Donald Herrick, V. Special Commitment Center ( 2024 )

Filed
Washington State
Court of Appeals
Division Two
May 29, 2024
IN THE COURT OF APPEALS OF THE STATE OF WASHINGTON
DIVISION II
DONALD HERRICK, No. 58167-1-II
Appellant,
v.
UNPUBLISHED OPINION
SPECIAL COMMITMENT CENTER,
Respondent.
PRICE, J. ⎯ Donald Herrick brought a Public Records Act (PRA), chapter 42.56 RCW,
case against the Special Commitment Center (SCC). Herrick appeals the superior court’s order on
his motion for show cause, arguing that the superior court erred by denying his motion for in
camera review. Herrick also argues that the superior court abused its discretion in determining the
amount of penalty imposed against the SCC because the superior court misapplied the Yousoufian
factors1 and because the superior court failed to consider approximately 40 additional records that
were not disclosed due to the SCC’s inadequate search. We affirm the superior court’s order;
however, because the superior court’s order fails to make any findings regarding the adequacy of
the SCC’s search for the other records that were allegedly not disclosed, we remand to the superior
court for further proceedings consistent with this opinion.
1
Yousoufian v. Office of Ron Sims, 168 Wn.2d 444, 229 P.3d 735 (2010).
No. 58167-1-II
FACTS
On July 22, 2014, Herrick sent the SCC a PRA request seeking “ ‘All New Arrival Profiles
(NAPs), or the equivalent, from 1990 to the present [July 2014], for every resident ever processed
under 71.09 regardless of petition status or current residency.’ ” Herrick v. Special Commitment
Ctr., No. 50364-6-II, slip op. at 2 (Wash. Ct. App. Jun. 4, 2019) (quoting record).2 The SCC sent
Herrick the responsive documents on June 10, 2015, and closed the PRA request. Id. at 5. Herrick
filed a complaint regarding the SCC response to his PRA request for the NAPs, as well as four
other PRA requests he had filed. Id. at 7. The SCC moved for summary judgment, which the
superior court granted. Id.
Herrick appealed the superior court’s order on summary judgment, arguing, among other
things, that the SCC’s search for the NAPs was inadequate. Id. at 1. This court described the facts
Herrick presented at summary judgment regarding the SCC’s response to the request for NAPs:
A NAP is a document drafted by SCC clinicians to give staff an idea of the
resident’s criminal and institutional histories, and medical or behavioral concerns.
According to Dr. Carole DeMarco, an SCC psychologist, a NAP is completed for
each new admission to the SCC. Dr. DeMarco explained, “When the NAP is
completed, it is placed in a separate folder with all of the other NAPs. After the
resident is admitted to SCC, a folder is established in the Records Department for
that resident, and the NAP is placed in the resident’s folder.” [Clerk’s Papers] (CP)
at 131. At the time of Herrick’s requests, the SCC had processed over 430 residents
over the course of its existence.
....
[SCC Public Disclosure Officer Cheryl] Medina provided a declaration regarding
her search processes for the NAPs. Medina stated:
2
https://www.courts.wa.gov/opinions/pdf/D2%2050364-6-II%20Unpublished%20Opinion.pdf
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No. 58167-1-II
With respect to request number 201410-PRR-927 (and the original
201407-PRR-677), I produced all of the New Arrival Profiles
(NAPs) to Mr. Podriznik [a member of Herrick’s legal team] that
were responsive to the original PRR-677 request. I know that I
produced all of the responsive NAPs because there is a folder on the
SCC intranet that contains a copy of all the NAPs, and I produced
all of the NAPs that in that folder had been created as of the date of
Mr. Herrick’s request (July 14, 2014). There was also a list that I
checked to verify that I had them all; when I checked the list, I found
two NAPs were missing from the folder. I sought out and found
those two missing NAPs, eventually obtaining them from Dr. Carole
DeMarco.
CP at 226.
