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LAW AND PUBLIC SAFETY
DOMESTIC SECURITY PREPAREDNESS
Access to Records
Proposed New Rules: N.J.A.C. 13:1F
Authorized By: Peter C. Harvey, Attorney
General, in consultation with the Domestic
Security Preparedness Task Force.
Authority: N.J.S.A. 47:1A-1, Executive
Order No. 9 (Hughes 1963) and Executive
Order No. 21 (McGreevey 2002).
Calendar Reference: See Summary below
for explanation of exception to calendar
requirement.
Proposal Number: PRN 2004-410 .
Submit comments by
December 17, 2004 to:
Timothy P. Crowley
Deputy Attorney General
P.O. Box 080
Trenton, NJ 08625-0080
The agency proposal follows:
Summary
The Open Public Records Act, Chapter
404, P.L. 2001, took
effect on July 7, 2002.
The Open Public Records Act (OPRA)
provides that all government records shall
be subject to public access unless exempt
by the provisions of the Act, any other
statute, a resolution of either or both
houses of the Legislature, a regulation
promulgated under the authority of a statute
or executive order of the Governor, an
executive order of the Governor, the Rules
of Court, or any Federal law, Federal
regulation or Federal order. Executive Order No. 21 assigns responsibility to the Attorney General,
in consultation with the Domestic Security
Preparedness Task Force, to promulgate
regulations governing the determination
of which government records, at all levels
of government, should not be accessible
because access to such government records
would substantially interfere with the
State=s ability to protect and defend the State and its citizens
against acts of sabotage and terrorism
and would materially increase the risk
or consequences of potential acts of sabotage
or terrorism.
The events of September 11, 2001,
the anthrax attack on postal facilities
in this State, and recent events in Spain
and Great Britain demonstrate that the
threat of sabotage and terrorism against
our people and facilities is real and
immediate. Unqualified access to certain government records
can threaten the lives, health and safety
of the citizens of this State and endanger
public and private property.
These regulations are being proposed,
consistent with Executive Order No. 21,
to strike a balance between the need to
allow ready access to government records
and the need to deny access to government
records where such access would materially
diminish the State=s
ability to protect and defend the State
and its people against sabotage and terrorism.
Executive Order No. 21 declares that
at all levels of government- State, county,
municipal and school district - certain
government records shall not be deemed
to be public records within the meaning
of P.L. 1963, c. 73 as amended and supplemented
by P.L. 2002, c. 404.
Those records include any government
record where the inspection, examination
or copying of that record would substantially
interfere with the State=s
ability to protect and defend the State
and its citizens against attacks of sabotage
and terrorism or would materially increase
the risk or consequences of potential
acts of sabotage or terrorism.
The Executive Order further directs
the Attorney General, in consultation
with the Domestic Security Preparedness
Task Force, to adopt regulations to govern
the determination of which records will
be confidential.
The Attorney General, after consulting
with the Task Force, proposes new rules
for determining which records held by
a government agency are deemed confidential
and therefore not subject to public access
under N.J.S.A.47:1A-1 et seq. as amended
and supplemented.
The Open Public Records Act and
the Domestic Security Preparedness Act
each represent a policy determination
by the Legislature regarding the availability
of government records on demand.
The purpose of the proposed new
rules is to establish standards for use
at all levels of government for determining
questions of access to a government record
on a record specific and/or request specific
basis where there is a bona fide security
concern.
Such purpose can best be achieved
by identifying categories of records that
clearly relate to domestic security and
by establishing the specific criteria
to be used by custodians in determining
whether unqualified access should be denied
because of domestic security considerations.
See proposed new rule N.J.A.C.
13:1F-1.3.
While the proposed new rules provide
custodians with discretion and, authorize
custodians, in appropriate circumstances,
to deny access to a record that falls
within one of the categories of records
in furtherance of the security and public
safety interests underlying the rule,
the rules are not intended to and do not
authorize the indiscriminate denial of
access to every government record in a
category.
Furthermore, nothing in the proposed
new rules is intended to prevent a department or agency from sharing
information with the public on a bona
fide need to know basis.
Proposed new rule N.J.A.C. 13:1F-1.1
defines the applicability and scope of
the rules. Proposed new rule N.J.A.C. 13:1F-1.2 contains
definitions of major terms such as Abiological
agent@, Abiotechnology@, Apublic agency@, Amaterial@ and Asubstantial@. The term Abiological agent@ is
defined with reference to the list of
such agents found in the Federal regulations
governing the interstate shipment of etiologic
agents found at 42 C.F.R.
