FREEDOM OF
INFORMATION ACT
HANDBOOK
ATTORNEY GENERAL DANA NESSEL
Additional copies available at michigan.gov/ag/foia
Updated January 2023
2
Dear Citizen:
As the chief law enforcement officer for Michigan, I encourage you to know
your rights under the Michigan Freedom of Information Act (FOIA). The FOIA
gives citizens the right of access to most public records. If access is wrongfully
denied, citizens are authorized to bring suit to compel disclosure and may be
awarded damages and reasonable attorney fees.
This FOIA Handbook is intended to be a quick reference guide and to help you
understand your rights under the act. This Handbook is not meant to provide
legal advice, be encyclopedic on every subject or resolve every situation that
may be encountered in working with the FOIA. Legal questions should be
addressed to your attorney.
Sincerely yours,
Dana Nessel
Attorney General for
the State of Michigan
3
Contents
THE BASICS............................................................................................................... 5
The Act
.........................................................................................................................
5
What is the FOIA’s purpose?
.....................................................................................
5
What is the federal FOIA?
..........................................................................................
5
THE REQUESTING PERSON ................................................................................. 5
Who may make a FOIA request?
..............................................................................
5
How is a FOIA request made?
...................................................................................
6
Where should a FOIA request be sent?
....................................................................
6
When is a FOIA request deemed received?
..............................................................
7
Can a person inspect the records of a public body?
.................................................
7
Can a person subscribe to future public records?
....................................................
7
THE PUBLIC BODY ................................................................................................. 7
What is a public body?
................................................................................................
7
What entities are not Public Bodies?
........................................................................
8
What is a FOIA Coordinator?
....................................................................................
8
Who is the FOIA Coordinator for a public body?
.....................................................
9
What amount of time does a public body have to respond to a FOIA request?
....
9
Does the information that is the subject of the FOIA request have to be
provided to the requester within five business days?
............................................
9
Is a public body required to provide the records in hard copy or
electronic form?
.........................................................................................................
10
Does a public body have to reproduce the records if the requester
has already asked for and received the records under a previous request?
........
10
PUBLIC RECORDS ................................................................................................. 10
What is a public record? ............................................................................................ 10
What is not considered a public record?
..................................................................
10
What public records are subject to disclosure? ........................................................ 13
What public records are exempt from disclosure?
.................................................
14
Are personnel records exempt from disclosure under the FOIA?
........................
19
Are student records exempt from disclosure under the FOIA?
............................
19
FEES FOR PUBLIC RECORDS ........................................................................... 19
May a public body charge a fee for public records?
...............................................
19
Are there any limitations on the charging of fees?
................................................
20
DENIAL OF A FOIA REQUEST
..........................................................................
20
What is required of a public body when it denies a FOIA request?
.....................
20
What must the public body’s written notice contain?
...........................................
20
4
REMEDIES ............................................................................................................... 21
What can a requester do if the requester does not agree with the
public body’s denial? .................................................................................................. 21
If the denial is appealed to the head of the public body, what must
the head of the public body do? ................................................................................ 21
What can a requester do if the requester disputes the charging of a fee? ........... 22
If the fee is appealed to the head of the public body, what must the
head of the public body do? ....................................................................................... 23
What are the penalties for a violation of the FOIA? .............................................. 23
OPINIONS AND CASES KEY WORD AND TOPIC INDEX ............................. 25
ATTORNEY GENERAL OPINIONS ..................................................................... 27
PUBLISHED COURT OPINIONS ........................................................................ 36
5
FREEDOM OF INFORMATION ACT
THE BASICS
The Act
The Freedom of Information Act (FOIA) is 1976 PA 442, MCL 15.231 through
15.246. The FOIA took effect April 13, 1977. The current version of the
statute can be obtained from the Michigan Legislature’s website and on the
Attorney General’s website.
What is the FOIA’s purpose?
It is the public policy of this state that “all persons, except those persons
incarcerated in state or local correctional facilities, are entitled to full and
complete information regarding the affairs of government and the official acts of
those who represent them as public officials and public employees, consistent
with this act. The people shall be informed so that they may fully participate in
the democratic process.”
1
To that end, the FOIA regulates and sets requirements for the disclosure of
certain public records of certain public bodies in the executive branch of
government, including all state agencies, county governments, local
governments, and public colleges and universities, as well as, school boards and
other boards, commissions, and councils. It provides the mechanism through
which the people may examine and review the records about the workings of
government and its officials.
2
What is the federal FOIA?
The federal FOIA applies to federal agencies as defined under the act.
3
State of
Michigan public bodies are not subject to the federal FOIA. To submit a FOIA
request to federal agencies, the request should be sent to the specific federal
agency.
THE REQUESTING PERSON
Who may make a FOIA request?
The FOIA provides that “persons” have a right to access “public records.” A
“person” is defined as: “an individual, corporation, limited liability company,
1
MCL 15.231(2).
2
Messenger v Ingham Co Prosecutor, 232 Mich App 633, 641; 591 NW2d 393 (1998).
3
USC 552a et seq.
6
partnership, firm, organization, association, governmental entity, or other legal
entity [except] an individual serving a sentence of imprisonment in a state or
county correctional facility in this state or any other state, or in a federal
correctional facility.”
4
How is a FOIA request made?
A person may ask to inspect, copy, or receive a copy of a public record by making
a written request for the public record to the FOIA coordinator of the public
body.
5
The request must describe the public record sufficiently to enable the
public body to find the requested public record.
6
A written request may be made
physically, for example, by mailing a letter, or electronically, for example, by
facsimile, email, or other electronic transmission.
7
A FOIA request does not need to include any mention of the FOIA. However, “[i]f
a public body does not respond to a written request in a timely manner as
required under section 5(2), the public body shall . . . [r]educe the charges for
labor costs otherwise permitted under this section by 5% for each day the public
body exceeds the time permitted under section 5(2) for a response to the request,
with a maximum 50% reduction, if . . . [t]he written request included language
that conveyed a request for information within the first 250 words of the body of
a letter, facsimile, electronic mail, or electronic mail attachment, or specifically
included the words, characters, or abbreviations for ‘freedom of information’,
‘information’, ‘FOIA’, ‘copy’, or a recognizable misspelling of such, or appropriate
legal code reference for this act, on the front of an envelope, or in the subject
line of an electronic mail, letter, or facsimile cover page.”
8
Where should a FOIA request be sent?
There is no single government office that handles all FOIA requests. Each FOIA
request must be made to the particular state, county, or local public body that
has the records being sought. For example, if the requester wants to know about
a corporate registration, the request might be directed to the Michigan
Department of Licensing & Regulatory Affairs. The requester may have to
perform research to find the proper agency office to handle the FOIA request.
4
MCL 15.232(g).
5
MCL 15.235(1).
6
MCL 15.233(1); Herald Co v City of Bay City, 463 Mich 111; 614 NW2d 873 (2000); Kincaid v Dep’t
of Corrections, 180 Mich App 176; 446 NW2d 604 (1989); Capitol Information Ass’n v Ann Arbor
Police, 138 Mich App 655; 360 NW2d 262 (1984).
7
MCL 15.232(m).
8
MCL 14.234(9)(a)(ii).
7
A list of state agencies can be obtained from the State of Michigan's website.
When is a FOIA request deemed received?
If a FOIA request is made by facsimile, electronic mail, or other electronic
transmission to the public body, the request is considered received one business
day after the electronic transmission is made.
9
If a FOIA request is sent to the
public body by U.S. mail, it is considered received the day of receipt.
Can a person inspect the records of a public body?
A person can inspect the records of a public body. The public body has a
responsibility to provide reasonable facilities during normal business hours so
that a requester may inspect records and take notes.
10
A public body may make
reasonable rules necessary to prevent excessive and unreasonable interference
with the discharge of its function. A public body shall protect public records
from loss, unauthorized alteration, mutilation, or destruction.
11
Can a person subscribe to future public records?
A person has the right to subscribe to future issuances of public records that are
created, issued, or disseminated on a regular basis. A subscription is valid for up
to six months at the request of the subscriber and is renewable.
12
THE PUBLIC BODY
What is a public body?
A public body is broadly defined as:
a.
A state officer, employee, agency, department, division, bureau, board,
commission, council, authority, or other body in the executive branch of
the state government.
b.
An agency, board, commission, or council in the legislative branch of state
government.
9
MCL 15.235(1).
10
MCL 15.233(3).
11
MCL 15.233(3); Cashel v Regents of the University of Michigan, 141 Mich App 541; 367 NW2d 841
(1985).
12
MCL 15.233(1).
8
c.
A county, city, township, village, intercounty, intercity, or regional
governing body, council, school district, special district, or municipal
corporation, or a board, department, commission, council, or agency
thereof.
d.
Any other body which is created by state or local authority, or which is
primarily funded by or through state or local authority.
13
e.
A private, non-governmental body may be a public body subject to FOIA if
it receives fifty percent or more of its funding through State or local
governmental grants or subsidies.
14
What entities are not Public Bodies?
Several governmental bodies are not public bodies as defined in the FOIA: The
Governor, the Lieutenant Governor, the executive office of the Governor, and
any employee of either executive office is not a public body.
15
The Judicial
branch of government is not a public body.
16
When acting in the capacity as
clerk of the circuit court, the office and employees of the county clerk are not a
public body.
17
An individual Legislator is not a public body.
18
A private non-
governmental organization that receives payment from governmental sources in
return for providing services is not a public body.
19
What is a FOIA Coordinator?
A FOIA Coordinator is the individual responsible for receiving and processing
requests for a public body’s public records and for approving denials when
appropriate. A FOIA Coordinator may designate another individual to act on his
or her behalf in receiving and processing requests for the public body’s records,
and in approving denials as appropriate.
20
An employee of a public body who
13
MCL 15.232(h); see OAG, 2001 - 2002, No 7087, p 45 (August 21, 2001); OAG, 1999 - 2000, No
7066, p 156 (November 7, 2000); OAG, 1997-1998, No 6942, p 40 (July 3, 1997); Detroit News, Inc. v
Policemen and Firemen Retirement System of the City of Detroit, 252 Mich App 59; 651 NW2d 127
(2002); Sclafani v Domestic Violence Escape, 255 Mich App 260; 660 NW2d 97 (2003); State Defender
Union Employees v The Legal Aid & Defender Ass’n of Detroit, 230 Mich App 426; 584 NW2d 359
(1998); Jackson v Eastern Michigan University, 215 Mich App 240; 544 NW2d 737 (1996).
14
Sclafani v Domestic Violence Escape, 255 Mich App 260; 660 NW2d 97 (2003); State Defender
Union Employees v Legal Aid & Defender Ass’n of Detroit, 230 Mich App 426; 584 NW2d 359 (1998);
Kubick v Child & Family Services of Michigan, Inc, 171 Mich App 304; 429 NW2d 881 (1988).
15
MCL 15.232(h)(i).
16
MCL 15.232(h)(iv).
17
MCL 15.232(h)(iv).
18
MCL 15.232(d), OAG, 1985 - 1986, No 6390, p 375 (September 26, 1986).
19
State Defender Union Employees v Legal Aid & Defender Ass’n of Detroit, 230 Mich App 426; 584
NW2d 359 (1998).
20
MCL 15.236.
9
receives a request for a public record is required by the FOIA to promptly
forward the request to the FOIA Coordinator.
21
Who is the FOIA Coordinator for a public body?
A public body that is a city, village, township, county, or state department, or
under the control of a city, village, township, county, or state department, is
required to designate an individual as the public body’s FOIA Coordinator. In a
county not having an executive form of government, unless another individual is
designated as the FOIA Coordinator, the chairperson of the county board of
commissioners is designated the FOIA Coordinator for that county. For all other
public bodies, the chief administrative officer of the respective public body is
designated the public body’s FOIA Coordinator.
22
What amount of time does a public body have to respond to a FOIA
request?
Unless otherwise agreed to in writing by the person making the request, the
public body must respond to a request for a public record within five business
days after receiving the request, or within 15 business days if the statutorily-
permitted 10-business day extension is taken,
23
by doing one of the following:
a. Granting the request.
b.
Issue a written notice denying the request.
c.
Issue a written notice granting the request in part and denying the
request in part.
d.
Issue a notice requesting an additional 10 business days in
which to respond to the request.
24
A failure to respond constitutes a denial as more fully explained in the act.
25
Does the information that is the subject of the FOIA request have to be
provided to the requester within five business days?
Not necessarily. Existing information subject to the request does not have to be
provided to the requester within five business days. The public body must issue
a written notice in response to the request for a public record within five
business days after receiving the request.
26
If the request is for a readily
21
MCL 15.233(1).
22
MCL 15.236(2).
23
MCL 15.235(2)(d).
24
MCL 15.235(2); OAG, 1979 - 1980, No 5500, p 255 (July 23, 1979).
25
MCL 15.235(3). See also OAG, 2005 - 2006, No 7172, p 20 (March 17, 2005); Scharret v City of
Berkley, 249 Mich App 405; 642 NW2d 685 (2002).
26
MCL 15.235(2).
10
available public record, however, the information generally should be provided
within the five-business day period.
Is a public body required to provide the records in hard copy or
electronic form?
Public Bodies are required to provide public records in the format requested if
the record exists within the public body in that format.
27
Does a public body have to reproduce the records if the requester has
already asked for and received the records under a previous request?
A public body is not required to provide a requester with additional copies of
records it already has provided to the requester unless the requester can
demonstrate why the copies already provided were not sufficient.
28
A public
body, however, is not prohibited from providing additional copies.
PUBLIC RECORDS
What is a public record?
A public record means “a writing prepared, owned, used, in the possession of, or
retained by a public body in the performance of an official function, from the
time it is created.”
29
A “writing” is broadly defined as “handwriting, typewriting,
printing, photostating, photographing, photocopying, and every other means of
recording, and includes letters, words, pictures, sounds, or symbols, or
combinations thereof, and papers, maps, magnetic or paper tapes, photographic
films or prints, microfilm, microfiche, magnetic or punched cards, discs, drums,
or other means of recording or retaining meaningful content.”
30
What is not considered a public record?
The legislature and courts have designated certain records as not being public
records. The following are examples of records that are not considered “public
records” under the FOIA:
•
Computer software is not a public record.
31
“Software” is defined as “a set
of statements or instructions that when incorporated in a machine usable
medium is capable of causing a machine or device having information
processing capabilities to indicate, perform, or achieve a particular
function, task, or result. Software does not include computer-stored
27
Farrell v Detroit, 209 Mich App 7; 530 NW2d 105 (1995).
28
Densmore v Dep’t of Corrections, 203 Mich App 366; 512 NW2d 72 (1994).
29
MCL 15.232(i).
30
MCL 15.232(l).
31
MCL 15.232(i).
11
information or data, or a field name if disclosure of that field name does
not violate a software license.”
32
•
A record that, while prepared, owned, used, in the possession of, or
retained by a public body, is not done so in the performance of an official
function is not a public record.
33
A personal email not transmitted in
performance of an official function is not a public record.
34
It should be
noted however, that personal email could become a public record if it
relates to one of the public body’s official functions. For example, email
used to support a disciplinary action for abusing the public body’s
computer acceptable use policy would be related to one of the public
body’s official functions - discipline of an employee.
35
•
Peer review information related to the professional review function in
hospitals and health facilities.
36
•
Obligations and interest coupons of a county, city, village, township,
charter township, school district, community college district, port district,
metropolitan district, drainage district, the state or any officer, agency,
commission or department thereof, or any other public or governmental
authority or agency within the state with the power to issue obligations.
