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opinion has been published in Ohio Official Reports at 180 Ohio St.3d 569.]","paragraph_id":"para_1"},{"text":"THE STATE EX REL. HUWIG v. DEPARTMENT OF HEALTH ET AL.","paragraph_id":"para_2"},{"text":"[Cite as State ex rel. Huwig v. Dept. of Health, 2025-Ohio-4454.]","paragraph_id":"para_3"},{"text":"Mandamus—Public Records Act—R.C. 149.43—Relator not entitled to","paragraph_id":"para_4"},{"text":"spreadsheets of certain information maintained by Ohio Department of","paragraph_id":"para_5"},{"text":"Health in the databases in which it compiles death-related information and","paragraph_id":"para_6"},{"text":"COVID-19 vaccination information, because production of the requested","paragraph_id":"para_7"},{"text":"spreadsheets would require department to create a new record—Writ and","paragraph_id":"para_8"},{"text":"relator’s requests for statutory damages, court costs, and attorney’s fees","paragraph_id":"para_9"},{"text":"denied.","paragraph_id":"para_10"},{"text":"(No. 2023-0936—Submitted February 11, 2025—Decided September 30, 2025.)","paragraph_id":"para_11"},{"text":"IN MANDAMUS.","paragraph_id":"para_12"},{"text":"__________________","paragraph_id":"para_13"},{"text":"The per curiam opinion below was joined by FISCHER, DEWINE, DETERS,","paragraph_id":"para_14"},{"text":"and HAWKINS, JJ. KENNEDY, C.J., concurred in part and dissented in part, with an","paragraph_id":"para_15"},{"text":"opinion joined by SHANAHAN, J. BRUNNER, J., concurred in part and dissented in","paragraph_id":"para_16"},{"text":"part and would grant the writ and relator’s request for costs, award $1,000 in","paragraph_id":"para_17"},{"text":"statutory damages, and award partial attorney’s fees.","paragraph_id":"para_18"},{"text":"Per Curiam.","paragraph_id":"para_19"},{"text":"{¶ 1} Relator, Kathryn Huwig, wants to research the effects of COVID-19","paragraph_id":"para_20"},{"text":"vaccinations using health data that respondents, the Ohio Department of Health and","paragraph_id":"para_21"},{"text":"its director, Bruce Vanderhoff, M.D., and State Registrar Rena Bolar1 in the Bureau","paragraph_id":"para_22"},{"text":"of Vital Statistics (collectively, “the department”), have compiled in databases. But","paragraph_id":"para_23"},{"text":"1. Huwig named as a respondent Judith Nagy, the former state registrar in the Bureau of Vital","paragraph_id":"para_24"},{"text":"Statistics. Rena Bolar succeeded Nagy, and we have automatically substituted Bolar for Nagy in","paragraph_id":"para_25"},{"text":"this case. See S.Ct.Prac.R. 4.06(B).","paragraph_id":"para_26"},{"text":"SUPREME COURT OF OHIO","paragraph_id":"para_27"},{"text":"2","paragraph_id":"para_28"},{"text":"when she invoked Ohio’s Public Records Act, R.C. 149.43, to ask the department","paragraph_id":"para_29","court_paragraph":2},{"text":"for spreadsheets containing information from those databases, the department","paragraph_id":"para_30"},{"text":"refused her request. It claimed that her request was too broad, sought protected","paragraph_id":"para_31"},{"text":"health information, and would require it to make a new record, thus exempting the","paragraph_id":"para_32"},{"text":"department from having to produce the requested spreadsheets. Huwig petitions","paragraph_id":"para_33"},{"text":"this court for a writ of mandamus to compel the department to produce the","paragraph_id":"para_34"},{"text":"spreadsheets she seeks.","paragraph_id":"para_35"},{"text":"{¶ 2} Responding to Huwig’s public-records request would require the","paragraph_id":"para_36"},{"text":"department to create a new record, which is more than the law commands. We","paragraph_id":"para_37"},{"text":"therefore deny Huwig’s mandamus petition and her requests for statutory damages,","paragraph_id":"para_38"},{"text":"court costs, and attorney’s fees.","paragraph_id":"para_39"},{"text":"I. FACTS AND PROCEDURAL HISTORY","paragraph_id":"para_40"},{"text":"A. The department’s databases contain death and vaccination information","paragraph_id":"para_41"},{"text":"{¶ 3} The department compiles information pertaining to the deaths of","paragraph_id":"para_42"},{"text":"Ohioans in two separate databases. Most of the information contained in the first","paragraph_id":"para_43"},{"text":"database (which is kept for the sole purpose of producing death certificates) is also","paragraph_id":"para_44"},{"text":"transferred and kept in the second database (which contains a broader range of death","paragraph_id":"para_45"},{"text":"information and has greater functionality). The more detailed database (“death-","paragraph_id":"para_46"},{"text":"information database”) has a line entry for each death, with each entry containing","paragraph_id":"para_47"},{"text":"fields for information such as the decedent’s name, cause of death, and address.","paragraph_id":"para_48"},{"text":"{¶ 4} Utilizing third-party software, the department can export line items","paragraph_id":"para_49"},{"text":"from the death-information database into a plain-text spreadsheet known as a CSV","paragraph_id":"para_50"},{"text":"(comma-separated values) file that a standard computer-spreadsheet program, such","paragraph_id":"para_51"},{"text":"as Microsoft Excel, can read. The department can program the database to export","paragraph_id":"para_52"},{"text":"a specified set of fields into this format while excluding other fields. It has","paragraph_id":"para_53"},{"text":"compiled and maintains spreadsheets of death data for each year dating back to","paragraph_id":"para_54"},{"text":"2007. Prior to the COVID-19 pandemic, the department produced customized","paragraph_id":"para_55"},{"text":"January Term, 2025","paragraph_id":"para_56"},{"text":"3","paragraph_id":"para_57"},{"text":"datasets upon public request, though each dataset required the department to","paragraph_id":"para_58","court_paragraph":3},{"text":"develop a custom query to narrow the fields to be included in the exported file.","paragraph_id":"para_59"},{"text":"{¶ 5} To produce a limited dataset directly from the death-information","paragraph_id":"para_60"},{"text":"database for public inspection, the department can run a query to produce a","paragraph_id":"para_61"},{"text":"spreadsheet that contains only specific fields. But depending on the complexity of","paragraph_id":"para_62"},{"text":"the query, doing so could take the department one minute to several months. And","paragraph_id":"para_63"},{"text":"the database does not have the functionality to redact or obscure data fields for a","paragraph_id":"para_64"},{"text":"particular dataset, so redaction would still have to be performed in another","paragraph_id":"para_65"},{"text":"computer-based spreadsheet program, such as Excel, afterward. The department","paragraph_id":"para_66"},{"text":"can also generate from its database a spreadsheet containing a complete copy of the","paragraph_id":"para_67"},{"text":"death data for a particular year, then redact that data using a spreadsheet program,","paragraph_id":"para_68"},{"text":"such as Excel.","paragraph_id":"para_69"},{"text":"{¶ 6} The department similarly compiles Ohioans’ vaccination records in a","paragraph_id":"para_70"},{"text":"separate database. It uses this information to conduct research, to provide data to","paragraph_id":"para_71"},{"text":"doctors for coordinating patient care, to provide patients with a record of their own","paragraph_id":"para_72"},{"text":"vaccination status, and to send redacted data to researchers who have received the","paragraph_id":"para_73"},{"text":"requisite approval. The department also used this database to comply with federal","paragraph_id":"para_74"},{"text":"reporting requirements during the COVID-19 pandemic.","paragraph_id":"para_75"},{"text":"{¶ 7} Information in the vaccinations database can also be exported into a","paragraph_id":"para_76"},{"text":"plain-text spreadsheet by running a new search query using a specialized third-party","paragraph_id":"para_77"},{"text":"software program. These queries can be complex or straightforward. As with the","paragraph_id":"para_78"},{"text":"other databases, the resulting spreadsheet can be redacted using a computer-","paragraph_id":"para_79"},{"text":"spreadsheet program, such as Excel.","paragraph_id":"para_80"},{"text":"B. Huwig