Table of Contents 3 4 5 6 7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 24 25 26 27 28 29 30 31 32 33 34 35 36 37 38 39 40 41 42 43 44 45 46 47 48 49 50 51 52 53 54 55 56 57 58 59 60 61 62 63 64 65 66 67 68 69 70 71 72 73 74 75 76 77 78 79 80 81 82 83 84 85 86 87 88 89 90 91 92 93 94 95 96 97 98 99 100 101 102 103 104 105 106 107 108 109 110 111 112 113 114 115 116 117 118 119 120 121 122 123 124 125 126 127 128 129 130 131 132 133 134 135 136 137 138 139 140 141 142 143 144 145 146 147 148 149 150 151 152 153 154 155 156 157 158 159 160 161 162 163 164 165 166 167 168 169 170 171 172 173 174 175 176 177 178 179 180 181 182 183 184 185 186

Guide to FOIP-Chapter 3

GUIDE TO FOIP The Freedom of Information and Protection of Privacy Act Chapter 3 Access to Records

Table of Contents Overview ....................................................................................................................................................................... 1 Who Has The Right of Access ..............................................................................................................................2 Section 5: Right of Access.................................................................................................................................. 3 Processing Access to Information Requests ...................................................................................................5 Name of Applicant is Personal Information................................................................................................6 Reason for Request Not Relevant...................................................................................................................7 Questions in Access to Information Requests ...........................................................................................7 Verifying Identity ................................................................................................................................................... 8 Requests Not on “Form A” ............................................................................................................................. 10 Search for Records................................................................................................................................................. 12 IPC Review of Search Efforts .......................................................................................................................... 13 Searching Records of Employees................................................................................................................. 17 Government Records in Personal Email Accounts ................................................................................ 17 Personal Records in Government Email Accounts...................................................................... 21 Records Not Responsive ................................................................................................................................. 26 Creating Records................................................................................................................................................ 28 Section 5.1: Duty to Assist .................................................................................................................................. 30 Subsection 5.1(1)................................................................................................................................................ 30 Subsection 5.1(2)................................................................................................................................................ 34 Section 6: Application........................................................................................................................................... 35 Subsection 6(1)(a) .............................................................................................................................................. 35 Subsection 6(1)(b) .............................................................................................................................................. 37 Clarifying vs Narrowing ........................................................................................................................ 38 Subsection 6(2) ................................................................................................................................................... 42 Subsection 6(3) ................................................................................................................................................... 42 Clarifying vs Narrowing ........................................................................................................................ 43 Subsection 6(4) ................................................................................................................................................... 46 Section 7: Response Required........................................................................................................................... 46

Subsection 7(1) ................................................................................................................................................... 48 Subsection 7(2) ................................................................................................................................................... 48 Calculating 30 Days ................................................................................................................................ 49 Subsection 7(2)(a) .............................................................................................................................................. 51 Subsection 7(2)(b).............................................................................................................................................. 52 Subsection 7(2)(c) .............................................................................................................................................. 53 Subsection 7(2)(d) .............................................................................................................................................. 54 Subsection 7(2)(e) .............................................................................................................................................. 56 Subsection 7(2)(f) ............................................................................................................................................... 57 Subsection 7(2)(g) .............................................................................................................................................. 58 Subsection 7(3) ................................................................................................................................................... 59 Subsection 7(4) ................................................................................................................................................... 59 Subsection 7(5) ................................................................................................................................................... 62 Section 7.1: Applications Deemed Abandoned .......................................................................................... 63 Subsection 7.1(1)................................................................................................................................................ 64 Subsection 7.1(2)................................................................................................................................................ 65 Subsection 7.1(3)................................................................................................................................................ 66 Section 8: Severability........................................................................................................................................... 67 Section 9: Fee........................................................................................................................................................... 71 Subsection 9(1) ................................................................................................................................................... 71 Subsection 9(2) ................................................................................................................................................... 72 Creating a Fee Estimate ........................................................................................................................ 72 Subsection 9(3) ................................................................................................................................................... 78 Subsection 9(4) ................................................................................................................................................... 78 Subsection 9(5) ................................................................................................................................................... 79 Fee Waivers ............................................................................................................................................... 79 Section 10: Manner of Access ........................................................................................................................... 87 Subsection 10(1)................................................................................................................................................. 88 Subsection 10(2)................................................................................................................................................. 88 Subsection 10(3)................................................................................................................................................. 90