37
•
Information submitted to the Department of Environment, Great Lakes,
and Energy, other state agency, or local unit of government under MCL
324.63501 et seq that pertains only to the analysis of the chemical and
physical properties of coal, excepting information regarding such mineral
or elemental content that is potentially toxic in the environment, or
information that pertains to the exact location of archeological site.
38
•
A notice of the acceptance or nonacceptance of a guilty or nolo contendere
plea sent to the prosecuting attorney from a court pursuant to the
William Van Regenmorter Crime Victim’s Rights Act.
39
•
The separate written statement containing a crime victim’s name,
address, and telephone number that an investigating law enforcement
32
MCL 15.232(j).
33
Howell Education Association MEA/NEA v Howell Board of Education, 287 Mich App 228; 789
NW2d 495 (2010).
34
Howell Education Association MEA/NEA v Howell Board of Education, 287 Mich App 228; 789
NW2d 495 (2010).
35
Howell Education Association MEA/NEA v Howell Board of Education, 287 Mich App 228; 789
NW2d 495 (2010).
36
MCL 333.21515; MCL 333.20175; MCL 330.1143a; MCL 330.1748; In re Lieberman, 250 Mich App
381; 646 NW2d 199 (2002).
37
MCL 129.125.
38
MCL 324.63508.
39
MCL 780.751 et seq; MCL 780.816.
12
officer is required to submit under the William Van Regenmorter Crime
Victim’s Rights Act.
40
•
The separate written statement containing a crime victim’s name,
address, and telephone number that an investigating agency is required
to submit under the William Van Regenmorter Crime Victim’s Rights Act
to support a complaint or a petition seeking to invoke the court’s
jurisdiction for a juvenile offense.
41
•
Under the Uniform Securities Act, the following are not public records:
1.
A record obtained by the administrator in connection with an audit or
inspection under MCL 451.2411(4) or an investigation under section
MCL 451.2602.
2.
A part of a report filed in connection with a registration statement
under sections MCL 451.2301 and MCL 451.2303 through MCL
451.2305, or a record under section MCL 451.2411(4), that contains
trade secrets or confidential information when the person filing the
registration statement or report has asserted a claim of confidentiality
or privilege that is authorized bylaw.
3.
A record that is not required to be provided to the administrator or
filed under this act and is provided to the administrator only on the
condition that the record will not be subject to public examination or
disclosure.
4.
A nonpublic record received from a person specified in section MCL
451.2608.
5.
Any social security number, residential address unless used as a
business address, or residential telephone number unless used as a
business telephone number contained in a record that is filed.
6.
A record obtained by the administrator through a designee that is
determined by a rule or order under this act to have been either of the
following:
a. Appropriately expunged from the administrator’s records by that
designee.
b.
Appropriately determined to be nonpublic or non-disclosable by
that designee if the administrator finds that this is in the public
interest and for the protection of investors.
42
•
Any information regarding any person’s transactional history contained
in the database regarding deferred presentment service transactions
under the Deferred Presentment Service Transactions Act.
43
40
MCL 780.751 et seq; MCL 780.812.
41
MCL 780.751 et seq; MCL 780.784.
42
MCL 451.2607.
43
MCL 487.2142(8).
13
•
A prescription or equivalent record on file in a pharmacy.
44
•
The log or other means of recording the sale of ephedrine or
pseudoephedrine maintained under the Public Health Code.
45
•
Hospital accreditation information provided for the purpose of licensure
under the Public Health Code.
46
•
A report prepared pursuant to the Mental Health Code to accompany the
petition for the appointment of a guardian for an individual who has a
developmental disability is not a public record.
47
•
Except as otherwise provided in MCL 331.532, the record of a proceeding
and the reports, findings, and conclusions of a review entity and data
collected by or for a review entity under MCL 331.531 et seq.
48
•
The test results and records of pregnant women for the detection of
venereal disease, hepatitis B, and HIV or HIV antibody under the Public
Health Code.
49
•
Reports submitted to the Department of Health and Human Services
regarding an individual suffering from an illness arising out of and in the
course of the individual’s employment or caused by exposure to a
hazardous substance or agent or to a specific industrial practice that is
hazardous.
50
•
The data and any report containing any patient identifiers obtained from
the data collected by the electronic system established to monitor
schedule 2, 3, 4, and 5 controlled substances dispensed in this state.
51
What public records are subject to disclosure?
The FOIA requires the disclosure of all public records, except to the extent that
they fall within a statutorily-recognized exemption.
52
Some common examples of
types of records that may be subject to disclosure as public records include
electronic records such as email, data saved on a computer, digital photographs,
and any other electronically stored information; and physical records such as
minutes of open meetings, officials’ voting records, employee discipline
44
MCL 333.17752.
45
MCL 333.1101; MCL 333.17766e.
46
MCL 333.20155.
47
MCL 330.1001, et seq; MCL 330.1612.
48
MCL 331.533.
49
MCL 333.5123.
50
MCL 333.5621.
51
MCL 333.7333a.
52
Subpoena Duces Tecum to the Wayne County Prosecutor v City of Detroit, 205 Mich App 700; 518
NW2d 522 (1994).
14
investigation information, final orders or decisions in contested cases and the
records on which they were made, promulgated rules, and documents that
implement or interpret laws, rules, or policies, including, but not limited to,
guidelines, manuals, and forms with instructions, adopted or used by the agency
in the discharge of its functions.
What public records are exempt from disclosure?
Except to the extent that a record falls within a statutorily-recognized
exemption,
53
the FOIA permits, but does not require, a public body to withhold
from public disclosure the following enumerated categories of public records:
54
1.
Information of a personal nature if public disclosure of the information
would constitute a clearly unwarranted invasion of the individual’s
privacy.
55
2.
Investigating records compiled for law enforcement purposes, but only to
the extent that disclosure as a public record would do any of the
following:
a.
Interfere with law enforcement proceedings.
b.
Deprive a person of the right to a fair trial or impartial
administrative adjudication.
c.
Constitute an unwarranted invasion of personal privacy.
d.
Disclose the identity of a confidential source, or if the record is
compiled by a law enforcement agency in the course of a criminal
investigation, disclose confidential information furnished only by a
confidential source.
e.
Disclose law enforcement investigative techniques or procedures.
f.
Endanger the life or physical safety of law enforcement personnel.
56
3.
A public record that if disclosed would prejudice a public body’s ability to
maintain the physical security of custodial or penal institutions occupied
by persons arrested or convicted of a crime or admitted because of a
mental disability unless the public interest in disclosure under this act
outweighs the public interest in nondisclosure.
57
53
MCL 15.243(1)(d).
54
MCL 15.243(1)(a) - (aa).
55
MCL 15.243(1)(a); Stone Street Capital, Inc v Michigan Bureau of State Lottery, 263 Mich App 683;
689 NW2d 541 (2004); Herald Co v Ann Arbor Public Schools, 224 Mich App 266; 568 NW2d 411
(1997); Booth Newspapers, Inc v University of Michigan Board of Regents, 444 Mich 211; 507 NW2d
422 (1993); Practical Political Consulting, Inc v Terry Lynn Land, 287 Mich App 434; 789 NW2d 178
(2010).
56
MCL 15.243(1)(b)(i)-(vi).
57
MCL 15.243(1)(c).
15
4.
Records or information specifically described and exempted from
disclosure by statute. A regulation cannot serve as the basis for this
exception, the records must be described and exempted by a statute.
58
5.
A public record or information that is furnished by the public body
originally compiling, preparing, or receiving the record or information to
a public officer or public body in connection with the performance of the
duties of that public officer or public body, if the considerations originally
giving rise to the exempt nature of the public record remain applicable.
59
6.
Trade secrets or commercial or financial information voluntarily
provided to a public body for use in developing governmental policy if:
a.
The information is submitted upon a promise of confidentiality by
the public body.
b.
The promise of confidentiality is authorized by the chief
administrative officer of the public body or by an elected official at
the time the promise is made.
c.
A description of the information is recorded by the public body
within a reasonable time after it has been submitted, maintained in
a central place within the public body, and made available to a
person upon request. This subdivision does not apply to information
submitted as required by law or as a condition of receiving a
governmental contract, license, or other benefit.
60
7.
Information or records subject to attorney-client privilege.
61
8.
Information or records subject to the physician-patient privilege, the
psychologist-patient privilege, the minister, priest or Christian Science
practitioner privilege, or other privilege recognized by statute or court
rule.
62
9.
A bid or proposal by a person to enter into a contract or agreement, until
the time for the public opening of bids or proposals, or if a public opening
is not to be conducted, until the deadline for submission of bids or
proposals has expired.
63
10.
Appraisals of real property to be acquired by a public body until either of
the following occurs:
a.
An agreement is entered into.
b.
Three years have elapsed since the making of the appraisal, unless
litigation relative to the acquisition has not yet terminated.
64
11.
Test questions and answers, scoring keys, and other examination
instruments or data used to administer a license, public employment, or
58
MCL 15.243(1)(d); ACLU v Calhoun Co Sheriff’s Office, Mich App (2022).
59
MCL 15.243(1)(e).
60
MCL 15.243(1)(f)(i)-(iii).
61
MCL 15.243(1)(g).
62
MCL 15.243(1)(h).
63
MCL 15.243(1)(i).
64
MCL 15.243(1)(j)(i)-(ii).
16
academic examination, unless the public interest in disclosure under this
act outweighs the public interest in nondisclosure.
65
12.
Medical, counseling, or psychological facts or evaluations concerning an
individual if the individual’s identity would be revealed by a disclosure of
those facts or evaluation, including protected health information, as
defined in 45 CFR 160.103.
66
13.
Communications and notes within a public body or between public bodies
of an advisory nature to the extent that they cover other than purely
factual materials and are preliminary to a final agency determination of
policy or action. This exemption does not apply unless the public body
shows that in the particular instance the public interest in encouraging
frank communication between officials and employees of public bodies
clearly outweighs the public interest in disclosure. . .
67
14.
Records of law enforcement communication codes, or plans for
deployment of law enforcement personnel, that if disclosed would
prejudice a public body’s ability to protect the public safety unless the
public interest in disclosure under this act outweighs the public interest
in nondisclosure in the particular instance.
68
15.
Information that would reveal the exact location of archeological sites.
69
16.
Testing data developed by a public body in determining whether bidders’
products meet the specifications for purchase of those products by the
public body, if disclosure of the data would reveal that only 1 bidder has
met the specifications. This subdivision does not apply after 1 year has
lapsed from the time the public body completes testing.
70
17.
Academic transcripts of an institution of higher education established
undersection 5, 6, or 7 of article VIII of the state constitution of 1963, if
the transcript pertains to a student who is delinquent in the payment of
financial obligations to the institution.
71
18.
Records of a campaign committee including a committee that receives
money from a state campaign fund.
72
19.
Unless the public interest in disclosure outweighs the public interest in
nondisclosure in the particular instance, public records of a law
enforcement agency, the release which would do any of the following:
a.
Identify or provide a means of identifying an informant.
b.
Identify or provide a means of identifying a law enforcement
undercover officer or agent or a plain clothes officer as a law
enforcement officer or agent.
65
MCL 15.243(1)(k).
66
MCL 15.243(1)(l).
67
MCL 15.243(1)(m).
68
MCL 15.243(1)(n).
69
MCL 15.243(1)(o).
70
MCL 15.243(1)(p).
71
MCL 15.243(1)(q).
72
MCL 15.243(1)(r).
17
c.
Disclose the personal address or telephone number of active or
retired law enforcement officers or agents or a special skill that
they may have.
d.
Disclose the name, address, or telephone numbers of family
members, relatives, children, or parents of active or retired law
enforcement officers or agents.
e.
Disclose operational instructions for law enforcement officers or
agents.
f.
Reveal the contents of staff manuals provided for law enforcement
officers or agents.
g.
Endanger the life or safety of law enforcement officers or agents or
their families, relatives, children, parents, or those who furnish
information to law enforcement departments or agents.
h.
Identify or provide a means of identifying a person as a law
enforcement officer, agent, or informant.
i.
Disclose personnel records of law enforcement agencies.
j.
Identify or provide a means of identifying residences that law
enforcement agencies are requested to check in the absence of their
owners or tenants.
73
20.
Except as otherwise provided in this subdivision, records and
information pertaining to an investigation or a compliance conference
conducted by the department under article 15 of the public health code,
1978 PA 368, MCL 333.16101 to 333.18838, before a complaint is issued.
This subdivision does not apply to records or information pertaining to
one or more of the following:
a.
The fact that an allegation has been received and an investigation
is being conducted, and the date the allegation was received.
b.
The fact that an allegation was received by the department; the fact
that the department did not issue a complaint for the allegation;
and the fact that the allegation was dismissed.
74
21.
Records of a public body’s security measures, including security plans,
security codes and combinations, passwords, passes, keys, and security
procedures, to the extent that the records relate to the ongoing security of
the public body.
75
22.
Records or information relating to a civil action in which the requesting
party and the public body are parties.
76
23.
Information or records that would disclose the social security number of
an individual.
77
73
MCL 15.243(1)(s); Post-Newsweek Stations, Michigan, Inc v Detroit, 179 Mich App 331; 445 NW2d
529 (1989); Payne v Grand Rapids Police Chief, 178 Mich App 193; 443 NW2d 481 (1989).
74
MCL 15.243(1)(t)(i) and (ii).
75
MCL 15.243(1)(u).
76
MCL 15.243(1)(v).
77
MCL 15.243(1)(w).
18
24.
Except as otherwise provided in this subdivision, an application for the
position of president of an institution of higher education established
under section 4, 5, or 6 of article VII of the state constitution of 1963,
materials submitted with such an application, letters of recommendation,
or references concerning an applicant and records or information relating
to the process of searching for and selecting an individual for a position
described in this subdivision, if the records or information could be used
to identify a candidate for the position. However, after 1 or more
individuals have been identified as finalists for a position described in
this subdivision, this subdivision does not apply to a public record
described in this subdivision, except a letter of recommendation or
reference, to the extent that the public record relates to an individual
identified as a finalist for the position.
78
25.
Records or information of measures designed to protect the security or
safety of persons or property, whether public or private, including, but
not limited to, building, public works, and public water supply designs to
the extent that those designs relate to the ongoing security measures of a
public body, capabilities and plans for responding to a violation of the
Michigan anti-terrorism act, chapter LXXXIII-A of the Michigan penal
code, 1931 PA 328, MCL 750.543a to 750.543z, emergency response plans,
risk planning documents, threat assessments, and domestic
preparedness strategies, unless disclosure would not impair a public
body’s ability to protect the security or safety of persons or property or
unless the public interest in disclosure outweighs the public interest in
nondisclosure in the particular instance.
79
26.
Information that would identify or provide a means of identifying a
person that may, as a result of disclosure of the information, become a
victim of a cybersecurity incident or that would disclose a person's
cybersecurity plans or cybersecurity-related practices, procedures,
methods, results, organizational information system infrastructure,
hardware, or software.
80
27.
Research data on road and attendant infrastructure collected, measured,
recorded, processed, or disseminated by a public agency or private entity,
or information about software or hardware created or used by the private
entity for such purposes.
28. A public body shall exempt from disclosure information that, if released,
would prevent the public body from complying with 20 USC 1232g,
commonly referred to as the family educational rights and privacy act of
1974. A public body that is a local or intermediate school district or a public
school academy shall exempt from disclosure directory information, as
defined by 20 USC 1232g, commonly referred to as the family educational
78
MCL 15.243(1)(x).
79
MCL 15.243(1)(y).
80
MCL 15.243(1)(z).