requested specific datasets from the department’s databases","paragraph_id":"para_81"},{"text":"{¶ 8} Huwig analyzes health data as a private citizen who runs a Facebook","paragraph_id":"para_82"},{"text":"group and podcast that focus on issues regarding COVID-19 data. In 2021, based","paragraph_id":"para_83"},{"text":"on her own analyses of the department’s then-public datasets, she twice testified","paragraph_id":"para_84"},{"text":"before an Ohio House committee. At the first hearing, she criticized the","paragraph_id":"para_85"},{"text":"SUPREME COURT OF OHIO","paragraph_id":"para_86"},{"text":"4","paragraph_id":"para_87"},{"text":"department’s data. Shortly thereafter, the department changed which data were","paragraph_id":"para_88","court_paragraph":4},{"text":"publicly available online, with the effect that Huwig had less data to analyze.","paragraph_id":"para_89"},{"text":"{¶ 9} In 2023, Huwig requested from the department a list of the data fields","paragraph_id":"para_90"},{"text":"in the death-information and vaccination databases. Once the department provided","paragraph_id":"para_91"},{"text":"her with that information, Huwig used the data-field terms to submit a public-","paragraph_id":"para_92"},{"text":"records request for spreadsheets from the databases containing a total of over 100","paragraph_id":"para_93"},{"text":"fields of information for a several-year period. When the department responded","paragraph_id":"para_94"},{"text":"that such records do not exist and that it would not create them, Huwig amended","paragraph_id":"para_95"},{"text":"her request to the same information for a one-year period—2021—with redactions","paragraph_id":"para_96"},{"text":"of protected health information. She also asked for more information about how","paragraph_id":"para_97"},{"text":"the department organizes the databases so that she could fine-tune her request.","paragraph_id":"para_98"},{"text":"{¶ 10} The department informed Huwig that the databases were organized","paragraph_id":"para_99"},{"text":"by person but refused to provide her with further information about how it","paragraph_id":"para_100"},{"text":"maintains and accesses the data on the ground that such information involves","paragraph_id":"para_101"},{"text":"critical infrastructure and is not subject to release as a public record under R.C.","paragraph_id":"para_102"},{"text":"149.433(B)(1). It also denied Huwig’s amended request for the 2021 data, asserting","paragraph_id":"para_103"},{"text":"that (1) the request was overbroad, (2) the request would require the department to","paragraph_id":"para_104"},{"text":"create a new record, and (3) the department could not avoid revealing protected","paragraph_id":"para_105"},{"text":"health information even if it created a new record to respond to the request. Brian","paragraph_id":"para_106"},{"text":"Fowler, who oversees public-health informatics at the department, later explained","paragraph_id":"para_107"},{"text":"that since so much information is available on the internet, the department cannot","paragraph_id":"para_108"},{"text":"know how much information it would need to redact from the requested","paragraph_id":"para_109"},{"text":"spreadsheets to prevent bad actors from identifying individuals whose information","paragraph_id":"para_110"},{"text":"is contained on those spreadsheets.","paragraph_id":"para_111"},{"text":"{¶ 11} Huwig brings this original action seeking a writ of mandamus to","paragraph_id":"para_112"},{"text":"compel the department to provide her with the records she requested. We granted","paragraph_id":"para_113"},{"text":"an alternative writ and ordered merits briefing. 2024-Ohio-2781.","paragraph_id":"para_114"},{"text":"January Term, 2025","paragraph_id":"para_115"},{"text":"5","paragraph_id":"para_116"},{"text":"II. ANALYSIS","paragraph_id":"para_117","court_paragraph":5},{"text":"A. We grant Huwig’s motion for leave to submit rebuttal evidence","paragraph_id":"para_118"},{"text":"{¶ 12} Huwig moved for leave to file rebuttal evidence under S.Ct.Prac.R.","paragraph_id":"para_119"},{"text":"12.06(B), consisting of an affidavit by Robert Bounds, a data-warehouse developer","paragraph_id":"para_120"},{"text":"who works as an independent contractor, and an affidavit of her own. The","paragraph_id":"para_121"},{"text":"department objects to admission of the former on the ground that it does not respond","paragraph_id":"para_122"},{"text":"to any new fact or argument the department presented. And it objects to admission","paragraph_id":"para_123"},{"text":"of the latter on the ground that the new affidavit testimony merely expands on","paragraph_id":"para_124"},{"text":"Huwig’s earlier affidavit testimony about her attorney’s fees. We disagree with","paragraph_id":"para_125"},{"text":"both the department’s rationales.","paragraph_id":"para_126"},{"text":"{¶ 13} This court has discretion to admit rebuttal evidence in writ cases,","paragraph_id":"para_127"},{"text":"provided it is timely filed. See, e.g., State ex rel. Gil-Llamas v. Hardin, 2021-Ohio-","paragraph_id":"para_128"},{"text":"1508, ¶ 14. The department does not dispute that Huwig’s motion for leave to","paragraph_id":"para_129"},{"text":"submit rebuttal evidence was timely filed. Therefore, we consider whether the","paragraph_id":"para_130"},{"text":"proposed rebuttal evidence is “‘given to explain, refute, or disprove new facts","paragraph_id":"para_131"},{"text":"introduced into evidence by the adverse party . . . to challenge the evidence offered","paragraph_id":"para_132"},{"text":"by the opponent.’” State ex rel. Mobley v. Powers, 2024-Ohio-104, ¶ 11, quoting","paragraph_id":"para_133"},{"text":"State v. McNeill, 1998-Ohio-293, ¶ 44. The department claims that neither of the","paragraph_id":"para_134"},{"text":"affidavits proposed as rebuttal evidence responds to any fact or argument that it has","paragraph_id":"para_135"},{"text":"presented.","paragraph_id":"para_136"},{"text":"{¶ 14} Bounds’s new affidavit adds to testimony he presented in an earlier","paragraph_id":"para_137"},{"text":"affidavit that Huwig submitted with her evidence in this case. In this new affidavit,","paragraph_id":"para_138"},{"text":"Bounds renews his averment that he received upon request a copy of the 2019","paragraph_id":"para_139"},{"text":"death-information database from the department. He includes additional details","paragraph_id":"para_140"},{"text":"about his receipt of that information from the department and appends a copy of","paragraph_id":"para_141"},{"text":"emails he exchanged with the department related thereto.","paragraph_id":"para_142"},{"text":"{¶ 15} The department contends that such evidence is not responsive to any","paragraph_id":"para_143"},{"text":"facts or arguments that it presented in its merit brief or evidence. And it claims that","paragraph_id":"para_144"},{"text":"SUPREME COURT OF OHIO","paragraph_id":"para_145"},{"text":"6","paragraph_id":"para_146"},{"text":"it never disputed any of the facts Bounds testified to in his first affidavit. But it did","paragraph_id":"para_147","court_paragraph":6},{"text":"dispute Bounds’s initial affidavit testimony. In its merit brief, the department noted","paragraph_id":"para_148"},{"text":"that it “does not . . . create or release custom reports with line-level death data in","paragraph_id":"para_149"},{"text":"response to public records requests.” This contradicts Bounds’s initial affidavit","paragraph_id":"para_150"},{"text":"testimony that he received such data from the department. Bounds refutes the","paragraph_id":"para_151"},{"text":"department’s assertion in his new affidavit, with emails attached in support of his","paragraph_id":"para_152"},{"text":"testimony.","paragraph_id":"para_153"},{"text":"{¶ 16} Huwig’s new affidavit also adds to testimony she presented in an","paragraph_id":"para_154"},{"text":"earlier affidavit concerning her attorney’s fees. In a prior affidavit, Huwig averred","paragraph_id":"para_155"},{"text":"that she will need to pay her attorney, but in this new affidavit, she explains that","paragraph_id":"para_156"},{"text":"she will need to pay “legal fees for services rendered in connection with this matter”","paragraph_id":"para_157"},{"text":"and appends the attorney-fee