Subsection 10(4)................................................................................................................................................. 92 Section 11: Transfer of Application ................................................................................................................ 93 Subsection 11(1)................................................................................................................................................. 94 Subsection 11(2)................................................................................................................................................. 95 Subsection 11(3)................................................................................................................................................. 96 Section 12: Extension of Time ........................................................................................................................... 97 Subsection 12(1)(a)............................................................................................................................................ 98 Subsection 12(1)(a)(i) ............................................................................................................................. 99 Subsection 12(1)(a)(ii) .......................................................................................................................... 101 Subsection 12(1)(b) ......................................................................................................................................... 104 Subsection 12(1)(c) .......................................................................................................................................... 107 Subsection 12(2) ............................................................................................................................................... 108 Subsection 12(3) ............................................................................................................................................... 109 Section 31: Individual’s Access to Personal Information....................................................................... 111 Subsection 31(1) ............................................................................................................................................... 111 Subsection 31(2) ............................................................................................................................................... 112 Section 45.1: Power to Authorize a Government Institution to Disregard Applications or Requests .................................................................................................................................................................. 118 Subsection 45.1(1) ........................................................................................................................................... 119 Subsection 45.1(2)(a) ...................................................................................................................................... 120 Subsection 45.1(2)(b) ...................................................................................................................................... 124 Subsection 45.1(2)(c) ...................................................................................................................................... 128 Section 49: Application for Review ................................................................................................................ 133 Subsection 49(1)(a) .......................................................................................................................................... 135 Subsection 49(1)(a.1) ...................................................................................................................................... 137 Subsection 49(1)(a.2) ...................................................................................................................................... 138 Subsection 49(1)(a.3) ...................................................................................................................................... 139 Subsection 49(1)(a.4) ...................................................................................................................................... 139 Subsection 49(1)(b) ......................................................................................................................................... 142 Subsection 49(1)(c) .......................................................................................................................................... 142

Subsection 49(2) ............................................................................................................................................... 143 Subsection 49(3) ............................................................................................................................................... 144 Subsection 49(4) ............................................................................................................................................... 145 Section 50: Review or Refusal to Review..................................................................................................... 146 Subsection 50(1) ............................................................................................................................................... 147 Subsection 50(2) ............................................................................................................................................... 148 Subsection 50(2)(a) ............................................................................................................................... 149 Subsection 50(2)(a.1) ........................................................................................................................... 152 Subsection 50(2)(a.2) ........................................................................................................................... 152 Subsection 50(2)(a.3) ........................................................................................................................... 152 Subsection 50(2)(a.4) ........................................................................................................................... 153 Subsection 50(2)(a.5) ........................................................................................................................... 153 Subsection 50(2)(a.6) ........................................................................................................................... 154 Subsection 50(2)(a.7) ........................................................................................................................... 155 Subsection 50(2)(b) ......................................................................................................................................... 155 Subsection 50(2)(c) .......................................................................................................................................... 157 Section 57: Appeal to the Court ..................................................................................................................... 158 Section 59: Exercise of Rights by Other Persons ...................................................................................... 161 Subsection 59(a) ............................................................................................................................................... 162 Subsection 59(b)............................................................................................................................................... 164 Subsection 59(c) ............................................................................................................................................... 166 Subsection 59(d)............................................................................................................................................... 168 Subsection 59(e) ............................................................................................................................................... 171 Section 65: Access to Manuals ........................................................................................................................ 174 Subsection 65(1) ............................................................................................................................................... 174 Subsection 65(2) ............................................................................................................................................... 176 Section 65.1: Records Available Without an Application ...................................................................... 177 Routine Disclosure........................................................................................................................................... 177 Active Dissemination ...................................................................................................................................... 178

