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Guide to LA FOIP-Chapter 3

GUIDE TO LA FOIP The Local Authority 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 ...........................................................................................8 Verifying Identity ................................................................................................................................................... 9 Requests Not on “Form A” ............................................................................................................................. 11 Search for Records................................................................................................................................................. 12 IPC Review of Search Efforts .......................................................................................................................... 13 Searching Records of Employees................................................................................................................. 17 Local Authority Records in Personal Email Accounts ................................................................ 18 Personal Records in Local Authority 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) ................................................................................................................................................... 49 Calculating 30 Days ................................................................................................................................ 49 Subsection 7(2)(a) .............................................................................................................................................. 52 Subsection 7(2)(b).............................................................................................................................................. 53 Subsection 7(2)(c) .............................................................................................................................................. 54 Subsection 7(2)(d) .............................................................................................................................................. 55 Subsection 7(2)(e) .............................................................................................................................................. 57 Subsection 7(2)(f) ............................................................................................................................................... 58 Subsection 7(2)(g) .............................................................................................................................................. 59 Subsection 7(3) ................................................................................................................................................... 60 Subsection 7(4) ................................................................................................................................................... 60 Subsection 7(5) ................................................................................................................................................... 63 Section 7.1: Applications Deemed Abandoned .......................................................................................... 64 Subsection 7.1(1)................................................................................................................................................ 64 Subsection 7.1(2)................................................................................................................................................ 66 Subsection 7.1(3)................................................................................................................................................ 66 Section 8: Severability........................................................................................................................................... 67 Section 9: Fee........................................................................................................................................................... 71 Subsection 9(1) ................................................................................................................................................... 72 Subsection 9(2) ................................................................................................................................................... 72 Creating a Fee Estimate ........................................................................................................................ 73 Subsection 9(3) ................................................................................................................................................... 79 Subsection 9(4) ................................................................................................................................................... 80 Subsection 9(5) ................................................................................................................................................... 80 Fee Waivers ............................................................................................................................................... 81 Section 10: Manner of Access ........................................................................................................................... 89 Subsection 10(1)................................................................................................................................................. 90 Subsection 10(2)................................................................................................................................................. 90 Subsection 10(3)................................................................................................................................................. 93 Subsection 10(4)................................................................................................................................................. 95

Section 11: Transfer of Application ................................................................................................................. 95 Subsection 11(1)................................................................................................................................................. 97 Subsection 11(2)................................................................................................................................................. 98 Subsection 11(3)................................................................................................................................................. 99 Subsection 11(4) ............................................................................................................................................... 100 Section 12: Extension of Time ......................................................................................................................... 100 Subsection 12(1)(a) .......................................................................................................................................... 101 Subsection 12(1)(a)(i) ........................................................................................................................... 102 Subsection 12(1)(a)(ii) .......................................................................................................................... 104 Subsection 12(1)(b) ......................................................................................................................................... 107 Subsection 12(1)(c) .......................................................................................................................................... 110 Subsection 12(2) ............................................................................................................................................... 112 Subsection 12(3) ............................................................................................................................................... 113 Section 30: Individual’s Access to Personal Information....................................................................... 114 Subsection 30(1) ............................................................................................................................................... 115 Subsection 30(2) ............................................................................................................................................... 116 Subsection 30(3) ............................................................................................................................................... 122 Subsection 30(3)(a) ............................................................................................................................... 122 Subsection 30(3)(b) .............................................................................................................................. 126 Section 38: Application for Review ................................................................................................................ 130 Subsection 38(1)(a) .......................................................................................................................................... 132 Subsection 38(1)(a.1) ...................................................................................................................................... 133 Subsection 38(1)(a.2) ...................................................................................................................................... 135 Subsection 38(1)(a.3) ...................................................................................................................................... 135 Subsection 38(1)(a.4) ...................................................................................................................................... 136 Subsection 38(1)(b) ......................................................................................................................................... 138 Subsection 38(1)(c) .......................................................................................................................................... 139 Subsection 38(2) ............................................................................................................................................... 140 Subsection 38(3) ............................................................................................................................................... 140 Subsection 38(4) ............................................................................................................................................... 142