agreement. The information Huwig provides in this","paragraph_id":"para_158"},{"text":"new affidavit refutes the department’s representation in its merit brief that “the","paragraph_id":"para_159"},{"text":"evidence shows that Ms. Huwig has not incurred, and will not incur, any attorney’s","paragraph_id":"para_160"},{"text":"fees.” Accordingly, we grant Huwig’s motion and admit both affidavits and their","paragraph_id":"para_161"},{"text":"attachments as rebuttal evidence.","paragraph_id":"para_162"},{"text":"B. The records Huwig requested do not exist","paragraph_id":"para_163"},{"text":"{¶ 17} Ohio’s Public Records Act requires a custodian of public records to","paragraph_id":"para_164"},{"text":"make those records not subject to an exception available to any person upon","paragraph_id":"para_165"},{"text":"request. R.C. 149.43(B)(1).2 If the records custodian fails in this duty, the","paragraph_id":"para_166"},{"text":"requesting party may petition this court for a writ of mandamus to enforce its legal","paragraph_id":"para_167"},{"text":"right to the record. R.C. 149.43(C)(1).","paragraph_id":"para_168"},{"text":"{¶ 18} To be entitled to a writ of mandamus, Huwig must prove that she has","paragraph_id":"para_169"},{"text":"a clear legal right to the records she requested and that the department has a clear","paragraph_id":"para_170"},{"text":"legal duty to provide them. State ex rel. Cincinnati Enquirer v. Sage, 2015-Ohio-","paragraph_id":"para_171"},{"text":"2. The General Assembly amended R.C. 149.43 in 2024 Sub.H.B. No. 265 with an effective date of","paragraph_id":"para_172"},{"text":"April 9, 2025. This opinion applies the version of the statute enacted in 2022 Am.Sub.H.B. No. 45","paragraph_id":"para_173"},{"text":"(effective Apr. 7, 2023).","paragraph_id":"para_174"},{"text":"January Term, 2025","paragraph_id":"para_175"},{"text":"7","paragraph_id":"para_176"},{"text":"974, ¶ 10. If the department has withheld a requested public record, it must prove","paragraph_id":"para_177","court_paragraph":7},{"text":"that some exception to disclosure applies. See State ex rel. School Choice Ohio,","paragraph_id":"para_178"},{"text":"Inc. v. Cincinnati Pub. School Dist., 2016-Ohio-5026, ¶ 11.","paragraph_id":"para_179"},{"text":"{¶ 19} The parties dispute whether the databases are themselves public","paragraph_id":"para_180"},{"text":"records and whether the records Huwig requested even exist. Huwig must prove","paragraph_id":"para_181"},{"text":"the requested records are existing “(1) documents, devices, or items, (2) created or","paragraph_id":"para_182"},{"text":"received by or coming under the jurisdiction of the [department], (3) which serve","paragraph_id":"para_183"},{"text":"to document the organization, functions, policies, decisions, procedures,","paragraph_id":"para_184"},{"text":"operations, or other activities of the office,” State ex rel. Dispatch Printing Co. v.","paragraph_id":"para_185"},{"text":"Johnson, 2005-Ohio-4384, ¶ 19.","paragraph_id":"para_186"},{"text":"{¶ 20} We need not resolve whether the databases at issue here are","paragraph_id":"para_187"},{"text":"themselves public records. Huwig did not request copies of the databases but,","paragraph_id":"para_188"},{"text":"rather, spreadsheets containing certain information generated from the databases.","paragraph_id":"para_189"},{"text":"The department argues that the records Huwig seeks (i.e., spreadsheets","paragraph_id":"para_190"},{"text":"summarizing certain death and vaccination data) do not exist. It asserts that","paragraph_id":"para_191"},{"text":"although it could produce spreadsheets from its databases with the information","paragraph_id":"para_192"},{"text":"Huwig seeks and then redact those files, it is not required to do so. We agree.","paragraph_id":"para_193"},{"text":"{¶ 21} If a requested record does not already exist, the custodian of records","paragraph_id":"para_194"},{"text":"need not search through another record to find information that the requester seeks","paragraph_id":"para_195"},{"text":"and compile it into a new record. State ex rel. Kerner v. State Teachers Retirement","paragraph_id":"para_196"},{"text":"Bd., 1998-Ohio-242, ¶ 6; see also State ex rel. Adkins v. Cantrell, 2023-Ohio-1323,","paragraph_id":"para_197"},{"text":"¶ 30. An agency has a duty to respond only to requests for public records that exist,","paragraph_id":"para_198"},{"text":"not to respond to requests for information contained in those records. State ex rel.","paragraph_id":"para_199"},{"text":"Morgan v. New Lexington, 2006-Ohio-6365, ¶ 30.","paragraph_id":"para_200"},{"text":"{¶ 22} A digital record that is the subject of a public-records request exists","paragraph_id":"para_201"},{"text":"at the time the request was made only if the “computer were already programmed","paragraph_id":"para_202"},{"text":"to produce the desired printout,” State ex rel. Scanlon v. Deters, 45 Ohio St.3d 376,","paragraph_id":"para_203"},{"text":"379 (1989), overruled on other grounds by State ex rel. Steckman v. Jackson, 70","paragraph_id":"para_204"},{"text":"SUPREME COURT OF OHIO","paragraph_id":"para_205"},{"text":"8","paragraph_id":"para_206"},{"text":"Ohio St.3d 420 (1994), overruled in part on other grounds by State ex rel. Caster","paragraph_id":"para_207","court_paragraph":8},{"text":"v. Columbus, 2016-Ohio-8394, ¶ 47. A public official is not required to “create a","paragraph_id":"para_208"},{"text":"new ‘document’ by compiling material to facilitate review of the public records.”","paragraph_id":"para_209"},{"text":"Id. Reprogramming a computer’s software to extract certain information from an","paragraph_id":"para_210"},{"text":"existing public record and then compiling that information into a new file creates a","paragraph_id":"para_211"},{"text":"new record to the same extent that combing through an existing public record and","paragraph_id":"para_212"},{"text":"copying the relevant information by hand onto a steno pad would. But the Public","paragraph_id":"para_213"},{"text":"Records Act does not impose such a duty on public-records custodians. See State","paragraph_id":"para_214"},{"text":"ex rel. O’Shea & Assocs. Co., L.P.A. v. Cuyahoga Metro. Hous. Auth., 2012-Ohio-","paragraph_id":"para_215"},{"text":"115, ¶ 19-21; Adkins at ¶ 30. To be sure, there are clear digital analogs to","paragraph_id":"para_216"},{"text":"photocopying and redacting a paper record, such as copying an existing computer","paragraph_id":"para_217"},{"text":"file onto a flash drive. But Huwig has not requested an existing document or a","paragraph_id":"para_218"},{"text":"redacted copy of an existing document.","paragraph_id":"para_219"},{"text":"{¶ 23} To fulfill Huwig’s public-records request, the department would","paragraph_id":"para_220"},{"text":"have to run a complex query to extract certain information from the existing","paragraph_id":"para_221"},{"text":"databases and then organize that information in two new files. So the spreadsheets","paragraph_id":"para_222"},{"text":"Huwig requested will exist only if the department runs a newly created query in the","paragraph_id":"para_223"},{"text":"databases to create them. The department claims that doing this would be akin to","paragraph_id":"para_224"},{"text":"reprogramming its computer software and that that type of reprogramming would","paragraph_id":"para_225"},{"text":"equate to searching through existing records to compile information into a new","paragraph_id":"para_226"},{"text":"record.","paragraph_id":"para_227"},{"text":"{¶ 24} We agree. Though the department would not have to completely","paragraph_id":"para_228"},{"text":"reprogram its computer to extract the data Huwig requests, Scanlon at 379, it would","paragraph_id":"para_229"},{"text":"have to (1) write a new query to search both databases to extract the specifically","paragraph_id":"para_230"},{"text":"requested information from each one, (2) save that information in a new record that","paragraph_id":"para_231"},{"text":"another computer program can read, and (3) then redact protected health","paragraph_id":"para_232"},{"text":"information from each spreadsheet. Such a process more closely resembles","paragraph_id":"para_233"},{"text":"handwriting a new record using existing information than it does copying