provide significant identifying
information allowing access to extensive personal data in a computerized society;
2) disclosure of birth dates is offensive although it may be available from other public sources;
3) there is a difference in the release of the teachers' birth dates through other **537 *300 public
sources and compelling the plaintiffs to release the teachers' birth dates, which were given with an
expectation of privacy;
4) the teachers' expectation of privacy in their birth dates is evidenced by the fact that they only give
them to obtain medical benefits and retirement plans, and some school districts have teacher
personnel policy agreements which require written authorization by the teacher before release of
most information;
5) "[w]hile the fact that birthdate information is available from other public sources may reduce the
expectation of privacy, it is not dispositive";
6) "the fact that birthdate information may be obtained elsewhere actually reduces the public need for
the disclosure of the information by the school districts";
7) defendants did not have any basis to believe that any misconduct had occurred;
8) the Arizona Department of Education and plaintiffs already do what defendants propose to do, i.e.,
run criminal background checks on teachers;
9) the release of birth dates would "constitute an unwarranted invasion of personal privacy"; and
10) the "teachers' privacy interests far outweigh the speculative public purpose proffered" by
defendants.
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¶ 7 Defendants appealed. The court of appeals held that the teachers' birth dates are neither private
nor confidential because they "may be obtained through the inspection of other public records."
Scottsdale Unified Sch. Dist. v. KPNX Broad. Co., 188 Ariz. 499, 505, 937 P.2d 689, 695 (App.1997).
Because of this finding, the court held that the Carlson balancing test was inapplicable. The court of
appeals ordered the release of the birth dates. Plaintiffs petitioned us to review the court of appeals'
opinion. We have jurisdiction pursuant to Ariz. Const. art. 6, § 5(3), Ariz. R. Civ.App. P._23, and
A.R.S. § 12-120.24.
ISSUE PRESENTED
¶ 8 We granted review on the following issue:
Does the potential of obtaining personal information through other public sources eliminate the need
for a court to balance a public employee's legitimate privacy interests against the public's need for
disclosure?
DISCUSSION
I. Issue
[1] ¶ 9 The issue presented by the court of appeals' opinion is purely a question of law and we
thus review it de novo. See, e.g., Transportation Ins. Co. v. Bruining, 186 Ariz. 224, 226, 921 P.2d
24, 26 (1996 . Under Arizona's Public Records Law, "public records and other matters ••• shall be
open to inspection by any person." A.R.S. § 39-121. There are many statutory exceptions to this
public right of inspection. See, e.g., A.R.S. §§ 8-120 and 8-121 (adoption records), § 39-123 (home
address and home telephone number of peace officer), and § 44-1525 (information and evidence of
consumer fraud investigation conducted by State Attorney General). This public right of inspection
may also be curtailed in the interest of"confidentiality, privacy, or the best interests of the state."
Carlson,_141Ariz. at 490 687 P.2d at 1245. If these interests outweigh the public's right of
inspection, the State can properly refuse inspection. See id. The State has the burden of overcoming
"the legal presumption favoring disclosure." Cox Arizona Publications, Inc. v. Collins, 175 Ariz. 11, 14,
852 P.2d 1194, 1198 (1993) (citing Mitchell v. Superior Court, 142 Ariz. 332, 335, 690 P.2d 51, 54
(1984)).
CA
[2] ¶ 10 In this case, the court of appeals held that there was no reason to apply the Carlson
balancing test because, as a matter of law, the teachers did not have a confidentiality or privacy
interest in their birth dates because those birth dates were available from other public sources. See
Scottsdale Unified, 188 Ariz. at 505, 937 P.2d at 695. The question of whether under the Public
Records Law a person loses a privacy interest in information because the same information may be
available from other public sources is a question of first impression in Arizona. We therefore turn for
guidance to **538 *301 federal cases that have addressed the analogous question under 5 U.S.C. §
552, the Freedom of Information Act ("FOIA"). See Salt River Pima-Maricopa Indian Community v.
Rogers, 168 Ariz. 531, 540-4.1815 P.2d 9.00. 909-10 (1991).
¶ 11 The Supreme Court of the United States has stated that "[i]n an organized society, there are few
facts that are not at one time or another divulged to another." United States Dep't of Justice v.
Reporters Comm. for Freedom of the Press, 489 U.S. 749, 763, 109 S.Ct. 1468, 1476, 103 L.Ed.2d
774 (1989) (footnote omitted). The Court has held that "[a]n individual's interest in controlling the
dissemination of information regarding personal matters does not dissolve simply because that
information may be available to the public in some form." United States Dept of Defense v. Federal
Labor Relations Auth., 510 U.S. 487, 500, 114 S.Ct. 1006, 1015, 127 L.Ed.2d 325 (1994); see also
Reporters Comm., 489 U.S. at 762-63, 109 S.Ct. at 1476.
