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Forget smoke-filled rooms and paper shredders today’s government officials can elude public scrutiny from the comfort of their own e-mail accounts, conducting virtual meetings to do the public’s business.
To curb such activity, provisions in both the Brown Act (the state law governing open meetings) and the San Francisco Sunshine Ordinance have been interpreted as prohibiting the use of electronic communication between members of policy bodies. But not everyone has been heeding the rules, particularly in this hyperconnected age.
The TechConnect Task Force, a now disbanded advisory body charged by Mayor Gavin Newsom with creating a plan to bridge the city’s digital divide with free wireless Internet service, frequently used an e-mail listserv to conduct its business.
"Since these things were publicly posted right away, I should think there would be a transparency that advocates would like," said Emy Tseng, a member of the task force. "It was useful in the way e-mails and listservs are useful to anyone."
However, many contend the task force was engaging in activities prohibited under the city’s Sunshine Ordinance, even if the intent was to provide greater public access to the group’s work. Tseng, who claims to have never been informed by the City Attorney’s Office that the group might have been in violation of Sunshine laws, expressed the frustrations of many throughout the city who must comply with open-meeting policies.
"If you don’t use e-mail in this day and age, what can you do?" she asked. The answer, according to state and local laws, is to conduct public business in a public meeting, with the agenda posted in advance and where anyone can attend.
State and city public-disclosure laws apply to all "policy bodies," which can include nearly every government-sanctioned board, commission, or task force. Some members of these bodies have been suspected of vioutf8g open-meeting and public-disclosure laws through the use of online communication.
Seriatim meetings are presumably the most common illegal activity occurring under both open-information laws, although they are the hardest to detect. A seriatim meeting occurs when one member of a policy body privately contacts another, who then contacts another, in a chain of communication that eventually constitutes a quorum of the group.
An e-mail that is forwarded along to enough individuals, or a round of mass e-mails, would constitute a seriatim meeting, according to attorneys who spoke with the Guardian. While e-mail forwarding is a common practice for any office worker, some are just an unassuming click away from breaking the law.
"I would absolutely make it clear that anybody subject to the Brown Act or Sunshine [should] not communicate through e-mail," said Thomas Burke, a San Francisco-based attorney who specializes in media and Internet law and has represented the Guardian. "This could go on for years because people are not in the loop."
The Brown Act, passed in 1953 by the California Legislature, expressly bans a legislative body from using "technological devices" in order to communicate about topics relevant to the work of that body.
"The Brown Act itself forbids the majority of ‘technological devices’ which is essentially anything you could imagine," said Terry Francke, director of Californians Aware, who also drafted amendments to the act in the early ’90s. Under the Brown Act, a committee member can be slapped with a misdemeanor for the intent to withhold information from the public or conduct prohibited meetings.
Many of the same issues are also addressed in the San Francisco Sunshine Ordinance, filling in more restrictions and open information requirements. Ironically, the TechConnect Task Force was charged with creating universal access to online discussions like theirs, although few legal experts think even that would nullify the requirement for open, public meetings in a physical rather than virtual setting.
According to a report released by the San Francisco TechConnect Task Force, 32 percent of Americans do not have access to the Internet. In San Francisco, certain populations are even worse off compared to national averages for instance, women and the elderly.
"You have to consider if people are going to have equal access to meetings," Burke told the Guardian. "There is still a digital divide. As a public entity they have to be sensitive to this."
Recently, members of the city’s Peak Oil Task Force inquired with the City Attorney’s office about using Yahoo! Groups or a blog to increase efficiency on the all volunteer committee. Attorneys advised the group to stay away from Internet communication, as it can easily lead to prohibited seriatim meetings. Jeanne Rosenmeier, who is the chairperson of the task force, now spends more committee time trying to determine alternative ways to engage the public.
"It is certainly something that should be rewritten, to deal with modern technology so it corresponds with today’s reality," Rosenmeier told the Guardian. "If we have a public e-mail listserv that anyone can sign on to, that seems transparent; or if we have a blog, that’s pretty transparent."
In other cities that do not have sunshine ordinances, teleconferencing may be used legally under the Brown Act to conduct meetings. In Los Angeles, for instance, some boards and commissions teleconference when members would need to drive a few hours just to meet. There is some speculation that the language of the Brown Act could be augmented under this provision to allow for online communication, but there are no major groups pursuing the amendment.