and","paragraph_id":"para_234"},{"text":"January Term, 2025","paragraph_id":"para_235"},{"text":"9","paragraph_id":"para_236"},{"text":"redacting an already existing record. Compare Kerner, 1998-Ohio-242, at ¶ 2, 6-","paragraph_id":"para_237","court_paragraph":9},{"text":"7, with State ex rel. Shaughnessy v. Cleveland, 2016-Ohio-8447, ¶ 12.","paragraph_id":"para_238"},{"text":"{¶ 25} Huwig amended her public-records request, narrowing it to a request","paragraph_id":"para_239"},{"text":"for data from 2021 instead of a several-year period, with the information to be","paragraph_id":"para_240"},{"text":"redacted as the department saw fit. This amendment, however, does not change the","paragraph_id":"para_241"},{"text":"fact that the department would have to program a new query to search for and","paragraph_id":"para_242"},{"text":"extract the information that Huwig requests and then save that information in a new","paragraph_id":"para_243"},{"text":"document, thereby creating a new record.","paragraph_id":"para_244"},{"text":"{¶ 26} The fact that a spreadsheet already exists that contains death data","paragraph_id":"para_245"},{"text":"from 2021 does not save Huwig’s case. The existing spreadsheet contains","paragraph_id":"para_246"},{"text":"categories of data that Huwig did not request, and in her request, Huwig asked for","paragraph_id":"para_247"},{"text":"data that the 2021 spreadsheet does not contain. Her request would therefore","paragraph_id":"para_248"},{"text":"require the department to create a new spreadsheet with the specific data she seeks,","paragraph_id":"para_249"},{"text":"rather than redacting an existing spreadsheet.","paragraph_id":"para_250"},{"text":"{¶ 27} For these reasons, we find that Huwig has failed to prove that the","paragraph_id":"para_251"},{"text":"department has a clear legal duty to produce the spreadsheets she has requested,","paragraph_id":"para_252"},{"text":"and thus she is not entitled to the requested writ of mandamus. Because we deny","paragraph_id":"para_253"},{"text":"the writ on this basis, we need not address the two exceptions under R.C. 149.43","paragraph_id":"para_254"},{"text":"that the department asserted in denying Huwig’s public-records request—that the","paragraph_id":"para_255"},{"text":"request was overbroad and sought protected health information. And since the","paragraph_id":"para_256"},{"text":"department did not violate any statutory duty under R.C. 149.43(B), Huwig has no","paragraph_id":"para_257"},{"text":"grounds to receive an award of statutory damages, court costs, or attorney’s fees.","paragraph_id":"para_258"},{"text":"See R.C. 149.43(C).","paragraph_id":"para_259"},{"text":"III. CONCLUSION","paragraph_id":"para_260"},{"text":"{¶ 28} The law does not require the department to create new records to","paragraph_id":"para_261"},{"text":"respond to a public-records request. Writing a new query to extract certain","paragraph_id":"para_262"},{"text":"information from existing digital records is legally no different from asking a","paragraph_id":"para_263"},{"text":"custodian to comb through an existing record and handwrite certain information in","paragraph_id":"para_264"},{"text":"SUPREME COURT OF OHIO","paragraph_id":"para_265"},{"text":"10","paragraph_id":"para_266"},{"text":"a new document. Yet this is what Huwig expects the department to do to respond","paragraph_id":"para_267","court_paragraph":10},{"text":"to her public-records request.","paragraph_id":"para_268"},{"text":"{¶ 29} We find that Huwig has not shown by clear and convincing evidence","paragraph_id":"para_269"},{"text":"that the department has a clear legal duty to produce the spreadsheets she requested.","paragraph_id":"para_270"},{"text":"We therefore deny Huwig’s claim for mandamus relief and her requests for","paragraph_id":"para_271"},{"text":"statutory damages, court costs, and attorney’s fees.","paragraph_id":"para_272"},{"text":"Writ denied.","paragraph_id":"para_273"},{"text":"__________________","paragraph_id":"para_274"},{"text":"KENNEDY, C.J., joined by SHANAHAN, J., concurring in part and","paragraph_id":"para_275"},{"text":"dissenting in part.","paragraph_id":"para_276"},{"text":"{¶ 30} I concur in the court’s judgment granting relator Kathryn Huwig’s","paragraph_id":"para_277"},{"text":"motion for leave to submit rebuttal evidence. I write separately, however, because","paragraph_id":"para_278"},{"text":"the majority errs in denying Huwig’s request for a writ of mandamus ordering","paragraph_id":"para_279"},{"text":"respondents, the Ohio Department of Health and its director, Bruce Vanderhoff,","paragraph_id":"para_280"},{"text":"M.D., and State Registrar Rena Bolar3 of the Bureau of Vital Statistics (collectively,","paragraph_id":"para_281"},{"text":"“the department”), to produce the records Huwig asked for in a public-records","paragraph_id":"para_282"},{"text":"request.","paragraph_id":"para_283"},{"text":"{¶ 31} The majority concludes that the department would have to create a","paragraph_id":"para_284"},{"text":"new record to respond to Huwig’s public-records request. See majority opinion,","paragraph_id":"para_285"},{"text":"¶ 2. However, as the majority itself recognizes, the department admits that it could","paragraph_id":"para_286"},{"text":"provide the records Huwig requested by producing spreadsheets from its databases","paragraph_id":"para_287"},{"text":"with the specific information Huwig seeks. See id. at ¶ 20. And Huwig’s request","paragraph_id":"para_288"},{"text":"that the public records be produced as electronic spreadsheets is no different than","paragraph_id":"para_289"},{"text":"if she had asked for a printout of an electronic public record. No one would suggest","paragraph_id":"para_290"},{"text":"3. Huwig named Judith Nagy, the former state registrar in the Bureau of Vital Statistics, as a","paragraph_id":"para_291"},{"text":"respondent. Rena Bolar succeeded Nagy, and this court automatically substituted Bolar for Nagy","paragraph_id":"para_292"},{"text":"in this case. See S.Ct.Prac.R. 4.06(B).","paragraph_id":"para_293"},{"text":"January Term, 2025","paragraph_id":"para_294"},{"text":"11","paragraph_id":"para_295"},{"text":"that if Huwig had asked for the latter, she would be seeking the creation of a new","paragraph_id":"para_296","court_paragraph":11},{"text":"public record.","paragraph_id":"para_297"},{"text":"{¶ 32} Accordingly, I concur in part and dissent in part. In addition to","paragraph_id":"para_298"},{"text":"granting Huwig’s motion for leave to submit rebuttal evidence, I would grant the","paragraph_id":"para_299"},{"text":"writ and award court costs, statutory damages, and attorney fees.","paragraph_id":"para_300"},{"text":"Facts","paragraph_id":"para_301"},{"text":"Huwig’s Public-Records Request","paragraph_id":"para_302"},{"text":"{¶ 33} Huwig first transmitted her public-records request to the department","paragraph_id":"para_303"},{"text":"on May 12, 2023, by email, seeking a report of data contained in the Ohio Mortality","paragraph_id":"para_304"},{"text":"Download File (“death database”) for the years 2017 through 2023. In the same","paragraph_id":"para_305"},{"text":"email, Huwig requested a report of vaccination data from Ohio’s Impact SIIS","paragraph_id":"para_306"},{"text":"COVID-19 Vaccination dataset (“vaccination database”) for the years 2020","paragraph_id":"para_307"},{"text":"through 2023. Huwig requested that the records be provided as plain-text","paragraph_id":"para_308"},{"text":"spreadsheets, which are saved as CSV files, a format that is readable by Microsoft","paragraph_id":"para_309"},{"text":"Excel. As the majority recognizes, the department admittedly can export","paragraph_id":"para_310"},{"text":"information from these two databases into that file format. See majority opinion at","paragraph_id":"para_311"},{"text":"¶ 4.","paragraph_id":"para_312"},{"text":"{¶ 34} The department denied Huwig’s public-records request, stating that","paragraph_id":"para_313"},{"text":"it would have to create new records to respond to the request and that the requested","paragraph_id":"para_314"},{"text":"information could reveal protected health information.","paragraph_id":"para_315"},{"text":"{¶ 35} Huwig offered to resolve the issue by “revising [her] request to","paragraph_id":"para_316"},{"text":"include