¶ 12 We agree with and adopt the analysis by the Supreme Court for use by Arizona courts in cases
arising under our own Public Records Law. Reasonable people do not expect that their privacy interest
in information disappears merely because that information may be available through some public
source. In other words, although X may be able to obtain private or confidential information about Y
from a public source, X cannot require everyone subject to the Public Records Law to divulge that
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information simply because it is otherwise obtainable. We conclude that the court of appeals erred
when it held, as a matter of law, that a person's privacy interest in information is eliminated simply
because that information may be available from some other public source.
II. Other Issues on Appeal
¶ 13 Because the court of appeals held that the teachers lost any claim of confidentiality because
their birth dates are available from other sources, it did not clearly address whether birth dates might
otherwise be considered private or confidential information under the Public Records Law. For the
same reason, it also did not review the Car/son balancing test applied by the trial court. The districts
recognized that if they prevailed on the issue presented in the petition for review, those issues would
have to be addressed. Accordingly, the districts preserved those issues, which were fully briefed in
the court of appeals. See current Rule 23(c)(1), Rules of Civil Appellate Procedure. While we could
now remand this case to the court of appeals as the special concurrence suggests, considerations of
judicial economy persuade us not to do so, but to resolve the case here. See Ariz. R. Civ.App. P. 23(i)
(3).
A. Privacy Interest in Birth Dates
Ig!
13J ¶ 14 Whether a person's birth date may be subject to a privacy claim is a question of first
impression in Arizona. We again look for guidance to federal cases construing the FOIA. Although we
have never defined the meaning of privacy under the Public Records Law, the Supreme Court,
interpreting the FOIA, has stated that information is "private if it is intended for or restricted to the
use of a particular person or group or class of persons: not freely available to the public." Reporters
Comm., 489 U.S. at 763-64, 109 S.Ct. at 1477 (footnote omitted) (internal quotations omitted). The
Court has also stated that the privacy interest encompasses "the individual's control of information
concerning his or her person."Id. at 763, 109 S.Ct. at 1476.
¶ 15 One federal case directly addresses the issue of whether birth dates are private or confidential
information. In Oliva v. United States, the court held that disclosure of birth dates and social security
numbers would violate the FOIA as it "would constitute a clearly unwarranted invasion of personal
privacy." 756 F.Supp. 105, 107 (E.D.N.Y.1991) (citation omitted). It found that "social security
numbers, and dates of birth, are a private matter." Id. (emphasis added).
¶ 16 The Supreme Court's definition of privacy in this context, along with Oliva, demonstrates that
birth dates are in fact private information. Birth dates are information usually restricted to a class of
persons, typically family members and friends. The only instance when one divulges this **539
*302 information occurs in the business or workplace context where the information is a prerequisite
for certain benefits, such as employee retirement and benefits calculations, the purchase of health or
automobile insurance, credit application, etc. The public availability of birth dates does not negate
privacy interests. All it means is that there are some temporary or specific situations where we
willingly waive that interest. FN1
FN1. These may include voter registration records (as proof of age) and credit reports
(which obtain birth dates from credit applications).
¶ 17 The trial court found that the teachers had an expectation of privacy in their birth dates,
evidenced by agreements between the teachers and plaintiffs which required permission to release
this information. The record amply demonstrates a variety of legitimate reasons why the teachers
desired to protect their birth dates from release. Moreover, Arizona Administrative Code § R2-5-105
(D) specifically enumerates the employee information that the State of Arizona will release upon a
Public Records Law request. That list does not include birth dates. The trial court likened birth dates
to social security numbers, which the FOIA protects from disclosure. Like social security numbers,
birth dates may be used to gather great amounts of private information about individuals.FN2
FN2. Defendants point out that social security numbers are protected by a federal statute
and thus differ from birth dates. See 42 U.S.C. § 405(c)(2)(C)(viii)(I). However, this only
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applies to those social security numbers that are "obtained or maintained by authorized
persons pursuant to any provision of law enacted on or after October 1, 1990." Id. Social
security numbers held by the federal government that do not meet the above criteria
have been protected from disclosure by case law. See, e.g., IBEW Local Union No. 5 v.
United States Dept of Hous. & Urban Dev., 852 F.2d 87, 89 (3d Ci r.1988), modified on
other grounds sub nom. Sheet Metal Workers Int'l Ass'n v. United States Dep't of
Veterans Affairs, 135 F.3d 891, 1998 WL 47645 (3rd Cir.1998); Oliva, 756 F.Supp. at
107.