19
rights and privacy act of 1974, requested for the purpose of surveys,
marketing, or solicitation, unless that public body determines that the use is
consistent with the educational mission of the public body and beneficial to
the affected students.
81
Are personnel records exempt from disclosure under the FOIA?
Personnel records possessed by public bodies that are subject to the act
generally are not exempt from disclosure unless the information falls within one
of the FOIA exemptions.
82
However, personnel records of employees of the
Department of Corrections, employees of the center for forensics psychiatry, and
employees of a psychiatric hospital that houses prisoners are exempt from
disclosure under FOIA.
83
Personnel records of law enforcement agencies are
exempt under the FOIA, unless the public interest in disclosure outweighs the
public interest in nondisclosure.
84
Are student records exempt from disclosure under the FOIA?
Student records possessed by public bodies that are subject to the act are
exempt from disclosure if the release of the record would prevent compliance
with the Family Educational Rights and Privacy Act of 1974, 20 USC 1232g.
85
Directory information, defined as: “the student’s name, address, telephone
listing, date and place of birth, major field of study, participation in officially
recognized activities and sports, weight and height of members of athletic
teams, dates of attendance, degrees and awards received, and the most recent
previous educational agency or institution attended by the student,”
86
may be
released unless the public body is informed in writing by the student or the
student’s parent not to release the information without prior consent.
87
FEES FOR PUBLIC RECORDS
May a public body charge a fee for public records?
A public body may charge a fee for a public record search, the necessary copying
of a public record for inspection, or for providing a copy of a public record, and
81
MCL 15.243(2).
82
Bradley v Saranac Community Schools Board of Education, Lansing Ass’n of School Admr’s v
Lansing School District, 455 Mich 285; 565 NW2d 650 (1997).
83
MCL 791.230a; Clerical-Technical Union of MSU v MSU Board of Trustees, 190 Mich App 300; 475
NW2d 373 (1991); Michigan Federation of Teachers and School Related Personnel, AFT, AFL-CIO v
University of Michigan, 481 Mich 657; 753 NW2d 28 (2008).
84
MCL 15.243(1)(s)(ix).
85
MCL 15.243(2).
86
20 USC 1232g(a)(5)(A).
87
20 USC 1232g(a)(5)(B).
20
actual mailing, duplication, and labor costs.
88
The fee may be waived or reduced
if the public body determines it is in the interest of the public because searching
for or furnishing copies of the public record can be considered as primarily
benefitting the general public. If the fee is more than $50.00, the public body
may collect a deposit of not more than 50% of the total amount prior to
processing the request.
89
Are there any limitations on the charging of fees?
In calculating the cost of labor incurred in duplication and mailing and the cost
of examination, review, separation, and deletion, a public body may not charge
more than the hourly wage of the lowest paid public body employee capable of
performing the tasks necessary to comply with the request.
90
A fee shall not be
charged for the cost of search, examination, review, and the deletion and
separation of exempt from nonexempt information unless the failure to charge a
fee in the particular instance would result in an unreasonably high cost to the
public body because of the nature of the request.
91
A public search shall be made
and a copy of a public record shall be furnished without charge for the first
$20.00 of the fee 1) for an individual who submits an affidavit stating that the
individual is receiving public assistance or, if not receiving public assistance,
providing facts showing an inability to pay because of indigency; and 2) as to
certain nonprofit entities.
92
DENIAL OF A FOIA REQUEST
What is required of a public body when it denies a FOIA request?
If a request for a public record is denied in full or in part, the public body must
issue a written notice to the requester not more than five business days after the
public body receives the request or within 15 business days if the statutorily-
permitted 10-business day extension is taken.
93
A written notice denying a
request for a public record in whole or in part is a public body’s final disclosure
determination.
What must the public body’s written notice contain?
The written notice must contain an explanation of the basis for the exemption
or, if applicable, a certification that the public record being requested does not
exist within the public body under the name given by the requester or by
88
MCL 15.234.
89
MCL 15.234(8).
90
MCL 15.234(3).
91
MCL 15.234(3).
92
MCL 15.234(2)(a) and (b).
93
MCL 15.235(2); Key v Township of Paw Paw, 254 Mich App 508; 657 NW2d 546 (2002).
21
another name reasonably known to the public body. The notice must provide a
description of the public record that is being withheld or the information on the
public record that is redacted, if a redaction is made. The notice must also
contain a full explanation of the requesting person’s right to appeal the denial to
the head of the public body or seek judicial review.
94
Notification of the right to
judicial review must include notification of the right to receive attorney fees and
collect damages if the requester prevails.
95
REMEDIES
What can a requester do if the requester does not agree with the public
body’s denial?
If a public body makes a final determination to deny all or a portion of a request,
the requester may either submit a written appeal to the head of the public body
that specifically states the word “appeal” and identifies the reason or reasons
the denial should be reversed or, within 180 days after the public body’s final
determination to deny the request, commence an action in the appropriate court
to compel the public body’s disclosure of the public records.
96
If the denial is appealed to the head of the public body, what must the
head of the public body do?
If appealed to the head of the public body, the head of the public body must do
one of the following within 10 business days after receiving the written appeal or
within 20 business days if the statutorily-permitted 10-business day extension
applies:
a.
Reverse the denial.
b.
Issue a written notice to the requester upholding the denial.
c.
Reverse the denial in part and issue a written notice to the requester
upholding the denial in part.
d.
Issue a written notice extending for not more than 10 business days the
period to respond. This extension can only be taken because of unusual
circumstances
97
and only once for a particular written appeal.
98
If a board or commission is the head of a public body, it is not considered to have
received a written appeal until its first regularly scheduled meeting following
submission of the written appeal.
99
94
MCL 15.235(4)(d)(ii).
95
MCL 15.235(4)(e).
96
MCL 15.240(1)(a) and (b).
97
MCL 15.232(g).
98
MCL 15.240(2).
99
MCL 15.240(3).
22
If the head of the public body fails to respond to a written appeal, or if the head
of the public body upholds all or a portion of the denial, the requester may seek
judicial review of the nondisclosure by commencing an action in the appropriate
court within 180 days after the final decision denying the request.
100
If an action is commenced in circuit court against a local or county public body,
either as an alternative to appealing to the head of the public body or for review
of the public body’s final determination to deny the request, the action may be
brought in the circuit court in the county where the requester resides, the
county where the requester has his or her principal place of business, the county
where the public record is located, or a county where the public body has an
office.
101
If the action is against a department or agency of the State of
Michigan, the action must be filed in the Court of Claims.
102
What can a requester do if the requester disputes the charging of a fee?
If a public body requires a fee that exceeds the amount permitted under its
publicly available procedures and guidelines or section 4 of the FOIA, the
requesting person may do the following:
a.
If the public body provides for fee appeals to the head of the public body
in its publicly available procedures and guidelines, submit to the head of
the public body a written appeal for a fee reduction that specifically states
the word “appeal” and identifies how the required fee exceeds the amount
permitted under the public body’s available procedures and guidelines or
section 4 of the FOIA.
b.
Within 45 days after receiving the notice of the required fee or a
determination of an appeal to the head of a public body, commence a civil
action in the circuit court, or if the decision of a state public body is at
issue, in the court of claims, for a fee reduction. An action, however,
cannot be filed unless the public body does not provide for fee appeals; the
head of the public body failed to respond to the written appeal; or the
head of the public body issued a determination to a written appeal
upholding the fee.
103
100
MCL 15.240(3).
101
MCL 15.240(4).
102
MCL 15.240(1)(b).
103
MCL 15.240a(1).
23
If the fee is appealed to the head of the public body, what must the head
of the public body do?
Within 10 business days after receiving a written fee appeal, or no more than a
total of 20 business days if the extension is taken as permitted under the act,
the head of the public body must do one of the following:
a. Waive the fee.
b.
Reduce the fee and issue a written determination indicating the specific
basis under section 4 of the FOIA that supports the remaining fee amount
and affirming that the statements in the determination are accurate and
the reduced fee complies with the public body’s publicly available
procedures and guidelines and section 4 of the FOIA.
c.
Uphold the fee and issue a written determination indicating the specific
basis under section 4 of the FOIA that supports the required fee amount
and affirming that the statements in the determination are accurate and
the fee complies with the public body’s publicly available procedures and
guidelines and section 4 of the FOIA.
104
If a board or commission is the head of a public body, it is not considered to have
received a written appeal until its first regularly scheduled meeting following
submission of the written appeal.
105
Venue for an action against a local public body is proper in the circuit court for the
county in which the public record or an office of the public body is located.
106
What are the penalties for a violation of the FOIA?
As to the FOIA’s disclosure provisions, if the requester fully prevails in an action
in court, the court must award reasonable attorneys’ fees, costs, and
disbursements; if the requester partially prevails, the court may award all,
some, or none of these.
107
If the court finds that the public body has arbitrarily
and capriciously violated the FOIA by refusal or delay in disclosing or providing
copies of a public record, it may, in addition to any actual or compensatory
damages, award punitive damages of $1,000.00 to the person seeking the right
to inspect or receive a copy of a public record.
108
If the court determines that a
public body willfully and intentionally failed to comply with the FOIA or
otherwise acted in bad faith, the court shall order the public body to pay, in
104
MCL 15.240a(2).
105
MCL 15.240a(3).
106
MCL 15.240a(4).
107
MCL 15.240(6).
108
MCL 15.240(7); Thomas v City of New Baltimore, 254 Mich App 196; 657 NW2d 530 (2002); Local
312 of the AFSCME, AFL-CIO v City of Detroit, 207 Mich App 472; 525 NW2d 487 (1994);
Bredemeier v Kentwood Board of Education, 95 Mich App 767; 291 NW2d 199 (1980).
24
addition to any other award or sanction, a civil fine of not less than $2,500.00 or
more than $7,500.00 for each occurrence.
109
As to the FOIA’s fee provisions, if the court determines that the public body
required a fee that exceeds the amount permitted under the public body’s
publicly available procedures and guidelines or section 4 of the FOIA, the court
shall reduce the fee to a permissible amount.
110
If the requesting person prevails
by receiving a reduction of 50% or more of the total fee, the court may, in its
discretion, award all or an appropriate portion of reasonable attorneys’ fees,
costs, and disbursements.
111
If the court determines that the public body has
arbitrarily and capriciously violated the act by charging an excessive fee, the
court shall order the public body to pay a civil fine of $500.00. The court may
also award, in addition to any actual or compensatory damages, punitive
damages in the amount of $500.00 to the person seeking the fee reduction.
112
If
the court determines that a public body willfully and intentionally failed to
comply with the FOIA or otherwise acted in bad faith, the court shall order the
public body to pay, in addition to any other award or sanction, a civil fine of not
less than $2,500.00 or more than $7,500.00 for each occurrence.
113
109
MCL 15.240b.
110
MCL 15.240a(4).
111
MCL 15.240a(6).
112
MCL 15.240a(7).
113
MCL 15.240b.
25
OPINIONS AND CASES KEY WORD AND TOPIC INDEX
Administrative Hearings
..............................
34
Attorney Fees and Costs ............... 36, 41, 43, 45,
51, 53, 54, 55, 58, 59, 60, 61
Auditor General ........................................ 29, 30
Banking Code of 1969
...................................
28
Best Efforts Estimate
...................................
33
Board of Education
........................................
28
Booking Photographs ................................ 43, 56
Brown-McNeeley Insurance Fund
...............
27
Bullard-Plawecki Employee Right
to Know Act
................................................
55
Child Protection Law
....................................
27
Civil Service Commission
.............................
33
Computer Software ................................... 34, 40
Copyrighted Materials ............................. 30, 34
County Board of Commissioners
..................
36
County Sheriff Records
.................................
27
Deadlines ................... 31, 32, 34, 40, 41, 50, 57, 58
Department of Consumer and Industry
Services
.......................................................
42
Department of State Police...................... 29, 42
Depositions
....................................................
40
Domestic Violence Escape
............................
59
Eastern Michigan University Foundation
..
49
Electronic Records
........................................
56
Employment and/or Personnel
Records ......................... 28, 29, 39, 51, 56, 58, 60
Exemptions27, 28, 29, 32, 33, 34, 35, 36, 37, 38, 39,
40, 41, 42, 43, 44, 45, 46, 47, 48, 49, 50, 51, 53, 54,
55, 56, 57, 58, 59, 60, 61, 62
Expense Records
...........................................
43
Family Educational Rights and
Privacy Act ............................................ 32, 41
Fees 27, 30, 31, 34, 36, 37, 40, 43, 44, 45, 49, 60, 61
Financial Institutions Bureau
.....................
28
Gun Registration
...........................................
53
Hiring Records
..............................................
59
Home Rule City Charter
...............................
31
Inspection of Records Act
.............................
52
Insurance Bureau
.........................................
30
Insurance Commissioner .......................... 27, 36
Internal Investigation Records ........... 55, 60, 62
Jail Booking Records
.....................................
29
Jurisdiction and Venue Provision
...............
45
Law Enforcement Information Network
.....
28
Law Enforcement Proceedings ................ 56, 57
Mental Health Code
.......................................
49
Michigan Catastrophic Claims
Association
..................................................
41
Michigan Department of Corrections
..........
37
Michigan Election Law
..................................
45
Michigan Employment Relations
Commission
.................................................
52
Michigan High School Athletic
Association, Inc.
..........................................
40
Michigan Vehicle Code
..................................
44
Motor Vehicle Registration Lists
.................
35
Municipal Meetings
.......................................
34
Notice Requirements ...................................... 57
Ongoing Investigations ............................. 44, 47
Open Meetings Act ............................. 27, 29, 31,
35, 38, 43, 52, 56, 58
Policemen and Firemen Retirement
System ................................................... 42, 43
President’s Council of State Colleges and
Universities
.................................................
33
Presidential Primaries
..................................
57
Primarily Funded ..................................... 51, 59
Prison Disciplinary Hearing
.........................
62
Prisoner Mental Health Records
..................
55
Prisoner Requests
..........................................
57
Privacy .................. 38, 39, 41, 42, 43, 44, 46, 49, 51,
52, 53, 54, 55, 56, 58, 60
Private Nonprofit Corporation
......................
29
Privilege
Attorney Work Product ......................................... 53
Attorney-Client Privilege .......................... 46, 48, 53
Deliberative Process Privilege .............................. 62
Physician-Patient Privilege ............................. 33, 60
Public body
.....................................................
27
Public Employment Relations Act .......... 49, 52
Public Health Code
........................................
53
Public Officials and Employees .......... 29, 39, 42
Public records ................................................. 27
Public Schools ................................................. 57
Punitive Damages
..........................................
49
Qualifications Advisory Committee
.............
29
Register of Deeds
...........................................
28
Regulations
.....................................................
36
Request Requirements ................... 34, 40, 47, 50
School Boards ................................................. 39
Secretary of State
..........................................
32
26
Sheriff’s Promotional Test ............................. 28
Single Member Bodies
..................................
27
Social Welfare Act
.........................................
27
State Board of Law Examiners ...................... 61
State Ethics Board
........................................
28
State Legislators
...........................................
29
State Tenure Commission
............................
45
State Universities
.........................................
34
STATIS Computer System
...........................
29
Student Information ............................ 28, 35, 56
Summer Resort Owners Corporation Act
....
30
Tax Information
.............................................
37
Teacher Tenure Act
.......................................
45
Township
........................................................
28
Trade Secret
...................................................
38
Transcripts and Abstracts of Records Act
...
61
Urban Redevelopment Corporations Law
...
31
Voted Ballots
..................................................
32
Water Rates
....................................................