Office of the Saskatchewan Information and Privacy Commissioner. Guide to FOIP, Chapter 3, Access to Records. Updated 5 May 2023. 1 OVERVIEW This Chapter explains access to records under The Freedom of Information and Protection of Privacy Act (FOIP). What follows is non-binding guidance. Every matter should be considered on a case-by-case basis. This guidance is not intended to be an exhaustive authority on the interpretation of these provisions. Government institutions may wish to seek legal advice when deciding on how to interpret the Act. Government institutions should keep section 61 of FOIP in mind. Section 61 places the burden of proof for establishing that access to a record may or must be refused on the government institution. For more on the burden of proof, see the Guide to FOIP, Chapter 2, “Administration of FOIP”. This is a guide. The tests, criteria and interpretations established in this Chapter reflect the precedents set by the current and/or former Information and Privacy Commissioners in Saskatchewan through the issuing of Review Reports. Court decisions from Saskatchewan affecting The Freedom of Information and Protection of Privacy Act (FOIP) will be followed. Where this office has not previously considered a section of FOIP, the Commissioner looked to other jurisdictions for guidance. This includes other Information and Privacy Commissioners’ Orders, Reports and/or other relevant resources. In addition, court decisions from across the country are relied upon where appropriate. This Chapter will be updated regularly to reflect any changes in precedent. This office will update the footer to reflect the last update. Using the electronic version directly from our website will ensure you are always using the most current version.

Office of the Saskatchewan Information and Privacy Commissioner. Guide to FOIP, Chapter 3, Access to Records. Updated 5 May 2023. 2 WHO HAS THE RIGHT OF ACCESS Any person has a right of access to any records in the possession or control of a government institution. There are no limits on who can make an access to information request. An applicant means a person who makes a written request for access to information under section 6 of The Freedom of Information and Protection of Privacy Act (FOIP).0F 1 Government institutions should be aware of section 59 of FOIP which authorizes other individuals to exercise the rights of applicants under FOIP in specific circumstances. This includes making an access to information request and receiving access to information (including the applicant’s personal information) and addressing privacy matters on behalf of the applicant. These circumstances are outlined at subsections 59(a) through (e) of FOIP. For example, where a power of attorney has been granted, the power of attorney may exercise the rights of the individual under FOIP if the exercise of the right or power relates to the powers and duties of the power of attorney. For more on section 59, see Section 59: Exercise of Rights by Other Persons later in this Chapter. For more on making an access to information request, see Section 6: Application later in this Chapter. The applicant can be any person including individuals residing inside or outside of Saskatchewan, media outlets, corporations, political parties, etc. In addition, FOIP does not specify a minimum age, which means that minors may also make an access request. IPC Findings In Disregard Decision 285-2020, 286-2020, 287-2020, 288-2020, 289-2020, the Commissioner considered an application to disregard five access to information requests made by the Ministry of Parks, Culture and Sport (PCS). While presenting its arguments to the Commissioner that the requests were repetitious, systematic, vexatious and not made in good faith, PCS asserted that all five requests came from the Suffern Lake Cabin Owners Association (SLCOA). The applicants (two individuals) asserted that they made the requests as individuals and not as part of the SLCOA. After considering the arguments of both parties, the Commissioner found that there were two separate applicants in the matter. As such, only the access to information requests submitted by each individual were considered when reviewing whether the five requests met the tests for subsections 45.1(2)(a), (b) and (c) of 1 The Freedom of Information and Protection of Privacy Act, SS 1990-91, c F-22.01 at subsection 2(1)(a).

Office of the Saskatchewan Information and Privacy Commissioner. Guide to FOIP, Chapter 3, Access to Records. Updated 5 May 2023. 3 FOIP. When assessing whether there was an abuse of the right of access, the Commissioner only considered the actions of each applicant separately and not as a group. As a result, the Commissioner found that the five access to information requests did not meet the tests for subsections 45.1(2)(a), (b) or (c) of FOIP and refused the PCS’ application to disregard them. The 30-day clock for processing the five access to information requests resumed as of the date of the Commissioner’s decision. Section 5: Right of Access Right of Access 5 Subject to this Act and the regulations, every person has a right to and, on an application made in accordance with this Part, shall be permitted access to records that are in the possession or under the control of a government institution. Section 5 of FOIP establishes a right of access by any person to records in the possession or control of a government institution, subject to limited and specific exemptions, which are set out in FOIP. The Supreme Court of Canada has interpreted access to information laws as quasiconstitutional. It follows that as fundamental rights, the rights to access and to privacy are interpreted generously, while the exceptions to these rights must be understood strictly.2 Access is defined as the right of an individual (or the individual’s lawfully authorized representative) to view or obtain copies of the records in the possession or control of a government institution including the individual’s personal information.3 A record is defined at subsection 2(1)(i) of FOIP as “a record of information in any form and includes information that is written, photographed, recorded or stored in any manner, but does not include computer programs or other mechanisms that produce records.” A “record” includes transitory records that exist at the time of an access to information request. Transitory records are records of temporary usefulness that are needed only for a limited period of time, to complete a routine task or to prepare an ongoing document. This 2 Remarks of the Right Honourable Beverley McLachlin, P.C., Chief Justice of Canada, Access to Information and Protection of Privacy in Canadian Democracy, May 5, 2009, also cited in Office of the Saskatchewan Information and Privacy Commissioner (SK OIPC) Review Report F-2010-002 at [44]. 3 SK OIPC, 2012-2013 Annual Report, Appendix 3.