Section 39: Review or Refusal to Review..................................................................................................... 143 Subsection 39(1) ............................................................................................................................................... 143 Subsection 39(2) ............................................................................................................................................... 144 Subsection 39(2)(a) ............................................................................................................................... 145 Subsection 39(2)(a.1) ........................................................................................................................... 148 Subsection 39(2)(a.2) ........................................................................................................................... 149 Subsection 39(2)(a.3) ........................................................................................................................... 149 Subsection 39(2)(a.4) ........................................................................................................................... 149 Subsection 39(2)(a.5) ........................................................................................................................... 150 Subsection 39(2)(a.6) ........................................................................................................................... 150 Subsection 39(2)(a.7) ........................................................................................................................... 151 Subsection 39(2)(b) .............................................................................................................................. 152 Subsection 39(2)(c) ............................................................................................................................... 154 Section 43.1: Power to Authorize a Local Authority to Disregard Applications or Requests..155 Subsection 43.1(1) ........................................................................................................................................... 155 Subsection 43.1(2)(a) ...................................................................................................................................... 156 Subsection 43.1(2)(b) ...................................................................................................................................... 161 Subsection 43.1(2)(c) ...................................................................................................................................... 166 Section 46: Appeal to the Court ..................................................................................................................... 170 Section 49: Exercise of Rights by Other Persons ...................................................................................... 174 Subsection 49(a) ............................................................................................................................................... 175 Subsection 49(b)............................................................................................................................................... 177 Subsection 49(c) ............................................................................................................................................... 179 Subsection 49(d)............................................................................................................................................... 180 Subsection 49(e) ............................................................................................................................................... 184 Section 53.1: Access to Manuals .................................................................................................................... 186 Subsection 53.1(1) ........................................................................................................................................... 187 Subsection 53.1(2) ........................................................................................................................................... 189 Section 53.2: Records Available Without an Application ...................................................................... 189 Routine Disclosure........................................................................................................................................... 190

Active Dissemination ...................................................................................................................................... 190

Office of the Saskatchewan Information and Privacy Commissioner. Guide to LA FOIP, Chapter3, Access to Records. Updated 5 May 2023. 1 Overview This Chapter explains access to records under The Local Authority Freedom of Information and Protection of Privacy Act (LA 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. Local authorities may wish to seek legal advice when deciding on how to interpret the Act. Local authorities should keep section 51 of LA FOIP in mind. Section 51 places the burden of proof for establishing that access to a record may or must be refused on the local authority. For more on the burden of proof, see the Guide to LA FOIP, Chapter 2, “Administration of LA 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 Local Authority Freedom of Information and Protection of Privacy Act (LA FOIP) will be followed. Where this office has not previously considered a section of LA 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 LA FOIP, Chapter3, 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 local authority. 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 Local Authority Freedom of Information and Protection of Privacy Act (LA FOIP).0F 1 Local authorities should be aware of section 49 of LA FOIP which authorizes other individuals to exercise the rights of applicants under LA 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 49(a) through (e) of LA FOIP. For example, where a power of attorney has been granted, the power of attorney may exercise the rights of the individual under LA FOIP if the exercise of the right or power relates to the powers and duties of the power of attorney. For more on section 49, see Section 49: 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, LA FOIP does not specify a minimum age, which means that minors may also make an access request. IPC Findings In Investigation Report 083-2022, the Commissioner investigated an alleged breach of privacy involving St. Paul’s Roman Catholic Separate School Division No. 20 (St. Paul’s). The mother of a child alleged their child’s privacy was breached when the child’s personal information was shared with the child’s stepmother. Part of the Commissioner’s investigation considered whether the child was a mature minor. The child was under the age of 18 years at the time (12 years old). St. Paul’s did not provide the Commissioner with any information about the child’s wishes. St. Paul’s advised that it had not explored if the child had any concerns or wanted any restrictions set on access to their personal information. The child’s mother asserted the child was not sufficiently capable of understanding the consequences of 1 The Local Authority Freedom of Information and Protection of Privacy Act, SS 1990-91, c L-27.1 at subsection 2(a).