Herrick compiled a chart comparing an SCC resident list against the NAPs provided
from PRR-927. The chart illustrated that the SCC did not provide Herrick with
NAPs for more than 80 (out of 436) residents. The chart also illustrated that the
SCC provided Herrick with over 70 duplicative NAPs.
Herrick, No. 50364-6-II, slip op. at 2-3, 5.
This court reversed the superior court’s order on summary judgment regarding the search
for the NAPs explaining,
The SCC must search those places where a record is reasonably likely to be found
and cannot limit its search to only a single record system if there are other record
systems where a record may likely be. Medina searched and produced all the NAPs
in the NAPs intranet folder. She examined these NAPs against another list, realized
two were missing, and then produced those two missing documents. According to
Dr. DeMarco, every resident upon admission receives a NAP, and each admitted
resident has a folder in the records department that contains their NAP. The list
Medina used to check her search could have been a list for resident folders, but her
declaration lacks clarity on the list that was utilized. As a result, taking the evidence
in a light most favorable to Herrick, there could have been a record system, the
resident folders, that was seemingly not searched for PRR-927 or PRR-817. Dr.
DeMarco’s declaration shows that NAPs are reasonably likely, if not certainly, in
the resident folders.
Viewing the evidence in a light most favorable to Herrick, the nonmoving party,
Herrick’s exhibit, alongside Medina’s and Dr. DeMarco’s declarations, Herrick has
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No. 58167-1-II
shown that a portion of the NAPs were excluded from the documents provided.
Further, he has shown that the SCC seemingly did not search a record system where
the NAPs were reasonably likely to be located. The SCC has not shown its search
was adequate beyond material doubt. As a result, we reverse the trial court’s grant
of summary judgment on the NAPs requests.
Id. at 15 (citations omitted). This court affirmed the dismissal of Herrick’s other claims and
remanded for further proceedings.
Following remand, Herrick filed a motion for in camera review of the record. According
to Herrick, the issues presented for the superior court were “not related to any claimed exemptions
or redactions per se, but rather are related to the adequacy of both the search and the
response . . . .” CP at 9. As part of his motion for in camera review, Herrick sought to have the
superior court order the SCC to produce designated documents for the superior court to compare.
Herrick argued,
The above specified records should be provided in a timely manner in order to be
both utilized by the Court in its In Camera Review and/or Show Cause
determinations and also plaintiff in order to more smoothly navigate, correlate and
offer explanation during the in camera review process and/or hearing etc.
CP at 16. The SCC argued that in camera review was inappropriate and Herrick’s motion for in
camera review should be denied.
The superior court apparently took no action on Herrick’s motion for in camera review.
There is no order specifically denying Herrick’s motion for in camera review in the record
provided to this court; however, there is also no record of a hearing being held on Herrick’s in
camera review motion or such a review being conducted.
On December 5, 2022, Herrick filed a motion for show cause. Herrick identified the issue
for resolution as whether the SCC adequately searched for and produced the requested NAPs. In
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No. 58167-1-II
his motion, Herrick focused on two related, but separate arguments. First, he specifically identified
two NAPs—for residents Ward and Hegewald—that were not produced with the responsive
materials. Second, Herrick also alleged that dozens of NAPs were never produced in response to
his request. Herrick identified approximately 40 NAPs that were produced in July 2022 after the
SCC completed another search of resident records. Herrick argued that the SCC failed to show
they conducted a reasonable search because they produced no evidence that anyone had searched
for the NAPs in the resident folders.
In support of his motion for show cause, Herrick included numerous attachments including
Medina’s and Dr. Demarco’s declarations that had been produced during the previous summary
judgment motion and the July 2022 letter providing the additional NAPs. Herrick also submitted
his own declaration which stated that he had been a resident at SCC and personally saw that each
resident had a resident file in the staff area of each unit which contained the resident’s NAP.