40
27
ATTORNEY GENERAL OPINIONS
There are numerous Opinions of the Attorney General (OAG) that explain various
applications of the FOIA. While these opinions are binding on state agencies, they are
not binding on the courts or on local units of government. Attorney General opinions
can be accessed on the Attorney General’s website. Below, in chronological order, is a
list of opinions.
Note:
This is not an exhaustive list and that some of the opinions may have been
affected by statutory changes or subsequent case law.
•
Unless exempt from disclosure by law, records of the Brown-McNeeley
insurance fund are public records. OAG, 1977–1978, No 5156, p 66 (March
24, 1977).
•
The FOIA’s definition of public body includes single member bodies.
OAG, 1977-1978, No 5183-A, p 97 (April 18, 1977).
•
Records subject to the confidentiality provisions of the Child Protection
Law, MCL 722.621et seq; are exempt from disclosure under sections
13(1)(a) and 13(1)(d) of the FOIA. OAG, 1977-1978, No 5297, p 430 (April
28, 1978).
•
The office of county sheriff is subject to the provisions of the FOIA.
OAG, 1977-1978, No 5419, p 758 (December 29, 1978).
•
Certain records protected from disclosure by the Social Welfare Act,
are exempt from disclosure under section 13(1)(d) of the FOIA, which
exempts records that are exempt from disclosure by statute. OAG, 1979-
1980, No 5436, p 31 (February 1, 1979).
•
The Insurance Commissioner is required to charge a rate for making
copies of public records requested in accordance with the FOIA. OAG,
1979-1980, No 5465, p 104 (March 26,1979).
•
File photographs routinely taken of criminal suspects by law enforcement
agencies are public records as defined by the FOIA. To the extent that the
release of a person’s photograph is a clearly unwarranted invasion of
personal privacy, a public body may refuse to permit a person to inspect or
make copies of the photograph. OAG, 1979-1980, No 5593, p 468 (November
14, 1979).
•
The exemption contained in section 13(1)(n) [now section 13(1)(m)] of the
FOIA for communications and notes within a public body or between public
bodies of an advisory nature does not constitute an exemption for purposes
of the Open Meetings Act in view of a specific statutory provision that
28
states that this exemption does not constitute an exemption for the
purposes of section 8(h) of the Open Meetings Act. OAG, 1979-1980, No
5608, p 496 (December 17, 1979).
•
The meetings of a board of education expelling a student from school
must list a student’s name. Unedited minutes must be furnished to the
public on request in accordance with law. OAG, 1979-1980, No 5632, p 563
(January 24, 1980).
•
The confidentiality mandated by the Banking Code of 1969 is not
limited to facts and information furnished by state-chartered banks but
applies to all facts and information received by the Financial Institutions
Bureau. Such facts and information are not subject to disclosure pursuant
to the FOIA. OAG, 1979-1980, No 5725, p 842 (June 23, 1980).
•
Rules promulgated by the State Ethics Board require that records
and files concerning dismissed complaints or terminated investigations
be suppressed or expunged. This rule is consistent with the FOIA’s
privacy exemption since records would be suppressed only if a
determination was made that a violation was unfounded. OAG, 1979-
1980, No 5760, p 935 (August 26, 1980).
•
Since the Law Enforcement Information Network Policy Council does
not receive and maintain records in the LIEN system, it does not possess
copies of records and as a result has no material to furnish persons seeking
such records under the FOIA. OAG, 1979-1980, No 5797, p 1038 (October 14,
1980).
•
A public body is not required to disclose both the questions and
answers of a sheriff’s promotional test unless the public body finds it in
the public interest to disclose both the test questions and answers. OAG,
1979-1980, No 5832, p 1125 (December 18, 1980).
•
Employment records disclosing salary history and employment dates are
subject to disclosure under the FOIA. OAG, 1981-1982, No 6019, p 507
(December 29, 1981).
•
Copies of receipts maintained by a register of deeds for amounts paid as
real estate transfer taxes fall within the mandatory exemption from
disclosure established by 1966 PA 134, section 11b, and are exempt from
disclosure under the FOIA. OAG, 1981-1982, No 6023, p 518 (January 8,
1982).
•
A township is not required to enact its own Freedom of Information Act
in order to comply with the state FOIA. OAG, 1981-1982, No 6042, p 584
(February 25, 1982).
29
•
A school district must furnish the records of a student upon request of
another school district in which the student is enrolled as incidental to the
operation of free public elementary and secondary schools required by the
Michigan Constitution 1963, art 8, § 2, and is precluded from withholding the
records because the student or his or her parents is indebted to the school
district possessing the records for fees or other charges. OAG, 1981-1982, No
6064, p 641 (April 30, 1982).
•
Records of a public body showing the number of days a public employee is
absent from work are not exempt from disclosure under the FOIA. OAG,
1981-1982, No 6087, p 698 (July 28, 1982).
•
The FOIA does not require a sheriff to furnish jail booking records to a
private security firm if the sheriff determines disclosure would constitute a
clearly unwarranted invasion of privacy. OAG, 1985-1986, No 6389, p 374
(September 24, 1986).
•
State legislators are exempt from the FOIA. OAG, 1985-1986, No 6390,
p 375 (September 26, 1986).
•
Surveys, comments, and other information received by the
Qualifications Advisory Committee in its performance evaluation of worker’s
compensation magistrates are confidential by statute and, therefore, are
exempt from disclosure under the FOIA. OAG, 1987-1988, No 6504, p 295
(March 4, 1988).
•
The FOIA does not apply to a private nonprofit corporation. OAG,
1989-1990, No 6563, p 27 (January 26, 1989).
•
While the personal files of the Auditor General are exempt from
disclosure, the general files, records, and final audit reports prepared by the
Auditor General’s staff are subject to FOIA and must be disclosed, except
where a portion is specifically exempted by statute. OAG, 1989-1990, No
6613, p 299 (March 14, 1990).
•
A public officer’s or employee’s routine performance evaluation is not
exempt from disclosure, even when the evaluation is discussed in a closed
meeting held pursuant to the Open Meetings Act. OAG, 1989-1990, No 6668,
p 409 (November 28, 1990).
•
The records maintained by the Department of State Police on the
STATIS computer system meet the definition of a “public record” set forth
in section 2(c) [now section 2(i)] of the FOIA. Therefore, that Department
must search the STATIS computer system when it responds to a FOIA
request. It must also allow the examination of, or produce copies of, all
documents it finds unless the records sought fall within one or more of the
30
specific exemptions set forth in section 13 of the FOIA. Although
participating law enforcement agencies other than the Department of State
Police have remote computer terminals that allow them access to the
STATIS computer, those records are not writings in the possession of those
agencies within the meaning of the FOIA, section 2(c) and (e) [now section
2(i) and (l)] unless those records are saved to a computer storage device or
printed by the participating agency. Thus, law enforcement agencies other
than the Department of State Police are not obligated under the FOIA to
search the STATIS system for records except for those records that they
contributed to that system. OAG, 1993-1994, No 6820, p 196 (October 11,
1994).
•
Section 4(2) [now section 4(8)] of the FOIA permits a public body to
charge a deposit of not more than one-half of the projected total fee if that
fee exceeds $50.00. A public body may establish a fee in advance of
compiling the records responsive to a request under the FOIA so long as the
fee represents the actual cost of responding to the request based on prior
experience and it is calculated in accordance with section 4 of the FOIA.
OAG, 1995-1996, No 6923, p 224 (October 23, 1996).
•
A private, voluntary unincorporated association of lake property owners
is not a public body subject to the FOIA. A corporation formed under the
Summer Resort Owners Corporation Act, 1929 PA 137, MCL 455.201 et seq,
is a public body subject to the provisions of the FOIA. OAG, 1997-1998, No
6942, p 40 (July 3, 1997).
•
The state Insurance Bureau, in response to a request made under the
FOIA, 1976 PA 442, must provide copies of copyrighted manuals of rules
and rates that are in its possession and are required by law to be filed by
insurers with the bureau, without first obtaining the permission of the
copyright holder. OAG, 1997-1998, No 6965, p 93 (January 16, 1998).
•
Under the FOIA, the Auditor General may, in the discharge of his
duties to audit the state and its departments, access nonexempt public
records of local units of government under the FOIA. OAG, 1997-1998, No
6970, p 108 (January 28, 1998).
•
A public body may require that its fees be paid in full prior to actual
delivery of the copies. However, a public body may not refuse to process a
subsequent FOIA request on the ground that the requester failed to pay fees
charged for a prior FOIA request.
A public body may refuse to process a FOIA request if the requester fails to pay
a good faith deposit properly requested by the public body pursuant to section
4(2) [now section 4(8)] of the FOIA.
31
Although the FOIA does not specify a limitations period within which a
public body must commence a lawsuit to collect fees charged for complying
with a records request, the 6-year limitations period applicable to contract
claims governs such a cause of action. OAG, 1997- 1998, No 6977, p 131
(April 1, 1998).
•
When establishing fees chargeable under the FOIA, a public body may
include in the calculation of labor costs, the fringe benefits paid to employees
[now limited to no more than 50% of the applicable labor charge amount to
cover or partially cover the cost of fringe benefits, MCL 15.234(2)]. OAG
1999-2000, No 7017, p 27 (May 13, 1999).
•
An urban redevelopment corporation organized under the Urban
Redevelopment Corporations Law is a public body subject to the Open
Meetings Act and FOIA. OAG, 1999-2000, No 7066, p 156 (November 7,
2000).
•
The FOIA permits a public body to charge a fee for the actual
incremental cost of duplicating or publishing a record, including labor
directly attributable to those tasks, even when the labor is performed by a
public employee during business hours and does not add extra costs to the
public body’s normal budget.
Under section 4(3) of the FOIA, a public body may not charge a fee for the
cost of its search, examination, review, and the deletion and separation of
exempt from nonexempt information, unless failure to charge a fee would
result in unreasonably high costs to the public body. This fee limitation,
however, does not apply to a public body’s costs incurred in the necessary
copying or publication of a public record for inspection, or for providing a
copy of a public record and mailing the copy.
The phrase “unreasonably high costs,” as used in section 4(3) of the FOIA,
prohibits a public body from charging a fee for the costs of search,
examination, review, and deletion and separation of exempt from nonexempt
information unless the costs incurred by a public body for those activities in
the particular instance would be excessive and beyond the normal or usual
amount for those services. OAG, 2001-2002, No 7083, p 32 (June 7, 2001).
•
The board of trustees of a retirement system established and
administered by a home rule city charter is a public body subject to the Open
Meetings Act and the FOIA. OAG 2001-2002, No 7087, p 45 (August 21,
2001).
•
Under the FOIA, a public body may not impose a more restrictive
schedule for access to its public records for certain persons than it does for
32
the public generally, based solely upon the purpose for which the records are
sought. OAG, 2001-2002, No 7095, p 64 (December 6, 2001).
•
Under section 5 of the FOIA, the five business days within which a
public body must respond to a request for public records means five
consecutive weekdays, other than Saturdays, Sundays, or legal holidays,
regardless of when the particular public body is open for public business.
OAG, 2005-2006, No 7172, p 20 (March 17, 2005).
•
In complying with its obligations under the OMA to provide the public
access to meeting minutes, the public body must also discharge its other
public functions and duties. To that end, a rule of reasonableness is
applicable in providing a public body an adequate opportunity to meet the
request to inspect minutes. A public body must make at least a copy of its
minutes available for inspection as provided in MCL 15.269(1) of the OMA. A
public body must also avoid undue delay in meeting a request and is
obligated to comply with the response periods of the FOIA, and the specific
provisions of the OMA, such as section 9(3) for the proposed and approved
minutes. But to protect the integrity of its official records, and to allow
sufficient time to retrieve such records, if necessary, it may be reasonable for
a public body to require advance notice of, and supervision of, the inspection
of a record copy of meeting minutes. OAG, 2009-2010, No 7244, p 122 (March
3, 2010).
•
Photographs or video recordings of students participating in school
activities will qualify as education records for purposes of the Family
Educational Rights and Privacy Act, 20 USC 1232g, and that Act’s
prohibition on the release of such records, if they contain information
directly related to a student, and are maintained by the school district.
A school or district may designate photographs and video recordings of
students engaged in school activities as a category of “directory information”
that may be disclosed without written consent under the Family Educational
Rights and Privacy Act, 20 USC 1232g, as long as the school or district
provides the required notice to parents that such media will be considered
directory information, and further provides parents with a reasonable
opportunity to opt out or deny consent to the release of such information.
A school or district has no legal responsibility under the Family Educational
Rights and Privacy Act, 20 USC 1232g, with respect to photographs or video
recordings of students participating in school activities taken by a person not
acting on behalf of the school or district, unless the photographs and video
recordings are “maintained” by the school or district under 20 USC
1232g(a)(4)(A)(ii). OAG, 2009-2010, No 7245, p 125 (March 29, 2010).
33
•
Voted ballots, which are not traceable to the individual voter, are public
records subject to disclosure under the FOIA. The Secretary of State, in the
role as the Chief Elections Officer, or the Director of Elections through the
authority vested in that office, may exercise supervisory authority over local
elections officials responding to a FOIA request for voted ballots by issuing
directions for the review of the ballots in order to protect their physical
integrity and the security of the voted ballots.
A person must be allowed to inspect or examine voted ballots, which are not
traceable to the individual voter, and to receive copies of the ballots subject to
reasonable restrictions prescribed by the Secretary of State. The public body
may charge a fee for the copying of the voted ballots as provided for in section
4 of the FOIA.
A person requesting access to voted ballots, which are not traceable to the
individual voter is entitled to a response from a public body granting or
denying the request within 5 to 15 business days. However, the public body in
possession of the ballots may not provide access to the ballots for inspection or
copying until 30 days after certification of the election by the relevant board
of canvassers. OAG 2009-2010, No 7247, p 134 (May 13, 2010).
•
The FOIA does not impose a specific time by which a public body must
fulfill a request for public records that it has granted. The public body is
guided by, but is not bound by, the “best efforts estimate“ the public body
must provide under subsection 4(8) of the FOIA.
The “best efforts estimate” must be a calculation that contemplates the public
body working diligently to fulfill its obligation to produce the records to the
requester; it must be comparable to what a reasonable person in the same
circumstances as the public body would provide for fulfilling a similar public
records request; and it must be made in good faith, that is, it must be made
honestly and without the intention to defraud or delay the requester. OAG
2017-2018, No 7300 (December 12, 2017).
•
The following responses, among others not included here, to specific
inquiries are found in OAG, 1979-1980, No 5500 (July 23, 1979):
A summary of the FOIA. p 255.
A government agency does not fall within the meaning of
“person” for purposes of obtaining information under the FOIA.
p 261.
The Civil Service Commission is subject to the provisions of the
Freedom of Information Act. p 261.
34
Since the President’s Council of State Colleges and Universities
is wholly funded by state universities and colleges, it is a public
body as defined by the FOIA. p 262.
A board of trustees of a county hospital may refuse to make
available records of its proceedings or reports received and
records compiled that would constitute a clearly unwarranted
invasion of an individual’s privacy under section 13(1)(a) [of the
FOIA]; involve disclosure that would violate physician-patient
or psychologist-patient privilege under section 13(1)(i) [now
section 13(1)(h)]; or involve disclosure of medical, counseling or
psychological factor evaluations concerning a named individual
under section 13(1)(m) [now section13(l)(l)]. p 263.
Transcripts of depositions taken in the course of an
administrative hearing are subject to disclosure to a person
who was not a party to the proceeding, as there is no specific
exemption in section 13(1) or any other statute that exempts a
deposition or a document referring to the deposition from
disclosure. These documents may, however, contain statements
that are exempt from disclosure and therefore, pursuant to
section 14, where a person who is not a party to the proceeding
requests a copy, it will be necessary to separate the exempt
material and make only the nonexempt records available.
p 263.