the entire [death database] and [vaccination] database record(s) for the","paragraph_id":"para_317"},{"text":"years and in the file format originally requested.” The department denied her","paragraph_id":"para_318"},{"text":"request again, stating that the request was overbroad and that the requested records","paragraph_id":"para_319"},{"text":"did not exist.","paragraph_id":"para_320"},{"text":"{¶ 36} In response, Huwig asked that the department explain how the","paragraph_id":"para_321"},{"text":"requested records are maintained and categorized so she could revise her public-","paragraph_id":"para_322"},{"text":"records request. But the department said no, asserting that information about the","paragraph_id":"para_323"},{"text":"SUPREME COURT OF OHIO","paragraph_id":"para_324"},{"text":"12","paragraph_id":"para_325"},{"text":"databases’ file structure constitutes “an infrastructure record” that is not subject to","paragraph_id":"para_326","court_paragraph":12},{"text":"release as a public record under R.C. 149.433(B)(1).","paragraph_id":"para_327"},{"text":"{¶ 37} Later, in a May 19 email, Huwig requested “the [death database] and","paragraph_id":"para_328"},{"text":"the [vaccination database] only for the year 2021.” The department denied the","paragraph_id":"para_329"},{"text":"request, saying that it was still overbroad. And in response to Huwig’s renewed","paragraph_id":"para_330"},{"text":"request for information regarding how the records are maintained, the department","paragraph_id":"para_331"},{"text":"said only that “[t]he systems are person-based and information is recalled by","paragraph_id":"para_332"},{"text":"person.”","paragraph_id":"para_333"},{"text":"The Death Database and the Vaccination Database","paragraph_id":"para_334"},{"text":"{¶ 38} The death database consists of information compiled from death","paragraph_id":"para_335"},{"text":"certificates of persons who die in the State of Ohio and for Ohioans who die in","paragraph_id":"para_336"},{"text":"another state. This database has a line entry for each death and contains information","paragraph_id":"para_337"},{"text":"such as the cause of death and conditions contributing to death and the decedent’s","paragraph_id":"para_338"},{"text":"name, address, date of birth, and race. The database can be accessed online by","paragraph_id":"para_339"},{"text":"members of the public through a public portal and by the department through a","paragraph_id":"para_340"},{"text":"secure portal. The public portal allows members of the public to see “canned”","paragraph_id":"para_341"},{"text":"reports or to build custom reports from the database of deidentified aggregate data.","paragraph_id":"para_342"},{"text":"And, as the department concedes, from its secure portal, it can download mortality","paragraph_id":"para_343"},{"text":"datasets into a CSV file, including datasets for the year 2021.","paragraph_id":"para_344"},{"text":"{¶ 39} The department similarly maintains Ohioans’ vaccination records in","paragraph_id":"para_345"},{"text":"the vaccination database. The department uses this information to provide","paragraph_id":"para_346"},{"text":"vaccination data to doctors on request and to send to researchers as part of approved","paragraph_id":"para_347"},{"text":"research requests. The department also used this database to comply with the","paragraph_id":"para_348"},{"text":"reporting requirements of the Centers for Disease Control and Prevention (“CDC”)","paragraph_id":"para_349"},{"text":"during the COVID-19 pandemic. The department concedes that it can output the","paragraph_id":"para_350"},{"text":"vaccination database into a CSV file.","paragraph_id":"para_351"},{"text":"January Term, 2025","paragraph_id":"para_352"},{"text":"13","paragraph_id":"para_353"},{"text":"Law and Analysis","paragraph_id":"para_354","court_paragraph":13},{"text":"{¶ 40} The majority declines to consider whether the death database and the","paragraph_id":"para_355"},{"text":"vaccination database are public records because “Huwig did not request copies of","paragraph_id":"para_356"},{"text":"the databases but, rather, spreadsheets containing certain information generated","paragraph_id":"para_357"},{"text":"from the databases.” Majority opinion at ¶ 20. But Huwig did request copies of","paragraph_id":"para_358"},{"text":"the databases as output through spreadsheets; therefore, I first address whether the","paragraph_id":"para_359"},{"text":"databases are public records.","paragraph_id":"para_360"},{"text":"The Death Database and the Vaccination Database Are Public Records","paragraph_id":"para_361"},{"text":"{¶ 41} A “record” within the context of Ohio’s Public Records Act, R.C.","paragraph_id":"para_362"},{"text":"149.43,4 is “any document, device, or item, regardless of physical form or","paragraph_id":"para_363"},{"text":"characteristic, including an electronic record” that “serves to document the","paragraph_id":"para_364"},{"text":"organization, functions, policies, decisions, procedures, operations, or other","paragraph_id":"para_365"},{"text":"activities of the [public] office.” R.C. 149.011(G).","paragraph_id":"para_366"},{"text":"{¶ 42} To prove that the records she requested are public records, Huwig","paragraph_id":"para_367"},{"text":"must show by clear and convincing evidence that they are “‘(1) documents, devices,","paragraph_id":"para_368"},{"text":"or items, (2) created or received by or coming under the jurisdiction of the","paragraph_id":"para_369"},{"text":"[department], (3) which serve to document the organization, functions, policies,","paragraph_id":"para_370"},{"text":"decisions, procedures, operations, or other activities of the [department],’” Hicks v.","paragraph_id":"para_371"},{"text":"Union Twp. Clermont Cty. Bd. of Trustees, 2024-Ohio-5449, ¶ 15, quoting State ex","paragraph_id":"para_372"},{"text":"rel. Dispatch Printing Co. v. Johnson, 2005-Ohio-4384, ¶ 19; see also R.C.","paragraph_id":"para_373"},{"text":"149.011(G).","paragraph_id":"para_374"},{"text":"{¶ 43} This court has previously held that records compiled in a single","paragraph_id":"para_375"},{"text":"database are public records, the production of which may be compelled by a writ","paragraph_id":"para_376"},{"text":"of mandamus. In State ex rel. Cincinnati Enquirer v. Jones-Kelley, a newspaper","paragraph_id":"para_377"},{"text":"sought access to an electronic database maintained by the Ohio Department of Job","paragraph_id":"para_378"},{"text":"4. The General Assembly amended R.C. 149.43 in 2024 Sub.H.B. No. 265 with an effective date of","paragraph_id":"para_379"},{"text":"April 9, 2025. This opinion applies the version of the statute enacted in 2022 Am.Sub.H.B. No. 45","paragraph_id":"para_380"},{"text":"(effective Apr. 7, 2023).","paragraph_id":"para_381"},{"text":"SUPREME COURT OF OHIO","paragraph_id":"para_382"},{"text":"14","paragraph_id":"para_383"},{"text":"and Family Services (“ODJFS”) containing the names and addresses of foster","paragraph_id":"para_384","court_paragraph":14},{"text":"caregivers. 