California Supreme Court Opinion S134253 2007

8/12/2019 California Supreme Court Opinion S134253 2007

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INTERNATIONAL FEDERATION OF PROFESSIONAL AND TECHNICAL ENGINEERS, LOCAL 21, AFL-CIO etal. , Petitioners, v. THE SUPERIOR COURT OF ALAMEDA COUNTY, Respondent; CONTRA COSTA NEWSPAPERS,INC., et al. , Real Parties in Interest.

S134253

SUPREME COURT OF CALIFORNIA

42 Cal. 4th 319; 165 P.3d 488; 64 Cal. Rptr. 3d 693; 2007 Cal. LEXIS 8918; 26 I.E.R. Cas. (BNA) 940; 35 Media L.Rep. 2590

August 27, 2007, Filed

PRIOR-HISTORY: Court of Appeal of California, First Appellate District, Division Three, No. A108488. Superior Court of AlamedaCounty, No. RG04166830, Steven Brick , Judge.Internat. Federation of Prof. & Technical Engineers, Local 21, AFL-CIO v. Superior Court, 128 Cal. App. 4th586, 27 Cal. Rptr. 3d 262, 2005 Cal. App. LEXIS 607 (Cal. App. 1st Dist., 2005)

HEADNOTES-1

CALIFORNIA OFFICIAL REPORTS HEADNOTES

CA( 2 ) ( 2) Public Records Law 12.5InspectionExemptionsDisclosure of City Employee SalaryInformationBalancing Test. Under the California Public Records Act (Gov. Code, 6250 et seq. ) , anexemption from disclosure for personnel files (Gov. Code, 6254, subd. (c) ) did not apply to the disclosure ofsalary information of all city employees who earned $ 100,000 or more in fiscal year 20032004. The exemptionrequires the court to balance two competing interests, both of which the California Public Records Act seeks toprotectthe public's interest in disclosure and the individual's interest in personal privacy. Balancing thoseinterests, disclosure of the salary information at issue did not constitute an unwarranted invasion of personalprivacy. (Disapproving to the extent inconsistent: City of Los Angeles v. Superior Court (2003) 111 Cal.App.4th883 [3 Cal.Rptr.3d 915] . )

[ Cal. Forms of Pleading and Practice (2007) ch. 470C, Public Records Act, 470C.13 ; 5 Witkin & Epstein, Cal.Criminal Law (3d ed. 2000) Criminal Trial, 52, 53; 2 Witkin, Cal. Evidence (4th ed. 2000) Witnesses, 283,288.]

COUNSEL: Davis & Reno and Duane W. Reno for Petitioners.

Carroll, Burdick & McDonough, Ronald Yank, David M. Rice and Troy M. Yoshino for CDF Firefighters as AmicusCuriae on behalf of Petitioners and Real Party in Interest Oakland Police Officers' Association.

Weinberg, Roger & Rosenfeld, Antonio Ruiz and M. Suzanne Murphy for Operating Engineers Local Union No. 3 asAmicus Curiae on behalf of Petitioners and Real Party in Interest Oakland Police Officers' Association.

Mastagni, Holstedt, Amick, Miller, Johnsen & Uhrhammer, David E. Mastagni, Will M. Yamada and Stesha R. Hodgesfor California Correctional Peace Officers Association, Legal Defense Fund of the Peace Officers' ResearchAssociation of California, CAUSE-Statewide Law Enforcement Association, Deputy Sheriffs' Association of AlamedaCounty, Placer County Deputy Sheriffs' Association, Sacramento County Deputy Sheriffs' Association,Sacramento Police Officers' Association, Stockton Police Officers' Association, San Mateo County Deputy Sheriffs'Association and San Francisco Deputy Sheriffs' Association as Amici Curiae on behalf of Petitioners and Real Partyin Interest Oakland Police Officers' Association.

No appearance for Respondent.

Levy, Ram & Olson, Karl Olson and Erica L. Craven for Real Party in Interest Contra Costa Newspapers, Inc.

Rains, Lucia & Wilkinson and Allison Berry Wilkinson for Real Party in Interest Oakland Police Officers' Association.

Davis Wright Tremaine and Thomas R. Burke for Coalition of University Employees as Amicus Curiae on behalf ofReal Party in Interest Contra Costa Newspapers, Inc.