¶ 18 With both a name and birth date, one can obtain information about an individual's criminal
record, arrest record (which may not include disposition of the charges), driving record, state of
origin, political party affiliation, social security number, current and past addresses, civil litigation
record, liens, property owned, credit history, financial accounts, and, quite possibly, information
concerning an individual's complete medical and military histories, and insurance and investment
portfolio.
¶ 19 Based on the foregoing, we conclude that a person, including a public school teacher, has a
privacy interest in his or her birth date. The question then becomes whether that interest is sufficient
in a given case to outweigh disclosure, which is presumptively required where public records are
concerned.
B. Trial Court's Application of Balancing Test
nc,
[41 ¶ 20 The trial court appropriately conducted the balancing test pursuant to Carlson, 141 Ariz.
at 490-91, 687 P.2d at 1245-46. In reviewing the trial court's findings of fact, we apply two different
standards of review. We will uphold its findings of fact unless clearly erroneous. See Arizona Bd. of
Regents v. Phoenix Newspapers, Inc., 167 Ariz. 254, 257, 806 P.2d 348.351 (1991). We are,
however, free to draw our own conclusions of law from these facts. Id. Thus, whether plaintiffs
wrongfully denied defendants access to public records "is an issue of law which we review de novo."
Cox Arizona Publications, 175 Ariz. at 14, 852 P.2d at 1198 (citation omitted).
[5] ¶ 21 None of the trial court's findings of fact set forth earlier are clearly erroneous. However,
one finding of fact made by the trial court is irrelevant to the balancing test: namely, that the Arizona
Department of Education and plaintiffs already conduct criminal background checks on teachers. The
purpose of the Public Records Law, like the FOIA, is "to open agency action to the light of public
scrutiny." Department_of Air Force v_. Rose_425 U.S. 352, 361, 96 S.Ct. 1592, 1599, 48 L.Ed.2d 11
(1976) (citation omitted) (internal quotations omitted); see also Phoenix Newspapers, Inc. v. Purcell
187 Ariz. 74, 81,927 P.2d 340,_347 _(App.1996) (it is well-settled that Arizona evinces a general
"open access" policy toward public records). The Public Records Law exists to **540 *303 allow
citizens "to be informed about what their government is up to." Reporters Comm.,489 U.S. at 773,
109 S.Ct. at 1481 (citation omitted) (internal quotations omitted). Given this purpose, "the public
interest in disclosure is not diminished by the possibility or even the probability that [the agency] is
doing its [ ] job right." Washington Post Co. v. United States Dep't of Health & Human Serv., 690 F.2d
252, 264 (D.C.Cir.1982) (footnote omitted).
[6] ¶ 22 With regard to the public interest asserted by defendants, we note that if given the birth
dates, defendants plan to run criminal background checks on the teachers to see if any of them have
criminal records. Clearly, the public has an interest in knowing whether the districts employ teachers
with criminal records who might pose a threat to public school children.
¶ 23 The trial court found that defendants have no reason to believe that any of the thousands of
teachers involved in this case have been involved in inappropriate behavior. Defendants correctly
point out that they did discover misconduct by a teacher who is a registered sex offender. Perhaps
there are others, but defendants have produced no evidence or even a tip about any specific
individual. Defendants, of course, are not required to prove that there are teachers that pose a threat
to public school children. But when defendants are unable to provide any basis at all for believing that
such a teacher might exist among the thousands of individuals whose legitimate expectations of
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privacy are sought to be invaded, the public interest in disclosure is at best speculative.
[7] ¶ 24 While the teachers' expectation of privacy may be diminished because the information is
available elsewhere, the trial court also found that the availability of the birth dates through other
avenues reduces the need for public disclosure. Federal cases construing the FOIA have so held. See
Dobronski v. FCC, 17 F.3d 275 (9th Ci r.1994)_; Multnomah County Med. Soc'y v. Scott, 825 F.2d 1410
(9th Cir.1987). Under this component to the balancing test, the public interest increases when there
is no other available way to obtain the information and correspondingly decreases when "alternative
means" of receiving the information exist.FN3 See, e.g., Dobronski, 17 F.3d at 280; Multnomah
County Med. Soc'y, 825 F.2d at 1416. Because defendants do not dispute that the information sought
is otherwise available to them, the need for public disclosure is reduced.
FN3. The availability of the information elsewhere, however, does not affect the question
of whether the information is private.
¶ 25 From the facts presented, the minimal public interest shown by defendants does not override the
privacy interest of the teachers. On the facts of this case, plaintiffs correctly withheld the teachers'
birth dates from defendants and the trial court correctly sustained that action.
CONCLUSION
¶ 26 The opinion of the court of appeals is vacated and the judgment of the trial court is affirmed.
Because defendants are not prevailing parties, their request for attorneys' fees is denied.
ZLAKET, C.J., and FELDMAN, J., and JOSEPH W. HOWARD, Judge, concur.
