The Law Officers’ Convention and the Ministerial Code – High Court Judgment

August 7th, 2009 by Robin Hopkins

The recent judgment in HM Treasury v Information Commissioner and Evan Owen [2009] EWHC 1811 (Admin) saw the High Court quash a decision by the Information Tribunal requiring HM Treasury to disclose whether or not it held advice from the Law Officers on the compatibility of the Financial Services and Markets Bill with the Human Rights Act.

By a long-standing constitutional Convention – recognised in the Ministerial Code – the fact that the Law Officers have been consulted is not disclosed outside government without the consent of the Attorney General. This is specifically accommodated in the qualified exemption under section 35(1)(c) FOIA. The Tribunal, however, had upheld the Commissioner’s decision that the public interest favoured disclosure in this case.

Blake J held that, in so doing, the Tribunal failed to afford due weight to three factors. First, the fact that section 35(1)(c) aimed not to supplant the Convention, but to preserve it subject to a public interest test. Secondly, the views of experienced civil servants on the consequences of departing from the Convention. Thirdly, those factors counting against disclosure that were based on generalised rather than specific harm. The Tribunal had also failed to evaluate for itself the strength of the public interest in disclosure in light of the extensive legal advice that had already been publicised on this issue.

Given that similar factors have been discussed in a number of other High Court judgments referred to by Blake J, this judgment makes a notable contribution to the jurisprudence on the public interest balancing test.

Recent ICO decisions on Freedom of Information

April 8th, 2009 by Amy Rogers

In Decision Notice FS50139215, issued this week, the Commissioner has ordered the Met Police to disclose particular CCTV footage showing the movements of the perpetrators of the terrorist attacks on London on 7 July 2005.

The Met had argued that the footage was exempt from disclosure under sections 30(1)(a) (information held for the purposes of an investigation) and 38(1)(a) (health and safety) of FOIA.

The Commissioner accepted that the exemption in section 30(1)(a)(i) and (ii) of FOIA was engaged. However, he rejected arguments that such disclosure would render meaningful police investigation impossible and that, pending any trial, the CCTV footage should only be disclosed to the CPS, the Courts or other bodies involved in the investigative process.

The Commissioner’s comments on the public interest in full disclosure of any material relating to the 7/7 bombings are of particular interest. He noted, for example, that whilst there had already been widespread media coverage in relation to the bombings, “full disclosure in order to avoid any suspicion of ‘spin’ or ‘cover up’ will continue to be in the public interest regardless of the volume of related information that has previously been disclosed”. On similar lines, he observed that in circumstances in which the 7/7 attacks had been the subject of conspiracy theories, the fact that “disclosure would presumably support the official account of the time line and basic facts of the attacks and reduce any perceived lack of transparency about how this account was formed, along with removing any suspicion of ‘spin’ or ‘cover up’” was a valid public interest factor in favour of disclosure.

The Commissioner rejected the Met’s claim that the exemption under section 38(1)(a) of FOIA (health and safety) was engaged at all, emphasising that the arguments advanced by the Met on this point had lacked detail in relation to the specific CCTV footage in question. He also concluded that, whilst not cited by the Met, the personal data exemption in section 40(2) of FOIA was engaged in respect of footage from which individuals other than the perpetrators of the attacks could be identified. The Met must redact this information, such as by pixellation, before the footage is disclosed.

In other Decision Notices issued this week, the Commissioner has held that:

  • Oxford, Cambridge and Manchester Universities and Kings College and University College, London must disclose information relating to primate research. A complainant had sought such information from a number of universities, including information as to the numbers and species of primates referred to in returns to the Home Office, and as to current research. The Commissioner held that the exemptions relied upon by the universities were not engaged (variously, sections 38 (health and safety), 40 (personal data) and 43 (commercial interests) of FOIA).

 

  • The Department of Health must disclose civil servants’ submissions to Ministers in relation to proposed variations to consultants’ contracts as part of its ‘modernising medical careers’ initiative. Whilst the exemption in section 35(1)(a) (policy) of FOIA was engaged, the public interest in maintaining the exemption did not outweigh that in disclosure (FS50151464).

 

  • In contrast, the FCO was entitled to refuse to confirm or deny whether it held particular information as to identification of a voice heard in the video showing the beheading of Ken Bigley in Iraq in 2004. The FCO successfully relied upon sections 23(5) (information supplied by or relating to the security services) and 24(2) (national security) of FOIA (FS50188323).

OGC publishes Gateway Reviews

March 19th, 2009 by Timothy Pitt-Payne QC

Following a decision of the Information Tribunal issued on 19th February, the OGC has published two Gateway Reviews into the ID cards scheme.

The OGC announcement is here (with a link to the documents themselves). The Information Tribunal decision is here, on the Tribunal’s website. This case was previously the subject of a High Court appeal (from an earlier Tribunal decision).

Appeal in Data Sharing Case

January 28th, 2009 by Anya Proops

The Information Tribunal has been seized by an appeal against a decision of the Information Commissioner in a case on data sharing. The Appellant requested information from the Cabinet Office relating to a Cabinet Committee which had been set up to consider data sharing in the public sector. The Cabinet Office disclosed some information. However, it refused to disclose minutes of the Committee’s meetings on the basis that they were exempt from disclosure under section 35 FOIA (policy exemption). The Cabinet Office also refused to disclose the names of junior civil servants who attended the meeting on the basis that this information was exempt under section 40(2) FOIA. The Commissioner held that that the Cabinet Office’s refusal to disclose the minutes was lawful. The Appellant is now appealing the Commissioner’s decision to the Tribunal.

Information Commissioner’s Decision Notice:

http://www.ico.gov.uk/upload/documents/decisionnotices/2008/fs_50177136.pdf

Closed Sessions in High Court Appeals

January 27th, 2009 by Anya Proops

Last week the High Court heard an appeal brought by the Government against the decision of the Information Tribunal in O’Brien v Information Commissioner & Department for Business Enterprise and Regulatory Reform. The appeal concerned, in particular, whether the Tribunal had erred when applying the public interest test in the context of the exemptions afforded under section 35 (policy development) and section 42 (legal privilege) FOIA. During the course of the appeal, questions where raised by the Respondent (Mr O’Brien) as to whether the Court had jurisdiction to consider: (a) an annex to the decision which the Tribunal had stated should remain confidential to the Commissioner and BERR, pending any further appeal; and (b) the disputed information which had been withheld by BERR. It was argued on behalf of the Commissioner: (a) that the Court had jurisdiction to consider the confidential annex as that annex clearly formed part of the decision which was being appealed; and (b) that the Court had power to consider the disputed information in closed session pursuant to CPR 52.10(1). In summary, CPR 52.10(1) affords the court all the powers of the lower tribunal which is being appealed from, subject to any enactment which precludes the court enjoying such powers.  A judgment on the appeal is awaited.

Tribunal decision:

http://www.informationtribunal.gov.uk/DBFiles/Decision/i258/O’Brien%20v%20ICO%20(EA-2008-0011%20%5BFS50082127%5D)%20Decision%2007-10-08.pdf