asp.net c# view pdf : Break pdf into pages control SDK platform web page wpf windows web browser OPRA%20Alert%20Vol%203%20Issue%203%20(March%202011)%20with%20Toolkit0-part930

DuringtheweekofMarch13-19,2011,citizensacrosstheUnitedStatescelebrateSun-
shineWeek,anationalinitiativethatpromotesopenandtransparentgovernment. This
weekisatimetoreflectonNewJersey’sprogressinfosteringanopengovernmentat-
mosphere. TheOpenPublicRecordsAct(OPRA)providesmembersofthepublica
statutoryrightofaccesstorecordsmaintainedbyallNewJerseypublicagencies. The
NewJerseyLegislaturecreatedtheGovernmentRecordsCouncil(GRC)toprovide
oversightofOPRAandhowrecordscustodiansadheretoit. OPRAcontainsseveralrequirementstowhich
custodiansmustadherewhenrespondingtorecordsrequests,manyofwhichhaveunfortunatelybecome
commonviolationsof thelaw. . Currently,thenumberoneviolationof f OPRA iscustodians’failureto
properlyrespondtoOPRArequestsinwritingwithinthestatutorilymandatedseven(7)businessdays.
Thus,incelebrationofSunshineWeekandthefurtheranceoftheGRC’sdutiesunderOPRAtopro-
videguidelineforcustodiansincomplyingwiththelawgoverningaccesstopublicrecords,theExecutiveDi-
rectoroftheGRC(CatherineStarghill,Esq.)debutedeightstepstoensuringeasieraccesstogovernmentrec-
ordsintheMarch2011issueofNewJerseyMunicipalities,theNewJerseyLeagueofMunicipalities’maga-
zine. See e http://www.njslom.org/magazine/2011-03/TOC-0311.html. . Asanexpansionofthisarticle,
theGRCisproudtointroducethenewCustodian’sToolkit.
Thistoolkitisdesignedtoassistrecordscustodiansfacilitateeasieraccesstopublicrecords. Addition-
ally,thetoolkitaimstoassistrecordscustodianswithstayingorganized,trackingdeadlinesandmaintaining
compliancewiththelaw.
Part1oftheCustodian’sToolkitcontainsaneightstepguidelineforcustodianstofollowwhenre-
spondingtoOPRArequests. ThisguidelineescortscustodiansthroughthestepsnecessarytofulfillanOPRA
requestinfullcompliancewithOPRAfromthetimetherequestisreceivedthroughthefinalresponseto
grantordenyaccesstotherequestedrecords.
Part2oftheCustodian’sToolkitcontainsOPRAresponsetemplatesforavarietyofsituations. These
include:(continuedonpage2)
N
EW
C
USTODIAN
S
T
OOLKIT
S
HINES
L
IGHT ON
P
UBLIC
A
CCESS TO
R
ECORDS
G
OVERNMENT
R
ECORDS
C
OUNCIL
M
ARCH
2011
V
OLUME
3,I
SSUE
3
T
HE
OPRA A
LERT
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1.
Grantingaccesstotherequestedrecords;
2.
Denyingaccesstotherequestedrecords;
3.
Denyingaccesstotherequestbecausetherequestisinvalid;
4.
Seekingclarificationoftherequest;
5.
Seekinganextensionoftimetorespondtotherequestbeyondthestatutorilymandatedseven(7)business
days;and
6.
Assessingaspecialservicecharge.
Thesetemplatesareintendedtobeusedasguidance. Custodiansshouldtailorthetemplatestosuitthespe-
cificcircumstancesofeachrequestasnecessary. Custodiansarenotrequiredtousethesetemplateswhen
respondingtorequests,buttheyarenowavailableforconveniencepurposes.Theremainderofthiseditionof
TheOPRAAlertdebutsthenewCustodian’sToolkit,whichisalsoavailablefordownloadontheGRC’sweb-
siteathttp://www.nj.gov/grc/custodians/toolkit/.
P
AGE
2
V
OLUME
3,I
SSUE
3
GovernmentRecordsCouncilmembersare:
RobinBergTabakin,Esq.(Chairwoman)
OwnerofTechnoforce,LLCandformerState
PresidentoftheNewJerseyAssociationof
WomenBusinessOwners
LoriGrifa
CommissioneroftheNewJersey
DepartmentofCommunityAffairs
ChrisCerf
ActingCommissioneroftheNewJersey
DepartmentofEducation
GovernmentRecordsCouncilstaffmembersare:
CatherineStarghill,Esq.(ExecutiveDirector)
KarynGordon,Esq.(In-HouseCounsel)
DaraLownie(CommunicationsManager)
FrankCaruso(SeniorCaseManager)
HarlynneA.Lack,Esq.(CaseManager/StaffAttorney)
DarrylC.Rhone(CaseManager)
JohnStewart,Esq.(Mediator)
BrigitteHairston(Secretary)
GovernmentRecordsCouncil
101S.BroadStreet
P.O.Box819
Trenton,NewJersey08625-0819
Phone:609-292-6830
TollFree:1-866-850-0511
Fax:609-633-6337
E-mail:grc@dca.state.nj.us
www.nj.gov/grc
TheGovernmentRecordsCouncil(GRC)iscommittedtomakingtheOpenPublicRecordsAct(OPRA)
workforthecitizensofNewJersey.Sincethelaw’sinception,theGRChasworkedhardtomakegovern-
mentrecordsmoreeasilyaccessibletothepublic.TheGRCiscommittedtobeingthefacilitatorofopengov-
ernmentinNewJersey.
CreatedunderOPRA,theGovernmentRecordsCouncil:
 