At the same time, Herrick filed a separate motion to determine penalties. In this motion,
Herrick argued that the superior court should impose significant daily penalties for both the
inadequate search and resulting denial of multiple NAPs in general and the specific failure to
produce the Ward and Hegewald NAPs. Herrick argued that there were no mitigating factors
present and there were significant aggravating factors. Herrick also argued that he should be
awarded costs as the prevailing party.
In its response to Herrick’s motions, the SCC argued that “the search for NAPs was
adequate enough to justify a minimal daily fine.” CP at 130. The SCC also claimed that every
responsive NAP had ultimately been produced and the majority of Herrick’s complaints regarding
the processing of PRA complaints by the SCC have been remedied. The SCC also noted that the
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No. 58167-1-II
Ward and Hegewald NAPs were included in the production of additional NAPs in July 2022. The
SCC also included a declaration from the current legal coordinator and records and public
disclosure manager at the SCC, which documented the composition, training, and processes of the
SCC’s public disclosure unit.
Following a hearing on Herrick’s show cause motion and motion to determine penalties,
the superior court made its oral ruling. The superior court did not address Herrick’s threshold
argument that the SCC failed to conduct an adequate search; rather, the superior court immediately
went through the Yousoufian factors and calculated a penalty amount:
I reviewed the documents. As we know—and I just want to make sure the record
is clear—the Court knows as well—the Public Records Act purpose is to provide
the public full access to information concerning the conduct of government.
When there is an error or conduct where the documents are not turned over in
responsive matter required by the Public Records Act, there are two steps involved
for the Court to take a look at:
The first is, determine the number of days that the party was denied access.
And the second part is, determine the appropriateness of a per day penalty, which
today is between zero [and] a hundred dollars a day.
I’ve looked at this and it appears to me that the evidence here shows that the
documents were demanded on July 14th, 2014. The documents of concern here.
We’ll get to them in a moment. And were turned over actually on July 11, 2022.
My math is that’s 2,917 days.
The second thing the Court is required to do is to take a look at aggravating and
mitigating factors.
The first one is a lack of clarity in the PRA request. In this particular case there
were a number of requests. And it’s quite easy to see how this kind of got buried,
or could get buried—in the mix of it all. That is a consideration.
The second thing is the agency’s prompt response, or legitimate follow up inquiry
for clarification. On one part there was a prompt response; there’s a lot of
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No. 58167-1-II
documents that were turned over pursuant to the different requests. And there was
prompt follow-up when there was some clarification necessary, except for these
particular documents you’re talking about today.
The agency’s faith, honest and timely and strict compliance with all PRA procedure
requirements and exceptions. Again, for the vast majority there was good faith,
honest and timely and strict compliance. However, the word “strict compliance,”
that didn’t happen. And there were a couple of documents, for sure, that did not
get turned over timely. And they did not follow the PRA procedure requirements
and exceptions when it came to these particular documents.
Proper training and supervision of the agency’s personnel. This agency does a lot
of training and it does look like the supervision is quite good. That’s not the issue
here at all.
The reasonableness of any explanation for the non-compliance by the agency.
Turning over these two documents, I don’t find any clarification at all why they
held them for eight years; there’s no evidence here that shows a reasonableness of
that non-compliance.
The helpfulness of the agency to the requester. All the other documents, they were
quite helpful; they turned over timely; they did what they needed to do. But these
two documents, to one side for a moment.
The existence of agency systems to track and retrieve public records. Again, on
these particular records, these two records, it was flawed. But, as to the overall
system, is be (sic) quite good.
They were able to retrieve hundreds of documents; just these two were the problem
it appears.
Verbatim Rep. of Proc. (VRP) at 13-16. At this point in the superior court’s oral ruling, Herrick
attempted to correct the superior court’s understanding that only two documents were at issue:
[HERRICK]: Your honor?
[COURT]: No, I—
[HERRICK]: There’s more than the two.
[COURT]: Hey. Hang on a second.
[HERRICK]: Sorry.
[COURT]: All right.
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No. 58167-1-II
VRP at 16. But the superior court’s oral ruling continued without addressing Herrick’s
interruption:
Conversely, the aggravating factors that may support increasing the penalty are the
delay in response by the agency, especially circumstances making time of the
essence.