Office of the Saskatchewan Information and Privacy Commissioner. Guide to LA FOIP, Chapter3, Access to Records. Updated 5 May 2023. 3 providing consent to disclose their personal information to the stepmother and did not want the child to be put in a position where they may be required to take sides. Given the child’s age and the limited information provided about the child’s capacity to consent, the commissioner was not able to conclude the child was a ‘mature minor’. The Commissioner also considered subsection 49(d) of LA FOIP and determined that St. Paul’s was not authorized to have disclosed the child’s personal information to the stepmother without the consent of the mother because the mother was an equal decision-makers pursuant to the agreement in place between the parents. 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). In the course of 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 subsections 45.1(2)(a), (b) and (c) of The Freedom of Information and Protection of Privacy Act (FOIP) (equivalent to subsections 43.1(2)(a) through (c) of LA 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 test 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 local authority. Section 5 of LA FOIP establishes a right of access by any person to records in the possession or control of a local authority, subject to limited and specific exemptions, which are set out in LA FOIP.

Office of the Saskatchewan Information and Privacy Commissioner. Guide to LA FOIP, Chapter3, Access to Records. Updated 5 May 2023. 4 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 local authority including the individual’s personal information.3 A record is defined at subsection 2(j) of LA 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 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 LA FOIP or where another provision prevails over LA FOIP under section 22 of LA FOIP or section 8.1 of 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. 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.

Office of the Saskatchewan Information and Privacy Commissioner. Guide to LA FOIP, Chapter3, Access to Records. Updated 5 May 2023. 5 The Local Authority Freedom of Information and Protection of Privacy Regulations. For more on this see the Guide to LA FOIP, Chapter 1, “Purposes and Scope of LA FOIP”. The right of access is not absolute. There will be circumstances where information may be legitimately withheld by local authorities. The right of access is subject to limited and specific exemptions that are set out in Part III of LA FOIP. This includes sections 13 to 21 of LA FOIP. It also includes the personal information provisions at subsections 28(1), 29(1), 30(2), and 30(3) in Part IV of LA 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 LA FOIP or the Guide to LA FOIP, Chapter 4, “Exemptions from the Right of Access”. The reason an applicant wants specific information is not relevant when a local authority processes an access to information request. To require applicants to demonstrate a need for the information would erect a barrier to access. LA FOIP grants an open-ended or unqualified right of access to public information of which local authorities are only the stewards,6 unless it is found that the access to information request should be disregarded pursuant to section 43.1 of LA FOIP. For more on applications to disregard see Section 43.1: Power to Authorize a Local Authority 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 local authority assign responsibilities for the various processing steps. Local authorities should develop a procedure for processing requests. The procedure should include steps that ensure legislated timelines and other requirements of LA FOIP are met. Local authorities should also create and retain documentation on their processing of requests.7 This becomes important in the event of a review pursuant to section 38 of LA FOIP or a court appeal pursuant to section 46 of LA 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. 6 Office of the Ontario Information and Privacy Commissioner (ON IPC) Order M-618 at p.16-17. 7 Service Alberta, FOIP Guidelines and Practices: 2009 Edition, Chapter 3, at p. 68.

Office of the Saskatchewan Information and Privacy Commissioner. Guide to LA FOIP, Chapter3, Access to Records. Updated 5 May 2023. 6 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. Although geared towards The Freedom of Information and Protection of Privacy Act, it may still be helpful as it provides the steps to take when receiving an access to information request, which are similar in both Acts. It can be modified to suit the needs of the organization 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 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 Local authorities 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 local authority 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 23(1) of LA FOIP, it is subject to the privacy protections in Part IV of LA FOIP. This includes restrictions on the collection, use, and disclosure of that personal information. For more on the obligations on local authorities to protect personal information, see the Guide to LA 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 27 of LA FOIP should be abided by. If considering

Office of the Saskatchewan Information and Privacy Commissioner. Guide to LA FOIP, Chapter3, Access to Records. Updated 5 May 2023. 7 sharing it externally (e.g., with another local authority or anyone outside the local authority), there must be authority to do so under subsection 28(2) of LA FOIP. For more on these two principles and section 27 and subsection 28(2) of LA FOIP, see the Guide to LA FOIP, Chapter 6, “Protection of Privacy”. All applicants are equal under LA FOIP. The identity of the applicant should not change how the local authority responds to the access to information request (e.g., the applicant is the media so the local authority 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 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 LA 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. LA FOIP grants an open-ended or unqualified right of access to public information of which local authorities 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 local authority, or to publicize what 8 ON IPC Order M-618 at p.p. 16 and 17.

