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WrittenevidencefromEquanomicsUK Introductionandoverview 1. ThissubmissionismadeinresponsetotheJusticeSelectCommitteesrequestforevidence foritspostlegislativescrutinyoftheFreedomofInformationAct2000(FOIA). 2. Thissubmission,fromEquanomicsUK 1 ,issupportedbyleadingorganisationsinvolvedin thepromotionofraceequalitytheAfiyaTrust,BlackTrainingEnterpriseGroup(BTEG),, CoalitionOfRacialJustice(UK),Friends,FamiliesandTravellers,JustWestYorkshire, MENTER,OperationBlackVote(OBV),theRaceEqualityFoundation,RaceontheAgenda (ROTA),theRunnymedeTrustandVoice4ChangeEngland.EquanomicsUKandour colleaguesaremembersofaBMEVCSCoalition 2 . 3. Evidencebasedpolicymakingiscrucial;thereforeinourmainsubmissionwehave: a. summarisedkeywaysinwhichourorganisationsandmembershavebeen involvedwiththeFOIAandbrieflyreflectedonkeyrecommendationsfromthe StephenLawrenceInquirywhichhaveinformedourevidence; b. commentedontheconclusionssetoutonpages62and63atparagraphs219 224oftheMemorandumtotheJusticeSelectCommittee 3 ; c. concludedoursubmissionwithsummarycommentsonthethreeoverarching planksofthisreviewtheeffectivenessoftheFOIA,itsstrengthsand weaknessesandwhethertheActisoperatingasintended. Executivesummary 4. AsraceequalityfocusedVoluntaryandCommunitySector(VCS)organisations,wesharethe Governmentsbeliefthataccountabilityandtransparencyareattheheartofeffective government.Wealsodrawon,andrecognisethecontinuingimportanceof,ourcollective experiencesofracialdiscrimination,racialinequalitiesandtherecommendationsofthe StephenLawrenceInquiryontheimportanceoffreedomofinformationlegislation, openness,trust,accountabilityandaccesstoinformation. 5. Asorganisations,wehaveconsidered,advisedonandusedarangeoftoolstoensurethat publicaccountabilityandtransparencyarearealityratherthansimplyrhetoric.Weview theFOIAasanessential,althoughnotperfect,toolforthoseinterestedinshiningalighton publicbodiesandholdingthemtoaccount.Wewouldthereforebeconcernedaboutthe introductionofanystepsthatmightfurtherrestrictorlimittheabilityofindividualsor organisationstousetheFOIAsprovisions.

EquanomicsUKaddressesraceequalityintheUKfromaneconomicperspective.Itisabroadbasedcoalitionof individualactivistsandvoluntaryandcommunitybasedorganisations.Itseekstobuildawarenessoftheimpactof povertyonBAMEcommunitiesanddevelopappropriateaction. 2 TheBMEVCSCoalitionbringstogetherexistingnational,regionalorganisationsandotherfoundermembersto fulfiloursharedobjectivestochallengeracismbystrengtheningandsupportingwhatwealreadydotoinfluence publicpolicy,themediaandkeydecisionmakers. 3 Cm8236presentedtoParliamentbytheLordChancellorandtheSecretaryofStateforJustice:December2011