Stenographer’s notes or the tape recordings or dictaphone
records of a municipal meeting used to prepare minutes are
public records under the Act and must be made available to the
public. p 264.
Computer software developed by and in the possession of a
public body is not a public record. p 264.
Although a state university must release a report of the
performance of its official functions in its files, regardless of
who prepared it, if a report prepared by an outside agency is
retained only by the private agency, it is not subject to public
disclosure. p 265.
Copyrighted materials are not subject to the Act. p 266. [But
see Blue Cross/Blue Shield v Insurance Bureau, 104 Mich App
113 (1981).]
A request for data that refers only to an extensive period of
time and contains no other reference by which the public record
35
may be found does not comply with the requirement of section 3
that the request describe the public record sufficiently to enable
the public body to find it. p 268.
If a public body maintains a file of the names of employees that
it has fired or suspended over a certain designated period of
time, it must disclose the list if requested. p 268.
A public body may charge a fee for providing a copy of a public
record. p 268.
The five-business day response provision begins the day after
the public body has received the request sufficiently describing
the public record. If the request does not contain sufficient
information describing the public record, it may be denied for
that reason. Subsequently, if additional information is provided
that sufficiently describes the public record, the period within
which the response must be made dates from the time that the
additional information is received. p 269.
A school board may meet in closed session pursuant to the
Open Meetings Act to consider matters that are exempt from
disclosure under the FOIA. p 270.
The names and addresses of students may be released unless
the parent of the student or the student has informed the
institution in writing that such information should not be
released. p 281.
A law enforcement agency may refuse to release the name of a
person who has been arrested but not charged, in a complaint
or information, with the commission of a crime. p 282.
Since motor vehicle registration lists have not been declared to
be confidential, they are required to be open to public
inspection. p 300.
36
PUBLISHED COURT OPINIONS
Michigan courts have rendered decisions that, when “reported,” become
precedent and are the law of the state until changed by a higher court or by
legislative changes. The following list contains decisions, in alphabetical order,
of Michigan’s appellate courts regarding FOIA. Court opinions may be obtained
from law libraries or from the courts of record at a nominal fee.
Note:
This is not an exhaustive list and, again, some of the opinions may have
been affected by statutory changes or subsequent case law. Also note: In May
2000, the Michigan Legislature re-lettered subsection 13(1) of the FOIA.
Changes are made below.
ACLU v Calhoun Cnty Sheriff’s Office,
Mich
(2022). A regulation
cannot serve as the basis for exempting from disclosure public records under
MCL 15.243(1)(d) because that exemption applies to “records or information
specifically described and exempted from disclosure by statute” and a regulation
is not a statute, thus overruling Soave v Michigan Dep’t of Education, 139 Mich
App 99 (1984), and Michigan Council of Trout Unlimited v Michigan Dep’t of
Military Affairs, 213 Mich App 203 (1995).
Alpena Title, Inc v Alpena County, 84 Mich App 308; 269 NW2d 578 (1978). A
county board of commissioners may charge a reasonable fee for access to and
the copying of county tract index information in accordance with the statute
regarding fees for the inspection of such records. However, the Insurance
Commissioner is required to charge a rate for making copies of public records
requested in accordance with the FOIA.
Amberg v City of Dearborn 497 Mich 28; 859 NW2d 674 (2014). The court
determined that video surveillance recordings created by a private entity that
came into possession of the public body in the performance of an official function
supported a finding that the recordings were public records, where the public
body received copies as relevant evidence in a pending misdemeanor criminal
matter. For a plaintiff in a FOIA action to prevail entitling plaintiff to fees and
costs, the action must be reasonably necessary to compel the disclosure and the
action must have a substantial causative effect on the delivery of the
information.
Arabo v Michigan Gaming Control Bd, 310 Mich App 370; 872 NW2d 223
(2015). There is no requirement under the FOIA that a public body, in
responding to a request, must restate the request or specify the information
sought by the requester. A public body may not simply choose how much it will
37
charge for records requested. Further, FOIA does not provide for money
damages or confer a remedy based on a violation of provisions allowing a
government body to charge a fee for records. In response to a FOIA request, the
public body is not required to make a compilation, summary, or report of
information, or create a new public record. In camera inspection of Gaming
Control Board records was not warranted in requester’s FOIA action against the
Board because allowing counsel to view responsive documents in camera would
have required the Board to effectively process the request. Because requester
failed to pay the deposit regarding the FOIA request, the Board was not
obligated to make a final determination regarding the request. Furthermore,
retrieving and examining the information, without receipt of the required fee
assessed by the Board, would have resulted in undue burden and expense for
the Board and would either cause exempt materials to be divulged or cause the
Board to incur the additional expense of ascertaining and redacting exempt
materials without first receiving the required payment.
Baker, PC v City of Westland, 245 Mich App 90; 627 NW2d 27 (2001). Accident
reports containing the names, addresses, injury codes, and accident dates for
injured and deceased accident victims do not have to be released when requested
under the FOIA. Involvement in an automobile accident is an intimate detail of a
person’s private life. Disclosure of the information would not contribute
significantly to the public’s understanding of the operations or activities of the
government and, therefore, would be a clearly unwarranted invasion of privacy.
The FOIA’s privacy exemption may be applied to deceased private citizens and
their families where there is no public interest in disclosure.
Ballard v Dep’t of Corrections, 122 Mich App 123; 332 NW2d 435 (1982). A film
made by the Department of Corrections (DOC) showing a prisoner being forcibly
removed from his or her prison cell is a public record and must be disclosed.
Exemption asserted by the DOC did not outweigh the public interest in
disclosure.
Bechtel Power Corp v Dep’t of Treasury, 128 Mich App 324; 340 NW2d 297
(1983). Tax information may be protected against disclosure under 13(1)(a) and
13(1)(d) of the FOIA.
Bitterman v Village of Oakley, 309 Mich App 53; 88 NW2d 642 (2015). Under
the FOIA’s privacy exemption, information is of a personal nature if it is
intimate, embarrassing, private, or confidential. In the absence of special
circumstances, an individual’s name is not information of a personal nature for
purposes of FOIA’s privacy exemption. If private information is included in the
records of a public body, the court must determine whether the information is
exempt because it relates to an individual’s private life according to the
38
community standards, customs, and views. Courts must ask whether the
requested information would shed light on the governmental agency’s conduct
or further the core purpose of FOIA, and in all but a limited number of
circumstances, the public’s interest in governmental accountability prevails
over an individual’s expectation of privacy.
Names of donors to defendant’s police fund were not information of a personal
nature. The fact that the donors used private assets to contribute to the police
fund did not necessarily make the information of a personal nature. Plaintiff did
not seek disclosure of the amount of each donor’s contribution, only the names of
the donors. The private funds were donated for public use and donations to the
police fund were not used solely to fund the police department. Village council
meeting minutes reflected that large amounts were transferred from the police
fund to cover other governmental operating expenses, and disclosure of the
names of donors would serve a core FOIA purpose by facilitating the public’s
access to information regarding the affairs of its local government.
Blue Cross/Blue Shield v Insurance Bureau, 104 Mich App 113; 304 NW2d 499
(1981). A decision to deny disclosure of exempt records is committed to discretion
of agency and should not be disturbed unless abuse of discretion is found. Trade
secret exemption does not apply to information required by law or as a condition
of receiving a government contract, license, or benefit.
Booth Newspapers, Inc v Kalamazoo School District, 181 Mich App 752; 450
NW2d 286 (1989). The trial court appropriately ordered the release of tenure
charges and a settlement agreement concerning allegations of sexual
misconduct against an unmarried teacher in redacted form. The records were
redacted to prevent the identity of the teacher and the students involved from
being disclosed, to protect their privacy. The FOIA confers discretion upon a
court to award an appropriate portion of the reasonable attorney fees incurred
by a party that has prevailed in part. When a plaintiff prevails only as to a
portion of the request, the award of fees should be fairly allocable to that
portion.
Booth Newspapers, Inc v Kent County Treasurer, 175 Mich App 523; 438 NW2d
317 (1989). Tax records indicating the monthly or quarterly tax payments made
by individual hotels and motels under a county hotel/motel tax do not fall
within the FOIA’s privacy exemption.
Booth Newspapers, Inc v Regents of University of Michigan, 93 Mich App 100;
286 NW2d 55 (1979). The written opinion of a public body’s attorney is exempt
from disclosure under the FOIA and may serve as a basis for holding a closed
session meeting under the Open Meetings Act.
39
Booth Newspapers, Inc v University of Michigan Board of Regents, 444 Mich
211; 507 NW2d 422 (1993). To exempt information under section 13(1)(a) of the
FOIA, information must be of a “personal nature,” and disclosure of that
information must constitute a “clearly unwarranted” invasion of privacy. Travel
expense records of members of a public body do not constitute “records of a
personal nature.” The privacy exemption does not permit the withholding of
information that conceivably could lead to the revelation of personal
information. Therefore, a public body may not withhold travel expense records
because their disclosure might lead to information concerning the candidates
interviewed by board members.
Bradley v Saranac Community Schools Board of Education, Lansing Ass’n of
School Admr’s v Lansing School District, 455 Mich 285; 565 NW2d 650 (1997).
The FOIA does not have a specific exemption for personnel records. Thus, the
personnel records of non-law enforcement public employees generally are
available to the public. Information that falls within one of the exemptions of
the FOIA may be redacted.
The privacy exemption under section 13(1)(a) of the FOIA consists of two
elements, both of which must be met in order for an exemption to apply. First,
the information must be of a “personal nature.” Second, the disclosure must be a
“clearly unwarranted invasion of privacy.”
Performance appraisals, disciplinary actions, and complaints relating to
employees’ accomplishments in their public jobs do not reveal intimate or
embarrassing details of their private lives and, therefore, they are not records of
a “personal nature.”
Performance evaluations of public employees are not counseling evaluations
protected from disclosure by section 13(1)(l) of the FOIA.
Section 13(1)(n) (now section 13(1)(m)) of the FOIA provides an exemption for
communications passing within or between public bodies. Documents in the
possession of a school district prepared by parents are not within the scope of
this exemption. Further, the exemption must be asserted by a public body
rather than by a private individual.
Bredemeier v Kentwood Board of Education, 95 Mich App 767; 291 NW2d 199
(1980). The FOIA does not require a school board to record the purpose of the
meetings in question, but if it is recorded, it must be disclosed. Attorney fees,
costs, and disbursements are awarded to a prevailing party under the FOIA.
However, to prevail, a party must show at a minimum that bringing a court
action was necessary and had a causative effect on delivery of the information.
40
Lack of court-ordered disclosure precludes an award of punitive damages under
the FOIA.
Breighner v Michigan High School Athletic Ass’n, Inc, 471 Mich 217; 683 NW2d
639 (2004). The Michigan High School Athletic Association, Inc. (MHSAA) is not
a “public body” within the meaning of the FOIA that is funded “by or through” a
governmental authority, rather it is an independent, nonprofit corporation
primarily funded through its own activities. Therefore, the MHSAA is not
subject to the FOIA’s provisions.
Bukowski v City of Detroit, 248 Mich 268; 732 NW2d 75 (2007). Exemption for
frank communications in section 13(1)(m) of the FOIA applies to notes or
communications that were preliminary to a final agency determination at the
time they were created, even if they were no longer preliminary at the time of
the FOIA request.
Capitol Information Ass’n v Ann Arbor Police Dep’t, 138 Mich App 655; 360
NW2d 262 (1984). Plaintiff’s request, seeking “all correspondence” between local
police department and “all federal law enforcement/investigative” agencies, was
“absurdly overbroad” and failed to sufficiently identify specific records as
required by section 3(1) of the FOIA.
Cashel v Regents of the University of Michigan, 141 Mich App 541; 367 NW2d
841 (1985). Where a person seeking to inspect records will take more than two
weeks to complete inspection, he or she may be assessed labor costs incurred by
a public body to supervise his or her inspection.
Cashel v Smith, 117 Mich App 405; 324 NW2d 336 (1982). Depositions may
sometimes be appropriate in FOIA cases, but they must be justified. The
Legislature intended that the flow of information from public bodies and
persons should not be impeded by long court process.
City of Warren v City of Detroit, 261 Mich App 165; 680 NW2d 57 (2004). The
computer software formula used to set water rates is merely computer-stored
information or data and, thus, is a public record subject to disclosure under the
FOIA. The FOIA’s exception of “software” would allow for nondisclosure of the
set of computer statements or instructions that are used to utilize the formula
and data; however, the formula itself is distinct information separate from the
software.
Clerical-Technical Union of MSU v MSU Board of Trustees, 190 Mich App 300;
475 NW2d 373 (1991). The home addresses of donors to Michigan State
41
University are information of a personal nature, the disclosure of which would
constitute a clearly unwarranted invasion of privacy.
Coalition Protecting Auto No-Fault v Michigan Catastrophic Claims Ass’n,
317 Mich App 1; 894 NW 2d 758 (2016). The Michigan Catastrophic Claims
Association is a public body under the FOIA, but its records are exempt from
disclosure under MCL 500.134(4) and (6)(c), and thus, recognized as exempt
under section 13(1)(d) of the FOIA.
Coblentz v City of Novi, 475 Mich 558; 719 NW2d 73 (2006). Defendant was not
required to produce certain records described in plaintiff’s FOIA request where
defendant’s uncontroverted affidavit stated that records did not exist. Plaintiff
was entitled to the non-disclosed exhibits that accompanied a settlement
agreement between defendant and a third party, where plaintiff’s FOIA request
described the records sufficiently to enable the defendant to find the records and
where no exemption from disclosure applied. Plaintiff also was entitled to
records exempted by defendant under section 13(1)(f) of the FOIA because the
defendant did not meet the requirements of 13(1)(f)(iii); it did not record a
description of the records in a central place within a reasonable time after the
records came into defendant’s possession. Fees to recoup the labor costs
incurred in processing FOIA requests do not include the cost of independent
contractors.
Connoisseur Communication of Flint v University of Michigan, 230 Mich App
732; 584 NW2d 647 (1998). The University of Michigan properly denied a FOIA
request for the vehicle records of a student athlete. The information was
protected pursuant to the Family Educational Rights and Privacy Act (FERPA)
and, therefore, exempt from disclosure under the FOIA (now section 13(2) of the
act).
Cramer v Village of Oakley, 316 Mich App 60; 890 NW2d 895 (2016), part III of
the opinion vacated as moot by Supreme Court April 5, 2017 order. A public body
must respond to a request for public records within the statutory timeframe
contained in the FOIA by granting or denying the request. The public body,
however, is not required to produce the requested documents within that time
frame. The words “granted” and “fulfilled” with regard to a FOIA request are
not synonymous. Nothing precludes a plaintiff from filing suit “if faced with an
inordinate delay in the production of the requested records.”
Dawkins v Dep’t of Civil Service, 130 Mich App 669; 344 NW2d 43 (1983). If a
plaintiff in a FOIA case prevails only in part, he/she may be awarded either all
of his/her court costs and attorney fees or only that portion fairly allocable to
the successful portion of the case. The fact that the defendant’s refusal to
42
disclose the records was made in good faith has no bearing on the plaintiff’s
right to recover these costs.
DeMaria Building Co, Inc, v Dep’t of Management & Budget, 159 Mich App 729;
407 NW2d 72 (1987). The exemption found in section 13(1)(n) (now section
13(1)(m)) of the FOIA, for communications and notes within a public body or
between public bodies, does not apply to an outside consultant’s report to a
public body.
