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John Cornyn

October 31, 2000

Ms. J. Middlebrooks
Assistant City Attorney
City of Dallas
2014 Main, Room 501
Dallas, Texas 75201


Dear Ms. Middlebrooks:

You ask whether certain information is subject to required public disclosure under chapter 552 of the Government Code. Your request was assigned ID# 140780.

The City of Dallas (the "city") received a request for "completed IAD control number 00-059." You claim that portions of the requested information are excepted from disclosure under section 552.101 of the Government Code in conjunction with the common law right to privacy. As you have submitted to this office for a ruling only portions of the requested information, we assume that you have released the remainder of the requested information to the requestor as stated in your brief. We have considered the exception you claim and reviewed the submitted information. We also have taken into consideration the comments and the submitted redacted documents this office received from the requestor. Gov't Code 552.304.

Initially, we note that the requestor submitted to this office comments regarding the redacted documents the requestor has already received from the city accompanied by a copy of those redacted documents. These documents appear to be the remainder of the investigation responsive to this instant request. We note that portions of this information have been redacted by the city prior to release of the investigative documents to the requestor. In order to withhold information, a governmental body is required to submit to this office within fifteen business days of receiving an open records request (1) general written comments stating the reasons why the stated exceptions apply that would allow the information to be withheld, (2) a copy of the written request for information, (3) a signed statement or sufficient evidence showing the date the governmental body received the written request, and (4) a copy of the specific information requested or representative samples, labeled to indicate which exceptions apply to which parts of the documents. Gov't Code 552.301(e). Although the city submitted portions of the investigation, you did not submit to this office for a ruling the redacted portions of the documents released to the requestor. Further, you do not inform this office that the submitted information is a representative sample of the

investigation documents.(1) We also find that the city did not raise any exceptions or state reasons why any exception would apply that would except the redacted information from public disclosure.

Pursuant to section 552.302 of the Government Code, a governmental body's failure to submit to this office the information required in section 552.301(e) results in the legal presumption that the information is public and must be released. Information that is presumed public must be released unless a governmental body demonstrates a compelling reason to withhold the information to overcome this presumption. See Hancock v. State Bd. of Ins., 797 S.W.2d 379, 381-82 (Tex. App.--Austin 1990, no writ) (governmental body must make compelling demonstration to overcome presumption of openness pursuant to statutory predecessor to Gov't Code 552.302); Open Records Decision No. 319 (1982). Because

you have not shown such a compelling interest to overcome the presumption that the information at issue is public, you must release the redacted portions of the investigation documents that you did not submit to this office for a ruling. We caution that the distribution of confidential information constitutes a criminal offense. Gov't Code 552.352. However, because you did not submit the redacted information for our review, we have no basis for concluding that any of this information is confidential.(2) Thus, you must release the information pursuant to section 552.302 of the Government Code.

We now address the information that the city did submit to this office. Section 552.101 of the Government Code protects "information considered to be confidential by law, either constitutional, statutory, or by judicial decision," including information protected by the common law right to privacy. Industrial Found. v. Texas Indus. Accident Bd., 540 S.W.2d 668, 683-85 (Tex.1976), cert denied, 430 U.S. 931 (1977). Common law privacy excepts from disclosure private facts about an individual. Therefore, information must be withheld from the public when (1) it is highly intimate and embarrassing such that its release would be highly objectionable to a person of ordinary sensibilities, and (2) there is no legitimate public interest in its disclosure. Id. at 685; Open Records Decision No. 611 at 1 (1992). In Industrial Foundation, the Texas Supreme Court considered intimate and embarrassing information such as that relating to sexual assault, pregnancy, mental or physical abuse in the workplace, illegitimate children, psychiatric treatment of mental disorders, attempted suicide, and injuries to sexual organs. 540 S.W.2d at 683; see also Open Records Decision Nos. 470 (concluding that fact that a person broke out in hives as a result of severe emotional distress is excepted by common law privacy), 455 (1987) (concluding that kinds of prescription drugs a person is taking are protected by common law privacy), 422 (1984) (concluding that details of self-inflicted injuries are presumed protected by common law privacy), 343 (1982) (concluding that information regarding drug overdoses, acute alcohol intoxication, obstetrical/gynecological illnesses, convulsions/seizures, or emotional/mental distress is protected by common law privacy).