There was a delay here. Eight years is a considerable delay. Time of the essence;
I don’t know that time is actually of the essence here. That has to do with what’s
the purpose of these two documents compared to all the other documents that were
turned over.
I don’t find these documents themselves to be necessarily essential but,
nevertheless, there was a delay in response.
Lack of strict compliance by the agency with all PRA requirements and exceptions.
I addressed that a little above. There was a lack of strict compliance.
Lack of proper training and supervision of the agency personnel. That does not
appear to be the issue; it’s actually a lack of tracking documents in a manner in
which they can be turned over timely.
Unreasonableness of any explanation for non-compliance by the agency; I don’t
really have a very good explanation as to why these documents were not located
originally. I understand there was some transition perhaps in how documents were
held. But, still, that is not a reasonable explanation.
Needless reckless wanton and bad faith, or intentional non compliance with the
PRA by the agency. Negligent perhaps but not reckless want[on] and bad faith or
intentional non-compliance.
Agency dishonesty. I don’t find there’s any agency dishonesty. Misunderstanding
the documents they had and held, perhaps. But not someone trying to mislead
anyone. I don’t find that to be present at all.
The public importance of the issue to which the request is related, or the importance
as foreseeable by the agency. Generally public records turned over is important to
the public. These specific documents—these specific documents—I don’t find that
they’re terribly important to the public as such. And it’s not really foreseeable why
these documents would be important to the public, not that they should be like any
other record held but, on the other hand, I don’t find they’re particularly important.
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No. 58167-1-II
Any actual personal economic loss to the requester. I have not seen any economic
loss to the requester resulting from the agency’s misconduct. Certainly, there was
no foreseeable loss for these missing couple of documents we’re talking about.
And, finally, a penalty to deter future misconduct by the agency, considering the
size of the agency and the facts of the case. The agency has already taken a number
of steps to try to avoid this in the future. Nevertheless, there has to be—it’s broader
than this particular request; it’s the overall conduct of the agency and making sure
that the documents are held properly so when someone does request them, they will
be turned timely.
There is some problem with the amount of requests that were made initially. And
I can understand that that could cause some confusion. I do understand that. On
the other hand, taken all these factors together, a penalty is appropriate in this case:
The Court does find, not a large penalty but a penalty of one dollar per day for 2,917
days for a total of $2,917 will be the sanction imposed on the State.
VRP at 16-18.
On February 15, 2023, the superior court entered its written order on Herrick’s motions for
show cause and to determine penalties. The written order incorporated the superior court’s oral
ruling. The superior court again did not address the question of whether the SCC conducted an
adequate search but found “that the SCC failed to timely provide two responsive NAPs” for a total
of 2,917 days. CP at 165. The superior court ordered the SCC pay $1 per day for each day that
the NAPs were withheld for a total penalty of $2,917.
On March 3, 2023, Herrick filed a motion for reconsideration. Herrick specifically raised
the issue of the adequacy of the SCC’s search and argued that it was inadequate because the SCC
searched only one location for NAPs despite the fact that there were two known locations where
they might be found. Further, the inadequate search resulted in the failure to produce more than
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No. 58167-1-II
40 NAPs. The superior court denied the motion as untimely and noted that Herrick had failed to
make a showing that reconsideration was warranted under CR 59.
Herrick filed a second motion seeking reconsideration of the order denying his first motion
for reconsideration, which was denied by the superior court.
Herrick appeals, arguing the superior court erred by denying his motion for in camera
review and abusing its discretion in determining the amount of penalty imposed against the SCC.
ANALYSIS
I. IN CAMERA REVIEW
Herrick first argues that the superior court erred by failing to conduct an in camera review
of all the documents Herrick identified. We disagree.
Judicial review of agency actions under the PRA is governed by RCW 42.56.550.