CHARLES E. JONES, V.C.J., recused himself in this matter. Pursuant to Art. 6, Section 3 of the Arizona
Constitution, JOSEPH W. HOWARD, Judge, Arizona Court of Appeals, Division Two, was designated to
sit in his stead.
MARTONE, Justice, concurring and dissenting in part.
¶ 27 We granted review on the single issue of whether the Carlson balancing test applies even when
the information is available through other public sources. The court of appeals held that it did not
apply, and we are of the unanimous view that it does. To that extent, I join in part I of the court's
opinion.
¶ 28 Because the court of appeals held that the Carlson balancing test did not apply, **541 *304 it
did not review the balancing performed by the trial court. I would remand to the court of appeals so
that it can decide this issue in the first instance. Since we only granted review on whether Carlson
ought to apply at all, the balancing was not at issue here. Instead of remanding, this court chooses to
review the trial court's balancing on its own. While we have the authority to do that, the issue is
complex enough that we would profit from its examination by the court of appeals. On subsequent
petition for review, the parties could focus our attention on the balancing issue. My concerns with the
majority's current approach are many.
1. While the federal Freedom of Information Act can be helpful in other contexts, it is not that helpful
in deciding whether a birth date raises privacy interests sufficient to overcome the presumption of
open records. Freedom of Information Act cases concerning invasions of privacy arise under an
exemption, 5 U.S.C. § 552(b)(6), that does not exist under the Arizona statute. It would be well to
focus the parties' attention on this distinction.
2. In Cox Arizona Publications, Inc. v. Collins, 175 Ariz. 11, 852 P.2d 1194 (1993)_, we rather strongly
held that once records are characterized as public, there is a presumption of disclosure and the
burden of overcoming that presumption falls upon the public official who seeks to block access. Id. at
14, 852 P.2d at 1197. But here, the court says that because KPNX gave no basis for its suspicion, the
public interest in disclosure is speculative. Ante, at ¶ 23. The result is that we here give greater
protection to birth dates than we gave to police reports in Collins. I would like the parties to explain
this result.
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3. The weighing here is not easy. There are substantial interests on both sides of the question, and if
they are evenly weighted, the legal presumption in favor of disclosure of public records might make a
difference. In light of the closeness of the question, I would much prefer to decide this issue when the
parties have focused on it following a decision by the court of appeals.
¶ 29 I would thus remand to the court of appeals for initial resolution of this issue.
Copr. (C) West 2006 No Claim to Orig. U.S. Govt. Works Ariz.,1998.
Scottsdale Unified School Dist. No. 48 of Maricopa County v. KPNX Broadcasting Co.
191 Ariz. 297, 955 P.2d 534, 125 Ed. Law Rep. 930, 265 Ariz. Adv. Rep. 3
END OF DOCUMENT
West Reporter Image (PDF)
(C) 2006 Thomson/West. No Claim to Orig. U.S. Govt. Works.
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A.H. Belo Corp. v. Mesa Police Dept.
202 Ariz. 184, 42 P.3d 615
Ariz.App. Div. 1,2002.
March 26, 2002
We disagree. Our supreme court has already determined that privacy interests can
overcome the presumption in favor of disclosure of public records. Carlson, 141 Ariz. at
491, 687 P.2d at 1246; $ee also **619 *188 Scottsdale Unified Sch. Dist., 191 Ariz. at
300, 302,¶IJ 9, 19, 955 P.2d at 537, 539. It falls to Arizona courts to determine case by
case, as the question arises, whether an asserted privacy interest does overcome the
presumption.
Most often,when privacy contests arise under the Public Records Act, they concern
personal data or information. In Scottsdale Unified School District, for example, our
supreme court upheld the denial of access to public school records containing teachers'
birth dates. 191 Ariz. at 303,¶¶22-25, 955 P.2d at 540.
The range of cognizable privacy concerns is considerably broader,however, than those
involving data or information. In State v. Baldwin, for example, this court determined
that the government has a significant interest in protecting "residential privacy" and "
'the quiet enjoyment of the home.' " 184 Ariz. 267, 272, 908 P.2d 483, 488 (App.1995)
(quoting Frisby v. Schultz, 487 U.S. 474, 486, 108 S.Ct. 2495, 101 L.Ed.2d 420 (1988)).
More recently, we recognized that privacy rights implicate concerns " 'of the most
fundamental sort' to the individual, concerns that implicate `autonomy with respect to the
most personal of life choices' and 'the intimate aspects of identity.' " State v. Watson,
198 Ariz. 48, 52,¶ 8, 6 P.3d 752, 756 (App.2000) (quoting Laurence H. Tribe,American
Constitutional Law § 15-1 (2d ed.1988)).