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6. Webelievethatintroducingnewfeesorextendingtheabilityofpublicbodiestoissuefees would:a)reducetheopportunityforindividualsandVCSorganisationstousetheprovisions oftheFOIAtosecureinformation;b)haveachillingeffectontheabilityofindividualsand organisationstouseFOIA;andc)underminepublicaccountability.Ifabalancemustbe struck,thebalanceshouldfavourpromotingpublicaccountability,confidenceandtrustby facilitatingaccesstoinformation. 7. WewelcometheGovernmentsproposalsinrelationtomakinginformationroutinely availableandprovidinginformationinformatsthatarereusable 4 . 8. Wewelcomeproposals,byFOIWiki,forimprovingtheFOIAandwouldhopethatthe Committeewillgivedueconsiderationtothesedetailedrecommendations(see http://foiwiki.com/foiwiki/index.php/Changes_we_would_like_made_to_FOI_law). TheGovernmentscommitmenttogreatertransparencyandopennessthroughoutthepublic sector,ourcollectiveexperienceofFOIAandtheimportanceoftherecommendationsofthe StephenLawrenceInquiry 9. WesupporttheassertionbythePrimeMinister 5 thatGreatertransparencyacross Governmentisattheheartofoursharedcommitmenttoenablethepublictohold politiciansandpublicbodiestoaccount.Wealsowelcometheassertioninthe Memorandumthat:theGovernmentiscommittedtogreatertransparencyandopenness throughoutthepublicsectorandthatFreedomofinformationremainsavitalelementof thetransparencyagendaandhasbeeninstrumentalinthereleaseofagreatdealof informationwhichmightotherwisehaveremainedclosed(para219). 10. AsBMEVCSorganisations,committedtothepromotionofequality,wehaveconsidered, advisedonandusedarangeofopportunitiesavailabletoensurethataccountabilityand transparencyinpublicaffairsandweconsidertheFOIAtobeakeytool. 11. InadditiontousingtheFOIAtomakedirectrequeststopublicbodiesincludinggovernment departments,localauthoritiesanduniversities,otherFOIArelatedactivitiesinclude: a. reviewinganddrawingontherecommendationsoftheStephenLawrence Inquiryinrelationtotrust,informationandfreedomofinformation; b. providingadviceandinformationonhowtousetheFOIAinconjunctionwith otherlegislationincludingtheEqualityAct2010andthepublicsectorequality duties(e.g.EquanomicsUK,ROTA,Voice4ChangeEngland); c. providingtrainingtostaffand/orotherorganisationsonhowtousethe provisionsoftheFOIAtopromoteraceequality(e.g.theAfiyaTrust,ROTA 6 , Voice4ChangeEngland 7 ). 12. TherecenthighprofilecourtcaseoftwoofthemurderersofStephenLawrencehascaused manytoreflectbackontheanalysisandrecommendationsoftheStephenLawrence

4 5

ProtectionofFreedomsBill(HLBill121)clauses102and103 [DavidCameron,May2010]http://www.number10.gov.uk/news/lettertogovernmentdepartmentson openingupdata/) 6 TrainingprogrammesforVCSorganisationsonthepublicsectorequalitydutiesandtheFOIA. 7 PubliclawandCompacttrainingworkshopsfortheVCS.