RCW 42.56.550(1) provides, “Upon the motion of any person having been denied an opportunity
to inspect or copy a public record by an agency, the superior court in the county in which a record
is maintained may require the responsible agency to show cause why it has refused to allow
inspection or copying of a specific public record or class of records.” Show cause hearings may
be conducted solely on affidavits. RCW 42.56.550(3). A court may also examine any record in
camera. RCW 42.56.550(3).
We review the superior court’s decision to conduct an in camera review for an abuse of
discretion. Forbes v. City of Gold Bar, 171 Wn. App. 857, 863, 288 P.3d 384 (2012), review
denied, 177 Wn.2d 1002 (2013). Generally, superior courts consider whether in camera review is
necessary to determine whether an agency has properly applied exemptions. See Overlake Fund
v. City of Bellevue, 60 Wn. App. 787, 797, 810 P.2d 507, review denied, 117 Wn.2d 1022 (1991).
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No. 58167-1-II
Courts consider the following factors when determining whether to conduct an in camera review:
“(1) judicial economy, (2) the conclusory nature of the agency affidavits, (3) bad faith on the part
of the agency, (4) disputes concerning the contents of the documents, (5) whether the agency
requests an in camera inspection, and (6) the strong public interest in disclosure.” Id.Here, there were no exemptions at issue in Herrick’s PRA request—the only issue was the
adequacy of the agency’s search for the NAPs. None of the relevant factors weigh in favor of in
camera review because none of the documents that Herrick attached to his motion for an in camera
review contain, or potentially require, redactions and all of the documents were reviewable as part
of the show cause process. Accordingly, the superior court did not abuse its discretion by failing
to hold an in camera review.3
II. PENALTY DETERMINATION
Herrick also argues that the superior court abused its discretion in determining the penalty
imposed against the SCC. Specifically, Herrick argues that (1) the superior court failed to properly
consider the Yousoufian factors as it relates to the Ward and Hegewald NAPs and (2) failed to
account for the SCC’s inadequate search for the NAPs which resulted in the failure to disclose
numerous additional NAPs.
3
To the extent that Herrick argues that in camera review was somehow necessary in order to
compel production of additional records by the SCC, we decline to consider this argument.
Discovery in a PRA case is governed by the civil rules, as in any other civil action. Neigh. All. of
Spokane County v. Spokane County, 172 Wn.2d 702, 716-17, 261 P.3d 119 (2011). Herrick has
provided no citation to authority establishing that an in camera review is an appropriate substitute
for the civil discovery process. See DeHeer v. Seattle Post-Intelligencer, 60 Wn.2d 122, 126,
372 P.2d 193 (1962) (“Where no authorities are cited in support of a proposition, the court is not
required to search out authorities, but may assume that counsel, after diligent search, has found
none.”).
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No. 58167-1-II
We affirm the superior court’s penalty determination regarding the Ward and Hegewald
NAPs. However, Herrick’s argument relating to the additional NAPs is premised on a
determination that the SCC’s search was inadequate and that the SCC acted in bad faith. But based
on the record before this court, it does not appear that the superior court actually considered, or at
least made findings about, the adequacy of the SCC’s search. Accordingly, we remand for the
superior court to address the allegedly inadequate search for the NAPs and make an additional
penalty determination if warranted.
A. LEGAL PRINCIPLES
We review a superior court’s decision on the amount of penalties in a PRA case for an
abuse of discretion. Yousoufian v. Office of Ron Sims, 168 Wn.2d 444, 458, 229 P.3d 735 (2010).
Our Supreme Court has provided the mitigating and aggravating factors that are considered when
determining the amount of a per diem penalty for violations of the PRA. Id. at 466-68. The
mitigating factors are:
(1) a lack of clarity in the PRA request, (2) the agency’s prompt response
or legitimate follow-up inquiry for clarification, (3) the agency’s good faith,
honest, timely, and strict compliance with all PRA procedural requirements
and exceptions, (4) proper training and supervision of the agency’s personnel,
(5) the reasonableness of any explanation for noncompliance by the agency, (6) the
helpfulness of the agency to the requestor, and (7) the existence of agency systems
to track and retrieve public records.