Detroit Free Press v Dep’t of Consumer & Industry Services, 246 Mich App 311;
631 NW2d 769 (2001). Consumer complaints filed with the Department of
Consumer and Industry Services against property insurers and health insurers
contain information of a personal nature. Disclosure of the names and addresses
of the complainants may be withheld, when requested pursuant to FOIA,
because disclosure of the information would constitute a clearly unwarranted
invasion of the individual’s privacy. Other information in the complaints
regarding how well the agency is complying with its statutory function should,
however, be disclosed
Densmore v Dep’t of Corrections, 203 Mich App 363; 512 NW2d 72 (1994). A
public body does not need to provide additional copies of records it has already
provided unless the requestor can demonstrate why the copy already provided
was not sufficient.
Detroit Free Press v City of Southfield, 269 Mich App 275; 713 NW2d 28 (2005).
The pension income amounts of police and firefighter pension recipients reflect
specific governmental decisions regarding retirees’ continuing compensation for
public service. Therefore, the pension amounts are more comparable to public
salaries than to private assets and do not constitute information exempt from
disclosure under the FOIA because it is not information of a personal nature
and the public interest in disclosure outweighs the public interest in
nondisclosure.
Detroit Free Press v City of Warren, 250 Mich App 164; 645 NW2d 71 (2002).
The names of public officials and employees associated with information
concerning grand jury proceedings constitute information concerning matters of
legitimate public concern. It is not information of a personal nature that is
exempt from disclosure under section 13(1)(a) of the FOIA.
Detroit Free Press v Dep’t of State Police, 243 Mich App 218; 622 NW2d 313
(2000). The State Police is not required to disclose information regarding state
legislators who applied for concealed weapons permits. Legislators who apply
for a concealed weapons permit are exercising a right guaranteed to all. The fact
43
that a person has requested and/or secured permission to carry a concealed
weapon is an intimate and potentially embarrassing detail of one’s private life.
Disclosure of the information would not contribute significantly to the public’s
understanding of the operations or activities of the government and, therefore,
would be exempt from disclosure under 13(1)(a) as a clearly unwarranted
invasion of privacy.
Detroit Free Press, Inc v Dep’t of Attorney General, 271 Mich App 418; 722 NW2d
277 (2006). Plaintiff was not a “prevailing party” as that term is defined under
the FOIA where the trial court did not order disclosure of any public records and
the dispute centered entirely on the FOIA processing fee charged for copies of
records. Therefore, plaintiff was not entitled to the attorney fees and costs
awarded by the trial court under section 10(6) of the FOIA.
Detroit Free Press, Inc v Oakland County Sheriff, 164 Mich App 656; 418 NW2d
124 (1987). Booking photographs of persons arrested, charged with felonies, and
awaiting trial are not protected from release as an unwarranted invasion of
personal privacy.
Detroit News, Inc v Detroit, 185 Mich App 296; 460 NW2d 312 (1990). The
minutes of a closed city council meeting held in violation of the Open Meetings
Act, are public records and are available upon request under the FOIA. Oral
opinions of an attorney are not “public records” under the FOIA and cannot be
used to authorize holding a closed session under the OMA.
Detroit News, Inc v Detroit, 204 Mich App 720; 516 NW2d 151 (1994). Telephone
bills paid by a public body constitute expense records of public officials and
employees and are “public records” under the FOIA.
Detroit News, Inc v Policeman and Firemen Retirement Sys of the City of Detroit,
252 Mich App 59; 651 NW2d 127 (2002). The Policemen and Firemen
Retirement System is a public body because it is a body that is “created by state
or local authority or which is primarily funded by or through state or local
authority.”
Eastly v University of Michigan, 178 Mich App 723; 444 NW2d 820 (1989). A
public body must have in its possession or control a copy of the requested
document before it can be produced or before a court can order its production.
Ellison v Dep’t of State, 320 Mich App 1; 906 NW2d 221 (2017). Plaintiff made a
FOIA request for defendant’s database. While the information sought is a public
record under the FOIA, the FOIA’s fee provisions do not “apply to public records
prepared under an act or statute specifically authorizing the sale of those public
44
records to the public or if the amount of the fee for providing a copy of the public
record is otherwise specifically provided by an act or statute.” MCL 15.240(10).
The Michigan Vehicle Code provides that an entire computerized central file or
other file of records maintained under this act shall not be provided to a
nongovernmental person or entity, unless the person or entity pays the
prescribed fee for each individual record contained within the computerized file.
MCL 257.208b(9). It was undisputed that plaintiff did not pay the required
amount. Thus, the trial court correctly concluded that defendant had grounds to
deny plaintiff's FOIA request because plaintiff had not paid the statutorily
required fee.
ESPN, Inc v Michigan State Univ, 311 Mich App 662; 876 NW2d 593 (2015).
The privacy exemption of FOIA has two prongs that the information sought to
be withheld from disclosure must satisfy. First, the information must be of
personal nature. Second, it must be the case that the public disclosure of that
information would constitute a clearly unwarranted invasion of an individual’s
privacy. With respect to the second prong, a court must balance the public
interest in disclosure against the interest the Legislature intended the
exemption to protect. The relevant public interest to be weighed in this balance
is the extent to which disclosure would serve the core purpose of the FOIA,
which is contributing significantly to public understanding of the operations or
activities of the government.
Evening News Ass’n v City of Troy, 417 Mich 481; 339 NW2d 421 (1983). A
general claim that records are involved in an ongoing criminal investigation and
that their disclosure would “interfere with law enforcement proceedings” is not
sufficient to sustain an exemption under section 13(1)(b) of the FOIA. A public
body must indicate factually and in detail how a particular document or
category of documents satisfies the exemption; mere conclusory allegations are
not sufficient.
Farrell v Detroit, 209 Mich App 7; 530 NW2d 105 (1995). Computer records are
public records that are subject to disclosure pursuant to the FOIA. A public
body is required to provide public records in the form requested, rather than
just providing the information contained in the public records. Providing a
computer printout of the information contained on a computer tape does not
satisfy a request for the computer tape itself.
Favors v Dep’t of Corrections, 192 Mich App 131; 480 NW2d 604 (1991). The
form used in determining whether a prisoner should be awarded disciplinary
credits was exempt from disclosure under section 13(1)(n) (now section 13(1)(m))
of the FOIA in that it covered other than purely factual materials, was advisory
45
in nature and preliminary to final agency determination of policy or action. The
public interest in encouraging frank communications within the Department of
Corrections (DOC) clearly outweighed the public interest in disclosure of
worksheet forms. The trial court failed to comply with the technical
requirements of the FOIA because it did not require the DOC to bear the burden
of proving that a public record was exempt. However, that failure did not
require reversal of a grant of summary disposition to the DOC in the inmate’s
action where the DOC clearly reached the correct result.
Grebner v Clinton Charter Twp, 216 Mich App 736; 550 NW2d 265 (1996).
Section 522(1) of the Michigan Election Law, 1954 PA 116, MCL 168.1 et seq,
which provides for the making, certifying, and delivery of a computer tape to any
person upon payment to the clerk of the court of the cost of making, certifying,
and delivering the tape, disk, or listing is not a statute “specifically authorizing
the sale” of the computer tape. Therefore, the determination of the fee to be
charged for obtaining the computer tape is made pursuant to section 4 of the
FOIA.
Grebner v Oakland County Clerk, 220 Mich App 513; 560 NW2d 351 (1996).
Section 10(1) of the FOIA is a combined jurisdiction and venue provision. This
provision makes it clear that circuit courts have jurisdiction to hear FOIA cases
and specifies the counties in which the action may be brought.
Hagen v Dep’t of Education, 431 Mich 118; 427 NW2d 879 (1988). The decisions
of the State Tenure Commission are matters of public record. When a private
hearing is requested by a teacher, as provided under the Teacher Tenure Act,
the decision resulting from the private hearing may be withheld during the
administrative stage of the teacher’s appeal. Once a final administrative
decision is reached, the decision may not be withheld from disclosure.
Hartzell v Mayville Community School District, 183 Mich App 782; 455 NW2d
411 (1990). The FOIA requires disclosure of the fact that a requested document
does not exist. A plaintiff in a FOIA action that is forced to file a lawsuit to
ascertain that a document does not exist is a prevailing party entitled to an
award of costs and reasonable attorney fees.
Haskins v Oronoko Twp Supervisor, 172 Mich App 73; 431 NW2d 210 (1988).
The trial court properly complied with the holding in The Evening News Ass’n v
City of Troy, 417 Mich 481; 339 NW2d 421 (1983), when it conducted an in-
camera inspection of the records sought and determined that certain records are
exempt from disclosure under the narrowly drawn statutory exemptions
designed to protect the identity of confidential informants.
46
Herald Co v Ann Arbor Public Schools, 224 Mich App 266; 568 NW2d 411
(1997). Once documentation that is the subject of a FOIA lawsuit has been
disclosed, the subject of the controversy disappears. The privacy exemption of
the FOIA allows a public body to withhold from disclosure public records of a
personal nature where the information would constitute a clearly unwarranted
invasion of an individual’s privacy. Information is considered personal if it
concerns a particular person and his or her intimate affairs, interests, or
activities. While the records sought in this case were personal in nature in that
they contained information about a teacher’s family and observations about his
or her conduct, the disclosure did not constitute a “clearly unwarranted”
invasion of privacy because the records discussed the professional performance
of a teacher in the classroom that is an issue of legitimate concern to the public.
A public body may exempt from disclosure, pursuant to section 13(1)(n) (now
section13(1)(m)), advisory communications within a public body or between
public bodies to the extent that they are not nonfactual and are preliminary to a
final agency determination. However, if records meet these substantive tests,
the public body must also establish that the public interest in encouraging frank
communications within the public body or between public bodies clearly
outweighs the public interest in disclosure. In this case, the public interest in
disclosing records that contain public observations of a teacher who has been
convicted of carrying a concealed weapon is not clearly outweighed by the public
interest in encouraging frank communications within the public body.
A class of documents may be exempt from the FOIA, so long as the exempt
categories are clearly described and drawn with precision so that all documents
within a category are similar in nature. Exempt material must be segregated
from nonexempt material to the extent practicable.
Section 13(1)(i) (now section 13(1)(h)) of the FOIA exempts information subject
to the physician-patient privilege. The purpose of the privilege is to protect the
physician-patient relationship and ensure that communications between the
two are confidential. Attendance records that do not contain any information
that a physician acquired while treating an employee are not covered by this
exemption. The fact that an employee waives the physician-patient privilege by
submitting to his or her employer attendance records that contain medical
records does not mean that the privilege was waived with regard to third
parties who request disclosure of the records under the FOIA.
The FOIA excludes from disclosure information protected by the attorney-client
privilege. The scope of the privilege is narrow, including only those
communications by the client to its advisor that are made for the purpose of
obtaining legal advice. A tape recording of an interview of the teacher by the
school district is not within the attorney-client privilege.
47
Herald Co v City of Bay City, 463 Mich 111; 614 NW2d 873 (2000). The FOIA
does not establish detailed requirements for a valid request. If a citizen submits
a request for the names, current job titles, and cities of residence and ages for
job candidates, and the city possesses records containing the information, the
city is obligated to provide the records even though they were not specifically
described in the request.
The fact of application for a public job, or the typical background information
that may be contained in an application, is not information of a personal nature
protected from disclosure under section 13(1)(a) of the FOIA. If embarrassing or
intimate personal information is contained in an application, the public body is
under a duty to separate the exempt material and make the nonexempt material
available to the public.
Herald Co, Inc v Eastern Michigan Univ Bd of Regents, 475 Mich 463; 719
NW2d 19 (2006). The advisory, non-factual portions of a letter written by
defendant's vice president of finance to a member of the Board of Regents were
exempt as frank communications under section 13(1)(m) of the FOIA, where the
balance of competing interests favored nondisclosure.
Herald Co v Kalamazoo, 229 Mich App 376; 581 NW2d 295 (1998). Law
enforcement exemptions of the Michigan FOIA are more restrictive than parallel
provisions of the federal FOIA. The correct standard under the Michigan FOIA
is whether a document “would” (not “could”) interfere with law enforcement
proceedings.
An investigation will not be considered “on-going” for the purposes of the FOIA
without an active, on-going, law enforcement investigation. In the absence of
such activities, the investigation cannot be considered open although the period
of limitations may still be running.
Hoffman v Bay City School District, 137 Mich App 333; 357 NW2d 686 (1984).
Where an attorney investigated the business and finance practices of a school
district and orally reported his or her opinion regarding the investigation to the
school board but did not share the actual documents, the investigative file itself
is not a public record of the board.
Hopkins v Township of Duncan, 294 Mich App 401; 812 NW2d 27 (2011).
Handwritten notes taken by a township board member at the township board
meeting for his personal use, not circulated among other board members, not
used in the creation of the minutes of any board meetings and retained or
destroyed at the member’s sole discretion are not “public records” under the
FOIA.
48
Howell Education Association MEA/NEA v Howell Board of Education, 287
Mich App 228; 789 NW2d 495 (2010). A public-school employee’s email that
involves an entirely private or personal matter unrelated to the public body’s
official function does not constitute a “public record” under the FOIA solely
because it is held in a public body’s email system’s digital memory. The mere
violation of an acceptable use policy that bars personal use of the email system
but does not expressly provide that emails are subject to the FOIA, does not
render personal emails “public records” subject to FOIA.
Hubka v Pennfield Twp, 197 Mich App 117; 494 NW2d 800 (1992). Letters sent
by a township attorney to a township board that contain information obtained
by the attorney from township employees under compulsion and promises of
confidentiality are protected from disclosure under the FOIA by the attorney-
client privilege. Likewise, the opinions, conclusions, and recommendations of
the attorney, based on the information, are protected.
Hyson v Dep’t of Corrections, 205 Mich App 422; 521 NW2d 841 (1994).
Statements made by confidential witnesses relating to a major misconduct
charge against a prison inmate may be withheld when requested pursuant to
the FOIA because disclosure of the documents, even with the names of
witnesses deleted, would reveal their identities and jeopardize their personal
safety within the prison. In addition, the release would preclude the public
body’s ability to maintain the physical security of the penal institution.
In re Buchanan, 152 Mich App 706; 394 NW2d 78 (1986). The common-law right
of access to court records is not without limitation.
In re Subpoena Duces Tecum, on remand from the Michigan Supreme Court, 205
Mich App 700; 518 NW2d 522 (1994). Section 13(1)(n) (now section 13(1)(m)) of
the FOIA protects from disclosure communications within or between public
bodies of an advisory nature that are other than purely factual and are
preliminary to a final agency determination of policy or action. The burden is on
the public body to show, in each particular instance, that the public interest in
encouraging frank communications between officials and employees of the
public body clearly outweighs the public interest in disclosure. It is not
adequate to show that the requested document falls within a general category of
documents that may be protected.
International Union, UPGWA v Dep’t of State Police, 118 Mich App 292; 324
NW2d 611 (1982), aff’d by equally divided court, 422 Mich 432 (1985). The
exemption of a list of names and home addresses of private security guards from
disclosure to a union seeking that list for collective bargaining purposes is not
49
justified. The public purpose of collective bargaining outweighs the employees’
interest in the privacy of this information. However, the union was ordered not
to engage in further disclosure of the list for other unrelated purposes.
Jackson v Eastern Michigan University, 215 Mich App 240; 544 NW2d 737
(1996). Eastern Michigan University Foundation is primarily funded by Eastern
Michigan University and, therefore, is a public body subject to the FOIA.