Office of the Saskatchewan Information and Privacy Commissioner. Guide to FOIP, Chapter 3, Access to Records. Updated 5 May 2023. 4 can include exact copies of official records made for convenience of reference.4 Transitory records can include: • Information in a form used for casual communication. • Versions that were not communicated beyond the person who created the document. • Copies used for information, reference or convenience only. • Annotated drafts where the additional information is found in subsequent versions (except where retention is necessary as evidence of approval or the evolution of the document). • Source records used for updating electronic records. • Electronic versions of records where a hard copy is maintained in hard copy files. • Poor quality photographs which do not contribute to the purpose of the photography.5 The right of access does not apply to records that are excluded under section 3 of FOIP or where another provision prevails over FOIP under section 23 of FOIP or section 12 of The Freedom of Information and Protection of Privacy Regulations. For more on this see the Guide to FOIP, Chapter 1, “Purposes and Scope of FOIP”. The right of access is not absolute. There will be circumstances where information may be legitimately withheld by government institutions. The right of access is subject to limited and specific exemptions that are set out in Part III of FOIP. This includes sections 13 to 22 of FOIP. It also includes the personal information provisions at subsections 29(1), 30(1), and 31(2) in Part IV of FOIP. The exemptions all have specific criteria or tests that need to be met before an exemption may be applied. For more on exemptions see Part III and Part IV of FOIP or the Guide to FOIP, Chapter 4, “Exemptions from the Right of Access”. The reason an applicant wants specific information is not relevant when a government institution processes an access to information request. To require applicants to demonstrate a need for the information would erect a barrier to access. FOIP grants an open-ended or unqualified right of access to public information of which government institutions are only the stewards, 6 unless it is found that the access to information request should be disregarded pursuant to section 45.1 of FOIP. For more on applications to disregard see Section 45.1: 4 Provincial Archives of Saskatchewan, Records Classification and Retention Schedules, Administrative Records Management System 2014 at p. 13. Available at https://www.saskarchives.com/servicesgovernment/records-classification-and-retention-schedules. 5 Drapeau, Professor Michel W., Racicot, Me Marc-Auréle, Federal Access to Information and Privacy Legislation Annotated 2020, (Toronto: Thomson Reuters 2019) at p. 1-628. 6 Office of the Ontario Information and Privacy Commissioner (ON IPC) Order M-618 at p.16-17.

Office of the Saskatchewan Information and Privacy Commissioner. Guide to FOIP, Chapter 3, Access to Records. Updated 5 May 2023. 5 Power to Authorize a Government Institution to Disregard Applications or Requests later in this Chapter. PROCESSING ACCESS TO INFORMATION REQUESTS When responding to access to information requests, it is important that a government institution assign responsibilities for the various processing steps. Government institutions should develop a procedure for processing requests. The procedure should include steps that ensure legislated timelines and other requirements of FOIP are met. Government institutions should also create and retain documentation on their processing of requests.7 This becomes important in the event of a review pursuant to section 49 of FOIP or a court appeal pursuant to section 57 of FOIP. Depending on the request and the type of records requested there may be several steps that need to be taken such as giving notice to third parties. However, the most basic of access to information requests will follow these broad steps: 1. Receive an access to information request. 2. Assess if fees are required. 3. Search and gather responsive records. 4. Review and prepare the records for disclosure. 5. Provide a response to the applicant. The Ministry of Justice and Attorney General developed a checklist titled, Help with FOIP - Access Request Checklist. It provides the steps to take when a government institution receives an access to information request. It can be modified to suit the needs of the institution and the circumstances of the access to information request. In addition, see FOIP/LAFOIP Flow Chart. The Ministry of Justice and Attorney General has also developed a resource titled, In the Door, Out the Door: A User’s Guide to Processing Access to Information Requests under FOIP and LA 7 Service Alberta, FOIP Guidelines and Practices: 2009 Edition, Chapter 3, at p. 68.