Part 72, Appendix A, which is incorporated
by reference, as amended and supplemented. That appendix includes viruses such as haemorrhagic
fever, equine encephalitis, ebola, smallpox
and yellow fever. It includes bacteria such as bacillus anthracis,
brucella abortus, burkholderia mallei
and pseudomallei and clostridium botulinum.
It also includes rickettsiae such
as coxiella burnetii and rickettsia rickettsii. Finally, that appendix includes toxins such
as abrin, botulinum toxins, ricin, shigatoxin
and T-2 toxin. The definitions of Abiotechnology@ and
Apublic agency@ track
the similar definitions found in OPRA
(N.J.S.A. 47:1A-1.1). The definitions of Amaterial@ and
Asubstantial@ follow
accepted dictionary definitions of those
terms.
Proposed new rule N.J.A.C. 13:1F-1.4
identifies categories of records which
will be deemed confidential and not subject
to public access, if the inspection, examination
or copying of that record would substantially
interfere with the State=s ability to protect and defend the State and its citizens
against acts of sabotage or terrorism,
or which, if disclosed, would materially
increase the risk or consequences of potential
acts of sabotage or terrorism.
Paragraph 1 excludes from public
access under OPRA that portion of any
record relating to building plans, blueprints,
schematic drawings, diagrams or operational
records where disclosure would reveal
the specific location of life safety and
support systems, load bearing structural
elements, surveillance techniques, alarm
or security systems or technologies, operational
and transportation plans or personnel
deployments.
It also exempts portions of records
pertaining to critical infrastructure,
government-owned or operated buildings,
mass transit facilities, bridges, tunnels,
public utilities, emergency response facilities,
buildings containing hazardous materials,
arenas and stadiums, where disclosure
would substantially interfere with the
State=s ability to protect and defend the State and its citizens
against acts of sabotage or terrorism,
or where disclosure would materially increase
the risk or consequence of such acts. Paragraph 2 excludes from public access under
OPRA that portion of any record disclosing
any inventory or operational protocols
pertaining to explosives stored in magazines
within the state but does not exclude
the location of such magazines. Paragraph 3 excludes from public access under OPRA that portion
of any record that would reveal information
pertaining to nuclear power plants, radioactive
waste or the Nuclear Regulatory Commission,
information regarding shielding designs
for low level sources of radiation or
certain Nuclear Regulatory Commission
advisories that address lessons learned,
security or enforcement issues.
Paragraph 4 excludes from public
access under OPRA that portion of records
disclosing any inventory of cultures and
stocks of biological agents infectious
to humans, animals or plants, or any regulated
medical waste that may contain those agents.
It also excludes certain information
on the nature and quantities of certain
raw pharmaceuticals as well as any portion
of records that would reveal operational
protocols pertaining to said materials.
Paragraph 4 applies only to the
select biological agents specified in
the Federal regulations governing the
interstate shipment of etiologic agents
found at 42 C.F.R. Part 72, Appendix A.
Paragraph 5 excludes from public
access under OPRA that portion of records
disclosing any inventory of State and
local emergency resources compiled and
any policies or plans compiled by a public
agency pertaining to the mobilization,
deployment or tactical operations involved
in responding to emergencies. It also excludes certain environmental emergency plans, maps and
analyses such as off site consequence
analyses under the Toxic Catastrophe Prevention
Act.
Paragraph 6 excludes from public
access under OPRA any overlay or analysis
generated by GIS for the purpose of evaluating
or securing the state=s
critical infrastructure.
Paragraph 7 excludes from public
access under OPRA any records regarding
the infrastructure and security of computer
and telecommunication networks consisting
of security passwords, security access
codes, security recovery plans, security
risk assessments and security test results.
Paragraph 8 excludes from public
access under OPRA information prepared
from national and state security briefings
related to domestic preparedness for acts
of terrorism and records not subject to
public disclosure under Federal and state
law that are shared by Federal or international
agencies. Paragraph 9 excludes from public access under
OPRA that portion of any intelligence
records, national defense information,
advisories marked classified or Aneed to know@ by Federal or State intelligence or law enforcement
agencies or other records pertaining to
military missions and operations generated
by Federal or State governments or any
subdivisions. It also excludes from access classified homeland
security information and sensitive but
unclassified homeland security information
obtained by a State or local government
agency from a Federal agency under section
892 of the Homeland Security Act of 2002
(P.L. 107-296). That section provides that state laws authorizing
or requiring a state or local entity to
disclose such information shall not apply
to such information.