Trevor A. Grimm, Jonathan M. Coupal and Timothy A. Bittle for Howard Jarvis Taxpayers Association as AmicusCuriae on behalf of Real Party in Interest Contra Costa Newspapers, Inc.
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2/20

Law Office of Judy Alexander and Judy Alexander for ANG Newspapers, Bakersfield Californian, CaliforniaNewspaper Publishers Association, The Copley Press, Inc., Embarcadero Publishing Company, Gannett, HearstCorporation, Los Angeles Times Communications LLC, McClatchy Company, Metro Newspapers, New York Times,Orange County Register, The Press Enterprise Company and San Jose Mercury News as Amici Curiae on behalf ofReal Party in Interest Contra Costa Newspapers, Inc.

Alan L. Schlosser, Mark Schlosberg; Peter Eliasberg; Law Offices of Amitai Schwartz, Amitai Schwartz, Lisa Sitkin;and Jordan C. Budd for ACLU of Northern California, ACLU Foundation of Southern California and ACLU Foundationof San Diego & Imperial Counties as Amici Curiae on behalf of Real Party in Interest Contra Costa Newspapers,Inc.

JUDGES: George, C. J., with Werdegar, Moreno, and Kriegler JJ., concurring. Concurring and dissenting opinion byKennard, J. Concurring and dissenting opinion by Baxter, J. Concurring and dissenting opinion by Chin, J.

OPINION BY: George

OPINION

GEORGE, C. J. This case presents the question whether the names and salaries of public employees earning $100,000 or more per year, including peace officers, are exempt from public disclosure under the California PublicRecords Act ( Gov. Code, 6250 et seq. ) . 1 The Court of Appeal concluded they are not, because well-established

norms of California public policy and American public employment exclude public employee names and salariesfrom the zone of financial privacy protection. For the reasons explained below, we affirm the judgment of theCourt of Appeal.

FOOTNOTES

1 All further statutory references are to the Government Code unless otherwise noted.

I.

Reporters employed by Contra Costa Newspapers, Inc. (the Newspapers), requested under the California PublicRecords Act (the Act) that the City of Oakland (the City) provide them with the names, job titles, and gross salariesof all city employees who earned $ 100,000 or more in fiscal year 20032004, including those individuals whosebase salaries equaled or exceeded that amount and those who earned a lower base salary but were paid $ 100,000or more because of overtime work. The City agreed to disclose salary and overtime information for each jobclassification, but refused to provide salary information linked to individual employees, claiming that individuallyidentified salary information is exempt from disclosure. The Newspapers sought a writ of mandate in the superiorcourt to compel the City to disclose the requested salary records.

The City's refusal was a departure from its past practice. At least during the years 1996 through 2003, the City'spersonnel director disclosed the names, job titles, and salaries of all city employees, and this information waspublished in a local newspaper. The City changed its policy in May 2004, citing as factors supporting this decision(1) two appellate court decisions that recognized a privacy right in public-employee salary information ( TeamstersLocal 856 v. Priceless, LLC (2003) 112 Cal.App.4th 1500 [5 Cal. Rptr. 3d 847] ( Priceless ) and City of Los Angeles v.Superior Court (2003) 111 Cal.App.4th 883 [3 Cal. Rptr. 3d 915] (City of Los Angeles )); (2) increased concernsregarding financial privacy; and (3) strong opposition to its prior policy from two unions that represented cityemployees. In addition, because the City has a merit-based compensation system, it concluded that disclosing thesalaries of public employees by name each year would permit members of the public to construct a performanceevaluation of each employee by calculating the percentage increase in his or her salary from year to year, which

would invade the employee's privacy.

The superior court granted leave to intervene to two employee unions, the International Federation ofProfessional and Technical Engineers, Local 21, AFL-CIO (Local 21), and the Oakland Police OfficersAssociation (the Police Officers Association). The superior court granted the Newspapers' petition and ordered theCity to disclose the requested salary information. The court concluded that the City and the intervening unions hadfailed to establish that city employees who earn $ 100,000 or more have any protected privacy interest ininformation related to their salary, and found that such salary information consistently had been disclosed in thepast, both by the City and by federal, state, and other local governments. Although the City and some other citiesrecently had refused to disclose individually identified salary information, the court concluded that these refusalsappeared to reflect uncertainty about the proper interpretation of the [Act] in light of recent court decisions.?
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The superior court also concluded that, even assuming a privacy interest existed, that interest is outweighed by thepublic interest in disclosure. The court found extremely speculative? the fears expressed by two declarants thatidentity fraud and unwanted solicitations would ensue in the event information disclosing their salaries were to bereleased. Furthermore, the superior court found, the evidence presented by the Newspapers supports theircontention that disclosure of the names of employees in connection with their individual salaries is ?in many casesnecessary to disclose inefficiency, favoritism, nepotism, and fraud with respect to the government's use of publicfunds for employee salaries. The court also rejected the Police Officers Association's contention that a differentresult is required under Penal Code sections 832.7 and 832.8 with regard to its members because those statutesrender peace officer personnel records confidential, the court concluding that salary information is not includedwithin the definition of personnel records under the latter statute.