Office of the Saskatchewan Information and Privacy Commissioner. Guide to FOIP, Chapter 3, Access to Records. Updated 5 May 2023. 6 FOIP. It provides guidance on processing access to information requests from the time they are received, to sending the section 7 decision to the applicant. Name of Applicant is Personal Information Government institutions should be careful when sharing the name of an applicant who has submitted an access to information request. When handling an access to information request, the government institution must protect the identity of the applicant, along with the applicant’s contact information that appears on the access to information request. As the name and contact information of the applicant, in most cases, is their personal information pursuant to subsection 24(1) of FOIP, it is subject to the privacy protections in Part IV of FOIP. This includes restrictions on the collection, use and disclosure of that personal information. For more on the obligations on government institutions to protect personal information, see the Guide to FOIP, Chapter 6, “Protection of Privacy”. The data minimization and need-to-know principles should be abided by when deciding who to share the applicant’s personal information with. The key question to ask is, does the person I am sharing this with need to know the identity of the applicant or their contact information to process the request or can it be done without sharing it? If the request can still be processed without sharing it, then it should not be shared. When considering sharing this personal information internally, section 28 of FOIP should be abided by. If considering sharing it externally (e.g., with another government institution), there must be authority to do so under subsection 29(2) of FOIP. For more on these two principles and section 28 and subsection 29(2) of FOIP, see the Guide to FOIP, Chapter 6, “Protection of Privacy”. All applicants are equal under FOIP. The identity of the applicant should not change how the government institution responds to the access to information request (e.g., the applicant is the media so the government institution decides not to release information it generally would release). IPC Findings In Investigation Report 278-2017, the Commissioner investigated an alleged breach of privacy involving Saskatchewan Power Corporation (SaskPower). The complaint alleged that when the individual sent an access to information request to SaskPower, it then sent a briefing note to the Minister responsible for SaskPower. The briefing note contained details about the access to information request and included the applicant’s first and last name. Upon investigation, the Commissioner found that the name of an applicant was personal

Office of the Saskatchewan Information and Privacy Commissioner. Guide to FOIP, Chapter 3, Access to Records. Updated 5 May 2023. 7 information and referred to previous Review Reports LA-2012-002, 156-2017 and 267-2017. Furthermore, the Commissioner found that SaskPower did not appropriately consider the need-to-know and data minimization principles when the applicant’s personal information was disclosed to the Minister. For more on the need-to-know and data minimization principles, see the Guide to FOIP, Chapter 6, “Protection of Privacy”. Reason for Request Not Relevant The reason an applicant wants specific information is not relevant when processing an access to information request. To require applicants to demonstrate a need for the information would erect a barrier to access. FOIP grants an open-ended or unqualified right of access to public information of which government institutions are only the stewards.8 Access to information legislation exists to ensure government accountability and to facilitate democracy. Therefore, where an applicant’s motivation is fact finding or to obtain proof of wrongdoing, these purposes cannot be considered unreasonable or illegitimate. Applicants may seek information to assist them in a dispute with a government institution, or to publicize what they consider to be inappropriate or problematic decisions or processes undertaken by a government institution.9 Questions in Access to Information Requests FOIP does not require government institutions to answer questions that come in an access to information request.10 For example, access to information requests that ask why the government institution made certain decisions. FOIP provides access to records and unless answers are in a record, the government institution is not required under FOIP to answer them. However, a government institution does have a duty to answer questions as to whether it has responsive records.11 8 ON IPC Order M-618 at p.p. 16 and 17. 9 SK OIPC Review Report 053-2015 at [32]. 10 SK OIPC Review Report 091-2015 at [15]. 11 AB IPC Order F2014-39 at [22].