Respondstoinquiriesandcomplaintsaboutthelawfromthepublicandpublicagencyrecordscustodians;
 
IssuespublicinformationaboutthelawandservicesprovidedbytheCouncil;
 
Maintainsatoll-freehelp-lineandwebsitetoassistthepublicandrecordscustodians;
 
Issuesadvisoryopinionsontheaccessibilityofgovernmentrecords;
 
Deliverstrainingonthelaw;
 
Providesmediationofdisputesaboutaccesstogovernmentrecords;and
 
Resolvesdisputesregardingaccesstogovernmentrecords.
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1
Custodian’sToolkit
AResourcetoFacilitateEasierAccesstoPublic
RecordsundertheOpenPublicRecordsAct
FirstEdition
March2011
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Custodian’sToolkit
FirstEdition–March2011
TableofContents
UseofthisToolkit
3
SECTION1–EightStepstoEnsuringEasierAccesstoGovernmentRecords
4
CalculateStatutoryResponseDeadline
5
DetermineIfRequestIsAValidOPRARequest
6
DetermineIfThereIsEnoughInformationToFulfillRequest
6
DetermineIfRequestRequiresSpecialServiceChargeOrWillSubstantially
DisruptAgencyOperations
7
ObtainRecordsResponsiveToRequest
7
DetermineIfRecordsorPortionsThereofFitWithinAnyofOPRA’s
Exemptions
8
Redact,ConverttoRequestedMedium,andCalculateAppropriateFees
8
ProvideRecordsByRequestedMethodofDeliveryorDenyAccessProviding
TheLegalBasisinWriting
8
SECTION2–OPRAResponseTemplates
10
GrantingAccess
11
DenyingAccess(ingeneral)
12
DenyingAccessBecauseRequestIsInvalid
19
SeekingClarification
21
RequestingAnExtensionofTime
22
AssessingASpecialServiceCharge
24
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UseofthisToolkit
TheGovernmentRecordsCouncilcreatedtheCustodian’sToolkittohelppublicagencyrecords
custodiansfulfilltheirlegalobligationsunderNewJersey’sOpenPublicRecordsAct(N.J.S.A.
47:1A-1etseq.).
Thistoolkitservesasareference,butisnotlegaladviceandisnotasubstituteforthesamefrom
publicagencylegaladvisors. Recordscustodiansshouldrelyonagencylegaladviceonissues
that could result in disputes, , particularly those e related d to a denial of f access s to government
records.
Theresponsetemplatesprovidedinthistoolkitaremeanttoserveasguidanceonhowtorespond
toOPRArequests. Custodiansmayneedtoeditthetemplatesasnecessarytoproperlyrespond
toindividualOPRArequests. However,thesetemplatesprovidecustodianswithasolidstarting
pointonhowtorespondtovarioustypesofrequests.
TheCouncil’swebsiteatwww.state.nj.us/grccontainsusefulinformationonthelaw,including
summariesofexceptionstodisclosure,copiesofgubernatorialExecutiveOrders,listsofstatutes
containingexceptions,andasearchengineofallpriorGRCdecisions. Custodians,theirlegal
advisors,andthepublicareurgedtocheckthewebsitewhenquestionsariseandshouldalsofeel
freetosubmittheirquestionstotheCouncilviaourtoll-freeinformationline(1-866-850-0511),
e-mail(grc@dca.state.nj.us),orregularmail(101SouthBroadStreet,P.O.Box819,Trenton,NJ
08625-0819).
Inadditiontothistoolkit,theCouncilhasotherresourcematerialsthatmaybeusefulinassisting
custodiansunderstandtherequirementsofOPRA. Thesematerialsincludethefollowingwhich
canbeaccessedfromtheGRC’swebsite.
AdditionalResources:
 AReadableVersionofOPRA
 OPRAPowerPointpresentation
 ExemptionsinOPRAhandout
 SpecialServiceChargehandout
 UsefulOPRACasesbySubjecthandout
 E-mailRetention–DARMCircular
 HandbookforRecordsCustodians
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4