The City chose not to appeal from the judgment rendered by the superior court. Local 21 and the Police OfficersAssociation (collectively, the Unions) filed a petition for writ of mandate in the Court of Appeal. After issuing anorder to show cause, that court denied the Unions' petitions. The Unions then successfully sought review in thiscourt.

II.

A.

Openness in government is essential to the functioning of a democracy. Implicit in the democratic process is thenotion that government should be accountable for its actions. In order to verify accountability, individuals musthave access to government files. Such access permits checks against the arbitrary exercise of official power andsecrecy in the political process. ( CBS, Inc. v. Block (1986) 42 Cal.3d 646, 651 [230 Cal. Rptr. 362, 725 P.2d 470] , fn. omitted.) In adopting the Act, the Legislature declared that access to information concerning the conduct ofthe people's business is a fundamental and necessary right of every person in this state. ( 6250 . ) As the result ofan initiative adopted by the voters in 2004, this principle is now enshrined in the state Constitution: The peoplehave the right of access to information concerning the conduct of the people's business, and therefore, thewritings of public officials and agencies shall be open to public scrutiny. (Cal. Const., art. I, 3, subd. (b)(1) . )

The Legislature has been mindful of the right of individuals to privacy. ( 6250 . ) Set forth in the Act arenumerous exceptions to the requirement of public disclosure, many of which are designed to protect individualprivacy. (See 6254 . ) 2 In addition, a catchall exception applies if on the facts of the particular case the publicinterest served by not disclosing the record clearly outweighs the public interest served by disclosure of therecord. ( 6255, subd. (a) . ) Unless one of the exceptions stated in the Act applies, the public is entitled to accessto any writing containing information relating to the conduct of the public's business prepared, owned, used, orretained by any state or local agency. ( 6252, subd. (e) ; see 6253, subd. (a) . )

FOOTNOTES

2 The 2004 initiative that amended the state Constitution to include a right of access to public records explicitly

preserves such statutory exceptions. ( Cal. Const., art. I, 3, subd. (b)(5) . )

The parties agree that the records at issue meet the definition of public records contained in the Act. ( 6252,subd. (d) ; 6253, subd. (a) . ) The records therefore must be disclosed unless one of the statutory exceptionsapplies. The party seeking to withhold public records bears the burden of demonstrating that an exception applies.(See 6255 . ) At issue here is the exemption for [p]ersonnel, medical, or similar files, the disclosure of whichwould constitute an unwarranted invasion of personal privacy. ( 6254, subd. (c) . ) The Unions contend that thesalaries of named public employees are personnel or similar files and that their disclosure constitutes an

unwarranted invasion of personal privacy under this exception.

We need not decide whether the records of a public entity's payroll expenditures constitute personnel or similarfiles because, assuming for purposes of discussion that they do, the exemption does not apply; the disclosure heredoes not constitute an unwarranted invasion of personal privacy. ( 6254, subd. (c) . ) This exemption requires usto balance two competing interests, both of which the Act seeks to protectthe public's interest in disclosure andthe individual's interest in personal privacy. Balancing these interests, we conclude that disclosure of the salaryinformation at issue in the present case would not constitute an unwarranted invasion of personal privacy.