Id. at 467 (footnotes omitted). The aggravating factors are:
(1) a delayed response by the agency, especially in circumstances making time of
the essence, (2) lack of strict compliance by the agency with all the PRA procedural
requirements and exceptions, (3) lack of proper training and supervision of the
agency’s personnel, (4) unreasonableness of any explanation for noncompliance by
the agency, (5) negligence, reckless, wanton, bad faith, or intentional
noncompliance with the PRA by the agency, (6) agency dishonesty, (7) the public
importance of the issue to which the request is related, where the importance was
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No. 58167-1-II
foreseeable to the agency, (8) any actual personal economic loss to the requestor
resulting from the agency’s misconduct, where the loss was foreseeable to the
agency, and (9) a penalty amount necessary to deter future misconduct by the
agency considering the size of the agency and the facts of the case.
Id. at 467-68 (footnotes omitted). No single factor should control because superior courts have
“considerable discretion” when determining PRA penalties. Id.
B. PENALTY FOR NON-DISCLOSURE OF WARD AND HEGEWALD NAPS
Here, the superior court found that the SCC failed to disclose the Ward and Hegewald
NAPs for 2,917 days. In determining the penalty to impose for the failure to disclose the Ward
and Hegewald NAPs, the superior court thoroughly addressed each of the mitigating and
aggravating factors under Yousoufian. Reviewing the record as whole, it is clear that the superior
court determined the failure to disclose the records was a potentially neglectful mistake but neither
a systemic failure of compliance with the PRA or the result of intentional misconduct or bad faith
on the part of the agency.
Despite Herrick’s detailed analysis of each Yousoufian factor, his primary complaint with
the superior court’s analysis is that the superior court declined to find bad faith motivation or
intentional misconduct on behalf of the SSC and award a higher penalty. However, based on
reviewing the record before this court, we cannot say that the superior court abused its discretion
in declining to find the SCC acted with bad faith with respect to the Ward and Hegewald NAPs.
Further, the superior court recognized the correct legal standard for awarding penalties and
thoroughly analyzed each relevant factor. Accordingly, the superior court did not abuse its
discretion in imposing a $1 per day penalty for the SCC’s failure to disclose to Ward and Hegewald
NAPs.
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No. 58167-1-II
C. FAILURE TO CONSIDER INADEQUATE SEARCH
Separate from the Ward and Hegewald NAPs, Herrick argues that the superior court
misapplied the Yousoufian factors because it did not consider the circumstances of the SCC’s
inadequate search for the NAPs—specifically, the willful refusal to search resident files for the
NAPs despite knowing resident files contained NAPs—and that the failure to perform an adequate
search resulted in numerous additional NAPs not being disclosed.
The failure to perform an adequate search for records is the equivalent of a denial under
the PRA. Neigh. All. of Spokane County v. Spokane County, 172 Wn.2d 702, 721, 261 P.3d 119(2011). The adequacy of a search is judged by a standard of reasonableness; specifically, the
search “must be reasonably calculated to uncover all relevant documents.” Id. at 720. The
reasonableness of the search depends on the circumstances of each case. Id. “When examining
the circumstances of a case, then, the issue of whether the search was reasonably calculated and
therefore adequate is separate from whether additional responsive documents exist but are not
found.” Id.
Agencies are required to make more than a perfunctory search and should follow obvious
leads as they are uncovered. Id. “The search should not be limited to one or more places if there
are additional sources for the information requested.” Id. An agency is not required to search
every place a record may be found, but it is required to search places a responsive record is
reasonably likely to be found. Id.
Here, the only written findings that the superior court made in this case were that the Ward
and Hegewald NAPs were not disclosed. There are no findings in the record related to whether
the SCC search for the NAPs was reasonable or whether there was any bad faith, dishonesty, or
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No. 58167-1-II
other aggravating factors related to the inadequate search. Without any findings related to the
inadequate search, we cannot make any determination regarding the Yousoufian factors (for
anything other than the Ward and Hegewald NAPs) or hold that the superior court abused its
discretion in determining the amount of penalties.