Office of the Saskatchewan Information and Privacy Commissioner. Guide to FOIP, Chapter 3, Access to Records. Updated 5 May 2023. 8 IPC Findings In Disregard Decision 130-2021, the Commissioner considered an application to disregard an access to information request from the Rural Municipality of North Qu’Appelle No. 187 (RM). Although the matter involved The Local Authority Freedom of Information and Protection of Privacy Act (LA FOIP), the findings also apply to FOIP. While considering the application and the question of whether the applicant’s access to information requests (current and previous) were repetitious, the Commissioner noted that the applicant’s previous access to information requests pose several questions. The applicant had raised that previous access to information requests had not been completed answered or replied to. Furthermore, where the applicant was not satisfied with the answers to the questions, the applicant asked them again in subsequent requests. The Commissioner noted at paragraph [19] of the Decision that LA FOIP does not require an RM to answer questions that come in an access to information request. For example, why the RM made certain decisions. LA FOIP is about gaining access to records. Therefore, the RM was not required under LA FOIP to answer questions by the Applicant. However, the RM did have a duty to answer questions as to whether it had responsive records. Verifying Identity Government institutions should verify the identity of an applicant before giving the applicant access to the applicant’s own personal information, especially if the information is sensitive.12 Subsection 31(1)(b) of FOIP also requires that access to one’s own personal information will be provided upon giving sufficient proof of his or her identity. Authentication is the process of proving or ensuring that someone is who they purport to be. Authentication typically relies on one or more of the following: • Something you know (e.g., password, security question, PIN, mother’s maiden name). • Something you have (e.g., smart card, key, hardware token). • Something you are (e.g., biometric data, such as fingerprints, iris scans, voice patterns).13 12 Service Alberta, FOIP Guidelines and Practices: 2009 Edition, Chapter 3 at p. 89. 13 Service Alberta, Bulletin #17, Consent and Authentication at p. 2.

Office of the Saskatchewan Information and Privacy Commissioner. Guide to FOIP, Chapter 3, Access to Records. Updated 5 May 2023. 9 In some cases, one of these factors may be used alone to authenticate an individual. For others, combinations may be used. There are multiple ways to confirm the identity of the applicant. The degree of authentication should be appropriate to the sensitivity of the personal information involved. Social Insurance Numbers Government institutions should be careful not to collect information beyond that required to fulfill the purpose to comply with section 25 of FOIP and the data minimization principle. Identification purposes are not in themselves considered a legitimate basis for requiring an individual to provide a social insurance number. If a social insurance number is being requested for identification purposes only, the government institution must not in any way suggest that the social insurance number is required as a condition for providing records or services. Even where it is reasonable to ask an applicant for proof of identity, a request for a social insurance number must be presented and treated as optional. In verifying identity, a government institution may request the social insurance number as one option among others, but never as a requirement.14 Saskatchewan Health Services Number Again, government institutions should be careful not to collect information beyond what is required to fulfill the purpose to comply with section 25 of FOIP and the data minimization principle. Like social insurance numbers above, government institutions should not require an applicant to produce a health services number as a condition of receiving records. Section 11 of The Health Information Protection Act provides that an individual has a right to refuse to produce their health services number to any person, other than to a trustee who is providing a health service, as a condition of receiving a service unless the production is otherwise authorized by an Act or regulation.15 14 Office of the Privacy Commissioner of Canada, Fact Sheets - Best Practices for the use of Social Insurance Numbers in the private sector. Available at Best Practices for the use of Social Insurance Numbers in the private sector - Office of the Privacy Commissioner of Canada. Also cited in SK OIPC Investigation Report F-2012-001 at [33]. 15 See The Health Information Protection Act, SS 1999, c H-0.021 at section 11.