Jordan v Martimucci, 101 Mich App 212; 300 NW2d 325 (1980). A plaintiff who
brings an action under the FOIA for punitive damages for delay in disclosure of
requested information must demonstrate that he or she has received the
requested information as a result of court-ordered disclosure and that the
defendant acted arbitrarily and capriciously in failing to comply with the
disclosure request in a timely manner.
Kearney v Dep’t of Mental Health, 168 Mich App 406; 425 NW2d 161 (1988).
The FOIA exempts from disclosure records exempted from disclosure by other
statutory authority. Mental health treatment records are exempt under the
Mental Health Code. However, treatment records may be disclosed where the
holder of the record and the patient consent. Persons requesting records under
the FOIA are not entitled to free copies of the records. The holder of a public
record may charge a fee for providing copies. There is, however, a waiver of the
first $20.00 for those who, by affidavit, show an inability to pay because of
indigency.
Kent County Sheriff’s Ass’n v Sheriff, 463 Mich 353; 616 NW2d 677 (2000). The
FOIA provides citizens with broad rights to obtain public records limited only by
the coverage of the statute an its exemptions. The fact that another body of law
potentially gives an additional basis for access to records, in this case the Public
Employment Relations Act, does not limit the applicability of the FOIA or the
jurisdiction of the circuit court to consider relief under the FOIA.
Internal investigation records of a law enforcement agency may be exempt as
personnel records under section 13(1)(s)(ix) of the FOIA where it is sufficiently
established that public interest favors nondisclosure over disclosure.
Kestenbaum v Michigan State University, 414 Mich 510; 327 NW2d 783 (1982).
An equally divided Supreme Court affirmed the lower court in holding that a
list of names and addresses of students on a computer tape would appear to be a
public record, but the nature of the information is personal and falls within an
enumerated exception. Public disclosure of the tape would constitute a clearly
unwarranted invasion of a person’s privacy.
50
Key v Township of Paw Paw, 254 Mich App 508; 657 NW2d 546 (2002). The
public body complied with the FOIA when the FOIA Coordinator denied a
request for information because the information sought could not be located.
When a public body timely claims the additional 10 business days for a response
as provided in section 5(2)(d) of the FOIA, the new response deadline is 15
business days after the receipt of the request, regardless of when the notice of
extension is issued.
King v Michigan State Police, 303 Mich App 162; 841 NW2d 914 (2013).
Polygraph report was exempt from public disclosure by statute. The trial court’s
decision to reduce fees charged by a public body for processing the request was
reversed as clearly erroneous. A public body’s decision to grant a request “as to
existing, non-exempt records” in its possession did not present an unripe
controversy in light of the parties’ stipulation to treat the plaintiff’s response to
the public body’s motion for summary disposition as an appeal from the public
body’s denial of part of the request. The Court also held the public body’s
production of some, but not all, of the requested records did not render the case
moot.
King v Oakland County Prosecutor, 303 Mich App 222; 842 NW2d 403 (2013).
When analyzing a public body’s assertion of an exemption under section 13 of
the FOIA, a trial court may make complete and particularized findings of fact
justifying use of the exemption; it may conduct an in-camera review of the
disputed records; or it may allow plaintiff’s counsel to conduct an in-camera
review of the disputed records whenever possible. A trial court, however, need
not use all three procedures and should strictly limit use of an in-camera review
by counsel. The Court also held the exemption in section 13(1)(b)(i) is narrower
than its counterpart in the federal FOIA, since the state exemption only applies
to records that “would” interfere with law enforcement proceedings, and not to
all records that “could” interfere with law enforcement proceedings. The Court
also held there was no need to take the depositions of department heads and
other high-ranking officials, when their depositions are not essential to prevent
prejudice to the party seeking the discovery.
Kincaid v Dep’t of Corrections, 180 Mich App 176; 446 NW2d 604 (1989). A public
body bears the burden of proof of demonstrating a proper justification for the
denial of a FOIA request. A request for disclosure of information under the
FOIA must describe the requested records sufficiently to enable the public body
to find them. When a request is denied because of an insufficient description,
the requesting person may (1) rewrite the request with additional information,
or (2) file suit in circuit court where the sole issue would be whether the
information describing the desired records was sufficient. A FOIA request by an
51
inmate, that erroneously states both the date of a guilty determination on a
misconduct and the hearing date with respect to the records sought, reasonably
and sufficiently describes the records. A public body acts in an arbitrary and
capricious manner by repeatedly refusing to look for a record so described.
Kocher v Dep’t of Treasury, 241 Mich App 378; 615 NW2d 767 (2000). The
addresses of unclaimed property holders maintained by the Michigan
Department of Treasury fall within the definition of personal information, and
their release would constitute a clearly unwarranted invasion of privacy.
Disclosure of the information would not enhance the public’s understanding of
the operations or activities of the government.
Krug v Ingham County Sheriff’s Office, 264 Mich App 475; 691 NW2d 50 (2004).
Defendant was not entitled to issue blanket denials of all FOIA requests
relating to open case files without actually reviewing the case first to determine
what information is exempt. A defendant should treat a lawsuit filed as a result
of a FOIA denial as a continuing request for information. If the defendant
determines that the information has become nonexempt during the course of the
FOIA litigation, the records should be released.
Kubick v Child & Family Services of Michigan, 171 Mich App 304; 429 NW2d
881 (1988). While there is no bright-line rule as to what constitutes “primarily
funded“ to determine if a body is a “public body” as defined in the FOIA, a
private nonprofit corporation that receives less than half of its funding from
government sources is not a public body which is primarily funded by or through
state or local authority. Accordingly, such corporation is not subject to the
requirements of the FOIA regarding the disclosure of information by public
bodies.
Landry v City of Dearborn, 259 Mich App 416; 674 NW2d 697 (2003). Section
13(1)(s)(ix) of the FOIA permits nondisclosure of law enforcement personnel
records. The meaning of the term “personnel records” in that section includes all
records used by law enforcement agencies in the selection or hiring of officers, as
well as the applications received by the city from unsuccessful applicants. The
public interest in disclosing the information did not outweigh the public interest
in not disclosing the information.
Laracey v Financial Institutions Bureau, 163 Mich App 437; 414 NW2d 909
(1987). An attorney who filed a pro se action is not entitled to recover attorney
fees in a FOIA lawsuit.
Lapeer County Abstract & Title Co v Lapeer County Register of Deeds, 264 Mich
App 167; 691 NW2d 11 (2004). While the FOIA grants a general right to receive
52
copies of public records, nothing in the FOIA requires a public body to provide
copies in a microfilm format rather than in the form of a paper copy.
Furthermore, the Inspection of Records Act specifically provides that, in
response to a request for reproduction of a record of a register of deeds, the
register of deeds may select the medium used to reproduce the record.
Lepp v Cheboygan Area Schools, 190 Mich App 726; 476 NW2d 506 (1991).
Where the requested information pertains to the party making the request, it is
unreasonable to refuse disclosure on the grounds of invasion of privacy.
Local Area Watch v City of Grand Rapids, 262 Mich App 136; 683 NW2d 745
(2004). Under the Open Meetings Act, minutes of closed session meetings may
only be disclosed by court order under the Act. Further, under the FOIA, a
public body is not required to disclose records protected from disclosure to the
public by other statutes. Where the plaintiff sought disclosure of closed meeting
minutes, the defendant did not violate the FOIA by withholding the minutes,
where there was no judicial determination that the minutes were subject to
disclosure under the Open Meetings Act.
Local 79, Service Employees Intern’l Union AFL-CIO, Hospital Employees
Division v Lapeer County General Hospital, 111 Mich App 441; 314 NW2d 648
(1981). The proper forum in which to seek relief from a violation of the FOIA is
the circuit court and not the Michigan Employment Relations Commission,
notwithstanding labor-related issues.
Local 312 of the AFSCME, AFL-CIO v City of Detroit, 207 Mich App 472; 525
NW2d 487 (1994). The Public Employment Relations Act (PERA), 1947 PA 336,
MCL 423.201 et seq, and the FOIA are not conflicting statutes such that the
PERA would prevail over the FOIA with the result that a person involved in a
labor dispute would be precluded from obtaining public records under the FOIA.
The Legislature has clearly defined the class of persons entitled to seek
disclosure of public records pursuant to the FOIA. There is no sound policy
reason for distinguishing between persons who are involved in litigation-type
proceedings and those who are not.
MacKenzie v Wales Twp, 247 Mich App 124; 635 NW2d 335 (2001). A township
must grant access to computer tapes used to prepare property tax notices for the
township even though the tapes were created by, and in the possession of,
another entity. Because the township used the tapes, albeit indirectly, in
performing an official function, the tapes fall within the statutory definition of
public records.
53
Mager v Dep’t of State Police, 460 Mich 134; 595 NW2d 142 (1999). State Police is
not required to provide the names and addresses of registered handgun owners
in response to a FOIA request. Gun registration is information that meets both
elements of the FOIA privacy exemption, section 13(1)(a). Gun registration
information is of a “personal nature,” and the disclosure of such information
would constitute a “clearly unwarranted” invasion of the individual's privacy.
The Supreme Court further noted that “[the core] purpose [of the FOIA] is not
fostered by disclosure of information about private citizens that is accumulated
in various governmental files but that reveals little or nothing about an
agency’s own conduct.”
Manning v City of East Tawas, 234 Mich App 244; 593 NW2d 649 (1999). When
making an in-camera determination whether to compel disclosure under the
FOIA, a trial court may order disclosure of nonexempt information and may
provide for the redaction of exempt information.
Meredith Corp v City of Flint, 256 Mich App 703; 671 NW2d 101 (2003). Where
an action for disclosure of public records is initiated pursuant to the FOIA, the
prevailing party’s entitlement to an award of reasonable attorney fees, costs,
and disbursements includes all such fees, costs, and disbursements related to
achieving production of the public records.
Messenger v Dep’t of Consumer & Industry Services, 238 Mich App 524; 606
NW2d 38 (1999). Investigation undertaken by the state public body did not fit
the definition of investigation found in the Public Health Code, and, therefore,
the records sought were not exempt from disclosure under the FOIA.
Messenger v Ingham County Prosecutor, 232 Mich App 633; 591 NW2d 393
(1998). The privilege for attorney work product is recognized by court rule, MCR
2.302(B)(3)(a), and incorporated into the FOIA through section 13(1)(h). When
information sought pursuant to the FOIA is identified as attorney work product,
it is not subject to disclosure.
McCartney v Attorney General, 231 Mich App 722; 587 NW2d 824 (1998). Letters
forwarded by the Governor to the Attorney General for the purpose of seeking
legal advice were protected by the attorney-client privilege, and thus, by section
13(1)(h) (now section 13(1)(g)) of the FOIA. Internal memoranda within the
Attorney General’s office containing recommendations, opinions, and strategies
with regard to legal advice requested by the Governor are exempted from
disclosure by section 13(1)(n) (now section 13(1)(m)) of the FOIA to the extent
that they are preliminary, nonfactual, and part of the deliberative process and
exempt because of the attorney-client privilege.
54
Michigan Federation of Teachers and School Related Personnel, AFT, AFL-CIO v
University of Michigan, 481 Mich 657; 753 NW2d 28 (2008). The Court held that
employees’ home addresses and telephone numbers meet both prongs of FOIA’s
privacy exemption because that information is “of a personal nature” and its
disclosure would constitute a clearly unwarranted invasion of an individual’s
privacy. The Court reexamined the definition of “information of a personal
nature” set forth in Bradley v Saranac Community Schools Bd of Ed, 455 Mich
285; 565 NW2d 650 (1997) and concluded that it unnecessarily limited the
intended scope of that phrase. The Court cured the deficiency and revised the
definition to encompass information of an embarrassing, intimate, private, or
confidential nature. Accordingly, the University of Michigan employees’ home
addresses and telephone numbers were exempt from disclosure.
Michigan Tax Management Services Co v City of Warren, 437 Mich 506; 473
NW2d 263 (1991). When a prevailing party in a FOIA action is awarded
“reasonable” attorney fees, the trial court is obligated to make an independent
determination with regard to the amount of the fees. The standard utilized by
an appellate court to review such a determination is abuse of discretion.
Milford v Gilb, 148 Mich App 778; 384 NW2d 786 (1985). Under the FOIA, a
public body may exempt from disclosure communications and notes within a
public body or between public bodies of an advisory nature to the extent that
they cover other than purely factual matters and the public interest in
encouraging frank communications within the public body or between public
bodies clearly outweighs the public interest in disclosure. The public body bears
the burden of proof that a statutory exception applies to the item requested.
MLive Media Group v City of Grand Rapids, 321 Mich App 263; 909 NW2d 282
(2017). Defendant failed to show that the recordings, copies of recordings, and
transcripts of telephone calls made by its police officers to a police lieutenant
concerning a citation issued to a former county assistant prosecutor, which were
requested under the FOIA, constituted “[r]ecords or information specifically
described and exempted from disclosure by statute.” MCL 15.243(1)(d).
Defendant’s response to the FOIA request did not base its nondisclosure on the
argument that public disclosure would violate another statute. Thus, defendant
did not meet its burden.
Mullin v Detroit Police Dep’t, 133 Mich App 46; 348 NW2d 708 (1984). Defendant
properly exempted a computer tape containing personal information on persons
involved in traffic accidents. Disclosure of the tape would have been a clearly
unwarranted invasion of privacy.
55
Nabkey v Kent Community Action Program, Inc, 99 Mich App 480; 298 NW2d 11
(1980). No award of attorney fees is possible where a prevailing plaintiff under
the FOIA is not represented by an attorney.
Newark Morning Ledger Co v Saginaw County Sheriff, 204 Mich App 215; 514
NW2d 213 (1994). Internal affairs investigation records of a law enforcement
agency constitute personnel records, that are exempt from disclosure unless the
public interest in disclosure outweighs the public interest in nondisclosure. The
mere location of a public record in a personnel file is not determinative as to its
status as a personnel record. In determining what is a “personnel record” under
the FOIA, the court looked to the definition of that term in the Bullard-Plawecki
Employee Right to Know Act (ERKA), MCL 423.501 et seq. While the purpose of
the FOIA and the ERKA are different, the Legislature's clearly expressed intent
in the ERKA to prohibit access by an employee to any internal investigations
relating to that employee indicates an intent to not allow public access to such
records.
Nicita v City of Detroit, 194 Mich App 657; 487 NW2d 814 (1992). Section 13(1)(i)
of the FOIA does not exempt from disclosure bids with respect to development
projects once a developer has been chosen.
Nicita v City of Detroit, 216 Mich App 746; 550 NW2d 269 (1996). Business
records pertaining to a real estate development company are not exempt from
disclosure pursuant to section 13(1)(a) of the FOIA where there is no indication
that the records contain information of a personal nature. This section does not
protect information that could conceivably lead to the revelation of personal
information. Section 13(1)(n) (now section 13(1)(m)) of the FOIA protects
communications within or between a public body that are other than purely
factual and are preliminary to a final agency determination of policy or action. A
public agency must also show that the need for nondisclosure clearly outweighs
the public interest in disclosure.
Oakland Press v Pontiac Stadium Building Authority, 173 Mich App 41; 433
NW2d 317 (1988). The release of names and addresses of licensees doing
business with a public body was not personal information the disclosure of
which would be a clearly unwarranted invasion of privacy.
Oakland County Prosecutor v Dep’t of Corrections, 222 Mich App 654; 564 NW2d
922 (1997). A prisoner’s mental health records submitted to the parole board
when seeking parole must be provided to a county prosecutor when requested
pursuant to the FOIA so that the prosecutor may determine whether the board’s
decision to grant parole should be appealed.
