HB719 HD1: Proposed cap on fees for public records excellent but could go further

The following testimony was submitted by the Grassroot Institute of Hawaii for consideration by the Senate Committee on Government Operations on March 21, 2023.

March 21, 2023
3 p.m.
Conference Room 225

 To: Senate Committee on Government Operations
       Sen. Angus L.K. McKelvey, Chair
       Sen. Mike Gabbard, Vice Chair

From: Grassroot Institute of Hawaii
           Joe Kent, Executive Vice President


Comments Only

Dear Chair and Committee Members:

The Grassroot Institute of Hawaii would like to commend the Legislature for considering this bill, HB719 HD1, which touches on a significant problem encountered in open-records requests: the use of high search and reproduction costs as a method to discourage the pursuit of Uniform Information Practices Act requests.

Specifically, the bill would impose a cap on fees for reproduction of public records as well as on the searching, reviewing and segregating of such records. 

In addition, the bill provides for a waiver of costs for duplication of records in electronic format; and provides for a waiver of fees when the public interest is served. 

As an educational research organization and public watchdog group, the Grassroot Institute of Hawaii often uses open-records requests to shine the light of transparency on the inner workings of government. Our UIPA requests run the gamut, from requests for records of budget and financial documents to requests for details of the plans for the Honolulu rail project.

In the course of our work, we have seen that some government agencies are more forthcoming than others, and that there are varying interpretations of the public interest fee waiver. Thus, some agencies will waive all costs associated with the search — as the statute clearly intended — while others will use the waiver as a “discount” of sorts, reducing but not waiving the search and reproduction fees.

On occasion, an agency will quote such a high fee requirement that accessing the requested records becomes an impossibility for the average person — or even a researcher or journalist. 

For example, in 2021, the Grassroot Institute requested three years of administrative forfeiture records from the state Office of the Attorney General. As this was part of an effort to research and report on asset forfeiture in Hawaii, we requested a waiver in the public interest. The AG’s Office quoted a total cost of $2,190. This included a $60 “fee waiver” because the request was in the public interest; only $10 was related to reproducing records. 

On another occasion, we requested communications between the governor’s office and certain agencies regarding the COVID-19 emergency — a nearly identical request to one filed by The Associated Press. The office quoted a total cost of $342,876 for the request, which included a $60 “fee waiver” because the request was in the public interest. 

One might suggest that this request was too broad, in which case, it would have been more in keeping with the intent of the open-records law for the agency to discuss with us a way to narrow the request, as other agencies often do, rather than producing a cost quote intended to avoid any disclosure at all.

All of which is to say, HB719 should be praised for seeking to eliminate reproduction charges for digital records and capping the fees for reproduction of physical copies. 

However, we would like to suggest the inclusion of a public interest waiver for fees related to the reproduction of physical records. Many agencies have switched entirely to electronic record keeping, but the public interest extends to historical records and should not be constrained. 

Nor should agencies be provided with loopholes that would enable them to use the cost of physical copies, or transferring physical records to electronic format, as a way to discourage requests.

In addition, this bill provides for a public interest waiver of fees related to search, review and segregation of records. This is a laudable addition to the law that would go a long way toward addressing the use of fees as an obstruction to open-records requests. It is often through sky-high search and review costs that agencies are able to discourage open-records requests, and this waiver is the most important element of the current bill.

We do have one concern: the increase in the search, review and segregation costs, which are currently set by the state Office of Information Practices at $2.50 per 15-minute increment of searching time and $5 per 15-minute increment of review and segregation time. 

We urge you to cap those costs at the current rate rather than increasing them to $5 and $7.50, respectively. Alternatively, we suggest that the Legislature remain silent on the search and review costs, leaving them to OIP to determine via rule, rather than setting the cost via legislative action. 

We understand the desire to discourage nuisance requests or abuse of the open-records law, but agencies should not be able to avoid disclosure of public records through the use of high fees.

There are other avenues available to help address an overbroad request or “fishing expeditions,” such as a dialogue about reducing the scope of a request, delayed fulfillment of the request, and guidance from the state Office of Information Practices, among others.

In summary, HB719 has the potential to improve transparency and open government in our state by strengthening the public interest element of the law. 

Thank you for the opportunity to submit our comments.


Joe Kent
Executive Vice President
Grassroot Institute of Hawaii

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