One of the most powerful tools available to criminal defense
attorneys and investigators is the
Kentucky Open Records Act (KRS 61.870
through KRS 61.884, hereinafter “KORA”). KORA was signed into law in 1976 and
it establishes a right of public access to public records kept by government
entities. KORA provides clever defense attorneys with access to evidence that
the prosecutor most likely has not seen. Evidence obtained from KORA can be
invaluable at trial as substantive evidence (subject to evidentiary and
discovery rules), impeachment evidence, or prior to trial for the purposes of
negotiation. Examples of evidence that I have obtained through KORA requests
are police agency policy and procedure manuals, police training records, and
prior police suspensions for misconduct. This article is by no means meant to
be an exhaustive treatise on KORA (there are over 908 reported decisions on the
statute discussing KORA exemptions alone); rather, it is written as a starting
point for an attorney or investigator looking to begin improving their practice
through use of KORA. For a more detailed introduction, a reader should consult
Kentucky
Open Meetings and Open Records Laws: Statutes and Q&A, a document put
out by the Legislative Research Commission and available online at
http://www.lrc.ky.gov/lrcpubs/openmtgsrecords.pdf.
The first step in making a KORA request is to identify the
appropriate entity that keeps the record you wish to obtain. In most cases,
that will be with the law enforcement agency that keeps the records you wish to
acquire. After determining which agency has custody of the record, it is worth
the effort of calling the office and asking who is in charge of open records
requests at that office. The particular agency may have a form that they prefer
you use when making a request. While KORA authorizes two forms of records
inspection (in person and over mail), in practice most agencies prefer sending
records over mail, even if the person does not meet the out of county
requirement for KORA by mail. See KRS 61.823(3) which tells us that if a
person’s primary residence is outside of the county where the record is stored,
she can request that a written copy of the record be mailed to her residence or
place of business. KRS 61.872(3).
Once you have identified the proper agency and have spoken
to the person in charge of answering KORA requests you have to draft the
request itself. It is worth the time to look at the list of materials that are
exempted from KORA production in KRS 61.878. Be specific and general in your
production requests; ask for any and all records that you want that you can
make a good faith argument are not excluded in KRS 61.878. Sign and send the
request to the person in charge of answering them. Depending on the volume of
the record and the type of record, you may want to discuss with the records
custodian the medium (digital or physical) you would like to receive the
records in. Generally digital will be less expensive than physical (both paper
and shipping costs), but if the records are kept in a physical format, KORA
does not require the records custodian to convert them to digital for your
convenience. KRS 61.874(2)(a).
Once
an agency receives a KORA request, it has three days, excluding weekends and
legal holidays to respond to the request under KRS 61.880. If an agency
denies a request, KRS 61.880 requires the agency to state in writing the
specific exception preventing release of the materials. Once a person is
denied access to records under KRS 61.880(1) she can proceed to appeal or
enforce KORA in one of two ways. She can either choose to proceed against the
agency in an administrative process by petitioning the Attorney General to
review the decision and issue an advisory opinion, KRS 61.880(2), or she can
choose to appeal the denial of the disclosure in the Circuit Court for the
county that the agency sits in. See KRS 61.882. It is important to note
that the first method gives the attorney multiple “bites at the apple” on
appeal. After having a decision to deny disclosure affirmed by the Attorney
General, an attorney can still choose to appeal that decision to the local
Circuit Court within thirty days of the opinion being issued. However, an
attorney may feel that a local Circuit Court is more likely to be sympathetic
to her cause. If this is the case, she can bypass the KRS 61.880(2) process and
proceed directly to Circuit Court under KRS 61.882.
Contributed by Brad Clark