A superior court abuses its discretion when it fails to exercise its discretion, such as by
failing to make a necessary decision. State v. Stearman, 187 Wn. App. 257, 265, 348 P.3d 394(2015); In re Adoption of A.W.A., 198 Wn. App. 918, 922, 397 P.3d 150 (2017). Making findings
regarding the adequacy of the SCC’s search for the NAPs was clearly a necessary decision in this
case. Indeed, in our 2019 decision, this court specifically remanded Herrick’s case to the superior
court to resolve genuine issues of material fact regarding the adequacy of the SCC’s search for the
NAPs. And by raising SCC’s failure to produce several dozen additional NAPs, (apart from Ward
and Hegewald NAPs), in his motion for show cause, Herrick directly raised issues related to the
adequacy of the search. Yet, the superior court failed to make a necessary decision by failing to
make any findings regarding the adequacy of the SCC’s search for the NAPs. Accordingly, we
remand to the superior court to address whether the SCC’s search for the NAPs was adequate and,
based on those findings, to determine whether additional penalties are warranted.4
4
Herrick also argues that the superior court erred by denying his two motions for reconsideration.
Because we address the merits of Herrick’s challenge to the superior court’s order on his motion
to show cause and because Herrick’s motions for reconsideration do not include evidence or
arguments that were not before the superior court in the show cause motion, we do not address
Herrick’s arguments regarding the superior court’s orders denying his motions for reconsideration
separately.
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No. 58167-1-II
III. COSTS
Herrick argues that the superior court erred by failing to award him costs as the prevailing
party. Herrick also seeks costs on appeal.
A. COSTS AT SUPERIOR COURT
Under the PRA, “[a]ny person who prevails against an agency in any action in the courts
seeking the right to inspect or copy any public record or the right to receive a response to a public
record request within a reasonable amount of time shall be awarded all costs, including reasonable
attorney fees, incurred in connection with such legal action.” RCW 42.56.550(4). Whether to
award costs is a legal issue we review de novo. Sanders v. State, 169 Wn.2d 827, 866, 240 P.3d
120 (2010). However, the amount of the award is reviewed for an abuse of discretion. Id. at 867.
A requester does not need to prevail on all his or her claims in order to be awarded costs.
See id. at 867-68. The superior court has the discretion to apportion costs so the award does not
relate to exempt documents or may reduce the amount of the award to account for claims on which
the requester did not prevail. Id.
Here, the superior court found that Herrick did prevail on his claim regarding the Ward and
Hegewald NAPs and, therefore, Herrick was entitled to some award of costs regarding that claim.
But the superior court abused its discretion by failing to make a determination regarding Herrick’s
request for costs. See A.W.A., 198 Wn. App. at 922. Accordingly, the superior court should
consider Herrick’s request for costs on remand.
B. COSTS ON APPEAL
Herrick also requests costs on appeal. Under RAP 14.2, costs are awarded to the party that
substantially prevails on appeal.
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No. 58167-1-II
Here, there is no substantially prevailing party on appeal. Herrick did not prevail on his
challenges to the penalty award regarding the failure to disclose the Ward and Hegewald NAPs.
And although we are remanding to the superior court to make a determination regarding the
adequacy of the search for the NAPs, it is unclear whether Herrick will ultimately prevail on his
claim that the search for NAPs was inadequate. Accordingly, Herrick’s request for costs on appeal
is denied.
CONCLUSION
We affirm the superior court’s order awarding penalties for the Ward and Hegewald NAPs
but remand for further proceedings consistent with this opinion.
A majority of the panel having determined that this opinion will not be printed in the
Washington Appellate Reports, but will be filed for public record in accordance with RCW 2.06.040,
it is so ordered.
PRICE, J.
We concur:
CRUSER, C.J.
MAXA, J.
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