2008-Ohio-1770, ¶ 2. This court held that ODJFS maintained the","paragraph_id":"para_385"},{"text":"database as “part of the department’s duty in certifying foster caregivers” and that","paragraph_id":"para_386"},{"text":"it was therefore a public record. Id. at ¶ 7.","paragraph_id":"para_387"},{"text":"{¶ 44} Here, the department maintains the death database to carry out its","paragraph_id":"para_388"},{"text":"function of providing death certificates, and it maintains the COVID-19 vaccination","paragraph_id":"para_389"},{"text":"data in its vaccination database because it used that database to carry out its","paragraph_id":"para_390"},{"text":"reporting function to the CDC during the COVID-19 pandemic. The databases at","paragraph_id":"para_391"},{"text":"issue, then, are public records.","paragraph_id":"para_392"},{"text":"How Records Are Stored Does Not Exempt Them from Disclosure Under the","paragraph_id":"para_393"},{"text":"Public Records Act","paragraph_id":"para_394"},{"text":"{¶ 45} The issue in this case is whether a public-records request for a","paragraph_id":"para_395"},{"text":"portion of a database containing aggregated data requires the public office","paragraph_id":"para_396"},{"text":"responsible for the database to create a new record to respond to the request or","paragraph_id":"para_397"},{"text":"whether the requested record already exists when the public office can export the","paragraph_id":"para_398"},{"text":"database into a CSV file and redact it as needed.","paragraph_id":"para_399"},{"text":"{¶ 46} Relying on State ex rel. Scanlon v. Deters, 45 Ohio St.3d 376 (1989),","paragraph_id":"para_400"},{"text":"overruled on other grounds by State ex rel. Steckman v. Jackson, 70 Ohio St.3d 420","paragraph_id":"para_401"},{"text":"(1994), overruled in part on other grounds by State ex rel. Caster v. Columbus,","paragraph_id":"para_402"},{"text":"2016-Ohio-8394, ¶ 47, the majority concludes that Huwig’s public-records request","paragraph_id":"para_403"},{"text":"would require the department to create a new document. See majority opinion at","paragraph_id":"para_404"},{"text":"¶ 22-24.","paragraph_id":"para_405"},{"text":"{¶ 47} In Scanlon, the relator requested that the clerk of court “compile for","paragraph_id":"para_406"},{"text":"relator’s inspection records of all dispositions of criminal cases concerning Robert","paragraph_id":"para_407"},{"text":"A. Scanlon, by utilizing a computer system.” Scanlon at 376. This court","paragraph_id":"para_408"},{"text":"determined that to respond to the request, the clerk would have to create a new","paragraph_id":"para_409"},{"text":"public record because the request would “require the clerk of courts to compile [the","paragraph_id":"para_410"},{"text":"requested] data through a search of the files in his possession.” Id. at 379. This","paragraph_id":"para_411"},{"text":"January Term, 2025","paragraph_id":"para_412"},{"text":"15","paragraph_id":"para_413"},{"text":"court reasoned that to constitute a record that already exists, the clerk’s computer","paragraph_id":"para_414","court_paragraph":15},{"text":"would need to “already [be] programmed to produce the desired printout,” but it","paragraph_id":"para_415"},{"text":"was not. Id.","paragraph_id":"para_416"},{"text":"{¶ 48} All of that is dicta because in Scanlon, this court denied the writ","paragraph_id":"para_417"},{"text":"because the relator had an adequate remedy in the ordinary course of the law. Id.;","paragraph_id":"para_418"},{"text":"see also id. at 378. Therefore, it was unnecessary for this court to decide in Scanlon","paragraph_id":"para_419"},{"text":"whether the database at issue was a public record or whether the clerk had been","paragraph_id":"para_420"},{"text":"asked to create a new record. And dicta in a prior case “has no binding effect on","paragraph_id":"para_421"},{"text":"this court’s decision in this case.” Cosgrove v. Williamsburg of Cincinnati Mgt.","paragraph_id":"para_422"},{"text":"Co., Inc., 1994-Ohio-295, ¶ 16.","paragraph_id":"para_423"},{"text":"{¶ 49} But in any event, to the extent Scanlon was correctly decided, it is","paragraph_id":"para_424"},{"text":"distinguishable. Unlike in Scanlon, Huwig did not ask the department to compile","paragraph_id":"para_425"},{"text":"the data in a manner that would create a new record, such as by requesting that the","paragraph_id":"para_426"},{"text":"department merge the data in the death and vaccination databases. Rather, Huwig","paragraph_id":"para_427"},{"text":"simply requested that the data in those databases be exported and produced to her","paragraph_id":"para_428"},{"text":"in a certain manner. What she requested is no different from a person’s asking a","paragraph_id":"para_429"},{"text":"public office to make a paper copy of a file kept on microfiche, to print a hard copy","paragraph_id":"para_430"},{"text":"of an electronic document, or to export a copy of an electronic record to a PDF file.","paragraph_id":"para_431"},{"text":"Consequently, Huwig did not ask the department to create a new record, because","paragraph_id":"para_432"},{"text":"the information she seeks from the department’s databases can be exported to a","paragraph_id":"para_433"},{"text":"CSV file and redacted to contain only the necessary fields of information.","paragraph_id":"para_434"},{"text":"No Exception Applies to Huwig’s Public-Records Request","paragraph_id":"para_435"},{"text":"{¶ 50} Because the records that Huwig requested from the department are","paragraph_id":"para_436"},{"text":"public records that exist, to deny Huwig’s public-records request, the public office","paragraph_id":"para_437"},{"text":"must show that the records are excepted from disclosure. State ex rel. School","paragraph_id":"para_438"},{"text":"Choice Ohio, Inc. v. Cincinnati Pub. School Dist., 2016-Ohio-5026, ¶ 11.","paragraph_id":"para_439"},{"text":"{¶ 51} The department’s rationale for withholding the requested records is","paragraph_id":"para_440"},{"text":"twofold: First, it claims that Huwig’s public-records request is overbroad,","paragraph_id":"para_441"},{"text":"SUPREME COURT OF OHIO","paragraph_id":"para_442"},{"text":"16","paragraph_id":"para_443"},{"text":"amounting to a request for the complete reproduction of all information in its death","paragraph_id":"para_444","court_paragraph":16},{"text":"and vaccination databases for the identified years. Second, the department claims","paragraph_id":"para_445"},{"text":"that Huwig requests protected health information, the production of which is","paragraph_id":"para_446"},{"text":"excepted by statute from public-records requests, see R.C. 149.43(A)(1)(a); R.C.","paragraph_id":"para_447"},{"text":"3701.17(B).","paragraph_id":"para_448"},{"text":"{¶ 52} To begin with, the department cannot claim overbreadth as a defense","paragraph_id":"para_449"},{"text":"for failing to produce to Huwig the requested records. When denying a public-","paragraph_id":"para_450"},{"text":"records request as overbroad, a records custodian is required to “provide the","paragraph_id":"para_451"},{"text":"requester with an opportunity to revise the request by informing the requester of","paragraph_id":"para_452"},{"text":"the manner in which records are maintained by the public office and accessed in","paragraph_id":"para_453"},{"text":"the ordinary course of the public office’s . . . duties.” R.C. 149.43(B)(2). The","paragraph_id":"para_454"},{"text":"department refused to inform Huwig of the manner in which the requested records","paragraph_id":"para_455"},{"text":"are maintained, claiming that doing so would reveal critical infrastructure; it","paragraph_id":"para_456"},{"text":"informed Huwig only that the records are “person-based” and that the “information","paragraph_id":"para_457"},{"text":"is recalled by person,” which does not explain how the records are maintained.","paragraph_id":"para_458"},{"text":"Having failed to allow Huwig the opportunity to cure, the department cannot assert","paragraph_id":"para_459"},{"text":"an overbreadth defense now. See State ex rel. Summers v. Fox, 2020-Ohio-5585,","paragraph_id":"para_460"},{"text":"¶ 74.","paragraph_id":"para_461"},{"text":"{¶ 53} Whether a public-records request is overbroad is a determination that","paragraph_id":"para_462"},{"text":"must be made on a case-by-case basis, “analyzed under the totality of facts and","paragraph_id":"para_463"},{"text":"circumstances,” State ex rel. Zidonis v. Columbus State Community College, 2012-","paragraph_id":"para_464"},{"text":"Ohio-4228, ¶ 26. If a public-records requester asks for the “‘complete duplication","paragraph_id":"para_465"},{"text":"of voluminous files kept by government agencies,’” the request is overbroad and","paragraph_id":"para_466"},{"text":"the records custodian may deny the request. State ex rel. Cleveland Assn. of Rescue","paragraph_id":"para_467"},{"text":"Emps. v. Cleveland, 2023-Ohio-3112, ¶ 17, quoting State ex rel. Warren","paragraph_id":"para_468"},{"text":"Newspapers, Inc. v. Hutson, 1994-Ohio-5, ¶ 22.","paragraph_id":"para_469"},{"text":"{¶ 54} However, neither the time range nor the category of documents","paragraph_id":"para_470"},{"text":"requested independently determines overbreadth. See id. at ¶ 17, 24-25. Rather,","paragraph_id":"para_471"},{"text":"January Term, 2025","paragraph_id":"para_472"},{"text":"17","paragraph_id":"para_473"},{"text":"the keys to determining whether a public-records request is overbroad are clarity","paragraph_id":"para_474","court_paragraph":17},{"text":"and