Whether the Nursing and Midwifery Board of Ireland was justified in its decision to grant a request affecting the interests of the applicant
3 May 2019
This review arises from a decision made by the Nursing and Midwifery Board of Ireland to grant a request to which section 38 of the FOI Act applies. Section 38 applies to cases where, at some stage in the decision making process, the public body has formed the view that the record(s) in question qualify for exemption under one or more of the relevant exemptions in the FOI Act (i.e. sections 35, 36 and 37 - relating to information that is confidential, commercially sensitive, or personal information about third parties, respectively) but that the record(s) should be released in the public interest.
Where section 38 applies, the public body is required to notify an affected third party before making a final decision on whether or not the exemption(s), otherwise found to apply, should be overridden in the public interest. The requester, or an affected third party, on receiving notice of the final decision of the public body, may apply directly for a review of that decision to this Office.
On 4 February 2019, the Nursing and Midwifery Board of Ireland received a request seeking access to records relating to a report commissioned by the board members of NMBI and carried out in 2015. The Nursing and Midwifery Board of Ireland formed the opinion that the request was one to which section 38 of the FOI Act applied and wrote to the applicant on 1 March 2019 inviting a submission on the possible release of certain records. The applicant made a submission to the Nursing and Midwifery Board of Ireland on 21 March 2019, following which, by email dated 2 April 2019, the Nursing and Midwifery Board of Ireland notified the applicant of its decision to grant the request. The applicant sought a review by this Office of that decision on 18 April 2019.
Analysis and Findings
Section 38(2) provides that the head of a public body shall, not later than two weeks after the receipt of the request, notify any relevant third parties:
"(i) of the request and that, apart from this section, it falls, in the public interest, to be granted,
(ii) that the person may, not later than 3 weeks after the receipt of the notification, make submissions to the head in relation to the request, and
(iii) that the head will consider any such submissions before deciding whether to grant or refuse to grant the request."
In this case, the FOI request was received by the Nursing and Midwifery Board of Ireland on 4 February 2019. However, the records received by this Office indicate that the Nursing and Midwifery Board of Ireland did not formally contact the affected third party, as provided for at section 38(2), until 1 March 2019, nearly 4 weeks after receipt of the request from the original requester. Under section 38(2), the applicant should have been formally notified by 18 February 2019 at the latest.
It is clear that the Nursing and Midwifery Board of Ireland did not comply with the section 38 requirements in this case. I am concerned at the delay that has arisen for both the requester and the applicant in receiving a binding determination on the matter as a result of the Nursing and Midwifery Board of Ireland’s failure to correctly apply those requirements. While I am reluctant to take any action that adds further to that delay, I find that the decision of the Nursing and Midwifery Board of Ireland should be annulled in light of its failure to properly comply with the requirements of section 38. The effect of this is that the Nursing and Midwifery Board of Ireland will have to conduct a new, first instance decision-making process in which it can apply the section 38 requirements of the Act correctly.
I would also like to bring the attention of the Nursing and Midwifery Board of Ireland to the step by step guide to the application of section 38 (including some letter templates) provided by the Central Policy Unit of the Department of Public Expenditure and Reform which is available at www.foi.gov.ie. This Office has also published guidance on section 38 on www.oic.ie, which contains a useful commentary on the Section 38 provisions.
Having carried out a review under section 22(2) of the FOI Act, I hereby annul the decision of the Nursing and Midwifery Board of Ireland in the matter and direct it to conduct a new decision making process which complies with the requirements of Section 38 of the Act.
Should a valid application be received from any party in relation to the new decision, this Office will endeavour to process that application as quickly as possible and in consideration of the interests of all affected parties.
Right of Appeal
Section 24 of the FOI Act sets out detailed provisions for an appeal to the High Court by a party to a review, or any other person affected by the decision. In summary, such an appeal, normally on a point of law, must be initiated not later than four weeks after notice of the decision was given to the person bringing the appeal.