SECTION1:
EightStepstoEnsuring
EasierAccesstoGovernment
Records
5
FacilitatingTransparencyinGovernment:EightStepstoEnsuringEasierAccessto
GovernmentRecords
OPRA allows open n access to records s maintained d by public agencies s with h some
limitations. Inanattempttoassistrecordscustodiansfacilitatethetransparencyingovernment
soughtbytheenactmentofOPRA,theGRChascreatedaneightstepguidelineforcustodiansto
follow when responding to OPRA requests. . These e steps s will l assist t records custodians s stay
organized, track k deadlines, and d ensure government records are e accessible e to the public c in
compliancewiththelaw.
1. CalculateStatutoryResponseDeadline
OPRAmandatesthatcustodiansgrantordenyaccessassoonaspossible,butnotlater
thansevenbusinessdaysafterreceivingtherequest.N.J.S.A.47:1A-5.i. Failuretoadheretothe
statutorilymandatedresponsetimeisbyfarthemostcommonviolationofOPRA,yettheeasiest
toavoid. UponreceivinganOPRArequest,acustodianshouldimmediatelycalculatetheseven
businessdayresponsedeadlinesothathe/sheisfullyawareofthelastpossibledateuponwhich
awrittenresponsetotherequestmustbeprovided.
DayoneofthecalculationbeginsthedayafterthecustodianreceivestheOPRArequest.
This calculation applies to the agency’s actual business days. . If f the agency is closed for a
holiday,thisdatedoesnotcounttowardsthesevenbusinessdaydeadline.
Additionally,custodiansshoulddesignatesomeonewhocanrespondtoOPRArequests
inthecustodian’sabsence. A A custodian’svacationorsickleavedoesnot absolvethepublic
agencyfromitsresponsibilitytofulfillOPRArequestsinatimelymanner.
6
AlthoughOPRAstatesthatacustodianmustgrantordenyaccesswithintheprescribed
time period, the GRC has expanded a a custodian’s s response e options s to o include e requests s for
clarification of f an n unclear request and requests s for an n extension of f time beyond d the seven
businessdays.
Therearespecificrecordsthatfollowadifferentresponsedeadlinerequirement. OPRA
mandatesthatimmediateaccessbegrantedtobudgets,bills,vouchers,contractsandgovernment
employee salary information. . N.J.S.A. . 47:1A-5.e. . Immediate e access means s “on n the e spot,”
unlesstherecordsareinstorage,inuse,orrequiremediumconversionthatcannotbeperformed
immediately by y the public agency. . In n these e instances, immediate access records must t be
providedasimmediatelyaspossibleafterthecustodiannotifiestherequestorinwritingthatan
extensionoftheimmediateaccessrequirementisneededandforwhatreason.
2. DetermineIfRequestIsAValidOPRARequest
A validOPRA request seeks specific, identifiable government t records. . ValidOPRA
requestsdonotaskquestions,donotseekinformation,anddonotrequireacustodiantoconduct
anyresearchorcreateanewrecord. TheGRChasroutinelyupheldacustodian’sdenialofa
requestonthebasisthatitisinvalidbecauseitasksquestions,seeksinformation,andrequires
thecustodiantoconduct researchor createanewrecord. . UponreceivinganOPRA A request,
custodiansshoulddetermineiftherequestfitsintoanyofthesecategoriesandrespondinwriting
accordingly.
3. DetermineIfThereIsEnoughInformationToFulfillRequest
Acustodianmaybeunsureofwhichspecificrecordsarebeingrequested. OPRAallows
acustodiantoseekclarificationfromtherequestorwhenthisisthecase. Acustodian’srequest
7
forclarificationmustbeinwritingwithinthesevenbusinessdayresponsetime. Thecustodian’s