A particular class of information is private when well-established social norms recognize the need to maximizeindividual control over its dissemination and use to prevent unjustified embarrassment or indignity. (Hill v.National Collegiate Athletic Assn. (1994) 7 Cal.4th 1, 35 [26 Cal. Rptr. 2d 834, 865 P.2d 633] ( Hill ).) 3 The partiesagree that individuals have a legally recognized privacy interest in their personal financial information. Even before
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the explicit incorporation of the right of privacy into our state Constitution, we recognized that the protection ofone's personal financial affairs and those of his (or her) spouse and children against compulsory public disclosure isan aspect of the zone of privacy which is protected by the Fourth Amendment and which also falls within thatpenumbra of constitutional rights into which the government may not intrude absent a showing of compelling needand that the intrusion is not overly broad. (City of Carmel-by-the-Sea v. Young (1970) 2 Cal.3d 259, 268 [85 Cal.Rptr. 1, 466 P.2d 225] ( City of Carmel ).) The financial disclosure statute at issue in City of Carmel required everypublic officer and every candidate for state or local office to disclose the nature and extent of his or herinvestments in excess of $ 10,000 as well as those of his or her spouse and their minor children. We held that thelaw was an overbroad intrusion into the right of privacy and thereby invalidly restricted the right to seek or holdpublic office or employment. [T]he right of privacy concerns one's feelings and one's own peace of mind [citation],and certainly one's personal financial affairs are an essential element of such peace of mind. ( Ibid .) In City ofCarmel, we balanced the government's need to minimize conflicts of interest against the individual's right tomaintain privacy in his or her personal financial affairs, concluding that the financial disclosure statute at issue wasunconstitutional because it made no attempt to link the disclosure requirements to the dealings or assets thatmight be expected to give rise to a conflict. ( Id . at p. 269 ; but see Co u n t y of Nevada v. MacMillen (1974) 11Cal.3d 662 [114 Cal. Rptr. 345, 522 P.2d 1345] [upholding later enacted, more narrowly drawn financial disclosurelaw].)

FOOTNOTES

3 As we stated in Commission on Peace Officer Standards and Training v. Superior Court (2007) 42 Cal.4th 278,

300, footnote 11 [64 Cal.Rptr.3d 661, 165 P.3d 462] (Commission on Peace Officer Standards ): Our decision in

Hill , supra , 7 Cal.4th 1 , defined the elements that must be proved in order to establish a claim for invasion of the

state constitutional right of privacy. Although we find the definition of privacy used in Hill to be useful in the

present context, we do not intend to suggest that an intrusion upon a privacy interest must rise to the level of an

invasion of the constitutional right of privacy in order to be recognized under section 6254, subdivision (c) .

The statute at issue in City of Carmel required disclosure of personal financial matters unrelated to the individual'spublic employment. The present case, in contrast, involves disclosure of f inancial matters directly related to theindividual's public employment. Of course, we recognize that many individuals, including public employees, may beuncomfortable with the prospect of others knowing their salary and that many of these individuals would share thatinformation only on a selective basis, even within the workplace. Nor do we question that public disclosure of anindividual's salary may cause discomfort or embarrassment. Nonetheless, in light of the strong public policy

supporting transparency in government, an individual's expectation of privacy in a salary earned in publicemployment is significantly less than the privacy expectation regarding income earned in the private sector.

To the extent some public employees may expect their salaries to remain a private matter, that expectation is nota reasonable one and is, accordingly, entitled to diminished weight in the balancing test we apply under section6254, subdivision (c) . The customs, practices, and physical settings surrounding particular activities may create orinhibit reasonable expectations of privacy. ( Hill, supra , 7 Cal.4th at p. 36 . ) A reasonable expectation of privacyis an objective entitlement founded on broadly based and widely accepted community norms. ( Id . at p. 37 . ) The

broadly based and widely accepted community norm[] applicable to government employee salary information ispublic disclosure.

Well before the Act was adopted, the Attorney General stated that the name of every public officer and employee,as well as the amount of his salary, is a matter of public record. ( State Employees' Retirement Act , 25Ops.Cal.Atty.Gen. 90, 91 (1955) [concluding that state-paid retirement benefits are public records].) Followingadoption of the Act, the Attorney General consistently has maintained that same position. (See Co u n t y PayrollRecords as Public Records , 60 Ops.Cal.Atty.Gen. 110 (1977) [ county payroll records of names and amountsreceived by retirees are public records]; Records for Performance Awards , 68 Ops.Cal.Atty.Gen. 73 (1985) [recordsof the amounts and reasons for performance awards granted to executive managers of a city are subject todisclosure under the Act].)

The Attorney General's longstanding position that government payroll information is public is consistent with thewidespread practice of federal, state, and local governments. 4 Evidence submitted to the superior court by theNewspapers demonstrates that disclosure of salary information has been the practice of both the state and of localgovernments, including not only the City of Oakland itself but also the nearby City of Berkeley, the City andCounty of San Francisco, as well as Contra Costa County. The Newspapers' evidence also establishes that it is apolicy of the State Controller to consider the name and salary of every public employee a matter of public recordand to disclose this information to any member of the public upon request. Additionally, federal regulations require
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Documents

California Supreme Court Opinion S134253 2007