Office of the Saskatchewan Information and Privacy Commissioner. Guide to FOIP, Chapter 3, Access to Records. Updated 5 May 2023. 10 For more on verifying identity, see the Ministry of Justice and Attorney General resource, Verifying the Identity of an Applicant. See also Subsection 59(e) later in this Chapter. IPC Findings In Investigation Report F-2012-001, the Commissioner investigated an alleged breach of privacy involving Saskatchewan Telecommunications (SaskTel). The complaint alleged that SaskTel was over collecting a customer’s personal information as part of its identity verification process. Along with other findings, the Commissioner found that SaskTel did not have authority to collect the complainant’s Saskatchewan Health Services Number. Furthermore, that SaskTel did not provide a satisfactory explanation as to why it needed to collect other unique identifiers over the phone since it could not verify the accuracy of same. The Commissioner recommended that SaskTel conduct a privacy impact assessment, revise its privacy policy and prepare a script to ensure that its customers understand what is optional when providing proof of identity. Furthermore, that SaskTel purge its system of all personal information and personal health information of its customers and third parties collected without the requisite authority within 60 days. Requests Not on “Form A” Applicants do not have to submit an access to information request on Form A for it to be considered a request under FOIP. A request need only be in writing and include the elements found on Form A to be a valid request under LA FOIP. Form A includes: • First and last name. • Name of organization or company (if applicable). • Mailing address. • Telephone number. • Email address. • The type of information being requested (personal or general). • The government institution the request is being made to. • The records being requested. • The time period of the request. • Signature of the applicant. The Legislation Act establishes general rules that govern the interpretation of all statutory instruments in the province of Saskatchewan. Section 2-26 of The Legislation Act provides

Office of the Saskatchewan Information and Privacy Commissioner. Guide to FOIP, Chapter 3, Access to Records. Updated 5 May 2023. 11 that it is not mandatory for an individual to use a prescribed form provided certain criteria are met: 2-26 If an enactment requires the use of a specified form, deviations from the form do not invalidate a form used if: (a) the deviations do not affect the substance; (b) the deviations are not likely to mislead; and (c) the form used is organized in the same way or substantially the same way as the form the use of which is required.16 IPC Findings In Review Report 150-2018, the Commissioner reviewed a denial of access involving the Ministry of Social Services (Social Services). Social Services was asserting that FOIP did not apply and the access to information requests were not requests under FOIP. As part of the review, the Commissioner considered whether the internal form created by Social Services were still access to information request forms under FOIP. The Commissioner found that by creating a separate form, Social Services had not removed the requests from the scope of FOIP. Regardless of which form was submitted by an applicant (the prescribed Form A or Social Services’ form), FOIP was engaged when the form includes the elements of Form A and is recognized as a request for access to information. By creating its own separate process and form, Social Services was deciding in advance, independently, when FOIP applied and when it did not and was attempting to remove an applicant’s right to have that decision reviewed by the Commissioner. In conclusion, the Commissioner found that all access requests submitted to Social Services on the Child and Family Programs Access to Information Request forms were access requests pursuant to subsection 6(1) of FOIP. In Review Report 278-2019, the Commissioner reviewed a denial of access involving the Resort Village of Candle Lake (RVCL). An applicant sought access to documentation related to a cheque including the invoice for the amount, copy of the cheque, the council resolution and retainer agreement. In the process of handling the request, the applicant made some modifications to the request and added some additional things via emails and letters. The RVCL responded requesting the applicant remit the additions on the prescribed Form A as it would help in clarifying the request in detail. The applicant requested the Commissioner review the RVCL’s decision. The Commissioner found that to qualify as a request under LA 16 The Legislation Act, SS 2019, c L-10.2 at subsection 2-26.

Office of the Saskatchewan Information and Privacy Commissioner. Guide to FOIP, Chapter 3, Access to Records. Updated 5 May 2023. 12 FOIP, it is not required that the request be submitted on a prescribed form, provided it has all the required elements found on the prescribed form. RVCL recognized the applicant’s email requesting records as a request under LA FOIP when it advised the applicant it would be processed in that manner. Furthermore, if RVCL did not intend to process the emailed request as a request under LA FOIP, it should not have requested and accepted the applicant’s $20 application fee. SEARCH FOR RECORDS Subsection 5.1(1) of FOIP requires a government institution to respond to an applicant’s access to information request openly, accurately and completely. This means that government institutions should make reasonable effort to not only identify and seek out records responsive to an applicant’s access to information request, but to explain the steps in the process. The threshold that must be met is one of “reasonableness”. In other words, it is not a standard of perfection, but rather what a fair and rational person would expect to be done or consider acceptable.126F 17 A reasonable search is one in which an employee, experienced in the subject matter, expends a reasonable effort to locate records which are reasonably related to the request. A reasonable effort is the level of effort you would expect of any fair, sensible person searching areas where records are likely to be stored. What is reasonable depends on the request and related circumstances.127F 18 It is not reasonable for a government institution to rely on an employee’s opinion that no records exist when deciding not to search. A government institution should not rely on anyone’s memory as to whether records were created. It cannot know in advance of doing a search whether an individual will be right about whether records were created. All an individual can say, with any reasonable certainty, is whether he or she personally created any records. Otherwise, the individual is merely expressing an opinion as to the likelihood of whether anyone else created records. 17 SK OIPC Review Report F-2012-002 at [27]. 18 SK OIPC Review Reports F-2008-001 at [38] and F-2012-002 at [26].