In 2001, former California Attorney General Bill Lockyer wrote an opinion declaring the use of e-mail between policy-body members as an infraction of the Brown Act, even if the e-mails were made publicly available. "Members of the public who do not have Internet access would be unable to monitor the deliberations as they occur," the opinion states. "All debate concerning an agenda item could well be over before members of the public could [participate]."
According to the Sunshine Ordinance Task Force, there have been no complaints filed concerning prohibited online meetings, however there have been public information disclosures of private e-mail messages over the years. Recently, a group of deputy city attorneys were required to turn over an e-mail correspondence when a member of the public filed a complaint.
While Peter Scheer, director of the California First Amendment Coalition, understands the frustration of government officials who must abide by the cumbersome laws, he thinks the tradeoff is well worth it.
"The whole rest of society uses the power of e-mail and the only business that can’t use it is government, because they’re subject to the Brown Act," Scheer told the Guardian. "But we made the tradeoff already in efficiency versus accountability, to force all meetings and information to be open to the press and public."
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news@sfbg.com In what may be the last act of a quickly unfolding drama, Swiss banking giant Julius Baer has dropped its lawsuit against Wikileaks, an anonymous whistle-blower Web site, and Dynadot LLC, the site’s registrar. Baer’s attorneys had sought to shut down Wikileaks through a permanent injunction for hosting potentially damaging material about the bank’s activities in the Grand Cayman Islands. The bank’s decision last week follows its legal defeat Feb. 29 in which San Francisco federal court judge Jeffrey S. White withdrew his ruling to halt the US version of the Web site Wikileaks.org and to also stop information from the site from being transferred to another server. White weighed arguments from both sides and said his withdrawal of the order against Wikileaks still raises serious issues about the extent of jurisdiction any US court has over the Internet. He essentially agreed that prior restraint of the site was unconstitutional, and that it could create a "chilling effect" on future free speech cases. He bowed to arguments from defense attorneys and said his prior order raises questions regarding "possible infringement of protections afforded to the public by the First Amendment." The anonymous forces of Wikileaks seemed to have braced for the legal blow. Within hours of the Feb. 15 takedown order by White, those in the know could access the site by entering the IP address, which is run on a server in Sweden and on other servers around the world. While no official Wikileaks defendant ever materialized because its operators remain a secret, the preliminary injunction order set off a firestorm of criticism from free speech advocates. One after another, lawyers from the ACLU’s San Francisco chapter, Public Citizen in Washington D.C., and nearly a dozen civil rights organizations rushed to intervene and defend the site. Shutting down the site is akin to "locking the doors of The New York Times," said Julie Turner, an attorney who represented Wikileaks in prelitigation matters. "I think this was a textbook example of what not to do," said media law attorney Thomas Burke of the bank’s efforts to seek a prior restraint. "This just completely backfired and garnered international attention." The documents posted on Wikileaks have been used as the basis for major news stories on subjects such as the treatment of inmates at Guantanamo Bay, the US military’s rules of engagement in Iraq, and corruption by Kenya’s former president. And instead of concealing documents, the case has drawn a maelstrom of attention to the bank’s alleged dealings, and it raises big questions about freedom of speech on the Internet. In their filing, Julius Baer attorneys said they still reserve the right to consider filing suit in the same court or elsewhere and are considering the company’s legal options. The bank’s spokesperson, Jenna Agins, declined a Guardian request for comments. Founded in 2006 by Chinese dissidents, journalists, and tech gurus, Wikileaks hosts 1.2 million leaked documents that aim to expose government and corporate wrongdoing. Anonymous site creators say they’re developing an uncensorable system for "untraceable mass document leaking and analysis" and are ready to fight any legal attack. Wikileaks may have evaded its censors this time, but the latest case portends the vulnerability of such sites and those involved in them. Julius Baer’s attorneys admitted to the judge they had a hard time tracking down a Wikileaks representative. So they went after Daniel Matthews, a Stanford grad student. According to the bank’s court filing, the bank’s attorneys found his name on a Facebook page listing him as an "officer" of Wikileaks and summoned him to court. Joshua Koltun, his pro bono attorney, rushed to file a brief to defend Matthews. "It was an extremely aggressive move because they were basically grabbing at straws," said Koltun, who appeared without his client in court. "They said he would face liability for a very tenuous connection or be confronted with disobeying the court order." The bank’s attorneys claimed that Wikileaks had disclosed confidential or forged information about its clients and said there was nothing newsworthy about it. In this way, they are attempting to pit freedom of speech against personal privacy rights. "Wikileaks has actively solicited the theft of private information," said William Briggs, one of the lawyers for