concision: the custodian must be able to identify the files requested without","paragraph_id":"para_475"},{"text":"extensive research. See State ex rel. Carr v. London Corr. Inst., 2015-Ohio-2363,","paragraph_id":"para_476"},{"text":"¶ 22.","paragraph_id":"para_477"},{"text":"{¶ 55} The department argues that Huwig’s public-records request is","paragraph_id":"para_478"},{"text":"overbroad because the responsive CSV files would contain millions of cells of data.","paragraph_id":"para_479"},{"text":"Overbreadth, however, does not refer to the size of the requested records but rather","paragraph_id":"para_480"},{"text":"to a lack of specificity in a public-records request leading to an overinclusion of an","paragraph_id":"para_481"},{"text":"immense volume of records. E.g., State ex rel. Data Trace Info. Servs., L.L.C. v.","paragraph_id":"para_482"},{"text":"Cuyahoga Cty. Fiscal Officer, 2012-Ohio-753, ¶ 1, 71 (granting a writ of","paragraph_id":"para_483"},{"text":"mandamus compelling a public office to provide on compact disc to a public-","paragraph_id":"para_484"},{"text":"records requester a copy of all documents recorded in that office over a two-month","paragraph_id":"para_485"},{"text":"period).","paragraph_id":"para_486"},{"text":"{¶ 56} The department knows exactly which records Huwig has requested","paragraph_id":"para_487"},{"text":"here, and its argument against producing those records is tantamount to a claim that","paragraph_id":"para_488"},{"text":"a public office can deny a public-records request if the requested record is too many","paragraph_id":"para_489"},{"text":"pages long. However, that is not the law. Huwig specified with clarity the records","paragraph_id":"para_490"},{"text":"she requested and the data she is seeking to obtain from those records. Therefore,","paragraph_id":"para_491"},{"text":"the department’s overbreadth defense fails.","paragraph_id":"para_492"},{"text":"{¶ 57} Next, the department maintains that protected health information is","paragraph_id":"para_493"},{"text":"excepted from disclosure. See R.C. 3701.17(B). “Protected health information”","paragraph_id":"para_494"},{"text":"includes any information that “describes an individual’s past, present, or future","paragraph_id":"para_495"},{"text":"physical or mental health status or condition, receipt of treatment or care, or","paragraph_id":"para_496"},{"text":"purchase of health products” and is linked to information that “reveals the identity","paragraph_id":"para_497"},{"text":"of the individual” or “could be used to reveal the identity of the individual.”","paragraph_id":"para_498"},{"text":"R.C. 3701.17(A)(2)(a) and (b). If the information does not identify the individual,","paragraph_id":"para_499"},{"text":"then it is not protected health information. R.C. 3701.17(C); see Ludlow v. Ohio","paragraph_id":"para_500"},{"text":"Dept. of Health, 2024-Ohio-1399, ¶ 1. So, when responding to a public-records","paragraph_id":"para_501"},{"text":"SUPREME COURT OF OHIO","paragraph_id":"para_502"},{"text":"18","paragraph_id":"para_503"},{"text":"request, a public office may produce records that contain protected health","paragraph_id":"para_504","court_paragraph":18},{"text":"information so long as the protected health information is redacted. Cuyahoga Cty.","paragraph_id":"para_505"},{"text":"Bd. of Health v. Lipson O’Shea Legal Group, 2016-Ohio-556, ¶ 10-12.","paragraph_id":"para_506"},{"text":"{¶ 58} Here, no one disputes that the death and vaccination databases","paragraph_id":"para_507"},{"text":"maintained by the department likely contain protected health information. The","paragraph_id":"para_508"},{"text":"department claims that because of the nearly infinite amount of information","paragraph_id":"para_509"},{"text":"available on the internet and its policy to avoid providing the public with any","paragraph_id":"para_510"},{"text":"information that could be used to identify a particular individual, it is difficult for","paragraph_id":"para_511"},{"text":"the department to know which data it could leave unredacted in the records","paragraph_id":"para_512"},{"text":"requested by Huwig.","paragraph_id":"para_513"},{"text":"{¶ 59} If accepted, this argument would practically vitiate all public-records","paragraph_id":"para_514"},{"text":"requests made to the department. And that would be contrary to R.C. 3701.17(C),","paragraph_id":"para_515"},{"text":"which says:","paragraph_id":"para_516"},{"text":"Information that does not identify an individual is not","paragraph_id":"para_517"},{"text":"protected health information and may be released in summary,","paragraph_id":"para_518"},{"text":"statistical, or aggregate form. Information that is in a summary,","paragraph_id":"para_519"},{"text":"statistical, or aggregate form and that does not identify an individual","paragraph_id":"para_520"},{"text":"is a public record under section 149.43 of the Revised Code and,","paragraph_id":"para_521"},{"text":"upon request, shall be released by the director [of health].","paragraph_id":"para_522"},{"text":"{¶ 60} It may be true that the availability of information on the internet","paragraph_id":"para_523"},{"text":"makes redacting information from public records to preclude an individual’s being","paragraph_id":"para_524"},{"text":"identified from that information harder than it would have been in the predigital","paragraph_id":"para_525"},{"text":"era. E.g., State ex rel. Beacon Journal Publishing Co. v. Akron, 1994-Ohio-6, ¶ 12-","paragraph_id":"para_526"},{"text":"13, 37 (concluding that to protect individuals’ federal right to privacy, a city must","paragraph_id":"para_527"},{"text":"delete its employees’ Social Security numbers from a computer database before","paragraph_id":"para_528"},{"text":"producing the database to a public-records requester). But the department must","paragraph_id":"para_529"},{"text":"January Term, 2025","paragraph_id":"para_530"},{"text":"19","paragraph_id":"para_531"},{"text":"prove that an exception applies to its duty to produce public records requested under","paragraph_id":"para_532","court_paragraph":19},{"text":"R.C. 149.43, and the department has not presented any evidence in this case to show","paragraph_id":"para_533"},{"text":"that it has actually tried to redact protected health information from the records that","paragraph_id":"para_534"},{"text":"Huwig requested.","paragraph_id":"para_535"},{"text":"{¶ 61} Anyone who has used spreadsheet software understands how to","paragraph_id":"para_536"},{"text":"delete or obscure a column or row of information. And here, the department has","paragraph_id":"para_537"},{"text":"not shown that it could not redact protected health information from the records","paragraph_id":"para_538"},{"text":"Huwig requested once those records are exported to a CSV file. Therefore, I would","paragraph_id":"para_539"},{"text":"grant the writ ordering the department to produce the requested records after","paragraph_id":"para_540"},{"text":"redacting protected health information.","paragraph_id":"para_541"},{"text":"Huwig Is Entitled to Court Costs, Statutory Damages, and Attorney Fees","paragraph_id":"para_542"},{"text":"{¶ 62} R.C. 149.43(C)(3)(a)(i) provides that “[i]f the court orders the public","paragraph_id":"para_543"},{"text":"office or the person responsible for the public record to comply with","paragraph_id":"para_544"},{"text":"[R.C. 149.43(B)], the court shall determine and award to the relator all court costs,","paragraph_id":"para_545"},{"text":"which shall be construed as remedial and not punitive.” Because I would grant the","paragraph_id":"para_546"},{"text":"writ, I would also award Huwig court costs.","paragraph_id":"para_547"},{"text":"{¶ 63} R.C. 149.43(C)(2) provides that a public-records requester is entitled","paragraph_id":"para_548"},{"text":"to recover statutory damages “at one hundred dollars for each business day during","paragraph_id":"para_549"},{"text":"which the public office or person responsible for the requested public records failed","paragraph_id":"para_550"},{"text":"to comply with an obligation in accordance with [R.C. 149.43(B)], beginning with","paragraph_id":"para_551"},{"text":"the day on which the requester files a mandamus action to recover statutory","paragraph_id":"para_552"},{"text":"damages, up