56
Oakland County Treasurer v Title Office, Inc, 245 Mich App 196; 627 NW2d 317
(2001). Electronic records are writings as defined by the FOIA. Public bodies are
required to provide public records in the format requested. If there is no explicit
statutory language that provides fees for electronic records, the records must be
provided using the FOIA fee requirements.
Palladium Publishing Co v River Valley School District, 115 Mich App 490; 321
NW2d 705 (1982). The name of a student suspended by the action of a board of
education will appear in the meeting minutes and is not information exempt
from disclosure under the FOIA.
Patterson v Allegan County Sheriff, 199 Mich App 638; 502 NW2d 368 (1993).
A booking photograph of a county jail inmate kept in the files of a county sheriff
is a public record under the FOIA; such photographs may not be withheld from
disclosure on the basis of the privacy exemption found in 13(1)(a) of the FOIA.
Payne v Grand Rapids Police Chief, 178 Mich App 193; 443 NW2d 481 (1989).
A record of law enforcement investigation may be exempt from disclosure under
the FOIA where disclosure would interfere with law enforcement proceedings.
However, the agency must demonstrate factually how disclosure of particular
records or kinds of records would amount to interference and not merely provide
conclusory statements that recite the language of the FOIA.
Pennington v Washtenaw County Sheriff, 125 Mich App 556; 336 NW2d 828
(1983). Failure to respond to a request is treated as a final decision to deny the
request. A plaintiff need only make a showing in circuit court that the request
was made and denied. The burden is on the defendant to show a viable defense.
Nondisclosure based upon the privacy exemption of 13(1)(b)(iii) is limited to
intimate details of a highly personal nature.
Penokie v Michigan Technological University, 93 Mich App 650; 287 NW2d 304
(1979). The names and salaries of employees of the defendant university is not
information of a personal nature the disclosure of which would constitute a
“clearly unwarranted” invasion of personal privacy under the FOIA.
Perlongo v Iron River Cooperative TV, 122 Mich App 433; 332 NW2d 502 (1983).
A private nonstock, nonprofit cable television corporation which was not created
by state or local authority is not a “public body” for purposes of either the Open
Meetings Act or the FOIA, even though it is licensed, franchised, or otherwise
regulated by the government.
Post-Newsweek Stations, Michigan, Inc v City of Detroit, 179 Mich App 331; 445
NW2d 529 (1989). In claiming an exemption under the FOIA, for interference
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with law enforcement proceedings, the burden of proof is on the public body
claiming the exemption. The exemption must be interpreted narrowly, and the
public body must separate exempt material from nonexempt and make
nonexempt information available. Exempt information must be described with
particularity indicating how the information would interfere with law
enforcement proceedings. When analyzing claims of exemption under the FOIA,
a trial court should receive a complete particularized justification for a denial of
a request or hold in-camera hearings to determine whether this justification
exists, or the court may allow counsel for the requesting party to examine, in-
camera, under special agreement, the contested material.
Practical Political Consulting, Inc v Terry Lynn Land, 287 Mich App 434; 789
NW2d 178 (2010). A copy of all voting history of the January 15, 2008,
presidential primary including which ballots each voter selected was not exempt
by statute and was not information of a personal nature, nor would the
disclosure of it constitute a clearly unwarranted invasion of privacy.
Prins v Michigan Department of State Police, 299 Mich App 634; 831 NW2d 867
(2013). A public body has not satisfied FOIA’s notice requirement until it sends
out or officially circulates its denial of a public record request, which prevents a
public body’s inadvertent failure to timely mail a denial letter from unduly
shortening the 180-day period of limitations on a FOIA case.
Proctor v White Lake Twp Police Department, 248 Mich App 457; 639 NW2d 332
(2001). The FOIA is not unconstitutional simply because it excludes prisoners
from obtaining information. Application of the FOIA exclusion does not deprive
prisoners of their fundamental right to access the courts or their First
Amendment rights.
Progress v Attorney General, 506 Mich 74; 954 NW2d 475 (2020). Plaintiff’s
unverified complaint in the Court of Claims was sufficient to commence an
action against the state for purposes of tolling the statutory limitations period.
Thus, plaintiff’s amended FOIA complaint was not untimely because it could
relate back to the original complaint. Notably, the Court did not disturb the
Court of Appeal’s determination that the FOIA 180-day limitations period runs
from the date of the public body’s initial denial of the FOIA request, not from the
date of the internal appeal determination, which happens after the public body
makes its “final determination.”
Quatrine v Mackinaw City Public Schools, 204 Mich App 342; 514 NW2d 254
(1994). Public schools were not required to release records under the FOIA
where written parental consent for release of records was not provided.
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Rataj v City of Romulus, 306 Mich App 735; 858 NW2d 116 (2014). Plaintiff
sought to compel a release of a video recording, unredacted incident report, and
police department internal investigation reports and personnel records
pertaining to police officer’s alleged assault of an individual who had been
arrested and handcuffed. The Court determined that disclosure of the video
recording would serve the core purpose of the FOIA, and that the recording did
not fall within the privacy provisions of section 13(1)(a) of the FOIA. As for the
incident report, while the names of the citizen and officer were subject to
disclosure, home addresses, dates of birth, and telephone numbers may be
withheld from disclosure under the privacy exemption. The internal
investigation reports and personnel records pertaining to the incident were
exempt under section 13(1)(s)(ix) of the FOIA, which permits the nondisclosure
of such law enforcement agency records.
Residential Ratepayer Consortium v Public Service Commission, 168 Mich App
476; 425 NW2d 98 (1987). An agency does not waive its defenses in a circuit
court action to compel disclosure of documents under the FOIA because they
were not raised at the administrative level.
Ridenour v Dearborn Board of Education, 111 Mich App 798; 314 NW2d 760
(1981). It was not permissible to enter closed session under section 8h of the
Open Meetings Act to discuss the performance of a school administrator because
public disclosure of performance evaluations of school administrators is not an
intrusion of privacy as defined by the FOIA. People have a strong interest in
public education and taxpayers are increasingly holding administrators
accountable for expenditures of tax money.
Scharret v City of Berkley, 249 Mich App 405; 642 NW2d 685 (2002). According
to section 5 of the FOIA, a public body is required to respond to a request for
information within five business days after receiving the request, and its failure
to timely respond constitutes its final determination to deny the request and is
a violation of the FOIA.
In addition, nothing in the FOIA states that the resubmission of a request
denied by virtue of the public body’s failure to respond divests the requesting
person of the ability to exercise the options granted under section 10 of the
FOIA, based on the initial denial of the request.
To receive an award of attorney fees and costs under the FOIA, the action must
be reasonably necessary to compel disclosure, and the action must have a
substantial causative effect on the delivery of the information to the requestor.
Schinzel v Wilkerson, 110 Mich App 600; 313 NW2d 167 (1981). A plaintiff
appearing in propria persona who prevails in an action commenced pursuant to
59
the FOIA is entitled to an award of his or her actual expenditures but is not
entitled to an award of attorney fees.
Sclafani v Domestic Violence Escape, 255 Mich App 260; 660 NW2d 97 (2003).
Section 2(d)(iv) of the FOIA (now section 2(h)(iv)) states that a public body is
“any other body which is created by state or local authority or which is
primarily funded by or through state or local authority.” The court found that
Domestic Violence Escape (DOVE), a non-profit group that educates citizens
about domestic violence and provides several services to victims, was a public
body and therefore was subject to FOIA because a state or local government
authority provided 50% or more of its finding. “Primarily funded“ was deemed to
include funding from a single or multiple sources.
Shellum v MESC, 194 Mich App 474; 487 NW2d 490 (1992). Information held
by MESC concerning the calculated unemployment insurance tax contribution
rate of an employer is exempt from disclosure under 13(1)(d) of the FOIA
because it utilizes information obtained from the employer, which is protected
from disclosure by statute and administrative rule.
Schroeder v Detroit, 221 Mich App 364; 561 NW2d 497 (1997). A person denied
employment by a police department was not entitled to receive a copy of his or
her psychological evaluation under the FOIA. In cases involving examination
instruments as defined by section 13(1)(l) (now section 13(1)(k)) of the FOIA,
release of the information is not required unless the public interest in disclosure
outweighs the public interest in nondisclosure. Here, the public interest in
ensuring the integrity of the hiring process outweighed the public interest in
disclosing the information to a candidate attempting to investigate the fairness
of the test.
State Defender Union Employees v Legal Aid & Defender Ass’n of Detroit, 230
Mich App 426; 584 NW2d 359 (1998). An organization “primarily funded by or
through state or local authority” is a public body pursuant to the FOIA.
“Funded” means the receipt of government grants or subsidies. An otherwise
private organization is not a public body merely because public monies paid in
exchange for goods or services comprise a certain percentage of the
organization’s revenues.
State Employees Ass’n v Dep’t of Management & Budget, 428 Mich 104; 404
NW2d 606 (1987). The disclosure of the home addresses of state employees to
a recognized employee organization does not constitute a clearly unwarranted
invasion of privacy.
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State News v Michigan State University, 481 Mich 692; 753 NW2d 20 (2008).
Unless an exemption to disclosure provides otherwise, the application of an
exemption is determined when the public body asserts the exemption. The
passage of time and subsequent events do not affect whether a public record was
exempt from disclosure at the time the public body responded to the request.
Stone Street Capital, Inc v Michigan Bureau of State Lottery, 263 Mich App 683;
689 NW2d 541 (2004). The names, addresses, and other personal information of
persons who have received lottery winnings directly, by assignment, or by other
judgment are exempt from disclosure under the FOIA as the information is
entirely unrelated to any inquiry regarding the inner working of government
and would constitute a clearly unwarranted invasion of an individual’s privacy.
Public disclosure of such personal information has the potential to endanger
individuals.
Sutton v City of Oak Park, 251 Mich App 345; 650 NW2d 404 (2002). Internal
investigation records may be exempt as personnel records of a law enforcement
agency if the public interest favors nondisclosure over disclosure.
Swickard v Wayne County Medical Examiner, 438 Mich 536; 475 NW2d 304
(1991). In deciding whether a disclosure of requested information would
constitute an invasion of privacy, one looks to constitutional law and common-
law as well as customs, mores, or ordinary views of the community. The release
of autopsy reports and toxicology test results are not unwarranted
infringements on the right to privacy of either the deceased or the deceased’s
family. The autopsy reports and toxicology test results are not within the
doctor-patient privilege.
Swickard v Wayne County Medical Examiner, 196 Mich App 98; 492 NW2d 497
(1992). A party who prevails completely in an action asserting the right to
inspect or receive a copy of a public record under the FOIA is entitled to
reasonable attorney fees, costs, and disbursements. No time limit is imposed
upon a prevailing party for requesting attorney fees.
Tallman v Cheboygan Area Schools, 183 Mich App 123; 454 NW2d 171 (1990). A
public body may charge a fee for providing a copy of a public record. Section 4 of
the Act provides a method for determining the charge for records, and a public
body is obligated to arrive at its fees pursuant to that section.
Taylor v Lansing Board of Water & Light, 272 Mich App 200; 725 NW2d 84
(2006). Personnel files, emails, correspondence, and expense reimbursement
information were non-exempt public records subject to the FOIA. Section
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13(1)(v) did not exempt the records because plaintiff was not a party to a civil
action against defendant when she requested the records. The Court
acknowledged that the plaintiff was the admitted best friend of a party involved
in a separate civil action against the defendant and that it could be inferred
that the plaintiff was merely an instrument through which the plaintiff in the
other action sought to gain information. Although the Court described the
literal application of the exemption in section 13(1)(v) as absurd in this case, it
held the statute must be enforced as written because the statute was
unambiguous.
Thomas v City of New Baltimore, 254 Mich App 196; 657 NW2d 530 (2002).
Where a person sues under the FOIA and prevails in an action to compel
disclosure, the person must be awarded attorney fees, costs, and disbursements,
even though the action has been rendered moot by acts of the public body in
disposing of the documents.
Thomas v State Board of Law Examiners, 210 Mich App 279; 533 NW2d 3
(1995). The State Board of Law Examiners is an agent of the judiciary and,
therefore, not a public body subject to the disclosure requirements of the FOIA.
Title Office, Inc v Van Buren Co Treasurer, 469 Mich 516; 676 NW2d 207 (2004).
Fees for electronic copies of property tax records requested from a county
treasurer are computed according to the Transcripts and Abstracts of Records
Act (TARA), as an exception under the FOIA, section 4(1). “Transcripts,” as used
in the TARA, is intended to apply to any reproduction of a record on file in the
treasurer’s office, including electronic copies.
Tobin v Michigan Civil Service Comm’n, 416 Mich 661; 331 NW2d 184 (1982).
The FOIA authorizes, but does not require, nondisclosure of public records
falling within a FOIA exemption. And the FOIA does not compel a public body to
conceal information at the insistence of one who opposes its release.
Traverse City Record Eagle v Traverse City Area Public Schools, 184 Mich App
609; 459 NW2d 28 (1990). A tentative bargaining agreement between a school
district and the union that represents the school district’s employees was held to
be exempt from disclosure pursuant to section 13(1)(n) (now section 13(1)(m)) of
the FOIA. This section exempts communication and notes within a public body
or between public bodies that are advisory, nonfactual, and preliminary to a
final decision. The public interest in encouraging frank communications
between the employer and its employees, which leads to effective negotiations,
in this case outweighs the public interest in disclosure.
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Truel v City of Dearborn, 291 Mich App 125; 804 NW2d 744 (2010). Transcripts
of statements given by four police officers during an investigation conducted
pursuant to investigative subpoenas issued by the State Police and County
Prosecutor’s office were exempt from disclosure by statute. Michigan also
recognizes the deliberative process privilege, which applies to pre-decision
deliberative materials. Although this privilege can be overcome by a showing of
sufficient need, the privilege was not overcome in this case.
Walen v Dep’t of Corrections, 443 Mich 240; 505 NW2d 519 (1993). A prison
disciplinary hearing falls within the definition of “contested case” and, therefore,
pursuant to section 11(1) of the FOIA, must be published and made available to
the public. The Department of Corrections satisfied the publication requirement
by retaining the final orders and decisions from disciplinary hearings in
prisoners’ files.
Walloon Lake Water System, Inc v Melrose Twp, 163 Mich App 726; 415 NW2d
292 (1987). A public body does not escape liability under the FOIA merely
because a capricious act on its part, in this case, willfully disposing of the public
record knowing that a suit was pending under the FOIA for disclosure, rendered
the lawsuit moot.
Wayne County Prosecutor v City of Detroit, 185 Mich App 265; 460 NW2d 298
(1990). For purposes of the FOIA, a county prosecutor is a person as defined in
the act. This allows him or her, in his or her official capacity, to request
documents from public bodies under the FOIA.
Wilson v City of Eaton Rapids, 196 Mich App 671; 493 NW2d 433 (1992).
A public body’s attempt to reconcile a contractual obligation to maintain the
confidentiality of a resignation agreement with its statutory obligation under
the FOIA does not constitute arbitrary and capricious behavior. Under these
circumstances, the plaintiff was not deemed the prevailing party and therefore
was not entitled to attorney fees, costs and disbursements.
Yarbrough v Dep’t of Corrections, 199 Mich App 180; 501 NW2d 207 (1993).
Records compiled in the course of an ongoing internal investigation into an
alleged sexual harassment are “investigating records compiled for law
enforcement purposes” within the meaning of said terms in section 13(1)(b)(i) of
the FOIA.