the bank. "They are no longer shielded by the First Amendment." But freedom of speech laws trump privacy rights in this case, argues Matt Zimmerman, senior staff attorney for the Electronic Frontier Foundation, which filed an amicus brief opposing the judge’s injunction against Wikileaks. "The information was already out there and the bank wanted to force everyone who had a copy of it to pull it down." Perhaps the more salient point going forward, Zimmerman says, is that consumers are more wary of what Internet provider or domain registrar they choose and to make sure those companies protect free speech rights. In their suit, Julius Baer’s attorneys sued Wikileak’s domain registrar, Dynadot LLC in San Mateo, for hosting the site. The small start-up agreed in a Feb.14 court stipulation to all of the bank’s demands to disable the site and prevent its transfer to another server, in exchange for getting the case against them dismissed. "This is part of the reason why Congress has passed laws to get the intermediary out of the way," Baer said. "Dynadot was never liable for the information its user posted. It’s unfortunate that they apparently didn’t know the law well enough and decided to fold." Dynadot lawyer Garret Murai denied that his client had agreed to all of the bank’s terms. "The court’s order to remove the domain name settings is not something we wanted to do," he said. "We did not agree to that." David Ardia, an Internet law expert at Harvard, says even in the US, which has long established First Amendment protections, the threat of lawsuits against Web sites such as Wikileaks still lingers. The power of an individual judge to bring down a Web site still remains, he says, but not if sites can function on international servers outside US jurisdiction. Most online bulletins or blog posts allow people to post comments and remain anonymous, but not to the point where governments can’t find out who they are. What makes Wikileaks formidable, some say, is its software’s ability to cover the tracks of its users. Peter Scheer, executive director of the California First Amendment Coalition, says time will tell whether the Wikileaks site can prove its mission to covertly leak information and should never have been silenced in the first place. "As we as a society become increasingly dependent on the Internet as a source of information, the vulnerability of the Web site to that kind of action is something to fear," he said. "So when it happens, it’s important to draw maximum attention to it, to go into court with all guns blazing." From the stand, White conceded the problem with pursuing a case against an anonymous entity such as Wikileaks, which has no official representation and whose chief players remain invisible. Then he questioned the effectiveness of trying to control leaked documents, even if those responsible had somehow violated personal privacy rights: "When this genie gets out of the bottle, it’s out in the world." >
› news@sfbg.com Imagine sitting at home or in your office, or in your favorite café and listening in on what are now secret, backroom policy discussions and decisions in the San Francisco mayor’s office. Imagine having access to an immediate transcript of the talks. Imagine being able to read internal e-mail discussions among city staffers about issues that affect you without ever filing a public records request. In fact, imagine never having to file another written request for public documents; imagine just going to a city Web site, entering a search term, and finding all of the records yourself. Imagine filing a complaint with a city agency and tracking the issue, minute by minute, as it works its way through the system. Imagine listening on your cell phone to any policy body as it meets in city hall. All of this is possible, today. Much of it is not only consistent with but actually required by local law. And it won’t cost the city more than a modest amount of money. Transparency is a common buzzword during this presidential campaign; the Barack Obama campaign has even issued a white paper describing policy and technological ways to embrace it. He’s talking about live Internet feeds of meetings about significant issues involving executive branch appointees as well as for those of regulatory departments (a program that would go far beyond what you see on C-SPAN). So there’s no reason San Francisco can’t take the lead in using technology generally simple, off the shelf, existing technology to dramatically increase sunshine at City Hall and public participation in local government. Proposition G, the city’s 1999 sunshine law, mandates that San Francisco use "all technological and economical means to ensure efficient, convenient and low cost access to public information on the Internet." Here are five easy ways to do that: 1. Fully adopt the voyeur concept for city meetings. This is the idea that the public should be able to observe and engage in government decision making all government decision making. All policy meetings in City Hall should at the very least be broadcast as audio on the Web and available via phone teleconference. In other words, the meetings should be streamed online, and that stream should be accessible by calling a free conference line. This is already standard practice in the business world and is working well for many investors in public companies that disclose financial information in compliance with Securities and Exchange Commission rules. It can be done for little or no cost with services like blogtalkradio.com, skype.com, freeconferencecalls.com, and webex.com. Today only a limited number of public meetings are broadcast, mostly because the only outlet is SFG-TV and resources are limited. But audio streaming is a no-brainer there’s no need for a staffer to control