Paragraph 10 excludes from public
access under OPRA information reported
to the Department of Agriculture or local
animal health officials that identifies
specific outbreaks or potential outbreaks
of contagious diseases in livestock, poultry
or bee colonies, or information compiled
by the Department as part of an investigation
of or surveillance for actual or potential
outbreaks of such diseases.
This exclusion only applies, initially,
for a brief period to allow the State
to determine whether they are dealing
with an act of terrorism. If there is a substantial basis for believing
that it was an act of terrorism, the exclusion
continues. Otherwise, the records will be accessible.
Proposed new rule N.J.A.C. 13:1F-1.5
provides that records otherwise exempt
from disclosure under N.J.A.C. 13:1F-1.4(a)1
through (a)(10) may be disclosed if the
head of a cabinet-level agency, with the
approval of the Task Force, determines
that there is a bona fide need for public
access to the record.
Such disclosures may include appropriate
limitations on access, such as the reading
room practice followed by some federal
agencies.
Because the Attorney General has
provided a 60 day comment period, the
proposal is exempt from the rulemaking
calendar requirement under N.J.A.C. 1:30-3.3(a)5.
Social Impact
The proposed new rules implement
the requirements of Executive Order No.
21 that the Attorney General adopt regulations
to govern the determination of which government
records, at all levels of government,
should not be accessible on an unqualified
basis in order to protect the State and
its citizens from acts of sabotage and
terrorism. The proposed rules will have a positive social
impact because the Attorney General
has carefully balanced the need
for the Governments to protect human life
and critical infrastructure, with the
need for citizens to have open Government
in accordance with N.J.S.A. 47:1A-1 et
seq. as amended and supplemented by P.L.
2001, c.404 (Open Public Records Act).
The rules limit access to records
where that information could be used by
terrorists to commit acts or sabotage
or terrorism. At the same time, the rules recognize that
these same records should, in certain
instances, be disclosed to those citizens
who have a bona fide need to know.
For example, a chemical worker
in a plant with hazardous material might
need to know protocols necessary to protect
that worker and fellow workers. Emergency responders would need to know what
chemicals are stored in a particular facility
in order to react properly in an emergency
without endangering their lives or the
lives of other citizens. Those persons would still have access to the
necessary information, but under controlled
circumstances. The proposed new rules assist law enforcement
officers in protecting the lives and critical
infrastructure of the State of New Jersey
without unduly burdening the general public's
right to have access to government records.
The rules reflect the requirements of P.L. 2002,
c. 404, limiting access to records of
emergency or security information or procedures
for any buildings or facility, and records
of security measures, which would endanger
public safety if released.
Economic Impact
The proposed new rules will not have
direct economic impact on the public or
on government in the state. The rules do not impose any costs on the public
or on government agencies.
The proposed new rules will, however,
have an indirect beneficial economic impact
in that they are intended to preserve
the State=s citizens and critical infrastructure assets from the threat or occurrence
of sabotage and terrorist acts.
Federal Standards Statement
A Federal standards analysis is not
required because the proposed new rules
are not subject to any Federal standards.
The Federal Freedom of Information
Act, 5 U.S.C. '' 550a et seq.,
does not apply to records of State government
and does not constitute a Federal standard.
The proposed new rules incorporate
by reference Federal standards on biological
agents, which are found at 42 C.F.R. Part
72, Appendix A.
Jobs Impact Statement
The proposed new rules will not have
an impact on the generation or loss of
jobs in the public or private sector in
New Jersey.
Agriculture Industry Impact
The proposed new rules will not have
an impact on the agriculture industry
in New Jersey.
Regulatory Flexibility Statement
A
regulatory flexibility analysis
is not required because the proposed new
rules do not impose reporting, record
keeping or other compliance requirements
on small businesses, as that term is defined
in the Regulatory Flexibility Act, N.J.S.A.
52: 14B-16 et seq.
Smart Growth Impact
The proposed new rules will not have
an impact on the achievement of smart
growth or implementation of the State
Development and Redevelopment Plan.
Full text of
the proposed new rules follows:
CHAPTER 1F DOMESTIC SECURITY PREPAREDNESS
SUBCHAPTER 1 ACCESS TO RECORDS
13:1F-1.1
Scope and applicability
The rules in this chapter apply to
all public agencies as defined in N.J.S.A.
47:1A-1.1; provided, that this chapter
shall not apply to the Legislature or
any other office, board, bureau or commission
within the Legislative Branch.
13:1F-1.2 Definitions
The words and terms as used in this
section shall have the following meaning,
unless the context clearly requires otherwise:
ABiological agent@ means:
a. any select agent that is a microorganism, virus, bacterium, fungus,
rickettsia or toxin listed in 42 C.F.R.