Office of the Saskatchewan Information and Privacy Commissioner. Guide to LA FOIP, Chapter3, Access to Records. Updated 5 May 2023. 8 they consider to be inappropriate or problematic decisions or processes undertaken by a local authority.9 Questions in Access to Information Requests LA FOIP does not require local authorities to answer questions that come in an access to information request.10 For example, access to information requests that ask why the local authority made certain decisions. LA FOIP provides access to records and unless answers are in a record, the local authority is not required under LA FOIP to answer them. However, a local authority does have a duty to answer questions as to whether it has responsive records.11 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). 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. 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 LA FOIP, Chapter3, Access to Records. Updated 5 May 2023. 9 Verifying Identity Local authorities 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 30(1)(b) of LA 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 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 Local authorities should be careful not to collect information beyond that required to fulfill the purpose to comply with section 24 of LA 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 local authority 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 local 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 LA FOIP, Chapter3, Access to Records. Updated 5 May 2023. 10 authority may request the social insurance number as one option among others, but never as a requirement.14 Saskatchewan Health Services Number Again, local authorities should be careful not to collect information beyond what is required to fulfill the purpose to comply with section 24 of LA FOIP and the data minimization principle. Like social insurance numbers above, local authorities 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 For more on verifying identity, see the Ministry of Justice and Attorney General resource, Verifying the Identity of an Applicant. See also Subsection 49(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. Further, that SaskTel purge its system of all 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 LA FOIP, Chapter3, Access to Records. Updated 5 May 2023. 11 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 LA 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 local authority 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 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 16 The Legislation Act, SS 2019, c L-10.2 at subsection 2-26.

Office of the Saskatchewan Information and Privacy Commissioner. Guide to LA FOIP, Chapter3, Access to Records. Updated 5 May 2023. 12 IPC Findings 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 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. Further, 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 LA FOIP requires a local authority to respond to an applicant’s access to information request openly, accurately and completely. This means that local authorities 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 17 SK OIPC Review Report F-2012-002 at [27]. 18 SK OIPC Review Report F-2008-001 at [38] and F-2012-002 at [26].

Office of the Saskatchewan Information and Privacy Commissioner. Guide to LA FOIP, Chapter3, Access to Records. Updated 5 May 2023. 13 It is not reasonable for a local authority to rely on an employee’s opinion that no records exist when deciding not to search. A local authority 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 they personally created any records. Otherwise, the individual is merely expressing an opinion as to the likelihood of whether anyone else created records. A local authority cannot absolve itself of its duty to search based on an individual’s opinion about whether records were created. If a local authority could forego its duty to search based on such an opinion, the Act would be frustrated.19 IPC Review of Search Efforts Subsection 38(1)(a) of LA FOIP provides that applicants can request a review by the Commissioner if they are not satisfied with the decision of the local authority pursuant to sections 7, 12 or 36. The matter of search efforts is covered in subsection 7(2)(e) of LA FOIP. Subsection 7(2)(e) of LA FOIP provides that a local authority 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 local authority 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 local authority’s search efforts can occur in one or both of the following situations: 1. The local authority issued a section 7 decision letter indicating records did not exist. 2. The applicant believes there are more records than what the local authority provided. 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 LA FOIP, Chapter3, Access to Records. Updated 5 May 2023. 14 The focus of the Commissioner’s search review is whether the local authority conducted a reasonable search. 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.9F 21 It is difficult to prove a negative, therefore LA FOIP does not require a local authority to prove with absolute certainty that records do not exist.22 When a local authority receives a notice of a review from the Commissioner’s office requesting details of its search efforts, some or all of the following can be included in the local authority’s submission (not exhaustive): • For personal information requests – explain how the individual is involved with the local authority (i.e., client, employee, former employee etc.) and why certain departments/divisions/branches/committees/boards were included in the search. • For general requests – tie the subject matter of the request to the departments/divisions/branches/committees/boards 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/committees/boards 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. 21 SK OIPC Review Report F-2008-001 at [38] and F-2012-002 at [26]. 22 SK OIPC Review Report 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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