to a maximum of one thousand dollars.” Because the department","paragraph_id":"para_553"},{"text":"failed to comply with its statutory obligations by improperly denying Huwig’s","paragraph_id":"para_554"},{"text":"public-records request, Huwig is entitled to statutory damages.","paragraph_id":"para_555"},{"text":"{¶ 64} However, a court may not reduce or decline to award statutory","paragraph_id":"para_556"},{"text":"damages unless “a well-informed public office . . . reasonably would believe that","paragraph_id":"para_557"},{"text":"the conduct of the public office . . . did not constitute a failure to comply with an","paragraph_id":"para_558"},{"text":"obligation in accordance with [R.C. 149.43(B)].” R.C. 149.43(C)(2)(a).","paragraph_id":"para_559"},{"text":"SUPREME COURT OF OHIO","paragraph_id":"para_560"},{"text":"20","paragraph_id":"para_561"},{"text":"{¶ 65} The department argues that any damages awarded to Huwig should","paragraph_id":"para_562","court_paragraph":20},{"text":"be reduced because its denial of her public-records request was made on the good-","paragraph_id":"para_563"},{"text":"faith bases that (1) the request was overbroad, (2) the department reasonably","paragraph_id":"para_564"},{"text":"believed it was not required to create a new record, and (3) the requester sought","paragraph_id":"para_565"},{"text":"protected health information.","paragraph_id":"para_566"},{"text":"{¶ 66} When a public office claims that a public-records request is","paragraph_id":"para_567"},{"text":"overbroad, it has a duty to “inform[] the requester of the manner in which records","paragraph_id":"para_568"},{"text":"are maintained by the public office and accessed in the ordinary course of the public","paragraph_id":"para_569"},{"text":"office’s . . . duties.” R.C. 149.43(B)(2). But here, the department did not inform","paragraph_id":"para_570"},{"text":"Huwig of the manner in which it maintains the requested records; it told her only","paragraph_id":"para_571"},{"text":"that the records are “person-based” and “recalled by person.” That information","paragraph_id":"para_572"},{"text":"does not explain how the records are maintained.","paragraph_id":"para_573"},{"text":"{¶ 67} With respect to its argument that it is not required to create a new","paragraph_id":"para_574"},{"text":"record to respond to Huwig’s request, the discussion above demonstrates that the","paragraph_id":"para_575"},{"text":"death and vaccination databases themselves are the public records. Therefore, the","paragraph_id":"para_576"},{"text":"department did not reasonably believe that no responsive public records exist that","paragraph_id":"para_577"},{"text":"could be produced.","paragraph_id":"para_578"},{"text":"{¶ 68} Although the department has a duty to safeguard protected health","paragraph_id":"para_579"},{"text":"information, it also has a duty to try to redact protected health information from the","paragraph_id":"para_580"},{"text":"records it maintains to comply with its obligations under the Public Records Act.","paragraph_id":"para_581"},{"text":"The department’s denial of Huwig’s public-records request in total, without","paragraph_id":"para_582"},{"text":"considering the possibility of redaction, violated the Public Records Act.","paragraph_id":"para_583"},{"text":"Therefore, the factors that allow a court to reduce statutory damages do not apply","paragraph_id":"para_584"},{"text":"here. And because the department has not produced the public records that Huwig","paragraph_id":"para_585"},{"text":"requested in May 2023, she is entitled to an award of $1,000 in statutory damages.","paragraph_id":"para_586"},{"text":"{¶ 69} Finally, R.C. 149.43(C)(3)(b) provides that “[i]f the court renders a","paragraph_id":"para_587"},{"text":"judgment that orders the public office or the person responsible for the public record","paragraph_id":"para_588"},{"text":"to comply with [R.C. 149.43(B)] . . . , the court may award reasonable attorney fees","paragraph_id":"para_589"},{"text":"January Term, 2025","paragraph_id":"para_590"},{"text":"21","paragraph_id":"para_591"},{"text":"to the relator, subject to [R.C. 149.43(C)(4)].” Because I would order the","paragraph_id":"para_592","court_paragraph":21},{"text":"department to produce the requested records, Huwig would be eligible for attorney","paragraph_id":"para_593"},{"text":"fees subject to the limitation in R.C. 149.43(C)(3)(c).","paragraph_id":"para_594"},{"text":"{¶ 70} R.C. 149.43(C)(3)(c) provides identical factors to those found in","paragraph_id":"para_595"},{"text":"R.C. 149.43(C)(2) that allow a court to reduce or decline to award statutory","paragraph_id":"para_596"},{"text":"damages, which must be considered when determining whether to award attorney","paragraph_id":"para_597"},{"text":"fees. If both factors are met, the court shall not award attorney fees.","paragraph_id":"para_598"},{"text":"R.C. 149.43(C)(3)(c). As discussed above regarding the statutory-damages-","paragraph_id":"para_599"},{"text":"reduction factors, the prohibition against awarding attorney fees that arises under","paragraph_id":"para_600"},{"text":"R.C. 149.43(C)(3)(c) similarly does not apply here, because no “well-informed","paragraph_id":"para_601"},{"text":"public office . . . reasonably would believe” that the department’s actions did not","paragraph_id":"para_602"},{"text":"constitute a failure to comply with the Public Records Act.","paragraph_id":"para_603"},{"text":"{¶ 71} “When considering whether to award attorney fees in public-records","paragraph_id":"para_604"},{"text":"cases, a court may consider the presence of a public benefit conferred by a relator","paragraph_id":"para_605"},{"text":"seeking the disclosure and the reasonableness and good faith of a respondent in","paragraph_id":"para_606"},{"text":"refusing to disclose.” State ex rel. Cincinnati Enquirer v. Dept. of Pub. Safety,","paragraph_id":"para_607"},{"text":"2016-Ohio-7987, ¶ 53.","paragraph_id":"para_608"},{"text":"{¶ 72} As the majority recognizes, “Huwig analyzes health data as a private","paragraph_id":"para_609"},{"text":"citizen who runs a Facebook group and podcast that focus on issues regarding","paragraph_id":"para_610"},{"text":"COVID-19 data. In 2021, based on her own analyses of the department’s then-","paragraph_id":"para_611"},{"text":"public datasets, she twice testified before an Ohio House committee.” Majority","paragraph_id":"para_612"},{"text":"opinion at ¶ 8. And after the department changed which data is publicly available,","paragraph_id":"para_613"},{"text":"Huwig made her public-records request. See id. at ¶ 8-9. In analyzing the data and","paragraph_id":"para_614"},{"text":"sharing her findings, Huwig seeks to provide a public benefit.","paragraph_id":"para_615"},{"text":"{¶ 73} The department argues that Huwig is not entitled to attorney fees","paragraph_id":"para_616"},{"text":"because she has not incurred any. But Huwig testified in a deposition that she has","paragraph_id":"para_617"},{"text":"an attorney whom she plans to pay for legal services related to this case. And she","paragraph_id":"para_618"},{"text":"presented as evidence a copy of a fee agreement that she entered into with an","paragraph_id":"para_619"},{"text":"SUPREME COURT OF OHIO","paragraph_id":"para_620"},{"text":"22","paragraph_id":"para_621"},{"text":"attorney on August 2, 2024. Therefore, I would award Huwig attorney fees in this","paragraph_id":"para_622","court_paragraph":22},{"text":"case, though I would limit that award to only those fees that Huwig incurred after","paragraph_id":"para_623"},{"text":"the fee agreement was executed. I would make a final determination of the amount","paragraph_id":"para_624"},{"text":"of attorney fees to be awarded upon review of Huwig’s filing of an itemized","paragraph_id":"para_625"},{"text":"application with independent evidence supporting the reasonableness of the hourly","paragraph_id":"para_626"},{"text":"rates charged and the hours billed, applying the statutory guidelines in","paragraph_id":"para_627"},{"text":"R.C. 149.43(C)(4).","paragraph_id":"para_628"},{"text":"Conclusion","paragraph_id":"para_629"},{"text":"{¶ 74} For the foregoing reasons, I concur in part and dissent in part. 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