Part 72, Appendix A, incorporated herein
by reference, as amended and supplemented.
b. any genetically modified microorganism or genetic element from
an organism listed in 42 C.F.R. Part 72,
Appendix A, incorporated herein by reference,
as amended and supplemented shown to produce
or encode for a factor associated with
a disease; or
c. any genetically modified microorganism or genetic element that
contain nucleic acid sequences coding
for any of the toxins listed in 42 C.F.R.
Part 72, Appendix A, incorporated herein
by reference, as amended and supplemented,
or their toxic subunits.
ABiotechnology@ means
any technique that uses living organisms,
or parts of living organisms, to make
or modify products, to improve plants
or animals, or to develop micro-organisms
for specific uses, including the industrial
use of recombinant DNA, cell fusion and
novel bioprocessing techniques.
ACritical infrastructure@ means any system or asset, including but not limited to, communications,
financial, computers, transportation,
military, government services, emergency
services, water, waste water, and energy
and public utility services, vital to
this State such that the incapacity or
destruction of such systems and assets
or parts thereof would have an impact
on the physical or economic security and
public health or safety of any combination
of those matters of this State.
ACultures and stocks@ means
etiologic agents and associated biologicals,
including specimen cultures and culture
dishes and devices used to transfer, inoculate,
and mix cultures, wastes from production
of biologicals and serums, and discarded
live and attenuated vaccines.
AGeographic Information Systems@ or AGIS@ means a computerized system used to store, edit, query,
visualize, manipulate and analyze both
geographic and non-geographic information
comprised of spatial and attribute data.
AMaterial@ means
significant, essential.
AOverlay@ means
the layers of data generated by GIS that
can be classified and analyzed interdependently
for the purposes of performing specialized
geographic and non-geographic analyses.
APublic agency@ means
any of the principal departments in the
Executive Branch of State Government,
and any division, board, bureau, office,
commission or other instrumentality within
or created by such department; and any
independent State authority, commission,
instrumentality or agency. The term also means any political subdivision of the State or combination
of political subdivisions, and any division,
board, bureau, office, commission or other
instrumentality within or created by a
political subdivision of the State or
combination of political subdivisions,
and any independent authority, commission,
instrumentality or agency created by a
political subdivision or combination of
political subdivisions.
ASubstantial@ means
of real worth and importance; real, not
seeming or imaginary.
13:1F-1.3 Requests for Government Records
(a) Requests to a custodian of a
public agency for access to the government
records specified in N.J.A.C. 13:1F-1.4 shall be determined by the custodian and such
other person as the public agency may
direct, in accordance with the standards
set out in N.J.A.C. 13:1F-1.4.
(b) In the event that a request for
access to the government records specified
in N.J.A.C. 13:1F-1.4 is received by the
custodian of a state agency and the requested
records are held by more than one state
agency, the custodian who receives the
request shall consult with the custodian(s)
of the other state agency(ies) holding
such records.
13:1F-1.4 Records Exempt from Access
(a) The following records shall not be deemed to be Government
Records subject to public access, inspection,
examination or copying pursuant to the
provisions of N.J.S.A. 47:1A-1, as amended
and supplemented, if the inspection, examination
or copying of that record would substantially
interfere with the State=s ability to protect and defend the State and its citizens
against acts of sabotage or terrorism,
or which, if disclosed, would materially
increase the risk or consequences of potential
acts of sabotage or terrorism:
1. i. Records or portions thereof regarding building plans, blueprints,
schematic drawings, diagrams, and operational
manuals, where disclosure would reveal
the specific location of life safety and
support systems, load bearing structural
elements, surveillance techniques, alarm
or security systems or technologies, operational
and transportation plans or protocols
or personnel deployments;
ii. records of airports, mass transit facilities, bridges, tunnels,
public utilities, municipal utilities
authorities;
iii. records of critical infrastructure, including but not limited
to energy, telecommunications, water and
sewage networks, and records of other
entities with energy generation, production,
distribution, transmission or storage
facilities in the State, or entities with
transportation lines or facilities;
iv. emergency response facilities or structures;
v.