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Inquiry.WebelievethattheInquirysrecommendationsonopenness,accountabilityand therestorationofconfidencearenolessrelevantnowthantheywerein1999. 13. TheStephenLawrenceInquiryhighlightedtheneedtoincreasetrustandconfidencein policingamongstminorityethniccommunitiesandspecificallyrecommendedthata freedomofinformationactshouldapplytoallareasofpolicing,bothoperationaland administrative,subjectonlytothe"substantialharm"testforwithholdingdisclosure 8 . 14. AlthoughtheInquirysrecommendationsweremadeinrelationtopolicing,webelievethat openness,accountabilityandmaintainingand/orrestoringconfidenceofBMEcommunities inpublicbodiesisimportantacrosstheboard;improvingaccesstoinformationandthe operationoftheFOIAcanmakekeycontributionstopromotingtrustandaccountability. 15. WewouldasktheCommitteetoexplorewhetheranyamendmentsshouldbemadetothe existingFOIAexemptionstobetteraddresstherecommendationsmadebySirWilliam Macphersonin1999 9 . TheincreasinguseofFOIAbycampaigners,individualsandorganisations,particularlyvoluntary andcommunityorganisations 16. OurexperienceisthatwhilstsomeVCSorganisationsaremakingincreasinguseoftheFOIA manyothershavealimitedunderstandingoftheFOIAandhowtomakeFOIArequests.Our trainingandassociatedwork,suggestthatinthefutureincreasingnumbersofVCS organisationscanbeexpectedtomakegrowinguseoftheFOIArequestprocess. 17. Wewouldarguethattheincreasingcostsforpublicbodiesassociatedwithcomplyingwith FOIA,referredtoinparas220and221oftheMemorandumsconclusions:a)areinparta naturalconsequenceofgreaterusebyindividualsandorganisationsoftheFOIA;andb)may inpartreflectafailurebysomepublicbodiestoproperlyconsiderhowbesttoreally embraceacommitmenttoopenness,publicaccountabilityandtransparencyandadapt theirsystemstoaddressthiscommitment. 18. TheMemorandumreflectsonaMoJstudy(para.216)andsuggeststhatthestudyfound thatinsomelimitedcasessomepeoplewererecordinglessinformationandthatinternal communicationshadbecomelessdetailedandinformativethanbeforeFOIA.Thereport alsocommentsthatthereisanimportantbalancetobestruckinenhancingtransparency whileprotectingthenecessaryspaceinwhichpolicyoptionsneedtobediscussedand decisionstaken.Thedifficultyinappropriatelystrikingthatbalanceremainsaconcernandis worthyofconsideration(para.218).SincethereareclearFOIApublicinterestexemptions andawiderangeofotherFOIAexemptions 10 ,thereisnoreasonwhytheFOIAprovisions shouldlimittheinformationthatshouldbeminuted.Perhapstheflawinthe Memorandumsanalysis,isthefailuretorecognisethatsomepublicbodiesmaybe concernedthatFOIArequestsmayuncoverflaws/failuresindecisionmaking.The suggestionthatsomepublicbodiesmaysimplyfailtorecordinformation/decisionmaking

Recommendations1and2(page327):TheStephenLawrenceInquiry,reportofanInquirybySirWilliam MacphersonofCluny.Pleasenotethatthe1999reportpredatedthesubsequentFOIA2000. 9 Therecommendations(chapter47),especiallyrecommendations9,10and17:TheStephenLawrenceInquiry, reportofanInquirybySirWilliamMacphersonofCluny. 10 TheFOIA2000,PartIIsection21section44

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inanydetailbecauseoftheFOIAisthereforelamentable.Webelievethatinadequate recordingofdecisionsisinconsistentwithproperdecisionmaking,thepublicinterestand promotingpublicaccountabilityandtrust.WewouldasktheCommitteetoconsiderthis issue,aswellastheexamplesofgoodorbestpracticehighlightedinMemorandum. 19. WehaveconcernsabouttherangeofpublicbodiescoveredbytheFOIAandtheimpactof theHealthandSocialCare(H&SC)Billandotherlegislativereformsthatmayresultin servicesbeingcontractedoutforwantofabetterterm.Wewelcometheprovisionsinthe ProtectionofFreedomsBill,inrelationtoprovidingawiderdefinitionofpubliclyowned companies,howeverwehopethattheCommitteewillconsider: a. doesthisdefinitionofpubliclyownedcompaniesgofarenough? b. amendmentstoensurethatwhereservices,activitiesorfunctionsare contractedoutundertheH&SCBillorothersimilarlegislation,thatpublicbodies responsibleformonitoringsuchcontractsandcontractors: i. shouldsecureasuitablerangeofinformationontheperformanceof thosebodiesinrelationtothepubliccontractwherethecontractorisnot directlysubjecttotheFreedomofInformationAct2000 11 ; ii. shouldensurethatcontractorsmaintainrelevantinformation; c. amendmentstoensurethatwhereservices,activitiesorfunctionsare contractedoutundertheH&SCBillorothersimilarlegislation,thattheICOand therelevantTribunal: i. canconsidercomplaintsaboutapublicbodynotholdingorrequiringa relevantcontractorororganisationtoholdrelevantinformationabout theperformanceofthecontract,serviceoractivitywherethepublic bodywouldhavebeenexpectedtoholdsuchinformationandholding and/ordisclosingsuchinformationwouldbeinthepublicinterest; ii. canrequireapublicbodytostarttosecuresuchinformationasisinthe publicinterest. Keyissuestimelimitsandpublicinteresttestsandinternalreviews 12 20. Thecurrenttimelimitforrespondingtorequestsforinformationis20workingdays;we supporttheproposalthatthetimelimitforinternalreviewsshouldalsobesetat20 workingdays.WealsosupporttheproposalthatthetimelimitfordealingwithFOIA requestsincludingapublicinteresttest 13 shouldalsobesetat20daysaswebelieveis alreadythecaseunderequivalentlegislationinScotland. CostsassociatedwiththeFOIAandstrikingtherightbalancebetweentransparencyand reducingregulatoryburdens