responsetimestopsuntiltherequestorprovidesclarification.
4. Determine e If Request t Requires Special Service Charge Or r Will l Substantially
DisruptAgencyOperations
OPRAallowscustodianstoachargespecialservicechargeonlywhenfulfillingarequest
requiresanextraordinaryamountoftimeandeffort. Specialservicechargescannotbesetin
advance byordinancebecausetheyaredeterminedonacase-by-casebasis. . TheGRC C has a
resourceonlinewith14questionsacustodianshouldanswertoassistindeterminingifaspecial
servicechargeiswarranted(http://www.nj.gov/grc/pdf/OPRASpecialServiceCharge.pdf).
OPRA’ssubstantialdisruptionprovisionallowsacustodiantodenyaccesstoarequest
thatwouldsubstantiallydisrupttheoperationsoftheagency,butonlyafterattemptingtoreacha
reasonablesolutionthataccommodatestheinterestsofboththerequestorandtheagency. These
aresubjectivedeterminationsbasedonanagency’sresourcesavailabletofulfillarequestandare
usually applied to extreme e requests s for r thousands of records. The e GRC C has only upheld d a
custodian’s denial of access s based on substantial l disruption of an n agency’s operations in n a
handfuloftimessince2002.
5. ObtainRecordsResponsiveToRequest
It is reasonable e that t a a custodian will l not t have physical custody y of f every y record
maintainedbytheagency. As s such,acustodianshoulddocumentattemptstogainaccessto
recordsmaintainedelsewhereandensurethattherequestorreceivestherequestedrecords. A
custodian cannot be e held d responsible if another employee obstructs access, as s long g as s the
custodiancanproveattemptsmadetogainaccesstotherecords. TheGRCwillholdtheofficer,
8
official or employee e who obstructs s access accountable, , not the e custodian n who diligently
attemptedtoobtaintherecordsresponsive.
6. DetermineIfRecordsorPortionsThereofFitWithinAnyofOPRA’sExemptions
AllgovernmentrecordsaresubjecttopublicaccessunlesstheyfitwithinoneofOPRA’s
24 specific exemptions. . A A list t of f the e 24 4 exemptions is located on the GRC’s website e at
http://www.nj.gov/grc/pdf/OPRAExemptions.pdf.
7. Redact,ConverttoRequestedMedium,andCalculateAppropriateFees
Ifthereareportionsofarecordthatareexemptfromdisclosure,acustodianmustredact
thoseportionspriortoprovidingaccess. Instructionsforproperlyredactingrecordscanbefound
in
the
Custodian
Handbook
located
on
the
GRC’s
website
at
http://www.nj.gov/grc/custodians/handbook/.
RequestorsarepermittedunderOPRAtoseekrecordsinspecificmediums,suchaspaper
orelectroniccopies. Acustodianmustpermitaccessinthemediumrequested. . N.J.S.A.47:1A-
5.d. Ifacustodiandoes s notmaintaintherecordintherequestedmedium,he/shemusteither
converttherecordtotherequestedmedium(charginganyrelatedcostsfortheconversion)or
provideaccessinsomeother“meaningfulmedium”–meaningfultotherequestor.
TheOPRAcopyfeeschedulehasrecentlychangedtothefollowing:
 $0.05perpageforlettersizedpagesandsmaller;
 $0.07perpageforlegalsizedpagesandlarger;
 Iftheactualcosttoproducepapercopiesexceedsthe$0.05and$0.07rates,custodians
maychargetheactualcostofduplication;
 ElectronicrecordsareFREEOFCHARGE(i.e.recordssentviae-mailandfax);
 Actualcosttoproviderecordsinanothermedium(i.e.computerdisc,CD-ROM,DVD).
8. ProvideRecordsByRequestedMethodofDeliveryorDenyAccessProviding
TheLegalBasisinWriting
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