buildings where hazardous materials
are stored;
vi. arenas and stadiums;
vii. any building or structure owned or operated by the State or
any of its political subdivisions
2. That portion of records disclosing
any inventory or operational protocols
pertaining to explosives stored in magazines
within the state, provided, that this
exception shall not include the location
of such magazines;
3. Information relating to nuclear
power plants, radioactive waste or the
Nuclear Regulatory Commission; information
related to a nuclear power plant, which
if disclosed, would jeopardize the public
health, safety and welfare or the security
of the plant; information regarding shielding
designs of low-level waste generators;
and Nuclear Regulatory Commission issued
Radioactive Materials Licenses or advisories
that address lessons learned, security
or enforcement issues;
4. That portion of records disclosing
any inventory of
State cultures and stocks of biological
agents and toxins infectious to humans, animals or plants, as defined in
Appendix A of Part 72 of Title 42 of the
Code of Federal Regulations as amended
and supplemented, and as may be established
by the New Jersey Department of Health
and Senior Services; that portion of records
disclosing any medical waste regulated
under the Comprehensive Waste Management
Act (N.J.S.A. 13:1E-48.1 et seq.) that
may contain those biological agents and
toxins; that portion of records disclosing
the nature and quantities of raw pharmaceutical materials such as botox;
and any portion of records that reveals
operational protocols pertaining to the
above-cited materials, including but not
limited to the purchase, collection, storage,
handling, destruction, treatment, transportation
and disposal of said materials;
5. That portion of records disclosing any inventory of State and local emergency
resources compiled and any policies or
plans compiled by a public agency pertaining
to the mobilization, deployment or tactical
operations involved in responding to emergencies,
including employee emergency contact information;
and any environmental emergency plans
and maps as follows: Environmental
Emergency Procedures plans such as emergency
procedures for Wastewater Treatment facilities
pursuant to N.J.A.C. 7:14A-6.12(D); Inundation
maps submitted as part of Emergency Action
Plans pursuant to N.J.A.C. 7:20-1.7f and
1.11i; Discharge Prevention Containment
and Countermeasures and Discharge Cleanup
and Removal Plans and related general
site plans; and Off-Site Consequence Analyses
developed pursuant to the Toxic Catastrophe
Prevention Act;
6. That portion of any overlay or
analysis generated using GIS for the purpose
of evaluating or securing the State=s critical infrastructure or domestic security preparedness;
7. Records or portions thereof regarding the infrastructure and security
of computer and telecommunication networks,
consisting of security passwords, security
access codes and programs, access codes
for secure software applications, security
and service recovery plans, security risk
assessments, and security test results
to the extent that they identify specific
system vulnerabilities;
8. Information prepared from national
and state security briefings provided
to state or local government officials
related to domestic preparedness for acts
of terrorism and records not subject to
public disclosure under Federal and state
law that are shared by Federal or international
agencies;
9. That portion of any intelligence
records, national defense information,
such as Lockheed Martin=s
Aegis radar System facility, advisories
marked Aneed to know@ or operations plans, orders and reports pertaining to
military missions generated by Federal
or state governments or any subdivision
thereof, and any information obtained
by a State or local government agency
from a Federal agency under section 892
of the Homeland Security Act of 2002 (P.L.
107-296); and
10. Information that identifies
specific potential or actual cases of
contagious disease in livestock, poultry,
or bee colonies, that has been 1) reported
by producers, dealers, veterinarians,
or by the owner or agent of the owner
of such livestock, poultry, or bee colonies;
or 2) compiled by the Department of Agriculture
as part of an investigation of, or surveillance
for, actual or potential outbreaks of
contagious disease.
Such information shall not be deemed
a government record and shall be confidential
pending a determination by the State whether
there is a substantial basis to believe
that the causes thereof are acts of sabotage
or terrorism, which period shall not exceed
15 days unless the state is unable to
make this determination, and the state
may extend this deadline for an additional
15 days. Where the State has determined that a substantial
basis exists to believe that the causes
are acts of sabotage or terrorism, such
information shall not be deemed a government
record. Where the State does not have such a substantial
basis to believe that the causes are acts
of sabotage or terrorism or does not make
a determination within 30 days of receipt
of the information, such information shall
be deemed a government record.
13:1F-1.5 Release of information by state agencies
Notwithstanding the provisions of
N.J.A.C. 13:1F-1.4, upon submission to
and approval by the Domestic Security
Preparedness Task Force, heads of Cabinet-level
agencies of State government shall have
the authority to allow disclosure of government
records, exempt from disclosure under
N.J.A.C. 13:1F-1.4(a)(1) through
(a)(10), in whole or in part, where the
agency head determines that there is a
bona fide need for public access
to the records and imposes appropriate
limitations or conditions upon such authorized
disclosure.
Appropriate limitations or conditions
may include, but are not limited to, redacting
certain information, establishing controlled
conditions for access to the records or
permitting inspection or examination and
as appropriate and agreed to by the state
agency the copying of the records.
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