Additionally, in Open Records Decision No. 373 (1983), we concluded that personal financial information can generally be considered highly intimate and embarrassing:

In our opinion, all financial information relating to an individual -- including sources of income, salary, mortgage payments, assets, medical and utility bills, social security and veterans benefits, retirement and state assistance benefits, and credit history -- ordinarily satisfies the first requirement of common law privacy, in that it constitutes highly intimate or embarrassing facts about the individual, such that its public disclosure would be highly objectionable to a person of ordinary sensibilities. . . .

However, information regarding a financial transaction between an individual and a governmental body is a matter of legitimate public interest not generally protected from public disclosure by common law privacy. Open Records Decision Nos. 590 at 3 (1991), 523 at 3-4 (1989). For example, the salary of a public employee is not excepted from disclosure. Gov't Code 552.022(a)(2); Open Records Decision No. 342 (1982). Further, the doctrine of common law privacy does not generally except from disclosure public employee participation in an insurance program that is funded wholly or partially by his or her employer. Open Records Decision No. 600 at 9 (1992). Of course, personal financial information does not meet the test for common law privacy unless it is also of no legitimate interest to the public. In Open Records Decision No. 373 (1983), we concluded that the determination of whether the public's interest in obtaining highly intimate and embarrassing information is sufficient to justify its disclosure must be made on a case-by-case basis.

You state that the submitted portions of the investigation refer to an individual's personal financial records. After reviewing the submitted information, we find that none of the information you seek to withhold relates to a financial transaction between that individual and a governmental body. Consequently, we conclude that the submitted information you seek to withhold is excepted from public disclosure under section 552.101 in conjunction with the common law right to privacy. Thus, the city must not release this information to the requestor.

This letter ruling is limited to the particular records at issue in this request and limited to the facts as presented to us; therefore, this ruling must not be relied upon as a previous determination regarding any other records or any other circumstances.

This ruling triggers important deadlines regarding the rights and responsibilities of the governmental body and of the requestor. For example, governmental bodies are prohibited from asking the attorney general to reconsider this ruling. Gov't Code 552.301(f). If the governmental body wants to challenge this ruling, the governmental body must appeal by filing suit in Travis County within 30 calendar days. Id. 552.324(b). In order to get the full benefit of such an appeal, the governmental body must file suit within 10 calendar days. Id. 552.353(b)(3), (c). If the governmental body does not appeal this ruling and the governmental body does not comply with it, then both the requestor and the attorney general have the right to file suit against the governmental body to enforce this ruling. Id. 552.321(a).

If this ruling requires the governmental body to release all or part of the requested information, the governmental body is responsible for taking the next step. Based on the statute, the attorney general expects that, within 10 calendar days of this ruling, the governmental body will do one of the following three things: 1) release the public records; 2) notify the requestor of the exact day, time, and place that copies of the records will be provided or that the records can be inspected; or 3) notify the requestor of the governmental body's intent to challenge this letter ruling in court. If the governmental body fails to do one of these three things within 10 calendar days of this ruling, then the requestor should report that failure to the attorney general's Open Government Hotline, toll free, at 877/673-6839. The requestor may also file a complaint with the district or county attorney. Id. 552.3215(e).

If this ruling requires or permits the governmental body to withhold all or some of the requested information, the requestor can appeal that decision by suing the governmental body. Id. 552.321(a); Texas Department of Public Safety v. Gilbreath, 842 S.W.2d 408,411 (Tex. App.--Austin 1992, no writ).

Please remember that under the Act the release of information triggers certain procedures for costs and charges to the requestor. If records are released in compliance with this ruling, be sure that all charges for the information are at or below the legal amounts. Questions or complaints about over-charging must be directed to the General Services Commission at 512/475-2497.

If the governmental body, the requestor, or any other person has questions or comments about this ruling, they may contact our office. Although there is no statutory deadline for contacting us, the attorney general prefers to receive any comments within 10 calendar days of the date of this ruling.


Noelle C. Letteri
Assistant Attorney General
Open Records Division


Ref: ID# 140780

Encl. Submitted documents

cc: Mr. Dave Michaels
The Dallas Morning News
P.O. Box 655237
Dallas, Texas 75265
(w/o enclosures)

Ms. Dionne Carney
Jenkens & Gilchrist
1445 Ross Avenue
Suite 3200
Dallas, Texas 75202
(w/o enclosures)



1. Even if the submitted information was a "representative sample," you may not redact any of the information without a ruling from this office allowing you to withhold the information. See 552.301(a)(governmental body must ask for a decision to withhold information).

2. If you believe that the redacted information is confidential and cannot lawfully be released, you must challenge this decision in court as outlined below.

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