11 12

Forexamplebyvirtueofthefactthatitisnotapublicbodyorapubliclyownedcompany. http://foiwiki.com/foiwiki/index.php/Changes_we_would_like_made_to_FOI_law 13 Atpresentthereisnofixedtimelimitinlawforcarryingoutpublicinteresttests.Thismeansthatinpracticea publicauthoritymustrespondinfulltoanFOIrequestwithintwentydaysexceptwhereapublicinteresttestis beingconsideredinwhichcaseweunderstandthatthereisnofixedtimelimitforrespondingtotherequest.

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21. Wewouldbeprofoundlyconcernedabouttheintroductionofanyfurtherfees.Apractical exampleofourconcernsisprovidedbytherecentworkbytheAfiyaTrust.InNovember 2011,theAfiyaTrustwrotetoalldirectorsAdultSocialCareServicesinEngland.Theaim wastoseekinformation,usingtheFOIA,toestablishtheimpactofthecutsover2010/2011 and2011/12onBMEledorganisations,otherprovidersofservicestoBMEcommunitiesand BMEcommunities 14 . 22. Totheircreditnoneofthe155localauthoritiesconcernedsoughttocharge.Howeverifa modestchargehadbeenmadebyeachlocalauthority,ofeven100,thecosttoAfiya wouldhavebeen15,500,abillthatasmallcharitysimplycouldnotafford. 23. Webelievethatextendingtheuseoffeesorincreasingfeesisinconsistentwithprovisions thataredesignedtopromotegreateraccesstoinformationandtransparency.Ifthereisa decisiontointroducefees,webelievethatthereshouldbeageneralwaiverofanyfeesfor charities,individualsandVCSorganisations.Wealsobelievethatnewspapershaveoften shonealightonpublicaffairsandshouldnot,asamatterofprinciple,bechargedwhere thereisapublicinterest. SpecificconcernsabouttheFOIAsoperationincludingthecomplaintsandappealsprocessand theroleoftheICO 24. WehaveverylittledirectexperienceofusingtheICOcomplaintsandappealsprocess.The RunnymedeTrusthascomplained,once,totheICOaboutaleadinguniversitysrefusalto providethefulldataonthenumberofapplicationsfrom,andoffersto,BritishBlack students.Thegroundsforrefusal,upheldbytheICO,werethatthenumbersaresmallthat individualscouldpossiblybeidentifiedbydisclosingtheinformation.TheTrustaccepted thatthenumbersaresmallandalthoughitdisagreedwithoutcome,itfeltthattheprocess wasfairandworkedefficiently. Finalcommentstheeffectiveness,strengthsandweaknessesoftheFOIAandwhetheritis operatingasintended 25. WehavedrawnonBlackstone's4thGuidetotheFreedomofInformationActpublishedin 2011.ThisGuideidentifiesthattherationaleforintroducingfreedomofinformation legislationincluded: a. improvementofdemocraticprocesses; b. avoidingtheneedforwhistleblowingandleaks; c. improvingtheefficiencyofgovernmentandtheeffectiveuseofpublicmoney; d. commercialuseofrelevantinformation. 26. FortheBMEVCSCoalition,ourprimaryconcernisinrelationtothefirstthreeareas improvingdemocraticprocesses,reducingtheneedforwhistleblowingandleaksand improvingtheefficiencyofgovernmentandtheeffectiveuseofpublicmoney.Wenotethe analysisprovidedbytheUniversityCollegeLondon,reportedintheBlackstonesGuide,that

14

TheAfiyaTrustdesignedtheFOIAquestionstoelicitinformationthatitbelievedthatlocalauthorities, complyingwiththeirpublicsectorequalityduties,shouldhold.