cameras, the microphones are already set up, and these days just about every room has a speakerphone. Currently, the SFG-TV video coverage isn’t posted on the city’s Web site, sfgov.org, until two or three days after a meeting. That’s too long; the audio should be made immediately available online. And the Internet URL and dial-in options should be listed on the meeting agenda so that news media and citizen bloggers can instantly refer back to the URL with timecodes to point out specifics, and include them in their stories and blog postings. With streaming, you can follow along in real time when you are stuck at home taking care of a sick relative, or at the office listening with headphones, or you are disabled and can’t cross town to attend in person. The city already has a great contract for real time captioning the text you see at the bottom of the screen for video. It’s not 100 percent accurate, but it’s pretty decent. That could be expanded to cover streaming audio, and the text could be computer translated (or translated by bilingual typists) into other common languages. The advantage of media integrated with RTC is that specialized search engines like blikx.com and everyzing.com can be used to find relevant phrases and begin playback directly at that spot. And transcriptions can be posted online in real time (somewhat like live blogging!) so that if you are late for a meeting you can quickly scan what has already transpired, and by the end of the meeting you will effectively have a draft of minutes. That saves a lot of staff time and provides an immeasurably more useful historic record. Today, video recordings of city meetings can’t be downloaded the only way to review it or post a clip to YouTube is to order a $10 DVD, which arrives a week after you send a check (and no, they don’t take PayPal). And while many other city meetings make audio recordings, you have to pay $1 for an audio tape and pick it up during business hours or pay more for postage. They all should be available as free podcasts. The SFG-TV video shows more than just the speakers and officials; there are other angles, and they ought to be available too. It’s important to know who attended the meeting but never said anything, who greeted whom, and even who ignored whom. 2. Let the public do the broadcasting. All City Hall meeting rooms should provide wi-fi (and electrical outlets), and the system ought to have enough speed to allow bloggers or activists to upload high-quality video broadcasts of meetings that SFG-TV can’t afford to cover. It can be done using existing services like Justin.tv, Upstream.tv, and live.yahoo.com. This would also allow live blogging and let people preparing to testify on an issue have access to the Web to do research on the spot. If the room had a projector and a screen, people who were unable to attend the meeting could still comment, either through video or just by posting text messages that the decision makers could read. The audio broadcasting of meetings should be expanded to include all meetings between the mayor (or supervisors) and city staff. The law already requires public access to so-called passive meetings those between the mayor or department heads and outside parties that influence city policy. 3. Make public most city emails and other documents as soon as they are produced. San Francisco city employees produce thousands of records a day e-mails, memos, reports, etc. and the vast majority of them are and should be public record. But many are deleted and others never see the light of day. When a member of the public asks for all the records on a topic, just finding those documents can be a sizable task. But it’s technologically simply to solve that problem: every time a city employee produces a document, the computer system should automatically send a back-up copy to a public web server. That way nothing would get lost or erased, and anyone looking for public information could simply go to that site and search for it him or herself. For e-mails sent by city staff, one way might be to CC (carbon copy) an online message board (for example Google or Yahoo groups, which would be available at no cost to the city). Other approaches for instant messages, text messages and voicemails could be adopted as well. The Palo Alto City Council is already doing something like this for a narrow collection of e-mails (although not in real time). We all know there are some city communications that must remain private or be redacted for example Attorney Client discussions or human-resource conversations regarding personnel. But there are simply ways to make sure those stay confidential: one approach might simply have the user tick a flag or answer a Yes/No Possible Redaction popup when the message is sent. Certain employees like the people who handle sensitive employee health records and certain litigators in the city attorney’s office could have software that defaults to a confidential server. The added advantage, of course, is that the computers could also make a record of the title and date of every confidential document and that information could be made public. If a dispute arose over whether the city was improperly withholding records, the public would at least know that certain documents existed. All city files could be stored on network drives (not on local drives) with one location for default public files that would not allow overwriting or deletions and would be mirrored to a Web server and another drive for the few that may require redaction first. 