Office of the Saskatchewan Information and Privacy Commissioner. Guide to FOIP, Chapter 3, Access to Records. Updated 5 May 2023. 13 A government institution cannot absolve itself of its duty to search based on an individual’s opinion about whether records were created. If a government institution could forego its duty to search based on such an opinion, the Act would be frustrated.19 IPC Review of Search Efforts Subsection 49(1)(a) of FOIP provides that applicants can request a review by the Commissioner if they are not satisfied with the decision of the government institution pursuant to sections 7, 12 or 37. The matter of search efforts is covered in subsection 7(2)(e) of FOIP. Subsection 7(2)(e) of FOIP provides that a government institution can respond to an applicant’s access to information request indicating that access is denied because records do not exist. Applicants must establish the existence of a reasonable suspicion that a government institution is withholding a record or has not undertaken an adequate search for a record. Sometimes this can take the form of having possession of or having previously seen a document that was not included with other responsive records or media reports regarding the record. The applicant is expected to provide something more than a mere assertion that a document should exist.128F 20 A review by the Commissioner of a government institution’s search efforts can occur in one or both of the following situations: 1. The government institution issued a section 7 decision letter indicating records do not exist. 2. The applicant believes there are more records than what the government institution provided. The focus of an IPC search review is whether the government institution conducted a reasonable search. As noted above, a reasonable search is one in which an employee, experienced in the subject matter, expends a reasonable effort to locate records which are reasonably related to the request. A reasonable effort is the level of effort you would expect 19 AB Order 99-021 at [33] to [35]. Also quoted in SK OPIC Review Report 180-2019 at [22]. 20 NFLD IPC, Resource, Practice Bulletin, Reasonable Search, a p. 2.

Office of the Saskatchewan Information and Privacy Commissioner. Guide to FOIP, Chapter 3, Access to Records. Updated 5 May 2023. 14 of any fair, sensible person searching areas where records are likely to be stored. What is reasonable depends on the request and related circumstances.129F 21 It is difficult to prove a negative, therefore FOIP does not require a government institution to prove with absolute certainty that records do not exist.130F 22 When a government institution receives a notice of a review from the IPC requesting details of its search efforts, some or all of the following can be included in the government institutions’ submission (not exhaustive): • For personal information requests – explain how the individual is involved with the government institution (i.e., client, employee, former employee etc.) and why certain departments/divisions/branches were included in the search. • For general requests – tie the subject matter of the request to the departments/divisions/branches included in the search. In other words, explain why certain areas were searched and not others. • Identify the employee(s) involved in the search and explain how the employee(s) is experienced in the subject matter. • Explain how the records management system is organized (both paper & electronic) in the departments/divisions/branches included in the search. • Describe how records are classified within the records management system. For example, are the records classified by: o Alphabet o Year o Function o Subject • Consider providing a copy of your organization’s record schedule and screen shots of the electronic directory (folders & subfolders). • If the record has been destroyed, provide copies of record schedules and/or destruction certificates. • Explain how you have considered records stored off-site. • Explain how records that may be in the possession of a third party but in the government institution’s control have been searched such as a contractor or information management service provider. 21 SK OIPC Review Reports F-2008-001 at [38] and F-2012-002 at [26]. 22 SK OIPC Review Reports F-2008-001 at [38] to [40], F-2012-002 at [26] and NFLD IPC, Resource, Practice Bulletin, Reasonable Search, at p. 1.

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