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in:theUnitedKingdom,freedomofinformationhasmetitscoreobjectiveoftransparency and,inthecorrectcircumstances,accountability.Yetithasnotachievedthesecondary objectives,thewidertransformativeaims,thatflowfromthem(page10) 15 . 27. Apracticalexampleofthistransformativefailuretoreallyembracepublicaccountabilitycan beseenintheexchangebetweentheDfEandtheWhatdotheyknowwebsiteon21/2/11 (http://www.whatdotheyknow.com/blog).TheDfEwroteinthefollowingterms: a. Wechangedthewaythatpeoplecontactourdepartmentlastyear,encouraging customerstogotoourwebsitetofindwhattheyarelookingforandsubmitan enquiryviaourcontactuspage(www.education.gov.uk/contactus)iftheycould notlocateinformation. b. The[mainFOI]mailboxthatyoursystempointsto([email])willeventuallybe phasedoutandIwouldbegratefulifyoucouldadvisecustomersusingyour websitetorefertowww.education.gov.uk/contactusiftheyneedtocontactthe Department. 28. WhilstisfinetoofferpeopletheoptionofusingtheDfEwebsite,itisunacceptabletolimit peopletousingthewebsitetosubmitFOIArequests.Wesharetheviewsandconcerns expressedbyWhatdotheyknowinresponsetotheDfEandhopethattheCommitteewill notethecommentsandtheimportanceoftransparencyintheFOIAprocess: a. Wecertainlyagreethatpeopleshouldcheckwhethertheinformationtheyare lookingforisalreadyavailablebeforesubmittingaFOIrequestandindeedwe alreadypromptallusersofWhatDoTheyKnowtodoso,notjustforthe DepartmentofEducation,butforeverypublicauthoritywelist.Whenrequests aresubmittedthroughWhatDoTheyKnowresponsesareautomatically publishedensuringalotmoreinformationendsuponlineandpublicly accessiblethanwhensubmittedprivately. b. IftheDepartmentforEducationwantstoreducetheamountofcorrespondence itgetsinrelationtoalreadypublishedmaterialitshouldbeencouragingpeople tomaketheirFOIrequestsviaWhatDoTheyKnow.Already,basedonMinistryof Justicestatistics,wecalculatearound10%ofallFreedomofInformationrequests totheDepartmentofEducationaremadeviaourservice. c. Wehaveaskedthedepartmenttoletusknowwhichalternativeemailaddress theywouldpreferustoforwardFOIrequeststo,andweawaittheirreply.We arehappytousewhicheveremailaddressiseasiestforapublicbody. d. Wehavealsomadeclearthatwewillcontinuetoofferouruserstheabilityto makerequeststotheDepartmentofEducationviaoursiteandwillnotbe removingthatfacilityanddirectingpeopletothedepartmentscontactformas wewereasked.FormsoftenincludeunnecessarymandatoryfieldsthattheFOI legislationdoesnotrequire(intheDfEscasetheyaskwhatkindofarequester youare,makingyouspecificallytypeinprefernottosayintoanOtherbox ifyouwanttooptout).

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BenWorthy,MoreOpenbutNotMoreTrusted?TheEffectoftheFreedomofinformationAct2000onthe UnitedKingdomCentralGovernmentGovernance23(4)p.561 http://onlinelibrary.wiley.com/doi/10.1111/j.14680491.2010.01498.x/abstract

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e. Thelawrejectstheideathatpublicbodiesareallowedtoerectartificial barrierslikethis,andwehavenotedthataFOIrequestisvalidregardlessof whichemailaddressormemberofstaffwithinanorganisationitissentto. February2012

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