4. Save all the old records. After a very embarrassing lawsuit that is threatening the Missouri governor’s job, that state in January adopted an email retention system that preserves all email for at least seven years (based on federal requirements for financial records). And e-mail/instant message/text/fax retention systems are standard practice now in the financial industry (Morgan Stanley lost a $1.45 billion judgment because the company failed to preserve e-mail). In fact, we all know storage continues to get cheaper and smaller so San Francisco should abolish any retention timeframes for electronic records and keep them all into the foreseeable future. The world-famous Internet Archive is right here in the Presidio: I suspect that group would love to archive all the city information, and keep it online, free and forever. When paper documents are part of the public record, they should be scanned and converted to text and posted within two days. This would include discussions between staff and individual members of policy bodies and the creation of the draft agenda and supporting materials as they are obtained. All these methods would significantly reduce the number of public records requests to the city staff and thus save the city money. 5. Make calendars public and keep communications public. Mayor Gavin Newsom won’t provide detailed daily calendars even after the fact, when there is no possible security reason for keeping his workday itinerary secret. All top officials should post their calendars on the web so the public can track what they are doing. The city needs to adopt a global policy that city business should be performed on city devices (computers, email accounts, phones) whenever possible and when city employees or officials use their own computers or hand-held communications tools, those should be forwarded immediately to the city system and made public. San Francisco has one of the best local Sunshine laws in the country and at a time when activists at every level are looking for ways to use technology to expand public access, the city should be in the forefront. All it takes is some political will. ———————————————————- Here are some more ways that the city could use technology to improve public access: 1. Use a program like govtrack.us to follow legislative changes. 2. Explore ways to bring nonprofits that perform traditional government services under sunshine laws. 3. Significantly improve the city’s Crimestats system (more real-time allow alerts for crimes near you) – google mashup et al. See http://chicago.everyblock.com/crime/ 4. Embrace e-rulemaking technology – similar to federal rulemaking use technology to get ideas online and generate more participation for those who can’t show up in a meeting. 5. Require the Police Department to issue press credentials to bloggers. 6. Fund a few open-government lawsuits to expand the boundaries on access to public records (the law provides for attorney’s fees if the suit is successful). 7. Require city agencies to post the method for obtaining public records online. Require posting of all negative determinations on home pages. 8. At budget time, mandate that each agency provide statistics as determined by SOTF on sunshine responsiveness. 9. Require an assessment of sunshine compliance as a mandatory item for all Financial/Management audits. 10. Televise SOTF and Ethics Commission formal hearings. 11. Require active Ethics investigative files to be open. 12. Embrace fully the much-improved but incomplete example of posting online all interactions as part of large contract negotiations – as was partially done with TechConnect. 13. Host accounts payable/receivables online with the scanned images of invoices paid. ——————————————————— >
The Palo Alto City Council is conducting a unique experiment in its efforts to comply with the Ralph M. Brown Act, which requires government bodies to conduct business in a public way. Palo Alto now posts e-mails from council members on the city’s Web site (www.cityofpaloalto.org/council), providing easy access to all with Internet capabilities. The e-mails were first posted online following a 2003 settlement of a Brown Act lawsuit against the city of Palo Alto by two local newspapers Palo Alto Weekly and The San Jose Mercury News. Eight private e-mails were in question, disclosing the votes of a closed city council session, and while the city never admitted guilt in vioutf8g the Brown Act, language in the settlement established the practice of posting council e-mails on the Web site and making them available in council agenda packets prior to meetings. Peter Scheer, executive director of the California First Amendment Coalition, questions the merits of the system. "Some people would look at this and think it is a giant and serial violation of the Brown Act but I wouldn’t necessarily say that," Scheer told the Guardian, noting that the prohibition on serial meetings bans such an approach. But he said that this is an interesting experiment, as long as council members don’t deliberate by e-mail. But assistant city manager Emily Harrison told us the messages avoid Brown Act violations by sticking to basic questions about agenda items, which the public can scrutinize. The city of San Francisco has no such system in place, and e-mails to and from the Board of Supervisors is available only through direct request. Frank Darby, the city’s Sunshine Ordinance Task Force administrator, said that the city had never looked into putting one in place. "We are not required to post e-mails [under the Sunshine Ordinance]," Darby said. However, he added, the city "constantly monitors" itself to ensure that it is in accordance with the Sunshine law. "There may be some people who disagree and feel that maybe we should put every e-mail online but currently the Sunshine Ordinance does not require that e-mails be made available online."
Freedom of Information: The leaks go on
Freedom of Information: More sunshine — easily and at no cost
Freedom of Information: Sunshine experiment in Palo Alto



